GLOBAL ENVIRONMENTAL FACILTY (GEF)
CONCEPT FOR PIPELINE ENTRY
Country:
Project:
GEF Focal Area/OP:
Project Cost:
Implementing Agency:
PDF Funds Requested:
Counterpart Financing:
Co-financing:
Project Duration:
Block A Grant Awarded:
United Republic of Tanzania
Sustainable Coastal Livelihoods Project
OP 2
US$40 million (IDA US$30 million (in pipeline for FY06),
GEF US$5 million; potential donors (EU, USAID,
Government of Japan) US$5 million)
World Bank
TBD
TBD
PHRD (proposal under preparation); donors; Government of
Tanzania
6 years
No
Background
Tanzania is endowed with highly diverse and resources rich coastal areas, which support a
diversity of important natural habitats, including coral reefs, beaches, estuaries, lagoons, sea
grass beds and coastal forest and extensive mangrove forest stands. Similarly, the semiautonomous islands of Zanzibar and Pemba off the Tanzanian mainland coast host a rich
diversity of coastal and marine ecosystems.
The proposed areas are situated in globally and regionally significant biological eco-systems
categorised as ‘Ecoregionally Outstanding’ in the WWF Marine Ecoregion Assessment of
2001, as well as in National Biodiversity Strategy Action Plan (NBSAP). The proposed
project areas would include Msambweni -Tanga region (shared with Kenya), Rufiji-Mafia
Complex, Mtwara – Quirimbas archipelago (shared with Mozambique), and islands of
Unguja and Pemba in Zanzibar and host a diverse habitats which support rich biodiversity,
with many endemic species of corals, fish, seagrass, flora and fauna. The waters of mainland
Tanzania and Zanzibar provide a regular nursery area for humpback and whales, support
healthy populations of turtles, dolphins and sharks, and productive fisheries for pelagic fish
species, including a significant big game fish species. Numerous islets and sand banks
provide nesting habitats for several globally endangered sea turtle species such as green turtle
(Charonic tritonis), hawksbill turtle (Eretmochelys imbricata), olive ridley turtle
(Lepidochelys olivcea) and migratory bird species Other threatened and endangered species
in coastal areas of Tanzania include dugong (Dugong dugon), coconut crab (Birgnolatro) and
mollusks such as triton’s trumphet (Charonic tritonis) and green snail (Turba marmoratno).
In Zanzibar archipelago, some of the endemic species include the Red Colobus monkey
(Piliocolobus kirkii), Pemba flying fox (Pteropus voeltzkowi), blue duikers (Cephalophus
monticola) and Pemba palm (Chrysalidocarpus pembanus), and various fish species.
The coastal areas of Tanzania are of critical importance for the development of the country.
The five coastal regions of mainland Tanzania encompass about 15 percent of mainland land
area and are home to approximately 25 percent of country’s population (about 8 million
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people) and contribute about one third of the national GDP. Some 75 percent of country’s
industries are located in coastal areas. Coastal areas are becoming increasingly important in
promoting economic growth in Tanzania for the years to come. In addition to relatively new
and fast growing sectors such as coastal tourism, mariculture, and natural gas exploitation
there is also substantial but un-leashed potential for agriculture, silviculture, offshore
fisheries, shipping, small-scale mining and manufacturing.
However, coastal resources in Tanzania are under increasing pressures. The root causes of
coastal resources degradation are multiple and complex and include unclear property rights,
unsustainable fishing levels and practices, unregulated coastal zone development, lack of
alternative income earning opportunities, limited access to markets and social infrastructure,
fragmented legal framework, weak institutional capacity, especially at district government
level, and lack of cross-sectoral coordination.
Environment and natural resources remain the basis for the country’s economic growth for
the years to come. The GOT is committed to reverse the degradation trends of coastal
resources. However, it is confronting major difficulties in dealing with simultaneous short
and long-term trade offs such as generating employment and promoting economic growth
while conserving and maintaining numerous economic and environmental benefits provided
by coastal ecosystems. The proposed project would address the poverty and coastal ecosystem degradation in Tanzania through an integrated, holistic approach comprising of
integrated coastal zone management planning; supporting alternative income generation
opportunities and improving the market access and enhancing economic potential of coastal
resources. The proposed project would promote sustainable economic growth and equitable
development in coastal areas while sustaining the productivity of the natural resources base.
It is thus expected to make a strong contribution to poverty alleviation commitments as
stipulated out in the Government Poverty Reduction Strategy (PRS) and sustainable
development Vision of 2025.
Project Objectives
The project development objective is to improve lives and livelihoods of coastal communities
of mainland Tanzania and Zanzibar, through implementing participatory and integrated
coastal development/economic activities while sustaining coastal resources. The project
would empower coastal communities to better manage the resources they depend for their
livelihoods. The project would also put in place an enabling environment to increase incomes
through enhanced productivity and diversification of production systems to generate
marketable surpluses which would improve their living standards. Improving the access to
markets and credit should help raise living standards and reduce vulnerability of coastal
communities against external shocks.
