c iz: / { #)g ( s y,L1 Document of The World Bank FOR OFFICIAL USE ONLY Report No. 12478-GM STAFF APPRAISAL REPORT REPUBLIC OF THE GAMBIA CAPACITY BUILDING FOR ENVIRONMENTAL MANAGEMENT TECHNICAL ASSISTANCE PROJECT MARCH 17, 1994 Infrastructure Operations Division Sahelian Department Africa Region This document has a restricted distribution and may be used by recipients only in the perfonnance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization. CURRENCY EOUIVALEN"T S Currency unit = Dalasi (D) US$1.0 = 9.1 Dalasis SYSTEM OF WEIGHTS AND MEASURES Metric System ABBREVIATIONS AND ACRONYMS ANR Agriculture and Natural Resource Management Project (US-AID' EIA Environmental Impact Assessment EIS Environmental Information System ERP Economic Recovery Program GBA Greater Banjal Area GEAP Gambia Environmental Action Plan GIS Geographic Infonnation Systems GTZ Gesellschaft fuir Technische Zusammenarbeit (German Technical Assistance) MDI Management Developmert Institute MHSW Ministry of Health and Social Welfare MLGL Ministry for Local Government and Lands MNR Ministry of Natural Resources MOA Ministry of Agriculture MTIE Ministry of Trade, Industry and Employment NEA National Environment Agency NEAP National Environrnental Action Plan NEMA National Environmental Management Act NEMC National Environment Management Council NGO Non-Governmental Organization PFP Policy Framework Paper PSD Program for Sustained Development TAC Technical Advisory Committee TANGO The Association of Non-Governmental Organizations UNDP United Nations Development Program USAID United States Agency for International Development FISCAL YEAR July 1 - June 30 This report is based on the findings of an appraisal mission consisting of Ms. Grace Yabrudy (Urban Financial Analyst, Task Manager) and Messrs. Yves Prevost (Environmental Specialist, Consultant) and Albert Greve (Coordinator, Multi-Donor Secretariat) conducted in October 1993. The lead advisor is Ms. Cynthia Cook (AFIDR), the AFTES advisor is Mr. Franqois Falloux, and the peer reviewers are Mrs. Catherine Cruveillier-Cassagne and Mr. Ian Hill. The managing director is Ms. Katherine Marshall and the managing division chief is Mr. Peter Watson. FOR OFFICIAL USE ONLY REPUBLIC OF THE GAMBIA CAPACITY BUILDING FOR ENVIRONMENTAL MANAGERMENT TECHNICAL ASSISTANCE PROJECT STAFF APPRAISAL REPORT Table of Contents 1. INTRODUCTION AND MACRO-ECONOMIC BACKGROUND ...I II. THE ENVIRONMENTAL SETTING ...................................................3 A. Background ......................................................3 B. Environmental Resources ......................................................4 C. The Main Environmental Issues ...................................................... 6 D. Institutions .....................................................7 E. The Major Constraints on Reversing Enviromnental Degradation .........1........ 11 F. The National Environmental Action Plan ............................................... 13 G. IDA Assistance Strategy for the- Environment .......................................... 15 H. Other Donor Assistance and Programs ................................................... 15 11. THE PROGRAM ................................... 17 A. Rationale and Objectives ..................................................... 17 B. Program Design ..................................................... 17 C. Program Description ..................................................... 18 IV. DETAILED PROJECT DESCRIPTION . .................................................... 20 A. Summary Project Description ..................................................... 20 B. Detailed Description ..................................................... 22 C. Project Implementation ..................................................... 34 D. Financing Plan ..................................................... 37 E. Auditing and Accounting ....................... .............................. 38 F. Procurement ..................................................... 38 G. Disbursements ............ .............................. . ......... 39 V. BENEFITS, JUSTIFICATION AND RISKS . . ................................................... 42 A. Benefits and Justification ....................... .............................. 42 B. Risks ..................................................... 42 C. Impact on Women ..................................................... 42 VI. AGREEMENTS REACHED AND RECOMMENDATION ................................. 43 ANNEXES: 1. Organization Chart of National Environment Agency (NEA) 2. Summary of the Gambia Environment Action Plan (GEAP) 3. Project Cost Table by Year 4. Project Implementation Schedule 5. Matrix of Performance Indicators 6. Timning and Composition of Supervision Missions This document has a restricted distibution and may be used by rcipients only in the perfom ce of their official duties. Its contents may not otherwise be disclosed without World Bank authodzation. REPUBLIC OF THE GAMBIA CAPACITY UJILDING FOR ENVIRONMENTAL MANAGEMENT TECHNICAL ASSISTANCE PROJECT S1TAFF APPRAISAL REPORT Credit and Project Suary Borrower: Republic of The Gambia Beneficiarv: National Environment Agency (NEA) Credit Amount: SDR 1.9 (US$2.6 million equivalent) Terms: Standard IDA terms, with 40 years maturity Co-financinf: Government of The Gambia:US$0.60 million GTZ: US$1.30 million Project Objectives: The proiect's primary objective would be to establish the capacity within the National Environment Agency (NEA) and other relevant agencies to develop and guide an effective system for environmental planning and management in The Gambia and to ensure that environmental concerns are fully integrated and reflected in the social and economic development piomcess in The Gambia. Consequently, the project would focus on the development of the institutional infrastructure and on strengthening of the capacity of associated human resources required to ensure that this objective is achieved and that the policy and program objectives of the GEAP are realized. Project Description: The project consists of six major components: (a) Institutional Support for Coordination of GEAP Implementation, to support the NEA to develop its operational capacity by financing equipment, training and targeted technical assistance. The development of management and technical skills in NEA and the provision of associated training in enviromnental management for staff of sector agencies and private sector operators, through short-term practical attachments or workshops; (b) GEAP monitoring and policy development, to reorient the existing sectoral policies and develop new policies where necessary, in accordance with the overall environmental policies elaborated in the GEAP; (c) Environmental education and public awareness, to support the development of a strategy to increase public awareness of environmental issues and support for electronic and print media campaigns, using iii existing government and NGO skills and capacities; (d) Monitoring of enviromnenial quality, to support the development of a system to collect information and monitor environmental quality against agreed threshold levels; (e) Environmental information management, to finance the development and implementation of an env.onmental information strategy according to a distributed model including (i) the design of a common information architecture to establish coherence and compatibility; (ii) the establishment of basic information infrastructures; (iii) the maintenance of key data sets; and (iv) analytical capabilities; and (f) Contingency planning and disaster preparedness, to develop a disaster awareness and contingency planning system. Benefits: The project would support Govermnent's strategy for the sustainable use of the environment, as set out in the GEAP, and would assist with the implementation of important aspects of the GEAP. The Gambia is one of the first group of countries to have completed a National Environmental Action Plan (NEAP) and is one in which Government ownership of the process is very strong. Government commitment to integrating environmental issues to the development planning process is reflected in the decision to create this new agency and place it under the auspices of the Office of the President. IDA has strongly supported countries' efforts to prepare and implement NEAPs; The Gambia's NEAP process can serve as a model to other African countries involved in similar planning processes. The project actions will ensure that the proper institutional, legislative and functional frameworks are in place to address the critical environmental issues facing The Gambia and that activities are implemented to reverse the trend of environmental degradation. Rislcs: Risks are associated with the effectiveness of the enviromnental management system, in particular the ability to achieve effective inter- sectoral coordination of actions. However, the Government has expressed its conunitment to this integration of environment into the sectoral planning process through the GEAP and through the creation of the NEA. Also, the capacity building focus of this project is designed to assist not only the staff of NEA, but also within other sectoral ministries whose work requires attention to environmental considerations. There are risks related to the general lack of knowledge of environmental issues and limited capacity to handle technical enviromnental issues. The project directly addresses these shortcomings through its focus on technical and managerial training of management and staff of the NEA and through the provision of technical consultancies to transfer competence. Program of Targeted Interventions: not applicable iv Estimated Program Costs (US$'000) ProjectComponent Local ForeignI Total % finl 1. Institutional Support for 757.5 462.5 1,220.0 38 Coordination of GEAP Implementation -_ _ 2. GEAP Monitoring and Policy 89.8 205.2 295.0 70 Development I 3. Environmental Education 158.7 246.3 405.0 61 4. Monitoring of Environmental 131.3 383.8 515.0 75 Quality and Enforcentent 5. Environmental Information 65.0 275.0 340.0 81 Management ___ 6. Contingency Planning and Disaster Preparedness 23.9 101.1 125.0 81 PPF Ref ing I 45.0 255.0 300.0 85 Parallel financing (GTZ) 271.1 1,028.1 1,300.0 79 TOTAL COSTS 1,542.3 1 2,957.7 4,500.0 T 66 Program Financing Plan (US$'000) _ _ Local Foreign Total %of Total |Govermnent 600.0 0.0 600.0 13 IDA 671.2 1,928.8 2,600.0 58 GTZ 271.1 1,028.9 1,300.0 29 Total Cost 1,542.3 2,957.7 4,500.0 _ Estimated Disbursements (US$'000) FY and Semester Disbursement Cumulative FY95 1st semester 367.84 367.84 2nd semester 366.34 734.17 FY96 Ist semester 408.50 1,142.67 2nd semester 406.04 1,548.71 FY97 1st semester 363.50 1,912.21 2nd semester 413.57 2,325.78 FY98 1st semester 274.22 2,600.00 v REPUBLIC OF THE CxAMBIA CAPACITY BUILDING FOR ENVIRONMENTAL MANAGEMENT TECHNICAL ASSISTANCE PROJECT STAFF APPRAISAL REPORT I. INTRODUCTION AND MACRO-ECONOMIC BACKGROUND 1.1 The Gambia, a very small country located on the west coast of Africa, surrounded on three sides by Senegal, occupies a narrow strip of land bordering the river Gambia. It covers 10,700 km2 and has a population of about I million growing at 4. 1% per annum. It has an undeveloped human capital base with an illiteracy rate of 73%, primary school enrollment of 61%, and infant mortality rate of 136 per 1000 (1990). 1.2 The Econonmy. The Gambia is an open economy with very limited natural resources and one of the least developed African countries, with a per capita income estimated at US$360 in 1991. The mainstay of economic activity has traditionally been the production and export of groundnuts, even though in recent years some progress has been made in diversifying production and exports toward tourism and trade services. Agriculture, which accounted for about 20% of real GDP in 1991/92, employs the bulk of the population; industry contributed 12% of value- added, with the rest accourted by services (trade 16%, hotels and restaurants 4%, and public administration 10%). 1.3 Macro-economic background. The first 10 years of independence saw broadly stable macro-economic conditions, with modest rates of economic growth. But from 1970 until 1985- 86, the economic and financial petformance of The Gainbia deteriorated markedly as a result of external shocks and inappropriate domestic policies. During the same period, the involvement of the public sector in the economy increased sharply through the creation of several public enterprises, particularly in the industrial and trade sectors. As a consequence of expansion in current Government expenditure, the growth of output in the productive sectors of the economy remained low. At the same time, price distortions and regulated markets for agricultural and industrial products discouraged the development of viable small-scale activities in the secondary sector and hampered agricultural development as well. 1.4 In response to the deepening crisis compounded by the marked decline in external aid, The Gambian Government adopted in mid-1985 a comprehensive macro-economic stabilization and adjustment program: the Economic Recovery Program (ERP) covering the 1985- 1990 period. Under the ERP, The Gambia's economic and financial performance improved dramatically. Four factors contributed to this success: (a) firm determination by the Government to implement the program; (b) close monitoring by, and frank dialogue with IDA and the Fund; (c) large influx of external aid; and (d) improved weather conditions. Building on the success of the ERP, the Govermnent launched the Program for Sustained Development (PSD) in 1990, which is still in effect. The PSD aims at reinforcing policy reforms and at promoting private sector growth by diversifying the economy. I 1.5 The economic strategy pursued under ERP and PSD has been primarily aimed at restoring economic growth, lowering domestic and external imbalances, reducing the public sector's role in the economy and promoting the development of the private sector. Between 1985 and 1990, real GDP growth averaged 3.5%, reflecting continued growth in the private sector, particularly in tourism and construrtion. Real GDP growth in 1991-92 was estimated at 4% due to quick recovery in trade and tourism, despite a slow recovery in agricultural production The inflation rate was cut to 4% by the end of 1992 from about 70% in 1985. These results are impressive, but they remain fragile and need to be sustained. 1.6 One of the main accomplishments of the reform program was the restructuring of the public eaterprise sector. Thus, the efficiency of enterprises and resource allocation has dramatically improved. Some five wholly-owned and 10 mixed companies have been privatized and performance contracts have been signed for the six public enterprises to ensure their managerial autonomy including tariff setting and meeting efficiency targets. The Government has recently signed a 10-year management contract for The Gambia Utilities Company (GUC). 1.7 The way has been cleared, in the financial sector, to increase private sector competition by phasing out the public sector's involvement accomplished with GCDB's privatizaiion in June 1992. The Government has revised legislation to enhance the Central Bank's supervisory role. Monetary policy is now implemented through open-market operations and credit ceilings have been abolished. Moreover, market forces are allowed to play a significanit role in determining key interest rates, on the basis of bi-weekly tender systems for Treasury bills. 1.8 The Gambia "graduated" from Enhanced Structural Adjustment Facility (ESAF) in November 1991. Subsequently, at the Government's request, a sixth year Project Policy Framework Paper (PFP) wa.s approved in June 1992 (covering the 1992/93-1994-95 period) as a framework for continued monitoring of macro-economic performance and adjustment reforms. No IMF resources are attached to this PFP. The IMF is preparing a seventh PFP with the Govenmment. 1.9 Population and Urbanization. The present population of The Gambia is estimated to be approximately 1 million and is estimated to reach 1.2 million by the end of this century. The Gambia has, in the past 15 years, experienced very rapid and uncontrolled urban growth without a commensurate level of investment in infrastructure and urban services. In 1960, only 12% of the total population lived in urt.n areas. Based on the recent 1993 census, about 40% of the total population lived in urban areas. This considerable change in the living conditions of the people has been aggravated by severe environmental problems resulting from the interplay of two major factors. Successive years of drought and inadequate rainfall, and rapid population growth leading to undue pressure on the limited capacity of traditional agriculture and pastoral production has had a dramatic effect on the urban concentration. Although rainfall has improved during the last two to three years, it is not likely to reverse the trend of ongoing migration from most rural areas towards cities and particularly the Greater Banjul Area (GBA). 1.10 The largest urban cepter is the GBA with the two main municipalities of Kanifing Municipal Council (about 229,000 inhabitants) and Banjul City Council (about 43,000 inhabitants). The largest share of urban growth is concentrated in the GBA which accounted for 15% of the 1982 total population and two-thirds of the total urban population. In 1992, it 2 represented 30% of the total population and three-quarters of the total urban population. The GBA is growing at 8 % per annum, while the total population is growing at about 4.1% per annuni. The population dynamic make the demographic data even more alarming. Current estimates show that more than 50% of the population is less than 15 years old, In five to 10 years when this young population reaches the child bearing age, a sharp increase in population should be expected. 1.11 The growth rate of the secondary cities is also very steady. In some cases, like Brikama and Farafenni, they have witnessed an even greater growth than the GBA. One hundred twenty-one thousand inhabitants live in 1 urban centers (one urban center accommodates about 5,000 inhabitants). The urban growth has led to rapid expansion of squatter communities in the periphery of the capital city and tihe larger secondary towns. A large number of poor households live without access to clean drinking water and sanitation services. 