PROJECT BRIEF
1. IDENTIFIERS:
PROJECT NUMBER:
PROJECT NAME:
DURATION:
IMPLEMENTING AGENCY:
EXECUTING AGENCIES:
REQUESTING COUNTRY:
ELIGIBILITY:
GEF FOCAL AREA:
BANGLADESH: BIODIVERSITY CONSERVATION IN THE
SUNDARBANS RESERVED FOREST
7 years
The World Bank/The Asian Development Bank
Government of Bangladesh
Forest Department, Sundarbans Management Agency
People’s Republic of Bangladesh
Ratified the CBD on May 3, 1994.
Biodiversity
GEF PROGRAMMING FRAMEWORK: OP 2 (Coastal, Marine, and Freshwater Ecosystems) and OP 3
(Forest Ecosystems)
2. SUMMARY: The project will develop and implement a sustainable management and biodiversity
conservation system for the Sundarbans region of Bangladesh on the basis of rational plans and the
participation of all key stakeholders, including: (i) priority biodiversity conservation initiatives and
improved forest management; (ii) increased institutional capacity to manage the Sundarbans Reserved
Forest (SRF); (iii) measures to reduce poverty of the 2-3 million people living in the impact zone
bordering the SRF through expanding economic opportunities, improved social infrastructure, improved
organization for resource-users, and facilitating stakeholder participation in resource management; and
(iv) adopting a supportive set of policies, especially related to the pricing for access to SRF resources.
3. COSTS AND FINANCING (MILLION US$):
GEF:
CO-FINANCING:
- Project:
12.2
- ADB:
40.0
- British Aid/Dutch Aid
10.0
- Govt. of Bangladesh:
10.0
- Nordic Development Fund
3.3
TOTAL PROJECT COST:
$ 75.5
million
million
million
million
million
million
4. OPERATIONAL FOCAL POINT ENDORSEMENT:
NAME: Mr. Idris Ali Bowan
TITLE: Secretary, Economics Affair Division, Ministry of
Finance, at the request (and copied to) Mr. Ahbab Ahmed,
Secretary, Ministry of Environment and Forests
DATE: January 7, 1998
5. IA CONTACT:
Robin Broadfield, GEF Operations Coordinator, Africa
and South Asia, (202)-473-4355; FAX (202)-522-3256
N:\ENVGC\COUNCIL\FEB98\BANGLA~1\SUNDARB.DOC
February 13, 1998 2:43 PM
Block 1: Project Description
1.
The Project Area
The project area covers the Sundarbans Reserved Forest (approximately 600,000 ha) and its surrounding
buffer zone1, the most diverse and richest natural resource area in the People’s Republic of Bangladesh
(the total project area is close to 1 million ha.). It is one of the largest continuous mangrove forest in the
world. The entire Sundarbans has been recognized as a Ramsar site by the Convention on Wetlands of
International Importance (Ramsar), and portions of it as World Heritage Sites by the World Heritage
Convention (UNESCO). It is the most important continuous remaining habitat in the world for the highly
endangered Bengal Tiger (Panthera tigris tigris). The SRF includes three Wildlife Sanctuaries in the
west, south and east (166,829 ha.) representing 28% of the SRF. Most of the human population within
the project area (2 million) lives in the buffer zone, and relies directly or indirectly on the SRF for
income and resources. While there are no permanent human settlements inside the SRF, a large number
of fishermen and other resource harvesters spend substantial portions of their lives inside the SRF, living
on boats or in seasonal and semi-permanent structures and camps along the SRF borders, including
islands. The Forest Department also has established permanent outposts for its staff and has limited
tourist accommodation within the SRF.
The SRF has been managed as a forest reserve since the 1870s by agencies preceding today’s Bangladesh
Forest Department. It thus represents one of the oldest continuously managed tropical forest ecosystems
on earth. The current Forest Department has full authority over the entire SRF. The presence of this
authority over such a long time has prevented the area from permanent human occupation, despite the
fact that Bangladesh is one of the most densely populated countries in the world. It has also allowed for
its present relatively good state of conservation.
The area, however, is under threat from a range of problems, most of which are caused by anthropogenic
factors. Population growth and the expansion of human activities are seriously affecting the overall
ecosystem as well as decimating specific animal populations. It has been possible through various
reports (the 1995 FAO/UNDP Integrated Resource Development of the Sundarbans Reserved Forest
Project and Management Plan, IRMP, in particular) to allocate priorities to each of the threats, the
importance of which vary with both time and space. The main concerns include: (i) legal or illegal overextraction of wood and most other natural resources which has depleted the resource base below
sustainability but not below recovery levels; (ii) habitat modifications because of dying trees and
increased permanency of fishing camps within the SRF; (iii) potential species extinctions; (iv) poaching;
(v) lack of community participation in sustainable resource use programs in the surrounding areas of high
population density; and (vi) lack of multisectoral management capacity.
These threats are exacerbated by the lack of trained human resources, finance and equipment to address
them. A new management system is required that has a broader base and community participatory
involvement, and with multisectoral expertise that allows an increase in revenue capture and a higher reinvestment in conservation. In its absence, there is no doubt that the World Heritage sites, the SRF itself,
and many of the species that live within these areas will effectively disappear within the next several
decades. A unique biodiversity resource of global significance could be lost forever.
The Government of Bangladesh, working with the Asian Development Bank (ADB), has developed a
project aimed at the biodiversity conservation of the Sundarbans which will redress the decline by a
program of policy reform and implementation. At the same time as improving the management system of
the SRF by reforming it into a multisectoral entity, support will be given to the local communities in the
buffer zone and those working within the Forest, including traditional user groups. This will ensure, first,
that they can be more actively involved in protected area and buffer zone management and, second, that
they will be able to manage their activities in a self-sufficient and sustainable manner.
1
The term buffer zone (sometimes also called the impact zone) here refers to those areas contiguous to the SRF.
2
There are already a number of related development projects underway in the buffer zone, or on a national
basis, which are helping address some of these threats. Most of these are pilot community-based wildlife
and natural resource management operations primarily in the communities surrounding the SRF.
Principal among these are the IRMP, the World Bank’s Forest Resources Management Plan (FRMP), and
the ADB’s Forestry Sector Project (1998-2005) and Coastal Greenbelt Project (1995-2002). All seek
remedies to the current problems of management and community participation (and in some cases overexploitation or natural resources) which are pertinent to this proposed project. None of these projects,
however, addresses the biodiversity of the Sundarbans from a holistic and ecosystemic management
perspective.
2.
Project Development Objectives
The development objective of the overall Biodiversity Conservation in the Sundarbans Reserved Forest
Project (BCSRFP) is to enhance rural livelihoods through sustainable natural resource management and
biodiversity conservation.
The specific objective of the BCSRFP is to conserve the biodiversity of the Sundarbans ecosystem and
ensure the sustainability of its productive contribution to society. The project will establish an effective
system for the participatory and sustainable management of the ecosystems of the SRF, while reducing
poverty, improving living standards, promoting sustainable development, and increasing organizational
capacity in the buffer zone. Failure to take decisive and effective action will result in further degradation
of the natural resource base with the consequent loss of biodiversity, and increase in extreme poverty .
The global environmental objective of the project is to ensure the long-term conservation of the rich
biodiversity of the Sundarbans region. This will be accomplished through: (a) consolidation of in-situ
conservation of biodiversity within the highest priority conservation areas of the forest; (b) sustainable
ecosystem management of the overall SRF and its buffer zone (c) community participation in sustainable
resource use as a way to reduce pressure upon sensitive areas and core protection areas (i.e., wildlife
sanctuaries); (d) development of an ecotourism industry to increase the economic importance of
conserving the SRF; and (e) increased awareness and community participation in biodiversity
conservation.
The operational objectives of the BCSRFP are to achieve, within 7 years, the development of a
sustainable management and biodiversity conservation system for all SRF resources, on the basis of
rational plans and the participation of all key stakeholders. The proposed Project area includes the SRF
itself and the surrounding 15 thanas located within 0-20 km outside the SRF border. The Project will
establish a participative system for the conservation and sustainable management of the SRF as a multidimensional resource area. An integrated approach will be taken to (i) biodiversity conservation and
improved forest management; (ii) improved institutional capacity to manage the SRF itself; (iii) reducing
the poverty level of the 2-3 million people living in the buffer zone bordering the SRF through expanding
economic opportunities, improved social infrastructure, improved organization for resource-users, and
facilitating stakeholder participation in resource management; and (iv) adopting a supportive set of
policies, especially those regarding charging economic prices for access to SRF resources.
The above objectives will be implemented through a comprehensive project financed by the Asian
Development Bank, the Government of Bangladesh, the Nordic Development Fund, and bilateral
agencies. Incremental costs to address global biodiversity issues will be financed by the GEF. The cost of
the entire project would be around $75.5 million; the GEF incremental-cost financing amounts to
approximately $12.2 million.
The operational objectives for which GEF support is requested are to: (a) consolidate and strengthen
the management of the three wildlife sanctuaries within the SRF through the implementation of the
3
management plans prepared under the FRMP; and through the development of financial-sharing
mechanisms for tourism-generated income (e.g., entrance fees, taxes, etc.) and other income sources for
long-term protected area management; (b) support biodiversity conservation throughout the SRF and its
buffer zone through the incorporation of biodiversity conservation considerations in sustainable
productive activities (forestry and fisheries); (c) increase support for biodiversity conservation by local
communities through participatory environmental education and community awareness activities; and (d)
establish biodiversity monitoring through a project monitoring and evaluation (M&E) system, and
establish an independent international ecosystem monitoring system.
3.
Biodiversity Conservation in the Sundarbans Reserved Forest Project
The entire (ca. $75.5 million) project includes the following components:
A.
Ensuring effective management of the SRF, by the establishment of (a) within the Forest
Department, a Sundarbans Management Agency (SMA) staffed by well qualified professionals, and a
Certification and Inspection Unit to verify transactions and reduce illegal operations; (b) a Sundarbans
Stewardship Commission (SSC) to provide long term vision and planning oversight, and comprising
distinguished citizens serving on a voluntary basis and supported by a small secretariat; (c) a Stakeholder
Advisory Council; and (d) selective resource monitoring by an international nongovermental organization
(NGO) specializing in natural resource and biodiversity conservation. A Technical Advisory Group (TAG)
will support the development of conservation planning and sustainable development.
B.