The global environmental objective is to preserve the globally significant biological diversity
in critical coastal and marine ecosystems in mainland Tanzania and Zanzibar through an
effective integration and implementation of sound land and coastal resources management
strategies. This would be achieved through: (a) Supporting sustainable management of
critical coastal and marine ecosystems which are of regional and global importance and are
increasingly threatened by a range of anthropogenic factors; (b) Supporting the
mainstreaming of biodiversity concerns into sector policies and strategies; and (c) Supporting
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the involvement of local communities in the management of natural resources and the
conservation of biodiversity.
Summary Project Description
The proposed project will support the long-term GOT program on poverty reduction as
established in PRS. It would focus on poverty reduction through community driven
interventions and improving profitability of livelihood activities. The strategic areas
supported by the project would include: (a) participatory planning and management of coastal
and marine resources; (b) promotion of profitable coastal livelihood activities; and (d)
conservation of globally significant biodiversity for the sustained benefits of local
communities.
The project will also support implementation of the National Integrated Coastal Environment
Management Strategy which has been recently reviewed by the Cabinet. The specific
strategic actions supported by the project would include: (a) improved planning and
integrated management of coastal resources; (b) promote sustainable approaches for
economic uses of coastal resources and improving the livelihoods of coastal population; (c)
conservation and rehabilitation of critical coastal habitats with high biodiversity value; (d)
improved scientific information base and monitoring of coastal resources; (e) involvement of
local population in the management of coastal resources; and (f) strengthening of institutional
capacity for inter-sectoral management of coastal resources.
Four of the five project components have incremental activities proposed for GEF financing
that would support: (a) creation of enabling policy environment for marine and coastal
biodiversity conservation; (b) conservation of coastal biodiversity values through supporting
community based collaborative coastal resources management arrangements; (c) support
environmental awareness, training and applied research for improved management of coastal
and marine resources; (d) strengthening the management of existing marine protected areas
and (e) establish integrated coastal biodiversity monitoring processes at local and nation
levels. The specific activities would include:
1. Strengthening of Policy and Regulatory Framework (IDA/GEF). The project will
support establishment of the appropriate regulatory and incentive framework in order to
create an enabling environment for implementation of local ICM plans and integration them
with district development plans. Critical issues what would be addressed in the context of the
policy framework would include: (a) review of relevant sectorial policy acts and clarification
of legal and policy framework with a focus of harmonization of national interests with local
needs (e.g. Fisheries Act, Marine Protected Areas, joint and collaborative mangrove and
fisheries management acts); (b) dissemination of information to communities about their
legal rights under relevant legislation such as village rights under Land Act, Forest Act, etc.;
and (c) development and implementation of Strategic Environmental Assessment guidelines
for coastal zone management to mitigate prospective tensions between environmental
concerns and economic development.
GEF Activities. The GEF will finance of incremental costs associated with (a) strengthening
legal and regulatory framework for MPAs management; (b) technical assistance for
mainstreaming of biodiversity conservation goals into sectoral policies and acts; and (c)
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clarification of roles and responsibilities of sectoral agencies for the conservation of
biodiversity values under their mandates.
2. Implementation of Participatory ICM Plans (IDA/GEF). The project would support
development and implementation of participatory ICM plans in target geographical areas.
The participatory ICM plans would feed directly into District Development Plans through the
Opportunities & Obstacles Development (O&OD) planning process which is the basis for
operationalization of the poverty reduction strategy at local levels. The ICM plans will
address the specific issues related to coastal and marine resources management under the
O&OD, while other participatory projects may focus on other priority areas communities
may identify (social infrastructure, health, etc.). The project would support the following
activities; (a) development of participatory ICM plans (based on O&OD); (b) restoration of
coastal resource base (community based mangrove and coral planting, beach erosion control);
(c) income generation activities implemented by resource user groups; (d) technical
assistance for implementation of the O&OD processes in participating districts where it is
still to be completed and building technical competencies for linking O&OD planning
process with integrated natural resources planning; and (e) senzitisation of District
governments on coastal management and biodiversity conservation issues.
GEF Activities. The GEF will finance of incremental costs associated with conservation of
global coastal and marine biodiversity and ecosystem values, including: (a) inventory of
marine ecosystems in selected biodiversity-rich areas, and assessment of their biodiversity
and its change as a response to improved community management practices; (b) preparation
and implementation of community based ICM plans in biodiversity hot-spots which will be
designed to promote biodiversity conservation and preservation of ecosystem values; (c)
implementation and demonstration of environment-friendly marine and coastal resources
management techniques and investments which are consistent with the existing coastal
livelihoods (i.e. mangrove planting, coral planting, establishment of marine sanctuaries, etc.);
and (d) capacity building, training and TA, including the preparation of training modules and
awareness building to support the above global environment-oriented activities.
3. Market Systems and Enterprise Development (IDA). While implementation of income
generation activities under participatory ICM component would focus on demand side
interventions which would lead to increased production of more and higher quality products,
this component would address the supply side of local livelihoods by connecting coastal
communities and resource users with the markets through supporting innovative communityprivate sector partnerships. This activity aims to remove constraints local communities face
in marketing their products, enable them to gain higher prices for their products, encourage
innovative business initiatives for utilization of marine and coastal resources, improve
business management skills of private enterprises and assist them to access existing credit
sources, link communities and private enterprises with existing market information systems
and provide investments into basic marketing infrastructure. The Component would include
the following activities which are closely interrelated to each other: (a) promotion of
establishment of resource user’ (marketing) groups; (b) Business Development Services
(BDS); (c) market assistance grants; and (d) investments into market information systems and
value adding facilities.
