Don Robadue and Lynne Hale
Coastal Resources Center, University of Rhode Island
Examples of good practice
from:
• Mexico
• Fiji
• Ecuador
• US-Rhode Island
• Sri Lanka
• Why a local approach is not enough
• What pilot projects need to succeed
Spreading the word about local
coastal management
+
+
Local
Project
initiatives
Building the
strength of the
local program
Regional and
national level
activities
+
Factors and
conditions which
spread the word to
people in other
sites
+
27m
Mexico
From village
to global action
Xcalak Village
Quintana Roo
Mexico
WHY THE COASTAL MANAGEMENT
INITIATIVE STARTED
Major tourism in the north
around Cancun, led to
planning for the rather
different environment of the
southern coast.
The Fishing Cooperative
“Andres Quintana Roo” wrote
a letter to the Governor of
Quintana Roo in 1994
requesting that its nearshore
waters and coral reef be
designated as a marine
protected area.
Cancun
Sian Ka’an
Costa Maya
Coastal management
Context
Mexico has a full range
of environmental
regulatory, area
planning and
conservation tools.
Villages, municipalities,
and states have NO
jurisdiction for
activities below the
mean high water mark
but can apply for
control in the 20 meter
beach zone.
THE COASTAL MANAGEMENT STRATEGY
Village participation in planning—
Submit required technical documents.
Include community members in
gathering information
Create a voluntary committee on the
marine park proposal
Assign part time staff based in the
village
Prepare the Community strategy for
the Xcalak Area.
Help villagers take a number of small
steps to carry forward some
practical actions
Get community and NGO leaders
involved in the process of preparing
the environmental master plan for
the coast
Xcalak
THE RESULTS SO FAR
• A 17,000 ha Marine
Protected Area legally
established, with a plan and
implementation mechanism
• National recognition, NGO
President
support and external funding Zedillo
• Land-side wetland
ecosystem conservation
included
• Community representation
on the Marine Protected Area
technical committee, Costa
Maya environmental ordinance
committee
• Some community members
trained to participate in
tourism activities
Minister Julia
Carrabias
23m
WHY GUIDELINES FOR TOURISM
DEVELOPMENT?
--Coastal environmental zoning schemes failed to control the
ecological damage from hotel projects or avoid chaotic
tourism-oriented urban centers.
--Low degree of understanding and consideration of the
dynamic nature of coastal features by project designers and
constructors.
--Inability of public officials to specify the types of
development which were preferred and to enforce use
restrictions on areas which were to be protected under these
plans.
--Developers not consulted and investors, mainly from the
outside, not educated about what low-impact tourism meant.
Beaches and Dunes
Minimize risks of
erosion
Minimize damage
from natural
hazards
Preserve natural
processes
HOW ARE GUIDELINES USED?
--Show the vulnerability
of coastal physical features
and ecosystems
-- Illustrate the practical
measures project
designers and builders
need to take, usually at
low or no additional cost, to
avoid storm hazards and
needless damage to the
very environment
--Used in training regulatory officials at federal, state and local level
--Public outreach document incorporated into government regulations
--Considered for incorporation in environmental impact assessments at state
level,
--Used by other municipalities and districts
Initiating an
Integrated Coastal
Management
Process in Fiji
20m
Why the Fiji coastal
management initiative started
Recognition of the importance of an the
Management of Coastal Resources &
the Use of an Integrated Approach
• Most urban centers and villages
located along the coast
• Important for rural subsistence
economy
• Most of agriculture, fisheries, industry and
commerce, tourism is located or linked to the
coast
Site of important ecosystems such as
coral reefs, mangroves, seagrass beds
Coastal Areas are Threatened by
Degradation and Overuse
Increasing coastal
populations, rapid coastal
development, increasing
utilisation of resources, and
absence of environmental
legislation have resulted
in impacts
Pollution
Habitat loss
on coastal
environments
Land degradation
Many prior attempts to create
environmental management programs,
most called forcoastal management
but few were successful:
Strategic Development Plan
Sustainable Development Bill draft
These programs seek to give Fiji a modern legislative
framework for environmental management, but do
not draw upon the native Fijian political structure
utilized by traditional resource decision-makers
Various New Proposals & Policies
are Aimed at Addressing Fiji’s
Coastal Management Challenges
Fiji Tourism Development Plan &
Ecotourism & Village-based Tourism Policy &
Strategy
National Rural Land Use Policy Statement
Fiji Biodiversity Strategy and Action Plan
Commendable Efforts Have been Taken to
Address Coastal Issues
Locally Managed Marine Areas: a voluntary approach
carried out through villages and district councils
Fiji Tourism Forum Environment Sub-Committee & Coral Cay
Project has engaged the private sector
Fiji National Code of Logging Practice is a success
Sustainable Forestry/Sustainable Land
Management Project is underway
Inshore Fisheries Management traditional use area surveys
Fijian Affairs Board Programs (outreach to villages)
Role of Lands & Surveys Department in shore use decisions
Initial Strategy:
• Background papers on international
experience and local successes
• The Fiji National Workshop on
Integrated Coastal Management,
April 2002
Major consensus findings on ICM for Fiji:
• Need for national/provincial/ tikina/village
consultation/joint planning and implementation of
coastal activities
• Management decisions must be based in the
community supported by government (especially
extension),
provincial offices, church groups, NGOs, etc.