1.12 Persistent declining economic prospects in many of The Gambia's rural areas explain this substantial migration to urban centers from all parts of the country. The problem of rural- urhan drift has put considerable pressure on the urban environment and has given rise to increasing health problems. The absence of physical planning and proper land-use resulted in over: rowded and unhealthy living conditions for the majority of the urban population, particularly the urban poor, and a severe lack of basic infrastructure, especially disposal of solid waste ard sewerage system management. II. THE ENVIRONMENTAL SETTING A. Background 2.1 The Gambia's concern with environmental issues dates back to 1977, when the President issued The Banjul Declaration in favor of the protection of the country's biodiversity. In a subsequent attempt to develop an institutional framework for addressing environmental issues, the Government created the Environment Unit in 1983. This was followed in 1987, by the enactment of the National Environment Management Act (NEMA), which provided legislative measures for environmental protection, and later by the creation of the Ministry of Natural Resources (MNR). Despite these institutional initiatives, environmental problems became more severe due to lack of adequate action on the ground. It was against this background of intensifying environmental degradation that the Gambia Environmental Action Plan (GEAP) was prepared. Under the auspices of the National Enviromnental Management Council (NEMC), the GEAP was prepared with broad cross-sectoral involvement of Government agencies and with high-level Govermnent support. The GEAP was approved by Cabinet in July 1992, and presented to the donor community at a Roundtable in Banjul in January 1993. The Government rapidly began implementing the recommendations of the GEAP, beginning with the creation (effective July 1993) of a new Na -Al Environment Agency (NEA) under the Office of the President, into which the old Environment Unit was folded. 3 2.2 The GEAP was formulated in the context of The Gambia's structural adjustment program supported by both the World Bank (SAL 1I) -.-d IMF (ESAF). IDA provided support both through the Sahelian Department and the servic.s of the Multi-Donor Secretariat for National Envirounmental Action Plans (NEAP) to assist the Government in finalizing the GEAP and for attracting donor support for its implementation. M:,sions in April and September 1992, and in January and March 1993, provided assistance to the Government for completion of the GEAP and discussed ways in which implementation could be supported. Given the importance of having sound institutional strtctures for environmental planning and management and in recognition of the Government's decisive and rapid action in creating the new environment agency as an autonomous unit under the Office of the President, it was agreed that IDA funding could be focused, in coordination with other donors, on providing institutional support to the NEA to enable it to fulfill its important coordinating and regulatory roles as defined in the GEAP. B. Environmental Resources 2.3 Topography. The Gambia lies within the Sudano-Sahelian zone and follows the banks of the Gambia River. With a total land area of 10,700 m2, the country is 470 kan long, following the course of the Gambia River and in places is only 24 km wide. 2.4 Agricultural Resources. Agriculture currently accounts for some 25% of GDP and provides employment for about two-thirds of the labor force. It is estimated that the area harvested averages about 160,000 ha, or about 40% of the country's suitable agricultural land. Nearly all of it is rain-fed and only about 1,000 ha are pump-irrigated, although rice is also grown on some additional 10-20,000 ha of uplands, mangrove swamps and in freshwater tidal areas. The predominant production system is traditional slash and burn cultivation, requiring a substantial area for fallow and recovery. The increasing population pressure is gradually reducing the fallow period, leading to more continuous cropping and soil degradation. The direct economic and other consequences of this environmental degradation are being increasingly felt. However, agricultural production so far shows no clear trend, with crop output continuing to be primarily a function of weather. 2.5 The principal crops grown are groundnuts, millet, sorghum, swamp rice, maize and upland rice. Minor crops are cotton (2,000 ha) and vegetables (800 ha). Productivity is generally low due to the low fertility of most of the agricultura' soils. While irrigated rice development is constrained by natural factors (salinity of the Gambia River due to tidal intrusion of sea water), vegetable growing has greatly increased in the last several years. 2.6 The family unit is the main source of labor supply. Although reliable statistics are not available, the use of animal traction (oxen, donkeys and horses) has been reported to be increasing and, at present, it is estimated that over 95% of the coarse grain and groundnut area is prepared using animal traction. Land tenure and allocation practices are traditional. 2.7 Livestock Resources. Livestock is also important, with about 15-20% of the rural population owning cattle. Almost all farm compounds keep sheep, goats and poultry. The national herd has recently been estimated to be as follows: 280,000 head of cattle, 120,000 sheep, 180,000 goats, 14,300 horses and 36,500 donkeys. The pr sent stocking rate of about 70 4 head of cattle per square kilometer is considerably higher than the generally accepted carrying capacity of 50 head per square kilometer in the Sahel. When sheep and goats are included, the density is much higher, and the pressure on the grazing lands is a major factor in land degradation. All livestock are kept under traditional husbandry systems and productivity is generally low. To date, no significant modem poultry producing units exist, largely because of the cost of imported animal feed and problems in obtaining supplies of day-old chicks. 2.8 Forest Rescurces. The forests of The Gambia are comprised of Sudanian woodland, wooded savanna and bush fallow, mangroves and isolated relics of closed forest in the moister western region. Most of the forests have been modified by fire, grazing, exploitation for timber and fuel and for cultivation. Drought has also taken its toll. Forest cover is decreasing steadily due to the destruction caused by bush fires and traditional slash and burn farming practices. Today only 175,000 ha, or 17%, of the total land area can be considered as wooded. The quality of the stand and the canopy cover have dettriorated as a consequence of logging, land clearing, firewood collection and burning. The rate of firewood consumption exceeds the annual growth increment of the remaining national forest, and the country has to import 95% of its construction timber requirements. Massive deforestation has resulted in soil erosion, excessive ruz"off and the extinction of animal species. Hunting is no longer an important source of protein for the rural population. Formal and informal forest products include honey, fencing, mats, rhun palm (Borassus aethiopum) splits and fruits. Other indirect and non-timber forest products are livestock forage, nuts, oils, medicines and roofing materials. The sole formal forest product export is palm kernel nuts from Elaeis guineensis. 2.9 Wildlife and Biodiversity. The level and diversity of faunal biodiversity has been dramatically reduced in The Gambia with the rapid disappearance of natural forests and other habitat. Currently, thirteen of the sixty-seven known mammal species have become extinct, and few representatives of the remaining other species exist now. With the increased population pressure and the increasing demands on land resources, the pressure on most of the remaining large mammals is increasing, particularly as damage to crops by warthogs, baboons, vervets, patas monkeys and hippopotami becomes of increasing consequenc.. Two large manunals whose habitat was in the mangrove areas, creeks and islets and were thought in the 1970's to be potentially capable of conservation-the aquatic antelope (Sitatunga) and the African manatee--are now endangered and near extinction. On the other hand, The Gambia remains rich in avian species, though the increasing loss of habitat poses a serious threat to current levels. 2.10 Fishery Resources. Government efforts to encourage the fishing industry along the river and The Gambia's 57 km of coast have attracted development assistance. The Government strategy is to increase returns from the sector and to ensure that increased value added from the industry is kept in-country. Currently, the fisheries industry in The Gambia has eight factories, 15 Garnbia-registered vessels and, in 1987, 3,626 registered fishermen, of which 1,512 were foreign nationals. 2.11 Water Resources. The River Gambia is the major source of surface water. Intensive agriculture and the destruction of natural riverain wetlands has caused increased erosion and siltation in the upper reaches. The reduced surface flows have resulted in greatly increased salt water intrusion from the Atlantic. Ground water is the main source of multi-purpose water supply in the country. The most recent surveys (1990) of the water supply situation in the country indicate that 48% of the population obtain their supplies from open wells; 31% from 5 piped water, and 21 % from wells fitted with hand-pumps. There are two main aquifer systems in the country: the Shallow Sand Aquifer that occurs between 10-20 m below the ground (except in North Bank Division, where it is 30-40 m below ground) and a Deep Sandstone Aquifer, confined between a 200-300m thick sequence of marts and clays. The reduced rainfall affects the recharge of ground water negatively, resulting in significant declines in the ground water table and increased danger of salt water intrusion from the coastal areas. C. The Main Enviromnmetal Issues 2.12 The main environmnental issues in The Gambia center around: (a) natural resource depletion; (b) coastal degradation; (c) expanding populations and rapid urbanization; and (d) dwindling sources of energy. These issues have been identified in the GEAP and the proposed project will help ensure a sound institutional structure for environmental planning and management to address these issues. 2.13 Natural Resource Depletion. High population growth and declines in rainfall are the two major catalysts in the depletion of natural resources in The Gambia. With high rates of rural to urban migration, the non-agricultural population now accounts for almost 40% of the population. Resultant demands for agricultural and natural resources products, especially livestock products, grains and forest products, are growing. Although the trend may reverse in the future, the length of the rainy season has been declining, with the onset shifting from mid- June to mid-July. It has been estimated that the total annual rainfall in The Gambia has decreased 14% since the 1950's. 2.14 Traditional resource management practices in The Gambia have not been able to adapt effectively to these trends, with increasing pressure on land-based resources evident. As a consequence, fallow periods on arable sites have been shortened, in some places from over a decade to only one year. Evidence from the Government's annua' agricultural survey suggests that this trend is continuing. 2.15 Decreasing fallow periods have led to loss of soil fertility and increased erosion. The extension of agricultural lands competes with the need for range lands, and the consequent degradation of increasingly limited range land resources is evidenced by the disappearance of perennial pasture species. This is exacerbated by the uncontrolled burning of range lands by farmers and herders, reducing the long-tenn forage availability and undermining forest regeneration. 2.16 The increasing demand for fuelwood and forestry products has led to a decline in the forest cover and significant biodiversity loss. Approximately 70% of the areas classified as forest in The Gambia consist of tree and shrub savanna, with less than 10% tree cover. Using 1988 landsat imagery, it was determined that the area of closed forest had decreased by 80% since 1972. This loss of habitat has contributed to the significant loss in biodiversity, including the extinction of a number of major animal specials fornerly indigenous to the country. 2.17 Coastal Degradadon. Land clearing and tourism development on the seashore, removal of beach sand for construction, pollution and rising sea levels are responsible for the degradation of the country's coastal ecosystems, the basis of the tourism industry. The densely 6 populated urban areas as well as the port and tourism sites are located in the coastal zone. The development which has taken place has accelerated beachi erosion, which in some places is estimated to exceed two meters per year. Part of the problem is caused by removal of beach sand in an uncontrolled manner by building contractors. Coastal pollution is evident, with contribution from the fish processing sector, litter from the tourist industry, sewage outfall, and oil spills from ships. 2.18 Rapid and Unplanned Urbanization. Rapid urbanization has resulted in a crowded situation in the Greater B3anjul Area. Over 75% of this population lives in sprawling and unplanned suburbs. Land in these areas continues to be allocated by village heads under customary tenure laws, without any accompanying infrastructure development or provision of other basic services. The open communal farming areas that once separated the villages are rapidly disappearing. The resulting overcrowding, lack of sanitation and clean water supplies and inadequate waste management have resulted in a sharp increase in communicable and water and vector borne diseases. The Physical Development Plan for the GBA has not been adequately implemented, as evidenced by the rapid urban sprawl and resulting environmental problems. There has been no collective conunitment to the master plan concept and no driving or organizing force behind it. This is compounded by the lack of basic infrastructure services, in particular roads and drainage which have not kept up with the patterns of urban sprawl. 2.19 Energy Sources. Energy consumption in The Gambia is characterized by reliance on natural resource-based sources of energy. Over 60% of total energy consumption is in the form of firewood, with the balance sourced from imported petroleum-based products. The fuelwood is used for domestic cooking and heating purposes. The petroleum products (estimated at 64,000 tons annually in 1989) is used for transport fuels and for diesel electric power generation. 2.20 Deforestation at the present rates makes the present rate of fuelwood consumption unsustainable. The Government has taken steps, starting with a 1980 ban on charcoal production, to try to alleviate pressure on the forests. There has been some limited success with tree plantations, improved cook stoves and groundnut shell briquetting. There are efforts to introduce butane as a cooking fuel in urban areas, following the regional approach supported by the EEC through the "Comite international de Lutte contre la Secheresse dans le Sahel." Currently, butane is imported from Dakar and transported overland, with a resulting high price of 10-12 Dalasi per kilogram. In the long run, the substitution of butane for fuelwood as a domestic fuel could potentially save up to 80,000 tons of fuelwood annually through the importation of 7,000 tons of butane, once costs are reduced. 2.21 Renewable energy sources such as solar, wind, biomass, hydroelectric and geothermal offer alternatives to reliance on fuelwood. The question remains the financial feasibility of adopting new alternative technologies. The issue is under study as part of the Bank- supported Sahel Traditional Energy Sources Study. D. Institutions 2.22 The National Environment Agency. The NEA was created in July 1993, to ensure planning, management and protection of the environment in The Gambia and to promote the integration of environmental concerns into the national planning and development processes. At 7 present. the NEA draws its authority from the NEMC, created in the NEMA of 1987. This act is currently under review. The revised version will empower NEA to fulfill its mandate, particularly its regulatory and monitoring role. During negotiations, agreement was reached with Government for all revisions to NEMA to be shared with IDA for review and comment (para. 6.5 (a)). NEA is the key institution providing a focus for regulatory control and coordination of intersectoral work on environment and natural resources issues. Its specific functions are: (a) to promote, coordinate and support the formulation of national environmental policies and to guide the execution of those policies in coordination and cooperation with the other agencies of Govermnent, as well as to propose to the competent authorities any general or particular measures destined to facilitate the execution of Government's environmental policies; (b) to coordinate, monitor and evaluate the GEAP and to review and revise, as necessary, its goals and strategies; to ensure full public awareness of the GEAP framework and objectives and to carry out monitoring and review of all development activities to ensure full compliance with environmental regulatory requirements in The Gambia; (c) to collaborate with those public bodies responsible for planning and for finance, to review the environmental content of the public investment program in order to ensure that environmental concerns are fully integrated; (d) to provide continued coordination and liaison with the technical ministries, local governments, local communities, private sector entities and non-governmental organizations to ensure adherence to national environmental policies; (e) to establish and define guidelines and procedures for Envirorgnental Imact Assessments (EIA) and to monitor and ensure compliance, in cooperation with the technical ministries and project promoters, with the EIA findings; (f) to advise concemed ministries, agencies and otherwise authorized entities on enforcement of environmental legislation, regulations and standards as well as arbitration of environment-related conflicts; (g) to monitor adherence to international treaties and agreements on the environment; (h) to coordinate and promote the use of environmental information systems and resultant data; (i) to enhance national capacity for environmental protection through the promotion and coordination of environmental and natural resource management-related training, non- formal and formal environmental education and the enhancement of public awareness concerning enviromnent and natural resource protection issues; and (j) to advise and support Government initiatives on collaboration with non-governmental organization and cotiununity organizations in the area of natural resource management and environmental protection. 8 2.23 NEA also plays the key roles of secretariat for the NEMC and chairman of the Technical Advisory Committee (TAC), the two intersectoral coordination mechanisms responsible for policy formulation and enviromnental oversight in The Gambia. The President of The Gambia presides over the NEMC, indicating the high priority assigned to environmental planning and management by Government. The Agency itself is under the Office of the President, which provides oversight and budgetary support, while the NEMC oversees its technical activities. NEA is headed by an Executive Director and has a total of twenty-four staff including eight professionals (see organization chart, Annex 1). The professional staff includes the Executive Director, a Division Director, a Registrar of Pesticides, and five programn officers. 