4. Improved management of Marine Protected Areas (GEF). The GEF resources would
support strengthening of conservation planning and management of MPAs by providing
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training, technical assistance, systems and equipment support. The proposed activities would
include: (a) improving the financial sustainability of MPAs; (b) strengthening institutional
capacity for MPAs planning and management; (c) strengthening the capacity to manage and
consolidate the system of protected areas and establishing the capability for research and
ongoing monitoring of biodiversity conservation; and (d) implementing a public education
and awareness program on the uses and functions of protected areas and on biodiversity
conservation in general.
5. Monitoring and Evaluation (IDA/GEF).
Support would be provided to establish
comprehensive monitoring system of coastal resources trends and livelihoods. The M&E
system would provide assessment of marine and estuarine ecosystems and resource potentials
(their vulnerability and sustainability), as well as the dynamics of coastal resources and
biodiversity trends, and explore the linkages between poverty, livelihoods and resources use.
Project would also support a small competitive applied research grant program to provide
scientific information for improved implementation of ICM plans.
GEF Activities. The GEF will finance incremental costs associated with establishment of
integrated coastal and marine resources management monitoring processes at national and
local levels and applied research for improved management through collaborative resource
management arrangements, including: (a) development and implementation of monitoring
processes for adaptive integrated ecosystem management at national and local levels; (b)
applied research in coastal and marine ecology and ecosystem management; (c) ecological
surveys and environmental workshops to increase environmental awareness; and (d) applied
research into conservation of biodiversity habitat of global significance.
Project Budget
Indicative overall budget: $40m
Incremental cost proposed to be supported by GEF: $5m
GEF Operational Strategy/Program Objective the Project Would Support
The project is consistent with overall GEF operational goals and strategy. In particular, the
project is consistent with the OP 2 - Biodiversity Strategy- Coastal, Marine and Freshwater
Ecosystems. The GEF interventions will focus on sites and habitats recognized as threatened
and globally significant for biodiversity and protect vulnerable coastal and marine wetlands,
mudflats, lagoons, mangrove forests and seagrass habitats of global significance.
GEF Eligibility, Program Conformity and Consistency with Convention Guidance
The Government of Tanzania has signed and ratified international conventions which deal
with the management of coastal resources. These include the Nairobi Convention on the
Protection, Management and Development of the Marine and Coastal Environment of the
eastern African Region and its protocols, the United Nations Convention on Biological
Diversity and CITES. Furthermore, Tanzania has demonstrated its commitment on
sustainable use of marine and coastal resources while maintaining the ecosystem integrity by
active participation and leadership in a number of international agreements and resolutions.
They include the Arusha and Seychelles Declarations for protection and sustainable
development of the coastal and marine areas and resources, the Global Plan of Action for
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Protection of the Marine Environment from land-based sources of pollution, the Heritage
Convention and resolutions of the Millennium Summit and World Summit on Sustainable
Development (WSSD). Tanzania is also an active participant of the GEF Medium Sized
project on the African Process for Sustainable Development of the Marine and Coastal
Environment of Sub-Saharan Africa, which is currently a key component of the
environmental agenda of NEPAD.
The project is responsive to GEF strategic priorities of: (a) integrating conservation and
sustainable use of biodiversity within national, sub-regional and regional planning and
policies; (b) helping to protect and sustainably manage ecosystems through targeted and costeffective interventions; (c) encompassing representative ecosystems of global biodiversity
significance; (d) designing activities to achieve biodiversity objectives in strategic and costeffective ways; and (e) developing integrated, holistic and multi-focal initiatives that
demonstrate the ecosystem approach.
The project also internalizes key lessons learned in implementing biodiversity conservation
initiatives including: (a) the need for addressing root causes of biodiversity loss, such as
economic and social policies and lack of political will. The project links biodiversity
conservation goals with the needs and aspirations of local communities. (b) the project aims
to mainstream biodiversity conservation within poverty reduction efforts, moving away from
the tendency of focusing on biodiversity as a ‘stand alone’ concept. The project aims to
mainstream biodiversity within production sectors such as agriculture, fisheries, mariculture,
forestry and tourism. It aims to achieve sectoral integration through partnership with
governments, NGOs, communities and the private sector; (c) the project allows for flexibility
and innovation in project implementation, emphasizing participatory processes and
management at the local level; and (d) the project aims to identify and implement innovative
financing mechanisms and develop sustainable financing through the involvement of the
private sector.
Consistency with National and Global Priorities for GEF Support
The proposed project is consistent with the and National Environmental Policy (NEP). The
NEP links poverty and environment and prioritizes sustainable resource use for poverty
eradication. It identifies the following issues related to poverty reduction in coastal areas: (a)
Improvement of well being and livelihoods of coastal communities; (b) Integration of
environmental planning and management with economic development plans; (c)
Conservation of globally significant habitats; (d) Supporting local initiatives, decisionmaking for intersectoral developments, and harmonization of national interest with local
needs; (e) Awareness and availability of information for management purposes; and (f)
Inadequate human and institutional capacity.
