GLOBAL ENVIRONMENT FACILITY
PROPOSAL FOR PROJECT DEVELOPMENT FUNDS (PDF)
BLOCK B GRANT
Program Title:
Country:
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Operational Program:
Country Eligibility:
Implementing Agency:
National Partner:
Estimated Total Program Cost:
PDF Block B Funds Requested:
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Duration of Program Activities:
Benin Coastal Zone Integrated Management Program
Benin
Biodiversity
Coastal, marine, and freshwater ecosytems (#2)
CBD Ratified on 6/30/94
World Bank
Ministry of Environment, Housing and Urban Planning
USD : 30 Million (GEF 5 Million)
USD 350,000
USD 780,000 (USD 210,000 Govt ; USD 570,000
Netherlands)
No
12 Months
6 years
1.- Project background
1.1. General characteristics:
Located in the Gulf of Benin, Benin coastal zone extends over 125 km from the East to the
West between Togo and Nigeria and stretches over about 60 km along the Atlantic Ocean
within the lands.
At geological level, the coastal zone has potentialities such as deposits of limestone, clay (for
tile works), pure silica, gravel and house sand. There are some serious indications about the
existence of oil fields on Allada plateau. These different deposits bear today several activities,
which bring substantial incomes to inhabitants even though craftsmen carry out these activities
with no rational practice for sustainable management. Apart from the fact that it concentrates
nearly all industrial potentialities of the country, the coastal zone covers 3 out of the 8 Benin
agro-ecological zones. This testifies its important role in national agricultural production relative
to food and export production. As a matter of fact, the zone is the exclusive area where
pineapple and palm oil (export product classified second just after cotton in Benin) is cultivated
and exported. Great eco-touristic potentialities exist and need to be valorised rationally,
especially in the coastal zone. 40,000 persons live on salt production and over 300,000 live
directly on continental fish breeding.
1.2. Biological importance:
The area is eligible for GEF support based on biological significance. The coast of Benin
includes important coastal ecosystems, including wetlands of international importance. This
importance can be highlighted by also mentioning that the coast of Benin includes 3 "Global
200" priority ecoregions as identified by WWF: (i) Congolian coastal forests, (ii) GuineanCongolian coastal mangroves, and (iii) Gulf of Guinea marine ecosystems. Additionally, the
"Global Representative System of Marine Protected Areas" (IUCN-WB) lists Benin's coast as a
priority for conservation and suggests the establishment of the following marine protected
areas: "Reserve de la Biosphere du Djessin," "Wetlands of the coastal plains," and "Lake
Nokoue and Porto Novo."
It is one of the few parts of the Gulf of Benin where the mangrove ecosystem, either in natural
state or thanks to human activities and other varieties of vegetation, particularly palm grove
and some useful forest species, not less important for human activities, can still be found.
Benin coastal zone shelter a very rich and diversified fauna which includes, according to
current knowledge, an endemic specie i.e. Cercopithecus erythrogaster and a population of
lamantins. All are unfortunately endangered. Out of 8,700 sq.km (representing 7.7 % of the
national territory area) covered by the coastal zone, 3,460 sq.km are wetlands with
extraordinary ecological and economic potentialities. As a matter of fact, nearly 60 % of fish
known in Africa can be found in Benin wetlands sites. The fowl fauna comprises more than 60
families including more than hundred species. Likewise, Benin wetlands are sites of
reproduction for palaearctic migratory birds. This justifies the admission in January 2000 of two
large Benin wetland sites on RAMSAR list. These sites represent mangrove zones as well as
lagoon and coastal areas of major importance not only for people living there but also for
biological diversity conservation.
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The East Complex sites (RAMSAR site n° 1017). With a total area of 91,600 ha (6° 21 –
6°57 North, 2°20 – 2°45 East), it covers the low valley of Oueme River, Porto-Novo Lagoon
and Lake Nokoue. This site comprises a large and important variety of vegetation namely :
 swampy forests made up of Mitrahyna inermis and Raphia hookeri
 forests liable to periodic flooding, populated by Berlinia Grandiflora and Dalium
Guineense
 grasslands liable to flooding full of Paspalum vaginatum and Typha australis
 a mangrove plantation of Rizophora racemosa and floating plants where prevail
Eichornia crassipes and Pista stratiotes.
