ex-post evaluation report...ex-post evaluation report itto project pd 171/91 rev. 2 (f)...

EX-POST EVALUATION REPORT

ITTO PROJECT PD 171/91 Rev. 2 (F)

"CONSERVATION AND MANAGEMENT FOR THE MULTIPLE USE AND DEVELOPMENT OF MANGROVES IN COLOMBIA"

Prepared for ITTO

by

James K. Gasana and Monica Borobia

April 2004

34RFM-5 28 June 2004

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List of abbreviations and acronyms

ACOFORE Asociación Colombiana de Reforestadores e Industriales de la Madera CONIF Corporación Nacional de Investigación y Fomento Florestal CARDIQUE Corporación Autónoma Regional del Dique CARSUCRE Corporación Autónoma Regional de Sucre CODECHOCO Corporación Autónoma Regional del Chocó CORALINA Corporación para el Desarrollo Sostenible del Archipiélago de San Andrés,

Providencia y Santa Catalina CORPAMAG Corporación Autónoma Regional del Magdalena CORPOGUAJIRA Corporación Autónoma Regional de la Guajira CORPONARIÑO Corporación Autónoma Regional de Nariño CORPOURABA Corporación para el Desarrollo Sostenible del Urabá CRA Corporación Autónoma Regional del Atlántico CRC Corporación Autónoma Regional del Cauca CVC Corporación Autónoma Regional del Valle del Cauca CVS Corporación Autónoma Regional de los Valles del Sinú y San Jorge IAVH Instituto Alexander von Humboldt INDERENA National Institute of Renewable Natural Resources, Colombia INVEMAR Instituto de Investigaciones Marinas y Costeras ITTA International Tropical Timber Agreement ITTO International Tropical Timber Organization NGO Non-governmental organization OCENSA Oleoducto Central SA

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PART I. EXECUTIVE SUMMARY

1. BACKGROUND INFORMATION ABOUT THE PROJECT

This report presents the results, conclusions and recommendations of the ex-post evaluation of project PD 171/91 Rev. 2 (F) "Conservation and management for the multiple use and development of mangroves in Colombia". Phase 1 of the project started on 1 March 1995 and ended on 30 October 1996. It was implemented by INDERENA, which was superseded by the Ministry of Environment, with the collaboration of CONIF. Phase 2 comprised two stages, and was implemented by ACOFORE under the coordination of the Ministry of Environment, through the Directorate General of Ecosystems. Its stage I started on 1 April 1997 and ended on 31 March 1998. Stage II started in February 1999 and ended on 30 September 2000.

2. EVALUATION PURPOSE

The primary purpose of the evaluation is to provide a concise diagnosis of five projects related to mangroves so as to point out the successful and unsuccessful outcomes, the reasons for successes and failures, and the contribution of the projects towards ITTO’s Objective 2000 and the ITTO Mangrove Work Plan 2002 - 2006, and to draw lessons that can be used to improve similar projects in the future.

3. SCOPE OF THE EVALUATION

This evaluation was conducted at the request of the ITTO Secretariat following the decision taken by the Committee on Reforestation and Forest Management in its 30

th Session, in May 2002, to carry out

an ex-post evaluation of 5 projects, including PD 171/91 Rev. 2 (F), grouped under the theme “Mangroves”. The scope and focus of the evaluation were determined so as to assess the impact and effects of this project. The visit for the ex-post evaluation of the project took place between 12-17 January 2004. There were four steps in the evaluation process. The first step was a preparatory stage consisting of a deskwork prior to the visit in Colombia. The second step was the briefing of the hosts on the first day of the visit, followed by discussions with the Project Coordinator and the Officials of the Ministry of Environment. The third step was a visit to project sites in the Caribbean Coast to discuss with regional project staff and community representatives, and to visit field activities (see Annex 1 for the program and the list of sites visited and persons consulted). The fourth step was a synthesis of the analysis of the information gathered and a debriefing meeting with the Coordinator of the project. The terms of reference given to the evaluators, as specified in the Appendix to the "Special Service Agreement" include the following points:

The overall role and contribution of the project in light of sectoral policies, development programs, priorities and requirements to achieve conservation, sustainable management and/or rehabilitation of mangroves in the country concerned.

The current status of mangroves within the project’s area of influence, the effectiveness of the project’s implementation and its effectiveness in promoting the conservation, sustainable management and/or rehabilitation of mangroves.

The contributions of the specific studies in various disciplines (inventory, ecology, socio-economy, management techniques, rehabilitation techniques, etc.) prepared by the project to the conservation, sustainable management and/or rehabilitation of mangroves in the project’s area of influence.

The results and potential impact of applied research conducted by the project (if any) and its contribution to the overall knowledge on mangroves in the region.

The impact of project activities on the livelihoods of target populations.

The effectiveness of dissemination of project results.

The overall post-project situation in the project’s area of influence.

The unexpected effects and impacts, either harmful or beneficial, and the reasons for their occurrences.

The cost efficiency in the implementation of the project, including the technical, financial and managerial aspects.

Follow-up actions in order to enhance uptake of project results.

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The project’s relative success or failure, including a summary of the key lessons learnt; and the identification of any issues or problems that should be taken into account in designing and implementing similar projects in the future.

4. FINDINGS

4.1 Design of the Project

The project was elaborated before ITTO accumulated the current level of experience in project formulation, and it did not follow the standard provided by the Project Formulation Manual. For this reason, the project document shows technical flaws in the design of the proposal. An enhanced design would have shown how problems are related to their causes and effects, and how these related to specific objectives that the project would focus on. The project did not benefit from the use of the Logical Framework Approach, as indeed no logical framework matrix was presented. It was too general in the formulation of its specific objectives and outputs, and lacked focus. The presentation of the strategy was also vague. The objectives and outputs lacked indicators and means of verification. This lack of indicators makes difficult such an evaluation exercise, as there is no reference-base for the assessments. A reliable evaluation of the achievements would depend on the clarity of the objectives and outputs, and on the choice of respective indicators. A full assessment of the effectiveness and impacts of the Project would require a broader survey and more time investment based on a monitoring and evaluation system.

4.2 EFFICIENCY AND OPERATIONAL ASPECTS

The project implementation was carried out following the ITTO's rules and procedures. Both the ITTO and the Colombian Government complied with their obligations of providing their respective inputs. The implementation was a success in organizational and managerial aspects. The roles of the agencies involved in the Project were distinct, and were organized in four different levels:

Project implementation: Ministry of Environment;

Project execution: Ministry of Environment and ACOFORE;

Project coordination: Project Coordinator and personnel;

Project funds management: CONIF and ACOFORE. "Project implementation" is used in a broad sense to take into account the Ministry's overall role in national coordination and its responsibility vis-à-vis the international cooperation partners (ITTO in this case). "Project execution" refers to the day-to-day project management; it was carried out by the Ministry of Environment during phase I and by ACOFORE during phase II. This distinction of roles allowed the Project Coordinator to fully play the role of link between the project, the Ministry of Environment and other key partners at regional (Caribbean and Pacific coasts) and departmental levels.

5. EFFECTIVENESS

The project's achievement of the outputs is summarized in the following table "Summary of the project's achievement of the outputs".

Summary of the project's achievement of the outputs

Project output Achievement

Output: The execution of the project within a participatory framework is prepared (cf. Specific objective 1)

Participatory approach used in the preparation and planning of project activities; Work plan included methodologies scope coordination and participation roles for main project stakeholders.

Output: Field information regarding the structure, function and dynamics of mangrove ecosystems systematized and evaluated (cf. Specific objective 2)

Four reports were produced on methodology used to guide the information gathering process on (i) social and economic aspects; (ii) biotic and abiotic elements;(iii) planning, zoning and management units and (iv) field guide for the study of mangrove structure and dynamics.

Output: A detailed diagnosis on the Two publications were produced containing the diagnosis

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state of the country's mangrove ecosystems performed (cf. Specific objective 3)

and preliminary zoning for mangrove management in the Caribbean and Pacific costs of Colombia.

Output: Studies on the structure, function, dynamics, genetic supply of mangrove ecosystems, priority economic and social processes advanced (cf. Specific objective 4)

A structural analysis of mangrove ecosystems carried out in the Pacific and Caribbean coasts: Transects established; Permanent growth and yield sample plots were established; Wildlife presence, phytosanitary aspects along with biotic and abiotic parameters also studied and results published; Studies on social and cultural aspects of communities carried out.

Summary of the project's achievement of the outputs (continued)

Project output Achievement

Output: Legal, institutional, participation, information and financing mechanisms and channels to guarantee the execution and continuity of project created and implemented (cf. Specific objective 5)

Proposal on the mechanisms and legal aspects of community and institutional participation in mangrove conservation and management elaborated; As a result of the project the following several legal and policy instruments were enacted:

Output: A holistic plan for immediate action for phase 2 of the project prepared, agreed upon and defined (cf. Specific objective 6)

A preliminary strategic plan for sustainable management of mangroves was prepared; Main components for an immediate integrated action plan also drafted.

Output: Studies carried out in the Caribbean and Pacific which will increase knowledge on: i) the structure, function, dynamics and genetics of mangroves; and ii) the economic and social processes (cf. Specific objective 7)

Data on growth, natural regeneration, phenology were generated; Mangrove water monitoring stations also established; Technical reports and a book were produced on the analysis of parameters.

Output: Priority actions to guarantee the conservation and rehabilitation of the mangrove ecosystems carried (cf. Specific objective 8)

Pilot reforestation plots were established with active participation of local communities; A National Program on Mangroves was subsequently adopted; The “Lineamientos Estratégicos para la Conservación y el Uso Sostenible de los Manglares de Colombia” was also drafted; 460 ha of degraded areas reforested.

Output: A participation process for the implementation, dissemination and evaluation of productive alternatives for the socio-economic development of the local communities implemented (cf. Specific objective 9).

Five Pilot Productive Projects were formulated jointly with the local communities; Training of 40 persons from local communities and government corporations on aspects related to the productive activities of the pilot projects.

Output: Formulation and definition of an investment program for the conservation and sustainable management of mangroves in Colombia (cf. Specific objective 10)

A portfolio of mangrove projects was prepared.

The project carried out its activities in two distinct geographical regions: the Caribbean Coast and the Pacific Coast. In spite of the lack of indicators in the project proposal regarding the outputs and the objectives, the evaluators found that it was effective in achieving most of its outputs in the Caribbean Coast. For the Pacific Coast, the project’s efforts were hampered during its last stage by the lack of cooperation from local communities due to collective demands of land ownership rights addressed to the Government of Colombia. Overall, the Project is commendable for its methodological contributions and its physical achievements in the restoration of degraded and dried mangrove forests. It contributed significantly in creating conditions in which sustainable management of mangroves of the Caribbean Coast and sustainable livelihoods for communities who depend and live near them can take place. It provided previously lacking basic information for management planning.

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The Project carried out an important awareness raising work which enhanced the integration of mangroves in the national policy processes, not just as forests but as ecosystems as well.