2.24 There are other public institutions whose responsibilities cover natural resource management and environmental issues. NEA will have to work closely with these agencies, which are implementing agencies, in order to ensure both inter-sectoral coordination and planning as well as facilitating problem solving and policy development. The other agencies are described below. 2.25 Ministry of Natural Resources. The MNR, formerly Ministry of Natural Resources and the Environment, has four technical departments: Forestry, Water Resources, Fisheries and Wildlife. It is supported in its policy analysis and planning functions by the Planning Unit. The MNR has partial responsibility for natural resources management and for technical work related to natural resource management and for policy formulation in that domain. 2.26 The Planning Unit was created to address a broad spectrum of natural resource management issues, including appropriate natural resource utiiization, sectoral integration to achieve multiple-use management and land prod ictivity. The principal responsibilities of this unit include medium term planning and policy formulation and monitoring and evaluation. This unit has three professional staff. Assistance to the Planning Unit is included in the Agriculture and Natural Resources Support Project (ANR), financed by USAID. 2.27 The Department of Forestry is responsible for the management of The Gambia's forests, including the establishmer.t of forest parks, the collection of fees from licenses, permits, royalties and the sale of confiscated illegal forest products. The head office is in Banjul, with representation in all divisions of the country. In 1955, 66 forest parks were created totaling 34,029 hectares or 3 % of the total area of the country. A total of 34 of these parks were set aside for protection (22,239 hectares). 2.28 The Wildlife Conservation Act of 1977 provides for the conservation and management of wildlife, for the establishment of national parks and local sanctuaries and for the creation of the Department of Wildlife Conservation. The Department of Wildlife Conservation is charged with the protection of national parks and reserves. It has 26 employees, but with little capacity to supervise, control and inplement programs in the wildlife refuges under its responsibility. 9 2.29 The Department of Water Resources is empowered under the Water Resources Act of 1979 to carry out the development, exploitation and conservation of water resources in The Gambia. The Act provides for a National Water Resources Council and a technical committee. Since the Act was adopted, it has remained unenforced and is inadequate, given the rapid increases in human and livestock populations, contamination of water bodies and the need for new industries. 2.30 The Fisheries Department is responsible for managing the aquatic resources of the country under the Fisheries Act of 1991, which provides for the management of fisheries and the development of the fishing industry. 2.31 The Ministry of Agriculture. The MOA is the principal government agency involved in agriculturai development. The Department of Planning has overall responsibility for planning in the agriculturai sector and provides policy advice to the Minister. The Department of Agricultural Research and the Department of Agricultural Services are responsible for providing agricultural research and extension services, respectively. The Soil and Water Management Unit falls under the Department of Agricultural Services and is responsible for promoting improved soil and water management practices. The Department of Livestock Services is responsible for control of notifiable diseases, the inspection of animal products and for livestock extension. It is responsible for the introduction of innovations in range lands management. 2.32 The Ministryfor Local Government and Lands. The MLGL is responsible for providing the institutional superstructure for local government administration. These include districts, which are governed by commissioners, and divisions, which are run through "area councils". The Department of Community Development within the MLGL has over 60 field agents working with rural communities to stimulate self-help actions. The Department is also charged with assisting in the formation of village development committees. The Department of Physical Planning and Housing is responsible for regulating and guiding the rational utilization of land resources. 2.33 7he Ministry of Health and Soaal Welfare. The MHSW is responsible for managing the Government's subvention to the Cleansing Service for the two local government authorities in greater Banjul. The MHSW provides the bulk of solid waste disposal costs in addition to technical and managerial assistance through the assigmnent of a senior memnber of its staff to head the Cleansing Service. Again, this Ministry is severely limited in its operational capacity by lack of adequate human and financial resources. This inhibits it from adequately carrying out solid waste management responsibilities in the GBA. 2.34 The Ministry of Trade, Industry and Employment. The MTIE is responsible for the development of renewable energy resources, and for the promotion and regulation of industrial development. The MTIE's Energy Division will act as the secretariat of the National Energy Council, soon to be established to advise Cabinet on energy matters. It is specifically responsible for petroleum exploration and for monitoring the imnportation, utilization, distribution and pricing of petroleum products. It is also responsible for formulating energy policy and legislation. The Gambia Renewable Energy Center is the technical arm of the MTIE, responsible for research, development and utilization of renewable energy resources, as well as for the coordination of all national renewable energy development activities. It lacks funding and adequate human resources to carry out meaningful research work and the promotion of alternative renewable energy 10 resources. The Human Resources Development Division and the Industrial Unit of the MTIE also have important environment-related responsibilities. The coordination of population-related activities has been moved from MTIE to .he Population Commission under the Office of the President. 2.35 Non-Governmental Organizations. NGOs work predominately in the areas of agriculture, food aid provision or in community services such as education, literacy and maternal care and child health. There are about 100 NGOs in The Gambia, of which 50 are registered with The Association of Non-Governmental Organizations, an umbrella promotional group. More recently, NGOs have become involved in seed production and distribution as well as tree planting, and about 11 of the registered NGOs have environmental activities. These include Action Aid, which is in the process of establishing a reforestation program, and World Wide Fund for Nature, which is working in Kiang West National Park. The present role and potential for expansion, and for assuming a greater responsibility on the part of the major international and Gambian NGOs in environmental management, is essential to expanding development efforts in The Gambia. Under present austerity measures, the Government cannot expand services by significantly increasing public employees, and the capacity to work closely at the field level severely limits effective implementation of development programs. There is a need, therefore, to foster more cooperation between the Government and NGOs to develop a working partnership for development and for the implementation of environmental activities. 2.36 As illustrated by the multiple and frequently overlapping programs mentioned above, there is a real need for coordination. The proposed project would support the NEA as it puts in place appropriate structures, systems and mechanisms for environmental management. E. The Major Constraints on Reversing Environmental Degradation 2.37 Most of the direct causes of environmental degradation have been noted in the previous sections. There are commonly complex inter-relationships between these direct causes, which are often the result of equally complex linkages between underlying factors and forces. The main underlying causes for the depletion of the natural resource base and increasing environmental problems in urban areas are: (a) rapid population growth; (b) widespread rural and urban poverty; and (c) a lack of institutional structures for adequate and effective environmental planning and management. 2.38 Population. The needs of The Gambia's rapidly expanding population have been met largely through the unsustainable exploitation of the natural resources. This is reflected in shortened fallow periods, encroachment of agricultural lands onto pastures and continued loss of forest cover. The problems of rapid population growth are exacerbated by the uncontrolled and rapid drift to the major urban area of the country around Banjul: Over one third of the population lives in this area, taxing the resiliency of the environment as traditional systems of resource use and land allocation break down. The rapid increase in urban populations and the lack of corresponding movement in infrastructure and basic services development has led to pollution and degradation of the urban environment. At the risk of being repetitive, the linkage between an unchecked population growth and environmental degradation cannot be stressed sufficiently. In fact, if the current growth rates continue, environmental policies will do no more than simnply slow current trends. 11 2.39 Poverty. With an income estimated at US$360 in 1991, The Gambia is one of the world's poorest countries. Poverty, both urban and rural, is a strong impediment to adopting new practices which have a less damaging effect on the natural resource base. Poor farmers and urban dwellers do not have the time, the financial resources, or the motivation to invest in new techniques and technologies for conservation, since their daily efforts are focused upon obtaining the minimum necessary requirements for survival of self and fatnily. In the situation of skewed income distribution, with only a small percentage at the top having the time and/or the resources necessary to adopt innovations, the poor will remain generally unresponsive to educational messages concerning natural resources management and conservation and will continue to exploit the available resources in an unsustainable manner. Unless the basic needs of the populations are met through effective income-generation programs which precede or accompany efforts to introduce conservation practices, these will fail. 2.40 Inadequate Institutional Frameworkfor Environmental Planning. The lack of adequate institutional structures to deal with environmental planning and management and promotion of public awareness and understanding of environmental issues is a factor which exacerbates the underlying causes of environmental degradation. Lack of effective institutional structures reflects a lack of understanding on the part of decision makers of the importance of environmental issues in overall development planning. With the adoption of the GEAP, this critical issue is being addressed and actions taken. With the creation of the NEA, the Government has begun to address the important institutional question, which will enable it to focus cross-sectorally on the issues and problems described in this and the preceding sections. The challenge for the Government will be to expand the NEA's commitment to the environment so that it becomes normal behavior in all ministries and agencies and in the population at large. The current project will support the Government's efforts to plan and manage environmental issues in a sustainable manner as part of the overall development program for the country. 2.41 The problems mentioned above are being addressed by the following current exercises: (a) a comprehensive national population policy has been prepared with a view to reducing the current population growth rate and bringing about a sustainable equilibrium between human and natural resources demands and consumption. An IDA-supported Health and Population Project (FY96) will finance specific interventions within this overall program (eg. family planning, AIDS control, gender-focused activities); (b) the rural issues are being explored and dealt with by the USAID ANR (see para. 2.55); and (c) improvements in urban poverty are the objectives of two projects: Public Works and Capacity Building Project, approved by the Board in December 1993, and Urban Environment Project (an FY95 project). The proposed project addresses the inadequate institutional framework for environmental management. 12 F. The National Environmental Action Plan 2.42 The NEAP for The Gambia is called the GEAP. The GEAP was approved by Cabinet in July 1992, after a long process of planning and preparation, and marks the Government's conunitment to face its environmental problemns and try to find solutions to them. The (iEAP is divided into two parts: (a) the GEAP itself, which provides an overview of the environmental situation, a discussion of the critical issues and proposed strategies for solving those problems; and (b) a compilation of projects forming a Technical Cooperation Program, indicating suggested project priorities to address the issues identified in the GEAP proper (see Annex 2 for GEAP summary). 2.43 Seven policy objectives were formulated as underlying assumptions for the GEAP framework. These objectives are: (a) to conserve and promote the rational use of natural resources; (b) to protect and improve the health and quality of life of Gambians through sound environmental management; (c) to restore and preserve the equilibrium of the ecological processes; (d) to strengthen the institutional framework for environmental management and coordination; (e) to increase public environmental awareness and understanding and foster greater community participation in environmental management; (f) to ensure the integration of environmental considerations into the development process; and (g) to accelerate the adoption of alternate sources of renewable energy. 2.44 In order to achieve the overall goal of sustainable and effective enviromnental planning and management, the GEAP policy objectives have been translated into a program which focuses both on the overall institutional framework and other broad issues such as environmental information management and environmental education and awareness as well as on the priority sectoral concerns of natural resources, the urban enviromnent and renewable energy sources. The three major sectoral programs are: (a) natural resource management; (b) environmental health; and (c) energy. These programs were designed to address the major issues identified during the GEAP preparation. They are inter-linked, since they have a number of common issues which, when addressed, will have a cross-cutting effect. 2.45 Natural Resource Management Program. This program will: (a) assist and encourage producers to adopt improved land and natural resource management practices; (b) foster proper management of coastal and freshwater resources; (c) develop Government partnerships with non-governmental organizations for natural resource management; (d) collect, analyze and use data for natural resource management planning; and (e) develop local area integrated management plans. 2.46 Environmental Health Program. This program will: (a) improve waste management in urban areas; (b) control pollution related to hazardous chemicals and industry and (c) increase community involvement in controlling adverse environmental factors. 2.47 Energy Program. This program will (a) introduce new and renewable sources of energy as fuelwood substitutes; and (b) increase the amount of cultured fuelwood available. 13 2.48 Cross-Sectoral Programs. The GEAP also identifies the need for several cross- sectoral program initiatives which focus on: (a) management of environmental information; (b) public education and awareness of environmental issues; and (c) environmental institutional and legislative framework development. These three areas are critical if environmental issues are to be addressed in a meaningful way in The Gambia. They will ensure that the foundation for successful environmental planning and management, as well as for ensuring coordination of enviromnental activities and their integration into the overall development planning framework, is put into place. They will also provide for a clear definition of institutional roles and responsibilities so that environmental planning can be facilitated and have the desired impact. 2.49 The GEAP and On-Going Environmenta Programs and Projects. The GEAP recognizes that there are currently a number of environmental or environmnent-related project initiatives underway in The Gambia and that one of its objectives is to support and strengthen and to build onto those initiatives. Areas in which actions are already underway include: (a) livestock and range management; (b) soil and water management; (c) forestry and wildlife conservation; (d) fisheries management; and (e) urban management and development. hmplementation of the GEAP objectives and strategies will be through strengthening these initiatives, as well as developing new ones which directly address the critical issues identified during the GEAP preparation process. As these projects and activities are reviewed, attention will also be given to further defining a number of issues critical to achieving sound environmental planning but for which more studies are required. These include issues such as: (a) coastal zone management; (b) decentralization and devolution of authori.ty to local communities for natural resources management; (c) land use planning and land tomnre; (d) the effects of economic policy on the environment; and (e) the economic impacts of environmental degradation and of conservation efforts. 2.50 The Institutional and Legal Frameworkfor GEAP Implemention. One important repercussion of the GEAP preparation process was the recognition at the highest levels of government that rapid and concerted attention should be paid to ensuring that there is a sound institutional framework for environmental planning and management and an accompanying and empowering legal framework. Moving rapidly beyond the weakly defined recommendations in the GEAP text, the Govermnent subsequently decided to create an autonomous environmental agency. This has been done by upgrading the Environment Unit, under the MNR, into the NEA under the Office of the President. This recognizes the need for an institution that can: (a) effectively coordinate and monitor the implementation of the GEAP; (b) provide support for environmental planning, policy formulation and management across sectoral lines and in cooperation with technical agencies and ministries; (c) facilitate the integration of environmental considerations into the national development process; (d) monitor the enforcement of environmental regulations; and (e) work on a broad cross-sectoral basis with public and private institutions to promote environmental awareness. The NEA will act as secretariat to the NEMC, which will be chaired by the President. 