The site is rich in fish fauna with 78 species, namely Tilapia (07 species) and particularly
Sarotherodon melanotheron and Tilapia guineensis. There can also be found a fowl fauna
comprising 168 species (1996) within which are mostly herons, limicols, birds of prey,
dendrocygns and some terns. Non fowl fauna is essentially made up of mongooses,
potamocheres, seacows, Sebae and Royal pythons, land and sea tortoises, and few primates
(Cercopithecus erythrogaster). Fish and agricultural production as well as pickings are
dominating activities in this area. Fish production (fish, crabs and shrimps) is nearly 21,000
tons per year and contributes to the life of about 200,000 persons (professional and seasonal
fishers, wholesale fishmongers, fishing nets and pirogue (canoe) makers). Agricultural
production is based on river rising and falling cultivation, market garden products, cassava,
sugar cane and palm trees. Picking activities, mostly carried out by women represent their
source of revenue and include the picking of :
 Typha and rush for mat making
 Thalia which serves for biodegradable/organic food wrappings
 Raphia hookeri which helps for the making of roof, building frame, ceilings, animal
enclosures, poles and for palm wine extraction and many other economic uses.
The West Complex sites (RAMSAR site n° 1018). It covers the low valley of Couffo River,
the coastal lagoon, Aho Millrace and Lake Aheme representing an area of 47,500 ha (6°16 –
6°45 North, 1°40 – 2°20 East). The flora is made up of :
 mangroves populated by Rizophora, Racemosa and Avicennia sp.
 swampy savannah full of Andropogon gayanus
 grasslands of Paspalum vaginatum and Phoenix reclinata liable to flooding
 artificial developments of Cocos nucifera, Eleais Guineensis and Acacia auriculiformis.
Fish fauna of this site is like that found in the preceding site but the number of species here is
71. Non fowl fauna is also similar to that of the above-mentioned site. However, habitats
located in coastal lagoon, Aho Millrace and Couffo River low valley shelter native and migratory
birds species including afro-tropical or palaeartic species. Fish production represents the main
economic activity of people living in that site. Production rate is about 5000 tons per year.
Fishing occupies about 10,000 persons whereas swam crabs and oysters capture helps
women increase their incomes mainly drawn from production of salt and Phoenix reclinata
wine. Agricultural production is mainly turned towards maize and market garden cultivation.
One can also found in the site coconut trees plantations.
As far as marine biological diversity is concerned, Benin coast is frequently visited by many
marine tortoises’ species. Information obtained from fishermen enable to identify green tortoise
(Chelonia mydas), luth tortoise (Dermochelys coriacea), olive-coloured tortoise (Lepidochelys
olivacea), loggerhead turtle (Caretta caretta) and overlapped tortoise (Eretmochelys imbricata).
They often lay eggs on seaside.
1.3. Threats
The coastal zone shelters more than 50 % of Benin population and produces more than 70 %
of gross domestic product (GDP), although it represents only 7.7 % of the total area of the
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country. It is therefore an area of great economic and geo-strategically importance, which is
under a demographic growth pressure and a spontaneous, almost anarchical development,
due to a total lack of management policy. As a matter of fact, current practices and techniques
related to fishing reveal the present critical situation. Facing constant decrease of fish stocks,
inhabitants developed a resource utilisation system called “Acajas” (enclosure) by which they
divide rivers into small portions (comparable to kind of real estate areas) over which they
deploy their authority. This brings about constant conflicting resource management, and have
some proved negative impacts on rivers filling up quickly and therefore rapidly decreasing fish
stocks. As a consequence and due to the human pressure competing for fish resources the
fishing net meshes get reduced constantly. This leads to the loss of rivers’ overall productivity
capacities. The needs for wood to build “Acajas”, houses, and for fire cause supplementary
permanent pressure on the mangrove vegetation because there are no other sources of
supply to satisfy those needs.
An investigation carried out within the inhabitants shows that 60 % of Benin beaches are used
by tortoise to lay eggs. Unfortunately no portion of the coast has a legal or operational
protection status. This makes it possible for people to pick up eggs because Benin beaches
are very populated and frequently visited.
