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Lake Tanganyika Biodiver sit y Project
Projet sur la Biodiversité du Lac Tanganyika
POLLUTION CONTROL AND OTHER MEASURES TO PROTECT
BIODIVERSITY IN LAKE TANGANYIKA
PROJECT RAF/92/G32
Terminal Evaluation
Stanislaw MANIKOWSKI
Lothar GÜNDLING
ACKNOWLEDGEMENTS
The consultation mission gratefully acknowledges Mr. I. Schuetz--Mueller, the
Chief of UNOPS/ENVP and Ms. Margaret Chi, Portfolio Manager from the
UNOPS, for their comments during the briefing sessions. The Project
Coordinator, Dr. Andrew Menz, and his team provided the mission with all of the
necessary documentation, information, and technical support. They were always
available to discuss the project and the issues relative to its evaluation. Finally,
we are greatly indebted to Dr. Kelly West who assisted the mission during the
visit in the project's Burundi office.
i
ABBREVIATIONS AND ACRONYMS
CoP
Conference of Parties
CRH
Research Center in Hydrobiology
EE
Environmental Education
FAO
Food and Agriculture Organization of the United Nations
GEF
Global Environment Facility
GIF
Geographical Information System
ILMC
Interim Lake Management Committee
ILMS
Interim Lake Management Secretariat
ILMB
Interim Lake Management Body
LTA
Lake Tanganyika Authority
LTBP
Lake Tanganyika Biodiversity Project
LTR
Lake Tanganyika Research Project
MAE
Ministry of Agriculture
MCD
Ministry of Community Development
NGO
Non Governmental Organization
NRI
Natural Resources Institute
NSC
National Steering Committee
NWG
National Working Group
PCU
Project Coordination Unit
RSC
Regional Steering Committee
SAP
Strategic Action Program
SLTA
Secretariat of the Lake Tanganyika Authority
TAC
Technical Advisory Committee
TC
Technical Committee
TDA
Transboundary Diagnostic Analysis
TOR
Terms of Reference
UNDP
United Nations Development Programme
UNOPS
United Nations Office for Project Services
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POLLUTION CONTROL AND OTHER MEASURES TO PROTECT
BIODIVERSITY IN LAKE TANGANYIKA PROJECT (RAF/92/G32)
Terminal Evaluation
SUMMARY
The project 'Pollution Control and Other Measures to Protect Biodiversity in Lake
Tanganyika' (RAF/92/G32) became activite in September 1995 and is scheduled
to terminate in July 31, 2000. The UNDP/GEF project budget was $ 10,000,000.
UNOPS was the Executing Agency, and the NRI Consortium was responsible for
its implementation.
The project's development objective was to demonstrate an effective regional
approach to control pollution and prevent the loss of the exceptional diversity of
Lake Tanganyika's international waters. For this purpose, the project should
create a capacity in the four participating countries, namely Burundi, Democratic
Republic of Congo, Tanzania and Zambia to manage the lake on a regional basis
as a sound and sustainable environment.
The development goal was composed of six immediate objectives:
1. Establish a regional long-term management program for pollution control,
conservation and maintenance of biodiversity of Lake Tanganyika
2. Formulation of regional framework for cooperative management of the lake
environment
3. Establish a program of environmental education and training for Lake
Tanganyika and its basin
4. Establish tested mechanisms for regional coordination in conservation
management of Lake Tanganyika basin
5. In order to produce a full Strategic Action Program for long-term application,
some specific studies need to be undertaken. The special studies will also
add to the understanding of the lake as a whole, and in some cases, provide
the baseline and framework for long-term research and monitoring
programmes
6. Implementation and sustainability of the Strategic Actions Program
The project's implementation was delayed by shortage of qualified national staff,
slow process of national institutions identification and by relatively low priority
attached to the Lake's environment problems. The project perception by the
government improved considerably after an Inception Workshop in March 1996.
The quality of workshop and sense of working program ownership developed by
the member countries created a momentum that helped in launching and then
executing most of the project's program.
iii
Execution of the whole program was disturbed by civil unrest in Burundi and RD
Congo and, in consequence, by limited access to the lakeshore areas. In
particular, the project could prepare but not put into practice the regional
cooperation and large-scale environmental education campaign.
The fact that despite remarkable obstacles the project succeeded so well, is an
outstanding achievement. The project completed the special studies. It also
prepared the Transboundary Diagnostic Analysis, the Strategic Action Program
and the draft Convention on the sustainable management of the Lake, all
nationally driven and good quality documents.
UNOPS who executed the project was strongly supportive, successfully helping
to overcome the project's implementation and administrative difficulties. The
UNDP/GEF helped the project in solving technical and organizational issues. The
NRI provided experienced and dedicated staff and competent consultants. The
Project achieved its objectives applying a participatory approach and building
national consensus. The UNDP Offices of Burundi, Tanzania and Zambia
assisted the project, followed attentively its progress and contributed to the
Regional Steering Committee and Tripartite Review decisions. The supervision of
the Steering Committee and Tripartite Review played an important role in
approving the work programs and evaluating the results. The National Working
Groups were also active as well, however the National Steering Committees,
formed towards the end of the project, were less active and only met in two of the
countries.
In spite of the prevailing insecurity conditions and conflicts between the riparian
states, representatives of all four countries worked well together in a spirit of
collaboration and harmonization to achieve project objectives. Technicians from
all four countries participated in workshops; technicians, resource managers and
policy makers also worked together in regional TDA, SAP and Convention
meetings.
What characterized the governments' involvement in the project activities was a
steady increase in sharing the project's goals, and contributing to realization of
the project's objectives.
The Project Management and Project Implementation Group successfully
responded to the changing environment.
As a result of review of the project's activities, the evaluation mission
recommends:
Concerning the Immediate Objective I:
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1. The Project Coordination Unit should prepare a synthetic document
describing the current state of knowledge about Lake Tanganyika,
indicating the remaining important studies to conduct, both to better
understand the Lake's uniqueness and ways to protect it. Such a document
will be of great value for future Lake Tanganyika management projects and
for other countries of the region currently engaged in similar water
protection activities. It will raise as well the Lake's visibility in the opinion
of the public and decision makers of the riparian countries.
Since the present project could not fully involve the local people in the project
activities
2. It is recommended to the governments that future research or applied
research efforts aiming at the conservation of the Lake's biodiversity
involve local community stakeholders as well, and their results contribute
to solving specific practical problems.
3. Given the limited resources, it is further recommended that future Lake
conservation projects sponsored by GEF compare the expected benefits
from the financed activities with the activities' costs.
Since the countries' citizens' perception of the environment protection projects is
so important for their success
4. It is recommended that the UNDP/GEF projects continue to incorporate
into their work programs activities that will help them monitor changes in
perception among the key stakeholders as a result of the project activities.
Due to the delays and work plan execution difficulties, the Strategic Action
Program was drafted and finalized before the completion of the scientificstudies
final reports. As a consequence, the technical (or scientific) justification of many
of the envisaged actions is not as specific as it could be.
5. It is recommended that further editions of the Strategic Action
Programme and the Transboundary Diagnostic Analysis use fully the
results of the specialc studies. It is also recommended that the final
documents describing the results of the studies clearly indicate the link
between the achieved results and national actions aimed at Lake
protection.
6. It is recommended that the governments of the riparian countries
maintain the SAP groups (or equivalent bodies) and charge them to
promote the SAP implementation, and guide the country administration and
private sectors investing in the SAP priorities.
v
Concerning the Immediate Objective II:
As for the SAP, the Convention draft produced by the riparian countries
delegates after extensive national consultations is also a great project
achievement. To assure its implementation it is recommended that
7. Future Project Management jointly with the National Governments
should ensure the undertaking of wider national consultations for
facilitating the Convention signature and ratification process.
The Convention will be binding for the riparian states. However, the Lake may be
endangered by activities or events that occur in other countries situated in the
lake proximity.
8. It is recommended that the Convention addresses as well the threats to
the Lake originating in non-riparian countries.
Concerning the Immediate Objective III:
Environmental education campaign necessary to the Lake's protection measures
implementation require technical capacity and financial means larger than those
given to the project. By training the trainers and massively involving the national
personnel in the studies and surveys, the project team, nevertheless, took the
first step in environmental education.
9. It is recommended that the national institutions continue monitoring
impact of the project's launched environmental education programme.
10. The government and donors should incorporate recommendations and
lessons learned from the project's environmental education programme
into other development activities in the Lake Tanganyika region.
11. Future poverty alleviation projects for the people living in the Lake's
surroundings should take into account the results of the special studies.
Regional coordination of such future projects would be most beneficial
both for the population and for the Lake.
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Concerning the Immediate Objective IV:
Since the national involvement is crucial to the success of regional initiatives it is
recommended
12. That the Future Project Management and members of the ILMB facilitate
the creation of national structures in each country charged with
implementing the ILMB's decisions on the national level. These structures
can act as a counterpart to the regional initiatives launched by the ILMB,
promoting and transmiting national activities and concerns to the ILMB.
According to the proposal included in the SAP, the project should be immediately
succeeded by an interim structure called the Interim Lake Tanganyika
Management Body. This structure should assure regional cooperation until the
signature of the Convention and implementation of the Lake Authority. The
Interim Body will facilitate the signing of the Convention and assist the countries
in implementing the Strategic Action Program priorities. The whole regional
structure will be financed by donors. The work of the interim secretariat wil be
supervised by the Interim Lake Tanganyika Management Committee, but it is not
clear who will be national partners.
Concerning the Immediate Objective V:
The project has established that the preservation of the Lake biodiversity status
is dependent on sedimentation reduction and improvement of land management
in the Lake's surrounded areas. This improvement requires national commitment
and massive investment in education, training and input availability. The project
should largely disseminate the study results to catalyze such a commitment.
13. It is recommended that the Future Project Management, and after the
project termination, the national institutions and concerned technical
ministries assure the highest visibility of the results of the sedimentation
reduction and land management studies and raise awareness of the
countries' citizens and the authorities about the importance of these
problems both for the Lake and for the well being of the rural populations.
vii
Another threat to the Lake's biodiversity comes from the Lake pollution. The
project studied the problem and identified the major pollution sources. However,
the studies are not yet completed. The unfinished work concerns integration of
the current knowledge about the Lake pollutants into the existing model of
particle transportation in the Lake, and formulation of detailed pollution survey
systems.
14. It is recommended that the Future Project Management identify the
steps needed to implement an integrated pollution monitoring system. This
system should integrate pollution monitoring with biodiversity and
sedimentation monitoring, as well link with law enforcement and
awareness-raising national agencies.
The biodiversity special studies described the present state of the Lake's
biodiversity, advanced practical proposals concerning the management of
protected areas and created national capacity in biodiversity monitoring. The
implementation of the biodiversity study findings is left to the national institutions
and regional bodies charged with Lake Tanganyika biodiversity conservation.
15. It is recommended that the Future Project Management and National
Coordinators identify the governmental structures that will be in charge of
Lake biodiversity monitoring and creation of protected areas for
biodiversity and fish reproduction.
The special study on fisheries produced some general information about fish
exploitation in the Lake and fishing in the littoral zone, important for the
biodiversity. It may be expected that the final document will include more specific
management information.
16. It is recommended that all available data concerning fishing in the lake
are analyzed from the standpoint of requirement of specific priority
programs identified in the SAP. The Project Implementation Group may
recommend that national agencies assure complementary or follow-up
studies.
The socio-economic studies have shown once again that excessive fishing and
inappropriate land exploitation are at the origin of threats to the Lake's
biodiversity.
17. It is recommended that social studies aiming at reducing impact of
human activity on the Lake's biodiversity are attached to any project
dealing with sustainable management of the Lake and its catchment. The
Project Implementation Group should continue to work with the most
viii
appropriate institutions within the region to collect and analyze information
from all social and socio-economic studies.
Concerning the Immediate Objective VI:
It seems that there is one predominant, general conclusion stemming from the
project's studies: the Lake's biodiversity is threatened by inappropriate human
exploitation of the Lake itself and the land in the lake watershed.
18. It is therefore recommended that the future projects and national
institutions assure the follow-up of the activities launched by the project,
closely collaborating with local administrations and existing poverty-
alleviation programs
The project member countries should be fully informed about the actual state of
knowledge about the Lake and be assured that they may easily access this
information.
19. It is recommended that the Project Coordination Unitand the National
Coordinators assure the transfer of all information sources and databases
to the countries.
Identification of areas needing further studies is one of the tasks of the special
studies.
20. The project and its national partners should prepare an inventory of
research areas and prioritize them according to their importance to
management of the Lake, implementation of the SAP, and understanding of
the Lake's biodiversity.
It is expected that in the final report the project will suggest creation of
underwater parks and indicate their location.
21. It is recommended that the national authorities include suggestions for
the creation of aquatic protected areas in the future version of the SAP.
Other Impacts
The awareness of Lake Tanganyika's unique biodiversity has not yet reached a
satisfactory level. (Although it is higher, among populations having direct contact
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with the lake and among the citizens of countries such as Tanzania and Zambia
that benefited from extensive awareness-raising campaigns.) The project did not
evaluate the level of awareness.
22. It is recommended that the national authorities evaluate the level of
awareness of the concerned stakeholders. Such an evaluation will indicate
potential target groups, and the effort needed for awareness-raising. This
will also help the authorities choose the most appropriate tools for raising
awareness.
The lives and economy of millions of people are intimately linked to the Lake.
Most of them live in extreme poverty and are ignorant of the medium-term
consequences of unsustainable land exploitation. Raising awareness of these
citizens is an important humanitarian responsibility of the project's follow-up
institutions.
23. It is recommended that the current and future Project Managements and
the National Coordinators assure large visibility of the project's results that
may have an impact both on the countries' citizens' welfare and the Lake
environment.
General Recommendation
The project indicated ways to achieve self-sustainable management and
preservation of the Lake biodiversity. Probably, the most valuable contribution to
the Lake Tanganyika biodiversity protection will be investment in a new
generation of environmental projects that will put into practice the present project
results within the framework ofthe Strategic Action Program and the Convention.
- 24. It is therefore recommended to the Regional Steering Committee and
governments of the riparian countries to identify donors susceptible to
support the next phase of the Lake Tanganyika biodiversity protection
projects. During this phase, that may correspond to the interim period
between the present project termination and the Convention
implementation, the projects may concentrate on such activities as:
- Promotion of the SAP integration in national development programs,
and the Convention signature and ratification facilitation
- Assistance in formulating specific Lake protection projects in
accordance with the SAP
- Test the importance of benefits generated by Lake protection activities
x
- Promote the Lake protection approach among donors for the riparian
countries
- Disseminate the present project results among all stakeholders
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TABLE OF CONTENTS
INTRODUCTION......................................................................................................1
1
Project Implementation .....................................................................................2
1.1 General implementation................................................................................2
1.2 Management, Monitoring and Backstopping................................................4
1.3 Steering Committees and Working Groups - Institutional Set-up................5
1.4 Inputs of the Governments............................................................................5
1.5 Input of UNDP Country Offices to the Project ..............................................6
1.6 Responsiveness of the Project Implementation Group to changes in the
environment ..........................................................................................................6
2
Project Impact ...................................................................................................6
2.1 Project Achievements ...................................................................................6
2.1.1 Objective 1: Establish a regional long-term management program for
pollution control, conservation and maintenance of biodiversity of Lake
Tanganyika........................................................................................................7
2.1.2 Objective 2: Formulation of regional framework for cooperative
management of the lake environment..............................................................9
2.1.3 Objective 3: Establish a program of environmental education and
training for Lake Tanganyika and its basin ....................................................10
2.1.4 Objective 4: Establish tested mechanisms for regional coordination in
conservation management of Lake Tanganyika ............................................11
2.1.5 Objective 5: Specific studies................................................................12
2.1.6 Objective 6: Implementation and sustainability of the Strategic Actions
Program...........................................................................................................14
2.2 Other Impacts..............................................................................................16
2.2.1 Level of Awareness .............................................................................16
2.2.2 Level of Commitment of Countries and Support of government to
integrate the project objectives into national goals........................................16
2.2.3 Impact of project on policy...................................................................17
2.2.4 Sector cooperation...............................................................................18
3
Conclusions and Recommendations..............................................................19
3.1 General Conclusions...................................................................................19
3.2 Objectives realization ..................................................................................20
3.3 Lessons that can be drawn from the project experience ...........................23
3.4 Further actions ............................................................................................23
Annexes..................................................................................................................25
Annex I. Terms of Reference................................................................................26
Annex II. Itinerary ..................................................................................................33
Annex III. Documents Consulted ...........................................................................34
Annex IV. List of interviewed persons ..................................................................39
Annex V. Project Evaluation - Technical Issues....................................................40
Annex VI. Legal Component ..................................................................................81
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INTRODUCTION
Project evaluation is an activity in the project cycle which attempts to determine
as systematically and objectively as possible the relevance, efficiency,
effectiveness, impact and sustainability of the project against its objectives
(Annex I). In principle, every significant UNDP-sponsored project is subject to
evaluation. The evaluation of the important UNDP/GEF project 'Pollution Control
and Other Measures to Protect Biodiversity in Lake Tanganyika' (RAF/92/G/32)
took place between April 28 and May 26, 1999 (Annex II). Two consultants
contributed to the evaluation. They were:
- Team leader, Stanislaw Manikowski
- Environmental Law Consultant, Lothar Gündling
During the evaluation process, the mission met with several stakeholders (Annex
III). It encountered the UNOPS and GEF officers who provided technical
backstopping and administrative support for the project, the Regional Steering
Committee delegates, the beneficiary country representatives, and the project
team. The mission visited Dar es Salaam project implementation headquarters,
and office in Bujumbura. Debriefing of the mission took place in UN offices in
New York.
The evaluation referred to the procedures described in the Terms of Reference
provided by the UNOPS (Annex I), and the guidelines for project evaluation by
the UNDP Central Evaluation Office. The present report describes findings,
conclusions, and recommendations of the mission. The report is organized so as
to reflect concerns in regard to the Terms of Reference.
1
1 PR OJ ECT IMPLEM ENTATION
This section assesses the project's general implementation; the management
arrangements for institutional set-up; inputs of the governments and UNDP;
responsiveness of management to changes in the project's environment; UNOPS
execution modality; and cooperation among project partners.
1.1 GENERAL IM PLEMENTATI ON
The project document was signed February 14, 1995, and the project was
scheduled to start on August 1, 1995. It initiated its activities in September 1995
with the preparation of baseline reviews, consolidation of its logistical support in
the region, and organization of regional cooperation. The identification of national
key institutions that might be involved in the project's program execution and
selection of the appropriate staff took more time than initially expected, resulting
in delays in implementation of project activities.
The interviews with the project team and consultation of documents indicate
several reasons for these delays. The national institutions of the recipient
countries were poorly informed about the project's objectives and importance for
Lake Tanganyika. Even the pressing necessity of the Lake's protection was not
clearly visualized as a regional priority. The project was not included in the
national development programs.
Another source of delays was a shortage of qualified technical staff and scientific
personnel in the Lake shore stations and in institutions that might help the project
realize its activities: the existing personnel were frequently assigned to other
urgent tasks, and governmental funding shortage limited new staff recruitment
possibilities.
The civil unrest in Burundi and DR Congo disturbed project implementation in
these countries and considerably delayed execution of planned field activities.
The project headquarters had to be based in Dar-es-Salaam rather than
Bujumbura as originally planned, organization of workshops and regional
meetings were more complex, and visits to the Lake were restricted.
The project perception by the governments and execution conditions improved
considerably after the Inception Workshop held in Dar es Salaam in March 1966.
The quality of the workshop presentations, the strength of arguments and sense
of ownership of the proposed working program, created a momentum that helped
start wide preparations to launching the whole research and capacity building
2
program. The project started to train national staff, equip laboratories and launch
the activities. In the secure regions, the special study programs were in progress
in 1997. At the same time, the national working groups started to draft
contributions to the Transboundary Diagnostic Analysis (TDA) and the Strategic
Action Program (SAP), and mobilize national legislators to design the
Convention.
Now, two months before termination, the project realized most of assigned
activities and is in the process of delivering the attained outputs. Among 80
activities only 11 were not executed, mostly because it became evident for the
Project Management1 that the project funding may be better allocated elsewhere.
Unfortunately, the delay in project implementation and the insecurity still
prevalent in two of four countries rendered the project unable to put in practice
the programmed regional cooperation and launch a large environmental
education campaign.
The fact that despite remarkable obstacles the project succeeded so well, is an
outstanding achievement.