2.51 The Govermnent is also conducting a general review of the laws relating to environment to identify the changes required to put in place comprehensive legislation that will facilitate environmental planning and management. This legal review and formulation of 14 environmental legislation and an appropriate environmental regulatory code will facilitate inter- agency coordination and will empower the NEA as the key player, thereby facilitating its cross- sectoral coordinating role (para. 2.22). G. IDA Assistance Strategy for the Environment 2.52 Lessons from Previous Bank Group Operations. IDA's assistance strategy for environmental matters in The Gambia is based on a continuing dialogue with Govermnent and on lessons from previous operations in The Gambia, as well as in other countries in the region where NEAPs have been prepared. Although there has been no Bank Group lending in The Gambia specifically for environmental operations, much of the prior IDA lending for sectoral operations (agriculture, urban infrastructure) has had a direct impact on the environment. Experience with other lending operations and other Bank Group support for the NEAP process indicates the need to develop strong institutional and legal frameworks for environmental planning in order to guide any subsequent policy formulation and project development activities. This also provides the focal point for donor coordination for environmental activities and ensures better programs for environmental training and capacity building within a comprehensive framework. 2.53 Policies and Priorities. In light of this experience and the framework provided by the GEAP, IDA's assistance strategy aims to ensure that environmental considerations are fully integrated into The Gambia's overall macro-economic and development policy, its sectoral strategies and specific development initiatives. This will be facilitated in The Gambia, given the broad Government ownership of the GEAP and the expressed desire to have the proper environmental policies and institutional structures. The difficulty will be to achieve broad, grassroots comiitment to environmental improvement, in both the public and private sectors. IDA aims to assist The Gambia to put into place the proper structures for environmental planning, management and overall coordination through support for the new NEA and for developing local capacity for environmental planning and management. IDA assistance will ensure that the new agency is properly structured and empowered by appropriate legislation, which clarifies the role of the agency and its relations with the sectoral ministries and departments, as well as with donors, the private sector and NGOs. This is in line with the Bank Group's overall strategy for future assistance to The Gambia, which will focus largely on institutional capacity development. IDA will also support sector programs identified in the GEAP, such as urban infrastructure, sanitation and urban management, as well as issues related to natural resource management and renewable energy resources. H. Other Donor Assistance and Programs 2.54 There are two major bilateral donors involved in funding environmental activities in The Gambia: Germany (GTZ) and the United States of America (USAID). Both of these donors have on-going programs related to natural resource management, environmental planning and forestry management issues. They are both planning to provide support for the new NEA, in coordination with IDA assistance. IDA's support has been structured in coordination with the project preparation efforts of GTZ and USAID to ensure a complementary and comprehensive package of long-term support for the agency. 15 2.55 USAgencyfor International Development (USAID). USAID has recently (August 1992) approved a new project to support initiatives in natural resources management, The Agriculture and Natural Resource Management Project (ANR). This US$22.5 million, five-year project will provide: (a) a US$10 million cash transfer for foreign exchange payments in exchange for policy reform in the natural resources sector; and (b) US$12.5 million in project assistance for grants to NGOs for conmmunity-level natural resource interventions, technical assistance for institutional support and natural resources planning, training for Gambians in natural resource management, land tenure issues, and support for the Peace Corps volunteers working in the natural resources field. USAID will also provide funding under this project to support environmental education efforts-integrating environmental studies into the education curriculum--to be coordinated by NEA. 2.56 Deutsche Gesellschaftfdir Technische Zusammenarbeit (GIZ). GTZ funded a National Forest Inventory in 1980 which led to the production of a National Forest Management Plan in 1983. In 1985, the Gambia-Gennan Forest Project embarked on intensive natural forest management of three forest parks, covering about 1,500 ha. Currently, the thrust of the management activities are fire protection and deadwood utilization. To involve the rural population in the management of their forest resources, the project has introduced a community- based forest management program which started as a pilot scheme in 1991. 2.57 Afnican Development Bank (AfDB). The AfDB will provide support for a major study on coastal land management, with a particular attention to the problems of coastal erosion. AfDB financing will be utilized for a feasibility study and for engineering works aimed at mitigating coastal erosion in the GBA. This program may also receive technical support from the Government of the Netherlands. 2.58 United Nations Development Program (UNDP). The Gambia has been chosen as one of five African countries to benefit from Capacity 21 funds. UNDP will make $800,000 available to the Government of The Gambia under this program. Use of funds is not yet fmalized, but could be utilized for: (a) the development of a comprehensive program of natural resource accounting and environmental economics; (b) a study for decentralization of GEAP implementation; (c) miscellaneous funding which will be made available to help other sectoral agencies respond to environmental issues for which they have no resources and (d) for review of the Technical Cooperation Program. 2.59 Donor Coordination. Subsequent to the January 1993 sectoral consultations on environment and natural resources in The Gambia, GTZ and IDA agreed with the Government to support and finance jointly this program for environmental management, with a focus on the institutional and human resources capacity development of the new NEA (see 3.9 for details of the GTZ-funded components). Other donors mentioned above (USAID, AfDB and UNDP) are all implementing or planning activities which will support priority objectives of the GEAP. As an overall planning document guiding the efforts of individual donors, it serves as a framework for ensuring donor coordination within the priorities established during the GEAP process. 16 III. T1HE PROGRAM A. Rationale and Objectives 3.1 Rationale. The program would support economic and social development while maintaining the integrity of environmental processes and ensuring long-term sustainability of natural resource use. This would be pursued through support for the implementation of the GEAP, most notably the effective establishment of the recently created NEA. The program is based on agreements with Government on the priorities to be attached to the various functions of the NEA. It would represent the first stage in the implementation of the Bank's strategy for providing environmnental assistance to The Gambia. The program being supported by this proposed project will directly benefit the sector-specific interventions being financed by IDA and other donors (paras. 2.55 - 2.59) through the establishment of standards and guidelines, the collection and dissemination of information and institutional support and guidance, all within the framework of the GEAP. 3.2 Objectives. The program's primary objective is to establish the capacity within the NEA to develop and ensure the coordination of an effective system for environmental planning and management in The Gambia so that environmental concerns are fully integrated and reflected in the social and economic development process in The Gambia. Consequently, the program would focus on the development of the institutional infrastructure and on strengthening of the capacity of the human resources required to meet this objective and to realize the policy and program objectives of the GEAP. B. Program Design 3.3 Proposed strategy. As a technical assistance program, the main focus would be on institutional capacity development, particularly to help set up the NEA. The project would support the programmatic objectives of the GEAP and emphasize environmental management mechanisms and processes rather than prescribe specific environmental actions. Since the long- term success of enviromnental planning initiatives in The Gambia will be contingent upon the development of adequate human resources in NEA and other associated agencies, the program would aim to bolster local talents and skills in order to reduce gradually the country's dependence on extensive technical assistance. To this end, the program would support a new approach that relies on stronger local management supplemented by short- and medium-term targeted consultancies. 3.4 Strategyfor technical assistance and training. Technical assistance and training would aim to build capabilities of local staff in NEA and its collaborating agencies, in those skills in which Gambian capacity is lacking or deficient, in particular the technical and managerial skills required for successful project implementation. Accordingly, all technical assistance will consist of focused short term consultancies. Similarly, training will consist mainly of short-term, out-of-country practical attachments, on-the-job, in-country instruction or short-term technical workshops. This arrangement wouid ensure continuous technical guidance and gradual capacity development without the drawbacks of sustained presence of expatriate advisors. 17 3.5 Intersectoral linkages. The inter-sectoral nature of environmental management necessitates the involvement of many agencies in planning, policy development and implementation, data collection, monitoring, problem-solving and enforcement. Because the NEA is not an implementing agency, it must focus on inter-agency coordination and inter- sectoral lirnkages rather than direct control. Furthermore, NEA should use cxisting capabilities in other agencies, rather than attempt to create its own capabilities. As a consequence, the program would help NEA develop working relations and cooperative links with technical and sectoral ministries involved in national development so that they integrate environmental issues in their own planning aid operations and work together on issues which overlap their sectors of responsibility. Similarly, NEA would need to work closely with NGOs and commnunity organizations that are involved in environmental matters. 3.6 The program would give priority to initiatintg and consolidating core regulatory and coordination functions, letting other facets of environmental management arise without explicitly promoting them, simply as a repercussion of the implementation of a process or mechanism. For example, the EIA will indirectly generate substantial coordination and advisory work for NEA. As deveiopment actors see that EIA procedures are rigorously implemented and cannot be politically circurnvented, they will then systematically consult NEA during the design phase to avoid having to modify proposals after they are formulated. C. Program Description 3.7 Overall Program and expected outputs. The IDA project would be part of a multi- donor program of support for the establishment and operations of the NEA that includes two main thrusts: (a) the establishment of environmental management processes; and (b) institutional development and capacity building. The expected ouiputs at project completion would consist of: l. Establishment of environmental management processes - legislation revised or amended to integrate environmental concerns; - an effective and tested Environmental Impact Assessment (EIA) process including the implementation of mitigation measures; - the capacity to assess and identify trends and changes in environmental quality; - the capacity to monitor and respond to reported violations of the enviromnental code; - the alignment of sectoral policies throughout Government in accordance with principles promoted in the GEAP; - the capacity to monitor and report on C-EAP implementation; - plans and capacity to respond to unexpected environmental crises. ll. Institutional development and capacity building - an operational environmental agency that has close working relations with other development actors concemed with environmental matters; - capacity within government agencies to handle environmental issues; - greater awareness of environmental matters throughout the general public; - the possibility for the public to locate and access environmental information; - broad diffusion of major developments in environmental matters in The Gambia; 18 much greater availability and use of environmental information in support of environmental management. 3.8 Program components. The proposed program would initially cover a three-year period. It would consist of 10 major components, 6 of which would be funded by IDA (further details on activities, costs, implementation issues and work programs for each of the IDA components may be found in Section IV of this document); the other four components would be funded by the GTZ. Establisnment of environmental management processes a) Legislative reform. The review and revision of existing legislation, and the formulation of new legislation as required, to develop a comprehensive and coherent environmental regulatory code (GTZ); b) ElAs. The development and implementation of EIA guidelines and procedures, including review and performance monitoring mechanisms, for all public (PIP) and private sector projects above a pre-determined level of funding (GTZ); c) Monitoring of environmental quality. The development of a system for the collection of information to monitor environmental quality, and the establishment of and inspectorate to conduct on-site observations of violations and follow-up on appropriate measures (IDA); d) GEAP monitoring and policy development. The coordination and monitoring of GEAP implementation, including reorientation of existing sectoral policies in accordance with the overall environmental policies elaborated in the GEAP, and reporting to higher authorities on GEAP implementation (IDA); and e) Contingency planning. The development of a disaster preparedness and contingency planning system (IDA). 11. Institutional development and capacity building a) Institutional support to GEAP. Support to NEA to develop its operational capacity, including equipment, training and targeted technical assistance. The development of management and technical skills in NEA and the provision of associated training in environmental management for staff of sectoral agencies and private sector operators, through short-term practical attachments or workshops (IDA); b) Environmenal education and public awareness. The development of a strategy to increase public awareness of environmental issues and support for electronic and print media campaigns, using existing government and NGO skills and capacities (IDA); c) Establishment of a Documentation Center. The establislunent of: (i) a shared database of information relevant to environmental concerns; and (ii) an environmental library (GTZ); 19 d) Publication of a newsletter. Regular production of newsletter informing the national and international community of progress made on the GEAP (GTZ); and e) Environmental information management. Development and implementation of an environmental information strategy according to a distributed model, including: i) the design of a common information architecture, to establish coherence and compatibility; ii) the establishment of basic information infrastructures; iii) the maintenance of key data sets; and iv) analytical capabilities (IDA). 3.9 Specifically, the GTZ project will finance the following components (refer to para. 3.8): (Ia) development and implementation of environmental legislation and legal reforms; (Ib) development of procedures, guidelines and operational systems for LIAs; (Ilc) establishment of a documentation center; and (Ild) support for dissemination of environmental information in the form of a newsletter. The project will rely upon short termn consultancies to help develop the capacity to carry out environmental assessments and implement the necessary legal reforms. The IDA project would finance the requirements for institutional support and capacity building not included in the GTZ grant or the USAID project. Because legislative reform and the establishment of an effective environmental assessment process are essential for the success of the IDA project, signature of the grant agreement with GTZ by Government will be a condition of effectiveness (para. 6.4(a)). Furthermore, negotiation discussions included Government agreement on the implementation of EIA procedures acceptable to IDA, no later than eighteen months after credit effectiveness (para 6.5 (c)). 3.10 Programfinancingplan. The overall cost of the program would be US$4.50 million, of which 13% would be Government contribution. IDA funding would represent 58% of total costs, while GTZ funding would represent 29%. Financing Plan (US$'000) Local Foreign Total % of Total Govermnent 600.0 0.0 600.0 13 IDA 671.2 1,928.8 2,600.0 58 GTZ 271.1 1,028.9 1,300.0 29 i Total Cost 1,542.3 2,957.7 4,500.0 IV. DETAILED PROJECT DESCRIPTION A. Summary Project Desciption 4.1 As part of the global program described in Section III, the proposed IDA credit would fund the following six components: 20 1) Institutional support to GEAP 2) GEAP monitoring and policy development 3) Environmental education and public awareness 4) Monitoring of environmental quality 5) Environmental information management C Contingency planning. 