Biodiversity conservation and sustainable resource management through (a) improving the
capacity within the Forest Department to effectively manage the SRF by enforcing regulations, improving
cooperation with users, improving planning, and operational activities such as restocking, assisted natural
regeneration, forest thinning, etc.; (b) enhancing the capacity in the Forest Department to plan and
sustainably manage the fisheries and aquatic resources in the waters of the SRF; (c) contracting for
hydrological studies of the waters of the SRF and its upstream catchments for long term pollution
monitoring and control; and (d) managing the wildlife sanctuaries based on scientific information and
supported by appropriate legislation, baseline studies and implementation of management plans.
C.
Social and economic development of the impact zone, through planned social investments,
improved access to social services including education regarding the SRF, and associated NGO operations
to support poverty reduction, facilitate primary stakeholder participation in management and decision
making through local community organizations (LCOs), and micro-credit to (a) promote alternative income
generation activities in the impact zone bordering the SRF, and (b) encourage organized user groups to
exploit SRF resources on a sustainable basis. Emphasis will be placed on achieving greater awareness of the
need for sustainable exploitation of the SRF, and on ways of linking conservation to local economic
development.
D.
Ecotourism development and marketing, involving (a) construction of basic public
infrastructure (e.g. an educational center in Khulna and information facilities in other selected sites in the
SRF, jetties, observation towers and walkways) to support private sector ecotourism; (b) training of related
personnel to provide services acceptable to international and domestic tourists; (c) development of
community awareness of ecotourism opportunities and the potential impacts of ecotourism; and (d)
developing a regulatory framework and marketing strategy within Government and the private sector to
promote the Sundarbans as an ecotourism destination.
Preparation of this overall (ca. $75.5 million) project was supported through a technical assistance grant
to the Government of Bangladesh provided by the Asian Development Bank. A substantial amount of
background information and institutional diagnoses built upon the FAO/UNDP IRMP, and the World
Bank’s FRMP. Overall, the project will ensure the long-term holistic and ecosystemic management of the
Sundarbans and its surrounding buffer zone.
4
ADB and bilateral financing will address the root causes of biodiversity loss by concentrating on
sustainable natural resource management activities, ecotourism, and institutional strengthening. The
emphasis of the resource management activities will be in areas outside the SRF where 95% of the
population having an impact on the project area live. These components concentrate on activities with
direct local and national benefits and support an ecosystem management approach to the entire SRF and
its surrounding buffer zone.
Although necessary, these activities are not sufficient to ensure the long-term conservation of globally
important biodiversity in the Sundarbans. GEF assistance therefore will focus on those components that
will either directly address these issues; or that will leverage other project components to ensure holistic
ecosystem and biodiversity conservation, as described below:
4.
The Biodiversity Conservation in the Sundarbans Protected Forest Project -- Details of
GEF Financing
Component
Indicative Costs
(U.S.$ million)
% of
total
0.4
3.2%
6.2
50.8%
0.5
4.1%
0.5
0.5
4.1%
4.1%
0.5
1.5
4.1%
12.3%
1. Project M&E system (biodiversity components)
2. Independent international ecosystem monitoring system
0.7
0.8
5.7%
6.5%
Contingency
0.6
4.9%
TOTAL
12.2
100%
A. Consolidation and Strengthening of Wildlife Sanctuaries
1. Professional and participatory stakeholder review of management
plans and government adoption
2. Implementation of management plans for the 3 wildlife sanctuaries
within the SRF (5 years)
3. Development of financial-sharing mechanisms for tourismgenerated income for long-term protected area management
B. Incorporation of biodiversity conservation consideration within
sustainable productive activities (forestry and fisheries)
1. Biodiversity and Forestry
2. Biodiversity and Fisheries
C. Participatory Environmental Education and Community Awareness
1. Development of materials and staff training
2. Implementation
D. Biodiversity Monitoring and Evaluation
5.
The GEF Components
A.
Consolidation and Strengthening of Wildlife Sanctuaries: This component will ensure the
long-term protection of the three wildlife sanctuaries within the SRF. These sanctuaries were recently
5
expanded from 5% to approximately 28% of the total SRF area with support through the World Bank’s
FRMP project. The FRMP also supported the development of draft management plans for the 3 Wildlife
Sanctuaries and provided funds to establish minimal initial infrastructure for them.
The entire SRF, and to a lesser extent the 3 Wildlife Sanctuaries, have for a long time been the source of
goods and benefits for the well-being of a large number of needy people in the region. The ecological
integrity of these Wildlife Sanctuaries is under serious threat because of unsustainable levels of fishing,
gathering forest products such as golpatta (palm fronds), hantal (used in construction), timber, firewood,
tan bark, honey, wax, thatch grasses, and gathering mollusks. Until now, their protection has not been
effective because of (i) lack of manpower and technical capability, (ii) lack of field facilities and
equipment, (iii) insufficient information and education campaigns, (iv) absence of community
participation, (v) inadequate logistics for law enforcement and community awareness activities, and (vi)
lack of clear management guidelines. The GEF will finance the following components:
A1.
Participatory Stakeholder Review of Management Plans and their Government Adoption.
The draft management plans include zoning, protected area management, infrastructure development, and
community participation activities. These plans need to be professionally reviewed by the project team
to ensure that activities are complementary and in line with the overall philosophy of the entire project.
The plans will be discussed with local and national stakeholders through a series of participatory
meetings and workshops. This consultation process will ensure meaningful, direct participation by local
stakeholders in the definition of activities, and will increase their ownership of the Project. The Forest
Department, which is the agency in charge of the management of the entire SRF, will approve these plans
after the consultative process ($0.4M).
A2.
Implementation of Management Plans for the 3 Wildlife Sanctuaries (5 Years). Once the
plans have been adopted by the Government, they will be implemented over a period of 5 years.
Implementation activities in the current plans are designed to ensure a high degree of protection, patrols,
ranger training, equipment, signs, infrastructure, observation towers, research, specific wildlife
management activities, etc. Significant resources will go towards activities with long-term impacts, such
as infrastructure development and personnel training ($6.2M).
A3.
Development of Financial-Sharing Mechanisms of Tourism-Generated Income for longterm Protected Area Management. In order for the GEF investment to be financially sustainable, it is
important to develop long-term financial support for the Wildlife Sanctuaries after the GEF grant ends.
Specific project components financed by the ADB will support the development of an ecotourism
industry for the Sundarbans. Feasibility studies demonstrate the world-level potential of the Sundarbans
to attract significant numbers of tourists. Estimates developed during project preparation suggest that
tourism to the Sundarbans through the Project investments may increase by up to 35% per year over the
Project period, allowing for strong demand from domestic tourists and students.
Since this industry will be dependent upon the ecological health and biodiversity of the Sundarbans, it is
expected that the industry itself must help to pay for its conservation. The project will support the
development of financial-sharing mechanisms to transfer tourism-generated resources to pay for the
recurrent costs of protected area management. It is expected that after the 5 years of GEF support for the
protected area management component, enough resources will be generated through tourism to pay for
the recurring costs and the maintenance of the infrastructure investments. Potential mechanisms to be
explored include the establishment of entrance fees or taxes paid by national and international tour
operators. Project preparation suggests an increase in entrance fees from a current of $0.20 to $1.0 for
domestic tourists; and from $1.25 to $12.50 for foreign tourists. Further and more precise economic
analyses will be performed during implementation, as well as the development of specific legislation and
training for the implementation of this mechanism ($0.5M).
B.
Incorporation of Biodiversity Conservation Considerations within Sustainable Productive
6
Activities (Forestry and Fisheries): ADB will finance fisheries and water resources management, as
well as forest and non-wood forest products management. These activities will take place both within the
SRF and in the surrounding buffer zone, but outside the Wildlife Sanctuaries. It is expected that these
activities will ensure the long-term sustainable management of these resources and reverse the serious
trends towards resource depletion in the project area. In addition, it is expected that these activities will
help reduce pressure upon the Wildlife Sanctuaries and other sensitive ecological areas by providing
alternative and sustainable ways of living for people using these resources.
Although these activities are necessary to ensure sustainable ecosystem management, they are not
sufficient to ensure the conservation of globally significant biodiversity. Towards this end, the GEF will
finance technical assistance to mainstream biodiversity conservation within forest and fisheries
management, through:
B1.
Forests and Non-Wood Forest Products Management. Under this component, ADB finance
will ensure sustainable levels of resource management, replanting, and conservation of forest cover. The
GEF will fund the incremental costs associated with incorporation of biodiversity considerations within
these forestry activities, including research on sensitive species and ways to minimize impacts upon
them; and development of sustainable use of biodiversity resources ($0.5M).
B2.
Fisheries and Water Resources Management. Similarly, ADB financing will enhance
understanding of the functioning of the aquatic resources of the Sundarbans, as well as establish a
fisheries and aquatic resources management planning and monitoring division within the Sundarbans
Management Agency. The GEF will provide funds to conserve aquatic biodiversity by promoting fishing
practices that reduce the current indiscriminate waste of aquatic resources (e.g., use of inadequate fishing
gear, disposal of non-target species, indiscriminate harvesting of gravid and immature crabs and other
species, etc.) ($0.5M).
C.
Participatory Environmental Education and Community Awareness: For the above
activities to succeed, it is necessary for the local population to both understand and benefit from
biodiversity conservation. The danger that the wild tiger populations in Sundarbans present to rural
people is a classic example of the conflicts that sometimes exist between wildlife and human populations.
For a change of attitude to occur, it is important for people to be aware of the dangers, as well as to
understand that conserving these species will be to their own long-term benefit. These benefits will be
realized through improved natural resource management in the entire project area, including the support
for the development of an ecotourism industry.
The ADB will finance direct community participation in natural resource management by providing
technical assistance and micro-credit. The GEF component will build upon this base and help implement
environmental education and community awareness programs, with emphasis on biodiversity. It will
include two steps:
C1.
Development of Materials and Staff Training. Support will be sought from local and
international NGOs with experience in this issue. Materials and methods will be developed that are
appropriate to the local communities and needs. The principle constituencies that need addressing are
women and children, through the Vulnerable Group Development (VGD); tourists and tourist operators;
and Forest Department personnel ($0.5M).
C2.
