Shared Growth Program (SWIOFish)
Project No. P132123
Terms of Reference for a
Review of the Institutional Arrangements for the Fisheries Sector in the United Republic of
Tanzania
1.
Background
Between 2005-2013 the World Bank financed the Marine and Coastal Environment Management
Project (MACEMP) project which was a US$ 65million project with the objective to strengthen the
sustainable management and use of Tanzania’s Exclusive Economic Zone, territorial seas, and coastal
resources resulting in enhanced revenue collection, reduced threats to the environment, better
livelihoods for participating coastal communities living in the Coastal Districts, and improved
institutional arrangements. MACEMP closed on February 15, 2013 and among the project’s important
achievements were the strengthening and consolidation of fisheries management at the Union level,
and harnessing of $9.3m in revenue to the URT from the offshore fishery. Key issues affecting its
implementation were: 1) over-ambitious project design, involving a multitude of activities and
institutions topics and actors; 2) weak institutional capacity among implementers; 3) early up-scaling
of pilot activities along the entire Tanzanian coastline; and 4) inadequate arrangements for project
monitoring and evaluation, leading to difficulties in assessing project impact.
At the regional level, the World Bank has also been supporting various fisheries projects in the Africa
Region. The most relevant of these is the South West Indian Ocean Fisheries Project (SWIOFP),
which closed on March 31, 2013. The SWIOFP, which brought together all countries in the South
West Indian Ocean, including Kenya, Mozambique, South Africa, Seychelles, Comoros, Madagascar,
Mauritius, Somalia (observer) and Tanzania, was successful in building regional capacity for fisheries
management, including through establishing a network of fisheries researchers and managers, and
developing a regional management framework. Ultimately the Member countries of the SWIO
Fisheries’ Commission (SWIOFC) agreed to reform the Commission, promoting it from an advisory
body to a Regional Fisheries Management Organization (RFMO) of the Coastal States – enabling it to
take binding decisions on fisheries management, and to negotiate in bloc with Distant Water Fishing
Nations. Given the important achievements of SWIOFP, SWIOFC Member Countries have requested
a follow-on project namely– the South West Indian Ocean Fisheries Governance and Shared Growth
Program (SWIOFish).
2.
Program Objectives and Components
The SWIOFish Program, now under preparation, will support regional integration of fisheries
management, while expanding the approach beyond research to strengthen sector governance and
harness the value of coastal and marine fisheries to national economies. The proposed program will be
a phased Adaptable Program Loan (APL), over a 15-year period, using IDA and blended GEF
resources, together with parallel support from other donors and trust funds. Given the importance of
sound fisheries management to livelihoods and economic growth, the Government of Tanzania has
requested to participate in the SWIOFish. The SWIOFish APL-1 includes activities to be
implemented over an initial five-year period, to contribute toward an overall 15-year, 3-phased
program. The first phase, currently under preparation, will begin in an initial group of countries
including Mozambique, Comoros, Seychelles and Tanzania.
The overall SWIOFish Program Development Objective is ‘to increase the sustainable economic
benefits generated from SWIO marine fisheries, and the proportion of those benefits retained within
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the region.’ The Project Development Objective for the SWIOFish APL-1 is ‘to strengthen the
regional and national capacity for effective governance of fisheries and aquaculture.’
A series of complementary regional investments and national investments would achieve the
development objective by: (i) strengthening the countries’ governance capacity to manage fisheries,
including reducing illegal fishing activities; (ii) investments to increase the profitability and
sustainable production of fisheries and aquaculture and the proportion of the value-added captured by
the countries; (iii) supporting policies that share the benefits from sustainable use of marine resources
among the key economic drivers and which prioritizes poverty alleviation through co-management of
fishing communities fisheries; and (iv) building robust regional cooperation on fisheries.
The Program will have four operational components namely: (i) improved governance of fisheries; (ii)
increased fisheries contribution to national economies and (iii) regional collaboration; and (iv) project
management.