4.2 Project Costs. Project cost is estimated at US$3.2 million equivalent (about D29, 120 million) net of taxes and duties. A summary of cost estimates is presented below (detailed cost table appears in Annex Three). Cost estimates are based on IDA's estimations and other reports documenting component costs. Project costs are expressed in February 1994 prices. Since this is a technical assistance project, there are no provisions for physical or price contingencies (all equipment and vehicles will be procured in the first six months of the project) and consultant cost estimates include allowances for travel and subsistence. Prices are free of taxes and duties. Proiect Cost Summary (net of taxes and duties) (US$'OO0) USS Dalasi i Project Component J Local Foreign Total Local J Foreign Total % For. 1. Insiaitional Support for 757.5 462.5 1,220.0 6,893.3 4,208.8 11,102.0 38 Coordination 'f GEAP Implementation - 2. GEAP Monitoring and 89.8 205.2 295.0 817.2 1,867.3 2,684.5 70 Policy Development 3. Environmental Education 158.7 246.3 405.0 1.444.6 2,240.9 3.685.5 61 4. Monitoring of Envir. Quality 131.3 383.3 515.0 1.194.4 3,492.1 4,686.5 75 5. Environmental Information 65.0 275.0 340.0 591.5 2,502.5 3,094.0 81 Management _ 6. Contingency Planning and 23.9 101.1 125.0 217.5 920.0 1,137.5 81 Disaster Prevaredness 7. PPF Refiancing 45.0 255.0 300.0 409.5 2,320.5 2,730.0 85 TOTAL COSTS 1,271.2 1,928.8 3,200.0 i,567.9 17,522.1 29,120.0 60 21 B. Detailed Description 1. Institutional Support for the Coordination of GEAP Implementation (base cost: US$1,220,000) 4.3 Introduction. The successful implementation of the GEAP will depend on a fully functional NEA. Because NEA was only recently created and is still untried, it must quickly develop its management capacity in order to become fully operational. To this end, NEA would determine the structure and procedures required for its mandated functions, organize itself internally, finalize staffing requirements and job descriptions, prepare a human resources development plan and implement it. Moreover, NEA would need to fit in specific units such as the Pesticides Laboratory, the Inspectorate, the Resource Center and the LDocumentation Center, as well as specific tasks such as guidance of the environmental information system. 4.4 Since NEA's main role is the coordination and monitoring of GEAP programs rather than their actual implementation, it will necessarily rely on the capabilities of numerous other government agencies, as well as those of correspondents in the private sector or the NGO community. Thus, capacity for environmental management and planning would also need to be developed in these institutions through training of selected staff. 4.5 Objectives and expected results. The project component's outputs would include: a) a management information system (MIS) to monitor Agency performance and efficiency in terms of the use of staff, funds and equipment; b) staff within NEA with the skills required to fulfill Agency functions; c) staff in other institutions that can operate as NEA correspondents; and d) equipment required by NEA for its operations. 4.6 Activities. The project would support the following activities: In year 1: (July 1994-June 1995) - training of NEA's staff in management, budgeting and project administration, - training of NEA staff in computer literacy, - development of NEA's business (operational) procedures, including yearly activity planning, - establishment of a Management Information System (MIS), - equipment is ordered, delivered and installed. In year 2: (July 1995-June 1996) - review and update operational procedures, - review use of MIS, - organize short-term training and workshops fo. telected sv'ff from key institutions and correspondents on environmental management issues and techniques. 22 In year 3: (July 1996-June 1997) - review and update business procedures and MIS, - organize short-term training and workshops for selected staff from key institutions and correspondents in environmental management issues and techniques. 4.7 Costs. The IDA credit would fmance: (a) 1 months of international and 14 months of national short and medium-term technical assistance on organizational and operational issues, including the establishment of an MIS and the organization of training on environmental management; (b) an additional five months of technical assistance for needs to be determined during the life of the project; (c) 30 months of training for NEA staff and selected staff from key sectoral institutions and regional authorities; (d) the acquisition of information processing, communications and office equipment, as well as one vehicle and a generator; (e) incremental operating expenses (communications, fuel and maintenance); and (f) regular audits. Comnonent 1: Institutional Support for coordination of GEAP imlelemenatbon (US$'000) CATE*ORY 1994 1995 1996 1997 TOTAL International consultants 70 90 90 0 250 National consultants 15 25 20 10 70 Training 25 50 50 25 150 Equipmentlvehicles 100 0 0 0 100 Audits 10 15 15 10 50 Incremental Operating Expenses 97 198 203 102 600 TOTAL 317 378 378 147 1220 4.8 Implementation. The main implementation issues to be resolved would be: (a) completion of recruitment of minimum required staff by NEA for project implementation; (b) availability of staff from NEA and other institutions for training; and c) availability of adequate training capabilities in-country or in the sub-region. 4.9 Work program. With the help of an international management consultant (two months in first year), NEA's administrator would establish business procedures and develop a Management Information System (MIS) and accounting system, taking into account the Program Budgeting System introduced by USAID/The Gambia's ANR project. The international consultant would also train NEA staff in the use of the MIS/Accounting system. The consultant would return for one month in each of the second and third years, to evaluate and recommend improvements to the business procedures in light of experience gained, and modify the MIS/Accounting system accordingly. 4.10 NEA's senior management would initiate efforts to build agency staff into a cohesive team, with the assistance of an international expert (1 month in first year), inclur1ing the organization of a team building workshop. The consultant would return for twi weeks in each of the second and third year of the project to evaluate NEA team cohesiveness and effectiveness, make recommendations to NEA management and conduct yearly team building workshops. 23 4.11 NEA's Director of Networks would organize training of NEA staff in project management, verbal and written communuications skills, administration (budgeting, accounting and office management), as well as computer literacy. Training would either be in-country, through the Management Development Institute (MDI) or locally employed consultants, or out- of-country (total 10 months over the three-year period of the project). 4.12 NEA's Director of Networks would supervise the development and implementation of training programs on environmental issues and environmental management for staff within NEA and selected staff from other institutions or correspondents. Training material would be prepared by the Director of Networks, with the assistance of an international expert in envhonmental management (three months in first year) working in collaboration with national consultants (four months in first year) and staff from MDI. Training itself would be provided through MDI, either by its staff or locally employed consultants (eight months), in the form of short-term training sessions or workshops. At least one training workshop per year would target environmental desk officers, and selected NGO representatives, and/or correspondents in line agencies within Government, and another would target decision makers. The international consultant would return for one month in each of the second and third year to evaluate effectiveness of training delivered and suggest improvements in the curriculum or training format. Additional out-of-country training on specific environmental issues would be provided in the form of short-term practical attachments for NEA staff (total 10 months) and staff from institutions other than NEA (total 10 months). 2. GEAP Monitoring and Policy Development (base costs: US$295,000) 4.13 Introduction. One of NEA's major functions is to coordinate and guide the implementation of the GEAP. On the one hand, NEA is to assist line ministries in their efforts to revise and reorient their policies, in conformity with GEAP recommendations, and in light of their impact upon the environment and use of natural resources. On the other hand, NEA is to provide the Secretariat for the NEMC and the chair for the TAC, the two intersectoral coordination mechanisms created to monitor and coordinate GEAP implementation. As part of these functions, NEA must prepare yearly a "State of the Environment Report", have it discussed and agreed on by TAC and submitted to NEMC for discussion and acceptance. 4.14 Objectives and expected results. The project component's outputs would include: (a) capacity within NEA to monitor, evaluate and report on GEAP implementation; and (b) assistance from NEA to relevant sectoral agencies to align their policies with GEAP principles. 4.15 Activities. The project would support the following activities by NEA: In year 1: (July 1994-June 1995) - identify policies in need of revision, - establish a format for reporting on progress in GEAP implementation, - adopt procedures for project implementation monitoring and evaluation, 24 - produce State of the Environment Report for 1994, discuss it with TAC and submit it to NEMC. In year 2: (July 1995-June 1996) - coordinate revision/formulation of sectoral policies, - organize workshops, - commission studies, - produce State of the Environtnent Report for 1995, discuss it with TAC and submit it to NEMC. In year 3: (July 1996-June 1997) - update GEAP, - continue to coordinate revision/formulation of sectoral policies, - organize additional workshops, - commission additional studies, - produce State of the Environment Report for 1996, discuss it with TAC and submit it to NEMC. 4.16 Costs. The IDA credit would finance: (a) four months of international and 15 months of national short and medium-term technical assistance, to determine (i) what policies need to be revised, and (ii) a system and a format for reporting on the state of the environment and on progress achieved in meeting GEAP objectives; (b) four months of out-of-country training for NEA staff in policy analysis and programn monitoring; (c) workshops, organized by NEA and relevant public agencies, to develop new policies in consultation with public agencies, non- governmental organizations and private sector institutions; and (d) studies on major issues. Component 2: GEAP Monitoring and PoUicv DeveloDment (US$'000) CATEGORY 1994 1995 1996 1997 TOTAL International Consultants 20 30 20 10 80 National Consultants 0 30 30 15 75 Training 5 10 5 0 20 Workshops 3 7 7 3 20 Studies 15 35 35 15 100 TOTAL 43 112 97 43 295 4.17 Implementation. Prior to project effectiveness, NEA would have established working groups for key sectors affected by environmental concerns. 4.18 Work program. The Coordinator for Inter-Sectoral Networks (with the assistance of an international consultant (one month in year 1) would, within six months of project implementation, identify the key sectoral policies to be targeted using project resources. The officers in charge of the relevant program would coordinate the working groups for each of the policies selected for formulation or revision. To this end, they would organize workshops that would formulate recommendations, and would supervise national consultants (total 15 months over the three-year period of the project) that would prepare working papers on specific policies. The international consultant would return for two weeks in each of the second and third year to 25 further advise the coordinator and inter-sectoral network officers on policy development. The coordinator would receive out-of-country training (one month in both the first and the second year) in the form of practical attachments with an institution involved in the formulation of environmental policy. 4.19 The Coordinator of Inter-Sectoral Network, in cooperation with the Program Officers, would, within six months of project implementation, identify studies to be funded by the project and draft their terms of reference. Such studies might include: a) coastal zone management; b) the effects of economic policies on the environment, c) the economic impacts of conservation and natural resources degradation, and d) historical trends in natural resource availability and use in The Gambia. The studies themselves would be conducted under contract by national institutions or private consulting firms, each of them under the direct supervision of a specific inter-sectoral network officer. 4.20 The Director of Networks, with the assistance of an international consultant (two month in year one) and in coordination with other national agencies, would, within one year of project implementation, design and implement monitoring and evaluation systems to track the progress made in achieving GEAP programmatic and policy objectives (including benchmarks and targets), as well as a reporting format. Using this format, the coordinator and the inter- sectoral network officers would each year prepare the "State of the Environment Report", no later than six months after the end of the relevant year. The international consultant would return for two weeks in each of the second and third year before report completion, to further advise the coordinator and inter-sectoral network officers. The coordinator would receive out-of- country training (one month in both the first and the second year) in the form of practical attachments with an institution involved in the formulation of enviromnental policy. 3. Environmental Education (base costs: US$405,000) 4.21 Introduction. Under the GEAP, NEA is responsible for promoting the education of the public on environmental issues. To fulfill this responsibility, NEA faces two challenges. The first is. to increase awareness of environmental issues among the general public in order to generate public support and participation regarding environmental management measures. The second is to create public awareness of NEA and the GEAP itself: its mandate, mission, capabilities, the nature and extent of NEA's regulatory functions and the services and assistance NEA can provide to the public, sectoral agencies, or local government. To accomplish this, NEA would adopt a two-pronged strategy: (a) to broaden public understanding of environmental issues through the use of the media and cooperative endeavors with academic institutions, local environmental NGOs and various professional groups such as journalists, teachers, extension agents or health workers; and (b) to reach critical target groups within national and local government through workshops and training courses. 4.22 Objectives and expected results. The project component's outputs would be: (a) increased public awareness of environmental issues; and (b) public knowledge of NEA and its functions. 26 4.23 Activities. The project would support the following activities: In year 1: (July 1994-June 1995) - coordinate the preparation of an environmental public awareness strategy (para. 6.5 (g)), - prepare a popular version of the GEAP, - carry out public awareness campaign regarding GEAP and NEA. In year 2: (July 1995-June 1996) - carry out public awareness campaigns for specific target audiences on selected environmental issues, using a multi-media approach, - organize regional and sectoral environmental workshops on specific environmental issues. In year 3: (July 1996-June 1997) - carry out further awareness campaigns - organize additional workshops. 4.24 Costs. The IDA credit would provide: (a) four months of international and 16 months of national short and medium-term technical assistance for the preparation of an environmental education strategy; (b) three months of out-of-country training for the Program Officer for Environmental Education; (c) workshops for public officials and private sector development actors; and (d) public awareness campaigns in the printed and broadcast media. Comnonent 3: Environmental Education (US$'000) CATEGORY 1994 1995 1996 1997 TOTAL Intemnational consultants 20 20 20 0 60 National Consultants 30 20 20 10 80 Training 0 5 5 5 15 Workshops 10 20 15 5 so Public awareness campaign 35 70 65 30 200 contracts I __ TOTAL 95 135 125 50 405 4.25 Implementation. NEA itself would conduct few activities, instead subcontracting to other national institutions or NGOs. Coordination would be ensured through the working group on environmental education and public awareness, under the coordination of the relevant program officer(s). For this reason, the establishment of the environmental education working group is a condition of effectiveness (para. 6.4 (c)). 4.26 Work program. The Program Officer for Environmental Education, with the help of an international consultant (two months) and national consultants (six months), in collaboration with other national agencies, and through the Environmental Education and Public Awareness working group, would formulate an environmental education and communications strategy setting resource allocation among various media (print, electronic, etc.), as well as other communication options, and identifying key institutional collaborators from both the public and private sector. The officer would also develop mission statements, identify key target constituencies, and 27 determine the most effective media and methods for the transmission of specific awareness building messages. The strategy would be available for review by IDA within three months of project effectiveness (para. 6.5(g)). 4.27 The strategy would include: (a) at least four workshops each year for the first two years after project effectiveness for targeted audiences, including journalists, teachers, local level policy makers, NGOs and extension agents; (b) production of a video on priority environmental concerns within one year of project implementation and its presentation in 10 villages/towns for each of six administrative regions within one and a half years of production; (c) weekly national radio programns on the environment in all national languages, as of start of project; (d) preparation of a popular version of the GEAP within six months of project effectiveness; (e) two national canpaigns on GEAP and NEA within one year of project effectiveness: (f) workshops on GEAP and NEA organized in at least five Divisions for opinion leaders (alkalis, imams, seyfos, area councilors and women leaders); and (g) two public awareness surveys on the environment, the GEAP, and NEA, the first no more than three months after project effectiveness, and the second no less than six months before project completion, to measure increased awareness of environmental issues. 4.28 NEA would subcontract other actors, such as environrmental NGOs, to conduct environmental awareness campaigns. National consultants (total 10 over the three-year of the project) would assist the officer in implementing the strategy. The international consultant would return for one month in each of the second and third year to help the Program Officer to revise and improve the strategy. 