6. IMPACT

6.1 Findings on the effects of the project

These are main effects and impacts of the Project:

Reforestation and restoration of degraded and dried mangrove forests based on knowledge and information generated by the project;

Mobilization of communities in mangrove management and development of economically and environmentally sustainable activities;

Conclusion of agreements between the Project executing agency and the Local Communities through Cooperatives and/or Associations (created specifically for the purposes of mangrove management or strengthening existing ones for this purpose) as well as agreements between such local cooperatives and the Regional Autonomous Corporations which are charged with the mandate of managing natural resources in Colombia.

As a result of the project the following instruments were enacted with regard to Policy processes, Legislative Instruments and Coordination:

Resolution 1602 of 1995 on measures to ensure sustainability of mangroves in Colombia;

Resolution 20 of 1996 clarifying resolution 1602 of 1995 and on other provisions;

Resolution 924 of 1997 establishing terms of reference for studies on the state of mangroves and proposals for their zoning;

Resolution 257 of 1997 establishing minimal control measures to ensure sustainability of mangroves in Colombia;

Resolution 694 of 2000 established to approve and evaluate mangrove diagnostics and zoning proposals by the Regional Autonomous Corporations.

National Mangroves Program ; Strategic Guidelines for the Conservation and Sustainable Use of the Mangroves of Colombia; Final Zoning Plans by the Regional Autonomous Corporations.

Additionally, close links and integration of mangrove related activities were effected in the following instruments:

National Policy on Coastal Areas;

National Forest Development Plan;

Green Plan - Strategic Plan for the Forest Restoration and Establishment in Colombia, Ministry of Environment.

Based on the results of the project, the above instruments were crucial to consolidate and expand mangrove management and conservation in Colombia. Close and regular coordination with different levels of Government decision making bodies in Colombia and local communities is in place through the designation of specific focal points or contact persons in:

Ministry of Environment: Special Unit of the National Parks System, Via Parque Salamanca, Parque Nacional Natural de Corales del Rosario y San Bernardo, Sanctuario Fauna y Flora el Corchal « Mono Hernandez », Delta Canal del Dique;

Regional Autonomous Corporations;

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Relations have been established and also continue to be in place with Research Institutes of the Ministry of Environment (e.g. Instituto de Ivestigaciones Marinas y Costeras-INVEMAR), Instituto de Investigación de Recursos Biológicos Alexander Von Humboldt-IAVH and others in Colombia.

6.2 Assessment of Successes, Failures and Lessons learnt

6.2.1 Successes

The most important successes are the following:

The process approach allowed correcting the weaknesses of the initial project design. It allowed integrating institutions, informing and contributing to national policy processes.

The project is a model not only of how to implement national policies, but also of how to link projects to national policy development processes.

Close and regular coordination with different levels of Government decision making bodies in Colombia and local communities, through the designation of specific focal points or contact persons in: Ministry of Environment, Special Unit of the National Parks System (Via Parque Salamanca, Parque Nacional Natural de Corales del Rosario y San Bernardo, Sanctuario Fauna y Flora el Corchal « Mono Hernandez » (Delta Canal del Dique); Regional Autonomous Corporations; Research Institutes (of the Ministry of Environment, e.g. Instituto de Ivestigaciones Marinas y Costeras-INVEMAR), Instituto de Investigación de Recursos Biológicos Alexander Von Humboldt-IAVH and others) and local communities.

Multidisciplinary approach to project staff and the work of project consultants.

Creation of capacities and implementation of priority activities to improve mangrove management and community livelihoods, and to integrate stakeholders at regional and national levels.

Raising the awareness of the communities on the economic potential of mangrove activities, other than direct exploitation of forest resources.

Enhancement of the role of these communities in mangrove management. Mobilizing participation of local communities who’s livelihood are intrinsically dependent on mangroves on the various project phases, but particularly in the elaboration of mangrove assessments and zoning of mangroves and in rehabilitation of mangroves (seedling production, planting, channels opening and maintenance).

Institutionalization of community groups in the form of cooperatives in order to carry forward productive activities.

There is a potential long term impact on community income improvement.

Many members of the staff of the Ministry of Environment and the Autonomous Corporations have strengthened their understanding of mangroves as a result of their involvement in the activities of the Project.

Contribution of scientific and technical information in support of the creation and establishment of the first RAMSAR site in Colombia through a joint proposal with the Ministry of Environment (Delta- Estuario de Rio Magdalena), which supported Colombia’s obligations under the RAMSAR Convention, extending the conservation on mangroves found therein.

6.2.2 Weaknesses

No clear strategy for the Pacific Region, in light of the problems encountered during Phase 2, Stage II of project implementation.

No monitoring system to monitor and evaluate project activities, and to monitor and evaluate environmental and socio-economic impacts.

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The link to the integrated coastal zone policy should be strengthened as far as active multi-sectoral implementation is concerned.

The project document did not propose a phasing out approach and a sustainability plan, and these aspects have not been looked at during the implementation.

6.2.3 The key lessons learnt are:

Mangrove rehabilitation is a reality in Colombia and can be successfully carried out throughout the Caribbean coast with close participation of local communities.

Rehabilitation techniques will depend on local site conditions, characteristics and financial feasibility.

Community mobilization allowed direct integration of expertise and knowledge from local communities into assessments and zoning carried out, to disseminate the importance of mangrove forests to the communities as a whole and to enhance commitment of local people to mangrove conservation.

Conclusion of agreements between the Project and communities allowed the definition of roles and expectations regarding project benefits (including remuneration of activities) to be clearly stated and to enhance self-esteem of local community by contributing formally to the conservation and management of local mangrove systems.

The innovative model of outsourcing key project management responsibilities to specialized organizations increased the overall efficiency. The good articulation between Project coordination by a Government service, implementation by a contractor, and management of funds by an independent third party was an important factor for success.

Additionally, such agreements contributed to the formal organization of local communities in the broader context of their relations with local authorities and other segments of society in their region, opening up new and additional possibilities for economic activities, such as fish farming (ponds of tilapia),additional contracts for the sale of mangrove seedlings to local authorities, autonomous regional corporations and private individuals, and private companies such as Petrolera (OCENSA)-San Antero, Cispatá, Caimanera. Coordination efforts were fundamental to allow that:

a) Products generated from the project (assessment, mapping and zoning information) be used as the basis to formulate and implement national policy on mangroves, and mangrove management plans (on-going new ITTO project phase).

b) Institutional basis be established to carry out conservation and management of mangrove

forests in Colombia as evidenced by the designation of the personnel to be specifically responsible for mangroves in the Ministry of Environment and in Regional Autonomous Corporations (Caribbean: CORPOURABA, CVS, CARSUCRE, CARDIQUE, CRA, CORPAMAG, CORPOGUAJIRA and CORALINA; Pacific: CORPONARIÑO, CRC, CVC and CODECHOCO).

c) National Working Group on Coastal Areas and Wetlands be established as a

multidisciplinary task force for coordination, including mangrove ecosystems.

6.3 Overall post-project situation

Overall, a total of 460 hectares of degraded wetlands were planted with mangroves. The project’s results and experiences were documented and widely disseminated throughout Colombia and Latin America. The knowledge base on mangroves has significantly been enhanced serving as a basis to develop and implement policies and management plans for mangroves in Colombia. Training in the technical aspects of mangrove management and products processing for the communities was successful and as a result of such Pilot Productive Projects, local communities in the Caribbean continue to carry out these productive activities and have improved their income and livelihoods.

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6.4 Unexpected effects and impacts

The main unexpected development refer to planned activities contemplated for the Pacific during the project’s phase 2, stage II. These could not be executed due to the unforeseen decision of African-Colombian leaders of Pacific communities to discontinue project participation in light of land tenure issues with the Government of Colombia.

6.5 Contribution to the ITTA objectives and ITTO Action Plan

The project is in conformity with the objectives outlined in article 1 of the ITTA 1994, and meets particularly the following objectives:

Objective (a) that aims at providing "an effective framework for cooperation and consultation on all relevant aspects of tropical timber economy through workshops on reforestation.

Objective (c) that aims at contributing to the process of sustainable development.

Objective (f) that aims at promoting and supporting "research and development with a view to improving forest management and efficiency of wood utilization as well as increasing the capacity to conserve and enhance other forest values in timber producing countries,

Objective (j) that aims at encouraging "members to support and develop industrial and tropical timber reforestation and forest management activities as well as rehabilitation of degraded forest land, with regard for the interest of local communities dependent on forest resources.

Objective (l) that aims at encouraging "members to develop national policies aimed at sustainable utilization and conservation of timber producing forests and their genetic resources and maintaining the ecological balance in the regions concerned, in the context of tropical timber trade".

In relation to the Yokohama Action Plan: The Yokohama Action Plan recognizes that “in addition to their ecological and socio-economic importance, mangrove forests provide timber and timber-related products that are internationally traded”. The project complies with the Plan’s Goal 1 “Support activities to secure the tropical timber resource base” under Reforestation and Forest Management, in recommended Action 4 « Promote the conservation, rehabilitation and sustainable management of threatened forest ecosystems, inter alia mangroves, in collaboration with relevant organizations”.

7. CONCLUSIONS OF THE EVALUATION

7.1 Implementation efficiency and project effectiveness

The project implementation was carried out following the ITTO's rules and procedures. Both the ITTO and the Colombian Government complied with their obligations of providing their respective inputs. The implementation was a success in organizational and managerial aspects, despite the extended project duration from that originally planned which did not compromise project results and accomplishment of outputs. The project also made a considerable contribution to the real development objective, "To strengthen the sustainable management and conservation of mangrove ecosystems". It has contributed significantly to creating conditions in which sustainable mangrove management and sustainable livelihoods of local communities can take place. It provided basic information and carried out an awareness raising work which enhanced the integration of mangroves not just as forests, but as ecosystems as well in the national policy processes. The evaluators are convinced that the project contributed even more than what was documented. Its reporting weakness has been to concentrate on one type of indicators, i.e. the technical indicators such as the areas planted and the length of canals, which do not reflect all its effectiveness with respect to social, economic and environmental dimensions.

7.2 Overall assessment of successes and failures

The project was successful in meeting its main objective to generate socially and environmentally appropriate productive alternatives for the sustainable use of the Colombian mangroves while simultaneously guaranteeing their conservation.

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In accordance with the project document, all planned activities for the first phase and for stages I & II of the second phase were successfully carried out, with the exception of those planned for the Pacific coast during stage II, for the reasons outlined in item 6.4. Overall, the project has significantly contributed to the knowledge base on the ecology and silviculture of mangroves and towards the sustainable integrated management of mangrove resources. It has created an awareness of the potential benefits of implementing sustainable mangrove management, reforestation and integrated production activities among the rural communities living in and around the mangrove forests in Colombia. In addition, the project’s activities have improved the livelihoods of the local communities in the region in the short to medium term. The project’s results and experiences were documented and widely disseminated throughout Colombia and Latin America. The project has also significantly contributed to the development and adoption of policy and planning instruments on mangrove conservation and management in Colombia.