The first component will support the development of coherent fisheries policies with a sound
economic rationale and development trajectory as well as human and institutional capacity building to
implement the policies and plans. This component would support the implementation of core policy
instruments. Four primary sets of activities are envisaged: (i) the establishment of a dashboard of
indicators to track the progress of the sector towards its national policy and planning goals and
provide a basis for adaptive management and adjustment of policies and programs; (ii) the economic
management of selected fisheries and aquaculture with a focus on the most economically and socially
important fisheries; (iii) the management of strategic public fisheries infrastructure, on an
economically sound basis, with particular reference to non-performing assets; (iv) design and
implementation of a national framework for small-scale fisheries co-management.
The second component will support: (i) the reduction of critical constraints to business, (ii) viable
community fisheries businesses and SMEs and (iii) strategic hard and soft infrastructure planning and
building.
The third component on regional collaboration will finance activities that will include (i) tuna
fisheries management and on monitoring control and surveillance, directed particularly at Illegal,
Unreported and Unregulated fishing activities; (ii) support for target fisheries and associated
management of bycatch; and flagship species management; (iii) regional knowledge exchange on
fisheries management; and (iv) technical support for the regional coordination process.
The proposed consultancy will contribute to the preparation of project design for Tanzania only.
3.
Country Context
The fishery sector is of great importance to the development of Tanzania, as it is one of
the top three growth sectors. It makes a significant contribution to gross domestic product and is
an important source of foreign exchange earnings. The Tanzanian coastline is 1 424 kilometres
long and the marine fishery is divided into territorial waters that are dominated by artisanal
fisheries and the exclusive economic zone (EEZ), which extends 200 nautical miles off-shore and
is dominated by the commercial fishing industry. The marine component of the fishery sector,
however, is dwarfed by the lake fisheries, but remains very important in coastal areas. Well over
90% of fishers in the marine sector are employed in the smallscale or artisanal fisheries subsector.
Importantly, marine fisheries provide up to 90% of the animal protein in coastal communities and
30% of the animal protein nationally.
The fisheries sector is not governed in a holistic and integrated manner, although there is
a trend to move to better fisheries governance with the most recent laws, most notably the 2004
National Integrated Coastal Environment Management Strategy for mainland, and the Fisheries
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Act (2003 and 2010, for mainland and Zanzibar, respectively), and the establishment of a
common governance regime for the EEZ through the creation of the Deep Sea Fishing Authority,
composed of members from mainland Tanzania and Zanzibar. Due to the political governance
structure of Tanzania and Zanzibar, and as the fisheries sector is not considered a union matter,
Mainland Tanzania and Zanzibar manage their fisheries sectors separately.
The Fisheries Divisions under the Ministry of Livestock and Fisheries Development in mainland
and the Ministry of Fisheries and Livestock in Zanzibar are the competent authorities responsible
for both development and utilization issues pertaining to the fisheries sector. Management of
fisheries is largely the responsibility of the ministries, with many functions devolved to Local
Government Authorities. Efforts to strengthen co-management are also on-going, with the
devolution of some management responsibilities to organized fishing communities (BMUs).
The main challenges for Tanzanian fisheries management include: (i) insufficient resources,
including financial and human capacity to adequately execute management functions; (ii) the
largely open access nature of fisheries; (iii) limited research capacity; (iv) poor integration
between research and management; (v) weak integration between the local and national levels of
fisheries management, with low capacity of local communities and resource users; and (vi)
limited harmonization between Zanzibar and mainland Tanzania fisheries management in internal
and territorial waters (with the notable exception of the common governance regime for the EEZ).
4.
Objectives and scope of the consultancy assignment
The consultancy assignment is aimed at achieving an understanding of the adequacy and
efficiency of the institutional arrangements for the fisheries sector in Tanzania. The Consultant is
expected to undertake a review of the institutional arrangements relevant to fisheries management
in Tanzania and prepare a comprehensive report incorporating the findings and recommendations.