1.4. Institutional issues
The on-going decentralisation process represents an outstanding factor in environmental
management practices in Benin owing mainly to advantages as well as drawbacks associated
with it. The lack of population involvement in the identification, formulation and execution of
development tasks, particularly concerning environmental management represents, up today,
one of the reasons why many projects failed or knew very low success. This lack of
involvement is due to the traditional approach of project management by relevant
governmental bodies, and to the non-existence of democracy at local level because the
political system was centralised. Decentralisation process, for which all necessary regulations
are already set up, will correct this shortcoming. In fact, it is transferred as a whole, by law to
future municipality, the responsibility to formulate and implement local development policies
and programs particularly regarding land development and environmental protection in
accordance with national orientations. In this respect, local elected representatives and
populations have the necessary (legal) powers to manage well their local resources according
to their own needs and options. Nevertheless, this regained freedom could be a worsening
factor for the degradation of the natural resources and the general environment. An
assessment revealed that only 3 future municipalities could get financial resources necessary
to face management costs and some investment requirements. This is due to local economies
structures which cannot generate subsequent tax fees while people derive their incomes from
activities exclusively based on direct exploitation, and often unsustainable, of natural resources
(agriculture, quarries exploitation). There is a great temptation for future locally elected
representatives to follow development options based on exclusive exploitation of natural
resources. For the 30 municipalities located in the coastal zone, quarries exploitation will
increase coastal erosion and consequently result in :
 biological diversity losses, especially mangroves
 over-fishing
 over-exploitation of farmlands and
 anarchical land occupation and speculation.
1.5. Needs and opportunities
Studies carried out in 1996 by the CNO1 show that fish biomes is respectively 20,000 tons for
pelagic fish, 6,000 tons for dermersal ones whereas the required global production is 9,500
tons. It is necessary to work so as to keep on and increase this level of production. The same
source reveals that there is a coral reef barrier at about 50 m depth but data are incomplete
and do not allow an effective knowledge of this biological wealth. Generally, there is a lack of
1
CNO – Comité National Océanographique (National Oceanographic Commission)
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information for a deep understanding of marine biological diversity in Benin. Yet, this is
required to meet the obligations deriving from the (i) “Abidjan Convention on Protection,
Management and Development of Marine Environment of Central and West African Coast”, (ii)
the “Convention Migratory Species Conservation”, (iii) the “RAMSAR Convention” and the
“Convention on Biological Diversity”.
The possibility to involve all stakeholders to take part in this program and for holding intermunicipal discussions likely to facilitate integrated interventions remains the crucial factor for
success for a sustainable coastal zone management program.
2.- Project objectives and justification
2.1. The Coastal Zone Integrated Management Program (CZIMP) is one of the major
components of the Benin Environmental Management Program (PNGE) under preparation by
the Ministry in charge of the Environment. The formulation of this program is an answer to the
need for a better coherence in national efforts for environmental management and protection. In
particular, the Program aims at implementing the NEAP, adopted by Benin, which represents a
program-document for the environmental policy. Seven years after its adoption, and despite the
execution of several actions (projects) which required important funds, the results obtained are
not successful. This is due to the fact that interventions were not integrated in sectoral policies
and brought about obvious repetitions and difficulties for evaluating their effective impacts. During
half-term review of PGE2, a national workshop adopted a Program called PNGE3 which
comprises an important component related to coastal zone integrated management. Various
financial donors who expressed their agreement with such an approach validated the option.
Therefore, the Coastal Zone Integrated Management Program fits into the PNGE multi-donor
programmatic process. The different components of PNGE are :
 Development of Environmental Management Tools
 Implementation of International Conventions
 Rational and Sustainable Waste Management
 Support to Local Environmental Management Initiatives
 Coastal Zone Integrated Management
 Transport and Pollution
2.2. The main objective of the CZIMP is to contribute to a sustainable management of the coastal
zone and biological diversity (of national and global interest) with the view to a sustainable
development of the country through the setting up of legal, economic and technical instruments,
and socio-political conditions.
Specific objectives are related to :
a) availability of a national policy for the coastal zone management
b) availability of the Coastal Zone Master Plan
c) drawing up of legal, institutional and economic incentive instruments for the compliance
with the Coastal Zone Master Plan
d) setting up clear management rules for local managers and decision-makers
e) protection of biological diversity and sensible areas of the coastal zone with a special
emphasis on the two RAMSAR sites and marine biological diversity
f) valorisation of information collected on the coastal zone
g) institutional co-ordination of interventions in the coastal zone is ensured.