Legal aspect evaluation
The Draft Convention is a comprehensive and consistent document. It reflects
the standards of international treaty-making in transboundary water
management.
Improvements may still be possible, e.g. with regard to:
- Integration of the basin approach in a way which is acceptable to the four
riparian countries
- Reference in the draft to status and delimitation problems
- Reference to other regional agreements and mechanisms
- Formal structure of the Draft
However, it is an acceptable strategy that these activities and modifications be
left to the formal negotiation phase. During the negotiations, these improvements
which must also be supported by a consensus of the riparian states, can be
achieved.
The overall conclusion is that the Draft Convention is a good quality document.
1 Project Management is used to refer to the high level management and supervision provided by GEF,
UNDP and UNOPS and the Regional Steering Committee. Future Project Management refers to a similar
level of management that will be required in any proposed future phases.
The Project Implementation Group is used differentiate this high level management responsibility with the
regular management activities of the project undertaken by by the Project Coordination, the National
Coordinators, the National Working Groups, and the NRI consortium.
3
1.2 MANAG EMENT, MONITORI NG AND BACKSTOPPI NG
The financial management of the project was localized in the NRI Consortium.
According to the Project Management, this arrangement freed up the Project
Coordination Unit from the everyday administrative work and allowed staff to
focus on technical issues. The project program monitoring was assured by
UNOPS. The UNOPS was strongly supportive of the project, helping to overcome
activities implementation difficulties, and clarify national involvement. It kept the
project informed about progress in administrative arrangements. The UNDP/GEF
office in New York took care of technical backstopping. The presence of the GEF
delegates at various project meetings was always helpful in solving technical and
organizational issues. However, the Project Implementation Group expected
more information from GEF about other lakes protection projects and about the
formulation of TDA, SAP and the Convention.
The project was reviewed twice by the Tripartite Review. Each review introduced
new and constructive elements into the project's program execution. The Project
Management expected, however, that the Review will assure closer follow-up of
its recommendations.
Globally, the management, monitoring and backstopping were judged by the
Project Implementation Group as helpful, supportive and important in
implementation of project activities.
Legal aspect evaluation (Details in Annex VI)
Basically two management options were available:
- Drafting by drafting group of representatives of the four countries, facilitated
by international legal expert(s)
- Drafting of the text by international legal expert(s) with involvement of national
experts (technical and legal)
The national delegations of the first regional workshop voted for the latter
approach. Involvement of national governmental experts was ensured through
sub-regional and regional workshops and in other ways (commenting on drafts by
local lawyers). Lawyers involved came from Ministries of Environment, Foreign
Offices and / or Ministries of Justice of the four project countries.
The approach chosen was appropriate; it was also a participatory procedure. The
objective, the consensus at national levels, therefore, has been achieved.
4
1.3 STEERING COM MI TTEES AND WORKI NG GRO UPS - INSTI TUTIO NAL SET-UP
The project benefited from supervision by a Regional Steering Committee and
advice from National Steering Committees. The Regional Steering Committee
met six times and each meeting played an important role in evaluation of the
project results, proposals, and validation of the work programs. The first Tripartite
Review held in January 1998 recommended the creation in each country of a
National Steering Committee. These National Committees would promote
national participation in the project. Unfortunately, the Committees were not very
active and only two of them organized a meeting. The National Working Groups
were more active but there was a lack of continuity in the working programs of
these national bodies.
The Regional Steering Committee played an important role in project execution.
Unfortunately, the National Steering Committees were less effective in directing
project implementation.
1.4 INPUTS O F THE GOVERNMENTS
At the beginning of project implementation, the governments manifested little
interest in the project. However, governments' involvement increased when the
project launched national discussions about the SAP and Convention. The
representatives of the technical ministries involved in Lake Tanganyika activities
informed the mission that the governments are awaiting the final version of the
SAP and Convention to start working on their incorporation into the national
programs and legislation. On the technical level, governments supported the
project through sending administrative staff to participate in project meetings,
technical personnel to implement the project work plan, and providing laboratory
facilities and offices.
In spite of the prevailing insecurity conditions and conflicts between the riparian
states, representatives of all four countries worked well together in a spirit of
collaboration and harmonization to achieve project objectives. Technicians from
all four countries participated in workshops; technicians, resource managers and
policy makers also worked together in regional TDA, SAP and Convention
meetings.
What characterized the governments' involvement in the project activities was a
steady increase in sharing the project's goals, and contributing to realization of
the project's objectives.
5
1.5 INPUT OF UN DP COUNTRY OFFICES TO THE PRO JECT
The representatives of the UNDP Offices in Bujumbura, Dar es Salaam and in
Lusaka attended the Regional Steering Committees and the Tripartite Reviews.
The UNDP Offices supported and assisted the project in equipment importation,
followed the progress of the project, and advised the project staff. The project
personnel being employed by private organizations were not automatically
eligible for full UN identify documents resulting in some hindrance of project
execution and reduced security of staff.
1.6 RESPO NSI VENESS OF THE PRO JECT IMPLEMENTATIO N GRO UP TO CHANG ES IN THE
ENVI RONMENT
The project has been working in very difficult conditions, requiring great flexibility
and imagination for successful management of the work programs. Instability in
the region and lack of access to almost half of the terrain that should be covered
by the project investigations, required from the Project Implementation Group
many ad hoc arrangements and a lot of endurance in pursuit of the assigned
objectives. In spite of extremely adverse conditions, the project continued the
activities and delivered most of its objectives.
In the beginning the governments of the riparian countries were not fully aware of
the project's objectives and working program. Project Management and Project
Implementation Group were obliged to add to their agenda actions that aimed at
building awareness among the host governments about the Lake's environmental
problems and the role of the project. The Project Management and Project
Implementation Group succeeded in this endeavor, since at the end, the four
riparian countries joined the project in designing new and unprecedented regional
working programs and common legislative instruments directed to the protection
of the Lake.
The Project Management and Project Implementation Group successfully
responded to the changing environment.
2 PR OJ ECT IMPA CT
The project impact will be discussed in two separate sections: project
achievement's impact and other impacts.
2.1 PRO JECT ACHIEVEM ENTS
The project achievements will be discussed in the same order as the project
immediate objectives.
6
2.1.1 Objective 1: Establish a regional long-term management program for
pollution control, conservation and maintenance of biodiversity of
Lake Tanganyika
At the beginning of 1996, the project produced a thorough review of existing data
relevant to Lake Tanganyika. This review was an outstanding output that shaped
the future understanding of threats to the Lake Tanganyika biodiversity. The
subsequent project's work programs, formulated during the Inception Workshop
and approved by the Regional Steering Committee, were strongly shaped by this
review. The baseline studies confirmed the diagnosis of threats formulated by the
Project Document: that the Lake suffers mostly from inappropriate agricultural
practices and excessive fishing. Having a clear diagnostic of the Lake situation,
the project was able to propose a list of specific activities leading to pollution
reduction and biodiversity maintenance. Since many of the activities extended
the Lake knowledge and designed practical measures of Lake threat reduction, it
is recommended to the Project Coordination Unit (PCU):
1. Prepare a synthetic document describing the current state of knowledge
about Lake Tanganyika, indicating the remaining important studies to
conduct, both to better understand the Lake's uniqueness and ways to
protect it. Such a document will be of great value for future Lake
Tanganyika management projects and for other countries of the region
currently engaged in similar water protection activities. It will raise as well
the Lake's visibility in the opinion of the public and decision makers of the
riparian countries.
The Baseline Studies catalyzed interests in the project among the national
scientific communities and decision-makers. They were reviewed during national
informal meetings and extensively discussed during an Inception Workshop. The
Workshop finalized the project work plan and created a sense of ownership of
this plan by the country's delegates. The finalized work plan concentrated the
project's effort on understanding of the Lake biology, the threats, and the link of
the Lake with human activities. The Inception Report stressed the importance of
involving local people at the start in project activities. This involvement remained
at relatively low levels while attention was devoted to more academic subjects
such as biodiversity monitoring, sedimentation study in the lake or particle
movement in the Lake's water.
2. It is recommended to the governments that future research or applied
research activities aiming at the conservation of the Lake's biodiversity
involve local community stakeholders as well, and their results contribute
to solving specific practical problems.
7
3. Given the limited resources, it is further recommended that future Lake
conservation projects sponsored by GEF compare the expected benefits
from the financed activities with the activities' costs.
The created ownership of the project program was an important step in building
project visibility in the eyes of the riparian countries' public opinion, scientific
communities and decision makers. This visibility building was an important result
of the project's activities, since at the end it mobilized the ministries to collaborate
in regional priorities identification and drafting of regionally binding laws.
Since the countries' citizens' perception of the environment protection projects is
so important for their success
4. It is recommended that the UNDP/GEF projects continue to incorporate
into their work programs activities that will help them monitor changes in
perception among the key stakeholders as a result of the project activities.
In general, the project was very successful in executing the activities that were
independent (or almost independent) of the local security conditions. The process
of drafting the Strategic Action Program was an example of this efficiency. The
preliminary draft of the plan was produced as early as 1996. It was subsequently
improved and replaced by one that was extensively discussed in national
workshops. In fact, the project provided the national groups (purposely created to
discuss the plan) with GEF guidelines and assistance assuring regional
coherence of this document. The Lake threats diagnosis, and the protection plan
were produced by national technicians and decision makers. Creation of
conditions allowing national ownership of the Strategic Action Program is one of
the project's greatest achievements. The Program, however, was drafted and
finalized well before the final write-up of the specific studies. As a consequence,
the technical (or scientific) justification of many of the envisaged actions is not as
specific as it could be.
5. It is recommended that further editions of the Strategic Action
Programme and the Transboundary Diagnostic Analysis use fully the
results of the specialc studies. It is also recommended that the final
documents describing the results of the studies clearly indicate the link
between the achieved results and national actions aimed at Lake
protection.
Both the TDA, SAP and the Diagnosis are at the stage where they indicate the
actions and rank them in priority order. Such a regionally agreed upon inventory
of Lake protection priorities is a great and lasting achievement of the project. It is
also an example for other regions facing a similar need to produce a common
international coherent environment protection program. There is, however, a
need for the next steps that will assure implementation of the program:
8
endorsement of the priorities by the governments, incorporation of the Plan into
the national development and investment programs, preparation of specific
implementation proposals and investment projects2. These actions should be
assured after the project termination (According to the initial project's work plan,
beginning implementation of these investments should take place before the
project termination; however, the implementation delays and difficult
humanitarian situation of the region delayed the project's program
implementation.)
6. It is recommended that the governments of the riparian countries
maintain the SAP groups (or equivalent bodies) and charge them to
promote the SAP implementation, and guide the country administration and
private sectors investing in the SAP priorities.
2.1.2 Objective 2: Formulation of regional framework for cooperative
management of the lake environment
The project produced a draft of the Convention on the sustainable management
of the Lake which represents a joint effort of senior lawyers, policy makers and
key technicians from the riparian countries. As the SAP, the Convention is a
participatory effort of the Lake Tanganyika riparian countries. Once signed, the
Convention will become a framework for other national legislation concerning
Lake Tanganyika environment protection. The country delegates expect that it
will lead to other national legislation adjustments. The Convention provisions
about environmental impact assessment, public awareness building and public
participation in the decision making process, are new in these countries and will
probably impact other domains of public life.
The Convention draft produced by the riparian countries delegates after
extensive national consultations is another great project achievement.
7. Future Project Management jointly with the National Governments
should ensure the undertaking of wider national consultations for
facilitating the Convention signature and ratification process.
The Convention will be binding for the riparian states. However, the Lake may be
endangered by activities or events that occur in other countries situated in the
lake proximity.
2 It is worth noting that the four countries have signed a PDF Block C Grant Request to support an interim
detailed planning and budget negotiation phase, necessary to lead into a full SAP implementation phase.
9
8. It is recommended that the Convention addresses as well the threats to
the Lake originating in non-riparian countries.
Legal component evaluation
The objective to formulate a regional legal framework has been achieved. A Draft
Convention has been submitted as a working document for formal political
negotiations, signature, ratification and implementation by the four riparian
countries. It is important to note that the Draft Convention reflects international
standard of law-making and, at the same time, is based on a consensus among
the four countries.
2.1.3 Objective 3: Establish a program of environmental education and
training for Lake Tanganyika and its basin
Since the most imminent threat to Lake biodiversity comes from pollution and
inappropriate land exploitation by farmers and herders, and excessive fishing,
environmental awareness raising and education programs are at the core of the
project activities. The programs launched by the project concerned the first steps
in environmental education: training of trainers, workshop organization,
preparation of environment education work programs and some limited
environment education activities. The project contributed largely to national
capacity building in Lake protection studies and Lake surveys. About 340 national
scientists, managers and technicians from 49 institutions participated in the
activities contributing to the project outputs. Unfortunately, the project was much
less involved in the training and awareness raising of the Lake's direct
beneficiaries. This was mostly due to insecurity prevailing in more than half of the
Lake shore territories. In addition, the project was not equipped to launch a
massive awareness campaign addressed to about 10 million people. Moreover,
the sociological studies launched by the project demonstrated that awareness
itself is not sufficient. The population living around the Lake are poorer than the
countries' averages, and the current unsustainable practices are the only way for
them to survive.
In consequence, providing that security permits, a large efficient environmental
education campaign accompanied by appropriate interventions, requires
technical capacity and financial means largely superior to those given to the
project. Training the trainers and massively involving the national personnel in
the studies and surveys, the project team, nevertheless, initiated environmental
education.
10
9. It is recommended that the national institutions continue monitoring
impact of the project's launched environmental education programme.
10. The government and donors should incorporate recommendations and
lessons learned from the project's environmental education programme
into other development activities in the Lake Tanganyika region.
11. Future poverty alleviation projects for the people living in the Lake's
surroundings should take into account the results of the special studies.
Regional coordination of such future projects would be most beneficial
both for the population and for the Lake.
2.1.4 Objective 4: Establish tested mechanisms for regional coordination
in conservation management of Lake Tanganyika
The project proposed a regional structure that will implement the Convention and
an interim structure that should assure transition between the termination of the
present regional protect and the Convention implementation.
According to the proposed structures, the convention will be implemented
through decisions of the Conference of the Parties. The specific decisions and
recommendations of the Conference of the Parties will be transmitted for
planning and organizing to a Lake Tanganyika Management Committee. The
execution of the Committee designed program will be in the hands of its
Secretariat and Technical Committees. This structure (Management Committee,
Secretariat, and Technical Commission), called the Lake Tanganyika Authority
(LTA), will be financed by member countries and by donors. The Convention
document is not specific about national arrangements that should assist
execution of the Convention recommendations, and be counterparts to the LTA.
Moreover, according to the proposal included in the SAP, the project should be
immediately succeeded by an interim structure called the Interim Lake
Tanganyika Management Body (LTMB). This structure should assure regional
cooperation until the signature of the Convention and implementation of the LTA.
The Interim Body will facilitate the Convention signature and assist the countries
in implementation of the Strategic Action Program priorities. The regional
structure will be financed by donors. While there is an Interim Lake Tanganyika
Management Committee, that supervises the work of the Secretariat, it is not
clear who will be the national partner of the Body.
Since the experience of the past five years of project activities shows that large
national involvement is crucial to the success of regional initiatives it is
recommended:
11
12. That the Future Project Management and members of the ILMB facilitate
the creation of national structures in each country charged with
implementing the ILMB's decisions on the national level. These structures
can act as a counterpart to the regional initiatives launched by the ILMB,
promoting and transmiting national activities and concerns to the ILMB.
2.1.5 Objective 5: Specific studies
Sediment
The project has launched a series of surveys and studies about sediment
deposition in the Lake and sediments' impact on biodiversity. The studies
confirmed the previous findings about negative impact of sediment deposition in
some Lake areas on the biodiversity. The studies provided valuable information
about the existing link between plants, animals, and sediment pollution. The most
important result is the confirmation that sediment input to the Lake is a primary
threat to lake biodiversity since the sedimentation is responsible for the slow
disappearance of the original biota. The studies about the sediment impact have
important consequences for Lake biodiversity protection programs. It must be
mentioned that the excessive sedimentation is an indicator of highly
unsustainable agricultural practices combined with rapidly increasing population
of the region. It is now well documented that preservation of the biodiversity
status should go through improvement of land management in the areas that
surround the Lake inhabited by 10 million people, mostly farmers. This
improvement requires national commitment and massive investment in
education, training and input availability. The project should largely disseminate
the study results to catalyze such a commitment.
13. It is recommended that the Future Project Management, and after the
project termination, the national institutions and concerned technical
ministries assure the highest visibility of the results of the sedimentation
reduction and land management studies, and raise awareness of the
countries' citizens and the authorities about the importance of these
problems both for the Lake and for the well being of the rural populations.
Pollution
Another danger to the Lake's biodiversity comes from pollution. The project
studied the problem and identified the major pollution sources. In the future,
pollution control will require thorough monitoring, formulation of regional pollution
control strategies and introduction of incentives motivating polluters to reduce
discharges to the Lake. The project-trained personnel and equipped laboratories
may continue to monitor the pollution. The yet unfinished work concerns
12
integration of the current knowledge about the Lake pollutants into the model of
particle transportation in the Lake, and formulation of detailed pollution survey
systems.
14. It is recommended that the Future Project Management identify the
steps needed to implement an integrated pollution monitoring system. This
system should integrate pollution monitoring with biodiversity and
sedimentation monitoring, as well link with law enforcement and
awareness-raising national agencies.
Biodiversity
A biodiversity special study created national capacity in biodiversity monitoring,
and produced a thorough description of the present state of the Lake's
biodiversity. It advanced as well practical proposals concerning management and
creation of protected areas. The existing results provide a rational basis for
delimiting areas that should be protected for biodiversity conservation and for
commercial fish reproduction. The implementation of the biodiversity study
findings is left to the national institutions and regional bodies charged with Lake
Tanganyika biodiversity conservation.
15. It is recommended that the Future Project Management and National
Coordinators identify the governmental structures that will be in charge of
Lake biodiversity monitoring and creation of protected areas for
biodiversity and fish reproduction.
Fisheries Practices
The special study on fisheries available in May produced some general
information about fish exploitation in the Lake and fishing in the littoral zone of
key importance for biodiversity. It may be expected that the final document (in
preparation) will also include more specific and important managerial information
as commercial fish stock availability; fish reproductive capacity; fishing population
projections; and fish population dynamics. The results should include the
pertinent information from the LTR/FAO project. Intensive fishing and fish catch
in littoral zones are, after excessive sedimentation, the most important threat to
the Lake's biodiversity. If the current studies cannot yet provide the SAP with all
the needed information, it will be necessary to continue the study.
16. It is recommended that all available data concerning fishing in the lake
are analyzed from the standpoint of requirement of specific priority
programs identified in the SAP. The Project Implementation Group may
recommend that national agencies assure complementary or follow-up
studies.
13
Socio-Economics
The socio-economic studies have shown once again that excessive fishing and
inappropriate land exploitation are at the origin of threats to the Lake's
biodiversity. The human behavior that is at the origin of these threats cannot be
modified without changing the production practices, and the social and economic
life of the people in the region. These modifications may be difficult to achieve
since they are accompanied by widespread insecurity, large numbers of
refugees, high population growth and poverty. The project indicates the general
strategy of handling the problem from the social point-of-view.
17. It is recommended that social studies aiming at reducing impact of
human activity on the Lake's biodiversity are attached to any project
dealing with sustainable management of the Lake and its catchment. The
Project Implementation Group should continue to work with the most
appropriate institutions within the region to collect and analyze information
from all social and socio-economic studies.
Information Management
The project developed and delivered two modern data analysis and information
distribution tools a Geographical Information Systems (GIS) and project Website.
The GIS includes a metadatabase that lists datasets generated by the project as
well as other sources. These datasets may be integrated and mapped to study
patterns and processes as Lake's biodiversity changes, pollutant's distribution or
sedimentation patterns. The GIS is a new and valuable tool for scientists,
resource managers and environmental planners.
The project Website (www.ltbp.org) serves as an international library, archive and
information exchange forum concerning the Lake biodiversity. It contains the
project documents database with electronic copies of all project reports, as well
as general extension information about the Lake, prepared by the project. The
Website will continue to be maintained and developed by the next phase of the
Lake Tanganyika Project and by the ILMB.