4. Monitoring of Environnental Quality and Enforcement (base costs: US$515,000) 4.29 Introduction. Two of NEA's key functions are to: (a) monitor environmental quality, with particular regards to industrial emissions, water and solid waste; and (b) enforce enviromnental quality standards when violations are detected. In support of these functions, NEA would design and coordinate the implementation of a monitoring and reporting system, built around key indicators and benchmarks derived from a range of chemical and biological parameters. NEA would also create an Inspectorate, under the supervision of the Program Officer for Environmental Quality, that would follow up on violations and initiate the necessary mitigative or repressive measures. 4.30 Objectives and expected results. The project component's outputs would include: a) stronger capacity to monitor environmental quality; and b) capacity within NEA to act on specific environmental violations. 4.31 Activities. The project would support the following activities: In year 1: (July 1994-June 1995) - develop monitoring system (para. 6.5 (g)), - develop/strengthen monitoring capabilities, - establish Inspectorate, 28 - order Inspectorate equipment, - train Program Officer for Environmental Quality. In year 2: (July 1995-June 1996) - implement monitoring program, - train staff in executing agencies, - establish enforcement mechanism. In year 3: (July 1996-June 1997) - organize workshops, - review monitoring program. 4.32 Costs. The IDA credit would include: (a) six months of international and eight months of national short-term technical assistance to help with the design and review of the monitoring system; (b) nine months of out-of-country training for staff from the inspectorate, as well as staff from other institutions involved in the monitoring program, in appropriate sampling techniques and the use of specialized equipment; (c) workshops to establish and periodically review the monitoring program; (d) equipment for the Inspectorate, including two vehicles and sampling equipment; (e) the initial cost of establishing the monitoring network; and (f) contracts covering the recurrent costs of collecting and analyzing samples. Component 4: Monitoring of Environmental Oualitv and Enforcement (US$'000) CATEGORY 1994 1995 1996 1997 TOTAL International consultants 60 40 20 0 120 National consultants 10 25 5 0 40 Training 15 15 15 0 45 Equipment 25 25 0 0 50 Workshops 10 20 20 10 60 Monitoring costs 30 65 70 35 200 TOTAL 150 190 13.) 45 515 4.33 Implementation. Within one year of project implementation, NEA would establish the Inspectorate, recruit staff, define its status, its regulatory powers and its relationships with other public offices such as the Attorney General's Chambers (para. 6.5(g)). An important assumption is that environmental regulations (financed through GTZ support) covering essential environmental issues would be finalized before project completion. Another major implementation issue will be the choice of either limits or permits as the basic mechanism for pollution control and waste management. 4.34 Work program. NEA's Program Officer for Environmental Quality, under the direct supervision of the Coordinator for Technical Services Network and in consultation with appropriate national institutes and agencies, (-ith assistance from international consultants and national consultants), would coordinate the dt gn of a monitoring strategy. The strategy would indicate the purpose of each data collection pi -,gram, indicate its relevance to current or envisaged regulations, set provisional benchmarks and thresholds, and define a monitoring system, including the density, location and frequency of sampling, and the range of analyses to be conducted. The Program Officer would organize workshops, as necessary, to establish the 29 monitoring system. Except in the case of pesticide monitoring, which explicitly is part of NEA's mandate, the Agency itself would neither collect nor analyze samples. Instead, collection and analysis would be conducted, either by agreement or on contract, by the appropriate national institutes or agencies. The strategy would be available for review by IDA within one year of project effectiveness (para. 6.5(g)(ii)). NEA would arrange for periodic independent verification of monitoring results. The international consultant would return for two months in the second year and one month in the third year to help the officer-in-charge review and improve the strategy. During the second and the third year of the project, selected staff from institutes or agencies involved in the monitoring program would be trained abroad (total six months). 4.35 Monitoring results woulu be delivered to the Inspectorate where they would be kept. Government would take measures to guarantee that results of monitoring programs by sectoral agencies, funded outside of the project, are passed on to NEA. In turn, NEA would take measures to ensure that monitoring results are widely available both to other government agencies and to the public at large. 4.36 Within one year of project effectiveness, the Program Officer for Environmental Quality, with the assistance of national consultants (two months in year one) would establish procedures to be followed by the Inspectorate for responding and reporting on violations identified either through the monitoring system or complaints from the public (para. 6.5(g)(ii)). Follow-up would first consist of advice or graded warnings, in an attempt to solve the problem in a non-confrontational manner, but in refractory cases the Inspectorate would, in cooperation with relevant govermnent agencies, collect evidence to build up a case which it would then transmit to the Attomey General's Chambers for prosecution. 4.37 During the second and third year of the project, the Program Officer for Environmental Quality, with the assistance of national consultants (two months), would organize workshops for government officials, local level policy makers, opinion leaders and the private sector on the Inspectorate, its mandate, the monitoring program and enforcement regulations and procedures. 4.38 Within three months of project start-up the Program Officer would be expected to go abroad for a three-month long practical attachment with an institution managing an environmental monitoring program and another institution with a mandate similar to the Inspectorate. 5. Enviromental Information Management (base costs: US$340,000) 4.39 Introduction. Implementation of the GEAP would require the existence of reference data, both geographic and thematic, to serve as supports to NEAs technical functions, including the supervision of the EIA process, environmental monitoring, policy development and environmental education. Some of these data needs were identified during an assessment made by the United Nations Soudano-Sahelian Office (UNSO) in August 1992. Many of these needs are presently unmet, because the agencies mandated to produce and maintain the data have not been able to do so. Implementing the GEAP will require that at least key sectoral databases be upgraded to meet GEAP needs and that they be widely distributed to serve as a support for discussion of environmental issues. USAID/The Gambia's Agriculture and Natural Resource Management Project, initiated in 1993, will meet part of these needs since it includes funds for a 30 new aerial photographic coverage of all of the country, for updating of 1:25,000 base maps from these photographs and the digitizing of the updated base maps (Survey Department), and the mapping of natural resources from the new aerial photographs (MNR). GTZ would use the new photographic coverage to update current forestry maps. Nonetheless, major gaps remain, particularly regarding the upgrading land information and the conversion of data sets from analog to digital formats. These gaps would be filled by this component. 4.40 Because of the trans-sectoral nature of envi,onmental issues, NEA will have to integrate information from many sources and in an eclectic range of incompatible formats and nomenclatures, thus hampering data integration and analysis, as well as data aggregation from larger to smaller scales. Accordingly, it is in NEA's utmost interest that a common information architecture for spatial information in The Gambia be decided on and widely adopted, and that this architecture ensures coherence and compatibility among the various types of "enviromnental information", and between "enviromnental information" and other types of information, most particularly the population census. 4.41 Environmental management would also require in-country analytical capabilities, for example to project the likely impact on resources of development options, using models of ecological processes. Such capabilities are extremely limited in The Gambia and would need to be developed. 4.42 Objectives and expected results. The project component's outputs would include: a) coordination of the development and implementation of an Environmental Information System (EIS) strategy, including guidelines and setting priorities; and b) development of national capabilities to conduct spatial analysis. 4.43 Project activities. The project would support the following activities: In year 1: (July 1994-June 1995) - develop EIS strategy, - initiate the establishment of common data architecture and common data dictionaries (nomenclatures), - identify key data sets to be produced or converted, - train NEA's Program Officer for Enviromnental Information Management, In year 2: (July 1995-June 1996) - finalize the establishment of common data architecture and common data dictionaries - production and conversion of key data sets In year 3: (June 1996-1997) - organize workshops for public officials, private sector and NGOs, - train staff in key departments, private sector and NGOs to develop skills for the analysis of environmental information. 31 4.44 Project costs. The IDA credit would finance: (a) six months of international short- tern consultancies to help NEA develop and review an EIS strategy; (b) four months of out-of- country training for staff in NEA and in selected agencies on the management and utilization of environmental information; (c) workshops to inform public officials and private sector development actors on the EIS; and (d) the development, upgrading and distribution of selected key data sets (including equipment). Component 5: Environmental Information Management (US$'000) CATEGORY 1994 1995 1996 1997 TOTAL International consultants 0 30 70 0 100 Training 10 5 5 0 20 Workshops 5 5 5 5 20 Data production/conversion contract 50 75 50 25 200 TOTAL 65 - 115 130 30 340 4.45 Implementation. Successful implementation of the environmental information strategy is closely tied to effective coordination of all actors concerned. For this reason, the establishment of the environmental information working group is a condition of effectiveness (para. 6.4 (c)). Production of digital base maps by the Survey Department, under the natural resources information component of the USAID/The Gambia's ANR project is an important project assumption. Topographic base maps, in both digital and paper formats, would serve as the standard support for all geo-referenced information used by NEA. Their systematic use would be a cornerstone of NEA's policy to assure the compatibility of geographic information from different sources and a key element of its EIS strategy. The widespread availability of these maps, at a cost equivalent to that of their reproduction, would further encourage their extensive use and is additional important assumption. It is also assumed that NEA will organize an EIS workshop prior to project implementation that would address most of these issues. 4.46 Work program. The Program Officer for Environmental Information Management, with the assistance of an international consultants (one months in the first year), would formulate and coordinate the implementation of an EIS strategy. The strategy would be available for review by IDA within three months of project effectiveness (para. 6.5 (g)). A first version of the common data architecture would be available in the Documentation Center within twelve months of project effectiveness. On the basis of this strategy, NEA would then contract specific agencies to develop or upgrade key data sets. NEA would not itself produce information, but rather would subcontract these tasks to other national institutions or private operators. Support to any public institution would conform to its statutory mandates. The officer-in-charge, would prepare terms of reference for each contract, with the assistance of the international consultant and regularly monitor progress of their execution. The international consultant would return for two weeks in both the second year and third years to assist the officer-in-charge in reviewing the EIS strategy, to suggest improvements, and to advise the various actors involved in the production or the conversion of environrnental information. A second international consultant (one month in both the second and third year) would install computer equipment and Geographic Information System (GIS) software in the agencies contracted to produce or convert information, as well as provide training in the use of GIS. This consultant would also provide training to develop analytical skills in using GIS for selected staff from key departments, private sector and NGOs (two months in third year). 32 4.47 The Environmental Information working group, under the leadership of the Program Officer for Environmental Information Management, would coordinate all activities touching on the production, management and use of environmental information in The Gambia. It would recommend compatibility standards, clarify responsibilities in order to avoid duplication, promote the respect of statutory mandates, serve as a forum to express user needs and generally keep all parties concerned abreast of new developments. NEA would take the lead role in promoting "he acceptance and use of data standards recommended by the working group, as well as of existing data sets developed according to these standards, by requiring that they be used for all work under its supervision, such as EIA, or under its commission, for example the monitoring of indicators, problem solving or the production of any new enviromnentally related information. 4.48 Within three months of project start-up the Program Ofiicer for Environmental Information Management and the Program Officer for EIAs would both be expected to go abroad for a one month practical attachment with an institution m-ri- ing an environmental information system. An additional two months of out-of-country training would be available for staff from other govermnent agencies involved in the management of geographic information in digital formats. 6. Contingency Planning and Emergency Preparedness (base costs: US$125,000) 4.49 Introduction. NEA will occasionally be confronted with environmental crises that are both unpredictable in their occurrence and magnitude and infrequent. These include: (a) industrial accidents; (b) accidental leakage of toxic chemicals; (c) epidemics of water-borne diseases; (d) oil spills and other forms of marine and coastal pollution; (e) flooding caused by hurricanes; (f) severe drought; and (g) extensive bush tires. The capacity to respond appropriately and rapidly to these environmental crises in order to mitigate their effects will depend greatly on adequate preparedness, including both the mobilization of resources and the prior existence of contingency plans and strategies. The latter falls in NEA's brief. 4.50 Objectives and expected results. The project component's output would include: (a) a set of contingency plans to mitigate the effects of the major potential environmental disasters which could adversely affect The Gambia and its population; and (b) networking mechanisms for the implementation of contingency plans. 4.51 Actvities. The project would support the following activities: In year 1: (July 1994-June 1995) - identify possible environmental disasters, - prepare strategy for contingency planning and include an outline for one contingency plan. In year 2: (July 1995-June 1996) - complete contingency plans, - develop capacity for the implementat :f contingency plans, - organize multi-disciplinary planning workshop. 33 4.52 Costs. The IDA credit would finance: (a) three months of international and feur months of national short term technical assistance to identify the major potential disasters and develop appropriate contingency plans to mitigate their effects; (b) workshops to assist in the preparation of contingency plans; and (c) workshops for public officials and the private sector to develop capacity for implementation. Component 6: Contlnaency Planning and Disaster Preparedness (US$'O00) CATEGORY 1994 1995 1996 1997 TOTAL International consultants 20 30 110 L o :1 60 National consultants 0 5 15 0 20 Training 0 10 25 10 45 TOTAL 20 . 45. . _ 50 10 125 4.53 Implementation. During the first year of the project, NEA would prepare a strategy for contingency planning, including the circumstances, how and by whom enviromnental crises will be officially declared, the extent of the Inspectorate's authority during a crisis, and an outline of one contingency plan (para. 6.5 (g)(ii)). 4.54 Work program. NEA's Coordinator for Technical Services Network, in coordination with the agencies mandated to respond to the various crises, would identify possible enviromnental disasters requiring contingency plans. The contingency plans would be prepared by a team of officers from relevant national agencies, under the technical guidance of international (three months) or national (two months) consultants, and under the supervision of the officer-in-charge. At least one contingency plan outline would be available as part of the strategy due within one year of project implementation (para. 6.5 (g)(ii)). The Coordinator for Technical Services Network would also organize workshops for staff from technical agencies, public officials and the private sector to ensure that the provisions of the contingency plans are known by all parties concemed. In addition, the Coordinator for Technical Services Network, with the assistance of national consultants (two months), would organize at least one simulation exercise, in order to develop capacity within line agencies and local communities to act in cases of emergency. C. Project Implementation 4.55 Organization and rmanagement. The NEA will be the implementing agency for the project. However, the inter-sectoral nature of many environmental concerns and the diverse information required for effective management mean that many other agencies must be involved, including the Ministries of Natural Resources, Agriculture, Local Government and Lands, Health and Social Welfare, Trade, Industry and Employment, as well as national NGOs. Project funding would be used to support closely-related and clearly defined activities in some of these agencies that lie within their present mandates. NEA would play a key role in coordinating the involvement of these agencies. Inter-sectoral working groups would be set up around specific topics (environmental education, environmental information, policy development, etc.), in order to simplify project management and enhance linkages. 