2.3.
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Justification: In spite of its strategic importance for national development, there has never
been a coherent and concerted development and planning program taking specifically into
account the coastal zone. As a matter of fact, the development of this important socioeconomic and environmental area is due, up to now, to spontaneous vitality of various actors.
The consequence is that actions are carried out without regard to physical and human milieu
constraints and potentialities. In this context, the increasing demographic pressure due to
attraction made by Cotonou (Benin economic capital) on the remaining part of the country
leads to co-relative increase of demand for all kind of resources (human habitats, food, energy,
PGE – Projet de Gestion Environnementale (Environmental Management Project)
PNGE – Programme National de Gestion de l’Environnement (National Environmental Management Program)
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sources of income, etc.). Since the beginning of the democratisation process in 1990,
progressive development of economic activities have been noted, marked by an increase in
investments and a boom of some sectors such as tourism, hotel business and building. In
addition, Benin coastal zone is part of “the great conurbation under construction” from Lagos
(Nigeria) to Abidjan (Côte d’Ivoire). This brings out an urban dynamic materialised in Benin by
a very rapid but disordered growth of Cotonou. These major factors of land dynamics lead to a
heavy degradation of the coastal zone where basic balances are near to be broken up. Thus,
this threat is noticeable through various present counter-functioning :
- loss of productivity of different ecosystems coupled with an excessive exploitation of fish
resources, loss of genetic capital as well as wetlands and biological diversity degradation
- coastal erosion and salt intrusion
- invasion of rivers by water hyacinth
- increasing land speculation and an anarchical land occupation coupled with uncontrolled
landfill sites
- uncontrolled development of tourism business on the coast and sometimes on the edge of
the shore
- uncontrolled urban development along the whole coastal system
- general infrastructure and equipment degradation
- occupation of zones which are unhealthy and unsuitable for living
- constant degradation of the living environment (pollution, flood, inefficient wastes
management).
2.4.
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Complementary on-going activities
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The Project entitled “National strategy and action plan for biological diversity (Benin) and
country report to the conference of parties”: Jointly financed by the UNDP and national
budget, it was carried out by a Technical Committee of the DE4 and aims at formulating a
national policy for the conservation of the biological diversity, and setting up a database related
to national biological resources. A first draft report on national biological diversity was made
available and systematic studies of the flora are still going on throughout the country. At the
end of this project phase the prepared action plan will still have to be implemented.
In this respect, the CZIMP, which major objective is a better management of the coastal
environment so as to ensure a sustainable conservation of ecosystems, represents the first
implementation program of the National Biodiversity Action Plan.
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The Coastal Zone Master Plan elaboration process : Supported by ABE5 on PGE funds, cofinanced by IDA and national budget, this process aims at providing elements for rational
management of the coastal area with regard to all constraints, advantages and importance of
this area. It is expected that at the end of the process, some consensual documents for
orientation and decision making relative to coastal zone land management opposable to the
administration and applicable to population will be elaborated. PGE, the current main actor
concerning management of the Coastal Zone Master Plan and representing presently the sole
source of financing, is expected to be extended possibly until 2001 (official closure was
planned for 1999). Taking into account the process evolution, PGE will then hand over the
process to the program PNGE (currently under preparation).
PNGE will finalise the plan and disseminate it to the large public.
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The project “Large Marine Ecosystem in the Gulf of Guinea”: Supported by GEF, is a subregional project, co-ordinated at national level by the Environment and Hydraulic Department
and aims to reduce water pollution and to ensure the conservation of the Gulf of Guinea
biological diversity shared by six coastal countries. A diagnostic report entitled “Benin coastal
zone Profile” is available.
Concrete actions to help solve the identified issues have not been considered yet simply
because of the current non-existence of neither a national coastal zone management strategy
nor an action plan and lack of financial resources.
DE – Direction de l’Environnement (Environment Service)
ABE – Agence Béninoise pour l’Environnement (Benin Environmental Protection Agency)
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The setting up of a “Land Development Policy and Strategy” (POSAT6) : Entirely supported
by the national budget, this initiative aims at endowing the country with a policy and strategy
document which will outline a rationale for land management, especially in a context of
decentralisation. Carried out by the DAT7, the process final cost is not known but the
diagnostic study costs were about 30 millions CFA francs. The document is under finalisation
and will be adopted by the Government by the end of 2001 at the latest.