7.3 Alternative design of the project

As pointed out under item 2.1 the project could have been drafted making use of a logical framework matrix, thus allowing for an enhanced design showing how problems are related to their causes and effects, and how these related to specific objectives that the project would focus.

8. RECOMMENDATIONS

To the executing agency of Project PD 60/01 Rev.1 (F) and those of future mangrove projects in Colombia:

There is an urgent need to elaborate a monitoring system and a systematic baseline to measure the ecological and the socio-economic impacts of the project and other activities on the coastal mangrove forests. To measure this wide range of impacts, a broad range of monitoring indicators is required.

The experience of the project should be synthesized in a summary publication so that it can be shared nationally and internationally, as well as in the internet. This should concern not only the technical aspects but also the experience in the development of implementation processes.

Design a strategy for sustainable commercial mangrove tree seedlings production and of devolution of nurseries to the communities.

Explore new approaches for long-term sustainability and potential partnerships with private sectors in areas of synergies such as ecotourism as means of resource generation and valorization of mangrove ecosystems.

To the Ministry of Environment, Colombia:

There is a need to work out a strategy for the Pacific Coast and to resume the mangrove management and conservation activities there.

There is need to strengthen inter-sectoral and ministerial coordination for the full implementation of the integrated coastal zone management policy.

In order to continue to expand project results, consideration should be given to the formulation of a new project on mangrove conservation and management in which the recommendations above addressed to the executing agency are taken into account.

To ITTO:

Mid-course correction mechanisms for project proposal documents presenting important weaknesses in their design are needed.

For phased projects, there should be an end of phase evaluation before starting a new phase, which should be carried out expeditiously and be planned in the original project document.

The proposal documents should spell out clearly the implementation processes to be developed.

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For projects where social and cultural factors must be taken into account the following elements should be considered to reach expected results: (a) a pre-project may be outlined in order to design a project based on the participation of communities and multi-disciplinary experts,(b) the project executing agency should consult local communities prior to project submission and ensure that consent and support are given to project implementation and (c) forecast in the project document a specific activity to be executed at the onset of the project to detail participation of local communities and site activities.

Projects to be approved should clearly be linked to national policies and programs and results should be communicated to relevant international organizations so that their sustainability and impact can be maximized.

Project ex-post evaluations should be carried out soon enough after completion so that institutional memory can be used, but also taking into account the minimum time to achieve impacts.

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PART II. MAIN TEXT 1. PROJECT CONTEXT 1.1 Project Rationale and Background

Project PD 171/91 Rev. 2 (F) "PD 171/91 Rev. 2 (F) "Conservation and management for the multiple use and development of mangroves in Colombia" was financed by ITTO with funds contributed by Japan, and was implemented by Phase 1 of the project started on 1 March 1995 and ended on 30 October 1996. It was implemented by INDERENA superseded later by the Ministry of Environment after its creation, with the collaboration of CONIF. Phase 2 comprised two stages, and was implemented by ACOFORE under the coordination of the Ministry of Environment, through the Directorate General of the Ecosystems. Its stage I started on 1 April 1997 and ended on 31 March 1998. Stage II started in February 1999 and ended on 30 September 2000. The project document identified the core problem to be addressed as the improper harvesting of Colombia's mangroves. This was taking place in a context that is characterized by:

(1) Insufficient scientific data on mangrove resources; (2) Weak experience in working with communities that live in or near mangroves; (3) Limited information on degraded mangrove areas, their location and the causes of their

degradation; (4) Inexistence of degraded mangrove ecosystem restoration activities.

The focus of the project was therefore to address these problems through the improvement of scientific knowledge in order to develop strategies that are in line with national environmental policies, the principles of sustainable development and community participation. The implementation approach adopted was as follows:

(1) In the first phase, to carry out technical and institutional diagnoses in mangrove areas of both the Pacific and the Caribbean Coasts, and to elaborate a holistic plan of immediate action;

(2) In the second phase, to undertake further studies on growth dynamics and natural regeneration, and to formulate and define a medium and long-term investment program for the conservation and sustainable management of mangroves in Colombia.

1.2 Development Objective

The development objective of PD 171/91 Rev. 2 (F) was to generate more productive alternatives which are socially and environmentally appropriate for the sustainable use of mangrove ecosystems, while guaranteeing their conservation and ensuring that the coastal inhabitants will be the prime beneficiaries.

1.3 Specific Objectives

The specific objectives of the project were defined as follows: Phase 1: Strategic diagnosis and planning

1. To prepare the execution of the project within a framework of participation;

2. To systematize and evaluate the field information regarding the structure, function and dynamics

of mangrove ecosystems;

3. To perform a detailed diagnosis on the state of the country's mangrove ecosystems;

4. To advance the studies of a general nature to be performed on the on the structure, function, dynamics, genetic supply of mangrove ecosystems, and priority economic and social processes.

5. To create and implement legal, institutional, participation, information and financing mechanisms

and channels to guarantee the execution and continuity of project actions in order to achieve its development objective.

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6. To prepare, reach agreement upon and define a holistic plan for immediate action for phase 2 (execution) of the project having three levels: (i) intensive research on ecosystems and socio-economic processes; (ii) conservation and rehabilitation, and (iii) development of productive pilot projects.

Phase 2: Project execution

7. To make detailed studies in specific zones of the Caribbean and the Pacific which will increase

and diffuse existing knowledge on: (i) the structure, function, dynamics and genetic supply of mangrove ecosystems; and (ii) the priority economic and social processes.

8. To carry out priority actions intended to guarantee the conservation and rehabilitation of the

mangrove ecosystems, with emphasis on the preservation and recovery of the diversity, genetic variability and natural productivity of the mangroves.

9. To implement a participation process for the implementation, dissemination and evaluation of

productive alternatives for the socio-economic development of the local communities, based on multiple uses (direct and indirect) of mangrove ecosystems.

10. Formulation and definition of a medium and long-term investment program for the conservation

and sustainable management of mangroves in Colombia.

1.4 Planned Outputs

The planned outputs (or results) for the project were the following: Output for specific objective 1:

Output 1.1: Work plan, definition of scope, methodologies and coordination arrangements, technical assistance and participation for project development.

Output for specific objective 2:

Output 2.1: Outline of updated information regarding (i) context; (ii) natural supply, limitations and potential; (iii) agents, social relationships and transformation processes; (iv) productive options; and (v) international and national management policies related to mangrove ecosystems in Colombia.


Output 3.1: A document including a diagnosis of the present state of mangrove ecosystems in the Caribbean and the Pacific, and the level of the scientific and technological knowledge and development for its exploitation and zoning for sustainable management of mangrove areas, in which these are identified according to whether they should be given multiple use or should be protected by a special conservation and rehabilitation standard.


Output 4.1: A general framework of information on: (i) context, structure and function of the mangrove ecosystems in Colombia's Caribbean and Pacific; and (ii) characterization of the priority economic and social processes.


Output 5.1: Availability of infrastructure and institutional support to guarantee project execution and the continuity of its objectives once it has been concluded.


Output 6.1: Holistic plan for immediate action, with detailed identification of activities, specific areas of action, responsibilities and coordination and integration mechanisms for the execution of the second phase of the project.

Phase 2, Stage I and Stage II


Output 7.1: A significant increase in the knowledge of : (i) the structure, function, limitation and potential of the mangrove ecosystems on Colombia's Caribbean and Pacific Coasts; and

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(ii) options to guide economic and social processes towards sustainable development, disseminated at the national and international levels.


Output 8.1: A set of priority actions for the conservation and rehabilitation of the mangroves are underway on the Caribbean and Pacific Coasts.


Output 9.1: A minimum of two replicable productive projects underway, evaluated and made known both on the Pacific and Caribbean Coasts through a process of agreement between public and private entities and communities of the two regions.


Output 10.1: Medium and long-term investment program for the conservation and sustainable management of mangroves in Colombia.

1.5 Work plan and Inputs 1.5.1 Planned project activities were as follows:

Output 1.1:

Selection and contracting of project coordination team; identification of national and international advisory board;

Organization of mechanisms of access to mangrove information networks;

Formulation of detailed work plan for project components;

Organization and execution of a workshop to evaluate preliminary work plan;

Set up mechanisms for participation and project coordination;

Organization of work teams and procurement of offices;

Definition of communication and dissemination strategies. Output 2.1:

Obtain and process remote sensing information;

Evaluation and systematization of available international statistical data;

Gather information on environmental conditions in which mangroves grow;

Gather information regarding the history and present situation of mangrove ecosystems;

Gather national and international data on mangrove technological and productive options;

Update and complete mapping of the study area;

Gather national and regional information on legislation and strategies. Output 3.1:

Diagnosis of the state of mangroves;

Identification of preliminary management units and definition of management guidelines;

Validation of information;

Regional evaluation and diagnosis workshops;

Dissemination of mangroves diagnosis and zoning document;

Carry out two regional dissemination workshops. Output 4.1:

Preliminary studies of environmental conditions in pre-selected plots;

Preliminary thematic cartography;

Study of the factors limiting mangroves development;

Evaluation of the economic cycle and methods of transformation of mangrove resources;

Preliminary evaluation of conservation and rehabilitation areas;

Preliminary evaluation of institutional infrastructure for mangrove conservation and rehabilitation;

Progress reporting. Output 5.1:

Evaluate the ability of institutions and the civil society to respond to the project objective;

Propose adaptation of the legislation;

Propose coordination, institutional adjustment and participation mechanisms to achieve project objectives;

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Identify and implement information dissemination mechanisms;

Identify and implement environmental education mechanisms;

Propose financial support mechanisms;

Propose mechanisms for control and follow-up of project's activities. Output 6.1:

Definition of the guidelines and selection criteria of priority action areas;

Regional workshop-seminar on choice of options for private and public sector, with community participation;

Definition of the components for the second phase;

Review of the objectives, outputs and activities for phase 2. Output 7.1:

Carry out environmental studies as well as fauna and flora inventories;

Gather information on mangrove biological characteristics;

Update thematic cartography;

Establishment and monitoring of experimental plots;

Carry out studies of factors which limit the development of mangroves;

Identification of mangrove ecosystem economic resources;

Evaluation of the economic cycle and of the methods of mangrove use and transformation;

Preparation of document of results;

Organize 4 workshops on resource use for traditional communities;

Design dissemination and teaching material;

Final report with results from the studies and workshops. Output 8.1:

Organize 2 workshops to redefine institutional and community conservation programs;

Prepare a document on agreed decision on institutional and community programs;

Define legal instruments and actions, additional financial resources for priority programs;

Perform trials and implement priority programs for rehabilitation and restoration of mangroves;

Preservation of representative mangrove ecosystem areas;

Design and prepare dissemination of teaching material;

Final report of results from studies and workshops. Output 9.1:

Pre-selection of production systems and zones to be evaluated for further development;

Carry out feasibility studies of pre-selected options;

Organize 3 workshops for the final selection of pilot production projects;

Define the legal instruments, actions and additional financial resources needed to implement productive pilot projects;

Initial implementation of pilot projects;

Conduct 2 regional workshops for information on and evaluation of productive options developed;

Implement a training program for technical personnel and communities;

Report on results of studies and workshops. Output 10.1:

Integrate results of each diagnosis component and holistic plan in action;

Define long-term and medium term objectives and strategies;

Preliminary formulation of the projects;

Edit final adjustments of the program;

Disseminate program results.