The World Bank Environmental Strategy and the Africa Region’s Environmental Strategy
approach environment through a “poverty lens” targeting four key objectives: ensuring
sustainable livelihoods, improving environmental health; reducing vulnerability to natural
disasters; and maintaining local, regional and global ecosystems and values. Nowhere can
these objectives be better tested in a holistic integrated manner, than in the fragile ecosystems
encompassing coastal and marine areas. A diverse and healthy marine and coastal ecosystem
will ensure higher productivity and incomes, and improved health and quality of life of those
populations dependent on coastal and marine resources. The Bank’s Environmental Strategy
emphasizes the need for identifying linkages between natural resource use and poverty and
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conflicts of resource use. The Environmental Strategy as well as the Africa Region’s strategy
to promote integrated coastal and marine resources management (World Bank 2002)
recommend mainstreaming environmental and social sustainability concerns in strategies and
operations targeting poverty reduction. The latter recommends improving the viability of
institutions, the quality of life of coastal communities and promoting partnerships between
the public sector, the private sector and civil society to enhance the value of coastal
ecosystems and promote equitable distribution of benefits. The proposed activities will test
some of the key recommendations in the Bank’s environmental strategy as well as the Africa
region’s ICM strategy.
Conservation of fragile coastal ecosystems and habitats which support globally significant
biodiversity was identified as one of the priorities of the National Biodiversity Strategy
Action Plan (NBSAP). The proposed project is in keeping with the emerging priorities of
GEF. In particular, in line with the 2nd pillar of the new GEF priorities, the project aims to
mainstream biodiversity into the production landscape. In its emphasis on improving
livelihoods and lives of coastal communities, the project recognizes that livelihoods of
coastal communities are highly dependent on sustainable use of natural resources. At the
same time, the project is responsive to the potential for promoting additional and incremental
opportunities to achieve global benefits through sustainable use of marine and coastal
biodiversity.
The incremental global biodiversity conservation benefits of the project would include:
mainstreaming conservation and wise use of biodiversity within sectoral policies and poverty
reduction strategy; the promotion of conservation and sustainable use of globally significant
fauna and floral species both within and outside protected areas; synthesis and expansion of
indigenous knowledge regarding distribution and conservation status of important plants,
animals and habitats; improved protection of marine turtles and their supporting habitats,
support for community initiatives for demarcating and gazettement of conservancies, marine
sanctuaries, no-take zones and closed seasons; promote public/private partnerships that fully
integrate economic development and poverty reduction considerations with conservation
needs.
Linkages to the World Bank’s Country Assistance Program and PRSP.
The FY01-03 CAS for Tanzania defines the Bank role to assist the Government in reducing
poverty through interventions that promote higher growth, build assets of the poor, reduce their
vulnerability, and promote better governance and accountability. The CAS focused on four
strategic areas: (i) private sector and infrastructure development; (ii) sustainable rural
development; (iii) improved social infrastructure; and (iv) public sector reform and institution
building. The new FY04-06 CAS for Tanzania will be presented to the Board in FY-04 will
continue addressing the key challenges articulated in the Government’s PRS, including sustained
economic growth rates, private sector development and employment generation, fight against
HIV/AIDS. The proposed project is fully consistent with these goals through sustainable
development the potential of new sectors which contribute to the broad-based economic growth
(mariculture, coastal tourism) and supporting mutually beneficial private sector and community
partnerships.
The PRSP (2000), which was prepared in response to the Highly Indebted Poor Countries (HIPC)
focuses on three main areas of outcomes and actions for realizing them. The first is reduction in
the breadth and depth of income poverty. The outcome targets include reduction of basic needs
poverty and food poverty with a particular focus on rural areas, where poverty is most prevalent.
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The second area is that of improving the quality of life and social-well being. More specifically
this entails improving human capabilities, enhanced longevity and survival, social well being
(social inclusion and personal security), improved nutrition and containing extreme vulnerability
(mainly through safety nets). The third broad area is sustained conducive development
environment. The PRSP clearly articulates the importance of sustainable environmental
management for poverty reduction initiatives by recognizing that the poor in Tanzania are heavily
dependent on the environment and natural resources for their livelihood and income generation.
While not being so specific on outlining the framework to address the poverty-environment
linkages, the PRSP establishes a process that develops a more effective partnership between
government, the private sector and civil society in the fight against poverty. It is not difficult to
see that this needs to be done through the wise use of natural resources and environmental
sustainability. The Government has acknowledged that future iterations of the PRSP will define a
more consistent framework for addressing linkages between poverty and management of the
environment. The proposed project will support the Government in achieving its poverty
reduction goals through sound and equitable management of environmental and natural resources.
Linkages with existing WB/GEF Projects and other IA and EA Activities
The proposed project design integrates experience with community initiatives from the Cape
Peninsula Biodiversity Management project (GEF/WB), the Cape Action Plan for the
Environment (GEF/WB), community-driven development projects supported by the Poverty
Relief Fund (South Africa) that promote environmentally sustainable economic opportunities
for coastal communities; the Coastal and Marine Biodiversity Management project in
Mozambique (IDA/GEF); the Cross Border Natural Resources Management project in
Tanzania, Uganda and Kenya (UNDP/GEF); the Lake Victoria Environmental Management
Project also in Tanzania, Uganda and Kenya (IDA/GEF).