2.1.6 Objective 6: Implementation and sustainability of the Strategic
Actions Program
The research programs designed for the life of the present project, aimed at
raising the general level of understanding about the Lake's biodiversity and its
14
threats. The produced documents increased knowledge about the Lake and
raised numerous questions requiring future investigation. It seems that there is
one predominant, general conclusion stemming from these studies: the Lake's
biodiversity is threatened principally by inappropriate human exploitation of the
Lake itself and the land in the lake watershed, and this inappropriate exploitation
threatens the economic basis of human welfare as well. Consequently, actions
aimed at sustainability of the fishing and land exploitation reduce the threat to the
Lake's biodiversity. Future research programs oriented toward specific practical
problems concerning fishery and land exploitation identified in the Strategic
Action Program will benefit both the Lake and people.
18. It is therefore recommended that the future projects and national
institutions assure the follow-up of the launched activities, closely
collaborating with local administrations and existing poverty-alleviation
programs.
Implementation of the Strategic Action Program depends on the commitment of
the countries to assure the Lake's biodiversity conservation. However, the
success of the specific actions depends on existing information. The project
member countries should be fully informed about the actual state of knowledge
about the Lake and be assured that they may easily access to this information.
19. It is recommended that the Project Coordination Unit and the National
Coordinators assure the transfer of all information sources and databases
to the countries.
Identification of areas needing further studies is one of the tasks of the special
studies.
20. The project and its national partners should prepare an inventory of
research areas and prioritize them according to their importance to
management of the Lake, implementation of the SAP, and understanding of
the Lake's biodiversity.
The project did not consider it necessary to prepare specific management plans
for development of underwater reserves. However it proceeded to scrutinize the
Lake from the reserve-creation standpoint. The results of the studies show that
creation of underwater reserves is valid for biodiversity conservation, is an
economical necessity for fisheries sustainability, and a potential source of
supplementary revenue from tourism. If, in the final report, the project will
suggest creation of underwater parks and indicate their location
15
21. It is recommended that the national authorities include suggestions for
the creation of aquatic protected areas in the future version of the SAP.
2.2 OTHER IMPACTS
Under this section we deal with level of awareness, level of countries
commitment, and impact on policies, and sector cooperation
2.2.1 Level of Awareness
The awareness of Lake Tanganyika's unique biodiversity did not yet reach a
satisfactory level. It is high though, among populations having direct contact with
the lake and among the citizens of countries such as Tanzania and Zambia that
benefited from extensive awareness-raising campaigns. The project did not
evaluate the awareness level.
22. It is recommended that the national authorities evaluate the level of
awareness of the concerned stakeholders. Such an evaluation will indicate
potential target groups, and the effort needed for awareness-raising. This
will also help the authorities choose the most appropriate tools for raising
awareness.
Legal component evaluation
The Draft Convention has been prepared with the involvement of the national
governments of the four riparian states Burundi, Democratic Republic of Congo,
Tanzania and Zambia. The national governments through lawyers from various
concerned ministries provided the necessary feedback to the drafters. The
present Draft appears to be accepted by the governmental institutions involved in
the process. At the 6th Steering Committee Meeting it became clear that these
governmental institutions are prepared to mobilize more support for the Draft
Convention at the national levels through further consultations with other
concerned ministries and departments. An indicator of such commitment also is
the support of the Strategic Action Plan which provides for provisional institutional
arrangements at the regional level. It can, therefore, be concluded that the
governments will do all necessary, so that formal negotiations on the Draft
Convention may start very soon.
2.2.2 Level of Commitment of Countries and Support of government to
integrate the project objectives into national goals
16
According to the declaration of the interviewed countries' delegates, the countries
are committed to implementing the SAP according to the guidelines of the
Convention. Implementation of this commitment requires SAP approval by
technical ministries and development planning authorities within the countries.
The formal approval would require the signing of the Convention by the
respective governments.
The countries' representatives stressed, that although for the time being there is
no major direct government investment in realization of the objectives designed
by the project, the project only recently started to propose specific actions to
implement. In fact, the SAP was proposed for consideration to the Steering
Committee less than one month ago. In the meantime, the countries'
governments provided the project with requested facilities and detached its staff
to participate in the project's launched activities and organized meetings.
In fact, the results of the project's findings show that support of the proposed
actions is not only a matter of commitment to ecological ethics or a will to
preserve biodiversity, but the easiest way to assure the habitants of the Lake
shores decent living conditions.
2.2.3 Impact of project on policy
There is as yet, no specific policy declaration in support of the Lake's biodiversity.
However, the project findings, especially the strong link existing between the
welfare of people living around the Lake and the Lake's ecological health, is so
strong a political issue that once the results become available, probably in one or
two months, the countries' policy toward the Lake cannot remain unchanged.
The life and economy of millions of people is intimately linked to the Lake. Most
of them live in extreme poverty and are ignorant to the medium-term
consequences of unsustainable land exploitation. Raising awareness of these
consequences for these citizens of the Lake's riparian countries is an important
humanitarian responsibility of the project's follow-up institutions.
23. It is recommended that the current and Future Project Managements
and the National Coordinators assure large visibility of the project's results
that may have an impact both on the countries' citizens' welfare and the
Lake environment.
Legal component evaluation
Policies and strategies to implement the Draft Convention at the national level
cannot be expected yet; the immediate steps to be taken are (a) further
consultations at national level and (b) negotiations among the four countries. The
17
consensus however, to the regional strategy, the SAP, can be taken as a
manifestation of the shared commitment of the four countries.
2.2.4 Sector cooperation
Legal component evaluation
In preparing the Draft Convention sectoral cooperation has taken place at
national levels, at least as far as Ministries of Environment, Ministries of Foreign
Affairs and Ministries of Justice are concerned. More sectoral cooperation is
intended for the immediate future (through upcoming national consultations).
18
3 CONC LUSIONS AN D R EC OMM EN DATIONS
The conclusions and recommendations are regrouped into four sections: general
conclusions, conclusions on the realization of the objectives, significant lessons
and further actions.
3.1 GENERAL CONCLUSI ONS
The project provided the region with three outstanding outputs: an augmented
and updated knowledge about the Lakes biodiversity; a program of action
needed to protect the Lake and assure its sustainable exploitation; and a
coherent, well-defined regional management structure. The three key outputs are
of very high quality. This high standard was achieved thanks to an appropriate
choice by the UNOPS of the project executing consortium (Natural Resources
Institute working together with Marine Resources Assessment Group, and
Institute of Freshwater Ecology), known for its commitment to research and
applied research in the region.
The project results were achieved by the joint effort of 38 expatriates and 339
national staff from 49 national institutions. National staff were trained and
prepared for project follow-up activities. The national laboratories were equipped
for the purpose of lake monitoring. The Strategic Action Program and Convention
were prepared by the national technicians and decision-makers, and extensively
discussed in the regional forums. In consequence, it seems that the project did
the most to assure the national and regional ownership of its products. The
project's effort will likely be continued well after its end.
The project's results were achieved in very precarious security conditions, and
the countries of the region are poor or very poor. In this situation of uncertainty
and strong competition for extremely limited governmental resources, the
realization of the project-designed program may suffer from delays and financial
cuts. The project itself did not propose a detailed program to achieve material
self-sustainability of the Lake protection programs, but it indicated the ways to
achieve it. Probably, the most valuable future contribution of the Lake
Tanganyika biodiversity protection will be a new generation of environmental
management projects that will incorporate the latest project results and
recommendations and launch a new phase of the Lake management in the
setting designed by the Strategic Action Program and framed by the Convention.
24. It is therefore recommended to the Regional Steering Committee and
governments of the riparian countries to identify donors susceptible to
support the next phase of the Lake Tanganyika biodiversity protection
19
projects. During this phase, that may correspond to the interim period
between the present project termination and the Convention
implementation, the projects may concentrate on such activities as:
- Promote the SAP integration in national development programs, and the
Convention signature and ratification facilitation
- Assist countries and donors in formulating specific Lake protection
projects in accordance with the SAP
- Test the importance of benefits generated by Lake protection activities
- Promote the Lake protection approach among donors for the riparian
countries
- Disseminate the present project results among all stakeholders
Legal component evaluation
The objectives of the legal component were achieved: a draft legal instrument as
basis for the next formal political steps. Even if some improvements of the text
appear to be possible, they can be achieved during the next phase; the text can
be optimized during the negotiations which have to begin now.
Momentum has been generated at the national level for the next steps through
fairly broad involvement of governmental institutions. These next steps are:
- National consultations on the draft
- Negotiations between the four countries
- Signing of convention
- Ratification of convention
- Implementation through law reform in the four countries
Crucial will be: national campaigns and workshops to further increase awareness
and sensitize government and society.
3.2 OBJECTIVES REALIZATI ON
The ultimate objective of the project was to demonstrate an effective regional
approach to control pollution and to prevent the loss of the exceptional diversity
of Lake Tanganyika's international waters. For this purpose, the development
objective which has been met was the creation of the capacity in four
participating countries to manage the Lake on a regional basis as a sound and
sustainable environment. This goal should have been achieved through
realization of six immediate objectives:
1. Establishment of a regional long-term management program for pollution
control, conservation and maintenance of biodiversity in Lake Tanganyika
2. Formulation of a regional legal framework for cooperative management of the
lake environment
20
3. Preparation of a program of environmental education and training for Lake
Tanganyika and its basin
4. Elaboration and test of mechanisms for regional coordination in conservation
management of Lake Tanganyika
5. Undertake some specific studies that will add understanding of the lake as a
whole, and in some cases, provide the baseline and framework for long-term
research and monitoring programs
6. Implement a sustainable Lake Tanganyika Strategic Plan incorporating
environmental management proposals
1) The project successfully established a regional long term management
program.
For this purpose it organized a review of relevant data on the Lake and its basin.
This review, a Baseline Study of excellent quality, provided a platform for
improvement and implementation of the project's work program and formulation
of an initial version of a Strategic Action Plan for management of the Lake. The
Baseline Studies were widely distributed and reviewed by national specialists and
technicians, and international project partners. An Inception Workshop that was
convened as a follow-up of the studies developed the project work plan. Parallel
to the ongoing implementation of the work program, the project launched major
national consultations aimed at redrafting the Strategic Action Program. During
the drafting process the SAP was enriched with information from the project's
special studies. The final version of the SAP and other complementary
documents such as Transboundary Diagnostic Analysis and National Plans, were
finalized in May 2000. The documents will be binding once the countries sign the
Convention. For the time being, the technical ministries will use the SAP as a
guide in preparation and selection for financing and implementation of current
and proposed development projects. The SAP indicates management actions to
take, but does not include, as was requested in activity 1.4.9, an economic
evaluation of costs and benefits.
2) The project also formulated a regional framework for cooperative
management of the lake in form of The Convention on the Sustainable
Management of Lake Tanganyika.
For this purpose the project consultants reviewed existing laws for protection of
the Lake environment and other existing laws in the countries of the region. The
project itself launched a major consultation program among the national
specialists and decision makers. Four successive Convention drafts were
prepared and reviewed by senior national lawyers and governmental officials.
The last version of the Convention was discussed in May 2000. In the next step,
before the project termination, the Convention will be submitted to the riparian
countries' governments for their further development, negotiation and signature.
21
The project prepared several elements of environmental education programs and
trained trainers in all four countries. It also provided training for national
technicians and scientists in skills needed to monitor the Lake's biodiversity,
sedimentation and pollution, and to continue the initiated research programs. The
project organized environmental education in Tanzania and in Zambia. However,
the satisfactory completion of this output was hampered by insecurity prevailing
in the Lake Tanganyika region and by a lack of efficient rural organizations that
may be the target of the education programme.
3) In summary, the third immediate objective was partially achieved.
The project established an efficient structure of regional coordination for its own
activities. According to the SAP proposal, this structure may be transformed into
an interim one that will be active during the period of time between the project's
termination and the Convention signature. Then, the region may implement a
third structure described in the Convention that will assure implementation of the
SAP and application of the Convention. The interim and the definitive structures
were approved by the project's Regional Steering Committee.
4) In summary, the regional coordination structures were elaborated, but only the
project's regional structure was tested.
5) The project launched five special studies. Their results contributed to
formulation of a global Lake biodiversity protection strategy and helped identify
the priority actions that were included in the Strategic Action Program.
The field program of these studies is terminated, but the results are still being
elaborated. The available results, although incomplete, are very promising. Final
evaluation of the results of special studies should be performed after their
publication.
6) The environmental management proposals were not implemented by the
project.
The Project Implementation Group hesitated to launch the implementation of the
program before having a clear picture of their scientific and economic value. This
decision is wholly justified, since implementation of management proposals have
strong consequences on the economy of neighboring fishermen and farmers.
The ongoing special studies are proposing managerial programs that
successfully link biodiversity benefits to the lake with advantages for the riparian
populations, thus giving solid ground for environment management proposal
implementation.
22
In summary, the project successfully achieved four immediate objectives.
Completion of two others was delayed directly or indirectly by insecurity
prevailing in the region. The project outputs are of very high quality and of great
regional importance.
3.3 LESSO NS THAT CAN BE DRAWN FROM THE PRO JECT EXPERIENCE
Human development. Increasing the knowledge is relatively easy task in
comparison to changing human's attitudes. The sustainability of environmental
projects depends on how much public, business community and decision-makers
have learned about the project achievements and to what extent they are ready
to change their attitude toward the environment. The success in the message
transmission and its adoption by the population depends on many factors such
as local cultures, traditions and taboos. The projects should systematically
monitor the results of their actions. To preserve experience in this domain the
projects may maintain a database of information transmission techniques and
their success.
Capacity building. Many projects help national staff in new skills and knowledge
acquisition. However, there are few occasions to evaluate the use of the acquired
knowledge after the project termination. The present project trained many
national staff in biodiversity data collection, pollution monitoring or environmental
training. The personnel were predominantly employed by governmental or state
sponsored institutions that have been strengthened by the project. It would be
useful for the GEF to evaluate the impact of the trained persons on the national
institutions.
Make research applied. Previous projects employing scientific staff frequently
experience difficulties in taking full profit from the research results. The specific
answers containing in the research papers are too narrow to be applied, the
general solution advanced by scientist are frequently to impractical. It seems that
the present project experienced similar difficulties with respect to many of the
scientific documents produced by the consultants. Periodic meetings of the
research staff with the managerial one may be helpful in generating constructive
and practical approaches.
3.4 FURTHER ACTIO NS
In order to increase the project's impact and sustainability of the results, each
country should designate one institution that will become the custodian of the
documents, databases and other materials produced by the project. These
documents and information should be made available to all interested persons
23
and institutions. The designated institutions should be given the responsibility of
translating the pertinent documents into local languages and produce extension
material.
Independent of the SAP implementation and the Convention negotiation process,
the governments of the riparian countries should carefully evaluate the project's
findings and take them into consideration in planing and designing their own
development programs. The project results bear an implicit message that should
warn the governments against lax attitude toward the Lake environmental
problem: the populations depending on the Lake resources are exposed to high
risk of their revenue source collapse. Inappropriate farming practices prevailing in
the Lake surrounding mountainous areas will soon reduce the harvest below the
population subsistence level. The GEF and UNDP may help government to
incorporate appropriate environmental measures into their macroeconomic
policy.
There is a need to integrate technical, political and social dimensions into the
Lake Tanganyika protection programme. The quality of the Lake ecosystem
depends on risks that accompany technological progress. Populations living
around the Lake frequently ignore the harm they are doing to the land and
indirectly to the Lake by inappropriate agricultural practices. The problem is
compounded by political and military instability in the region which has resulted in
major refugee inflow that further impact on the lake and the surrounding
environment.
The project follow-up activities should continue to raise the governments and civil
society awareness about the limitation and fragility of the Lake resources.
24
Annexes
25
Annex I. Terms of Reference
FINAL EVALUATION
RAF/92/G32
POLLUTION CONTROL AND OTHER MEASURES
TO PROTECT BIODIVERSITY IN LAKE TANGANYIKA
BACKGROUND
Lake Tanganyika is one of the Great Lakes and it has an important role in the
economies of Burundi, Tanzania, D.R. Congo and Zambia. It possesses the
highest biodiversity of any lake on earth. The lake is very vulnerable to pollution,
and there are presently few efforts to conserve its biodiversity. The most
immediate threats to the lake environment and biota are pollution from excess
loads of sediment and nutrients caused by erosion in the watershed, industrial
and urban pollution including boat discharges, and intensive fishing with
inappropriate methods. These problems and their effects are increasing, and
others such as oil exploration and transportation of the lake cause concern.
This five year project aims to improve understanding of the ecosystem functions
and effects of stresses on the lake system; to take action on all other measures
necessary to maintain the health and biodiversity of the ecosystem; and to
coordinate the efforts of the four countries to control pollution and to prevent the
loss of the exceptional biodiversity of Lake Tanganyika.
The project's five immediate objectives are to:
· Establish a regional long-term management program for pollution control,
conservation, and maintenance of biodiversity in Lake Tanganyika
· Formulate a regional legal framework for cooperation management of the lake
environment
· Establish a program of environmental education and training for Lake
Tanganyika and its basin
· Establish tested mechanisms for regional coordination in conservation
management of the Lake Tanganyika basin
· Undertake some special studies to provide data as inputs to the
establishment of a complete strategic plan for long-term education. They will
add to the understanding of the lake as a whole and, in some cases, provide
the baseline and framework for long-term research and monitoring
programmes.
26
The project is funded by the Global Environment Facility (GEF) through the
United Nations Development Programme (UNDP) and is executed by the United
Nations Office for Project Services (UNOPS). The total budget for the project is
US $10,000,000 (including executing agency support cost). The original
estimated project starting date was 1 January 1994; the actual starting date was
1 August 1995. This was partly due to civil unrest in the Francophone countries.
The project is scheduled for completion on 31 July 2000. A project mid-term
evaluation was undertaken in November 1998.
The project has been implemented by a consortium of consulting firms led by the
Natural Resources Institute (United Kingdom), which was selected following a
process of international pre-qualification and competitive bidding. NGOs are
involved, particularly through community education and conservation, and the
private sector through promotion of tourism and the control of industrial pollution.
After completion of the project, the co-operative activities among the government
authorities, scientists, affiliated institutions, and other stakeholders including
NGOs and the private sector, are expected to continue to preserve the Lake
ecosystem under the framework of a regionally cooperating organization.
OBJECTIVE AND SCOPE OF THE EVALUATION MISSION
The evaluation is an activity in the project cycle which attempts to determine as
systematically and objectively as possible, the relevance, efficiency,
effectiveness, impact and sustainability of the project against its objectives. It will
also identify factors that have facilitated or impeded the achievement of these
objectives. While a thorough review of the past is in itself very important, the in-
depth evaluation is expected to lead to detailed recommendations and lessons
learned for the future.
The mission will assess, with respect to:
(i)
Project Implementation
-
general implementation and management of the project in terms of quality
and timeliness of inputs and activities, adherence to workplans and
budgets
-
adequacy of management arrangements as well as monitoring and
backstopping support given to the project by all parties concerned
-
institutional set-up through the Regional Steering Committee and the
National Steering Committees and Working Groups and the degree to
which it has encouraged full involvement of the countries
-
inputs of the Governments of the four countries at national and local levels
-
inputs of UNDP country offices to the project
-
responsiveness of project management to changes in the environment in
which the project operates
27
-
UNOPS execution modality
-
co-operation among project partners (UNOPS, UNDP/GEF, Natural
Resources Institute, Project Coordination Unit, UNDP Country Offices,
National Coordinators)
(ii)
Project Impact
-
achievements of the project against the original objectives, outputs and
activities as detailed in the project document
-
level of awareness of the participating countries regarding project outputs
-
level of ownership of the project by the participating countries
-
level of commitment of countries to support ongoing project and potential
future project phase
-
degree of support given by the riparian Governments in integrating the
project objectives and goals into the national development programmes
and other related projects, and how well the project fits into national
development policy
-
impacts on policy and strategy of countries
-
project impact on enhancing co-operation among sectors and project
partners
(iii)
Project Design
-
appropriateness of the project's concept and design to the overall situation
of Lake Tanganyika
-
relevance of project design within the framework of GEF programmes and
guidelines
Conclusions and Recommendations
Based on the above points, the evaluation mission should provide conclusions
and recommendations, including:
-
general recommendations on the implementation of the project
-
the degree to which the project objectives have been satisfied
-
significant lessons that can be drawn from the experience of the project
and its results, particularly those elements that have worked well and
those that have not
-
recommendations on further actions in the region upon completion of the
current project
METHODOLOGY
The evaluation will be composed of three activities: studying documents,
observing project participatory processes, and interviewing individuals who are
28
either involved in the project, or who have or might be expected to have been
impacted by the project.