1.5.2 Planned ITTO and INDERENA inputs

Project PD 171/91 Rev. 2 (F) started its activities with Phase 1 on 1 March 1995, and had an effective duration of 15 months, i.e. 3 months more than the planned duration. The overall ITTO's financial contribution to this phase was US$905,596. Phase 2 – stage I started on 1 April 1997 and ended on 31 March 1998, with an ITTO's contribution of US$725.365.- to its cost. Phase 2 – stage II started in February 1999 and ended on 30 September 2000. ITTO contributed US$641,101.- to its cost. The

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contribution of the Government of Colombia to the total cost of the project was US$652,270. The different budget inputs by source for the two phases can be summarized as follows:

ITTO Budget Phase I (US$):

905,596

Government of Japan:

750,000

Government of the United States:

155,596

ITTO Budget Phase II - Stage I (US$):

725,365


725,365

ITTO Budget Phase II - Stage II (US$):

641,101


641,101

Government of Colombia (US$):

652,270

Total Budget (US$): 2,924,332

Personnel

36 person-month national coordinator (ITTO) 144 person-month area managing consultant (ITTO) 154 person-month specialized consultant (ITTO/INDERENA) 288 person-month area professionals (ITTO/INDERENA) 72 person-month support professionals (INDERENA) 12 person-month short-term consultancies (ITTO) 6 person-month international expert on mangroves (ITTO) 72 person-month secretaries (INDERENA) 72 person-month office assistants (INDERENA) 88 person-month laborers (ITTO/INDERENA) 98 person-month drivers - boat operators (ITTO/INDERENA) 144 person-month technicians (ITTO/INDERENA). Duty Travel

Domestic travel (ITTO/INDERENA) Travel expenses (ITTO/INDERENA). Sub-contracts

Airplane rental (ITTO) Office rent/utilities (ITTO) Information systems/network connection (ITTO/INDERENA) Dissemination of project results (ITTO/INDERENA) Experimental projects (ITTO/INDERENA). Capital items

Purchase of satellite imagery scanner; aerial photographs (ITTO) Water mobilization equipment (ITTO/INDERENA) 1 4x4 vehicle (ITTO) Field and laboratory equipment (ITTO/INDERENA) 3 microcomputers (ITTO/INDERENA). Consumable items

Office supplies (ITTO) Supplies for productive projects (ITTO) Fuel and lubricants (ITTO) Material for sampling (ITTO/INDERENA). Miscellaneous

20 regional workshops (ITTO/INDERENA) Dissemination training workshops (ITTO/INDERENA) Equipment operation and maintenance (ITTO)

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Publications (ITTO/INDERENA) Report presentation (ITTO/INDERENA) Various expenses (ITTO). Administration (ITTO/INDERENA).

1.6 ITTO/ITTA context




Objective (f) that aims at promoting and supporting "research and development with a view to improving forest management and efficiency of wood utilization as well as increasing the capacity to conserve and enhance other forest values in timber producing countries,



In relation to the Yokohama Action Plan: The Yokohama Action Plan recognizes that “in addition to their ecological and socio-economic importance, mangrove forests provide timber and timber-related products that are internationally traded”. The project complies with the Plan’s Goal 1 “Support activities to secure the tropical timber resource base” under Reforestation and Forest Management, in recommended Action 4 « Promote the conservation, rehabilitation and sustainable management of threatened forest ecosystems, inter alia mangroves, in collaboration with relevant organizations”.

2. EVALUATION SCOPE AND FOCUS

This evaluation was conducted in January 2004 at the request of the ITTO Secretariat following the decision by the Committee on Reforestation and Forest Management in its 30

th Session, in May 2002,

to carry out an ex-post evaluation of 5 projects, including PD 171/91 Rev. 2 (F), grouped under the theme “Mangroves”. The purpose, scope and focus of this ex-post evaluation are specified in the terms of reference as follows:

The overall role and contribution of the project in light of sectoral policies, development programs, priorities and requirements to achieve conservation, sustainable management and/or rehabilitation of mangroves in the country concerned.

The current status of mangroves within the project’s area of influence, the effectiveness of the project’s implementation and its effectiveness in promoting the conservation, sustainable management and/or rehabilitation of mangroves.

The contributions of the specific studies in various disciplines (inventory, ecology, socio-economy, management techniques, rehabilitation techniques, etc.) prepared by the project to the conservation, sustainable management and/or rehabilitation of mangroves in the project’s area of influence.

The results and potential impact of applied research conducted by the project (if any) and its contribution to the overall knowledge on mangroves in the region.

The impact of project activities on the livelihoods of target populations.

The effectiveness of dissemination of project results.

The overall post-project situation in the project’s area of influence.

The unexpected effects and impacts, either harmful or beneficial, and the reasons for their occurrences.

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The cost efficiency in the implementation of the project, including the technical, financial and managerial aspects.

Follow-up actions in order to enhance uptake of project results.

The project’s relative success or failure, including a summary of the key lessons learnt; and the identification of any issues or problems that should be taken into account in designing and implementing similar projects in the future.

3. EVALUATION METHODOLOGY

The evaluation was based on the criteria of design, efficiency, effectiveness, impacts and effects, and relevance to the ITTA framework, but the evaluation procedure was arranged according to the actual terms of reference. The different points of the terms of reference were evaluated from project related documents provided by ITTO Secretariat and the Implementing Agency, as well as interviews and field observations. The visit for the ex-post evaluation of the present project took place between 12-17 January 2004. There were four steps in the evaluation process. The first step was a preparatory stage consisting of a deskwork prior to the visit in Colombia. The analysis of the project concept and strategies in the project documents allowed acquiring a preliminary knowledge of the project. The second step was the briefing of the hosts on the first day of the visit, followed by discussions with the Project Coordinator and officials of the Ministry of Environment. The third step was a visit to project sites in the Caribbean Coast to discuss with regional project staff and community representatives, and to visit field activities (see Annex 1 for the program and the list of sites visited and persons consulted). The fourth step was a synthesis of the analysis of the information gathered and a debriefing meeting with the Coordinator of the project. The impressions from the field visit and the project's documents are the basis for this report.

4. FINDINGS AND LESSONS LEARNT

4.1 Assessment of project design

The project was elaborated before ITTO accumulated the current level of experience in project formulation, and it did not follow the standard provided by the Project Formulation Manual. For this reason, the project document shows technical flaws in the design of the proposal. An enhanced design would have shown how problems are related to their causes and effects, and how these related to specific objectives that the project would focus. The project did not benefit from the use of the Logical Framework Approach, as indeed no logical framework matrix was presented. It was too general in the formulation of its specific objectives and outputs, and lacked focus. The development objective looked like a specific objective. The specific objectives looked like outputs. The presentation of the strategy was also vague. Although the project document planned the development of participatory methods, it did not define who were the project's beneficiaries. The objectives and outputs lacked indicators and means of verification. This lack of indicators makes difficult such an evaluation exercise, as there is no reference-base for the assessments. A reliable evaluation of the achievements would depend on the clarity of the objectives and outputs, and on the choice of respective indicators. A full assessment of the effectiveness and impacts of the Project would require a broader survey and more time investment based on a monitoring and evaluation system. Design problems are exacerbated by the way the implementation of the project was phased into Phase 1 and Phase 2 with 2 stages. Phase 1, with one or two clear objectives and outputs, should have been used as an inception phase to establish the pre-conditions for a well-designed Phase 2 project. Reading of the reports on project's achievements allows to identify core threats to mangrove ecosystems owing to two key root causes: inadequate exploitation and lack of management plans.

4.2 Efficiency 4.2.1 Project implementation

Project implementation was carried out following the ITTO's rules and procedures. The Project had a Steering Committee which played an active role in its supervision. The implementation was a success in organizational and managerial aspects. Worth mentioning is the innovative model of outsourcing key project management responsibilities to specialized organizations, which increased the overall efficiency. The roles and agencies involved in the Project were separated in four different levels:

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project implementation (Ministry of Environment), project coordination (Project Coordinator and personnel), project execution (Ministry of Environment and ACOFORE) and project funds management (CONIF and ACOFORE) were distinct. This in turn allowed the Project Coordinator to fully play the role of link between the project, the Ministry of Environment and other key partners at regional (Caribbean and Pacific coasts) and departmental levels.

4.2.2 Input allocation

The project leveraged an important national co-funding effort. The Government's contribution to the Project's budget was 22.3% of the total cost. The financial contributions were disbursed by both ITTO and the Government of Colombia as planned. It is worth noting that funds allocated for activities in the Pacific coast were transferred and used for work in the Caribbean coast, given the decision of communities in the Pacific to withdraw from participation in the project during the last stage II. Such funds were utilized, with previous approval of ITTO, to expand activities already planned for the Caribbean as follows:

i) Expand rehabilitation of mangroves with increased number of hectares; ii) Increase the number of participating communities in the project; iii) Enhance research on mangroves; iv) Improve the quality of final project publications.

It should be noted that the decision for this transfer was not based on a detailed additional work plan. As this was an important transfer, ITTO would have required a reengineering of the project in order to adjust the project's work plan to the new situation.

4.2.3 Cost efficiency

Overall, the project was cost effective. It generated a significant knowledge base on the ecology and silviculture of mangroves and created institutional and core human capacities towards the long term sustainable management of mangrove resources in Colombia.

4.3 Effectiveness of the Project

4.3.1 Achievement of planned outputs

The project carried out its activities in two distinct geographical regions: the Caribbean Coast and the Pacific Coast. In spite of the lack of indicators in the project proposal regarding the outputs and the objectives, the evaluators found that it was effective in achieving most of its outputs in the Caribbean Coast. For the Pacific Coast, the project’s efforts were hampered during its last stage by the lack of cooperation from local communities due to collective demands of land ownership rights addressed to the Government of Colombia. Overall, the Project is commendable for its methodological contributions and its physical achievements in the restoration of degraded and dried mangrove forests. It contributed significantly in creating conditions in which sustainable management of mangroves of the Caribbean Coast and sustainable livelihoods for communities who depend and live near them can take place. It provided previously lacking basic information for management planning. It carried out an important awareness raising work which enhanced the integration of mangroves in the national policy processes, not just as forests but as ecosystems. In relation to the achievement of the outputs let us recall that in the way the Specific objectives were formulated, they would have constituted adequate Project's outputs. For this reason, in our assessment of the Project's achievements we have considered that what the proposal defined as the Specific objectives are indeed the Outputs. Output: The execution of the project within a participatory framework is prepared (cf. Specific objective 1) The approach used in the preparation and planning of project activities was participative with active involvement of not only project staff and consultants which worked as a team but also with the participation of local communities in the various phases of project execution and in carrying out field activities.