Implementation. Environmental education will be implemented in a participatory manner,
incorporating a two-way information flow as a mechanism to maintain a current understanding of
people’s needs and perceptions. The information thus gathered will be used to provide feedback to all
project implementation units for adjustments to be made as needed. Environmental education activities
will be contracted-out to NGOs with regards to gender issues and tourism, although they will be
monitored by TAG and Sundarbans Management Agency (SMA, see below). Technical assistance
7
training will be executed by TAG ($1.5M).
D.
Biodiversity Monitoring and Evaluation: Monitoring and Evaluation is a critical component
for a project of this magnitude and importance. Therefore, monitoring and evaluation activities will take
place at two, independent levels:
D1.
Project Monitoring and Evaluation System (M&E): The M&E team will be responsible for
data collection from the executing agencies and analysis and the presentation of project progress to the
Annual Plan preparation and the six monthly review meetings. Project monitoring will take place through
two inter-related processes, input monitoring and output/impact monitoring. Quantitative data will be
sought from the executing agencies and beneficiary groups. The report will describe the reasons for any
significant departure from project targets and suggest corrective measures. During the course of the
project it is intended that three reviews will make a significant contribution to the post-evaluation of the
project, including a first phase review (third year of the project); second phase review (first half of the
sixth year of the project); and a completion report. The GEF will finance those biodiversity monitoring
aspects as part of the overall M&E system ($0.7M).
D2.
Independent International Ecosystem Monitoring System. An NGO of international repute
and without direct participation in project execution activities will be chosen to implement this
component. It would submit an independent annual report on the status of management of the SRF and its
biodiversity. The internationally recognized NGO would be recruited by the SMA but would report to the
SSC.
The international NGO would be expected to undertake an audit that assesses resource use for all major
resources, the extent of illegal offtake, numbers of people dependent upon different resources, suitability
of resource extraction methods, integrity of the managers of the resource and degree of participation of
resource users over resource management decisions. It is expected that a team of two international and
three local experts would conduct a performance audit once every year with each audit visit expected to
take 1 month.
This monitoring exercise will take place at 2 levels. First, from an overall ecosystem perspective, the
current baseline situation will be determined using pre-existing aerial photography and satellite imagery,
and historic time-series data and remote sensing images will be used to document the changes and trends
in vegetation cover and composition that have occurred over the past several decades. Second, key
indicator species will be chosen to provide an on-the-ground picture about the status of the biodiversity
of the Sundarbans.
Especial attention will be placed to better understand the causes and consequences of the observed “top
die-out” of some mangrove species and the potential relation to changes in water flows resulting from
diversions upstream. Aereal photography and satelite imagery will be collected to develop a long-term
picture that will be correlated with changes in salinity and water flows. If necessary, corrective measures
will be proposed based on these findings. ($0.8M).
6.
Global and National Benefits and Target Populations
Globally, the project will make a significant contribution to the conservation and sustainable
management of over 1 million ha of threatened and rapidly deteriorating Asian mangrove forests and the
biodiversity they contain. This ecosystem represents one of the largest contiguous area of mangrove
forest left relatively intact in the world, home to a significant number of threatened and endangered
species. It is the most important remaining contiguous habitat in the world for the highly endangered
Royal Bengal Tiger (Panthera tigris tigris).
Forty five species indigenous to the Sundarbans are endangered (2 amphibian, 14 reptiles, 25 birds and 5
8
mammals). One species of turtle is endemic to the SRF. A total of 245 genera and 334 plant species have
been recorded. Detailed long-term studies for the most important species are absent but recent reports
(most notably IRMP UNDP/FAO and FRMP 3/1998 WB) have provided a baseline which leaves little
doubt of its global significance. In addition to important plant, invertebrate and reptile species, the area
holds significant populations of the Royal Bengal Tiger, deer, wild boar, and dolphins which are rapidly
falling. The local extinction of at least five, possibly six, spectacular mammal species, Javan rhinoceros
Rhinoceros sondaicus, one-horned rhinoceros Rhinoceros unicornis, wild buffalo Bubalus bubalis,
swamp deer Cervus duvaucali, gaur Bos gaurus, and hog deer Axis porcinus, has been reported in recent
times.
On a national level, the project will result in a significant contribution to short and long term objectives
of the national program for conservation and sustainable management of protected areas in Bangladesh.
Specifically, it will result in improved management and conservation of 1 million ha of protected areas,
wildlife management areas, managed forest and its buffer zone, and will ensure the conservation of
regionally and nationally important ecosystems and habitats.
The capacity of national technical personnel and local populations and local organizations will increase
as they acquire skills and knowledge to enable them to manage the natural resources of the area in a
sustainable manner. Moreover the general population of the country will be made aware of the
importance of wildlife and biodiversity protection. This will be an important contribution to the
implementation of the national plans.
Through greater involvement in park management the local population will become more involved,
financially and personally, in the activities of the protected areas next to which they live, as decisioninfluencers, revenue sharers and employees. They will also receive more direct and indirect benefits from
the SRF, its Wildlife Sanctuaries and the buffer zone through employment and receipt of revenue from
increasingly successful management, ecotourism, sustainable extraction, and other managed activities.
Their quality of life would be improved through the implementation of community-based rural
development activities, which would include socio-economic and community investments as well as
activities designed to improve natural resource management to ensure a stable base for agricultural
production as well as natural resource harvesting.
Current estimates suggest that in 15 thanas contiguous to the SRF there are approximately 2-3 million
people, of which the majority live close to the SRF, and about 300,000 use SRF resources directly for
their family’s support. A temporary reduction in subsistence gathering and harvesting, and profits from
cash harvesting, is expected in the short term, but improved resources management, higher royalties,
increased internal and external investment, and community programs resulting from this proposed project
will more than compensate for these losses in the long term.
7.
Institutional and Implementation Arrangements
The analysis undertaken in preparing this Project has underscored the importance of institutional change
and reform. Although the existing administrative system has served for more than a century, the fact is
that many of the issues undermining the sustainability of the SRF ecosystem are either institutional in
nature or have an important institutional element to them. In this rapidly changing world, the
management of the SRF must be substantially modified and improved to meet the new challenges and
threats, and institutional change must be a development objective of the Project, and not just the means to
an end. Consequently, it is necessary to establish and maintain an institutional framework and build up
the human resources capacity which would ensure conservation of the SRF and its biodiversity, and
provide a fair return to the owners of the resource - the people of Bangladesh in general, and poor
residents of the buffer zone in particular.
Administration and management of the Sundarbans has been explicitly conceived as a mechanism to
9
guide the transition from the unisectoral, single agency framework of the past to the multisectoral
institution that would oversee the integrated natural resources management approach that would be
essential to the sustainability of the SRF ecosystem. This can be accomplished by focusing on the
institutional framework to purposefully build capabilities in a relatively flexible and incremental manner,
ensuring good fit among the several pieces. Specific measures to monitor progress in achieving
functionality and reaching defined institutional benchmarks would be built into the overall effort.
The strategy for administration and management which encompasses institutional capacity building has
been developed on the basis of an analysis of the situation, the imperatives of sound administration and
management of a multi-dimensional resource, and participation, transparency, awareness, accountability,
conservation of biodiversity, price signals and, over all, simplicity.
It is clear that a different administration and management system would be needed: one which is small,
efficient, effective, solely dedicated to the conservation and management of the SRF, and accountable to
its stakeholders. The proposed system comprises the following elements: a Sundarbans Management
Agency (SMA); a Sundarbans Stewardship Commission (SSC); a Stakeholders Advisory Council (SAC);
an International Monitoring and Evaluation Unit (IME); and a Certification and Investigation Unit (CIU).
The Forest Department of the Ministry of Environment and Forests (MOEF) would be the Executing
Agency (EA) for the Project. The Project would engage a number of existing organizations and
institutions. The administration and management of the Sundarbans in a sustainable and multisectoral
manner must be a permanent arrangement, and not a temporary stop-gap measure for the life of the
Project. This will require certain reforms and changes in the institutional structure, systems and
procedures, staffing levels and patterns, and the inter-relationships between various units that constitute
the proposed organization for administration and management, and those that are on the outside but have
a bearing on the sustainable management of the Sundarbans’ resources. These reforms and changes
would include: devolution of authority to appropriate levels; better balance in staffing, both from a
resource base as well as a skills perspective; localized authority, responsibility, capacity and
accountability; integration of new technical skills in a multi-sectoral planning and operational approach;
elimination of potential conflicts of interest and organizational checks and balances; and added staff
motivation for effectiveness and efficiency.
The Sundarbans Management Agency (SMA) would be headed by a Chief Executive Officer (CEO), to be
recruited internationally, with preference given to a Bangladeshi citizen. The core capability of the SMA
would reside with the CEO and an Integrated Resource Management Policy and Programming Group
(IRMPPG), made up of the heads of the four Operational Circles. In addition, three Divisions primarily
oriented to support service would also operate under the direct authority and supervision of the CEO,
including: Liaison, Extension and Education Division; Revenue Division; Administration, Finance and
Support Services Division; and Database Management, Monitoring and Research Operations Division.
Stakeholder Advisory Council (SAC). In order to provide an opportunity for institutionalizing the present
informal dialogue with the many stakeholders who currently have an interest in the Sundarbans to ensure
development of a genuinely participatory management process, a Stakeholder Advisory Council (SAC)
would be established. The purpose of the SAC would be to provide an effective and representative forum
to facilitates participation and transparency in resource use and management policy.
Through the SAC, the Project would establish a two-way dialogue essential to finding measures that
would be acceptable among different groups for putting in place a regulatory framework. Dialogue about
the reasons for and the fairness of regulations, their probable impact on offtake and income, the means to
applying them, and as a recourse for fielding complaints and suggestions would go a long way to ensure a
level of transparency regarding conservation norms essential to their effective application. At the
aggregated level, by constituting an SAC, neither particular groups nor individuals would have to feel
daunted about presenting their case. The SAC would also be officially recognized and encouraged to
10
present their concerted views on the management of the SRF to the SSC once a year during one of its
regular meetings.
Certification and Investigation Unit (CIU). The purpose of the CIU would be to provide a second
independent tier of checks and balances on the system. Accordingly, a suitably qualified national
institution or an NGO would be retained under the authority of the SSC to independently certify resource
extraction from the SRF (please refer to M&E section). These activities would form the basis for
establishing a national level unit to provide similar services within the ambit of the Forest Department
nationwide. The responsibility of the CIU, operating independently within the SRF and reporting to the
Secretariat of the SSC, would be to check on the issuance of permits, the verification of revenue
collections the adherence to utilization prescriptions, and the independent monitoring of biodiversity.