In Tanzania, the project will benefit from, and complement the early experience from the
UNDP led activities in Mnazi Bay and Menai Bay (Zanzibar); and bilateral supported
experiences from the Rufiji Delta and Tanga and the WWF supported program in Mafia
Island, as well as GEF funded Jozani Forest-Chawka Bay Conservation Are project in
Zanzibar. Dialogue has been initiated with the UNDP towards the potential for integrating
the proposal for addressing significant issues around the Lake Tanganyika within this project.
If the scope of the project is extended to include the inland coastal areas around Lake
Tanganyika, UNDP could potentially become an implementing partner of the project.
The project would also complement the goals and objectives of the proposed South West
Indian Ocean Fisheries project which aims to gather comprehensive data relating to fish
stocks, movement and trends off-shore. The proposed project on the other hand, is focused
on improving the management of the coastal resources, habitats and the near shore fisheries.
The proposed project aims to implement the recommendations of the African Process for
promoting sustainable development of coastal and marine resources at the national and local
level. The African Process calls for providing a framework for facilitating the mobilization
of resources for the sustainable development of the marine and coastal environment. In
particular, the project’s goals are in keeping with the proposals within the African Process
portfolio for promoting sustainable development of living marine resources. Successful
experience from Tanzania could easily be replicated across the borders.
The proposed project is also consistent with the approaches advocated by WWF and IUCN in
the Marine Eco-region Program. These agencies emphasize the need for networks of
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protected areas within managed coastlines and the need for combining science, traditional
knowledge, socio-economic factors and politics towards ensuring sustainability of
interventions. The project’s goals are also in keeping with the resolutions adopted by the
Global Forum on Oceans, Coasts and Small Island States which advocates linking economic
development, social welfare and resource conservation.
The aim of the project is to replicate the successful lessons and scale up the ICM initiatives in
Tanzania. The proposed project also aims to address the financial sustainability, capacity,
markets, incentives and other issues faced in most of the bilateral supported interventions in
Tanzania.
Coordination with Other On-Going and Proposed National Programs
The project implementation will be coordinated with the various community development
and poverty reduction projects/programs in coastal areas. The Bank’s Task Team will also
identify the most relevant on-going bi-lateral donor and Non-Government-Organization
(NGO) funded projects related to poverty reduction and coastal resources and land
management with which coordination is essential and cooperation would be useful.
The project would complement activities supported by the Tanzania Social Action Fund
Project (TASAF) which targets communities nationwide, including coastal areas. The
priorities and investments financed under TASAF are identified by communities themselves.
While the poor are critically dependent on regenerative natural resources for their
livelihoods, they will not always identify degradation of environmental goods and services as
an immediate priority. As such, activities financed under TASAF are often targeted towards
addressing the more tangible priorities perceived by the communities. Activities under the
proposed project on address both the longer term priorities of these communities associated
with development of sustainable livelihoods, as well as immediate income generation needs
which complement social benefits generated by TASAF investments.
The project will also complement the Participatory Agriculture Development and
Empowerment project (PADEP) which promotes agricultural extension, intensification of
agriculture and productivity at the community level. Local governments play a key role in
natural resources management. The proposed project would also complement Local
Government Support Program (LGSP) will improve the performance and accountability of
local authorities in the areas of planning, financial management and project implementation.
The project aims to strengthen the capability of local authorities to meet their statutory
service-delivery obligations and support ongoing process of intergovernmental fiscal reform
in Tanzania, which would impact the local revenue sharing decisions.
Lessons learned and reflected in proposed project design:
The proposed project design draws from the experience and lessons learned of donor funded
environmental and natural resources management in coastal areas of Tanzania. However,
most of these activities are small-scale and sectorial in their scope and often fragmented over
the large area of coastal landscapes which does not allow proper conservation of biodiversity
values at the ecosystem level. Successful management of coastal and marine habitats and
global biodiversity values they support is a long-term process. However, most donor funded
activities are focused on local capacity building and awareness raising efforts while projects
run often out of financial resources before being able to generate tangible benefits on the
ground. Recognizing the immediate needs of generating immediate tangible benefits for the
poor, the Bank and GEF support would allow to scale up community based collaborative
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conservation efforts along the coastal landscape of Tanzania and Zanzibar while building on
the awareness and local capacity developed under various donor financed technical assistance
initiatives in coastal areas of Tanzania. The Bank and GEF involvement would thus, prevent
a loss of momentum and enthusiasm for biodiversity conservation at the community level and
enable realization of expectations on improvements in coastal livelihoods in a timely manner.
It is expected that without Bank and GEF support, the GOT and small-scale and fragmented
donor activities would not be able to ensure protection of diverse and abundant biodiversity
of Tanzania’s coast, which is likely to continue to decline from unsustainable fishing and
mangrove use practices and habitat loss and fragmentation.
The proposed project design features would also benefit from experience with similar
projects in the region (in particular, the experience from South Africa) and from other
regions. For instance, the project aims to emulate the experience of COREMAP in Indonesia,
where successes were experienced with village grants where villagers chose from a menu of
potential activities against specific criteria. The KDP and COREMAP projects in Indonesia
also used negative lists to ensure that activities which might potentially endanger critical
resources or fragile ecosystems are not financed.