(i)
Studying documents
The team members shall familiarize themselves with the project through a review
of relevant documents prior to travel to the region. These documents include inter
alia,
-
Project Document
-
Project Budget
-
Convention draft (no. 4)
-
Strategic Action Plan (SAP) draft
-
Transboundary Diagnostic Analysis (TDA) draft
-
Project Performance Evaluation Report (PPER) 1997
-
GEF Project Implementation Review (PIR) 1998 and 1999
-
Mid-Term Evaluation Report 1998
-
Response of Project Coordination Unit to Mid-Term Evaluation Report
-
Minutes of Tripartite Review Meetings 1998 and 1999
-
Minutes of Steering Committee Meetings 1-5
-
UNDP Handbook for Programme Managers: Results-Oriented Monitoring
and Evaluation
-
other project documents which may be found on the project website:
http://www.ltbp.org
Hard copies of selected documents shall be sent by courier to the Evaluators in
advance of the mission.
(ii)
Observing project participatory processes
-
observe last day of Strategic Action Plan meeting, 3 May, Lusaka
-
observe Steering Committee Meeting, 4-5 May, Lusaka
(iii)
Interviewing project partners
-
Project Coordination Unit (Project Coordinator, Scientific Liaison Officer)
-
National Coordinators
-
UNDP Country Office focal points
-
representatives of Natural Resources Institute
-
GEF focal point
-
UNOPS focal point
And in doing so, undertaking field visits to:
-
the Lake
-
National focal institutions
29
-
project laboratories
-
co-operating institutions
COMPOSITION OF THE MISSION
The evaluation team shall be composed of two international consultants.
(i)
Team Leader who shall be responsible for the overall review of the project.
The Team Leader should have extensive technical and managerial
background at both policy and institution level of environment and
international waters in particular, and in-depth experience of project
evaluation techniques, particularly of those projects which are funded by
GEF. Experience in Africa is preferable. Fluency in English and French is
required.
(ii)
Environmental Law Consultant who shall focus on the Lake Management
Convention, including the processes that have led to its current form. The
Environmental Law Consultant should have extensive background in
environmental legislation, with emphasis on international waters.
Experience in Africa is preferable. Fluency in English and French is
required.
The members of the evaluation team should not have been directly involved in
the design or implementation of the project.
MISSION TIMETABLE AND ITINERARY
The duration of the consultancy for the Team Leader shall be 21 working days,
including travel time, based on the following itinerary:
28-29 April
Homebase review of relevant documents (2)
30 April 2 May
Travel to Lusaka
3-5 May
Strategic Action Plan Meeting (day 2), Steering Committee
Meeting
6-11 May
Bujumbura, Uvira. Consultations. Field visits. Lake,
laboratories
11 May
Kigoma. Consultations. Field visits. Lake, laboratories
12-13 May
Dar-es-Salaam. Wrap-up with Project Coordinator
13-14 May
Return travel
15-26 May
Draft and finalize report (5 days)
The duration of the consultancy for the International Environmental Law
Consultant shall be 7 working days, including travel time, based on the following
itinerary:
30
1 May
Homebase review of relevant documents (1)
2 May
Travel to Lusaka
3-5 May
Strategic Action Plan Meeting (day 2); Steering Committee
Meeting
6 May
Return travel
8-12 May
Draft and finalize report (1 day)
REPORT
In drafting the report, the Team Leader will be guided by the standard UNDP
Guidelines for Evaluators.
The final report of each of the evaluators should contain the following Annexes:
Terms of Reference for final evaluation
Itinerary (actual)
List of meetings attended
List of persons interviewed
Summary of field visits
List of documents reviewed
Any other relevant material
As the report is the product of an independent evaluation team, it is up to the
team to make use of the information provided during the mission. However, the
evaluation team is responsible for reflecting any factual corrections brought to
their attention prior to the finalization of the report. Therefore, in order to ensure
that the report considers the view of all parties concerned, is properly
understood, and is factually accurate, it is required that both consultants submit
draft reports to UNOPS and UNDP/GEF. UNOPS will revert promptly with
collective feedback from project partners in order that the evaluators may finalize
their reports.
The final version of the evaluation mission report should be submitted in
electronic format (MS Word) to UNOPS and UNDP/GEF no later than 26 May
2000. The report shall also be submitted in five hard copies to UNOPS.
Contact information for PCU, UNDP/GEF and UNOPS:
PCU: Dr. Andrew Menz
Project Coordinator
Ltbpdsm@twiga.com
Dar es Salaam, Tanzania
Tel:255 51 118201 & +255 0812 782614
Fax: +255 51 118202.
31
GEF: Mr. David LaRoche
International Waters Specialist
Davidl@together.net
Tel: 802-754-9308
UNOPS:
Ms. Margaret Chi
Portfolio Manager
Division for Environmental Programmes
Margaretc@unops.org
Tel: 212-457-1895
Fax: 212-457-4044
32
Annex II. Itinerary
30 April - 3 May
Travel to Lusaka
4 and 5 May
Steering Committee Meeting
6 May
Travel to Bujumbura
6 - 11 May
Bujumbura, meetings, field visits, Lake visit
12 May
Travel to Dar es Salaam
13 - 16 May
Dar es Salaam, meetings, document collection
16 - 17 May
Return travel
18 - 26 May
Draft and finalize report
5 June
Debriefing in New York
33
Annex III. Documents Consulted
1.
1st Mtg. Steering Committee
2.
2nd Mtg. Steering Committee
3.
3rd Mtg. Steering Committee
4.
4rth Mtg. Steering Committee
5.
5th Mtg. Steering Committee
6.
Analysis and Results of Discharge and Sediment Monitoring Activities in the
Southern Lake Tanganyika Basin, Zambia. H. M. Sichingabula. 93 pages
7. Aquatic Habitats and Associated Biodiversity of Kigoma Area of Lake
Tanganyika, Tanzania. By W. R. Darwall and P. P. Tierney. June 1998. 26
pages
8. Bilingual Lexicon - Lexique bilingue. Feb 1997. M. Dahan ed. English &
French. 33 pages
9.
Biodiversity Special Study (BIOSS) Database. User Manual. 1998.
10. Biodiversity Special Study Advice to the Strategic Action Program. 2000. 27
pages
11. Biodiversity. January 1996. 86 pages
12. Burundi, Congo, Tanzania and Zambia. Repport of a Training and
Communication Consultancy. 1999. R. Roland and M. Trudel. 44 pages
13. Composante SIG et télédétection du PBLT. Visite de la région 31 mai au 20
juin 1999. 31 pages
14. Convention on the Sustainable Management of Lake Tanganyika. Draft 4.
33 pages
15. Education Environnementale. Rapport d'une consultance. M. Trudel. 1999.
16. Enquête socio-économique du littoral du Lac Tanganyika - village de
Kibenga. O. Sindayizeruka. 2000. 50 pages
17. Environmental Education, Fishing Practices, and Socio-economics.
Exploratory Mission in Rukwa Region. July 1997. L Said and P Petit.
18. Environmental Education. Baseline Review. 1996.
19. État de biodiversité biologique dans les miliaux aquatiques et terrestres du
delta de la Risizi. G. Ntakimazi, B. Nzigidahera, F Nicayenzi. 1999. 68
pages
20. Étude hydrographique du bassin nord-ouest du Lac Tanganyika. K. Bombi,
Kahindo, Mwenyemali 2000. 18 pp.
21. Étude spéciale des pratiques de Pêche. R. H. Lindley.
22. Final Report - BIOSS Survey of Aquatic Habitats and associated
Biodiversity adjacent to the Gombe Stream National Park, Tanzania. By W.
Darwall, P. Tierney. 1998, 44 pages
23. First Strategic Action Programme for the Sustainable Management of Lake
Tanganyika. 2000.
24. Fishing Practices and Gears. Paper presented at the National Workshop on
Sectoral Problem review. By N.B Marwa, 28 31 July 1998. 7 pages
34
25. Fishing practices, Socio Economic and Environmental Education
Exploratory Mission in Rukwa region. By L Said and P Petit, June 1997. 40
pages
26. Fishing Prectices Special Study Advice to the Strategic Action Programme.
2000. 13 pages
27. Flow, Termal Regime and Sediment Transport Studies in Lake Tanganyika.
Timo Huttula (Ed). 1997
28. Formation et communication. Rapport d'une consultance. 1999. R. J.
Roland and M. Trudel.
29. Guide to the Thiarid Gastropods of Lake Tanganyika. Sept 1997. K. West. 5
pages
30. Highlights on Sedimentation in the Lake's Drainage Basin Resulting from
Land Use Activities and Existing Hydrological data. Paper presented at the
National Workshop on Sectoral Problem review. J. Shilungushela, 28 31
July 1998. 12 pages
31. Highlights on Sedimentation in the Lake's Drainage Basin Resulting from
Land Use Activities and Existing Hydrological data. Paper presented at the
National Workshop on Sectoral Problem review. J. Shilungushela, 28 31
July 1998. 12 pages
32. How the Draft Convention on the Sustainable Management of Lake
Tanganyika was Developed. C. Cilligan and S. Hodgson. 2000.
33. Hydrological and Sedimentological Sampling of Lake Tanganyika Basin. M.
Sabahane, M. Nduwayo, T. Songore and G. Ntungumburanye. December
1999. 58 pages
34. Hydrology of Lake Tanganyika Selected Catchment Area. H. Nkotagu. 6
Pages
35. Inception Report. 1997. 103 pages plus Annexes
36. Key to Recent Invertebrate of Lake Tanganyika. 9 Sept 1997. K. Martens.
34 pages
37. Legal and Institutional Baseline Study. 1996. 134 pages
38. Legal Briefing Paper. Sixth Meting of the Regional Steering Committee.
2000
39. LTBP Standing Instructions for BIOSS Field Sampling. E. Allison et al.
1998. 53 pages
40. LTBP Standing Instructions for Field Sampling. Assessing Biodiversity and
Monitoring Changes in Species Abundance and Composition. E. Allison ed.
Draft document 1997
41. Mahale National Park, Tanzania. March/April 1999 Aquatic Survey. 2000.
23 pages
42. National Environmental Policy. The United republic of Tanzania, 1997.24
pages
43. Nsumbu National Park, Zambia. July/August 1999 Aquatic Survey. 2000. 22
pages
44. Nyanza Project. 1998 Annual Report
45. Nyanza Project. 1999 Annual Report
46. Nyanza Project - Annual Summary. A. Cohen. English. 21 pages
35
47. Participatory Rural Appraisal in Bulugu Ward, Kigoma Region, Tanzania,
23/9/97 - 31/10/97. B.D Tarimo. 11 pages
48. Participatory Rural Appraisal in Kirando Ward, Rukwa Region, Tanzania,
September 1997. C G. Mung'ong'o. 59 pages
49. Pollution and Its Effects on Biodiversity. January 1996. 47 pages
50. Pollution Inventory Report DR Congo- CRH Uvira - Brief Summary
51. Pollution Inventory Summary for the Strategic Action Plan. Zambia. 2000
52. Pollution of the Lake. F. Chale, 1998. 7 pages
53. Pollution Study of Lake Tanganyika. Francis M. M. Chale. 1999. 22 pages
54. Preliminary Strategic Action Plan. Draft, 1997
55. Preliminary Transboundary Diagnostic Analysis. 1998
56. Progress Report No. 12 Dec 1998 - Feb 1999. 31 pages
57. Progress Report No. 13 Mar 1999 - May 1999. 28 pages
58. Progress Report No. 14 Jun 1999 - Aug 1999. 29 pages
59. Progress Report No. 15 Sep 1999 - Nov 1999.25 pages
60. Progress Report No. 16 Dec 1999 - Feb 2000. 22 pages
61. Project Document. RAF/92/G32. 1994. 63 pages
62. Project Document Database. Update March 2000
63. Project Implementation Review (PIR) 1998. 16 pages
64. Project Implementation Review (PIR). 1999. 17 pages
65. Project Performance Evaluation Report. 1997. 66 pages
66. Protected Area Management: The Case of Tanzania National Parks. Paper
presented at the National Workshop on Sectoral Problem review. J. Kessy
and M. Loibooki, 1998. 11 pages
67. PSS Contribution to SAP
68. Rapport de l'atelier de formation des formateurs et d'aptitudes de
communication.1999.R. Roland and M. Trudel
69. Rapport de l'inventaire sur les principales sources de pollution industrielle
au Burundi.G. Hakizimana, A. Irimbere, C. Musanisoni. 2000
70. Rapport des Ateliers de formation sur la pêche durable. 2000. A. Kimanuka
and I. Bahizire
71. Rapport Final de l'étude spéciale 'Pollution'. G. Hakizimana. 2000. 85 pages
72. Rapport sur l'inventaire de la pollution. T. Kalala, K. Mukungilwa, M.
Mavula, B. Diamani. 2000. 6 pages
73. Reconnaissance Mission: Isotopes Hydrology of Lake Tanganyika selected
catchment Areas in Kigoma, Tanzania, 1997. M .S. Mwambo, 5 pages
74. Report of an Environmental Education Consultancy. 1999. M. Trudel. 10
pages + Annexes
75. Report of the Lake Tanganyika Biodiversity Institution and Resources
Assessment Mission to Tanzania, DRC, Zambia, 1996
76. Report of Village Conservation & Development Committees in Zambia.
1998. Chimanga and Mugala. 6 pages
77. Report On Monitoring Visit. R. Roland, and M. Trudel. 2000. 23 pages plus
Annexes
78. Research Vessel Survey (Tanzania). 1996. P. Llewellyn. 39 pages
36
79. Review of Policies, Legislation and Regulations relevant to the Fishing
Parasites which Lead to sustainable Utilization of Fish Stocks of the Lake
Tanganyika. Paper presented at the National Workshop on Sectoral
Problem review. J.S. Uronu. 1998. 13 pages
80. Review of Policies, Legislation and regulations which Lead to the
Conservation of the Lake Tanganyika's Biodiversity. Paper presented at the
National Workshop on Sectoral Problem review. Rumisha. 1998. 12 pages
81. Sediment Discharge and its Consequences. 1996. 109 pages
82. Sediment Transport and its Impact on the Lake Tanganyika's Biodiversity.
Paper presented at the National Workshop on Sectoral Problem review. H.
H. Nkotagu. 1998. 12 pages
83. SESS Summary and Recommendations for the Strategic Action Program.
K. Meadows. 2000. 27 pages
84. Site Assessment TANESCO. Kigoma Tanzania. IWACO. 1999
85. Social, Economic and Sectoral Features of the Lake Tanganyika Basin.
Executive Summary, Analysis and Work Plan. 1996
86. Social, Economic, and Sectoral Features of the Lake Tanganyika Basin.
1996.
87. Socio Economic and Institutional Appraisal of the Mpanda - Sumbawanga
catchment in Rukwa region - Field Trip Proposal, 1998. C. G Mung'ong'o
and B. D. Tarimo.
88. Socio Economics/Environmental Education Working Paper #1. 1996
89. Socio-Economic Assessment. Review and Discussion Document. 1999. K.
Meadows. 8 pages
90. Socio-economic Study of Mwamgongo Village, Tanzania. C. G. Mung'ong'o.
1999. 36 pages
91. Socio-economic study of Sunkua village, Tanzania. C. G. Mung'ong'o.
2000. 22 pages
92. Soil Erosion Modelling in the Lake Tanganyika Catchment. Technical
Report. 1999.
93. Some Fisheries Aspects of the Lake Tanganyika from Tanzania Waters.
Paper presented at the National Workshop on Sectoral Problem review.
W.Y. Haule. 1998. 15 pages
94. Special Study of Sediment Discharge and its Consequences:
Paleolimnological Investigations. Final Report.
95. Special Study on Sediment Discharge and its Consequences (SedSS) -
summary of findings for the Strategic Action Program. 2000
96. Special Study on Sediment Discharge and its Consequences- Summary of
Findings for the Strategic Actions Program. 2000
97. Special Study on Sediments and its Consequences. Final report to the
Natural Resource Institute. 2000.
98. Special Study Works Plans. Draft.
99. Standing Instructions for BIOSS Field Sampling, Data Handling and
Analysis. E Allison, R. Paley, V.J. Cowen. Draft 3, 1999. 69 pages
100. State of Biodiversity in Lake Tanganyika. A Literature review. 1998. G.
Patterson and J. Makin eds. 134 pages
37
101. State of Biodiversity in the Aquatic Zones of the Ruzizi Delta. G. Ntakamazi,
B. Nzigidahera and F. Nicyenzi. 1999. 68 pages
102. Strategic Action Plan. Lake Tanganyika Preliminary Transboundary
Diagnostic Analysis. 1998
103. Strategic Action Plan. Tanzania. 1998.
104. Strategic Plan for 1998 - 2002. Tanzania. 34 pages.
105. Survey of fishing Practices and the Related Socio-economic Aspects at Ujiji,
Katonga, and Kaseke (Tanzania, Kigoma Region). 1997. B. Marwa, MBS
Kissaka, O. Kashushu, C. Mambona. English
106. Survey on Fishing Practices and the Related Socio Economic Aspects at
Ujiji, Katonga and Kaseke, (Tanzania, Kigoma Region). 1997. B. N Marwa,
M B S Kissaka and O. Kashushu. 14 pages
107. Survey on Fishing Practices and the Related Socio-Economic Aspects at
Ujiji, Katonga and Kaseke (Tanzania, Kigoma Region). 1997. B. N. Marwa,
M. B. S. Kissaka, O. Kashushu, and C. Mambona. 14 pages
108. TANESCO Power Station and Oil Pollution in Kigoma Bay. By Chris Foxall,
11/2/98. 5 pages
109. TANGIS User Manual. Volume 1. Manual for GIS Interface and Searching
the Metadatabase. A. P. Mills, V. Obsomer and A. J. Jackson.
110. TANGIS. Interface SIG et métadatabase du projet. Manuel de la
métadatabase. 1999. 58 pages
111. Technical Advisory Committee Meeting. Minutes. 1998. 9 pages
112. Thermal Regime/Sediment Transport studies in Lake Tanganyika, 1997.
113. Tourism and Tourism Potential in the Lake Tanganyika Basin: A desk report
for Socio-economic baseline study. R. Zanre. 24 pages
114. Training Needs Assessment. Report on a Consultancy Visit. 1998. R.
Roland and M. Trudel. 29 pages
115. Transboundary Diagnostic Analysis. Lake Tanganyika. 2000
116. Travaux hydrologique et d'échantillonnage sedimentologique du bassin du
Lac Tanganyika. Paus Burundi. Final Report. 1999.
117. Tripartite Review
118. Tripartite Review Meeting. 1998.
119. Zambia Pollution SS Progress Report. By Makasa L and Mwape L.W.
March-October 1999. 2 Pages
120. Zambia Special Sediment Study. Final Report. Zambia. 1999. 72 pages
38
Annex IV. List of interviewed persons
Bhandari, Ritesh
Project Assistant, LTBT
Bihamiriza, Benoit.
Directeur, Departement des Affaires Juridiques et
Contentieux. Burundi
Chi, Margaret (Ms.)
Portfolio Manager, Division for Environmental
Programmes, UNOPS
Chitalu, George Munshimbwa Assistant National Coordinator LTBP,
Environmental Council of Zambia
Hodgson, Nicholas
National Resources Planner, SAP Consultant, NRI
Kanyaru, Roger
Directeur, Département des Eaux, de la Pêche et
de la Pisciculture, ministère de l'Agriculture et
de l'Élevage. Bujumbura, Burundi
Ledant, Jean-Paule
SAP Consultant LTBP
Lindley, Robert
Coastal Fisheries Specialist
Masanja, Faustin, W. M. Senior Hydrobiologist - Water Resources Department
Ministry of Water. Dar Es Salaam, Tanzania
Menz, Andrew
Project Coordinator LTBT. Dar Es Salaam, Tanzania
Msham, Hawa Sekela
Assistant National Coordinator, LTBP. Dar Es
Salaam, Tanzania
Muderhwa, Nshombo
Directeur Général du Centre de Rechereche en
Hydrobiologie (CRH) Uvira. DR Congo
Musonda, Winnie (Ms.)
Programme Analyst, UNDP. Zambia
Nduwimana, Louis
Chef de Programme, PNUD. Bujumbura, Burundi
Ngamani, Mbusu
Secrétaire général, ministère de l'Environnement
Nkotagu, Hudson, H.
MHO Programme Coordinator and lecturer in Applied
Hydrogeology, University of Dar Es Salaam. Tanzania
N'Sibula, Mulimbwa
Directeur scientifique du Centre de Recherche en
Hydrobiologie (CRH) Uvira. DR Congo
Nsongela, Shadreck Yona Senior Environmental Impact Assessment Officer,
Environmental Council of Zambia.