The buffer zone lies outside the border of the SRF, and therefore is not within the jurisdiction of the
Forest Department. The Bangladesh Rural Development Board (BRDB) will be the implementing
agency for the Project with respect to activities in support of social infrastructure and social services, and
economic development in the buffer zoned. BRDB, at the thana level, in close collaboration with
participating NGOs, will ensure the coordination of Project-financed activities. Selected NGOs will be
largely responsible for implementing community development programs and for promoting sustainable
economic development, supported by the Government. Close working relationships between the BRDB,
the SMA and the NGOs will be necessary. The Palli Karma-Sahayak Foundation (PKSF) will be the
implementing agency for micro-credit activities under the Project.
In summary, the project will be implemented through a Sundarbans Management Agency which will be
created under the overall project and organized as described above. Most GEF funds will be executed
through this Agency, with sub-contracts to NGOs for some of the monitoring and evaluation aspects and
the environmental education activities.
Block 2: Project Rationale
8.
CAS Objectives Supported by the Project
The World Bank has assisted the forestry sector in Bangladesh since 1980, including a Mangrove
Afforestation Project; the Second Forestry Project; and the FRMP. The most recent World Bank
initiative is the Coastal Embankment Rehabilitation Project. This project supports CAS objectives of
poverty alleviation and improved natural resource management.
The Asian Development Bank’s assistance to the forestry sector in Bangladesh started in December 1981
with a loan for the Community Forestry Project (CFP).2 This project extended social forestry activities in
23 districts in the north and northwestern parts of the country. In March 1989, the ADB approved the
Upazila (Thana) Afforestation and Nursery Development Project (UANDP).3 Following the awareness
raised under CFP, the UANDP aimed at arresting depletion of the plantations and natural forests of the
central and northern region of the country. Under the UANDP, a significant portion of available
government land and homestead land was brought under tree cover using participatory and benefitsharing approaches. The UANDP demonstrated the effectiveness of participatory approaches to
protection and management of sal forests and establishment of block plantations (woodlots) in forests
that were severely degraded and encroached upon. The UANDP also strengthened FD’s institutional
capacity and provided training in seedling production and tree planting and maintenance to a large
number of field staff, NGOs, and participants.
2
Loan No. 555-BAN: Community Forestry Project, for $11 million, approved on 3 December 1981 and closed on 20 July
1988.
3
Loan No. 0956-BAN: Upazila Afforestation and Nursery Development Project, for $43.5 million, approved in March 1989
and closed on 31 December 1995.
11
The Coastal Greenbelt Project (CGP)4 aims to promote tree planting to increase vegetative cover in
coastal areas through social forestry. Other components include nursery development, seedling
distribution, public awareness, training, consultant services, facilities, and equipment. Attached to the
CGP is a grant to finance advisory TA5 aimed at institutional strengthening of social forestry, including
extension, communication, and integration of FD’s management information and monitoring and
evaluation systems.
9.
Rationale for GEF Support
If the current situation continues, the Sundarbans will deteriorate with the consequent loss of ecosystem
integrity and globally important biodiversity. The fact that 5 or 6 large mammal species have already
been extirpated from the Sundarbans in recent decades demonstrates the fragility of the ecosystem and
the danger to the remaining species. Of particular concern is the long-term survival of the Bengal Tiger.
The project addresses a globally important ecosystem under serious threat. Although clearly committed
to the conservation of the globally important biodiversity of the area, the main priority of the
Government of Bangladesh is the reduction of rural poverty and the development of alternative sources
of income for the 2 million people that live in its buffer zone. In addition, it is in the best national interest
to attain sustainable levels of natural resource utilization within the SRF. If this natural resource base
continues to deteriorate, poverty and social conflict will increase.
The GEF will support activities that are incremental to these objectives. Insufficient levels of staffing and
institutional weakness do not allow for effective ecosystem management with global biodiversity
objectives in mind. GEF support will enable the Government of Bangladesh to strengthen its capacity for
biodiversity management over the long term. It will ensure the consolidation and protection of the 3
Wildlife Sanctuaries which are the highest priorities from a biodiversity perspective. These sanctuaries
will be used as strict nature reserves where the only allowable activities are scientific research and
ecotourism under controlled conditions.
Outside the 3 Wildlife Sanctuaries but within the SRF, GEF support will help ensure that biodiversity
considerations are incorporated within sustainable forestry and fisheries activities and plans. In addition,
it will support full participation of all stakeholders in the dialogue to determine the best configuration of
management that ensures biodiversity conservation while maximizing sustainable resource extraction.
GEF will also cover the costs associated with environmental education and community awareness
activities throughout the project area, including the sanctuaries, the rest of the SRF, and the buffer zone.
Finally, GEF will support a monitoring and evaluation system that operates at two independent levels:
project-specific and independent area-specific.
Despite the clear commitment of the Government of Bangladesh, it is unlikely that the current threats to
the area can be effectively addressed without a direct GEF grant.
10.
GEF Operational Strategy and Program Objectives Addressed by the Project
The project directly addresses guidance from the Biodiversity Convention and the COPs, including the
promotion of conservation and sustainable use of biological diversity in vulnerable areas. It responds to
COP2 guidance through financing of measures for conservation and sustainable use and in-situ
conservation. The second COP also reaffirmed the importance of the ecosystem approach, which is the
primary framework under which this project was designed.
4
Loan No. 1353-BAN: Coastal Greenbelt Project, for $23.4 million, approved on 2 March 1995.
5
TA No. 2304-BAN: Strengthening Social Forestry in the Coastal Region, for $1.3 million, approved on 2 March 1995.
12
The project addresses GEF Operational Programs Number 2 (Coastal, Marine, and Freshwater
Ecosystems), and OP3 (Forests). It directly addresses both OPs objectives (conservation and sustainable
use), including in-situ protection of primary growth and ecologically mature secondary forest
ecosystems, establishing and strengthening systems of conservation areas, and having a primary focus on
tropical ecosystems in areas at risk. It supports sustainable use objectives through combining production,
socio-economic, and biodiversity goals, including the implementation of a landscape approach that
allows for a range of uses from strict protection through various forms of multiple use.
The project explicitly addresses all GEF outputs under OPs 2 and 3, i.e., protected area strengthening,
threat removal, sectoral integration, sustainable use, and institutional strengthening.
11.
Main Sector Issues and Government Strategy
Key issues in the forestry sector are: (i) inadequate research directed at conservation and sustainable use of
species and ecosystems, (ii) improvement of family incomes and security (particularly women), (iii)
reinforcement of coherent and consistent policy, reducing the antagonism between the behavior of forest
guards and local communities, (iv) obtaining real market value for profit and reinvestment, (v) enhance
career opportunities and incentives for staff, (vi) improved national capacity and management system for
multisectoral management enabling existing responsible agencies to be able to cope with the current and
future needs, (vii) lack of necessary legislation and administrative reform to effect the proposed new SMA
and to establish the SSC, and (viii) inadequate stakeholder participation.
After several years of delay, and numerous major reports voicing their unanimous concerns, the
Government has been stimulated into serious consideration of the future management and potential of the
Sundarbans. Current Government strategy, which is still evolving, is moving positively towards an overhaul
of the existing responsible agency to one with multisectoral capacity. (Please refer to section 7 for a full
description of these issues).
These sector issues will be addressed primarily through the baseline activities of the overall project. In
addition, the stratified approach of the project supports these objectives, including (i) total protection for the
Sanctuaries deep in the SRF (ii) partial but managed protection for the wider SRF (iii) total control over
natural resource harvesting (iv) community development in the buffer zone and (v) a participatory approach
to overall management with a dedicated specialized agency under the highest reaches of Government.
The Biodiversity Conservation of the Sundarbans project has been preceded by a number of preliminary
fact-finding, PPTA, loan fact-finding and other preparatory missions apart from technical assistance and
other projects described earlier, both from ADB and the World Bank.
12.
Project Alternatives Considered and Reasons for Rejection
There are currently no proven or foreseeable alternative strategies for sustainable biodiversity
management of the Sundarbans, other than species translocation and abandoning the SRF to steady
decline. This will only forestall the extinction of those species as without effective and active reintroduction programs most existing facilities worldwide have had little success and in-country facilities
are non-existent.
The absence of multisectoral management in the Sundarbans has been a major factor in its deterioration
as well as the lack of sufficient re-investment. Alternatives to the need for these two developments are
difficult to conceive and in their continued absence the Sundarbans will continue to decline.
13.
Major Related Projects Financed by the Bank and/or Other Development Agencies
13
(Completed, Ongoing And Planned)
World Bank and Asian Development Bank activities are described in section 8 above. Closely
coordinated with these activities, UNDP and FAO have also provided technical assistance to the forestry
sector for over a decade. Eight TA projects have been implemented. Of crucial importance for the
proposed Project has been the TA (1992-1995) to the Forestry Department for the integrated resource
management of the SRF and for the development of professional forestry education at the university of
Chittagong. Further assistance has been provided by the World Food Program and various bilateral
agencies including the Swiss Development Cooperation, NORAD and the Ford Foundation.
The recommendations and the lessons learned from the CFP, as indicated in the Project Completion
Report and the Project Performance Audit Report have been endorsed in the ADB’s Country Synthesis of
Post-Evaluation Findings in Bangladesh (October 1997) and the Forestry Sector Synthesis of PostEvaluation Findings (SSPEF, August 1994). These documents pointed to the need for (i) technically
sound project designs; (ii) unambiguous participation, land tenure, usufruct right, and benefit-sharing
agreements; (iii) analysis of the potential for women’s participation in community forestry; (iv)
continued extension services; (v) efficient management and reinvestment of the revenues into continuing
reforestation programs to ensure sustainability; (vi) training of the participants and community leaders;
and (viii) establishment of a revolving fund. The SSPEF stressed the role of NGOs in enhancing
responses from the communities at the grassroots level and helping to sustain forestry benefits, and
pointed out that NGOs are in a good position to mobilize women to participate in community forestry
activities. These lessons have been taken into account as core elements in the design of the Project.
UNDP activities vis-à-vis this GEF proposal are now synergistic. The UNDP Bangladesh Regional
Coordinator has pledged to continue making UNDP activities in Bangladesh complementary to this
project. Specifically, and regarding proposed activities under GEF/UNDP preparation, these will
concentrate on other wetlands and coastal areas. It will be desirable for UNDP to support the
Government of Bangladesh with the initiation of a Bangladesh Biodiversity Strategy and Action Plan.