34 4.56 The project would take specific actions to develop NEA's capacity to fulfill its role in project management. This would include issues related to the organization of the Agency, such as work program, human resources development, budgeting and management procedures. Project management arrangements would be further strengthened by the provision of functional technical assistance and the integration of training with technical support. The Goverunent will give assurances that at all times during project implementation, the Agency Director will be acceptable to IDA, and the Agency will be operated in an efficient manner (para. 6.5(d)). 4.57 Staffing requirements. As mentioned earlier, the NEA currently has twenty-four staff, with eight professionals (one Executive Director, one Division Director, one Registrar of Pesticides, and five program officers). Implementation of the project would require a sustained commitment of human resources by NEA over the course of the project in order to meet the project's calendar. The Government has demonstrated its strong commitment to NEA's mandate by agreeing to a three year staffing plan (which includes additional positions) and the upgrading of all positions to salary levels which are higher than the civil service's albeit within the public service. As a condition of negotiations, Government has sent IDA official notification of the appointment of the Agency Director (para. 6.3 (a)). NEA would designate individual staff members for each of the project components as a condition of effectiveness (para. 6.4 (b)). Expected needs for the project in person-months over the three-year period of the project are listed in the following table (takes into account other requirements on NEA staff time): Position person months Executive Director 12 Director of Networks 18 Coordinator of Inter-Sectoral Network 24 Program Officer for Natural Resources 12 Program Officer for Environmental Education 30 2 Program Officer(s) for Envir. Information 60 Management Media Specialist/Education Assistant 36 Coordinator for Technical Services Network 12 2 Program Officer(s) for Environmental Quality 72 Program Officer for Envir. Impact Assessments 6 2 Inspector(s) 60 Administrator 24 Assistant Accountant/Accounts Clerk 24 Administrative Assistant 24 Assistant for Public Relations (workshops) 24 35 4.58 Teclnical assistance and training. Technical assistance and training for each project component would be linked to the agency's work program and feed into the Agency's human resource development plan, to ensure that they fully contribute to capacity building. An indicative three-year human resources development program was reviewed during the appraisal mission (para. 6.2(a)), taking into account the need for increased technical and managerial skills within NEA and related institutions. As a condition of negotiations, NEA submitted to IDA an updated human resources management plan, a draft manual of procedures and a detailed work plan for the first year (para. 6.3(b)). Subsequent annual work and human resource management plans wol ld be prepared by NEA and reviewed by IDA during the fourth quarter of every year to reflect the needs identified during supervision of project execution. Assurances will be sought that Government will make such staff available for the project to fulfill its objectives since it is crucial that, at all times during project implementation, NEA be fully staffed with competent personnel and be provided with adequate budgetary resources to cover staff costs (para. 6.5(e)). 4.59 Details of recruitment of international and national consultants, together with the timing of their inputs was finalized during the appraisal mission (para. 6.2(b)). The following table gives a provisional breakdown of the technical assistance required over the three-year period of the project. Overall, there would be about 28 months of international consultancies, paralleled by about 55 months of national consultancies, mainly for short-term assignments. During appraisal, agreement was reached on a tentative schedule of consultant recruitment. Subsequent annual plan(s) and draft TORs for the recruitment of consultants would be prepared by NEA to reflect the needs identified during supervision and reviewed by IDA during the fourth quarter of every year. Number of months of technical assistance per year (international/national) Component Year I Year 2 Year 3 Total 7/94 - 6/95 7/95 - 6/96 7/96 - 6/97 1. Institutional support to GEAP 2.5/6 2.5/4 2.5/2 7.5/12 2. GEAP monitoring and policy development 2/3 1/6 1/6 4/15 3. Environmental education 1/8 1/4 1/4 3/16 4. Monitoring of environmental quality and enforcement 3/6 2/1 1/1 6/8 5. Environmental information management 1/0 1.5/0 2.5/0 5/0 6. Contingency planning and disaster preparedness 2/1 1/1 0/2 3/4 TOTAL 11.5/24 9/16 8/15 28.5/55 36 4.60 The following table provides a provisional breakdown of the training inputs required over the three-year period of the project. Number of months of training assistance per year Component Year 1 Year 2 Year 3 Total 7/94 - 6/95 7/95 - 6/96 7/96 - 6/97 1. Institutional support to GEAP 11 14 5 30 2. GEAP monitoring and policy development 2 2 0 4 3. Environmental education I I 1 3 4. Monitoring of environmental quality and enforcement I I 1 3 5. Environmental information management 3 3 3 9 6. Contingency planning and disaster preparedness 0 0 0 0 TOTAL 18 21 10 49 4.61 Public access to information. Open and public access to environmental information used for decision-making is a prerequisite for the full participation of society at large in environmental management. Unrestricted and full access (with appropriate cost recovery measures in place) to the environmental information held by NEA is important to promote the open debate of environmental issues by all sectors of Gambian society and to increase the use of environmental information in environmental management. Consequently, Government's endorsement of a policy of full access to the results of environmental assessments, environmental monitoring and data held in the environmental information system will be a condition of effectiveness. (para. 6.5 (f)). 4.62 Implementation schedule. The project would be implemented over a three-year period according to the timetable in Annex Four. To assess results achieved, the NEA will prepare quarterly and annual reports to be submitted to IDA no later than one month after the end of the quarter and no later than March 31 of the following year respectively. The quarterly report will report progress vis-a-vis the verifiable key indicators which appear in Annex Five. D. Financing Plan 4.63 The proposed financing plan includes an IDA credit of US$2.6 million equivalent, which will finance 81 % of project costs, excluding parallel financing, or 58% including parallel financing, net of duties and taxes. IDA's financing will cover approximately US$1,928,800 of foreign costs and US$671,200 of local costs. The Borrower will be The Government of The Gambia, with the project loan funds to be made available by the Government to the NEA. As regards Government counterpart funds, agreement was reached during appraisal that the Government will provide these funds by covering the incremental operational costs of the NEA during the three years of the project life (para. 6.2(c)). Parallel co-financing totaling DM2.1 million (about US$1.30 equivalent), amounting to 29% of total program cost, is in the process of being finalized by the GTZ as a result of a separate project appraisal. The proposed financing is the following: 37 Financing Plan (US$'000) L ocal Foreign Total % of Total [ Government 600.0 0.0 600.0 13 IDA 671.2 1,928.8 2,600.0 58 i GTZ 271.1 1,028.9 1,300.0 29 Total Cost 1,542.3 2,957.7 4,500.0 E. Auditing and Accounting 4.64 Since NEA is a new agency, an adequate accounting system has to be set up. An accounting firm acceptable to IDA will be selected under PPF financing to help the Agency establish its accounting system. The appointment of this firm, and the signing of a relevant contract with the firm, was a condition of negotiations (para. 6.3 (c)), and the setting up of an operational accounting system will be a condition of effectiveness (para. 6.4 (e)). 4.65 The NEA's accounts will be audited every six months by an external auditor acceptable to IDA and the audited accounts would be submitted to IDA not later than one month after the end of the semester and not later than three months after the end of the year for the consolidated annual audit. The preparation of relevant terms of reference and short list for an external auditor acceptable to IDA was a cndition of negotiations (para. 6.3 (d)). The appointment of, and signing of a multi-year contract with, external auditors acceptable to IDA to carry out semi-annual audits will be a condition of effectiveness (para. 6.4 (d)). F. Procurement 4.66 Consultant services for technical assistance, training and studies will be procured according to Bank Guidelines dated August 1981. Procurement under parallel financing will follow GTZ procedures and will be carried out simultaneously with the IDA procurement. Contracts for vehicles, materials and equipment will be procured either through international shopping (at least three suppliers) or using the International Agencies Procurement Service Office (IAPSO) procedures. All contracts for consultants/technical assistance, training and studies will be subject to prior review by th. IDA. The table below sum=mrizes the project elements, their estimated costs and the proposed methods of procurement: 38 Procurement (US$'000) Project Element Procurement Method Not IDA TOTAL financed ICB LCB Other . 1. Goods 1.1 Vehicles/Equipment 150 90 240 ________________________ _ _____(150) _ (150) 2. Consultancies 1,705 850 2,555 __________________________ ._______ __________ (1,705) (1,705) 3. Training/Workshop 445 206 651 .___________________________ _________ (445) (445) 4. Incremental Operating 754 754 Expenses (0) 5. PPF Refinancing 300 300 __________________________ ________ __________ (300) (300) TOTAL 2,600 1,900 4,500 ________-. (2,600) (2,600) Amounts in parentheses are financed by IDA. G. D)isbursements 4.67 The credit will finance 100% (see table below) of all the project components except for the category of incremental operational expenses, for which the project will finance zero costs. Disbursements by Category (US$'000) Category Amount % Financed 1. Consultant Services 1,705,000 100% 2. Training/Workshops 445,000 100% 3. Equipment/Vehicles 150,000 100% 4. PPF Refinancing 300,000 Amount due TOTAL 2,600,000 I _ 39 4.68 This technical assistance project will have a life of three years; the closing date will be December 31, 1997. The related disbursement profile shown below, in US$ million: Estimated Disbursements (US$'000) FY and Semester Disbursement Cumulative FY95 1st semester 367.84 367.84 2nd semester 366.34 734.17 FY96 1st semester 408.50 1,142.67 2nd semester 406.04 1,548.71 FY97 1st semester 363.50 1,912.21 2nd semester 413.57 2,325.78 FY98 1st semester 274.22 2,600.00 4.69 The Government will establish a US$ Special Account, in The Central Bank of The Gambia, to which IDA will make an initial deposit of US$240,000 (estimate of about three months of expenditures). Upon effectiveness, IDA will advance 50% of the authorized allocation. The remaining balance will be available as needed. This Special Account will be replenished by IDA monthly according to disbursement regulations and will include a certification of the bank holding the account showing: (a) account activity since the last replenishment application; (b) the account balance; and (c) a reconciliation statement. Should any disbursement made be disallowed by IDA, the Government will re-deposit the corresponding amount to the Special Account. Given the availability of the Special Account, applications for direct payment, Special Commitment, and reimbursement will normally be for US$24,000 (or 10% of the initial deposit) equivalent mninimum. Disbursements from the IDA credit will be fully documented, except for payments under contracts of less than US$20,000 equivalent, which will be reimbursed against certified statements of expenditures, for which documentation will be retained by NEA for review by IDA supervision missions and project auditors. 4.70 Stawus of project preparation. At the conclusion of the Sectoral Consultations in October 1992, the Government proposed to IDA the financing of a project to build on the momentum achieved by the GEAP process and the consensus achieved within the country of the imperative to have strong institutional structures for envirownental planning and management. Based on Government's request, IDA put in place a Project Preparation Facility in March 1993 to fund some of the activities required to set up the NEA. There has been some delay, however, in the utilization of the PPF due to the fact that the NEA was not officially created until July 1993, and that a scheduled move to NEA headquarters took place in late February 1994. This resulted in the purchase of equipment and other operational infrastructure also being postponed until this date. During the appraisal mission, agreement was reached on the following: a tentative human resource development plan for the three-year project period, and a tentative schedule of consultant recruitment. In addition, and as a result of the Objectives Oriented Project Planning (ZOPP) seminar at the inception of the appraisal mission, agreement was reached on the project monitoring indicators which will be tracked during project implementation (Annex 5). 40 Draft terms of reference for the major consultancies during the first year of the project and the agency strategy paper were also reviewed. A draft of the revised NEMA was shared with IDA in November 1993 and comments from IDA and GTZ (IUCN) were incorporated into the latest draft. The revised piece of legislation was finalized and presented to NEMC in January 1994 and will be presented to Parliament in March 1994. 4.71 Project supervision. Project supervision would be closely linked to the implementation schedule discussed above and would involve monitoring a number of key indicators determined during appraisal (Annex 5). Details of the timing of supervision missions and the skills that are likely to be needed for supervision are presented in Annex Six. There would be four missions during the first year of the project to provide close supervision and assistance during the critical start-up period. The Multi-Donor Secretariat (MDS) for NEAPs will play a support role in these supervision activities. 4.72 In an effort to ensure proper coordination of donor activities, at least one supervision would be undertaken jointly each year with GTZ and USAID/The Gambia. 4.73 Mid-terni reviewv. No later than 18 months after the project becomes effective, a mid-term review would be held, involving NEA and related agencies as well as donors (IDA, GTZ and USAID). To facilitate this review, NEA would prepare a mid-term project report, to be distributed to all participants one month prior to the start of the review (para 6.5 (h)). The review team would review progress against the key indicators monitored during supervision (Annex 5) and towards the revision of key policy and legislative measures set out in the GEAP, that are of particular relevance to project supported activities. The review would focus particularly on progress in capacity building, staff development as well as the functionality and efficacy of the environmental management systems put into place. The mid-term review would also lead to changes in project design if they are thought to be necessary, with recommendations for the implementation of the proposed changes. 4.74 Completion Review. The project completion review would focus on the achievements of the project and its impact in relation to objectives. In particular, consideration would be given to the effectiveness of the capacity building for environmental management initiatives. A project completion report would be prepared, presenting findings and recommendations. The review team would be headed by a member of the NEA and would include representatives from all the other agencies as well as one recognized expert in environmental planning. Additional resources for the team could be provided by the Multi-donor Secretariat and the Network for Environment and Sustainable Development in Africa. Terms of reference for the team and its membership would be agreed to, and the project completion report would be submitted to IDA no later than six months after completion of the project. 41 V. BENEFITS, JUSTIFICATION AND RISKS A. Benefits and Justification 5.1 The project is fully consistent with the Bank's strategy for The Gambia, which stresses the need to strengthen the institutional framework for environmental management and the implementation of the GEAP. The project also supports Government's strategy for the sustainable use of the environment, by financing the implementation of important aspects of the GEAP. The Gambia is one of the first group of countries to have completed a NEAP and is one in which Govemment ownership of the process is very strong. Government commitment to integrating environmental issues to the developmeiit planning process is reflected in the decision to create this new agency and place it under the auspices of the Office of the President. IDA has strongly supported countries' efforts to prepare and implement NEAPs; The Gambia's NEAP process can serve as a model to other African countries involved in similar planning processes. The project actions will ensure that the proper institutional, legislative and functional frameworks are in place to address the critical environmental issues facing The Gamnbia and that activities are imiplemented to reverse the trend of environmental degradation. B. Risks 5.2 Risks are associated with the effectiveness of the environmental management system, in particular the ability to achieve effective inter-sectoral coordination of actions. However, the Government has expressed its commitment to this integration of environment into the sectoral planning process through the GEAP and through the creation of the NEA. Also, the capacity building focus of this project is designed to assist not only the st- ff of NEA, but also within other sectoral ministries whose work requires attention to envir imiental considerations. There are risks related to the general lack of knowledge of environm. -ital issues and limited capacity to handle technical environmental issues. The project directly addresses these shortcomings through its focus on technical and managerial training of management and staff of the NEA and through the provision of technical consultancies to transfer competence. C. Impact on Women 5.3 The project will contribute to a greater ptblic awareness and undenctanding of env onmental issues in The Gambia; in particular, rural populations will be made aware of the relationship between their utilization of the natural resource base and the need to manage those resources properly for future generations. Women will be particular target groups for this message in their role as educators of future generations. 