Ntakimazi, Gaspard
Professeur l'Université de Burundi
Nyakageni, Boniface
LTBP, Ex-Coordonnateur national. Burundi
Schuetz-Mueller, Ingolf
Division Chief, Division for Environmental
Programmes, UNOPS
Sisila, Sylvester
Assistant Resident Representative, UNDP. Tanzania
Tarimo, Bartholomew, D. Environmental Education Officer, National
Environment Management Council. Tanzania
West, Kelly (Ms.)
Responsable de la Liaison Scientifique, LTBP.
Bujumbura,Burundi
Yonazi, Rawson
LTBP National Coordinator, Tanzania
Zwick, Karen (Ms.)
LTBP Socio-Economics Facilitator
39
Annex V. Project Evaluation - Technical Issues
Development Objective
The ultimate objective of the project is to demonstrate an effective regional
approach to control pollution and prevent the loss of the exceptional diversity of
Lake Tanganyika's international waters. For this purpose, the development
objective to be met is the creation of capacity in the four participating countries to
manage the lake on a regional basis as a sound and sustainable environment.
Immediate Objective 1.
Establish a regional long-term management program for pollution control,
conservation and maintenance of biodiversity in Lake Tanganyika.
Output 1.1 Review all existing relevant data on Lake Tanganyika and its basin to
provide a platform for pollution control, conservation and maintenance of
biodiversity.
Table I. Output 1.1. Activities scheduled (S) and carried out ( C)
199
1996
1997
1998
1999
200
Activity
5
0
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
1.1.1
Review biological,
S
hydrological and water
C
quality information
1.1.2
Review demographic trends
S
C
1.1.3
Review capability of host
S
institutions
C
1.1.4
Review legislative aspects
S
C
1.1.5
Dialogue with lakeside
S
communities
C
Activities
Soon after initiation, the project commissioned baseline reviews concerning
biodiversity; pollution and its effects on biodiversity; sediment discharge and its
consequences; socio- economics; and legal and institutional aspects. Once the
studies were completed, each National Coordinator received 10 copies of each
study and distributed them (and their photocopies) to key institutions. The studies
were discussed in national workshops, edited, and published for a wider
audience. The information from studies was the basis for work programming
40
during an Inception Workshop. This was summarized in the Inception Report,
and incorporated later in the first version of the Strategic Action Program.
The project assessed capabilities of the host countries' institutions and the staff
that may be important for the work program and interested in the project. The
assessment took more time than the initial allocation. The delay in assessment
completion resulted from political situations in some of the project members'
countries, and from a lack of specifics in the Project Document about the criteria
of institution, staff choice and evaluation.
The review of demographic trends and dialogue with lakeshore communities
could not be completed as scheduled due to instability around the Lake. Only in
1999 did the project team of sociologists start to work in Burundi and in D.R.
Congo.
Results
The project financed the compilation of information about the biodiversity of Lake
Tanganyika; the impact of sediment discharge; pollution and its effects on
biodiversity; social and economics aspects of the basin inhabitants; and legal and
institutional features. All these documents are exhaustive, extremely well-
presented and very instructive. They have very strong and positive impacts on
the whole project program. Intended as baseline studies, they lead to the design
of a platform from which the project launched further studies.
The Biodiversity study provided evidence justifying the global significance of Lake
Tanganyika for biodiversity conservation. The study underlined our inadequate
knowledge of significant lake habitats, which is essential in designing proper
conservation measures. It identified three major threats to biodiversity, namely:
fishing, sedimentation, and pollution. The study indicated that the conservation
efforts to preserve the diversity of species should be directed not only to the
underwater reserves but to the whole lake as well as to its catchment area.
The Lake Tanganyika ecosystem suffers the consequences of overpopulation of
the Lake region: deforestation and agricultural land degrading practices lead
directly to increased sedimentation and to its local eutrophication. In the northern
end of the Lake, the deforestation approached 100 per cent of the original
forests, and in the central lake's drainage basin it attains 40-to-60 per cent.
Sediment pollution has been shown to impact negatively on fish and ostracods in
coastal waters, especially in rocky habitats. There was a lack of specific
information about the contemporary rate of sedimentation and much more
studies were needed to understand its impact on the Lake's biodiversity and
productivity.
The Lake is not yet polluted. However, urbanization, agricultural development
and industrial activity, if not properly managed, will inevitably pollute the Lake.
41
Although many pollution hot spots are known, there is little information about
quantities of emanated pollutants and on their distribution in the lake and their
impact on biodiversity.
The Lake Tanganyika catchment area is inhabited by between 7 and 10 million
people (without refugees that may represent more that two million in the whole
great lake region). Over one million are supported by fishing from the lake and
fisheries related activities. There is a trend for farmers to move, at least
temporarily, from agriculture into the fishery. There are remarkable differences in
political and social conditions among the four Lake basin countries. Burundi is
shattered periodically by political and military conflicts. The Lake catchment
population work on hillside farming with very little investment in soil conservation
and land management. The mountains are deforested. There is little or no
community involvement in Lake conservation. Congo is stricken by civil war and
the Lake region receives an influx of hundreds of thousand refugees. The rural
economy is dominated by subsistence production. As in Burundi, the local
communities are not involved in Lake conservation policy. Tanzania enjoys
political and military stability. As a result of a village programme, the rural
population was agglomerated into nuclear settlements which resulted in
extensive local deforestation. The government provided them with rural
development programs. Tanzania has developed (in 1991) a community
participation approach to managing the protected areas. Finally, Zambia is
politically stable and secure. The villages preserved the original settlement
pattern and land management, and the farmers organize co-operatives for
marketing and input supply. The country developed (since 1989); community
integration program in conservation of protected areas.
Conclusions
Although Tanzania and Zambia have developed community involvement into the
protected area conservation, and the governments established a variety of
environmental education programs, the local populations are still not as actively
involved in conservation as policy suggests. This situation may change if the
population is fully aware of the benefits of community participation planning. It is
therefore deemed important for the project to involve more actively the
communities in the Lake resources conservation. This should be achieved by
developing a participatory diagnostic process, and provide the local communities
with sufficient incentives to be involved in the project's programmed activities.
The special studies launched by the project should link with a participatory
appraisal process involving the government and the NGOs in the villages located
in or near the sites under investigation.
The legal and institutional baseline study identified the existing laws in areas
relevant to sustainable management of the Lake as obsolete or incomplete. Their
whole harmonization will be a long process that would be best guided by a body
representing all interested states. The project should promote the development of
42
consensus among stakeholders in the Lake's to what kind of regulatory
framework would be appropriate.
To contribute immediately to Lake biodiversity protection, the project may provide
legal technical assistance for implementation of the more crucial aspects of the
strategic plan rather than restrict the outputs to analyses and recommendations.
The baseline studies confirm the diagnosis of the Project Document: Lake
Tanganyika suffers mostly from inappropriate agricultural practices and the
remedy is the participatory approach of the communities involved in the land and
Lake exploitation. The project should define these findings, elaborate the
conservation measures and put them into action.
Output 1.2 Inception Report based on all review data which will provide bench-
line data for the planning of the management program.
Table II. Output 1.1. Activities scheduled (S) and carried out ( C)
199
1996
1997
1998
1999
200
Activity
5
0
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
1.2.1
Identify the negative trends
S
influencing the Lake
C
1.2.2
Identify major information
S
gaps
C
1.2.3
Compile data in Inception
S
report
C
1.2.4
Create and update database
S
C
Activities
Activities one and two ( identification of negative trends among processes
influencing the lake and identification of the major gaps in information available)
were conducted in conjunction with the baseline review. Together with the
baseline studies, the results of these two activities were extensively discussed in
an Inception Workshop held in Dar es Salaam, March 25 to 28, 1996, attended
by about 50 delegates from the region, UNDP, GEF, UNOPS, PCU and NGOs.
The workshop contributed to the creation of a common understanding of the Lake
Problem by the participants; liaisons among the stakeholders,
UNOPS/UNDP/GEF and the project management; design of an indicative work
plan for the special studies; and, most important, creation of a sense of
ownership of the designed program by the delegates from the countries. The
results of the Inception Workshop were the basis of an Inception Report that was
circulated among the participants, and then assessed and adopted by the
Regional Steering Committee.
The results of the baseline studies were included in the databases.
43
Results
The Inception Report is the result of the Inception Workshop. The final version of
the Report incorporates the workshop's findings, and observations and
recommendations of the project Steering Committee. As such, the Inception
Workshop was considered an important guide to developing an effective
approach to the project objectives' realization. The Inception Report concentrated
mostly on development of indicative work plans for the Special Studies, further
developing the knowledge about biodiversity; legal and institutional aspects;
socio-economics and environmental education; sediment discharge and its
consequences; pollution of international waters and its effects on biodiversity;
and fishing practices and biodiversity. The description of baseline study results,
national concerns and work plans for each of theses studies covered about 70
per cent of the Inception Report's volume (from 28 to 100 pages) leaving 30
pages for managerial issues, training and capacity building.
The Inception Report notes the importance of involving local people at the start
and through the duration of EE programs as a guarantor of long-term
sustainability of the project.
Output 1.3 Drawn preliminary Lake Basin Strategic Plan.
Activities
Table III. Output 1.3. Activities scheduled (S) and carried out ( C)
199
1996
1997
1998
1999
200
Activities
5
0
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
Attempt initial prioritization of
S
1.3.1
conservation areas
C
Finalize work program for
S
1.3.2
special studies
C
Prepare and initiate four
S
1.3.3
project centers, one in each
C
country
Finalize list of equipment and
S
1.3.4
services for procurement
C
Identify needs of future staff
S
1.3.5
and draw training programs
C
NGOs carry out community
S
1.3.6
consultations
C
The prioritization of the conservation areas was attempted, but not conducted as
was requested in the Project Document. According to the preliminary
assessments, there was not yet sufficient evidence justifying designation of some
Lake areas as needing more protection than another and, as a consequence,
recommended specific actions to national administration about modification of
human activities in these areas.
44
Longer than foreseen identification and assessment of key national institutions
and national staff, was at the origin of extension of activities two to five until 1998.
The finalization of the work programs, preparation of national centers, purchase
of equipment and training were conducted or organized progressively, starting
from February 1996.
Community consultations to determine their reactions to and suggestions for the
proposed plan were not carried out. The plan proposed in the Inception
Workshop and accepted at the Steering Committee and drafted in the Strategic
Plan, were in too premature a stage for vast consultation with local populations.
From the other side, the communities around the Lake were not yet adequately
organized. However, the local NGOs participated in defining of the project work
plan (see output 1.1 and 1.2) and they maintained close work relations with the
project.
Results
The preliminary version of the Strategic Plan titled 'Preliminary Strategic Action
Plan' was drafted in February 1997. On the basis of the threats to the Lake
identified at the Inception Workshop in January 1996, the Plan has outlined and
ranked the threats in order of national importance. The most important threats
come from fishing practices, increased rates of sedimentation and pollution. For
each threat, the Plan distinguishes some components. For example, threats from
fishing practices are composed of ornamental fish trade, damaging commercial
fisheries, damaging artisanal (traditional) fisheries, and nine others. For each
component, it proposes mitigation or avoidance and management actions. For
example, for the first component of the first threat, the ornamental fish trade as
mitigation the Plan proposes national and international regulation of trade, and
local captive breeding. The management actions consisted of establishing
allowable limits of extraction, monitoring and licensing, promoting captive
breeding, and alternative income for traders. The Plan flagged the actions that
are included in the project activities program. For example, the action 'promote
alternative income' for the ornamental fish traders was included in the special
studies program. As a separate table, the Plan lists the threats to the Lake's
biodiversity. The Plan suggested monitoring of the management actions as a way
of evaluating their effectiveness. It attached a sample list of such monitoring
indicators.
According to the first version of the SAP, as next steps, the project should
provide support for further refining the list of threats and actions, prioritize them,
and the final stage adopted by the governments of the four riparian countries.
45
The special studies were key to the project. They were designed to develop an
understanding of the lake, the communities relying on the lake's resources and
threats to its biodiversity. The information generated by these studies should
enrich the strategic action planning process.
Output 1.4 Finalization of the Lake Tanganyika Strategic Plan.
Activities
According to the project document, the SAP should guide management actions
for the lake. It should be designed during the third year of the project's life and
then refined as additional data becomes available. The SAP should be conducted
by the Project Co-ordination Unit with the National Coordinators and the
assistance of an environmental planner and environmental scientist, plus any
appropriate specialist required. The plan should be accompanied by an economic
appraisal which determines costs of the various elements and translates them
into annual budgeting requirements over a 10-year planning horizon.
Table IV. Output 1.4. Activities scheduled (S) and carried out ( C)
199
1996
1997
1998
1999
200
Activities
5
0
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
Select areas to be give
S
1.4.1
National Park or other
C
protected status
Instigate actions to combat
S
1.4.2
pollution
C
Harmonize measures to
S
1.4.3
mitigate pollution
C
Draw up management
S
1.4.4
measures for zones in the
C
Lake
Draw up legislative
S
1.4.5
framework
C
Propose infrastructure for
S
1.4.6
tourism and pollution
C
Identify major long-term
S
1.4.7
impacts
C
Discuss proposals for final
S
1.4.8
plans with local communities
C
Economic evaluation of costs
S
1.4.9
and benefits of the plan
C
Produce final Strategic
S
1.4.10
Action Program
C
The final version of the SAP is based in the Preliminary Strategic Action
Programme and results of discussion of the Program at a regional meeting in
December 1997, and the commitment of the four countries in the January 1998
Project Regional Steering Committee meeting. The Steering Committee decided
that the consultation process leading to the final version of the SAP will be lead
by National Working Groups (NWG), whereas the regional level will be
coordinated by a Technical Advisory Committee (TAC).
46
The management objectives situated within the overall biodiversity conservation
goal were defined in a Transboundary Diagnostic Analysis (TDA). The TDA was
then used to set priorities for actions to address in the SAP. The four countries
developed a common analytical approach helping bring together national
conclusions into a regional framework. In each country, the NWG initiated one
planning meeting followed by two workshops. The participants represented a
wide range of stakeholders including NGOs and the private sector. The national
consultations' results led to the preparation of a preliminary TDA. The preliminary
TDA was endorsed by the project Steering Committee in May 1999; the second
(and final) version of the TDA was prepared during a workshop held in March
2000. The TDA brought together the results of national reviews and added the
regional and transboundary perspective. The TDA prioritized the threats to
biodiversity of the Lake, attached to them specific problems, proposed
interventions, identified key agencies that should lead a proposed action, and
indicated available human or material resources.
As the TDA, the SAP was also deeply rooted in the national perception of risks
to the Lake's biodiversity and sustainability of its resources. After an initial
planning meeting, each country held two workshops. These workshops identified
main biodiversity problems, the accompanying sectoral causes and reviewed
management actions and agreed on priorities. The national workshops respected
a common analytical approach that helped develop a coherent regional program.
The TAC that led the regional SAP preparation convened two drafting
workshops, one in November 1998 and the second in January 2000, and the final
meeting in May, 2000.
Results
The SAP identified the main threats to the Lake's biodiversity and sustainability
(unsustainable fisheries, increasing pollution, excessive sedimentation, and
habitat destruction). Within each of the four main threats, the SAP distinguishes
specific problems (ranked by countries) and proposes actions to mitigate the
problems. For each problem in the respective countries, the SAP identifies the
stakeholders and provides a list of uncertainties. It identifies as well the key
agency or agencies responsible for implementation or coordination of the
corresponding action (s). For example, the unsustainable fisheries is considered
as the first main threat to biodiversity and sustainable use of the Lake's
resources. One of three specifics problems identified is excessive fishing
pressure in the littoral zone. Specifically, in Burundi this problem is perceived as
excessive fishing pressure. The stakeholders are fisheries administrations,
fishermen, owners of fishing units, local associations and communities, and
Burundi University. The proposed actions, and key agencies, are listed as
follows: Ascertain potential, fishing standards and acceptable licensing quotas
(responsibility of the Ministry of Agriculture - MAE); support other income
47
generating activities or those that supply animal proteins (Ministry of Community
Development - MDC); strengthen capacities for Fisheries Department to control
and supervise (MAE); raise awareness and train fishermen, boat owners, and
administration (MAE); update and issue draft law and by-laws, as well as
ordinances (MAE); translation in Kirundi and extension (MAE).
The SAP is not conceived as a final document. It should be revised periodically
and adjusted to new information about the biodiversity and new threats to the
Lake. The implementation of the SAP will be supported by a Convention.
Conclusions
The SAP and the TDA are extremely important documents produced by the
project. Their importance stem mainly from their participatory origin and from the
comprehensive perception of the Lake's environmental problems.
The SAP value would be even greater if it could have been supported by more
specific information from the special studies. As it is presented now, the SAP
refers frequently to facts and justifications that were known before the project
studies and that were presented in the baseline studies. This is understandable
by the fact that most of the specific studies did not yet elaborate their results.
The SAP lists the important actions and arranges them according to national
priorities, but it does not specify to which extent this national priority reflects the
government commitment to devote national or donor's resources to invest in the
SAP priority. It is not indicated if these actions will be incorporated into the
governmental investment programs and when. The SAP actions are also lacking
evaluation of their cost effectiveness and assessment of their acceptability by
citizens.
Immediate Objective 2
Formulation of a regional legal framework for cooperative management of the
lake environment
Output 2.1Analysis of existing laws and recommendations for harmonizing
legislation and/or new legislation placed in an international legislative framework.
This work will be done with the assistance of an expert in environmental
legislation, particularly with expertise in legislation relating to internationally
shared lakes; and an expert in environmental negotiation and conflict resolution.
48
Table V. Output 2.1. Activities scheduled (S) and carried out ( C)
199
1996
1997
1998
1999
200
Activities
5
0
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
Review existing law and
S
1.1.1
regulation for Lake protection
C
Identify shortcoming in
S
1.1.2
legislation implementation
C
Harmonize legislation among
S
1.1.3
countries
C
Recommend a framework of
S
1.1.4
Lake environment legislation
C
Activities
A legal team contracted by the the Project Implementation Group in October
1995 reviewed the national laws, policies, institutions and international
obligations of the Lake riparian countries in November and December 1995, and
presented the results in January 1996 in a Legal and Institutional Baseline Study.
The project's inception workshop held in April 1996 highly apprised the study. In
view of preparation of the Convention, the Project Implementation Group
convened the first legal orkshop in July 1997. The legal team prepared three
presentation papers dealing with international environmental law and the law of
transboundary watercourses, conflict resolution, and legal and institutional
arrangements for the management of lake river basins in other countries and
consideration of possible approaches for Lake Tanganyika. The papers facilitated
active participation of the delegates in drafting the Convention.
Delays in reaction of the countries to the proposal of workshop organization, and
in approving the names of delegates obliged the Project Implementation Group to
reschedule the workshop for February 1998. The workshop was held in Lusaka.
The countries were represented by delegations of five to six members including
senior lawyers and policy makers. The workshop launched the drafting of the
Convention and recommended the process of agreement on the text and
submission to the governments. The Convention draft was discussed in two sub-
regional workshops (Anglophone and Francophone) and sent for comments to
the UNDP and UNOPS. After the workshops the draft was edited, circulated and
discussed at the second regional workshop held in Arusha in November 1999.
The discussed document was then drafted again and presented in May 2000 to
the Regional Steering Committee for approval.
The Convention will be submitted to the governments for formal negotiations and
signatures before the project's termination.
The Convention Articles may be clustered into six sections:
49
1. Introductory (Articles 1 to 3)
The introductory part defines the meaning of terms, states objective's of the
Convention which aim to ensure the protection and conservation of the biological
diversity and the sustainable use of the natural resources of the Lake and its
environment, and establish the jurisdictional scope.
2. Principal Obligations (Articles 4 to 12)
The Convention obliges the States to cooperate in good faith to protect,
conserve, manage, and use in a sustainable manner the Lake resources; prevent
and minimize transboundary adverse impacts; prevent and control pollution;
prevent sedimentation; conserve biological diversity; control access to genetic
resources; reduction pollution from any vessels.
3. Mechanisms for the Convention Implementation (Articles 13 to 22)
The measures set out in the Convention should have given effect through
implementation of a strategic action program integrated into relevant national
policies, strategies, programs and plans. Each State should adopt and implement
environmental impact assessment of proposed activities and projects that are
likely to give rise to adverse impacts on the Lake. Moreover, concerning the
Lake, each State should promote environmental education and build public
awareness, ensure public participation in the decision making process, deal
effectively with emergencies, exchange of information and reports.