14.
Lessons Learned and Reflected in Proposed Project Design
The most important lessons to be drawn from past experience are:
(i) Ecological changes are occurring in the physical environment, most of which have their root causes
outside the SRF. These areas are outside the control of the current agency but should be researched
and monitored through continuous collaborative survey with other technical agencies using modern
technology, GIS, hydraulics, remote sensing and integrated resource data bases.
(ii) Universal lack of control and inaccurate revenue systems and long-established detrimental
harvesting methods in the SRF mask the real position on wood and NWFP production and overall
status’s of resources.
(iii) The weakness in the current agency’s management capability and capacity in the face of increasing
population pressure on the environment and its resources indicate a need for institutional
restructuring, reform of management systems and considerable further investment in development
projects.
(iv) The widely held belief that the SRF resource is in decline is correct but the situation is not
irreversible; factors relating to management can be controlled and should be exposed to public
debate; others, such as sea level rise, cannot.
(v) The consequence of not implementing the actions, recommended and set out in this proposal, on
institutional reform and to improve management of all resources by investment in integrated
14
strategies, new revenue systems, new harvesting and control methods, training, infrastructure,
equipment, and effective community involvement, will be an accelerating decline in the value of the
SRF ecosystem and consequential increasing loss of social and economic benefits to the nation as a
whole.
(vi) Lack of meaningful stakeholder participation in decision-making prevents institutional efforts from
taking into account reliable needs and expectations from local populations.
The main recommendations from the STAP reviewer have been incorporated and will be addressed
during project implementation. Detailed answers are provided attached to the STAP review.
15.
Indications of Borrower Commitment and Ownership
The Government of Bangladesh has indicated its commitment to this project by endorsing it as described
in the attached letter. The Forest Department has actively participated in baseline activities under the
IRMP, FRMP, and during overall project preparation.
16.
Value Added of Bank Support
Both the World Bank and the Asian Development Bank have been supporting the Government of
Bangladesh with sector forestry activities for many years, as described in section 8 above.
Block 3: Project Preparation
17.
Has a Project Preparation Plan been Agreed with the Borrower?
Yes.
18.
Has Recipient Drafted a Project Implementation Plan?
No.
19.
Advice/Consultation Outside Country Department
(i)
(ii)
(iii)
(iv)
Within the World Bank: ENVGC, LEGSA, LEGEN.
Within the Asian Development Bank: AWD, PWD, OESD, OCO, EDRC, OGC, CTD, TD
Other development agencies: UNDP, NDF, British Aid, Dutch Aid.
Numerous local and international NGOs.
20.
Issues Requiring Special Attention
a. Economic and Financial
(i) The extent to which buffer-zone activities succeed in providing alternative livelihoods for people
illegally exploiting resources inside the SRF.
(ii) The extent to which an ecotourism industry can be established.
(iii) The extent to which mechanisms can be found to transfer tourism revenue into protected area
management.
(iv) The extent to which mechanisms can be found to transfer increased revenue collection by the Forest
Department from sustainable management activities back into the agency.
15
b. Technical
(i) Ability to strengthen technical capacity of Forest Department
(ii) Adequacy of management plans for the wildlife sanctuaries
(iii) Adequacy of management plans for resource utilization
c. Institutional
(i) Ability to implement management configuration described in project proposal
(ii) Ability of Forest Department to maintain exclusive control and authority over the SRF.
d. Social
(i) Ensuring effective and meaningful community participation
(ii) Ability of illegal extractors to benefit from project activities
e. Resettlement
(i) No voluntary or non-voluntary resettlement will occur.
f. Environmental
(i) An Initial Environmental Examination has determined no need for a full EIA.
g. Stakeholder Participation
(i) Several participatory processes are envisioned, including the participatory review of the management
plans for the wildlife sanctuaries; and through the establishment of the Stakeholder Advisory Council.
h. Sustainability
(i) Institutional. Addressed through a comprehensive institutional reform component financed by ADB.
(ii) Financial. Addressed through both institutional reform and development of financial-sharing
mechanisms for long-term protected area management.
(iii) Ecological. Addressed through monitoring and evaluation activities, particularly the independent
annual biodiversity assessment.
Annex 1
Page 1 of 4
Annex 1
Project Design Summary
Design Summary
1. Goal
The Sundarbans is the
world’s largest surviving
mangrove forest. The
Project goal is to secure
the integrity of the
environment and
biodiversity of the
Sundarbans Reserve
Forest (SRF) in
Bangladesh.
Targets/Outputs
Project Monitoring
Mechanisms
Risks/Assumptions









2. Purpose/ Objective
Reverse the humaninduced degradation of
the SRF, by 2003.
Loss of biodiversity in
the SRF stopped, by
2001.
Sustainable and
participatory
community activities
established, by 2003.
Sound SRF
management system
established, by 2002.
Domestic and
international
awareness of the SRF
improved, by 2005.
Economic and social
indicators increased in
15 thanas in the
impact zone bordering
the SRF, by 2004.
Financial and
economic
sustainability achieved
for the SRF, by 2005.

Outputs






Conservation
monitoring from the
baseline assessment of
the Integrated Resource
Management Program
(IRMP, 1993-95, FAOUNDP). To be
undertaken by
International Union for
the Conservation of
Nature (IUCN) and
Khulna University.
Biodiversity
monitoring.
Water quality and
upstream pollution
monitoring by Surface
Water Modeling
Center (SWMC),
Dhaka.
Innovative research
and regular
socioeconomic
surveys.
Benefit monitoring and
evaluation (BME)
system.
Completion Report
Fisheries and Aquatic
resources baseline
surveys as not
adequately covered in
IRMP.
Project Monitoring
SRF
management
will be
multisectoral
and multidisciplinary.
 High-level
political
commitment,
and civil
society
commitment to
SRF
conservation.
 Stakeholders
accept the SRF
Project plans
with
appropriate
incentives.
 Nongovernmen
tal
organizations
(NGOs) and
local
community
organizations
(LCOs)
participate to
assist resourceusers and
community
development in
the impact
zone.
 Financial
reforms are
sustainable.
 Shrimp
controls introduced
Risks/Assumptions
Annex 1
Page 2 of 4
Mechanisms
Independent monitoring
reports on SRF.
BME reports.
Review missions.
2.1 Establish multisectoral
and participatory
conservation, and
effective management
in the SRF.
Environmentally sound
conservation of the
environment and its
biodiversity by 2001.
Sustainable management
practices are in place by
2002. Tourist numbers
expand by 50% by 2005.
2.2 Improve
organizational
capacity, reduce
poverty, improve
living standards, and
promote sustainable
development in the
impact zone.
Viable and legally
recognized organizations
of SRF resource-users
which meet members
needs, and enforce agreed
user practices.
Improved skills and
creation of options for
future generations in the
impact zone.
Improved access to social
infrastructure and services
in the impact zone by
2005.
Average household
income increased by 30%,
and incidence of poverty
reduced by 50% in the
impact zone, by 2004.
Reduced dependency on
the SRF, and
diversification of income
sources.
Government statistics,
NGO reports, and
independent academic
studies on thanas in impact
zone.
Socioeconomic studies.
BME reports.
Review Missions.
3. Component/Output:
Summary
3.1 Ensuring effective
management of the SRF.
Activities
Project Monitoring
Mechanisms
Independent NGO
monitoring.
Minutes of SSC meetings.
Press, media coverage of
.
Sundarbans Management
Agency (SMA) is set up.
Sundarbans Stewardship
Commission (SSC).
Availability of
accurate scientific
information on
which to base plans,
including
management of the
3 wildlife
sanctuaries.
Strong interest in
conserving SRF
resources within
civil society. Public
education and
tourism are
expanded.
Adequate financial
resources are
available to sustain
Project investments.
NGOs and LCOs
participate
effectively with the
Project in socioeconomic
development of
impact zone.
An effective
Government agency
is appointed to
implement impact
zone program. The
Bangladesh Rural
Development Board
(BRDB) is
appointed to
implement
Government’s
program, and
coordinate with
NGOs/LCOs, and
stakeholders.
Risks/Assumptions
High level
commitment to the
role of the SSC
and the Project..
Annex 1
Page 3 of 4
3.2 Biodiversity
conservation and
sustainable resource
management.
3.3 Social and economic
development of the impact
zone.
Stakeholder Advisory
Council (SAC) is set up.
IUCN monitoring.
Technical Advisory Group
(TAG) established.
Sundarbans.
BME reports/Review
missions.
IUCN, and TAG reports.
Enhanced FD capacity re:
planning, sustainable
targets for SRF,
cooperation with users,
field practices/targets
based on research
findings.
SRF restocking, assisted
natural regeneration,
restoration of damaged
areas, etc.
Water and pollution
monitoring.
Wildlife management in 3
sanctuaries, biodiversity
monitored and managed
sustainably.
Mobilization and
organization of resourceusers into viable local
community organizations
(LCOs) by 2005.
Representation of LCOs
in Stakeholder Advisory
Council.
Evolution SRF resourceuser behavior, and market
based incentives.
Social infrastructure and
services improved.
Improved awareness and
education re SRF in
primary and secondary
schools in 15 thanas, non
formal education and
adult literacy programs.
Micro-credit by 2005, for
alternative income
sources, and SRF resource
Reports on natural
resource levels and
independent evaluation of
data on stocks.
BME reports.
Review Missions.
SWMC monitoring
reports.
World Heritage reports.
Conservation monitoring
in the 3 wildlife
sanctuaries, in accordance
with agreed plans.
NGO Area Development
Offices (ADOs)
established, and operating;
other NGO and LBO
programs.
NGO reports and BME
reports.
Review Missions.
SMA works
effectively with
stakeholders.
All user groups are
effectively
represented on
SAC.
Innovative
research and
monitoring are
used for effective
management..
Sufficient
expertise and
resources, are
available to gather
and analyze the
required data, and
implement the
plans.
Public education
program is
successful.
SRF user charges
set at economic
levels, and are
directly used to
conserve the
Sundarbans.
Appropriate NGO
selection process
and criteria as set
up under Forestry
Sector Project, and
agreed with
ADAB.
NGO participate in
mobilization,
training and set up
of LCOs.
SAC is properly
constituted.