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Co-operation for Benin Coastal Zone Management : This initiative has been initiated by the
Ministry of Rural Development. The costs incurred are not known. The objective is to bring
together all actors involved in the coastal zone with activities linked to agriculture and to lay the
foundation for a sustainable agricultural sector management. The results will help improve the
conclusions of agricultural sector master plan already completed under the support of national
budget.
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National Tourism Policy : Formulated by the Ministry in charge of tourism, in co-operation
with other national competence, this policy document even went through an Environmental
Impact Assessment. It is entirely supported by national budget. This policy aims at optimising
the use of Benin tourism and eco-tourism with regard to sustainability issues.
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The Project “Valorisation of Coastal Zone Tourism in Benin and Togo through an
Integrated Management of Cultural and Natural Resources”. This UNESCO initiative,
seemingly, interests French Development Agency. The project is presently under preparation
and ABE has been invited to take part to the forthcoming environmental assessment.
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The “South Benin Wetlands Development Program” : Entirely supported by the
Netherlands in the framework of quadripartite co-operation (Benin – Bhutan – Costa-Rica – the
Netherlands) for sustainable development, this Program costs about 1.2 billions of CFA francs.
The three-year phase (1998-2000) aims at drawing up the national wetland management
strategy, identifying priority action for South-Benin wetlands under threat.
In this respect, two sites have already been classified as RAMSAR sites since January 2000.
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“South-Benin Rivers Development Program” : This program will carry out four subprograms (sustainable level of fishing, restoration of fishing resources, farmer’s organisation
and forestry). In this respect, a sectoral meeting will be organised and the administration in
charge of fishing reinforced. The program has not yet been financed. Supported by the group
of African Development Bank, diagnostic and feasibility studies as well as sub-programs for
identification have been already completed.
2.5. Identified weaknesses and experiences up to now
Despite these efforts the following experiences have been made and evaluated and will
therefore be addressed by CZIMP:
a) A lack of co-ordination between several projects which most often leads to repetition. At
national level, efforts for integrated co-ordination and planning between structures responsible
for project preparation and implementation remained very embryonic and therefore insufficient.
Development action management has mostly been carried out according to a vertical
approach. This is reinforced by absence of population’s involvement.
b) A lack of basic information to follow-up impacts of efforts made : data and information
produced during projects implementation are often lost a few years after the end of the said
projects, so that there is no way to really capitalise experiences gained for future actions. One
reason is the lack of a national user-friendly and accessible database system.
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7
POSAT – Politique et Stratégie en matière d’Aménagement du Territoire (Land Development Policy and Strategy)
DAT – Direction de l’Aménagement du Territoire (Land Development Service)
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c) A political weak interest for the protection of coastal zone biological diversity resources : The
necessity for a systemic approach in projects formulation and management in general, and in
projects which aim particularly at protecting biological diversity, has not always been perceived.
Thus, projects were limited to some administrative subdivisions even though they cover up
forest areas, stretches of water, or even organisational systems, etc. which go beyond the said
subdivisions.
d) A lack of interest for issues related to land tenure and conflicts in land use within the coastal
zone : most natural resources management projects did not include among their objectives
legal status clarification of areas covered by them. In the meantime, legal instruments on land
tenure comprise some ambiguities, which paved the way to some very complex transaction
practices to such a point that public power lost its control over this sector. This resulted in land
use conflicts which lead to the non respect of regulations (rivers division by means of Acaja),
anarchical opening of private sand quarries on the coastal zone with effects on coastal erosion
and boarding vegetation, etc.
e) An evident loss of participatory approach in project identification and implementation : grass
root level populations are not often involved in decision making and projects executed in their
areas. Even for the on-going democratisation process, population participation remains very
weak or only theoretical in fact. It is therefore necessary to find relevant mechanisms to
interest and motivate grassroots populations to take effectively part to the process. As a matter
of fact, even in a decentralisation context, motivation and public awareness supported by
relevant regulations are necessary to bring populations to play an active and genuine role in
protecting coastal zone biological diversity.