4. Institutional Arrangements (Articles 23 to 28)
The Convention established a Conference of the Parties, the Lake Tanganyika
Authority, the Secretariat of the Lake Tanganyika Authority, Technical
Committees and the articles that describe their functions.
5. Dispute Settlement and Liability (Articles 29 to 31)
Articles of this section establish dispute settlement mechanisms, and determine
liabilities of operators of dangerous activities and compensation structures.
6. Other (Articles 32 to 44)
Articles of the last section deal with various procedures as the right to vote,
protocols, amendment proposals and others.
Conclusions
The Convention draft represented a joint effort of senior law and policy makers,
and key technicians from the riparian countries. As such, it has a great chance to
be positively evaluated by the government's and rapidly signed. In the opinion of
the representatives of the member countries encountered by the evaluation
mission, once signed, the Convention will become a framework for other national
legislation adjustments.
50
Even at this stage, giving the economic and political circumstances prevailing in
the region, the whole Convention is a great achievement. The Convention's most
important and innovative points are the imposition of environmental impact
assessment on all new activities, obligation of public awareness building and
public participation in the decision making process. These actions will assure
better control over future development and more transparency in Lake
management. They will also probably impact legislation dealing with other
environmental problems in the countries.
The Convention will be binding on the four riparian states. However, the Lake
may be endangered by activities or events that occur in non-riparian countries.
For example air borne pollution, agrarian practices that increase sedimentation
through rivers originating in watersheds situated beyond the riparian countries, or
wars and insecurity that contribute to human emergency. It would be useful if the
Convention could address these points.
Immediate objective 3
The third immediate objective aims to establish a program of environmental
education and training for Lake Tanganyika and its basin. This aims could be
achieved through:
- Increased environmental awareness and sensitivity among lakeshore
communities concerning the fragility of the lake, the international nature of its
problems and the interdependence of people with the lake.
- Producing a cadre of trained environmental scientists and technicians to
provide a core of expertise for managing the biodiversity of the lake and
protecting its watershed in the future3.
Output 3.1
Increased environmental awareness and sensitivity among lakeshore
communities concerning the fragility of the lake, the international nature of its
problems and the interdependence of people with the lake.
3 Project Document, page 29.
51
Table VI. Output 3.1. Activities scheduled (S) and carried out ( C)
199
1996
1997
1998
1999
200
Activities
5
0
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
Dissemination of information
S
3.1.1
C
Organize teachers groups
S
3.1.2
among local schools
C
Produce specific printed
S
3.1.3
material for communities
C
Objectives
According to the Project Document, serious environmental threats justify the
necessity of environmental awareness building among the lakeshore
communities. The most imminent is the excessive amount of suspended
sediments entering the lake from surrounding deforested hills and slopes and
from cultivated lands. Another serious problem is excessive fishing, especially in
areas where fishermen utilize improved mechanized methods of catching. There
are other environmental threats to the lake such as chemical pollution from urban
and industrial sources, oils spills and leaks, but these are, for the time being, far
less menacing since only one major town (Bujumbura) discharges waste to the
lake, and the oil spill is perceived as a potential threat.
The gravity of the threats may be measured by the importance of human
populations living in the lake catchment. The rapidly growing population is
estimated at about 10 million, mostly striving on extensive agriculture on sloping
fields in surrounding deforested mountains rising up to 3000 meters above lake
level.
According to the Project Document, there were about 36,000 fishermen on the
lake. About one million people depend permanently or temporarily on the lake
resources. Recently reduced fish catches indicate overexploitation of fish stocks.
In short, the most imminent threat to Lake Tanganyika is biodiversity comes from
inadequate exploitation of land from the lake catchment and from overfishing.
Thus, Objective 3 and its first outputs may be regarded as the most important
lake pollution countermeasures. The project was supposed to launch the
environmental education at the community level through NGOs. The NGOs
should open up channels of communication with the local communities through
existing community structures. The Project Document is not specific about the
channels or the matters to communicate. It stipulates only that they may be used
for 'persuasion or extension if new practices are recommended' and considers
the schools and school teachers as particular targets.
52
The Environmental Education Baseline Review (1966) has settled the conceptual
approach to environmental education as a fully integrated critical component
towards a sustainable and participatory system of natural resource management
in the lake basin. The local capacity should be built equally through a
participatory and cyclic process giving and receiving information between
'national stakeholders' and the 'local people'.
The Inception Report4 repeats the Project Document's suggestions, adding that5
'The importance of involving local people at the start and throughout the duration
of EE programs was specially noted. Without this, the long term sustainability of
the project might be seriously compromised.' The various groups should be
reached through seminars, training of trainers, use of mass media, and the
establishment of local level institutions for women and environmental clubs in
secondary schools.
According to the work plan6, by the end of 1998 the countries should have
developed the EE plans; selected sites for socio-economic monitoring and
proceeded with monitoring; proposed protected areas; synthesizes special study
results; and prepared inputs to the strategic planning process.
Results
Until 1998, in Zambia and Tanzania the project organized environmental
awareness campaigns through national EE institutions. Especially in Zambia, the
EE program used innovative and efficient awareness raising methods such as
development of 'strata management committees', village drama groups, or study
tours. However, in spite of the satisfactory implementation of the program, it
became evident7 that 'awareness alone is not enough for improvements in
resource management, which require the introduction of real alternatives and
incentives for change at local level.' In the following year the program was still
satisfactory in Zambia, 'patchy' in Tanzania and still non-existent in Burundi and
Congo. In 1999 the EE program was still unsatisfactory. Only in 2000 were the
Burundi and Congo project's team able to start the EE programs.
Thus, globally, the EE program was performing well, so far as it was involved in
training of trainers, workshop organization and preparation of work programs. In
the countries where field work was possible, the awareness building in the
villages took place as well. The effect of the program is however, still unknown.
The project did not yet produce the final report describing the output.
Conclusions
4 Inception Report, page 49 and 100
5 Ibid., page 60
6 Ibid., page 62 and 63
7 Project Performance Evaluation Report, 1998, page 27
53
Three facets of the realized output are probably of the highest importance:
Detailed description of attained technical results (number of person trained,
village associations created, primary beneficiaries sensitized and so on) and the
attached costs. The description will help future programs aiming at similar
objectives.
The final report should analyze the achieved impact on the beneficiaries in terms
of improvement in fishing, cultivating and logging. This analysis will have
immediate effect on choice of future awareness-raising methods.
Analysis of difficulties and limitations of the applied awareness increasing
methods. The results of this analysis may impact the future approach to the
awareness campaigns, and shed light on the foundations of the awareness
building concept.
Critical examination of motivation that should drive the populations to respect the
EE recommendations. The current agricultural and fishing practices damaging
the lake environment cannot be perceived as merely the results of ignorance or
absence of environmental awareness. They should be considered as an optimum
achieved by a farmer or fisherman given his situation. Change of behavior should
be perceived not as an act of good will that will follow an awareness building
campaign, but as a result of a decision that will leave him better off. The EE
analysis should provide the authorities with managerial options and not only with
advice.
Output 3.2
A cadre of trained environmental scientists and technicians to provide a core of
expertise for managing the biodiversity of the lake and protecting its watershed in
the future will be produced.
Table VII. Output 3.2. Activities scheduled (S) and carried out ( C)
199
1996
1997
1998
1999
200
Activities
5
0
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
Establish an in-service
S
3.2.1
training for technical staff
C
Provide support for
S
3.2.2
Universities
C
Provide fellowship to
S
3.2.3
students working on the
C
Lake
Provide on-the-job training
S
3.2.4
for park managers
C
The information about this output realization is scattered throughout project
reports and could not be summarized completely for the purpose of the present
evaluation. However, the involvement of national institutions and national staff in
54
project objective realization who received training that upgraded their capacity is
impressive (Table VIIa ). Three hundred thirty nine national personnel from 49
governmental institutions participated in the project activities. They were
seconded by 38 expatriates from 25 institutions. This statistic does not include
direct lake stakeholders such as farmers and fishermen. During three years the
project sponsored 11 students participating in Nyanza every year.
Table VIIa. National and Expatriate participation in the Project
Scientists, Managers, Technicians Involved
Project Component
Regional
Expatriate
Biodiversity
31
4
Pollution
22
3
Sediments
35
6
Fishing
17
3
Socio-economics
20
4
Training and EE
20
5
Legal
20
2
SAP and TDA
160
7
PCU
11
3
Total
339
38
Government
Other
Institutions
49
25
Immediate Objective 4
Establish tested mechanisms for regional coordination in conservation
management of the Lake Tanganyika basin
Output 4.1
Mechanisms for regional coordination will be introduced and developed
During realization of this output, the project installed an effective communication
system between the PCU and the four national stations, providing them with
telephone, telefax, and email/internet connection. The Project edited and
distributed four Newsletters and developed a website containing general
information about the project, an electronic copy of the Newsletter, and all
produced documents. It produced a CD with the Website information copied for
computer users having no internet access.
The project activities and results were examined by six Steering Committees.
Virtually all modifications on the project's work plan and all important technical
documents (for example the Inception Report, SAP and the Convention) were
analyzed and actualized by the Steering Committees. The National Steering
Committees assured supplementary channels for increasing regional
cooperation.
Frequent workshops and common training sessions helped to create informal
regional links among national institutions and their staff.
55
Table VIII. Output 4.1. Activities scheduled (S) and carried out ( C)
199
1996
1997
1998
1999
200
Activities
5
0
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
Install an effective
S
4.1.1
communication system
C
Organize regular meetings of
S
4.1.2
Steering and Technical
C
Comm.
Prepare for approval a
S
4.1.3
system of lake management
C
Prepare newsletters
S
4.1.4
C
Carry out other tasks
S
4.1.5
according to Steering
C
Committee
Results
During the project's duration regional cooperation was executed through the
project structures. After the project termination and before the Convention
signature, the Strategic Action Plan propose an Interim Structure and, finally,
once the Convention was signed and implemented, it will be implemented
through a final structure. It is important for the riparian countries to preserve the
vast information accumulated by the project and to keep alive the research and
implementation structures animated by the project. If this will not be assured with
enough attention and material means a lot of information will be lost, the ongoing
initiatives will lose their momentum and the executing staff will attach to other
projects. In this section we will review all three structures.
Project structure
The project structure is composed of its financing and implementation bodies,
Regional Steering Committee (RSC), Project Coordination Unit (PCU), National
Steering Committees (NSC), and National Working Groups (NWG). (Figure 1.)
Regional Steering Committee
The Committee is the principal institutional mechanism for regional co-operation
within the project and for maintaining, directing and supporting its activities. It
comprises:
- The Principal Secretaries or equivalent from the leading organizations
- The National Co-ordinators
- Two senior officials from key institutions
- UNDP Program Officers from the four countries
The function of the Regional Steering Committee is to:
- Provide overall direction of the project
56
- Review the progress of the project and the various national activities,
ensuring a regionally integrated approach
- Direct on policy matters, and monitor the utilization and availability of
counterpart staff
- Approve future planning, and make recommendations to the executing
agency as to changes in project timetables, inputs and budgets which may be
necessary from time to time
- Provide guidance and support to the Technical Advisory Committee and
Project Co-ordinator
GEF/U
NDP
UNOPS
RST
PCU
NSC
NWG
Figure 1. The Project is Financed by the GEF/UNDP. The UNOPS is the
Implementing Agency. The Project Co-ordination Unit (PCU) is controlled directly
both by the Implementing Agency and by a Regional Steering Committee (RSC).
The RSC and the PCU co-ordinate the activities with National Steering
Committees (NSC). The NSC are responsible for implementation of the activities
through the National Working Groups.
Project Coordination Unit
The PCU comprises the Project Coordinator and the Project Scientific Liaison
Officer. Supported by National Coordinators, and for the past 12 to 18 months by
four special study regional facilitators, it maintains offices in Bujumbura and Dar
es Salaam, and field offices in Kigoma and Mpulungu. It provides the focal point
for management of all field activities including financial control, liaison with
countries and NRI, and it acts as secretariat to the Regional Steering Committee.
57
National Steering Committee (NSC)
The NSCs were created in February 1998 as a means of enhancing national
ownership and involvement in decision making. The National Coordinators were
mandated to:
- Convene the meetings of the committees with participation of representatives
of all relevant ministries, the private sector and NGOs
- Provide overall direction and guarantee the full involvement of the national
institutions
- Review progress and direct the national implementation of the project,
ensuring integrated participation of counterpart institutions
- Advise the Regional Steering Committees on policy of a regional character
and monitor the participation of counterpart institutions
- Approve project plans at a national level and make recommendations to
Regional Steering Committees as to changes in project implementation
- Provide guidance and support to National Working Group and the Project Co-
ordinator
National Co-ordinators and National Working groups
Their role was to bring together the key institutional stakeholders at a senior
level, and other interested parties in order to exchange information and ensure
collaborative approaches to project implementation.
For the specific purpose of preparation of the SAP, the project was assisted by a
Technical Advisory and Strategic Action Program Planning Group. This Group
comprised of senior scientists and National Coordinators developed the
Strategic Action Program and the Transboundary Diagnostic Analysis.
The Interim Lake Tanganyika Management Body (ILTMB)
The ILTMB should assure regional cooperation during the period between
termination of the present project and the Convention signature. The Body will
ensure that urgent actions identified in the SAP are implemented, promote the
signing of the Convention and establishment of functioning management bodies
required in the Convention, and maintain and preserve information.
The ILTMB will have the following structure (Figure 2):
Interim Lake Management Committee (ILMC)
Interim Lake Management Secretariat (ILMS)
Interim Lake Management Committee (ILMC)
The Chair for the ILMC will be selected at the first meeting. Each participatory
country will be represented on the committee by the Permanent Secretary of the
relevant ministry, supported by three appointed members.
58
The ILMC will:
- Supervise activities detailed in the SAP
- Direct the activities of the ILMS
- Approve and support project proposals developed by ILMS
- Approve and finalize funding agreements developed by the ILMS
- Approve procedures for the Conference of Parties developed by ILMS
- Meet at least once per year
- Agree to rules of procedure for itself, the secretariat and any subsidiary
bodies
- Approve the recruitment and appointment of other senior staff considered to
be necessary to the functioning of the secretariat, and approve the
recruitment of consultants thought necessary to assist the secretariat.
The Interim Lake Management Secretariat (ILMS)
The ILMS will be a full time body, with a Director and Deputy Director recruited
and appointed by the ILMC. The Director of the ILMS will act as the Secretary for
the ILMC. The ILMS headquarters will be established in a country identified in the
first ILMC meeting.
The ILMS will:
- Coordinate, support and prepare costed project proposals for the priority
actions listed in the SAP
- Act as the lead group to coordinate and leverage funding at national and
regional levels in support of the SAP - negotiating finance for regional projects
and assisting national agencies in negotiating finances for national projects
- Coordinate lake management interventions implemented by national
institutions within the framework of the SAP
- Coordinate Lake Monitoring Programme
- Establish and maintain an Information Center incorporating central database,
a GIS support unit and lake website, as well as holding copies of printed
reports and papers
- Facilitate the finalization of the draft Convention
- Invite the participating countries to sign the Convention and promote the
ratification of the convention
- Prepare draft procedures for the consideration of the First Conference of
Parties and carry out any additional activities necessary to facilitate the
implementation of the convention
- Prepare annual reports for the ILMC on the implementation of the SAP and
any additional new activities within the basin that may affect the management
of the lake
- Arrange and support meetings for the ILMC
- Prepare annual budgets for the functioning of the ILMB
59
Financing of the ILTMB should be assured entirely by donors
Donors
ILMB
ILMC
Figure 2. Structure of the Interim Lake Tanganyika Management Body.
According to the Strategic Action Program the Interim function will be confined to
a Interim Lake Tanganyika Management Body (ILTMB) that will be comprised by
the Interim Lake Management Committee (ILMC) and of the Interim Lake
Management Secretariat (ILMS). The ILMC will be financed by donors.
The regional structure that will be responsible for the Convention implementation
is composed of a Conference of the Parties (CoP), the Lake Tanganyika
Authority (LTA), and Technical Committees (TC).
Conference of the Parties (CoP)
The Conference of the Parties should regularly evaluate the implementation of
the Convention. For this purpose it should:
- Consider and adopt protocols to be concluded
- Consider and adopt additional annexes and amendments
- Establish the necessity of subsidiary bodies
- Undertake any additional actions
Lake Tanganyika Authority (LTA)
The Lake Tanganyika Authority should co-ordinate implementation of the
Convention by the Contracting States and advance and represent the common
interests of the Contracting States in matters concerning the management of
Lake Tanganyika and its environment. The Authority is comprised of the
Management Committee and the Secretariat.
Lake Tanganyika Management Committee (LTMC)
The Lake Tanganyika Management Committee consists of three members
appointed by each Contracting State. The Executive Director of the Secretariat
should serve as the secretary of the LTMC. Each country appoints persons with
60
the relevant expertise as members of the LTMC. The LTMC should support, co-
ordinate and monitor implementation of the Convention. To this purpose it will:
- Implement the policies and decisions of the CoP
- Provide scientific and technical advice to the CoP
- Prepare SAP and propose it for approval to the CoP
- Co-ordinate and supervise implementation of the SAP
- Negotiate with donors interested in programs and projects for consideration
by the CoP
- Commission studies and assessments
- Supervise and assist the activities of the Secretariat
Secretariat of the Lake Tanganyika Authority (SLTA)
The Secretariat is the executive organ of the Authority and should be under the
supervision of the LTMC. It should comprise an Executive Director, a Deputy
Director and any other requested staff.
The SLTA will:
- Carry out the tasks assigned to it by the LTMC
- Provide technical and scientific services and advice required by LTMC
- Perform financial and administrative services
- Formulate annual work program and budgets for the Authority
- Maintain databases, regularly obtain and update information and facilitate
information exchange under the Convention
- Arrange and support meetings of the CoP and LTMC
Technical Committees (TC)
The LTMC will be assisted by a Socio-economic Technical Committee, Fisheries
Management Committee, Biological Diversity Technical Committee, and with the
consent of CoP, other committees.
The Authority should be financed by the contributions of member countries,
donors and other sources.
Conclusions
The proposed mechanisms of regional cooperation are to a large extent a
continuation of the existing project structure. The Regional Steering Committee
becomes the Conference of the Parties, the Project Coordination Unit and the
four field stations correspond to the Lake Tanganyika Authority with its
Management Committee and Secretariat. Finally, the National Working Groups
have their partners in the form of Technical Committees. During the interim
phase, the regional activities will be carried out by the ILMC only.
61
The analysis of the project activities shows that success is largely related to a
strong involvement of national institutions in planning of outputs and realization of
activities. This was achieved through creation of national partner structures such
as the NSC and NWG. The Convention covers only regional cooperation,
leaving to the member countries the establishment of their own bodies dealing
with Convention implementation. The project initiative to establish the NSC as a
national partner of the Steering Committee that provides directions and enhances
involvement of national institutions may be maintained by the Convention
member countries. The NSC may be especially useful at the phase immediately
succeeding the Convention implementation, in creating a network of stakeholders
and in catalyzing financing for priority investment. The experience of regional
collaboration gained by the national institutions may be used to create such
networks and guide its activities.
The Interim structure is comprised of a transitional regional institution composed
of two units. This institution will be mandated to receive financing for
implementation of activities in the future Convention member countries However,
according to the management plan, it will not be accountable for its actions
before any supervisory body. Nor is it not clear who will be the national partner of
this interim body. It is possible that this arrangement may be designed on an ad-
hoc basis among donors, the ILTMB and the interested institutions from the
member countries. However, it would be more appropriate to assign the
supervisory role to an Interim Steering Committee, and conduct the national
execution through Interim National Steering Committee and National Working
Groups.
CoP
Member
Countries
TC
LTMC
&Donors
SLTA
Figure 3. The Lake Tanganyika Authority and Convention. The Lake Tanganyika
Management Committee (LTMC) implements the decisions of the Conference of
the Parties (CoP). To this effect it has a Secretariat of the Lake Tanganyika
Authority (SLTA) and the Technical Committees (TC). The financing is assured
by the member countries and by donors.
62
Immediate Objective 5
In order to produce a full Strategic Plan for the long-term, some specific studies
need to be undertaken. These special studies will also add to the understanding
of the lake as a whole and, in some cases, provide the baseline and framework
for long-term research and monitoring programs.
Output 5.1
Determination of the biological consequences of sediment discharge into Lake
Tanganyika caused by watershed deforestation and erosion.