NGOs establish
ADOs in the
impact zone.
Credit reaches
target households
and leads to
increased incomes.
BRDB coordinates
Government
Annex 1
Page 4 of 4
3.4 Ecotourism
development and market
strategy.
use.
By 2005, several million
p.a. from ecotourism .
Modern tourism strategy,
and training program.
Public infrastructure and
policy framework to
support private sector
plans and development..
LCO participation in
training/ development.
Tourist numbers, receipts.
Review missions.
Bangladesh Parjatan
Corporation reports.
investments.
Modern, private
sector tourism is
not dominated by
public sector.
Appropriate policy
framework is
adopted.
Network with
Asian locales is
established.
Tourism
opportunities can
be created, and
risks can be
mitigated.
Annex 2
Page 1 of 4
ANNEX 2
INCREMENTAL COST ANALYSIS
Overview
The general objective of the GEF alternative is to conserve the biodiversity of the Sundarbans Reserved
Forest and its surrounding buffer zone by improving the institutional and policy framework for
sustainable resource management. The project will develop and implement a sustainable management
and biodiversity conservation system for the Sundarbans region of Bangladesh on the basis of rational
plans and the participation of all key stakeholders, including: (i) priority biodiversity conservation
initiatives and improved forest management; (ii) increased institutional capacity to manage the
Sundarbans Reserved Forest (SRF); (iii) measures to reduce poverty of the 2-3 million people living in
the impact zone bordering the SRF through expanding economic opportunities, improved social
infrastructure, improved organization for resource-users, and facilitating stakeholder participation in
resource management; and (iv) adopting a supportive set of policies, especially related to the pricing for
access to SRF resources. The GEF alternative intends to achieve these outputs at a total incremental cost
of approximately $12.2 million.
Context and Broad Development Goals
The project area covers the Sundarbans Reserved Forest (approximately 600,000 ha) and its surrounding
buffer zone, the most diverse and richest natural resource area in the People’s Republic of Bangladesh
(the total project area is close to 1 million ha.). It is one of the largest continuous mangrove forest in the
world. The entire Sundarbans has been recognized as a Ramsar site by the Convention on Wetlands of
International Importance (Ramsar), and portions of it as World Heritage Sites by the World Heritage
Convention (UNESCO). It is the most important continuous remaining habitat in the world for the highly
endangered Bengal Tiger (Panthera tigris tigris). The SRF includes three Wildlife Sanctuaries in the
west, south and east (166,829 ha.) representing 28% of the SRF. Most of the human population within
the project area (2 million) lives in the buffer zone, and relies directly or indirectly on the SRF for
income and resources. While there are no permanent human settlements inside the SRF, a large number
of fishermen and other resource harvesters spend substantial portions of their lives inside the SRF, living
on boats or in seasonal and semi-permanent structures and camps along the SRF borders, including
islands. The Forest Department also has established permanent outposts for its staff and has limited
tourist accommodation within the SRF.
Given the social, ecological, environmental, and economic importance of the SRF and the implications
of its preservation in the regional, national and global context, sustainable development of this highly
valuable natural resource is paramount. In order to realize its full potential in the interest of social well
being and upliftment of the poor local communities dependent upon it for subsistence, it is important to put
in place an appropriate system of management that ensures long-term ecological, institutional, and financial
sustainability.
Various projects and plans implemented in the SRF to date have provided little more than just a data base on
resource potential, problems and constraints, with practically nothing in the form of real investments to
improve its status as a unique resource or provide the means to improve the means to address the needs of
the local communities. To that end, the current proposal is concerned with the integrated management of
SRF, and current or completed projects provide a strong basis of departure for an implementation program.
However all past and existing projects are not management plans per se but projections, based on existing
institutional and policy structures, and although they contain a wealth of useful information, they do not
address either a feasible strategic plan for implementation or a scientific or multisectoral management
diagnostic analysis of the options or realistic investment potentialities. This proposed project will focus on
Annex 2
Page 2 of 4
the various financial, economic, management, institutional, and policy changes and effect the conservation,
sustainable utilization and social development of the SRF.
The development objective of the overall Biodiversity Conservation in the Sundarbans Reserved Forest
Project (BCSRFP) is to enhance rural livelihoods through sustainable natural resource management and
biodiversity conservation. The operational objectives of the BCSRFP are to achieve, within 7 years, the
development of a sustainable management and biodiversity conservation system for all SRF resources, on
the basis of rational plans and the participation of all key stakeholders. The proposed Project area
includes the SRF itself and the surrounding 15 thanas located within 0-20 km outside the SRF border.
The Project will establish a participative system for the conservation and sustainable management of the
SRF as a multi-dimensional resource area. An integrated approach will be taken to (i) biodiversity
conservation and improved forest management; (ii) improved institutional capacity to manage the SRF
itself; (iii) reducing the poverty level of the 2-3 million people living in the buffer zone bordering the
SRF through expanding economic opportunities, improved social infrastructure, improved organization
for resource-users, and facilitating stakeholder participation in resource management; and (iv) adopting a
supportive set of policies, especially those regarding charging economic prices for access to SRF
resources.
Baseline
The Government of Bangladesh, working with the Asian Development Bank (ADB), has developed a
project aimed at the biodiversity conservation of the Sundarbans which will redress the decline by a
program of policy reform and implementation. At the same time as improving the management system of
the SRF by reforming it into a multisectoral entity, support will be given to the local communities in the
buffer zone and those working within the Forest, including traditional user groups. This will ensure, first,
that they can be more actively involved in protected area and buffer zone management and, second, that
they will be able to manage their activities in a self-sufficient and sustainable manner.
There are already a number of related development projects underway in the buffer zone, or on a national
basis, which are helping address some of these threats. Most of these are pilot community-based wildlife
and natural resource management operations primarily in the communities surrounding the SRF.
Principal among these are the IRMP, the World Bank’s Forest Resources Management Plan (FRMP), and
the ADB’s Forestry Sector Project (1998-2005) and Coastal Greenbelt Project (1995-2002). All seek
remedies to the current problems of management and community participation (and in some cases overexploitation or natural resources) which are pertinent to this proposed project. None of these projects,
however, addresses the biodiversity of the Sundarbans from a holistic and ecosystemic management
perspective. In addition, there is an important set of activities which are required to ensure the global
benefits of the sustainable management of this very large ecosystem.
The baseline activities for which global environmental considerations are not explicitly taken into
account include: (a) development and review of Sundarbans biodiversity conservation management plans
from a resource-use perspective (i.e., outside the Wildlife Sanctuaries but within the SRF), (b) the design
and implementation of the improved participatory, community-based programs based in the buffer zone,
(c) the employment of local community members as forest guards, guides, etc., (d) the establishment and
staffing of the Sundarbans Management Agency, (e) investment in basic infrastructure for park
management within the SRF but outside the Wildlife Sanctuaries, (f) strengthening park planning and
management, and ecological monitoring and research. The total cost of the baseline program would be
about US$63 million, which would be financed by a loan from the Asian Development Bank ($40.0M),
British and Dutch Aid (estimated at $10.0M), the Government of Bangladesh ($10M), and the Nordic
Development Fund ($3.3M).
Annex 2
Page 3 of 4
Global Environmental Objectives
As mentioned in section 6, the project will make a significant contribution to the conservation and
sustainable management of over 1 million ha of threatened, and rapidly deteriorating Asian mangrove
forest and the habitats and biodiversity it contains. The ecosystem represents the largest contiguous area
of mangrove forest left relatively intact in the world which is home to a significant number of threatened
and endangered species. It is the most important remaining habitat in the world for the highly endangered
Bengal Tiger (Panthera tigris tigris).
Forty five species indigenous to the Sundarbans are endangered (2 amphibian, 14 reptiles, 25 birds and 5
mammals). One species of turtle is endemic to the SRF. A total of 245 genera and 334 plant species have
been recorded. Detailed long-term studies for the most important species are absent but recent reports
(most notably IRMP UNDP/FAO and FRMP 3/1998 WB) have provided a baseline which leaves little
doubt of its global significance. In addition to important plant, invertebrate and reptile species, the area
holds significant populations of the Royal Bengal tiger, deer, wild boar, and dolphins which are rapidly
falling. The loss of at least five, possibly six, spectacular mammal species, Javan rhinoceros Rhinoceros
sondaicus, one-horned rhinoceros Rhinoceros unicornis, wild buffalo Bubalus bubalis, swamp deer
Cervus duvaucali, gaur Bos gaurus, hog deer Axis porcinus, has been reported in recent times.
GEF Alternative
Under GEF support, the Government of Bangladesh will be able to, in addition to implement the baseline
activities, (a) consolidate and strengthen the management of the three wildlife sanctuaries within the SRF
through the implementation of the management plans already prepared under the World Bank’s
supported Forest Resource Management Project (FRMP); and through the development of financialsharing mechanisms of tourism-generated income (e.g., entrance fees, taxes, etc.) for long-term protected
area management; (b) support biodiversity conservation within the entire SRF and its buffer zone through
the incorporation of biodiversity conservation considerations within sustainable productive activities
(forestry and fisheries); (c) increase support for biodiversity conservation by local communities through
participatory environmental education and community awareness activities; and (d) establish biodiversity
monitoring through a project monitoring and evaluation (M&E) system as well as the establishment of an
independent international ecosystem monitoring system. The total cost of the GEF alternative is $75.5M.
Incremental Costs
The agreed incremental costs for which GEF support is requested in order to achieve the global
environmental benefits of the GEF alternative are estimated at US$ 12.2 million.