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A work plan was completed with inclusion of methodologies and scope as well as definition of coordination and participation roles and mechanisms for main project stakeholders. The mechanisms required for coordination among institutions and to secure participation of local communities for field work were determined as well as those for coordinating the preparation of diagnostics and for strategic planning. This objective was satisfactorily achieved. However, as noted previously evidenced for the circumstances surrounding the Pacific coast, it is important to allocate time and hold consultations with local community stakeholders at the onset of project concept definition and ideally, to secure commitment prior to project drafting and submission. Output: Field information regarding the structure, function and dynamics of mangrove ecosystems systematized and evaluated (cf. Specific objective 2) Four reports were produced on methodology used to guide the information gathering process on (i) social and economic aspects; (ii) biotic and abiotic elements;(iii) planning, zoning and management units and (iv) field guide for the study of mangrove structure and dynamics. The project gathered information from different literature sources (published and unpublished materials) and this compilation gave origin to a database on structure, function and dynamics of mangrove ecosystems and to a documentation center with 900 references on mangroves. The database (CDS-ISIS) along with the materials of the documentation center has been passed on to the Documentation Center of the Ministry of Environment. Annex 2 lists the publications and documentation produced by the project. Additionally, 8 B.Sc. thesis and 2 M.Sc. thesis were completed on different aspects of mangrove management and conservation. Mapping of mangrove with composition and distribution was carried out at a scale of 1:100.000 using radar images (INTERA) for the Pacific coast and satellite images (LANDSAT) for the Caribbean coast illustrating the situation in 1969,1996 and the temporal integration. Maps were also produced with preliminary zoning for sustainable management of mangroves in both coasts. Output: A detailed diagnosis on the state of the country's mangrove ecosystems performed (cf. Specific objective 3) Two publications were produced containing the diagnosis and preliminary zoning for mangrove management in the Caribbean and Pacific costs of Colombia. These documents were produced on the basis of the information gathered in the field and subsequently analyzed. Zoning identified areas for preservation, multiple use, recovery and production. Output: Studies on the structure, function, dynamics, genetic supply of mangrove ecosystems, priority economic and social processes advanced (cf. Specific objective 4) A structural analysis of mangrove ecosystems was carried out in the Pacific and Caribbean coasts. Transects were established for this purpose and were monitored for species composition, density, and relative dominance, among other variables. Permanent growth and yield sample plots were established to study mangrove dynamics and were periodically monitored for mangrove growth, natural regeneration and phenology. Wildlife presence, phytosanitary aspects along with biotic and abiotic parameters were also studied and resulted in two publications. Studies of the social and cultural aspects of communities living in mangrove areas and deriving their subsistence from them were carried out as well as of aspects related to the commerce of mangrove forest products. Output: Legal, institutional, participation, information and financing mechanisms and channels to guarantee the execution and continuity of project created and implemented (cf. Specific objective 5) A proposal was elaborated on the mechanisms and legal aspects of community and institutional participation in mangrove conservation and management. Aspects related to awareness raising and information dissemination were also considered and compiled into a document on diagnostics and strategic planning.

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The project was successful in mobilizing communities in mangrove management and development of economically and environmentally sustainable activities which continue to be carried out after project completion. The project facilitated the conclusion of agreements between the Project executing agency and the Local Communities through Cooperatives and/or Associations (created specifically for the purpose of mangrove management or strengthening existing ones for this purpose) as well as agreements between such local cooperatives and the Regional Autonomous Corporations which are charged with the mandate of managing natural resources in Colombia. The project was instrumental in the development of policy and coordination processes and for the adoption of legislative instruments. As a result of the project the following instruments were enacted:

Resolution 1602 of 1995 on measure to ensure sustainability of mangroves in Colombia;

Resolution 20 of 1996 clarifying Resolution 1602 of 1995 and on other provisions;

Resolution 924 of 1997 establishing terms of reference for studies on the state of mangroves and proposals for their zoning;

Resolution 257 of 1997 establishing minimal control measures to ensure sustainability of mangroves in Colombia;

Resolution 1694 of 2000 established to approve and evaluate mangrove diagnostics and zoning proposals by the Regional Autonomous Corporations;

National Mangrove Program; Strategic Guidelines for Conservation and Sustainable Use of Mangroves in Colombia; Final Zoning Plans by the Regional Autonomous Corporations.

Additionally, close links and integration of mangroves related activities were effected in the following instruments:

National Policy on Coastal Areas;

National Forest Development Plan;

Green Plan - Strategic Plan for Forest Restoration and Establishment in Colombia, Ministry of Environment.

Based on the results of the project, the above instruments were crucial to consolidate and expand mangrove management and conservation in Colombia, which continue to be actively implemented. Close and regular coordination with different levels of Government decision making bodies in Colombia and local communities is in place through the designation of specific focal points or contact persons in:

Ministry of Environment: Special Unit of the National Parks System (Via Parque Salamanca, Parque Nacional Natural de Corales del Rosario y San Bernardo, Sanctuario Fauna y Flora el Corchal « Mono Hernandez » (Delta Canal del Dique);

Regional Autonomous Corporations;

Relations have been established and also continue to be in place with Research Institutes (of the Ministry of Environment, e.g. Instituto de Investigaciones Marinas y Costeras-INVEMAR), Instituto de Investigación de Recursos Biológicos Alexander Von Humboldt-IAVH and others in Colombia.

Output: A holistic plan for immediate action for phase 2 of the project prepared, agreed upon and defined (cf. Specific objective 6) A preliminary strategic plan for sustainable management of mangroves was prepared on the basis of the diagnostics carried out. The main components for an immediate integrated action plan for implementation in Phase 2 of the project were also drafted. This plan focused on national and regional

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policy development as regards mangrove resources, zoning of the Colombian mangroves to facilitate land-use planning, determining the critically degraded areas for immediate restoration through socially and environmentally sustainable activities, and the formulation and implementation of community-based pilot projects to address these issues. The plan was subsequently detailed and adopted in consultation with the various project stakeholders. Output: Studies carried out in the Caribbean and Pacific which will increase knowledge on: i) the structure, function, dynamics and genetics of mangroves; and ii) the economic and social processes (cf. Specific objective 7) Through the establishment of permanent growth plots a significant increase in the knowledge of mangrove dynamics was accomplished. Data on growth, natural regeneration, phenology were generated. Mangrove water monitoring stations were also established and periodically monitored (temperature, salinity, pH, dissolved oxygen and others) to determine the influence of such factors on mangrove dynamics. A number of technical reports were produced on the analysis of parameters carried out as well as a book « Hacia la Recuperación de los Manglares del Caribe de Colombia » with its Chapter 4 dedicated to the dynamics of mangrove growth. Training was ministered to staff of the regional autonomous corporations and representatives of local communities on the establishment of permanent growth plots and data collection. Output: Priority actions to guarantee the conservation and rehabilitation of the mangrove ecosystems carried (cf. Specific objective 8) Pilot reforestation plots were established with active participation of local communities and gave origin to guidelines for mangrove rehabilitation in degraded areas, several technical reports and manuals on rehabilitation and natural regeneration on mangroves, as well as a draft proposal for a national policy for mangroves for adoption by the Ministry of Environment. A National Program on Mangroves was subsequently adopted. The Strategic Guidelines for Conservation and Sustainable Use of Mangroves in Colombia were also drafted, then widely discussed and enhanced by stakeholders, after which they were finalized and published. These guidelines consist of 12 strategies for implementation in Colombia under the direction of the Ministry of the Environment. Twenty community mangrove nurseries were established and produced about 1,300,000 mangrove seedlings (of which 300,000 were extracted from natural regeneration processes) used to reforest 460 hectares of degraded areas (350 hectares) and of new mud flats (110 hectares). In the process of rehabilitation, local communities opened a total of 15,000 linear meters of channels in order to rehabilitate mangrove forests devoid of adequate water flows due to human interference. Output: A participation process for the implementation, dissemination and evaluation of productive alternatives for the socio-economic development of the local communities implemented (cf. Specific objective 9) Five Pilot Productive Projects were formulated jointly with the local communities and implemented by these, as follows: “Community Shrimp Farming”, “Community Fish Farming”, “Agroforestry”, “Water Channel Dredging” and “Mangrove Restoration”. For the implementation of the pilot projects specific agreements were concluded between the community cooperatives and the regional autonomous corporations. Training of some 40 persons from local communities and government corporations on aspects related to the productive activities of the pilot projects was accomplished. Output: Formulation and definition of an investment program for the conservation and sustainable management of mangroves in Colombia (cf. Specific objective 10) A portfolio of mangrove projects was prepared with the purpose of generating potential interest and funding towards continuation of project activities and implementation of priority actions for management and conservation of mangroves.

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4.3.2 Effectiveness in promoting the conservation, sustainable management and/or rehabilitation of mangroves

The best way to assess the effectiveness of the project in promoting conservation, sustainable management and/or rehabilitation of mangroves is to measure its success in putting in place the processes that support this promotion. Based on the goals of the project, the evaluators chose four processes and respective indicators for this assessment. The results are described as follows: Problem analysis and objective definition

Indicator (i): Stakeholders involved in problem analysis and objectives setting The methodological framework used for project elaboration and implementation was that of continuous consultation and active participation of stakeholders which included institutions (government at different levels, universities and professional organizations) and local communities and their inhabitants that live in mangrove areas or their vicinities. Indicator (ii): Signs of stakeholders' endorsement of the objectives Given that the project’s main development objective aimed at ensuring that the coastal inhabitants mangroves would be the prime beneficiaries, the project counted with general endorsement of such communities from the onset. Nevertheless, it is worth noting that the unforeseen circumstances in the Pacific coast point to the need to allow sufficient time for consultations in project design and for securing agreement as concretely as possible and in acceptable modalities from such communities. The Government of Colombia, through the Ministry of Environment, in its capacity of project implementing agency has been actively involved in the concept and design of the project and its objectives. Indicator (iii): Signs of political commitment High level of political commitment was achieved through the Ministry of Environment, at the national level and through its Regional Autonomous Corporations. A number of legal and guidance instruments were enacted and government personnel assigned to deal with the conservation and management of mangroves as a result of the project. Regional Autonomous Corporations were officially assigned responsibility for elaboration of mangrove final zoning plans on the basis of the preliminary diagnostics and zoning formulated by the project, eight of which have been completed and officially approved by the Ministry of Environment (four remain to be completed). New protected areas comprising mangrove ecosystems were also established, such as the Wildlife and Flora Sanctuary "El Corchal Mono Hernandez" (Delta Canal del Dique). Development of strategic framework