According to the Project Document, the output should determine importance of
the sediment discharge into the Lake, effects of the sediment on animals and
vegetation abundance, and impacts on biodiversity.
Sediment discharge study should result in:
- Deforestation and sediment plume survey using remote sensing
- Historical analysis of deforestation to start near the beginning of the project
- Quantification of volumes of sediment currently entering the lake through
major inflows
- Detailed sedimentation and sediment impact studies
- Tracing the fate of particles discharged into the lake, establish lake monitoring
sites measuring quantity of sediment discharged
- Comparison of the sediment discharges in disturbed and undisturbed areas
Effect of sediment on biota concerned mainly studies on water column impact
and implication for commercial fisheries
Benthos impacts on biodiversity should be documented by faunal census.
The Inception Workshop complemented the Project Document by indicating 13
priority studies:
- Give a broad view of vegetation changes within the catchment area
- Produce high resolution imagery of special significance areas for time series
analysis
- Upgrade river gauging and measurement of sediment flow
- Investigate non-point sources of suspended sediment
- Understand the fate of sediments entering the lake
- Proceed to Physico-chemical analysis of sediments
- Consider effect of high sediment loads on limnological processes near shore
- Examine how sediments influence nutrients in the water column
- Perform a whole lake survey of sediments
- Do more detailed sediment dating on some sites
63
- Identify current rates of sedimentation and horizontal distribution
- Consider role of wetlands in the catchment and their impact on possible
reduction of sediment load of inflowing rivers
- Understand effect of high sediment load on key indicator species of the lake
Activities
The activities progress was satisfactory throughout the study period and the
produced summary of findings contributed to formulation of the Strategic Action
Program.
Table IX. Output 5.1. Activities scheduled (S) and carried out ( C)
199
1996
1997
1998
1999
200
Activities
5
0
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
Regular determination of
S
5.1.1
sediments
C
Satellite monitoring of
S
5.1.2
deforestation
C
Analysis of transported
S
5.1.3
sediment particles
C
Impact of sediment on lake's
S
5.1.4
ecosystem
C
Add output to the Lake
S
5.1.5
database
C
The findings of the sedimentation studies are described in 16 documents.
The key findings may be summarized as follow:
The threat to biodiversity of suspended solids is regarded as high and has
probably resulted in some recent loss of diversity in parts of the lake. The
suspended solids is a principal and current threat to the lake's biodiversity.
In particular:
- There is strong evidence of a large increase of suspended solids entering the
lake compared to historical rates of input
- It is clear that a combination of woodland clearances and agricultural
practices carried out in the catchment is responsible for increases in entries of
suspended solids to the lake
- Strong evidence that increase in sediment input is correlated to increases in
nutrient and organic matter input to the lake
Moreover it was found that:
- Medium size catchments (between 50 km2 and 4 000 km2) are particularly
responsible for changing the biodiversity adjacent to their river mouth
- The impact is most likely where rivers discharge onto relatively gently sloping
lake floors; sediment can be transported at least 10 km from the source
64
- The literature data and the results of the project's research suggest that
diversity (particularly in the inshore region) is negatively correlated to
sediment input; the sediment load increase reduces distribution of the most
diverse habitat
Conclusions
The studies confirm and precisely define the previous results described in the
Inception Reports. They contain valuable information about sedimentation impact
and the link between plant, animals and sediment pollution. It was the first time
that such detailed study was conducted in Lake Tanganyika. From the Lake
conservation point of view, they proved that sedimentation is the primary risk to
Lake biodiversity. The sedimentation is responsible for slow disappearance of the
original biota.
Output 5.2
Determination and prediction of consequences of chemical pollution discharges
from the land or boats
The project document assigned to the study two main goals:
- Identify existing and potential pollution sources, including sediments, and
where possible quantify types and levels of pollutants
- Investigate and model circulation of lake waters, transport and dispersal of
pollutants; identify areas of special risk
The Inception Report recommended:
- Identifying the main sources of pollution to the Lake and where possible
quantify the pollutant inputs
- Obtaining a lakewide assessment of pollution and its effects on lower
organism diversity
- Evolving systematic programs of pollution and biodiversity description and
monitoring
- Developing teams capable of planning and executing field and laboratory
programs, analyzing the data and reporting the findings
- Developing pollution control strategies
The realized objective was to:
- Identify the main sources of pollution
- Determine where and how the pollution is negatively impacting biodiversity
- Establish a monitoring program for pollution in the lake
65
Activities
In 1997 the project identified the principal location for the pollution studies;
started to increase awareness of the pollution problem and its impact on the
biodiversity; started to train the national personnel assigned to the pollution
studies and to install the laboratory equipment. These actions aimed at
development of human and equipment resources able to sustain the pollution
measures after the end of the project. The project developed a pollution database
that will be finalized in June and contribute to the Strategic Action Program.
The Lake water circulation was analyzed and the circulation models developed.
Table X. Output 5.2. Activities scheduled (S) and carried out ( C)
199
1996
1997
1998
1999
200
Activities
5
0
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
Identification and
S
5.2.1
quantification of sources of
C
pollutants
Analysis and modeling of
S
5.2.2
lake circulation
C
Add outputs to database
S
5.2.3
C
Results
The water quality analyses suggests that Lake Tanganyika may be considered as
healthy and not impacted by nutrient enrichment, although the Lake cannot be
classified as ultra-oligotrophic as are the typical pristine systems.
Human activities are, however, beginning to alter the quality of littoral habitats.
Bujumbura and Kigoma emit substantial quantities of industrial contaminants to
the bays; no domestic and industrial wastes are treated anywhere around the
Lake. Rapid population increase and prospects for industrialization require
thorough monitoring of water pollution.
The UNOPS-FAO supported study of flow, thermal regime and sediment
transport revealed tilting of thermocline along the main axis of the Lake, high
speed and variation of the currents down to 20 or 40 meters. The study
calculated water circulation pattern and its evolution with time, and developed
(and validated) a model of the circulation and a separate PC model of particle
tracking that may include an oil drifting module.
66
Conclusions
Further actions for pollution control require thorough monitoring, formulation of a
regional Lake-wide pollution control strategy and introduction of incentives that
will motivate the polluters to reduce discharges into the Lake. The available
documents do not contain proposals describing systematic regional pollution-
monitoring procedures that will be applied by the four countries laboratories. The
proposal formulation is left to the countries as part of Strategic Action Program
implementation.
The existing documents did not yet integrate the results of pollution studies into
the model of sediments, nutrient and pollutant transportation.
Output 5.3
Determination of patterns and structure of biodiversity in Lake Tanganyika with
emphasis on proposed national parks and other conservation areas
According to the Project Document, the output should:
Make inventories of aquatic animals and plants that will provide information
necessary for identifying reserves and planning their management. The
inventories should be made by geographic distribution and habitat type and
monitoring changes over time
Determine various biodiversity indicators
Help understand the extent of diversification for management decision and
conserving biodiversity.
The inception workshop approached the biodiversity study from the following
standpoint.
The study should lead to:
- Collation of all existing patterns of diversity from literature and national
records
- Inventory of locations of previous studies
- Standardization of timing for working teams
- Identification of priority locations assessment of criteria for biodiversity
monitoring program
- Assessment of community variability within and between unmodified habitats
- Creation of baseline inventory of community structures in pristine sites
- Qualitative and quantitative assessment of effects on impacted sites
- Assessment of 'charismatic species' in links with tourism, support
conservation activities in national parks and other restricted areas
67
This work plan should be implemented in three phases:
- Collation of existing data
- Rapid assessment of promising localities
- Detailed studies of 10 to 12 localities
The Special Study Work Plans stated that the objective of the biodiversity studies
was to support the development of the Strategic Actions Program to manage the
Lake. To achieve it the studies should:
- Develop a sustainable biodiversity monitoring program
- Identify the distribution areas for conservation, based on existing knowledge
and recommendations from other studies, and supplement by additional
survey work where necessary
- Review current levels of biodiversity in the Lake
Finally, the Project designed the objective of the biodiversity study mainly to
support the Strategic Action Program that in turn should provide for the regional
management of the Lake to enable the sustainable management of biodiversity
and the livelihood of present and future generations of lakeside communities.
Activities
The project trained national personnel in surveys, visual census and sampling for
the biodiversity studies. The field activities began in national parks and then
moved to other key areas. In 1998, with the security situation improvement in DR
Congo, the biodiversity surveys were extended to locations south of Uvira. The
studies provided extensive input to the Strategic Action Program. The final report
is expected in June or July.
Table XI. Output 5.3. Activities scheduled (S) and carried out ( C)
199
1996
1997
1998
1999
200
Activities
5
0
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
Prepare inventories of
S
5.3.1
species
C
Determine various criteria for
S
5.3.2
diversity assessing
C
Study causes of biodiversity
S
5.3.3
C
Determine criteria for
S
5.3.4
selecting protected areas
C
Add output to database
S
5.3.5
C
68
Results
The studies addressed two main specific objectives:
1. Define and prioritize the management actions required to conserve
biodiversity of Lake Tanganyika
2. Enable the Lake Basin Management Committee to provide guidance to the
international community on the needs of the Lake region in terms of
biodiversity conservation and sustainable use of resources.
To achieve these objectives, the project reviewed current levels of biodiversity of
the Lake.
Identified distribution of major habitat types with particular focus on existing and
suggested areas.
Suggested priority areas for conservation, and developed a sustainable
biodiversity monitoring program.
For this purpose the project realized two field programs:
- SURVEY program of biodiversity and habitat surveys from areas adjacent to
existing national parks
- MONITORING program of biodiversity monitoring over time
The biodiversity information is stored in two databases: one collating species
location from previous studies, and the second containing the results of the
project's surveys and monitoring.
Since the littoral zone of the Lake harbors the highest number of species and is
the most exposed to threats from sedimentation and pollution, the Project
recommends adoption of a coastal zone management approach as a
complement to transboundary management. This approach aims at a
combination of shore waters and shore land management and has the advantage
of focusing effort and resources to specific areas where the intervention is most
needed. This focus should help propose manageable solutions. The proposal is
an innovation since the original project document specifies two options for
biodiversity protection: national parks or unprotected areas.
The project teams surveyed the waters adjacent to the existing national parks
and found that the majority of littoral habitats in the lake can be protected by
associating an aquatic zone with an existing terrestrial park. The parks may gain
on this extension by enlarging their tourism potential. As a consequence of this
extension, the capacity of the relevant institutions should be improved to monitor
and manage the new component of the park.
69
Additionally, the project identified sites of special scientific interest in the DR
Congo, and others in the areas of Gitaza in Burundi, near Kitwe Wildlife
Sanctuary, south of Kigoma and the mouths of Lufubu and Chisala rivers in
Zambia.
Furthermore, the project recommends designation of the Rusizi and the
Malagarasi deltas, and the Lukuga effluent or the Lufubu/Chisala river mouth as
areas under the Convention of Wetlands protection. These areas are important
fish nurseries and spawning grounds.
Conclusions
The biodiversity study produced two important results: a thorough description of
the present state of the Lake biodiversity, and practical proposals concerning
installation of protecting areas. The results may have important practical
consequences for both the Lake and the adjacent human populations. It is
possible now to follow evolution of the Lake's diversity. Then, it is possible to
increase economic value of the Lake by installation of underwater parks available
for tourism. Finally, there is a rational basis for delimitation of protected areas for
commercial fish reproduction. Implementation of theses beneficial proposals is in
the hands of national Authorities as one of the project follow-up activities.
Output 5.4
The damaging effect of exploitation on the fish of Lake Tanganyika will be
investigated and recommendations made for their mitigation
According to the Project Document, the study output should:
- Identify and recommend fishing methods less harmful to biodiversity than
those used presently and recommend them to fishery projects
- Determine target species and quantity of fish taken for ornamental fish trade;
identify potential threat and advise legislative actions
- Using the available fisheries and community data asses the knock-on effects
of fishing through the system
The Inception Workshop modified the objectives according to the following lines:
- Collation of existing national, Lake Tanganyika research project, and other
international statistics in commercial fisheries to assess direct effects on lake-
wide biodiversity
- Village survey of gear use, catch composition by bear and habitat, total catch
and fishery structure and role of fishing in the community
70
- Survey rapid assessment methods of fish abundance on fishing grounds
- Specific inshore habitat studies particularly in vegetated nursery areas and
river mouth
- Analysis of dynamic of inshore fish population and linkage with pelagic fishery
with models where appropriate
- Assessment of ornamental fish trade including species and habitats most
affected, and potential impact.
Finally, the work plan for the fishing practice recommended that the aim of the
study is to support the development of the Strategic Action Program by improving
the understanding of fishing practices in their impact on biodiversity and
socioeconomic importance to riparian communities. To achieve it the project
should:
- Assess the impacts of individual fishing practices on biodiversity
- Assess the socio-economic significance of individual fishing practices for
riparian communities
- Determine the prevalence of individual fishing practices around the lake
- Explore options for improved management of fisheries to minimize the impact
on biodiversity
Activities
The studies about fishing were conducted in close collaboration with the socio-
economic studies. The fishing surveys started in Tanzania and Zambia in 1997,
then extended to all four countries. Presently, the studies are terminated, the
information is entered into the database and the final report is in preparation.
Table XII. Output 5.4. Activities scheduled (S) and carried out ( C)
199
1996
1997
1998
1999
200
Activities
5
0
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
Estimate impact of fishing
S
5.4.1
C
Examine ornamental fish
S
5.4.2
trading
C
Investigate use of computer-
S
5.4.3
based models to impact
C
study
Identify alternative fishing
S
5.4.4
methods
C
Results
The available study results deal with assessment of fishing in general and
assessment of fishing in the biodiverse littoral zone.
71
Concerning the fishing in the pelagic zone, the study indicates that sustainable
management of pelagic fish is important for maintaining Lake biodiversity, since
in case of collapse of that fishery, the on-shore fishing area rich in biodiversity will
be overexploited. The rapid change in the abundance of the commercial pelagic
fish may result not only from the overexploitation, but as well from changes of
water temperature or other not yet fully understood factors. The reduction of
fishing may be achieved as well through reduction of post-harvest loss that
occurs during storage and transportation.
Concerning the littoral zone, the study advises replacement of reliance on
legislation enforcement mechanisms by co-management of fishing communities,
NGOs and governments, and recommend that this co-management should be
developed as the most appropriate mechanism to manage fishing in the littoral
zone. Under the project's auspices, riparian communities in Zambia have
established village conservation and development committees. They may be
considered as a transitional stage of the Lake co-management system.
The study also prepared a report describing fishing activities adjacent to each of
the national parks on the Lake.
Concerning the monitoring of fisheries, it is recommended to maintain existing
monitoring and aiming at its improvement through better training of the staff
rather than by extending or intensifying the monitoring program.
Conclusions
The available results are highly general and they are not supported by evidence.
They might have been appropriate as advice to the Strategic Action Program,
however, they are of little use for management decisions since they give no
insight into such elements as the fish stock availability, fish reproductive capacity,
fishing projections and fish population dynamics. There is no information about
the utility of the results of the LTR/FAO project for the Lake biodiversity
management. In summary, it may be expected that the final report will bring
much more detailed and specific information important for managerial decisions.
Output 5.5
Developments in other sectors within the lake basin intimately affects what
happens in the lake itself. A detailed examination of present and future plans in
these other sectors needs to be carried out so that they can be taken into
account in the Lake Tanganyika Strategic Plan.
72
Activities and results
The Baseline Review and the project collated information about a wide range of
activities that may affect the Lake. Among them, the most important are:
Rapid human population growth
Periodical influx of refugees
Prospect of oil exploitation
Lake transport and port development.
The Strategic Action Program address as the last two problems.
Table XIII. Output 5.5. Activities scheduled (S) and carried out ( C)
199
1996
1997
1998
1999
200
Activities
5
0
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
Collects sectoral plans,
S
5.5.1
synthesize potential impacts
C
Output 5.6
The prospects for the future of Lake management may depend upon additional
benefits generated. The nature and direction of those benefits will be investigated
and recommendations made for their distribution.
According to the Project Document, the output should provide:
- Recommendations on needs for tourism development organization and
infrastructure
- Ascertain the role of fishing in the local economy, the pattern of fishing,
organization of lakeside communities and their decision-making structure
- Assessment of the public awareness of the project
- Information about income generating activities along the lakeside
- Study of economical sectors in respect to actions which will affect the lake
According to the Special Study Work Plan
The project should identify how local communities and local actions contribute to
strategic lake basin management. To this effect it is required to provide
information that will:
- Detail the socio-economic characteristics, priorities and needs of local
communities in relation to the project
- Identify environment education requirements
- Recommend measures to enhance lake basin community livelihoods,
incomes and participation in lake basin management (both during the project
life and to be included in the SAP)
73
- Train country teams in participatory approach
- Asses, where possible, impacts of any pilot environmental education and
management actions
It was presumed that the local teams and consultants will subsequently
participate in further investigations.
Activities
Studies of existing tourism potential have started as early as September 1995.
The other activities were implemented at the end of 1996. Until the end of 1997
there were no specific managerial proposals. The more intensive field work
started only in 1999.
Table XIV. Output 5.6. Activities scheduled (S) and carried out ( C)
199
1996
1997
1998
1999
200
Activities
5
0
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
Study existing tourism
S
5.6.1
potential
C
Precise economic role of
S
5.6.2
fishing
C
Enquiry about Lake and
S
5.6.3
project awareness among
C
peoples
Examine possibilities of other
S
5.6.4
income generation activities
C
Results
Fisheries livelihoods and practices
The most common fishing gear belong to three categories:
Lift nets used from catamarans targeting sardines offshore
Beach seines used at night with lamps to catch sardines, and other littoral fish
during the day
Gillnets and lines that target large fish
The catches remain high near refuges, but in other areas they have declined so
much that some wealthy fishermen diversify their activities into other domains
such as commerce or farming. When supply exceeds demand the fish surplus is
processed (sardines are dried, large fish smoked) and marketed.
Agricultural land use and livestock
74
Generally, flat land for farming is limited. The principal subsistence crop is
cassava; cash crop is oil palm. Many lakeshore villages do not meet their non-
fish food requirements. Declining fishing, steady increases of human populations
and land shortages oblige farmers to clear slopes for field. The slopes are,
however, steep and sometimes after two or three harvests the soil is unusable for
farming. Fish smoking and palm oil processing, consume great amounts of wood
for fuel.
Deforestation, energy needs, and woodland management
Clearing woodland for agriculture, village programs in Tanzania in the 1970s,
periodical refugee influxes and use of wood for fuel, all contributed to wood
shortages in many villages.
Population, movement and livelihood strategies
Population growth and movement is a primary contributor to unsustainable
natural resources exploitation in certain areas.
Protected areas
There is mounting pressure from the local populations on existing protected
areas like deltas, national parks and forest reserves. Forest Reserve Land in
Zambia and a section of Rusizi National Park have already been degazetted to
allow for exploitation.
Conclusions
It results from the study that excessive fishing and inappropriate land exploitation
which are at the origin of the threat to Lake biodiversity, are difficult to change
without profound modifications in the social and economic life of the region.
These difficulties are compounded by widespread insecurity, large number of
refugees from the combat areas, high growth of population and poverty. The
study brings very valuable and detailed information about the relation between
the human economy and Lake resources. It attempts to draft ways to improve life
for the riparian populations. The designed program, if pursued along the same
line after the project termination, will provide the Lake Management with valuable
information.
Immediate Objective 6
75
The Implementation and sustainability of the Lake Tanganyika Strategic Action
Program and incorporated environmental management proposals
Initially (before 1997), the project intended to identify future aquatic protected
areas.
The results of special studies and indications of the Strategic Action Program
were expected to provide the necessary information for the protected areas'
identification. At the same time, some difficulties became perceptible, among
them difficulties in accessing some sites and delays in implementation of special
studies. As a consequence, some activities were abandoned and others
completed with important delays. Only at the end of the project did it become
possible.
Output 6.1
Creation of long-term research programs
Activities
Identification of areas needing further investigation is one of the tasks of the
special studies whose final results will be available in two months. Some of the
research priorities were outlined in the contributions of the studies to the
Strategic Action Program. The pollution monitoring program developed during the
special study is a part of the SAP. The delay in the activities implementation is
the consequence of the delay in special studies' launching.
Table XV. Output 6.1. Activities scheduled (S) and carried out ( C)
199
1996
1997
1998
1999
200
Activities
5
0
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
Identify areas needing
S
6.1.1
further work
C
Consolidate pollution
S
6.1.2
monitoring programme
C
Results
76
The whole results of the research program are not yet available. The proposals
included in the recently produced documents point at problems or questions of
particular interests important to better understanding the studied problems.