3.- Activities planned (and supported by GEF)
Activity n° 1 : Completing the Coastal Zone Master Development Plan (CZMDP)
The preparation of the CZMDP has already started and is financed by ABE on PGE funds.
The sensibility of the issue makes it a participatory, interesting but long process. Normally,
we consider that by the end of PGE, the 1st tome of the plan should have been written. It
will therefore remain :
- During preparatory phase : All documents related to development options, definitions
regarding major activities, coastal sub-zones spatial development perspectives would
be realised. In order to prepare the 2nd tome of the Plan, ecosystem management
regulations, development options and perspectives will be set up using a participatory
approach elaborated and recommended during a national workshop held to validate
the diagnostic study.
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During project phase :
a) Completion of the 2nd tome
b) Cartographic synthesis of objectives and priorities
c) Technical notes
d) Publication of various documents
e) Public information about all documents.
f) Developing thematic master plans for the coastal zone
We need here to start from fundamental orientations laid down by the CZMDP to draw
up sectoral orientations related to sectors of activities and structuring equipment
and/or having proved environmental impacts, e.g., development of tourism, fishing
management, agriculture, etc. This activity depends on the CZMDP completion and will
be entirely executed during project phase. This activity will help to highlight the coastal
system sensibility concerning different activities carried out in the zone and to orientate
development options. This will enable to take into account values and functions of the
different ecosystems in decision making
The Coastal Zone Master Development Plan will enable, thanks to its legal status as it is
applicable to all, to reach a better management of this zone populated by 50 % of Benin
population and which represents only 7.7 % of the country area.
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Activity n° 2 : Developing a (i) national policy, sectoral strategies and a (ii) legal,
institutional framework for the coastal zone integrated management
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During preparatory phase : (i) The shared vision document, acceptable by all actors
for the management of the coastal zone will be developed through two workshops,
aiming to obtain a documentary synthesis and to define the orientation axes. Lessons
learned from ICZM projects around the world would be discussed and incorporated in
the vision document. (ii) An expert mission (French Coastal Zone Conservatory) will
give support to analyse legal and institutional problems, objectives and stakeholders.
During project phase :
(i) Preparation and adoption of the general orientation document on coastal zone
management, preparation and adoption of sectoral orientation documents (fishing,
industry, tourism, and salt production). This approach will help to develop tools for
rational management of environment, token of biological diversity sound
management.
(ii) Apart from concrete land acquisition and slowing down actions, the following
activities will be undertaken through a series of consultations, national workshops
and co-operation between structures :
a) a regulation must be adopted to bring people comply with the Coastal Zone
Master Plan ;
b) the issue of land tenure must be clearly addressed and settled by regulations ;
c) the bringing of coherence into competencies and attributions of all national
institutions presently involved in the coastal zone management ;
d) the clarification of State and local communities attributions in the particular
context of coastal zone management ;
e) the setting up of a National Coastal Zone Survey Commission as well as a
follow-up mechanism.
The matter here will be the adoption of coherent and applicable legal texts to
be added to the recommendations contained in the Master Coastal Zone
Development Plan and in sectoral strategies, with the view to bring people
comply with national policy orientations in the area. This initiative will help to
conserve the most sensible zones and protect them from unsustainable use
from human activities, which represent threats to those ecosystems.
Activity n° 3 : Creating a database on the coastal zone dynamics
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This activity will enable to have a permanent follow-up of the coastal zone dynamics
through all its natural components, human settling, various pressures, plans and legal texts
respect. It will not only be a tool in the hands of the National Coastal Zone Survey
Commission but will also represent an important part of the Environmental Information
System (EIS) network which is under development at ABE. The database will comprise a
specific component entitled “Biological diversity”, a knot of the great national database
on biological diversity (output of the above-mentioned project) with the opening door
located at DE. It is therefore necessary to :
- During preparatory phase :
a) Determine the kind of data to be collected
b) identify data collection, processing, and storage mechanisms
c) train staff
d) configure the database
e) put information on line
During project phase :
a) Manage the database
b) acquire complementary equipment if necessary
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c) Acquire periodically air covers and/or satellite images for dynamics and spatial
elements follow-up.
This supported activity will help to know, at any time, the state of coastal biological diversity. It
represents an important tool for decision-making as regards these coastal ecosystems
management.