Indicator (i): Number and type of consultations among stakeholders A number of consultations of different types and nature with various stakeholder groups have taken place during the course of project. National and local workshops were held as well as regular meetings. Indicator (ii): Workshops organized at various levels A total of 33 workshops (25 in the Pacific coast and 8 in the Caribbean coast) held with local organizations and communities to uptake traditional knowledge in preparation for fieldwork during Phase 1 of the project. At the same time training was delivered to local communities on methodology for data and information collection. Four workshops-seminars were held in which representatives of the Regional Autonomous Corporations, responsible for the management of mangroves took part in discussions on the diagnosis. Indicator (iii): Stakeholders committed to project implementation and degree of their commitment Local communities participated in all field activities including mangrove rehabilitation as well as were directly involved in the pilot productive projects. They also participated in awareness and community education activities on mangrove resources. The project’s operational plan in Phase II was also

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designed in close consultation with local communities and other stakeholders. The high degree of commitment to project implementation is clearly reflected by the results achieved and project impacts. The post-project situation pertaining to mangrove management in Colombia demonstrates a satisfactory level of infra-structure (both institutionally and human resources) and instruments (guidelines, programs, legislation and others) as well as of local community sustainability (in terms of livelihoods) derived from productive mangrove projects (notably community nurseries). Indicator (iv): Process mechanisms established to follow-up the activities Institutionally, the Ministry of Environment, through the Directorate General of Ecosystems, has established a mangrove unit which is internally responsible for all aspects concerning mangroves. Similarly at the regional level, the Regional Autonomous Corporation has assigned staff to be responsible for mangroves and oversee implementation of management plans. The project served as a benchmark for the Ministry of Environment as it demonstrated how a project can effectively contribute to the construction of a national policy, in this case of mangroves, based on local and regional realities. INVEMAR, as a research institute linked to the Ministry of Environment, has also been involved in mangrove research and management. It established two mangrove integrated management units (Golfo de Morrosquillo in the Caribbean and Guapí-Iscuandé in the Pacific) which were based on the zoning data generated by the project. Financially, a portfolio of mangrove projects was elaborated, aiming at generating further opportunities for sustainability after project completion. Support has been obtained bilaterally from the Inter-American Development Bank (IDB) following project completion for elaboration of final zoning plans and rehabilitation of mangroves by three Caribbean Regional Autonomous Corporations (CARDIQUE, CARSUCRE and CVS; 50 hectares each). The IDB Project was financed from December 2001 to December 2002. Inter-sectoral collaboration

Indicator (i): Agencies involved, type and degree of involvement, missing agencies Project execution was carried out casting a wide net for collaborative and participatory arrangements. Universities and research centers contributed information and in the convening of seminars and events on mangroves (INVEMAR, Colombian Commission of Oceanography, Geographic Institute, Center for Pollution Control of the Pacific, Tadeo Lozano University, Institute for Environmental Research of the Pacific and others). Government regional autonomous corporations contributed technical expertise in all aspects of project implementation. Ministries of Agriculture and Rural Development, External Trade, Economic Development; the Department of National Planning, the National Corporation for Forestry Research and Development collaborated together with the Ministry of Environment in the formulation of the National Plan for Forestry Development (2000) which comprises mangroves as integral part of the Plan. Indicator (ii): joint activities undertaken with agencies of other sectors No joint activities were undertaken in the framework of the project. Changes in the implementing agency services

Indicator: (i): organizational arrangements supportive of policy, project implementation and follow-up The Ministry of Environment has established a mangrove unit within the Directorate General of Ecosystems and the regional autonomous corporations have designated staff assigned to oversee mangrove management at the regional and local levels. Indicator (ii): Evidence of value added of new organizational changes The above arrangements were crucial in supporting the formulation and adoption of mangrove policies and instruments and for the sustainability of project accomplishments and their further enhancement. Additionally they reflect a higher level of government awareness and recognition of the values and importance of mangrove ecosystems for sustainable development in Colombia.

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Indicator (iii): resources committed to the organizational changes The human resources mentioned above and corresponding costs were incurred and continued to be covered by the Ministry of Environment.

4.3.3 The overall role and contribution of the project to achieve conservation, sustainable management and/or rehabilitation of mangroves in the country concerned.

The project has been a major benchmark in the conservation and management of mangroves in Colombia. It increased all aspects of scientific knowledge on mangroves as well as provided the first concerted effort to enhance their status through a combination of sustainable management and rehabilitation with direct involvement of local communities.

Achievement of specific objective

As it was mentioned earlier, the project document described 10 Specific objectives which the evaluators considered to be outputs. They consider that the Development objective “to generate more productive alternatives which are socially and environmentally appropriate for the sustainable use of mangrove ecosystems, while guaranteeing their conservation and ensuring that the coastal inhabitants will be the prime beneficiaries", in the way it was defined, should be the Specific objective. Overall, this Specific objective can be considered to have been reached as the project was a success in generating productive alternatives for the sustainable use of mangroves. This success was reached through the achievement of the outputs. Phase 1 of the project focused on carrying out strategic diagnosis and planning executed within a framework of ample participation of stakeholders. This phase also was successful in the systematization and evaluation of information regarding the structure, function and dynamics of mangrove ecosystems. It performed a detailed diagnosis on the state of the country's mangrove ecosystems and advanced knowledge of mangroves and their economic and social aspects in Colombia. Based on a plan drawn up for immediate action, phase 2 of the project focused in the implementation of a participatory process for the conservation and rehabilitation of mangroves and the development of productive pilot projects. At the same time, it created the legal and institutional capacities to guarantee project execution and continuity of actions in order to achieve its development objective. In essence, it achieved its specific objectives during phase 2 through main components: dynamics and growth, monitoring of mangrove water quality, natural regeneration and phenology, pilot productive projects, rehabilitation of degraded areas and guidelines for conservation and sustainable use.

Achievement of the development objective As recalled above, the way the Development objective was formulated made it look like a Specific objective. From the project document on page 11 (English version), a more appropriate Development objective would have been "To strengthen the sustainable management and conservation of mangrove ecosystems". If this is accepted, then the project made a considerable contribution to such a goal. It has contributed significantly to creating conditions in which sustainable mangrove management and sustainable livelihoods of local communities can take place. It provided basic information and carried out an awareness raising work which enhanced the integration of mangroves not just as forests, but as ecosystems as well in the national policy processes. The evaluators are convinced that the project contributed even more than what was documented. Its reporting weakness has been to concentrate one type of indicators, i.e. the technical indicators such as the areas planted and the length of canals, which do not reflect all its effectiveness with respect to social, economic and environmental dimensions.

4.3.4 The current status of mangroves within the project’s area of influence

Mangrove rehabilitation has been successfully carried out through a community and stakeholder participatory approach, increasing mangrove coverage in Colombia. Research, management instruments and legislation have also served to enhance the present status of mangroves as direct result of project implementation.

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4.3.5 The contributions of the specific studies in various disciplines

The project generated an important baseline of knowledge not previously available on mangroves in Colombia and as such filled key gaps in information and scientific data required for sound planning and management. Studies carried out by the project dealt with dynamics, structure, rehabilitation methods, social, cultural and economic aspects of mangrove utilization as well as the development of alternative productive pilot projects for sustainable use.

4.3.6 The effectiveness of dissemination of project results

The project generated a significant number of publications, technical and for the general public. A complete lists appears in Annex 2. Additional audio-visual materials were produced (slides, videos). Such materials and publications were widely disseminated nationally and internationally. The experience of Colombia has gained much acceptance throughout the Caribbean region and has contributed to the formulation of ITTO’s mangrove work plan.

4.3.7 Follow-up actions in order to enhance uptake of project results

The measures undertaken by the Ministry of Environment in the form of resolutions and the responsibilities assigned to the Regional Autonomous Corporations in the elaboration of final mangrove zoning plans and subsequent development of mangrove management plans are indicators of follow-up actions taken to ensure continuity and maximize uptake of project results. Similarly, the elaboration and approval of another ITTO Project on management plans for mangroves of Colombia (Project PD 60/01 Rev.1 (F) indicates that results from the present project were instrumental as a baseline for the conservation and the establishment of management as a long-term tool in Colombia for the sustainability of mangrove ecosystems.

4.4 Impacts and effects 4.4.1 The results and potential impact of applied research and its contribution to the overall

knowledge on mangroves in the region

Throughout project implementation, progress and results achieved with research and rehabilitation methodologies were shared in the Caribbean through visits between countries implementing mangrove programs (Panama, Ecuador and Honduras). As mentioned previously, academic work (undergraduate and graduate thesis) was also possible through the generation of data and methods developed by the project.

4.4.2 The impact of project activities on the livelihoods of target populations

Livelihoods of communities living in mangroves were improved not only through enhanced financial gains from the different productive pilot projects (for instance 1/3 of additional income is generated from revenue of community mangrove nurseries) but also from raising their profile within local social settings. This opened up new windows of opportunities for income generation through partnerships with local governments and town halls and also with private sector companies.

4.4.3 The overall post-project situation in the project’s area of influence

Overall, a total of 460 hectares of degraded wetlands were planted with mangroves. The project’s results and experiences were documented and widely disseminated throughout Colombia and Latin America. The knowledge base on mangroves has significantly been enhanced serving as a basis to develop and implement policies and management plans for mangroves in Colombia. Training in the technical aspects of mangrove management and products processing for the communities was successful and as a result of such Pilot Productive Projects, local communities in the Caribbean continue to carry out these productive activities and have improved their income and livelihoods. However although the overall post-project situation is good, an important concern is the extent to which the field assets such as desalinization canals can be sustainably maintained.

4.4.4 The unexpected effects and impacts and the reasons for their occurrences

The main unexpected development refer to planned activities contemplated for the Pacific during the project’s phase 2, stage II. These could not be executed due to the unforeseen decision of African-

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Colombian leaders of Pacific communities to discontinue project participation in light of land tenure issues with the Government of Colombia.

4.4.5 Contribution to the ITTA objectives and ITTO Action Plan




Objective (f) that aims at promoting and supporting "research and development with a view to improving forest management and efficiency of wood utilization as well as increasing the capacity to conserve and enhance other forest values in timber producing countries. Objective (j) that aims at encouraging "members to support and develop industrial and tropical timber reforestation and forest management activities as well as rehabilitation of degraded forest land, with regard for the interest of local communities dependent on forest resources.