• Initial focus on ICM would be most productive in a
representative area e.g. Coral Coast
• Urgent national issues related to ICM need addressing
e.g. coral harvesting
• Strengthen mechanisms for conflict resolution
for ICM issues
Results so far:
Action Plan carried through the University of the South
Pacific
1. Establish provincial working group in pilot area: Coral Coast
2. Conduct training and planning workshops for working group
3. Early actions
– water quality research
– expansion of LMMAs
– Development and translation of awareness material
4. Conduct public and village meetings to identify issues and
potential actions
5. Incorporate gender equity and demographic perspectives
14m
Ecuador
Coastal
Resources
Management
Program
WHY THE COASTAL MANAGEMENT INITIATIVE
STARTED
The El Niño of 1982-83 destroyed
coastal villages and infrastructure
but fostered a boom in aquaculture
Shrimp mariculture expanded rapidly
throughout coastal estuaries in the
1980s, concerns about decline in
production after 1983
Mangrove forest area and habitat
continuing to decline.
Tourism development was beginning
along the mainland coast.
Expansion of Aquaculture and Loss of Mangroves
1976-1984
1995
ICM Context
Trend in per capita income
In 1985, Ecuador still took a sectoral approach to
natural resources management.
The country is buffeted by political and economic
cycles.
Rapid coastal population growth and migration to
coastal cities
Weak provincial and local government
Little capacity for environmental planning
and management
THE COASTAL MANAGEMENT STRATEGY
Initial phase (1986-1993):
Create a national coordinating mechanism
Unify enforcement activities
Identify and address key coastwide issues
Work in small areas
Carry out early actions
Build public awareness and education
THE COASTAL MANAGEMENT STRATEGY
Second phase (1994-2001):
Secure funding for projects:
livelihood,
sanitation,
mangrove policy
site conservation
Work with municipalities on shore
management
Consolidate legal and administrative
status of program
Extend enforcement activities
Build capacity at national and local levels
to implement local plans
Add an additional special area zone
THE RESULTS SO FAR
•Survived 5 presidents
• Hundreds of local user groups
•Executive decrees
• Consolidated administrative operations
• Major international loan
•Community management success stories
• Sanitation projects implemented
• National policy reform
• Coast-wide diagnoses of hazards,
coastal features
• Strategic development proposal
for the coastal region
•Selling the coastal zone for
shrimp farms declared unconstitutional
Reflections on
strategy
+
+
Work in specific places
(Special area zones),
carry out early actions,
emphasize education and
awareness
Identify key issues
nationwide, survey
Create a national
coordination mechanism good sites for new
special area zones
for law enforcement,
technical assistance
+
+
The Rhode Island Story
10m
Where?
97% of coast covered
The Coastal Zone Management
Act of 1972
Mission statement
• Preserve, protect, develop and where
possible restore and improve coastal
resources for this and future generations
• Assist states in carrying out their
responsibilities
• Promote the use of special area plans in
areas of particular concern
Strategies
Voluntary
Incentives
• State programs
must protect the
federal interest
• Federal decisions
must be consistent
with state programs
• State programs
must meet nine
standards
• A funding and
implementation
partnership with the
federal government
WHY COASTAL MANAGEMENT STARTED
IN RHODE ISLAND
In 1970, RI had no overall policies for developing and
conserving Narragansett Bay
Most decisions were in the hands of local boards and
commissions with no technical skills or environmental policies
A small group proposed a state initiative to develop a
marine and coastal development policy for the state’s most
important natural resource
Raw sewage was discharged
from cities at the head of
the estuary
Numerous large industrial
facilities were proposed for
open lands and excess
military facilities
Coastal lagoons were
surrounded by vacation
cottages, and modified in
ways that damaged fisheries
Hurricanes had caused loss
of life and property damage
THE COASTAL MANAGEMENT STRATEGY
Phase 1 (1971-1977)
Create new regulatory agency
at the state level, composed
of mainly local representatives
Compromise with outside forces
and federal program to gain
approval
Obtain funding to carry out
studies, public education, and
prepare policies.