Conclusions
We can safely say that the proposed needs reflect the research priorities. What
should be done is to prioritize and integrate them into one systematic program
that will cover research, monitoring of the Lake's biodiversity and biodiversity
threats, Lake communities needs, and management interventions. The findings
of specific studies should promote Lake conservation and Lake management
sustainability.
The Commission that will be the custodian of the results of this output will be
operational in some yet undetermined future. In the meantime, Project
Management should tentatively designate the national institutions of the riparian
countries as leaders in the further realization of the research programs. It may as
well inform other potential research institutions about the identified priorities using
developed information channels such as the World Wide Web, published
newsletters and the contacts developed during the ongoing research.
Output 6.2
Management plans will be drawn up for the development of four underwater
reserves in Lake Tanganyika for the protection of biodiversity, the conservation of
commercial fish nursery grounds and the enhancement of tourism
Table XVI. Output 6.2. Activities scheduled (S) and carried out ( C)
199
1996
1997
1998
1999
200
Activities
5
0
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
Make ecological surveys of
S
6.2.1
proposed reserves
C
Define socio-economic
S
6.2.2
interests and reserves
C
Recommend reserves
S
6.2.3
boundaries
C
Produce management plans
S
6.2.4
C
The project did not yet produced a management plan for development of
underwater reserves that specifically address Output 6.2. However it proceeded
to scrutinized the Lake from the reserve creation standpoint as was requested by
77
the Project Document. The elements that have been taken into consideration
comprised:
Current ecological state
Environmental threat
Existence of adjacent terrestrial and aquatic parks
Existence of management capacity among existing institutions
Involvement of local communities and their acceptance
Political will and financial support
The results of the special studies indicate two ways of further development of
underwater areas for the Lake's biodiversity protection.
In its final report concerning management plans for the development of
underwater reserves, the project should outline the arguments advocating the
proposals, asses them and propose follow-up actions. The results of the studies
show that creation of underwater reserves is valid for biodiversity conservation,
an economical necessity for fishery sustainability, and a potential source of
supplementary revenue from tourism.
Output 6.3
Establish and manage new underwater components of reserves with trained
management. Both terrestrial and underwater components of the reserves will be
managed as one interdependent unit. In the existing protected areas that are
presently managed as parks, the project will work with the park managers to
determine the best options to achieve effective management and will provide
additional training.
78
Table XVII. Output 6.3. Activities scheduled (S) and carried out ( C)
199
1996
1997
1998
1999
200
Activities
5
0
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
Manage underwater reserve
S
6.3.1
at Nsumbu
C
Mange underwater reserve
S
6.3.2
at Mahali
C
Make recommendation to
S
6.3.3
SAP about future reserves
C
Develop community
S
6.3.4
participation programs
C
Develop user facilities
S
6.3.5
C
Produce underwater
S
6.3.6
guidebooks
C
Convene a workshop on
S
6.3.7
underwater reserves tourism
C
Prepare budgeting of
S
6.3.8
underwater reserves
C
Provide support for
S
6.3.9
management of reserves
C
The activities leading to creation of underwater reserves and underwater
components of the existing reserves were not realized, except analyses that have
lead to recommendations to the Strategic Action Program. To support the
decision the project advances the following arguments:
Effective protection of an aquatic reserve requires protection of adjacent
catchment areas. The activities in Output 6.3 required creation of underwater
reserves adjacent to Nsumbu and Mahale Parks with a third reserve to be
created in an unspecified location. However, these Parks (and two others) are
situated precisely in the catchment areas. Extension of the existing parks to the
Lake by creation of underwater reserves would require that hundreds of local
fishermen change their practices. The project felt that before recommending to
displace people, it should better understand the need for reserve creation.
Namely it should understand better what habitats the future reserve will include,
what species depend on them, and these species unique to the Lake. Only if
such understanding is developed would it be possible to assess the cost of the
associated socio-economic changes.
Surveying the waters adjacent to existing parks is a time-consuming process of
local capacity-building. Twenty-four technicians and researchers from
universities, fisheries departments, national parks and other institutions were
trained to dive. The fauna of the Lake is complex. The technicians should learn to
identify about 380 fish and 80 molluscs. The survey data should be introduced
into the general database and analyzed. All these activities were conducted in
the framework of the biodiversity special studies and the results were analyzed
in a regional workshop held in Kigoma in February and March 2000.
79
Thus, it is only now, after this long process of training and surveying that the
project may more confidently recommend creation of underwater parks. The final
project report will contain these recommendations.
Output 6.4
Mechanisms for ensuring the involvement and cooperation of local populations
Table XVIII. Output 6.4. Activities scheduled (S) and carried out ( C)
199
1996
1997
1998
1999
200
Activities
5
0
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
3
4
1
2
Form local consultative
S
6.4.1
groups of teachers
C
Give all support to teachers
S
6.4.2
C
Analyze scale and
S
6.4.3
distribution of benefits
C
80
Annex VI. Legal Component
PROJECT RAF/92/G32
POLLUTION CONTROL AND OTHER MEASURES
TO PROTECT BIODIVERSITY
IN LAKE TANGANYIKA
Final Project Evaluation
-Legal Component-
Evaluation Report by
Dr. Lothar Gündling
Attorney at law
Environmental Law Consultant
Sofienstr. 23
69115 Heidelberg
Germany
Phone +49 6221 16 28 47
Fax +49 6221 16 28 50
LGuendling@T-online.de
May 2000
81
Table of Contents
I.
Terms of Reference and evaluation approach
II.
Project concept, context and objectives
III.
Project implementation
(1) General implementation and management
a) Quality
b) Timeliness
(2) Management arrangements
(3) Institutional set-up / project
(4) Governments
(5) UNDP
(6) UNOPS
(7) Cooperation
IV.
Project impact
1. Achievements as provided in the project document
2. Awareness / ownership / commitment / support in the four countries
3. Policies and Strategies
4. Sector cooperation
V.
Conclusions and recommendations
Annexes
82
Terms of Reference and evaluation approach
The following evaluation of the legal component of the Project
RAF/92/G32/Pollution Control and Other Measures to Protect Biodiversity in Lake
Tanganyika (Lake Tanganyika Biodiversity Project or LTBP) has been
undertaken as part of the final project evaluation. Its TOR are included in the
TOR of the Final Evaluation which are reproduced in full text as Annex 1 to this
report.
The essential task of the legal evaluation report was to assess the procedure
used and result achieved during the legal component of the project. As the major
result of the legal component has been the preparation of a Draft Convention on
Lake Tanganyika, the evaluation focused on an assessment of the Draft
Convention as well as on the procedure used to prepare it. The Draft Convention
was assessed with regard to its relevance, efficiently, effectiveness, impact and
sustainability. The legal evaluation followed as closely as possible the format
given for the Final Evaluation generally, i.e. an attempt was made to answer the
questions raised with regard to:
-
project implementation,
-
project impact,
-
project design and
-
conclusions and recommendations.
As required by the TOR, relevant documents made available by UNOPS and
received at the 6th Steering Committee Meeting of the Project held in Lusaka,
Zambia on 4/5 May 2000 (see Annex 6 for documents reviewed). The 6th SCM
was attended during which a number of delegates from the four project countries
as well as other participants could be interviewed (see Annex 4 for list of persons
interviewed). No field visits were scheduled for the legal evaluation.
It should be taken into account that only a short time was allocated to the legal
evaluation (7 days altogether, including travel from Germany to Zambia,
attending 1 day of the Strategic Action Programme Meeting and 2 days of the 6th
SCM, and 1 day of report-writing). Consequently , it was not possible to interview
all persons who may have been involved in the process of developing the Draft
Convention; it was not possible either to interview all participants attending the
above mentioned meetings in Lusaka, or to study all documents which may have
been produced during the 5 year project.
However, the evaluator felt that the final and documentation base were sufficient
to carry out the legal evaluation and to submit the following report.
83
I.
Project concept, context and objectives
The project documents provided for the following legal component:
Immediate Objective 2
Formulation of a regional legal framework for cooperative management of the
lake environment.
Output 2.1
Analysis of existing laws and recommendations for harmonizing legislation and/or
new legislation placed in an international legislative framework. This work will be
done with the assistance of an expert in environmental legislation, particularly
with expertise in legislation relating to internationally shared lakes; and an expert
in environmental negotiation and conflict resolution.
Activity 2.1.1.
Existing laws for the protection of the lake environment and
other existing laws and regulations which impact the lake in
the
four countries will be reviewed.
Activity 2.1.2
Shortcomings in the implementation and enforcement of
existing
legislation will be identified.
Activity 2.1.3
A comparative analysis for discussion between the four
countries
with the view of defining compatible legislation and means to
harmonize realistic legislation will be prepared.
Activity 2.1.4
A basic framework of lake environment legislation for
consideration by the four countries will be recommended.
During the carrying out of the project it was decided to focus on activity 2.1.4
(recommendation of a basic framework of lake environment legislation for
consideration by the four countries). This basically meant a shift in emphasis:
The regional instrument to be prepared to guide the development of national
legislation was considered to be the major output of the legal component of the
project while the review and analysis of national legislation of the four project
countries, the comparative analysis as well as specific activities with regard to
environmental negotiations and conflict resolution were considered activities to
follow the preparation of the regional basic framework, i.e. activities for the
implementation phase (possible follow-up project).
The project also decided that the basic framework (activity 2.1.4) be a regional
legal instrument, i.e. a convention. Although a framework "for consideration by
the four project countries" can, in principle, also consist of a non-legal instrument
(recommendation, checklist, code of conduct, guidelines or the like), it was,
84
nonetheless, consistent to target a draft convention as the overall objective (in
the legal part of the project) is "a regional legal framework for cooperation
management of the lake environment".
It should be noted, however, that the decision to develop a draft convention had
particular implications. A project like the LTBP can develop a draft only which, as
the Legal Briefing Paper for SCM 6 rightly observes, serves as a working
document for the formal decisions to be taken at the political level. A regional
convention eventually requires the following steps:
v national consultations to involve, beyond the technical level, all other
interested and concerned institutions in government as well as NGOs and
other stakeholders;
v formal negotiations of the four states to agree on the final version of the text;
v adoption of the text of the draft convention;
v signing of the convention;
v ratification of the convention;
v implementation of the convention at both the regional level (in particular:
establishment of the mechanism) and the national level (in particular:
adoption of legal, regulatory and administrative measures to achieve the
objectives of the convention.
In short: A convention requires a complex procedure to be followed and,
consequently, the momentum which a project has to create must be considerably
high to achieve results. This must be taken into account when measuring the
impacts of the project. On the other hand: There can be no doubt that if the
project is successful in initiating a process to the conclusion of a regional
convention the achievements of the projects are of particular and outstanding
value.
II.
Project implementation
In the legal component of the project the following outputs were produced:
v review of relevant national legislation of the four project countries;
v Draft Convention on the Sustainable Management of Lake Tanganyika (Draft
No. 1-4; Explanatory Memorandum for Working Draft 1.2; Explanatory
Memorandum on drafting procedure and commentary, under preparation).
Although a budget line had been provided, the Project Document did not specify
activities on conflict resolution matters; consequently no specific activities were
carried out on conflict resolution.
However, it was correctly assumed that conflict resolution aspects will be taken
into account in the draft convention. Consequently, as the evaluator has been
85
informed, the budget for the conflict resolution component was merged with the
general budget for the legal activities.
This decision has been appropriate.
(1) General implementation and management
a) Quality:
The review of national legislation was undertaken as a desk study, the reason
being that limited funds were available which did not allow for missions to the four
project countries.
The review produced provided a valuable information base for the drafting of the
convention. It should be noted, however, that in-country reviews of national
legislation involving national legal experts, among other things:
v provide a better and easier information;
v generate interest for the project among local lawyers;
v mobilize support for the regional legal instruments, and
v provide training.
(See also recommendations below).
With regard to the Draft Convention:
Quality criteria are:
v Is Draft comprehensive and consistent, and does it reflect the international
"state of the art" of transboundary water resource management agreements?
v Does Draft respond to specific conditions of Lake Tanganyika management?
v Does Draft reflect consensus of the four riparian states?
All criteria must be taken into account at the same time.
The Draft Convention is a comprehensive and consistent document. It reflects
the standards of international treaty-making in transboundary water
management.
Improvements may still be possible, e.g. with regard to:
v integration of the basin approach in a way which is acceptable to the four
riparian countries;
v reference in the draft to status and delimitation problems;
v reference to other regional agreements and mechanisms;
v formal structure of the Draft.
86
However, it is an acceptable strategy that these activities and modifications be
left to the formal negotiation phase. During the negotiations, these improvement
which must also be supported by a consensus of the riparian states, can be
achieved.
The overall conclusion is that the Draft Convention is a good quality document.
b) Timeliness:
No formal work plan and time-schedule were provided. Given the overall time-
frame of the project the main legal outputs, i.e. review of national legislation and
Draft Convention were delivered in time.
(2) Management arrangements
Basically two options were available:
v drafting by drafting group of representatives of the four countries, facilitated
by international legal expert(s);
v drafting of the text by international legal expert(s) with involvement of national
experts (technical and legal).
The project has chosen the latter approach. Involvement of national
governmental experts was ensured through sub-regional and regional workshops
and in other ways (commenting on drafts by local lawyers). Lawyers involved
came from Ministries of Environment, Foreign Offices and / or Ministries of
Justice of the four project countries.
The approach chosen was appropriate; it was also a participatory procedure. The
objective, the consensus at national levels, therefore, has been achieved.
(3) Institutional set-up:
Information received allows for the conclusion that through the Regional Steering
Committee and the National Steering Committees and Working Groups the
riparian countries were finally involved in the preparation of the Draft Convention.
(4) Governments
The governments of the riparian states were fully involved. Lawyers from relevant
ministries made their contribution to the drafting process.
(5) UNDP
(6) UNOPS
87
(7) Cooperation among project partners:
On (5) to (7): Information gathered suggests that inputs by and cooperation
between projects partners were appropriate and satisfactory.
III.
Project impact
1. Achievements as provided in the Project Document:
Objective to formulate a regional legal framework has been achieved. A Draft
Convention has been submitted as a working document for formal political
negotiations, signature, ratification and implementation by the four riparian
countries. It is important to note that the Draft Convention reflects international
standard of law-making and, at the same time, is based on a consensus among
the four countries.
2. Awareness / ownership / commitment / support in the four countries
The Draft Convention has been prepared with the involvement of the national
governments of the four riparian states Burundi, Democratic Republic of Congo,
Tanzania and Zambia. The national governments through lawyers from various
concerned ministries provided the necessary feedback to the drafters. The
present Draft appears to be accepted by the governmental institutions involved in
the process. At the 6th Steering Committee Meeting it became clear that these
governmental institutions are prepared to mobilize more support for the Draft
Convention at the national levels through further consultations with other
concerned ministries and departments. An indicator of such commitment also is
the support of the Strategic Action Plan which provides for provisional institutional
arrangements at the regional level. It can, therefore, be concluded that the
governments will do all so that formal negotiations on the Draft Convention may
start very soon.
3. Policies and Strategies
Policies and strategies which may implement the Draft Convention at the national
level cannot be expected yet; the immediate steps to be taken are (a) further
consultations at national level and (b) negotiations among the four countries. The
consensus however, to the regional strategy, the SAP, can be taken as a
manifestation of the shared commitment of the four countries.
4. Sector cooperation:
In preparing the Draft Convention sectoral cooperation has taken place at
national levels, at least as far as Ministries of Environment, Ministries of Foreign
88
Affairs and Ministries of Justice are concerned. More sectoral cooperation in
intended for the immediate future (through upcoming national consultations).
IV.
Conclusions and recommendations:
The process of project implementation has been appropriate. More time and
financial means should, however, be allocated to the in-country review of national
legislation. It would help generate momentum for the main output in the legal
component: the draft regional convention.
The objectives of the legal component were achieved: a draft legal instrument as
basis for the next formal political steps. Even if some improvements of the text
appear to be possible, they can be achieved during the next phase; the text can
be optimized during the negotiations which have to begin now.
Momentum has been generated at the national level for the next steps through
fairly broad involvement of governmental institutions. These next steps are:
-
national consultations on the draft,
-
negotiations between the four countries,
-
signing of convention,
-
ratification of convention,
-
implementation through law reform in the four countries.
Crucial will be: national campaigns and workshops to further increase awareness
and sensibilization in government and society. Involvement of UNITAR's
Environmental Law Programme with specific courses on international fresh-water
management may help.
89
ANNEX 1
Itinerary of mission
May 1, 2000
Home office review of major documents received
May 1 / 2, 2000
Travel to Lusaka via London
May 2, 2000
Arrival at Lusaka
Briefing by Dr. Andrew Menz, PCU
Reception of up-dated documents
Review of documents
May 3, 2000
Attending SAP Meeting (3rd day)
Meetings with FAO, participants of SAP Meeting
Briefing meeting with Dr. Ingolf Schütz-Müller and Ms.
Margaret Chi
Preparatory meeting for Steering Committee Meeting
with
UNOPS (Dr. Ingolf Schütz-Müller, Margaret Chi), GEF
(Mr. David La Roche) and PCU (Dr. Andrew Menz, Dr.
Kelly West)
May 4, 2000
Attending Steering Committee Meeting 6
Meetings with participants, particularly lawyers from
participating countries
Exchange of views with legal consultant of the project
(Mr. Cormac Cullinan)
Coordination with Team Leader of Evaluation Team
(Mr. Stanislaw Manikowski)
May 5, 2000
Attending SCM (continued)
Final exchange of views with legal consultant
Further meetings with SCM participant
May 6-7, 2000
Return travel to Germany via Johannesburg
Commencing drafting report
May 7, 2000
Arrival in Germany
May 8-12, 2000
Finalizing Draft Report
90
ANNEX 2
List of persons met and interviewed
Project Coordination Unit
Dr. Andrew Menz
Dr. Kelly West
Project Legal Consultant
Mr. Cormac Cullinan
Burundi
Mr. Benoit Bihamiriza
Mr. Boniface Nyakageni
DRC
Mr. Mbusu Ngameni
Mr. Mapango Kemishanga
Dr. Nshombo Muderhwa
Tanzania
Mr. Rawson Yonazi
Prof. Hudson Nkotagu, Member of SAP Planning Group
Ms. Hawa Msham
Zambia
Mr. James Phiri
Mr. George M. Chitalu
Ms. Maureen Nsomi
Mr. Shadreck Yona Nsongela
UNOPS
Dr. Ingolf Schütz-Müller
Ms. Margaret Chi
GEF
Mr. David La Roche
91
Observers to SCM
Richard W. Fuller, FAO
George W. Ssentongo, CIFA
92
ANNEX 4
Summary of Field Visits
No Field Visits were scheduled for the legal component of the final evaluation
mission.
ANNEX 5
List of documents reviewed
-
Draft Convention on Lake Tanganyika (Drafts 1-4; Draft 4 entitled "The
Convention on the Sustainable Management of Lake Tanganyika");
-
Comments from UNEP on Draft Convention on Lake Tanganyika
(Comments on Draft No. 1);
-
Comments on the Convention on the Sustainable Management of Lake
Tanganyika (Working Draft No. 4)
-
Proceedings of the Regional Legal Workshop held in Arusha, Tanzania
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Legal Briefing Paper (for SCM);
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UNDP Project Document;
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The First Strategic Evaluation Review 1999, Draft Document;
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The Transboundary Diagnostic Analysis;
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Documents from Steering Committee Meeting 6.
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Document Outline
- Acknowledgements
- Abbreviations & Acronyms
- Summary
- Table of Contents
- Introduction
- Project Implementation
- General Implementation
- Management, Monitoring, and Backstopping
- Steering Committees and Working Groups - Institutitonal Set-up
- Inputs of the Governments
- Input of UNDP Country Offices to the Project
- Responsiveness of the Porject Implementation Group to Changes in the Environment
- Project Impact
- Project Achievements
- Objective 1
- Objective 2
- Objective 3
- Objective 4
- Objective 5
- Objective 6
- Other Impacts
- Level of Awareness
- Level of Commitment of Countries...
- Impact of Project on Policy
- Sector Cooperation
- Conclusions and Recommendations
- General Conclusions
- Objectives Realizations
- Lessons that can be drawn from the project experience
- Further Actions
- Annexes
- Terms of Reference
- Itinerary
- Documents Consulted
- List of Interviewed Persons
- Project Evaluation - Technical Issues
- Legal Component