Annex 2
Page 4 of 4
Incremental Cost Matrix for GEF Funding
Component
Ensuring effective
management of the
SRF
Biodiversity
conservation and
sustainable resource
management
Social and
economic
development of the
buffer zone
Ecotourism
development and
marketing
Cost
Category
Baseline
GEF
Alternative
Incremental
Baseline
$15.0
GEF
Alternative
$20.2
Incremental
Baseline
$10.2
$28.3 Reduction of poverty
within the buffer
zone of the SRF
GEF
Alternative
$28.8
Incremental
Baseline
$0.5
$10.0 Development of an
income generation
activity of national
importance
$11.5
GEF
Alternative
TOTALS
Cost US$
Domestic Benefit
Million*
$15.0 Improved capacity
for long-term
management of the
SRF
Incremental
Baseline
With GEF
Alternative
Incremental
0
$10.0 Improved sustainable
use of fisheries and
forests within the
SRF
Global Benefit
Stronger institutional
and policy
framework for
overall ecosystem
management
Same as Above
Maintenance of
principal ecosystem
functions including
forest cover and
reduction in
contamination
Conservation of all
biodiversity within
the SRF and its
surrounding buffer
zone
Decrease in pressure
upon the resources of
the SRF
Increased awareness
about the importance
of biodiversity
Increase justification
for the conservation
of the biodiversity of
the SRF
Enhanced attention
to biodiversity
conservation and
development of
mechanisms for
income reinvestment
$1.5
$63.3
$75.5
$12.2
Precise baseline costs are estimates to be refined during further project preparation
ANNEX 3
Page 1 of 8
TECHNICAL REVIEW
BANGLADESH
BIODIVERSITY CONSERVATION IN THE SUNDARBANS RESERVED FOREST
Date:
16 January 1998
World Bank contact: Gonzalo Castro
______________________________________________________________________________
i)
Global priority in the area of biodiversity.
Extending over almost 1 million ha, the Sundarbans form the world’s largest contiguous area of
mangrove forest, with 2/3’s occurring in Bangladesh and 1/3 in India. These mangroves represent one of
the most biodiverse examples of this habitat type in the world. In the America’s and Africa, only 7-9
obligatory mangrove plant species are found, while in the (Northern) Indo-(West) Pacific region this is
typically 20-40 species. In Bangladesh, at least 20 species have been recorded to date. While the number
of obligatory mangrove plants is relatively small, the number of associated species of plants and animals
is orders of magnitude higher, and especially large, contiguous areas such as the Sundarbans can be
expected to harbor many species, with sizable and viable populations. Because of easy dispersal of
propagules, endemic species rarely occur in mangroves; nevertheless, the Sundarbans harbor an endemic
turtle and an endemic orchid (Cyropetalum roxburghi). The Sundarbans are, however, of significant
importance for many species that currently have populations elsewhere, but are likely to disappear in
these other sites within the next few decades. Recent assessments of tiger populations, for example, have
highlighted that the Sundarbans form the tiger’s last major stronghold, and is the site - world-wide where tigers have the greatest chance of surviving in the wild. In summary:





largest contiguous area of mangrove forest in the world;
high diversity in terms of obligatory mangrove species;
highly diverse in mangrove-associated plants and animals;
world-wide, the most viable remaining population of the tiger (ssp. Bengal Tiger); and
most viable remaining population in South Asia of many other associated mangrove plants and
animals.
The global significance of the Sundarbans is also evident from the areas’ listing as a Ramsar site
(Bangladesh Sundarbans, since 1992), and as a World Heritage Site (both India and Bangladesh
Sundarbans, since 1997).
ii)
Cost-effectiveness in achieving focal area objective(s).
Conservation of mangrove biodiversity in the Sundarbans is cost-effective, as these mangroves are:





the best-conserved mangroves remaining in the South Asian region;
highly diverse, harboring many mangrove (-associated) species;
large, not easily disturbed, and have large populations of many of the (associated) mangrove species;
contiguous and grouped (rather than spread along a long coastline, where they would be more
vulnerable);
have been managed by forestry officials for more than 120 years;
ANNEX 3
Page 2 of 8


partially protected for wildlife conservation purposes; and
it is the area where tigers - and probably other species of wildlife - are most likely to survive in the
wild.
Investing in other areas would mean investing in areas where biological diversity and viability of
populations of flora and fauna is significantly lower, which is not cost-effective.
iii)
Adequacy of project design.
In general, project design is adequate, but there are a few areas that show some deficiency:
a)
One third of the Sundarbans occurs in India, where this mangrove forest has been declared a tiger
reserve since 19736. However, the Proposal neglects the Indian Sundarbans entirely, although it claims to
adopt an ‘holistic and ecosystemic’ approach. The proposal also states that ‘the entire Sundarbans has
been recognized as a Ramsar site’. While this is true for Bangladesh, the Indian Sundarbans are not one
of the 6 sites nominated by India and currently recognized by the Ramsar Bureau (6 January 1998;
http://www.iucn.org/themes/ramsar). The Proposal should outline how management in the Bangladesh
Sundarbans is complemented or affected by that in the Indian Sundarbans, and attempt to establish a
linkage.
b)
The Proposal focuses on ecotourism as being one of the major components of the Project that
will benefit the local population, along with improved natural resource management. The development of
ecotourism remains uncertain, however, and it is correctly listed in the Proposal under “Issues Requiring
Special Attention”, specifically regarding the “extent to which an ecotourism industry can be developed”.
Also, the ADB investments in ecotourism outlined in the Proposal (infra-structural development,
personnel training, increasing community awareness of ecotourism opportunities, regulatory framework)
will primarily benefit the private sector, but are unlikely to improve the lot of the majority of locals, other
than in a marginal way.
iv)
Feasibility of implementation, and operation and maintenance.
a)
The proposal aims to guide the transition of management from a unisectoral, single agency
framework to a multisectoral institution that is to oversee the integrated approach to management. The
method chosen is one whereby the capacity of MOEF is strengthened, and Forest Department are to be
trained, for example, in the management of fisheries and other aquatic resources important in the SRF.
However, such an approach reeks of duplication, as Bangladesh already has a fully operational
Department of Fisheries (DoF), with sections involved in management of marine and estuarine resources.
The unisectoral approach of the past has lead to the current situation whereby Forestry Department is
highly reluctant to involve DoF (or other line agencies), and manages the Sundarbans on its own, in spite
of a lack of capacity (e.g. in area of fisheries management) and staff. The Proposal should establish what
the role of DoF (and other line agencies) is to be, and justify the duplication of capacity if DoF (and other
agencies) are to remain excluded from SRF management.
b)
While the purpose of the SAC is clear, mechanisms for incorporating stakeholder views into
management remain vague. The Proposal currently includes an annual presentation of views to the SSC,
but does not mention the link with the SMA - surely there is to be a more direct mechanism for
6
Scott, D.A. (1989) - A Directory of Asian Wetlands. IUCN - World Conservation Union, Gland,
Switzerland, 1182 pp.
ANNEX 3
Page 3 of 8
stakeholder involvement in management ?
c)
The sustainability of the project depends to a large degree on the ability to generate enough
revenue (via ecotourism and sustainable resource exploitation), and the ability to channel enough of this
revenue into SRF management. Both are feasible, but the risks are significant. The Proposal should
identify alternatives in case of failure - the latter will be evident by the time of the second phase review.
I.
Key Issues:
i)
Scientific and technical soundness of the Project
Generally, the Proposal is technically and scientifically sound; areas of deficiency are:

1/3 of the Sundarbans lies in India, but this is not mentioned, and no link is made with management
of the Indian Sundarbans;
no involvement of Department of Fisheries in management of SRF fisheries resource;
no clear mechanism for incorporating views of stakeholders (via SAC) into SRF management, other
than via annual meetings with SSC, and via LCO’s;
perhaps over-optimistic with regard to ecotourism potential, and the potential for this sector to
contribute to the welfare of locals; and
the link of the proposed BCSRFP with other donor-assisted forestry sector projects in Bangladesh,
such as FRMP, CFP, UANDP and CGP, is not clear, other than that all are forestry-related, and
incorporate capacity-building.




ii)
Identification of the global environmental benefits and/or drawbacks of the Project
The potential global environmental benefits of the Project are significant. The Sundarbans are of
international importance for the conservation of mangrove biodiversity in general, and the protection of
certain key species such as the Bengal Tiger. The area’s global importance is already evident from its
designation as a Ramsar site (i.e. Wetland of International Importance; since 1993), and as a World
Heritage Site (since 1997). There are no foreseeable drawbacks for the global environment.
iii)
How the Project fits within the context of the goals of the GEF, as well as its operational
strategies, programme priorities, Council guidance and the provisions of the relevant
Conventions;
The Project addresses GEF Operational Programs 2 (Coastal, Marine & Freshwater Ecosystems) and 3
(Forests) of the Convention on Biological Diversity (CBD). In line with GEF Strategic Considerations 7,
the Project aims to integrate the conservation and sustainable use of biodiversity within the national
sustainable development plans and policies8, and is feasible, targeted and cost-effective in its approach.
iv)
Regional Context
The Sundarbans are the most important mangrove area in the South Asian region, and probably the most
7
GEF (1995) - Revised Draft GEF Operational Strategy. GEF Council Meeting, September 29, 1995,
84 pp.
8
MOEF & IUCN (1997) - The Bangladesh National Conservation Strategy, Final Draft, 221 + 60 pp.
ANNEX 3
Page 4 of 8
important location for tiger conservation world-wide. In this context, targeting the Sundarbans for GEF
support is a sound investment. However, as was indicated in I.i), the Sundarbans occur both in
Bangladesh and India, and the Proposal should at least highlight how management in both parts of the
Sundarbans complement each other. Even better would be if the Project could establish a management
link between the two parts of this contiguous mangrove area, but such a trans-frontier approach might be
too ambitious.
v)
Replicability of the project
In Bangladesh there is little scope for replicability. Firstly, outside the Sundarbans, natural forests (with a
relatively high biodiversity value) are virtually absent, apart from the heavily degraded Teknaf Game
Reserve near Chittagong. Secondly, other habitats important for biodiversity and natural resource
exploitation in Bangladesh, such as the large inland waters, are not managed by implementing agencies
such as the Department of Fisheries or the Forestry Department, but are controlled by the Ministry of
Land, which leases these waters to private persons or companies every 1-5 years. In a regional context
there is more scope for replicability, especially in the adjacent Indian Sundarbans (see I.iv), but this will
probably require additional GEF investment.
vi)
Sustainability of the project
The sustainability of the project depends to a large degree on the ability to generate enough revenue (via
ecotourism and sustainable resource exploitation), and the ability to channel enough of this into SRF
management. Both are feasible, but the risks are significant, and alternatives should be formulated at an
early stage (and incorporated into the Project) in case of impending failure. The latter should be evident
by the time of the second phase review.
II.
Secondary Issues:
i)
Linkages to other focal areas
Of the three other focal areas (climate change, international waters, ozone depletion), the Project has a
link with the “climate change” focal area, by way of combating deforestation (carbon sequestration in
growing forests).
ii)
Linkages to other programs and action plans at regional or sub-regional level
The Project is in line with World Bank, ADB and other donor-assisted forestry sector projects in
Bangladesh, including the FRMP, CFP, UANDP and CGP. However, a direct and/or clear link is not
proposed by the Project, and this should be developed, at least for relevant related programs.