Regulate while planning.
Partner with state university
No new staff or reorganization
The Rhode Island
Coastal
Resources
Management
Council
The coast is more than just the shore
Coastal uses are proposed in areas of
critical habitat and storm vulnerability
THE COASTAL MANAGEMENT STRATEGY
Phase 2 (1977-1984)
Revise plan to clearly specify
shore and water area uses
and criteria, with extensive
consultation
Prepare more detailed plans
with local participation for
special areas.
Developed Beyond Carrying Capacity
Regulate far more efficiently.
Lands of Critical Concern
Shift the balance in funding
sources to local
Self Sustaining Lands
Rules and
Regs
Urban
Harbor
Statewide Policies
and regulations
Special Area
Plans
Unique
areas
Guidelines for
local harbors
Coastal
Lagoons
Shared
waters
THE COASTAL MANAGEMENT STRATEGY
Phase 3 (1984-2002)
Preserve public access
Address non-point pollution
Carry out ecosystem restoration
projects
Improve enforcement
Reorganize and consolidate
staff and offices
Charge higher permit fees
Improve constituency support
Defend legal jurisdiction
Work with municipalities to
manage harbors and mitigate
storm hazards
Tidal
Deltas
Ninigret Pond July 1999
Potential Eelgrass Restoration Sites
Essential ingredients of an integrated,
learning approach
Use carefully selected pilot projects to
test strategies
Complete the loop between planning and
implementation as frequently as possible
to allow for learning by doing
Monitor program activities in a way that
provides timely, useful information that
managers can and will act upon
5m
More ingredients of an integrated,
learning approach
•Create “spaces” for regular,
participatory self-assessments of program
objectives, activities and outcomes.
•Integrate Across Sectors and through
layers of management: Build a Better Nest
•Invest in Individual and Institutional
Capacity
•Match Program Activities to the Capability
of the Institutions.
Local success requires considering many
variables
1
traditional
local research
knowledge available
efforts
compellingness of
problem
(or benefits) 2
local participation,
reliable
capacity building, &
knowledge
support
engaged local
local problem ID
teams
donor
and shared vision
3
budget
local action plans
and strategy
local arrangements
& leadership
learning from
"failures""
Local
Project or
Initiative
local project
budgets
4
behavior
consistent w/plans
5
local project
successes
compliance
aligned local laws
and incentives
But the local
view is not enough...
local coastal
quality
local committement
to process
economic quality
of life
Spreading the word about local
coastal management
+
+
Local
Project
initiatives
Building the
strength of the
local program
Regional and
national level
activities
+
Factors and
conditions which
spread the word to
people in other
sites
+
Success also requires using and
building a strong nest that involves
the regional and national levels
•Attention needs to be placed on achieving a
common vision among levels before launching
detailed work
•An expression of national legitimacy be provided
to the local effort
•National leadership and supportive administrative
culture
•Decentralization processes are in place
•Credible regional and local level
contributions
•Alertness to dis-abling laws that contradict
local goals
•Alignment, or consistency, in decisions
among levels
•Accountability mechanisms and procedures
in place
Some “pre-program” factors to
consider:
Choose a site which has a local catalyst
for action ( which could be a person or a
focusing event)
Assure from the outset that coastal management
initiative is perceived as relevant and
potentially helpful
Favor a setting that is sufficiently
open to ideas and will draw upon help from
the outside
Find potential supporting groups and
institutions that exhibit the possibility of
becoming productively engaged
Highlight prior successful experiences by
the community or local group in working
with outside collaborators
Clarify the incentives which exist or which
might be brought to the fore that can
encourage local change
0m
Don Robadue and Lynne Hale
Coastal Resources Center, University of Rhode Island
2.
1.
USAID
Funding to
start a pilot
activity in
Minihasa
+
+
+
Regional and
national
level
activities
Local
project or
+
initiative
4.
Success in
pilot villages in
North Sulawesi
Factors and
conditions
which spread
the word to
people in other
sites
+
Minahasa district
adopts a policy to
support ICM in all
villages
3.
Philippines, Sri
Lanka and Ecuador
informs Indonesia
project
Spreading the word about
local coastal management
Building the strength
of the local program
Experience in
5.