Objective (l) that aims at encouraging "members to develop national policies aimed at sustainable utilization and conservation of timber producing forests and their genetic resources and maintaining the ecological balance in the regions concerned, in the context of tropical timber trade". In relation to the Yokohama Action Plan: The Yokohama Action Plan recognizes that “in addition to their ecological and socio-economic importance, mangrove forests provide timber and timber-related products that are internationally traded”. The project complies with the Plan’s Goal 1 “Support activities to secure the tropical timber resource base” under Reforestation and Forest Management, in recommended Action 4 « Promote the conservation, rehabilitation and sustainable management of threatened forest ecosystems, inter alia mangroves, in collaboration with relevant organizations”. The project is in compliance with and can be considered as a significant contribution to the implementation of the ITTO Mangrove Work plan 2002-2006 as it crosscuts and addresses all the 6 selected areas of activities, as follows: Area 1: “Conservation and sustainable management”:

One of the stated project’s specific objectives is to carry out priority actions intended to guarantee the conservation and rehabilitation of the mangrove ecosystems, with emphasis on the preservation and recovery of the diversity, genetic variability and natural productivity of the mangroves. It helped gathering the data for achieving this objective which is in line wit ITTO's Mangrove Work plan. Area 2: “Mangrove information and awareness”:

The project helped gather the information on different aspects of mangrove resources, use and conservation. It contributed to raising the awareness of decision-makers and the general public on importance of mangrove forests in Colombia. Area 3: “Socioeconomic aspects”:

The project conducted studies and concrete field activities on the socio-economic aspects relating to mangrove resource use. Area 4: “Mangrove ecosystem functions and health”:

The project assisted in studying the status and the conditions of mangrove forests. The data gathered may provide a baseline allowing monitoring the health of Colombia’s mangrove ecosystems.

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Area 5: “Cooperation and capacity building”:

The project contributed to supporting the relations between key stakeholders concerned with mangrove resources through the implementation processes it developed. It also carried out capacity building activities for its staff and for the beneficiary communities. Area 6 “Policies and legislation”:

The project created an awareness on the importance of mangrove forest resources, which influenced the national policy processes regarding mangrove conservation and sustainable management.

4.5 Successes, failures, key lessons learnt

4.5.1 Successes

The most important successes are the following:

The process approach allowed correcting the weaknesses of the initial project design. It allowed integrating institutions, informing and contributing to national policy processes.

The project is a model not only of how to implement national policies, but also of how to link project to national policy development processes.

Close and regular coordination with different levels of Government decision making bodies in Colombia and local communities, through the designation of specific focal points or contact persons in: Ministry of Environment, Special Unit of the National Parks System (Via Parque Salamanca, Parque Nacional Natural de Corales del Rosario y San Bernardo, Sanctuario Fauna y Flora el Corchal « Mono Hernandez » (Delta Canal del Dique); Regional Autonomous Corporations; Research Institutes (of the Ministry of Environment, e.g. Instituto de Ivestigaciones Marinas y Costeras-INVEMAR), Instituto de Investigación de Recursos Biológicos Alexander Von Humboldt-IAVH and others) and local communities.

Multidisciplinary approach to project staff and the work of project consultants.

Creation of capacities and implementation of priority activities to improve mangrove management and community livelihoods, and to integrate stakeholders at regional and national levels.

Raising the awareness of the communities on the economic potential of mangrove activities, other than direct exploitation of forest resources.

Enhancement of the role of these communities in mangrove management. Mobilizing participation of local communities who’s livelihood are intrinsically dependent on mangroves in the various project phases, but particularly in the elaboration of mangrove assessments and zoning of mangroves and in rehabilitation of mangroves (seedling production, planting, channels opening and maintenance).

Institutionalization of community groups in the form of cooperatives in order to carry forward productive activities.

There is a potential long term impact on community income improvement.

Many members of the staff of the Ministry of Environment and the Autonomous Corporations have strengthened their understanding of mangroves as a result of their involvement in the activities of the Project.

Contribution of scientific and technical information in support of the creation and establishment of the first RAMSAR site in Colombia through a joint proposal with the Ministry of Environment (Delta- Estuario de Rio Magdalena), which supported Colombia’s obligations under the RAMSAR Convention, extending the conservation on mangroves found therein.

4.5.2 Weaknesses

No clear strategy for the Pacific Region, in light of the problems encountered during phase 2, stage II of project implementation.

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No monitoring system to monitor and evaluate project activities, and to monitor and evaluate environmental and socio-economic impacts.

The link to the integrated coastal zone policy should be strengthened as far as active multi-sectoral implementation is concerned.

The project proposal did not propose a phasing out approach and a sustainability plan, and these aspects have not been looked at during the implementation.

4.5.3 The lessons learnt

The key lessons learnt are:

Mangrove rehabilitation is a reality in Colombia and can be successfully carried out throughout the Caribbean coast with close participation of local communities.

Rehabilitation techniques will depend on local site conditions, characteristics and financial feasibility.

Community mobilization allowed direct integration of expertise and knowledge from local communities into assessments and zoning carried out, disseminate the importance of mangrove forests to the communities as a whole and enhance commitment to mangrove conservation at the local level.

The innovative model of outsourcing key project management responsibilities to specialized organizations increased the overall efficiency. The good articulation between Project coordination by a Government service, implementation by a contractor, and management of funds by an independent third party was an important factor for success.

Conclusion of agreements between the Project and communities allowed the definition of roles and expectations regarding project benefits (including remuneration of activities) to be clearly stated and to enhance self-esteem of local community by contributing formally to the conservation and management of local mangrove systems.

Additionally, such agreements contributed to the formal organization of local communities in the broader context of their relations with local authorities and other segments of society in their region, opening up new and additional possibilities for economic activities, such as fish farming (ponds of tilapia), additional contracts for the sale of mangrove seedlings to local authorities, private companies (Petrolera (OCENSA)-San Antero, Cispatá, Caimanera) autonomous regional corporations and private individuals Coordination efforts were fundamental to allow that:

Products generated from the project (assessment, mapping and zoning information) be used as the basis to formulate and implement national policy on mangroves, mangrove management plans (on-going new project phase), sustainable management and restoration of mangroves by Local Caribbean Communities;

Institutional basis be established to carry out conservation and management of mangroves in Colombia as evidenced by the designation of personnel to be specifically responsible for mangroves in the Ministry of Environment and in Regional Autonomous Corporations (Caribbean : CORPOURABA, CVS, CARSUCRE, CARDIQUE, CRA, CORPAMAG, CORPOGUAJIRA and CORALINA; Pacific : CORPONARIÑO, CRC,CVC and CODECHOCO);

National Working Group on Coastal Areas and Wetlands be established as a multidisciplinary task force for coordination, including mangrove ecosystems.

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PART III. CONCLUSIONS AND RECOMMENDATIONS

1. CONCLUSIONS 1.1 Implementation efficiency and project effectiveness

The project implementation was carried out following the ITTO's rules and procedures. Both the ITTO and the Colombian Government complied with their obligations of providing their respective inputs. The implementation was a success in organizational and managerial aspects. The roles and agencies involved in the Project were separated in four different levels: project implementation (Ministry of Environment), project coordination (Project Coordinator and personnel), project execution (Ministry of Environment and ACOFORE) and project funds management (CONIF and ACOFORE) were distinct. This in turn allowed the Project Coordinator to fully play the role of link between the project, the Ministry of Environment and other key partners at regional (Caribbean and Pacific coasts) and departmental levels. "Project implementation" is used in a broad sense to take into account the Ministry´s overall role in national coordination and its responsibility vis-à-vis the international cooperation partners (ITTO in this case). "Project execution" refers to the day to day project management; it was carried out by the Ministry of Environment during phase I and by ACOFORE during phase II. The project carried out its activities in two distinct geographical regions: the Caribbean Coast and the Pacific Coast. In spite of the lack of indicators in the project proposal regarding the outputs and the objectives, the evaluators found that it was effective in achieving most of its outputs in the Caribbean Coast. For the Pacific Coast, the project’s efforts were hampered during its last stage by the lack of cooperation from local communities due to collective demands of land ownership rights addressed to the Government of Colombia. Overall, the Project is commendable for its methodological contributions and its physical achievements in the restoration of degraded and dried mangrove forests. It contributed significantly in creating conditions in which sustainable management of mangroves of the Caribbean Coast and sustainable livelihoods for communities who depend and live near them can take place. It provided previously lacking basic information for management planning. It carried out an important awareness raising work which enhanced the integration of mangroves in the national policy processes, not just as forests but as ecosystems.

1.2 Overall assessment of successes and failures

The project was successful in meeting its main objective to generate socially and environmentally appropriate productive alternatives for the sustainable use of the Colombian mangroves while simultaneously guaranteeing their conservation. In accordance with the project document, all planned activities for the first phase and for stages I & II of the second phase were successfully carried out, with the exception of those planned for the Pacific coast during stage II, for the reasons outlined in item 6.4. Overall, the project has significantly contributed to the knowledge base on the ecology and silviculture of mangroves and towards the sustainable integrated management of mangrove resources. It has created an awareness of the potential benefits of implementing sustainable mangrove management, reforestation and integrated production activities among the rural communities living in and around the mangrove forests in Colombia. In addition, the project’s activities have improved the livelihoods of the local communities in the region in the short to medium term. The project’s results and experiences were documented and widely disseminated throughout Colombia and Latin America. The project has also significantly contributed to the development and adoption of policy and planning instruments on mangrove conservation and management in Colombia.

1.3 Alternative design of the project

The project was elaborated before ITTO accumulated the current level of experience in project formulation, and it did not follow the standard provided by the Project formulation Manual. For this reason, the project document shows technical flaws in the design of the proposal. An enhanced

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designed would have shown how problems are related to their causes and effects, and how these related to specific objectives that the project would focus. The project did not benefit from the use of the Logical Framework Approach, as indeed no logical framework matrix was presented. It was too general in the formulation of its specific objectives and outputs, and lacked focus. The presentation of the strategy was also vague. The objectives and outputs lacked indicators and means of verification. The absence of indicators is therefore an important cause of concern for the present evaluation exercise, as it provides no reference-base for the assessment exercise. A reliable evaluation of the achievements would depend on the quality of description of objectives and outputs, and on the choice of respective indicators. A full assessment of the effectiveness and impact of the Project would require a broader survey and more time investment based on a monitoring and evaluation system.

2. RECOMMENDATIONS

Based on the findings of the evaluation, the following recommendations have been drawn:

To the executing agency of Project PD 60/01 Rev.1 (F) and that of future mangrove projects in Colombia:

There is an urgent need to elaborate a monitoring system and a systematic baseline to measure the ecological and the socio-economic impacts of the project and other activities on the coastal mangrove forests. To measure this wide range of impacts, a broad range of monitoring indicators is required.

The experience of the project should be synthesized in a summary publication so that it can be shared nationally and internationally, as well as in the internet.

Design a strategy for sustainable commercial mangrove tree seedlings production and of devolution of nurseries to the communities.

Explore new approaches for long-term sustainability and potential partnerships with private sectors in areas of synergies such as ecotourism as means of resource generation and valorization of mangrove ecosystems.

To the Ministry of Environment, Colombia:

There is a need to work out a strategy for the Pacific Coast and to resume the mangrove management and conservation activities there.

There is need to strengthen inter-sectoral and ministerial coordination for the full implementation of the integrated coastal zone management policy.

In order to continue to expand project results, consideration should be given to the formulation of a new project on mangrove conservation and management in which the recommendations above addressed to the executing agency are taken into account.