Activity n° 4 : Managing the coastal zone biological diversity
The main objective of this core GEF activity is to lessen pressure on sensible and fragile
areas and help particularly to safeguard and manage efficiently the coastal zone biological
diversity, especially within the two RAMSAR sites (Sites n° 1017 and n° 1018). On account of
constraints linked to decentralisation law, it is useful for the State to have private estates
endowed with legal titles within the municipalitiess. These areas will function as biological
reserves and will shelter ecological follow-up activities. Populations will live in the areas and
take part to their sustainable management. Therefore, it is necessary to :
- During preparatory phase :
a) Carry out complementary studies for a deep understanding of the coastal zone
biological diversity as well as threats associated with it.
- During project phase :
a) Acquire lands and prepare their cartography
b) Protect sensible areas and endangered species
c) Manage conservation areas
d) Manage State private estates within wetlands
e) Systematise species
f) Conclude management agreements with the populations living in the areas or
likely to benefit from their resources
g) Develop the areas
h) Set up a data collection system specific to those areas
i) Follow up and write reports related to areas development
Activity n° 5:
Supporting grass-roots development initiatives in the coastal zone
This activity is mainly orientated towards the financing of communities micro-projects in the
area, of fishing, agriculture, salt production, small livestock development by craftsmen, etc.
The objective here is to motivate populations participating to program implementation via very
concrete actions that meet well with their real needs. This activity is of a great interest to the
French Embassy Co-operation Mission which, further to discussions held with the Agency, is
looking forward to contribute up to about 4 millions French Francs. The Netherlands and
German Co-operations are also interested by this kind of activities.
- During preparatory phase :
a) Identify together with populations, relevant and valorising activities undertaken in
the area
b) Identify support needs
c) Develop a coherent program and mechanism of support.
- During project phase :
a) Select beneficiaries
b) Conclude contracts
c) Follow up
This activity will help to reduce pressures on these coastal zone ecosystems via loan and
credit mechanisms. Thus, credits and loans granted to inhabitants would contribute to fight
poverty which represents multiple threats to biological diversity conservation.
Activity n° 6 : Supporting decentralisation
operation in the coastal zone
process
and
inter-municipalities
co-
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Preparatory studies related to decentralisation revealed that it would be realised in a context
where only 3 out of the 77 municipalities get sufficient financial resources to support their
management and investments costs. In this respect, experts unanimously predicted that future
municipalities’ managers would exclusively exploit natural resources. This will lead to
irreversible environmental degradation. Competition will reach a pitch especially if several
municipalities commonly share resources. This could result in conflicts and biological diversity
losses. Therefore, it is necessary to take steps so as to avoid this gloomy prospect. In this
vein, legal provisions for inter-municipal co-operation is an opportunity to be maximised. As a
matter of fact, it appears that natural resources management based on administrative realities
do not enable an integrated and overall ecosystems management as their specificity does not
agree with administrative divisions because a fishing ground, a mangrove vegetation, a swamp
habitat for protected species often stretch over several administrative divisions. Any successful
biological diversity management action can only be realised in a context of concerted
management between populations and managers of the areas interested by each ecosystem
concerned by actions. Local environmental planning activities developed by ABE for some
years now, the process of which is taken into account by the PNGE under formulation
represent an approach for municipalities capacity building likely to let them be ready to play
their role regarding particularly environmental management according to national orientation
and international agreements. Planned activities are :
- During preparation phase :
a) Identify with populations additional needs to support municipalities
b) Develop a coherent support program
c) Continue to develop local environmental management plans for municipalities
which have not yet got one
- During project phase :
a) Implement the program
b) Complete the drawing up of local environmental management plans.
4.- Actors participation
4.1.
The implementation of the CZIMP will be supervised by ABE, as it is responsible for PNGE coordination and PAE implementation. One of the important aspects of the NEAP has been the
coastal zone and the protection and conservation of the biological diversity.
4.2.
On account of the fact that the program will be implemented via many activities under project
form, national institutions responsible for areas covered by projects will implement them
according to well defined mechanism to be discussed. This will facilitate follow-up activities
and help to optimise resources so as to achieve goals. With regard to their attributions and
activities above-mentioned to be carried out, the following institutions will be part of the
structural armature for the program implementation :
DAT
DE
DP8
CARDERs9
Non-Governmental Organisations (NGOs)
ABE Committee responsible for the supervision of PAZH10
DFRN11
4.3.