Other North Sulawesi
districts and other
Indonesia provinces
consider supporting ICM
in villages
Coastal conservation in Sri Lanka
Sri Lanka
WHY THE COASTAL MANAGEMENT INITIATIVE
STARTED
•The island nation of Sri Lanka
has 2,825 km of coast line
•Tourism and transportation
infrastructure directly
threatened by coastal erosion
•Loss of future development
sites
•Conflicts between traditional
shore users such as fishers and
hotels
•Reduced public access to
shore
•Loss of coastal cultural and
archeological sites
•Expensive shore protection
schemes that proved
ineffective
ICM Context
•Coast Conservation Act of 1981
•Coast Conservation Department (CCD)
•National Coastal Management Plan
•Permit program for all development
•. Scientific and socio-economic studies
•Integrated Strategies for Erosion,
Habitats, Historic sites
•Institutionalize learning, adaptation and
revision
•CCD staff implemented as they planned
•CCD had a recurrent budget from
government for salaries, studies and
public works
•CCD matched this effectively with donor
provided funding
THE COASTAL MANAGEMENT STRATEGY
--1990 to 1995, CCD reviewed more
that 2700 coastal permit applications
--Coastal resources mapped/
characterized
--Assessed 10 major developments
--Launched several major policy and
awareness-building initiatives
--Reached out to other agencies, and
carried out non-regulatory actions
--Coast 2000 assessment, to rethink
the program's focus;
Revised national plan
Became more pro-active to address
community concerns
-- Identified 28 coastal sites requiring
Special Area Management Planning
(SAMP)
THE RESULTS SO FAR
--Revised the coastal regulations
and plan in 1997
--Adopted a variable setback
regulation which recognized the
different rates of erosion
--Maintained responsibility for
major permits, worked to
delegate minor permits to districts
--Completed two SAMPs on its
own, others have been initiated
by different groups under the
umbrella of the national coastal
plan
--Continues to attract and
successfully guide expertise and
resources from donors.
LESSONS AND NEXT STEPS
--The program has found it necessary to systematically rethink and
revamp its program over time
--Building internal agency as well as local human capacity has been an
essential ingredient of success
--The coastal program is solidly embedded within the national
environmental policy framework
--The CCD has a limited constituency, and has not cultivated a broader
public constituency
--The program pre-dates the formation of the Environment
Department, so newer initiatives tend to be carried out by other
government agencies
Tourism Guidelines in Sri Lanka
--Guidelines help
tourism developers
comply with regulatory
requirements
--Avoid the costs
associated with redesign
or relocation of poorly
conceived projects
WHY THE COASTAL MANAGEMENT INITIATIVE
STARTED
Collapse of traditional clove
industry; rapid rise in tourism as
major development activity
Coastal resources in relatively good
condition; however signs of
depletion/degradation
increasing
Government saw ICM as a way to
incorporate a rapidly expanding
tourism industry in a manner
that maintains the environment
and benefits the local people
within a context of traditional
villages
ICM Context
National Environment Policy
adopted-calls for coastal
element
Sectoral agencies have
regulatory authority over
coastal development
New Environment Department
has coordinating and
advisory power only
Local Districts have little
capacity or resources
THE COASTAL MANAGEMENT STRATEGY
Representative pilot site
ICM Action Strategy formulated
to allow national government to
“practice” ICM before launching
national program
Processes utilized
Interagency Core ICM Team
working closely with district
officials and resource users
ICM Policy process explicitly
used to guide the planning
process
Participatory processes
throughout to gain stakeholder
ownership
Capacity building incorporated in
all activities
THE RESULTS SO FAR
Action Plan for pilot site
Short term actions (can be
accomplished with existing
resources / programs)
Longer term planning and
implementation actions
Creation of Coastal Resources
Management Committee to
Oversee voluntary
implementation of the Action
Plan
Development of national
coastal strategy
LESSONS AND NEXT STEPS
Demonstration site an
effective catalyst for
national program
development
Voluntary nature of program
a plus in planning; a
minus in implementation
Clear, structured
mechanisms to like
local/national tracks key
Having clearly defined action
plan helps attract
resources for plan
implementation
WHY THE COASTAL MANAGEMENT INITIATIVE
STARTED
Severe poverty of coastal
people
Fisheries / mangrove resources
in decline but essential for
food security/fuelwood
Opportunities for national
development largely coastal,
but all with potential to harm
resources upon which poor
people depend
Local successful demonstration
project impacts limited
ICM Context
Regional Ministerial Process
calling for ICM
Multiple successful, but isolated
local ICM pilot projects
Approval process for coastal
development projects neither
clear nor transparent
Intersectoral structures at
national level non-existent
Broad National Environment
Policy with little
implementation
Land Cover Change
Case study: Mangrove Change 1990-2000
Mangrove loss
1990-2000
MARINE AND COASTAL
PROGRAMMES
IN TANZANIA
THE COASTAL MANAGEMENT STRATEGY
Build on and from existing local
projects
Enhance the ability of sectoral
agencies to work together
towards common goals
Utilize intersectoral/ interagency
Working Groups to
accomplish major ICM tasks
Build a village-based
constituency for ICM through
consultation and a Coastal
Environmental Awards
Scheme
Rely on existing laws
THE RESULTS SO FAR
National Coastal Strategy
that
- supports coastal district planning
- coordinated, transparent
guidelines and processes for
review and approval of coastal
developments (mariculture,
tourism)
- encourages and supports
planning for special
geographic areas
- develops and utilizes scientific
information/monitors progress
- Builds human capacity and
encourages participation
- Expanded Technical Capacity in
ICM from “learning by doing.”