The proposed project is also responsive to the recent findings of the evaluation of the ICM
portfolio of the Africa region to identify synergy with the portfolio of operations outlined in
the African Process. A key finding of the assessment is that the portfolio is too focused on
biodiversity conservation, environmental protection and data collection, in a region where incountry priorities are economic development and poverty reduction. This project therefore
focuses on mainstreaming biodiversity and promoting sustainable use rather than
conservation per se.
Key lessons from these projects is that active participation of beneficiaries and stakeholders
(village, district governments) and a commitment from central government, provides the
framework for smooth and successful activity implementation. The nature of the project
requires, in particular, that it is driven by entrepreneurial individuals in its implementation.
Lessons learned from donor funded projects in Tanzania which have influenced the proposed
project design include:

Financial sustainability should be a central focus of efforts to promote biodiversity
conservation and sustainable use of natural resources. Achieving sustainable financing
requires a combination of certain characteristics. They may include: access to a secure
long term source of funds, diversified income, administrative efficiency and institutional
incentives for improved management of cash flow. Each of the four key characteristics of
sustainable financing have advantages as well as significant disadvantages. They are not
equally applicable in all circumstances and they require a certain level of economic
activity, good governance and institutional capacity before they will yield results. Cost
benefit analyses and market tests are important in assessing the potential for uptake of
sustainable financing approaches.

Biodiversity conservation efforts need to be integrated into the broader development
agenda in order to be sustainable. Conservation efforts should take into consideration the
priorities at the national as well as local level and the needs of the resource users. Target
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populations need to understand the links between biodiversity conservation, sustainable
use and benefits in terms of improvement of livelihoods and incomes.

Many protected areas in the region are financed through a combination of government
subvention, donor funding and increasingly, user fees and charges for tourists and
royalties and levies on commercial operators. The increasing emphasis on tourism fees
and charges reflects the relatively high value of tourism in the region together with high
income of users. However, over-dependence on tourism revenues can leave protected
area management vulnerable to a volatile industry. Maintaining a diverse income base
ensures sustainability.

Priority should be given for improving the productivity of existing economic activities of
local communities before introducing new activities.
When introducing new
technologies or economic activities, care should be taken that local communities have
access for necessary inputs and replacement parts. The types of income generating
activities communities would like to engage in with project support should be determined
by the communities themselves.

Experience from donor funded projects shows that quite often decisions were made by
project experts but were rejected by the intended beneficiaries due to cultural or other
reasons. Furthermore, once technical and financial resources are committed to
production and income generation activities selected by local communities, every effort
should be made to ensure that the assistance is sustained. The project must also carry out
a thorough assessment of technical and financial feasibility of income generating
activities prior to commitment of resources.

Experience with donor funded projects has shown that inadequate planning and design of
income generating activities often results in unsuccessful or unsustainable initiatives.
Prior to promoting activities such as mariculture, an analysis of market demand for
incremental production volumes must be conducted prior to the commitment of any
resources to that initiative. Factors such as storage, processing, transportation and
competition need to be taken into account.

The project needs to utlilize to the extent possible capacity build under the various donor
funded activities. New capacity building activities need to be identified during the
project preparation period based on a detailed assessment of existing skills at the district
and local levels. Due to the generally uncoordinated nature of training provision in
Tanzania, it will be necessary to assess the skills of government technical staff in the
project area, including those not normally associated with the primary sector. Training in
PRA and participatory methodologies does not automatically lead to more participatory
development. Public service and civic organizations need to understand and
institutionalize the changes required in reforms, both in terms of the policies and
procedures set forth and in understanding the new roles and responsibilities of various
stakeholders in the process of decentralizing the planning, implementation and control
mechanisms.

A recent GEF review (Achieving Sustainability of Biodiversity Conservation: Report of a
GEF Thematic Review. Monitoring and Evaluation Working Paper 1. GEF) of
sustainability of biodiversity conservation concluded that: (a) it is essential to identify clearly
what biodiversity one seeks to sustain, on what scale, and over what time period; (b) since
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much biodiversity will remain outside protected areas; a discussion of sustainability must
include conservation and sustainable use on privately or community owned lands; (c) the
major factors that affect sustainability of biodiversity conservation efforts are socioeconomic
and policy related, referring to policies that provide the incentives and disincentives related to
conservation and sustainable use of biodiversity, the processes by which these policies are
made and enforced, and the influences of groups or individuals on these processes, root
causes of biodiversity loss; and therefore (d) a comprehensive, long-term, and adaptive
approach is needed to conserve biodiversity sustainably. The project has embraced these
conclusions in the design through:

Seeking to conserve biodiversity at the larger ecosystem level along the coast of
Tanzania and Zanzibar through promotion of the implementation of collaborative
coastal resources management (ICM) arrangements;

Focusing project activities in the production landscape because much of the
biodiversity in project areas is found in landscapes outside the protected area
network;

Addressing the root causes of biodiversity loss through on-the-ground communitybased projects, the strengthening of conservation institutions and working with
stakeholders to adjust policy implementation and incentives because the root causes
of biodiversity loss in Tanzania – and thus the threats to sustaining that biodiversity –
are found in the socioeconomic context, such as widespread poverty and lack of
economic opportunities, that motivates local actions; and

Mainstreaming biodiversity and wide-ranging ecosystems concerns into natural
resource management in the broader production landscape through a comprehensive,
strategic tactic to conserve and sustainably use biological diversity and integrated
ecosystem (ICM) approaches to the management of coastal and marine resources.