A commission including ABE (chair), DAT, DE, DP and DFRN will act as Dialogue Commission
for program finalisation. A “Coastal Zone Working Group” which took part to formulation paper
and composed of ABE, PAZH, resource-persons and the staff of MEHU will help it12.
DP – Direction des Pêches (Fishing Service)
CARDER – Centre d’Action Régionale pour le Développement Rural (Regional Centres for Rural Development)
10 PAZH – Programme d’Aménagement des Zones Humides (Wetlands Development Management Program)
11 DFRN – Direction des Forêts et Ressources Naturelles (Forest and Natural Resources Service)
12 MEHU – Ministère de l’Environnement, de l’Habitat et de l’Urbanisme (Ministry of Environment, Housing and Town Planning)
8
9
10
4.4.
The CZIMP remains a component of PNGE. As a matter of consequence, it will be
implemented in the framework of this overall program mainly at institutional, funds granting
and follow-up activity viewpoints. Thus, ABE will act as co-ordinator of PDF activities.
4.5.
The program will be implemented in connection with all on-going initiatives in the country and
related to biological diversity protection. Preparatory phase workshops will help refine
stakeholders participation mechanisms and their level of responsibility, etc.
4.6.
On account of the fact that wetlands management (RAMSAR sites) cannot be undertaken
without involving populations, for whom they represent vital areas, all actions and projects
deriving from the program will be managed according to multi-actors participatory approach.
This is a requirement justified by decentralisation process, which transfer not only land
ownership to local communities but development competence as well. Non governmental
structures, women and young men associations will be identified as actors and privileged
collaborators for program implementation. Therefore, it will be necessary to create
mechanisms of synergy and mobilise social forces at grass-roots level to be involved in
carrying out activities.
5.- Justification of the Program eligibility to GEF
5.1.
Through the above-mentioned activities, the present program contribute to fulfil the general
objective of GEF operational program n° 2 which aim is : “Conservation and sustainable use of
biological resources in coastal, marine and fresh water ecosystems in general, including lakes,
stretches of water, swamps and insular ecosystems.
5.2.
The results of the project will serve for a better management of the coastal area and Benin
continental plateau by rationalising interventions and mostly by suppressing the heavy threat
on biological resources.
5.3.
Specifically, the program implementation will enable to have :
a) a better management of mangrove ecosystems and habitats
b) a deep understanding and a better management of wetlands
c) a regeneration of rivers fish potentialities
d) a better protection of endangered species, especially sea tortoise (endemic
Cercopithecus erythrogaster and limicols)
e) a better management of the entire coastal zone
f) a participatory management of ecosystems and a rising of peoples’ living standard.
5.4.
Apart from the preceding statement, the financing of the program by GEF is justified by the fact
that many donors will jointly finance it. Through major activities identified and owing to interests
shown by some development partners, we expect potential financing from French Co-operation
(4 millions of potential French Francs), African Development Bank Group (some PAPESB 13
aspects), Netherlands Co-operation in the framework of wetlands management, French Cooperation Agency, German Co-operation, IDA and national budget. The total cost of the
Program is about US $ 30,000,000, all financial backers included. All this remains at the level
of intention expressed during discussions held in the course of PNGE formulation.
6.- Activities to be financed by PDF-B
6.1. PDF will finance preparatory phase activities earlier specified at the level of each main activity.
PDF funds will serve in particular to finance technical co-ordination costs ensured by the Agency,
national and international consultations, preparatory workshops, finalisation of each main activity,
and missions to be undertaken in the framework of program preparation by ABE staff.
13
PAPESB – Programme d’Aménagement des Plans d’Eau du Sud Bénin (South Benin stretches of water development)
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7.- PDF-B Budget and co-financing
(Cost : thousand US $)
Activities
Technical co-ordination
Preparation and finalisation of detailed
documents for each main activity
National workshops
Unexpected
Total
GEF
50
National
Budget
PM
Netherlands
Co-operation
50
Total
100
260
30
10
350
100
100
10
210
200
300
20
570
560
430
40
1.130
8.- PDF Execution schedule
A project document will be drawn up and made available by the end of November 2000.
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