UNDP activities in Bangladesh are to be made complementary to this Project, and are to focus on other
wetlands and coastal areas. No link is proposed with regional or sub-regional programs and action plans;
as stated in I.iv, a link should be established with the Sundarbans tiger reserve in India.
iii)
Other beneficial or damaging environmental effects
Other areas managed by the Forest Department may also benefit from this project (see I.v, replicability);
however, of these other FD-managed areas, only Teknaf Game Reserve is of significance for the
conservation of biodiversity. Damaging environmental effects as a result of the Project are unlikely, as
SRF management aims to promote benign forms of resource utilization, and those forms that have the
potential to have a (mildly) negative impact, such as ecotourism, are not expected to expand in an
ANNEX 3
Page 5 of 8
exponential way in the near future.
iv)
Degree of involvement of stakeholders in the project
Primary stakeholder participation in management and decision making is arranged via LCOs. In addition,
all stakeholders are to be represented in the Stakeholder Advisory Council (SAC), and local people will
be involved as decision-influencers, revenue sharers and employees. The mechanisms for directly
influencing SRF management are unclear, however. The SAC is to present its views to SSC on annual
basis, but there is apparently no direct line of communication with the SMA and day-to-day SRF
management.
v)
Capacity building aspects
The proposal acknowledges that many of the issues undermining the sustainability of the SRF ecosystem
are either institutional in nature or have an institutional element in them. Therefore, improvement of
management capacity within the Forest Department is one of the main components of the Project. This
includes increasing the capability of this agency to deal with multisectoral issues, such as the
management of fisheries and other aquatic resources. The capacity of local communities to sustainably
manage their natural resources will also be enhanced by the Project.
vi)
Innovativeness of the project
No major innovations are envisaged. The proposal combines elements of ICDP, with the establishment of
a core agency (the SMA) within the Forest Department for overseeing SRF management. The latter
essentially maintains the basic status quo, which is essential for obtaining MOEF support for the Project.
The main innovations are in the periodic external monitoring, by the CIU and an International NGO, and
in the formalization of stakeholder input to management (via SAC, and it’s periodic input to the SSC).
Suggestions for Improvement of the Project Proposal
i.
The Proposal should outline how management of the Bangladesh Sundarbans complements or is
affected by that of the Indian Sundarbans, and - if feasible - attempt to establish a linkage.
ii. Clearer and more direct mechanisms by which the local community can benefit from ecotourism
should be developed. Targets should be set, and opportunities created for the rural poor to obtain low
or no interest loans, along with the already proposed training program.
iii. The Proposal should establish what the role of the Department of Fisheries (and other relevant line
agencies) is to be, and justify the duplication of capacity in the Forest Department to manage
fisheries and other aquatic resources, if DoF (and other agencies) are to remain excluded from SRF
management.
iv. The Proposal should identify alternatives (such as other potential sources of income) in case the
ecotourism sector fails to develop, and in case insufficient funds are channeled into SRF
management.
v. The link of the proposed BCSRFP with other (ongoing and former) donor-assisted forestry sector
projects in Bangladesh, such as FRMP, CFP, UANDP and CGP, should be clearly established.
ANNEX 3
Page 6 of 8
vi. Mechanisms for stakeholder participation in management and decision making should be more
clearly stated; they should also be more direct and regular than the annual presentation of SAC’s
views to the SSC.
16 January 1998
RESPONSE TO THE TECHNICAL REVIEW
January 22, 1998
1. General: The points raised by the STAP reviewer are very pertinent. An attempt has been made to
incorporate answers throughout the text of the Project Concept Document. Most of these issues have
been carefully taken into account during project preparation and in subsequent discussions with the GOB
and co-financiers. Specific answers are summarized below:
2. Transfrontier co-operation with India: This is an important idea and one that the World Heritage
Committee has already encouraged the GOB to take forward. UNESCO has also been in contact with the
Asian Development Bank encouraging inclusion of specific Project activities in support of transfrontier
management. The project will include (as part of baseline activities) exchanges of scientific and
management information. Discussions for deeper trans-frontier cooperation will take place with the GOB
during upcoming missions and prior to appraisal.
It is important to mention, however, that the long-term ecological sustainability of the Sundarbans in
Bangladesh is not in jeopardy in the absence of trans-frontier cooperation. Threats to the Bangladesh
Sundarbans (2/3 of the entire Sundarbans) do not originate within the Indian Sundarbans. The ecological
integrity of this ecosystem will not be in jeopardy even if a very drastic alteration occurs in the India
side, because of the ecological nature of these mangrove ecosystems.
3. Potential over-emphasis on ecotourism: We agree with the STAP reviewer that the potential for
ecotourism could be limited, and should not be overestimated. While there are some benefits for the poor
in supplying labour or niches such as guides etc., ecotourism in the Sundarbans will require substantial
investment (e.g. tour boats) which will not necessarily benefit the poor substantially in the area. Baseline
activities, however, more than adequately insure against a potential failure in ecotourism projections.
Widespread community benefits will be gained from buffer zone investments in social infrastructure,
improved education, greater role for NGOs, microcredit, etc. Ecotourism is not the main way for the
community to gain from the Project, nor should it be.
4. Role of the Department of Fisheries: The Department of Fisheries has a less than adequate record in
managing the Chakoria Sundarbans in eastern Bangladesh, and there is no perceptible fisheries
management by Dept. of Fisheries in the buffer zone where extensive land conversion to shrimp ponds
has caused hardship to many poor people and directly increased the pressure on the SRF's.
resources. The Dept. of Fisheries can advise on appropriate strategies for aquatic resources inside the
ANNEX 3
Page 7 of 8
SRF, but it does not have a resource management role. This has been extensively reviewed and discussed
with the GOB from all angles. The conclusion has been that a direct role for the Fisheries Department
inside the SRF will not work from the perspective of a bureaucratic line of command.
The project, instead, aims at the recruitment and training of Dept. of Forestry professionals in aquatic
resources management. These staff will be backed up and trained on the job by specialists appointed by
the Project. The Department of Fisheries can advise on and contribute to this training.
5. Income Alternatives in addition to Ecotourism: Already addressed in point 3 above.
6. Links with other donor-assisted activities: There are already a number of related development
projects underway in the buffer zone, or on a national basis, which are helping address some of these
threats. Most of these are pilot community-based wildlife and natural resource management operations
primarily in the communities surrounding the SRF. Principal among these are the IRMP, the World
Bank’s Forest Resources Management Plan (FRMP), and the ADB’s Forestry Sector Project (1998-2005)
and Coastal Greenbelt Project (1995-2002). All seek remedies to the current problems of management
and community participation (and in some cases over-exploitation or natural resources) which are
pertinent to this proposed project. None of these projects, however, addresses the biodiversity of the
Sundarbans from a holistic and ecosystemic management perspective.
The Asian Development Bank’s assistance to the forestry sector in Bangladesh started in December 1981
with a loan for the Community Forestry Project (CFP). This project extended social forestry activities in
23 districts in the north and northwestern parts of the country. In March 1989, the ADB approved the
Upazila (Thana) Afforestation and Nursery Development Project (UANDP). Following the awareness
raised under CFP, the UANDP aimed at arresting depletion of the plantations and natural forests of the
central and northern region of the country. Under the UANDP, a significant portion of available
government land and homestead land was brought under tree cover using participatory and benefitsharing approaches. The UANDP demonstrated the effectiveness of participatory approaches to
protection and management of sal forests and establishment of block plantations (woodlots) in forests
that were severely degraded and encroached upon. The UANDP also strengthened FD’s institutional
capacity and provided training in seedling production and tree planting and maintenance to a large
number of field staff, NGOs, and participants.
The Coastal Greenbelt Project (CGP) aims to promote tree planting to increase vegetative cover in
coastal areas through social forestry. Other components include nursery development, seedling
distribution, public awareness, training, consultant services, facilities, and equipment. Attached to the
CGP is a grant to finance advisory TA aimed at institutional strengthening of social forestry, including
extension, communication, and integration of FD’s management information and monitoring and
evaluation systems.
Closely coordinated with these activities, UNDP and FAO have also provided technical assistance to the
forestry sector for over a decade. Eight TA projects have been implemented. Of crucial importance for
the proposed Project has been the TA (1992-1995) to the Forestry Department for the integrated resource
management of the SRF and for the development of professional forestry education at the university of
Chittagong. Further assistance has been provided by the World Food Program and various bilateral
agencies including the Swiss Development Cooperation, NORAD and the Ford Foundation.
The recommendations and the lessons learned from the CFP, as indicated in the Project Completion
Report and the Project Performance Audit Report have been endorsed in the ADB’s Country Synthesis of
ANNEX 3
Page 8 of 8
Post-Evaluation Findings in Bangladesh (October 1997) and the Forestry Sector Synthesis of PostEvaluation Findings (SSPEF, August 1994). These documents pointed to the need for (i) technically
sound project designs; (ii) unambiguous participation, land tenure, usufruct right, and benefit-sharing
agreements; (iii) analysis of the potential for women’s participation in community forestry; (iv)
continued extension services; (v) efficient management and reinvestment of the revenues into continuing
reforestation programs to ensure sustainability; (vi) training of the participants and community leaders;
and (viii) establishment of a revolving fund. The SSPEF stressed the role of NGOs in enhancing
responses from the communities at the grassroots level and helping to sustain forestry benefits, and
pointed out that NGOs are in a good position to mobilize women to participate in community forestry
activities. These lessons have been taken into account as core elements in the design of the Project.
UNDP activities vis-à-vis this GEF proposal are now synergistic. The UNDP Bangladesh Regional
Coordinator has pledged to continue making UNDP activities in Bangladesh complementary to this
project. Specifically, and regarding proposed activities under GEF/UNDP preparation, these will
concentrate on other wetlands and coastal areas. It will be desirable for UNDP to support the
Government of Bangladesh with the initiation of a Bangladesh Biodiversity Strategy and Action Plan.
7. Stakeholder Participation: This has been thoroughly discussed throughout the Project Concept.
Several participatory processes are envisioned, including the participatory review of the management
plans for the wildlife sanctuaries; and through the establishment of the Stakeholder Advisory Council.
Maria Nikolov
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