Rationale for the Bank and GEF Involvement
The project is designed to be a "second-generation" environmental project as it would address
environmental management and biodiversity conservation through poverty lenses. The
poverty focus of this environmental project is fully justified since poor in Tanzania depend
on the environmental resources for their income and livelihoods while poverty is often the
main cause of environmental degradation. Furthermore, the project approach stems from the
fact that poverty in Tanzania is largely a result of livelihoods, and production and natural
resource use systems that are not profitable and sustainable. In order to address
environmental issues the project thus needs to address issues that limit the profitability and
sustainability of livelihoods. Bank support for the project is justified through its mandate to
lend for development-oriented activities with a strong element of public goods, such as
poverty alleviation, environmental and natural resources planning and management, market
information systems, private sector development, training, and applied research. Provision of
these kinds services in the project will provide a firm foundation for future sector investments
by the private sector as well as improve the utilization of scarce public resources (financial
and technical) creating a basis for increased government revenues for future development.
Global support is justified in that four of the five project components can be enhanced to
provide global environmental benefits in improved biodiversity conservation, improved
ecosystems and production landscape protection and management. Most of these global
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environment benefits are long term (i.e. benefits take time to materialize but accrue for many
years after the project has terminated), which makes them less attractive to local populations,
who struggle to make a living on a day-to-day basis. The global support will help to bridge
the gap between the long term benefits and short term economic needs of local population by
removing barriers which currently limit their adoption of sustainable production systems and
conservation of biodiversity. It will also demonstrate to the local population the long-term
economic and environmental benefits of adopting more sustainable natural resources
management approaches.
Secondly, GEF resources would be instrumental in introducing the integrated and financially
sustainable management of marine protected areas and in managing the conflicts inherent in
the multiple use of coastal zones. With GEF support, the system of marine protected areas
could be strengthened based on sound management principles, including financial
sustainability and benefit sharing with local communities that could be replicated elsewhere
in East-Africa. The institutional framework for marine conservation management would also
be strengthened by linking participatory ICM planning, applied research, monitoring and
evaluation with national and district development planning and the main decision-making
process. GEF financing could thus strengthen ongoing biodiversity monitoring initiatives
which is a key tool of conservation management.
Thirdly, the GEF support is justified by the global importance of the biodiversity of coastal
areas of Tanzania mainland and Zanzibar and by the unique opportunity to strengthen the
conservation of globally and regionally important marine ecosystems and habitats. The
Bank's portfolio of GEF and biodiversity projects in East African region provides
opportunities for promotion of exchange of ideas, cross-fertilization with other GEF projects
in the region, and strengthened trans-boundary cooperation in biodiversity monitoring and
evaluation, review, and scientific oversight.
Finally, GEF funds would be instrumental in leveraging the support of other donors who
could finance some of the complementary activities, and of enhancing and coordinating the
work of other donors organizations. The Bank has had numerous discussions with bilateral
donors regarding opportunities for grant co-financing, especially for some of the technical
assistance activities.
Responsibility for Project Preparation and Implementation
It is expected that the project will be coordinated by the unit responsible for ICM policy and
planning within the National Environmental Management Council (NEMC). However, 80%
of project activities will be focused on the district level where they will be implemented by
the District Executive Director’s Office and the team of technical experts from sectoral
agencies. NEMC will only have service delivery functions, monitoring and evaluation and
upward feedback to contribute to refining of policy. District level activities will be supported
by a range of partnerships including public, private and civic organizations already active and
working with communities.
Evidence of Country Ownership
The GOT has demonstrated its willingness to promote sustainable management of the
country’s coastal and marine areas, taking several policy and institutional measures. Some of
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the key objectives of the Government are to: (a) Develop National Environmental Policy; (b)
(b) Build environmental management and technical capacity at the districts’ government as
well as the national government levels; (c) Replicate and synergies proven, viable pilot
activities and demonstration projects that span a diversity of coastlines/marine management
options; (d) Address underlying causes for poverty in inland rural communities to slow the
flow of inland-rural migration towards the coastal area; (e) Provide a sense of ownership to
coastal communities through participatory processes, by granting them tenure for coastal
resources, and through educational campaign; (f) Increase integration of biodiversity
management with productive activities; and (g) Increase private sector involvement and
private-community partnerships.
The Cabinet has recently approved National Integrated Coastal Zone Management Strategy
(December 2002). The Strategy provides a multi-sectoral framework for sustainable
development of coastal resources of Tanzania for the use of people today and for succeeding
generations to ensure food security and support economic growth. The strategy places a
great emphasis on providing meaningful opportunities for participation of key stakeholders in
the planning and integrated management of coastal resources. It supports the Government
decentralization process and institutional capacity strengthening at local levels by promoting
integration of coastal resources use planning through district development planning process.