Accordingly, the report should:
o Comprehensively and clearly describe which Government agencies have
responsibility over aspects of the fisheries sector in Tanzania1, including vision,
mission and goals as well as its legal basis and character. Clearly differentiate the
geographical and thematic jurisdiction of each, identifying areas where overlaps
or lack of clarity exist(s).
o Analyse the structures, competencies and functions of the Government entities
responsible for the sector and how they are staffed and resourced including an
organogram of the roles and responsibilities for each of the agencies identified.
Specific attention should be paid to fisheries management (including licensing),
Management, Control and Surveillance (MCS; including management of IUU
fishing), marine conservation, training and research.
o Clearly describe the adequacy of the existing institutional arrangements and to the
extent possible, make recommendations on what could be done to improve the
situation in terms of structure, systems, processes, technology and capacity of the
people to fill the gaps.
o Prepare a detailed mapping of the various roles and responsibilities of relevant
institutions in terms of the emerging and best-case-scenario requirements and
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Institutions with marine and coastal fisheries responsibilities in the United Republic of Tanzania include those
working on research, resource management, policing/enforcement, and other key maritime functions (e.g.
Maritime Authority, safety organizations)
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identifying the gaps vis-à-vis the existing role-holders and making specific
recommendations as to how to fill them.
o Provide best practice examples from other countries with strong fisheries
institutions and governance arrangements, and make recommendations as to how
these may be relevant to the situation in Tanzania. Be prepared to discuss this in
detail with the Government.
o Highlight the key challenges that constrain the institutional arrangements
currently in place as well as the strategic issues that are relevant to the sector and
how and what institutional enhancements or reforms may best be undertaken to
enhance the effectiveness and efficiency of these agencies.
o Buildling upon the activities above, develop a five-year work program outlining
objectives and activities to strengthen Tanzania’s fisheries institutions. This
program will include a detailed implementation and capacity building plan, with
specific milestones for assessing and reviewing the effectiveness of the program’s
harmonization effort.
o The report should also identify the role and responsibilities of each institution
responsible for fisheries in the implementation of the future Bank supported
program, SWIOFish. It will recommend mechanisms for ensuring adequate and
effective participation of the United Republic of Tanzania within the regional
project context.
o Develop terms of reference for each institution for the implementation of the
SWIOFish, which will serve as the basis for Memoranda of Understanding to be
signed by the institutions with the implementing agency of the SWIOFish before
implementation starts.
5.
Expected Outputs/ Products
The consultant will be expected to deliver the following:
(i) An inception report with clear strategy, work plan and preliminary work schedule and
proposed structure of the final report;
(ii) A draft report containing at least a summary of the items mentioned in Section 4 (Scope of
Work);
(iii) A presentation summarizing the results of the draft report including initial recommendation
will be presented;
(iv) A final report fully addressing all the items mentioned in Section 4 (Scope of Work) including
stakeholder input and feedback;
(v) A record of all meetings, focus group discussions, stakeholder consultation meetings,
database of the key institutional documents and any other reports deemed relevant.
6.
Timing and Reporting
The assignment is expected to last The assignment is expected to last for 21 working days,
including one mission, including one mission to Tanzania and Zanzibar.
The following timelines are expected:
Activity
Timing / deadline
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1. Submission of inception report and proposed Within 14 working days after signing
project structure for the final report
the contract
2. Submission of draft report
October 21, 2013
3. Present the full draft report to stakeholders for October 28, 2013
review (by video)
4. Submission of final report with all expected November 15, 2013
outputs incorporating recommendations and
stakeholder inputs
6.
Qualifications and Experience
The successful candidate must have an M.S. or Ph.D. in a relevant discipline and at least
10 years of experience in advising Governments on institutional reforms and fisheries, including
in developing countries. S/he should have excellent writing and communication skills in English.
Extra credit for work in the South West Indian Ocean
7.
Reporting and Supervision
Contractual arrangements with the consultant will be managed by the Task Team Leader
for the project. On the quality of the expected output however, the Task Team Leader will liaise
and seek the opinion of the concerned team members.
Mainland counterpart: Mrs. Merisia Sebastian
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