42 VI. AGREEMENTS REACHED AND RECOMMENDATION 6.1 The following event took place before appraisal: (a) Government created the NEA in August 1993 (para. 2.22). 6.2 The following agreements were reached during appraisal: (a) agreement on an indicative human resources development plan for the three-year period of the project (para 4.58); (b) agreement on tentative schedule of consultant recruitment together with timing of their inputs (para. 4.59); (c) agreement on Government counterpart covering all incremental operating costs of the NEA during the three years of project life (para. 4.62); (d) agreement on the conditionality to be attached to the main activities carried out with GTZ financing (para. 6.5(a) and 6.5 (c); and (e) project monitoring indicators (see Annex 5). 6.3 The following were conditions of negotiations: (a) the official notification to IDA of the appointment of the Agency Director (para. 4.57); (b) the finalization of a human resource management plan, a manual of procedures and a detailed first-year work plan for NEA (para 4.58); (c) the appointment of, and signing of a contract with, an accounting firm acceptable to IDA to setup NEA's accounting system (para 4.64); and (d) the preparation of terms of reference and short list for an external auditor acceptable to IDA (para. 4.65). 6.4 The following are conditions of effectiveness: (a) signature of the grant agreement with GTZ by Govermnent (para. 3.9); (b) NEA has designated required staff members for each of the project components (para 4.57); (c) working groups have been established for environmental education and enviromnental information (paras. 4.25 and 4.45); 43 (d) the appointment of, and signing of a multi-year contract with, external auditors acceptable to IDA to carry out semi-annual audits (para. 4.65); and (e) setting-up of an operational accounting system (para. 4.64). 6.5 The following assurances are reflected in the legal documents: (a) NEMA revisions will be shared with IDA for review and comment (para. 2.22); (b) NEA will submit to IDA for review and comment updated human resources management plan, annual work plan(s) (para. 4.58), consultant recruitment schedule(s) and draft TORs (para. 4.59) for the second and third years of the project during the fourth quarter of the preceding year (para. 4.58); (c) Govermnent will put in place EIA procedures that are acceptable to IDA, no later than 18 months after credit effectiveness (para. 3.9); (d) at all times during project implementation, the Agency Director will be acceptable to IDA, and the Agency will be operated in an efficient manner (para. 4.56); (e) at all times during project implementation NEA will be fully staffed with competent personnel and will have adequate budgetary provisions to cover staff costs (para. 4.58); (f) results of EIAs, environmental monitoring and data held in the EIS will be made available to the public at large (para 4.61); (g) the Government will: (i) submit within three months of project effectiveness, strategies and action plans for environmental education (para. 4.26) and an environmental information system (para. 4.46); (ii) submit within one year, a strategy for environmental monitoring (para. 4.34) and contingency planning, including one draft plan (para. 4.54) as well as establish the Inspectorate, define its status (para. 4.33) and its operating procedures (para. 4.36); and (h) in anticipation of the mid-term review, which would take place no later than 18 months after project effectiveness, NEA would prepare a mid-term project report to be distributed to all participants (IDA, GTZ, and other Government agencies) one month prior to the start of the review. The review would focus particularly on progress in capacity building and staff development, as well as the functionality and efficiency of the environmental management systems being put into place (para 4.73). 6.6 Subject to the above conditions, the proposed project is suitable for a Credit of SDR 1.9 million (US$2.6 million equivalent) to the Republic of The Gambia on standard IDA terms. 44 ANNEX 1 45 OFFICE OF THE PRESIDENT NATIONAL ENVIRONMENT MANAGEMENT COUNCIL I NATiONAL ENVFONENT Coordinstor Coordinator Technlcal Inter-Sectoral Administrator Services Neto Network Environmental Environmental General Legislation Education Administration Environmental Environmental Hu~ma ReOce kImac Assessment Information Development Services EnvironmentalL Natural Resources Fw Quality Mngmn Public Reations 46 ANNEX 2 4.7 GAMBIA ENVIRONMENTAL ACTION PLAN (GEAP) I. SUMMARY 1 Introduction. The Gambia Enviroranental Action Plan (GEAP) is intended to provide a framework for national environmental policy planning and iuatural resource management decision making on a continuous basis. It was initiated under the auspices of the National Environmental Management Council and pr-epared by the Environment Unit of the Ministry of Natural Resources and the Environment (now the National Environment Agency). The CEAP provides a review of the existing envirownental situation and outlines approaches to deal with the problems, including institutional changes and other required actions. 2. The State of the Environment in The Gambia. Major environmental problems imnpacting The Gambia stem from the effects of a rapidly growing population which is making unsustainable use of the natural resource base. The results of this population increase, coupled with widespread poverty, are: (a) uncontrolled urbanization; (b) depletion of the natural resources base, particularly forests and pasture lands and decline in soil fertility through poor farming practices and (c) poor management of natural resources whica has led to destructive bush fires, exploitative tinber cutting, depletion of the vegetation cover and intensive grazing practices. Management of these issues has been handled haltingly by a wide array of public institutions, but coordination and information management has been poor and the problems have continued to worsen. 3. Environmental Policy. While economic performance has improved over the past years due to Govertment's efforts, environmental degradation has increased, posing a threat to continued economie growth. Attenpts to deal with environmental problems within a policy framework date to the Banjul Declaration of 1977. A series of institutional developments followed, including the creation of the Environment Unit and the enactment of the National Environment Management Act of 1987. Government recognized that a sectoral and policy-based appreach to environmental protection and natural resources management was inadequate. It therefore decided to prepare a national environmental action plan, in order to develop a clear definition of enviromnental priorities consistent with the overall goal of sustainable development. This process culminated in the Gambia Environmental Action Plan (GEAP), which was approved by Cabinet in July 1992. 4. GEAP Strategy Framework Sununa. The GEAP contains a series of policy objectives, programs and implementation strategies aimed at ensuring environmentally safe development and based upon an analysis of the environmental situation of The Gambia, contained in the GEAP. The following is a summary of the framework for action as laid out in the GEAP. 48 II. POLICY OBJECTIVES OBJECITVE A: TO CONSERVE AND PROMOTE THE RATIONAL USE OF NATURAL RESOURCES FOR THE BENEFIT OF PRESENT AND FUTURE GENERATIONS Problems addressed: * bushfire damage * drought and growing scarcity of water resources * inadequate land use/natural resource planning * degradation of vegetation and loss of forest cover * soil degradation and reduction in fertility * reduction in fish stocks * coastal erosion OBJEC'TIVE B: TO PRESERVE AND IMPROVE THE HEALTH AND QUALITY OF LIFE OF ALL GAMBLANS THROUGH SOUND ENVIRONMENTAL MANAGEMENT Problems addressed: e water supply reduction and water-borne pollution - poor sanitation - waste management and disposal e deleterious use of inorganic fertilizers and groundwater pollution * inappropriate use of pesticides and resultant contamination * rapid and uncontrolled urbanization * coastal pollution g roundwater pollution and salinization e lack of adequate physical planning * inapproprlate and inadequate infrastructure OBJECTIVE C: TO PRESERVE AND/OR RESTORE THE EQUILIBRIUM OF ECOSYSTEMS Problems addressed: * degradation of vegetation and loss of forest cover * loss of biodiversity and wildlife * soil erosion and loss of production capability * degradation of coastal areas 49 OBJECTIVE D: TO STRENGTHEN THE INSTITUTIONAL FRAMEWORK FOR ENVIRONMENTAL COORDINATION AND MANAGEMENT AT THE NATION, REGIONAL AND GLOBAL LEVELS Problems addressed: * lack of information for enviromnental planning and mangement e inadequate national environmental policy and legislation * land tenure issues * poor coordination of implementing agencies * lack of coordination with non-governmental organizations * transboundary movement of hazardous waste * regional coastal erosion e atmosphenc and waterway pollution * inadequate technology transfer OBJECTIVE E: TO INCREASE THE ENVIRONMENTAL AWARENESS AND UNDERSTANDING OF THE PUBLIC AND BRING ABOUT EFFECTIVE PUBLIC PARTICIPATION AND COMMUNITY INVOLVEMENT IN ENVIRONMENTAL MANAGEMENT Problems addressed: * inadequate incentives for comnunity participation in natural resource mnagement * lack of environmental awareness among the population e insufficient environmental education in the school system OBJECTIVE F: TO ENSURE THE INTEGRATION OF ENVIRONMENTAL CONSIDERATIONS IN ALL DEVELOPMENT STRATEGIES AND RELATED ACTIVITIES Problems addressed: * uncontrolled industrialization * urban and rural polluton * commercial over-exploitation of natural resources * lack of environmental assessment procedures and legislation * indequate environmental planning 50 OWBECTIVE G: TO ACCELERATE THE ADOPTION OF ALTERNATE SOURCES OF ENERGY Problems addressed: * inadequate fuelwood supplies and deforestation * pollution from use of fossil fuels * inadequate promotion and use of renewable energy resources (solar, wind, etc.) m. PROGRAMMATIC OBJECTIVES: A. Actions to Address the Poli,y Issues 1. Natural Resources Management Program * assist and encourage producers to adopt improved land and resource management practices * manage coastal and freshwater resources * develop Government/NGO partnerships for natural resources management * collect, analyze and use data for nantral resources management and planning * develop local area integrated management plans 2. Environmental Health Program 3 improve waste management in urban areas - control pollution related to hazardous chemicals and industry - increase comnunity involvement in controlling adverse environmental problems 3. Energy Program e introduce new and renewable sources of energy to substitute for fuelwood i increase the amount of cultured fuelwood available through community forest managemnent programs and reduction in depletion of natural forests B. Proam Implementation Strategies: Policy Level Changes 1. Insitonal Framework Development * improved inter-sectoral coordination * improved NGO coordination * modified institutional structures for environmental planning and management * improved and codified environmental legislation • improved enforcement of regulation * study of influence of property rights on naural resources management 2. Fisca Measures for lmproved Environmenal Protection * improved and rationalized tax and tariff regime * appropriate use of fines and penalties for regulatory breach 51 3. Public Awareness * media campaigns * environmental extension * environmental education in schools * environmental programs aimed at women, teachers and media practitioners 4. Environmentat Informadon Management * data standardization * data collection and dissemination * development of appropriate EIS/GIS for The Gambia * support for the Documentation Center of the National Environment Agency C. Projects which Support Required Actions There are many ongoing projects which support the policy objectives as outlined above. They have been taken into account and will be built upon as the investment program for GEAP implementation is designed. D. Cross-Sectoral Policy Support Projects * Institutional Support Projects for Environmental Management * Projects to Develop Environmental Information Systems and Data Base * Projects for Environmental Education and Public Awareness E. Institutignal and Legal Framework for IUloementation The institutional and legal framework recommendations in the GEAP call for a revision of the institutional structures and a strengthening of the enviromnental coordination, regulatory and monitoring functions. The Environment Unit has therefore been succeeded by a National Environment Agency, under the auspices of the Office of the President. 52 a X3NNV THE GAMBIA-CA-PACITY BUILDING FbOR-ENVIRONMENT MANAGEMMNT-- I = . . ..~*AR C U_ u International Consultants 70 90 90 250 National Consultants 15 25 20 10 70 Training 25 50 50 25 150 EquLpment/Vehicles 40 40 20 0 100 Audit a10 is is 10 so Icremental Operating Expenses 97 198 203 102 6Q00 Total ____*.2S7 418_ 3~98 17 1,2 ._ Me International Consultants 20 20 20 20 10 National Consultants 20 25 20 10 75 Training 8 1 5 2 20 Workshops 3 2 7 2 20 Studies 15 35 37 35 100 Total 63 96 87 49 295 Ieaolouas 30 2 10 60 Intornational Consultant. 0 50 30 10 1060 National Consultants 20 30 20 10 80 Training 5 8 3 3 2S Workshops 10 18 15 3 20 Public awareness campaign contr 35 68 65 33 200 Total 70 140 123 63 40S International Consultants 30 30 30 10 120 National Consultants S 13 15 8 40 Training a 10 15 0 4 .tguL n a is is 10 so Workshops 10 20 20 10 60 *Monitrn Contracts 30 65 70 35 200 Total 90 178 168 2o 515 n ~~~~~~~~~~~5 International Consultants 10 so 30 10 100 Training 5 8 5 3 20 Workshops 5 a 5 3 20 Data production/conversion cont so 75 so 25 200 Total 70 140 90 40 340 Xnternatlonal Consultants 20 30 10 0 60 National Consultants 13 is S 0 35 Training 5 10 5 0 20 Workshops 3 5 3 0 10 itotal 40 _63 23 0 125 54 -- ANNEX 4 55 THE tHFA- CsAcA Y B DIs iO FOR E ieeoN AL CENMXT VA PROECT 1994 1886 lo 1998 99 ___________________________ J AON|D J IFMIAIMJ JIJIA S|ONID J FIMIA|M|J |J A801N|D J FIM|AMJ Institutional Support to the GEAP AcqXuisitionof aquipttwwnt RR|___ ______Zrr rIL _I Tr*it* of NEA manaetomnt I Mill 1__L_____|_4A L-L- I I I _ Pisparstion of trniing materil end taining of NEA staf ll I Trainkng of .toff In key Instilutions GEAP Monitoring end Policy Development Sectora policies identilic tion * ¢vi ion_ Studies idenitication - tulilsnelitI I I I I Reponts Environmental Education Pieparetion of strategy Public owerenss cam'gn regarding GEAP end NWAP Public *w eness carmpaigne on specific themes Regionl en sectoral workshops Monitoring of Environmental Quglity and Enforcement Deveopmnt of rmontoring system Establishnent ol h npectoreto and trkinung oe telt Estashmnent of monitoring capabiliies Workshops Operation of monitoring sytem Environmental Information Management Development of EIS etrategy and guidelines Treining of NEA inlormation office Cpoeion of koey dat osete Workshop Develpment of analytical skilII Contingency Planning and Disaster Preparenessr Peprdation of contingency plan Workshio| -Sirr"ltion exercise, 5XNNV Matri of Perfomasuce Judicators COMPON NT AND OJECTIVE S.. 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GSA? ed EAP eA stsed 3.2.1 Two nstai carsatpene on GW nd MIA 3.2.1 GA Keed IUA wosbtakwps omprfsad in se leest complte by lt "Is ea l @1,501 S DiW& M Eu oapbdon kead. 3.2.2 Ptpaar veson d GfAr conpaad voliire S m wd pofc r e 4. .atskg .4 eswl tI p.gy .n odw ..a 4.1 CsPec to I. n onl Ofvl Oal quayIty b 4.1.6 Aoordnated e sNslalreaUIstbu 4.1.1 uttocAt p#soi Is hpna tsargtAn SYtt Is desIne 4.1.2 Monitorn systm tee a ed 4.1.2 M_aokg Stem seteewed 4.2 l#SWb capeCily 5t on tI4peto 4.2 upet,as t e tialis a & ntlosdn 4.2 Eslorcenn acudwsa eatibid 4.2 Al lug S vIolation efilasul wes mr anevslddlsosI eeold_________________ b_______________ IooeVd 0 - :1 a. I ji! I ijfI ill I iI' It. ill a as as was as- as I ii r. I * '4 *1 ii L1 B?ur a  ! 0% da 9 El 19 1 '1 U C 2. fI -L t p K C, p as as as -. as Ls - 0 II Ii '' a 6 Ii I II I as as - - I I Iiif  iiiff  I j I iii'' . 1 I* 9. 1: 59 ANNEX 6 60 TIMING AND COMPOSITION OF SUPERVISION MISSIONS APPROXIMATE ACTIVITY DATE EXPECTED SKILLS (SW) September 1994 Supervision Mission Urb. Fin. Analyst (1) Proiect Launch Workshop Environmental Specialist (1) Objectives: a) Explain project objectives to participants (NEA. Government agencies, donors) b) Review effectiveness: i) Achievement of credit effectiveness ii) Review management and accounting procedures in NEA December 1994 Supervision Mission Urb. Fin. Analyst (1) a) Review project progress Environmental Specialist (1) l__________________ b) Review outstanding issues March 1995 Supervision Mission Urb. Fin. Analyst (1) a) Review project progress Environmental Specialist (1) l__________________ b) Review outstanding issues | June 1995 Supervision Mission Urb. Fin. Analyst (1) a) Review project progress Environmnental Specialist (1) b) Review outstanding issues 11 Sept/Oct. 1995 Supervision Mission Urb. Fin. Analyst (1) a) Review project progress Environmental Specialist (1) l_________________ Db) Review outstanding issues December 1995 Supervision Mission Urb. Fin. Analyst (1) a) Review project progress Environmental Specialist (1) b) Review outstanding issues March 1996 Joint IDA/GovtlGTZ Mid-Term Review Urb. Fin. Analyst (1) a) Review overall project progress and adequacy of Environmental Specialist (1) institutional arrangements b) Review project accounting, SOE and disbursements c) Review project's overall impact May/June 1996 Supervision Mission Urb. Fin. Analyst (i) a) Review project progress and imnplementation of Environmental Specialist (1) recommendations from the mid-term review b) Review outstanding issues September 1996 Supervision Mission Urb. Fin. Analyst (1) a) Review project progress Environmental Specialist (1) b) Review outstanding issues December 1996 Supervision Mission Urb. Fin. Analyst (1) a) Review project progress Environmental Specialist (1) _ b) Review outstanding issues March 1997 Supervision Mission Urb. Fin. Analyst (1) a) Review project progress Environmental Specialist (1) b) Review outstanding issues June 1997 Supervision Mission Urb. Fin. Analyst (1) a) Review project progress Environmental Specialist (1) b) Review outstanding issues September 1997 Final Supervision Mission Urb. Fin. Analyst (1) _ Environmental Specialist (1) Staff inputs in staff weeks (sw) to supervision are as follows: eight sw for FY95. eight sw for FY96, eight sw for FY97. two sw for FY98. 61