The Strategy acknowledges the need to focus on improvement of well being and livelihoods
of users of coastal resources and promote environmental planning and management as an
opportunity to unleash economic potential of coastal areas and contribute national economic
growth.
The GOT concern and commitment of conservation of globally and nationally significant
marine and coastal biodiversity has lead to the establishment of the Marine Parks and
Reserves Unit (MPRU) in 1994 under the Ministry of Natural Resources and Tourism.
MPRU has the mandate to establish and ensure sustainable conservation for areas of
outstanding marine ecological importance and manage them in partnership with coastal
communities on mainland Tanzania and other stakeholders. The legal framework for
protected area establishment is enabled through the Environmental Management for
Sustainable Development Act (1996), the Forest Resources Management Act (1996) and the
Fisheries Act, which provides for the establishment of MPAs.
The willingness of the Government of Zanzibar to promote sustainable development of
coastal and marine resources is evidenced by the establishment of the Zanzibar National
Protected Areas Board under Section 80 of the Environmental Management for Sustainable
Development Act. The functions of the Board are to: (a) Formulate, advise and coordinate
the implementation of the policies of the government on protected areas; (b) Make
recommendations for designations of national protected areas; (c) Approve management
plans for national protected areas; and (d) Designate an appropriate lead institution to
manage the national protected area system.
Stakeholder Involvement and Consultation
The Bank is involved in an active consultation process with all key stakeholders. A national
workshop was held to discuss the implementation of the National Coastal Management
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Strategy. A key workshop outcome was the development of a program logframe on
integrated coastal resources management.
The present concept builds on the
recommendations of the workshop and lessons learned from a series of donor supported ICM
interventions along the Tanzanian mainland and in Zanzibar. There is interest at both the
national level and at the district level in continuing and scaling up these activities. Assuring
technical assistance and funds for implementing the ICM plans generated by these donor
supported interventions is a key aim of the proposed initiative.
The proposed project concept reflects the findings of intensive PRA process which solicited
inputs from 1300 participants in 11 villages in Zanzibar and Kilwa District of Tanzania in
April 2003. Participants were asked to respond to the question: “What problems do you have
making a living in this village?” Individual respondents then formed small groups who
workshopped individual responses and reached consensus on the top 5 priorities, which they
presented to the whole assembly. Priority problems, forming the community framework of
interest, were then compared with the proposed project framework (derived from the PRSP,
CAS, Government of Tanzania coastal and forest resource management policies).
Overlapping interests were identified and these formed the focus of problem solving
activities that contributed for identification of the project actions described above. The
summary of priorities identified by the communities is presented in the figure below.
Project Sustainability and Replicability
Several factors are critical to project sustainability. First, institutional sustainability is
important, and is being pursued by working at local level with a wide range of stakeholders,
building capacity of relevant national and district level agencies, working closely with
existing CBOs. Second, the ecological sustainability of GEF funded ICM activities would be
pursued through improved monitoring and enforcement capacity. This would include
strengthening of monitoring of coastal ecosystems and fish harvesting rates and methods.
Third, economic sustainability will be achieved by demonstrating direct economic benefits of
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improved coastal resources management approaches to local communities to convince both
them and policy decision makers. Fourth, a high level of ownership of the planning and
implementation process by project beneficiaries is critical for the project success. For
example, the sustainability of the investments into coastal resources management depend
upon the functioning of the voluntary based resource users associations. Particular attention
would be paid to building the confidence of the beneficiaries to take on responsibility for
sustainable management of natural resource base.
The participatory ICM approaches and techniques implemented under the project are not only
replicable, but are in fact based on the experience of other donor financed coastal zone
management projects implemented elsewhere in Tanzania and in East-Africa region. Whilst
there are no blueprints for success, good examples are likely to be tailored to local situations
and replicated elsewhere under the project. What is more important yet is that people who
depend on coastal resources for their livelihoods need to see with their own eyes how
adoption of better management techniques could benefit them and have the opportunity to
ask pointed questions relating to their problems and make up their own opinion as to
applicability of what they have seen. Implementation of ICM plans and demonstrations
would create opportunities for replication of these activities in other communities as they
gain confidence in new approaches. It should be noted that poor are generally more careful
and risk averse and will thus take their time to adopt new avenues and techniques, which will
ensure sustainable utilization of their resource base. The proposed project ICM activities will
provide incentives and confidence for coastal communities to overcome barriers which
currently limit their adoption of sustainable production systems. Finally, the sites for GEF
pilot activities will be selected based on their diverse physical characteristics and
socioeconomic characteristics to conform a representative sample of natural resource base
and socio-economic characteristics of communities as a basis for replication.
Risks
No major risks are anticipated with the proposed project, in view of the communities’ strong
interest in improved coastal and the GOT’s commitment to sustainable development. Lack of
capacity, especially at the district levels, to implement ICM activities and to effectively
enforce laws and regulations relating to coastal resources is one potential problem. The
willingness of donors to provide matching grants, especially for technical assistance needs to
be assessed, as technical assistance will be necessary to develop improved and innovative
ICM plans. Another risk is to monitor fair distribution of project benefits.
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