LESSONS AND NEXT STEPS
Participatory process focused on
government as well as
resource user participation
Key role of Department Directors,
MPs
Inter-agency conflicts have
slowed adoption process;
however “pilot”
implementation / CEAS is
building support for adoption
Intersectoral groups need strong
secretariat support if they are
to accomplish tasks
Donor support attracted to the
program
The US Coastal Management
Program
• Established by
law in 1972
• Voluntary
• 32 states
participate
• 97% of the US
coastline is
covered
• Assure public
• Protect natural
participation
resources
• Coordinate
• Redevelop urban
decisions and
waterfronts,
management
protect historic
program
State Coastal
resources
• Give priority to
Management
water dependent
• Provide for
uses
Programs
public access
• Minimize the
• Comprehensive
damage from
planning for living
natural hazards
marine resources.
• Intergovernmental
coordination
Alaska
WHY THE COASTAL MANAGEMENT INITIATIVE
STARTED
Abundant natural resources
Subsistence-based traditional
villages with tribal government
No mechanism to integrate tribal
and state government
State recognized the need to…
Balance resource protection with
resource development
Involve Alaskans in decisions about
resource use and protection
Simplify and increase efficiency of
development permitting process
ICM Context
No local government structures
in rural areas
US Coastal Management Law
Voluntary national / state
partnership
Alaska Coastal Management
Law that required:
- Coastal Council with local,
state and private
representation
- Local level plans
THE COASTAL MANAGEMENT STRATEGY
Local Level Plans in Rural
Areas
Elected board oversees ICM plan
development/implementation
Plans contain:
resource assessments, issue
definition, policy guidance,
implementation strategy
Consistency
Requires that national and local
actions must be consistent with
approved local plans
THE RESULTS SO FAR
Representative, legally
established group to
address coastal issues
More predictability for
developers
Local plans with state and
national approval/legal
standing
Mechanism for national /
local consultation and
dispute resolution
established
LESSONS AND NEXT STEPS
Coastal Boards served as
valuable institutional
mechanisms, beyond ICM
Local planning took longer than
expected
(3 years)
State needed to provide
technical and financial
support to local areas for
planning / implementation
Philippines
WHY THE COASTAL MANAGEMENT INITIATIVE
STARTED
Destruction of Habitat
Overfishing
Subsistence-based resource use
Population Pressure
Foreign Donor driven projects
Country recognized the need
to…
Involve local communities in
decisions about resource use
and protection
ICM Context
Global leaders in
Community-Based CRM
(25% success rate)
Decentralization in ‘91
lead to local
government authority
for coastal waters
Provincial Government has
no legal authority for
coastal waters
Results
in:
THE COASTAL MANAGEMENT STRATEGY
• Developed local CRM
plans with the
community
• Provincial Government
created a CRM office
• Provincial and Local CRM
Technical Working Group
• Resource allocation by
Local Government for
CRM initiatives
• Participatory Resource
Assessments
• Delineation of coastal
waters
THE RESULTS SO FAR
Services provided by the
Provincial CRM office include:
• Data Analysis
• Technical Assistance
• Monitoring and Evaluation
with Community
• Trainings
• Coordination/Information
Exchange
LESSONS AND NEXT STEPS
Basic Elements include:
• Budget allocation for CRM
• Permanent CRM employees
• Technical support from
Scientific community
• Active involvement of local
government & community
Institutionalizing ICM at the
provincial level furthers
sustainability
Developing a provincial CRM
information center