To ITTO:

Mid-course mechanisms for project proposal documents presenting important weaknesses are needed.

For phased projects, there should be an end of phase evaluation before starting a new phase, which should be carried out expeditiously and be forecasted in the original project document.

The proposal documents should spell out clearly the implementation processes to be developed.

For projects where social and cultural factors must be taken into account the following elements should be considered to reach expected results: (a) a pre-project may be outlined in order to design a project based on the participation of communities and multi-disciplinary experts,(b) the project executing agency should consult local communities prior to project submission and ensure that consent and support are given to project implementation and (c) forecast in the project document a

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specific activity to be executed at the onset of the project to detail participation of local communities and site activities.

Projects to be approved should clearly be linked to national policies and programs and results should be communicated to relevant international organizations so that their sustainability and impact can be maximized.

Project ex-post evaluations should be carried out soon enough after completion so that institutional memory can be used, but also taking into account the minimum time to achieve impacts.

ACKNOWLEDGEMENTS

The evaluators enjoyed a warm hospitality during their stay in Colombia. For this they wish to express their sincere thanks to Mr. Heliodoro Sánchez, National Project Coordinator, for his kind assistance in organizing the visit and for his availability to answer their questions and accompany them to the field visit; to Ms. Luz Stella Pulido, Ministry of Environment, for her assistance, and Giovanni A. Ulloa D. and Clara Sierra, as well as other field staff and the representatives of communities for providing the information on the project’s activities. The evaluators also express their gratitude for the support received from the staff of ITTO secretariat during this assignment.

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ANNEX 1

Evaluation Program and list of persons and institutions consulted

Program for Evaluation – 12 to 18 January 2004

BOGOTÁ Monday, 12 January 2004: Arrival of evaluators at Bogotá in the evening

Tuesday, 13 January 2004: meeting with national project coordinator, Mr. Heliodoro Sánchez and

representative of the Ministry of Environment, Ms. Luz Stella Pulido at the offices of the special unit for protected areas of the Ministry of Environment. Overall project presentation by hosts, revision of documentation and discussion based on specific points proposed by evaluators. Wednesday, 14 January 2004:

MORNING: meeting with officials (Director, Special Advisor and mangrove unit staff ) of the Dirección General de Ecosistemas at the main offices of the Ministry of Environment. Perspectives from the implementing agency. AFTERNOON: meeting with the team of project consultants at the offices of the special unit for protected areas. CARTAGENA Thursday, 15 January 2004:

MORNING: meeting with staff of the regional autonomous corporations of CARDIQUE and CARSUCRE implementing current project PD 60-01(F) Manejo Sostenible y Restauración de los Manglares del Caribe de Colombia. Also participated Director of National Park Corales del Rosario y San Bernardo, representatives of local communities, project consultants and representative of the Ministry of Environment. AFTERNOON: visit to project sites:

- Community mangrove nursery of Pasacaballos, Canal del Dique, Asociación Agrodique (community leader: Mr. Pablo Gimenez)

- Mangrove rehabilitation through channel openings and planting in Punta de Barbecoas (community leader: Mr.Luis Rodriguez)

- Reforestation in Caño Lequerica, Caño Matunilla, and Canal del Dique (mud flats). SANTA MARTA Friday, 16 January 2004:

MORNING: departure to Vía Parque Isla de Salamanca. Visit to community nursery of Association PROCLARIN (legal representative: Julio Piaz and accompanied by Andrés N.) AFTERNOON: visit to three community nurseries in the village of Ciénaga Grande and to rehabilitation site in Ciénaga del Sevillano (channels and planting). Meeting with of inhabitants of the community of Barrio Bajo Ciénaga: legal representative, Mr. Fernando Figueroa) Saturday, 17 January 2004:

MORNING: drafting of summary report with preliminary findings with its presentation to the national project coordinator followed by discussion of findings. AFTERNOON: departure Santa Marta to Bogotá Sunday, 18 January 2004:

Departure Bogotá to Panama

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Persons and institutions consulted PROJECT COORDINATION

Heliodoro Sanchez Coordinador Nacional Proyecto Manglares CONIF-Ministerio de Medio Ambiente Apartado Aereo 120273 Bogotá Tel : + 57-1-2585798/2433091 Fax :+57-1-2830620 Cel :+57-315-3446958 Email : [email protected] [email protected]

Flor Edilma Páez Parra Ingeniera Florestal Asistente Coordinador Nacional Bogotá Tel : + 57-1-2830620/4358559 Email : [email protected] [email protected]

MINISTRY OF ENVIRONMENT

Luz Stella Pulido Ministerio de Medio Ambiente, Vivienda y Desarrollo Territorial Bogotá Tel : +57-1-4160838 (residence) Cel :+57-310-5753005

Maria Rivera Manejo de Humedales e implementación de la Convención RAMSAR Dirección de Ecosistemas Ministerio de Medio Ambiente, Vivienda y Desarrollo Territorial Tel : +57-1-3323434, ext. 411 Email : [email protected]

Fabian Navarrete Asesor, Dirección de Ecosistemas Ministerio de Medio Ambiente, Vivienda y Desarrollo Territorial

Dalila Caicedo Herrera Bióloga Marina (formerly responsible for mangroves at Ministry of Environment) Cel :+57-1-315-3414156 Email : [email protected] [email protected]

REGIONAL AND LOCAL REPRESENTATIVES

Giovanni A.Ulloa D Biólogo Laguna de San Lazaro, Torre 1 1213 Cartagena Tel :+57-6665965

Héctor Arsenio Tavera Escobar Ingeniero Florestal Tel: +57-5-6655317 Email: [email protected]

Clara Lucia Sierra Bióloga Directora, Parque Nacional Natural Corales del Rosario y San Bernardo Email : [email protected]

Pablo Jimenez Castro Técnico Agronomo Legal Representative Agrodique Community of Pasacaballos Tel:+57-5-6686679

Olga Cicília Ramirez Oconepo CARDIQUE Gestión ambiental Tel :+57-5-6694666 Email : [email protected]

Luiz Rodriguez Community Leader, Punta de Barbecoas and Legal Representative of Boca Serrada

Alejandro Zamora Guzmán Biólogo Marino CARSUCRE, Tolú, Sucre Tel :+57-5-2885290 Email : [email protected]

Fernando Figueroa Legal representative Community of Barrio Bajo Ciénaga

mailto:[email protected]











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Oscar Gómez Parga Ingeniero Florestal Subdirector de Gestión Ambiental CARDIQUE Tel : +57-5-6694059/6694062/6694666 Email :[email protected]

Andrés N. Community nursery Association PROCLARIN

Jaime E. Romero O. Ingeniero Geólogo CARDIQUE Tel : +57-56694059 Email : [email protected]

PROJECT CONSULTANT TEAM

Ricardo Alvarez-León Biólogo Marino Consultor de Investigación Bogotá Tel : +57-1-6132658 Email : [email protected]

Juan Carlos Pino Renjifo Biólogo Marino Bogotá Tel :+57-1-87441525 Cel :+57-1-315-3009384 Email :[email protected] [email protected]

Hernando E. Bravo Pazmiño Antropólogo Tumaco Tel :+57-2796417 Email :[email protected]

Ana Soledad Sánchez Alférez Ingeniera Florestal Bogotá Tel : +57-1-6931734 Cel :+57-315-8815573 Email :[email protected]

Hilayalit Rodriguez Cruz Bióloga Marina/ Derecho Medio Ambiente Bogotá Tel :+57-1-2459890 Email : [email protected] [email protected]

Diego José Rubiano Rubiano Ingeniero Florestal Bogotá Tel : +57-1-2502544/3455188 Cel :+57-310-2228476 Email :[email protected]

Omar Ariel Guevara Mancera Ingeniero Florestal/Sistemas de Información Geográfica Bogotá Tel : +57-1- 2459890/2825264 Email : [email protected] [email protected]








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ANNEX 2

List of publications and documentation produced by the Project.

Bravo-Pazmiño, H. E. 1998. In: Sánchez-Páez, H. and R. Alvarez-León (eds.) Diversidad Cultural y Manglares del Pacífico Colombiano. 1998. Ministerio del Medio Ambiente – ACOFORE – OIMT. Bogotá. 360 pp. Guevara-Mancera, O.A. 1998. Manual para la Restauración de los Bosques de Manglar en Areas Degradadas del Pacífico Colombiano. Ministerio del Medio Ambiente – OIMT – ACOFORE. Bogotá. Guevara-Mancera, O.A and G.O. Murcia-Orjuela. 1998. Manual para el Estudio de la Dinámica de los Bosques de Manglar del Pacífico Colombiano. Ministerio del Medio Ambiente – OIMT – ACOFORE. Bogotá. 20 pp. Guevara-Mancera, O.A., H. Sánchez-Páez, G.O. Murcia-Orjuela, H.E. Bravo-Pazmiño, F.H. Pinto-Nolla and R. Alvarez-León. 1998. Conservación y Uso Sostenible de los Maglares del Pacífico Colombiano. Ministerio del Medio Ambiente – ACOFORE – OIMT. Bogotá. 178 pp. Sánchez-Páez, H., R. Alvarez-León, O.A. Guevara-Mancera, , A. Zamora-Gusmán, H. Rodríguez-Cruz and H.E. Bravo-Pazmiño. 1997. Diagnóstico y Zonificación Preliminar de los Manglares de la Costa Pacífico de Colombia. Ministerio del Medio Ambiente –OIMT. Bogotá. 243 pp. Sánchez-Páez, H., R. Alvarez-León, F.H. Pinto-Nolla, A.S. Sánchez-Alférez, J.C. Pino-Renjifo, I. García-Hansen and M.T. Acosta-Peñaloza. 1997. Diagnóstico y Zonificación Preliminar de los Manglares de la Costa Caribe de Colombia. Ministerio del Medio Ambiente –OIMT. Bogotá. 511 pp. Sánchez-Páez, H., G.Ulloa-Delgado, R. Alvarez-León, W. Gil-Torres, A.S. Sánchez-Alférez, O.A. Guevara-Mancera, H. Patiño-Callejas and F.E. Páez-Parra. 2000. Hacia la Restauración de los Manglares del Caribe de Colombia. Ministerio del Medio Ambiente – ACOFORE – OIMT. Bogotá. 294 pp. Sánchez-Páez, H., R. Alvarez-León , G.Ulloa-Delgado and O.A. Guevara-Mancera. 2000. Lineamientos Estratégicos para la Conservación y el Uso Sostenible de los Manglares de Colombia. Una Propuesta Técnica para Análisis. Ministerio del Medio Ambiente – ACOFORE – OIMT. Bogotá. 81 pp. Ulloa-Delgado, G., W. Gil-Torres O., J. C. Pino-Renjifo and H. Rodríguez-Cruz. 1998. Manual sobre la Dinámica de Crecimiento, Regeneración Natural y Aspectos Fenológicos de los Manglares del Caribe Colombiano. Ministerio del Medio Ambiente OIMT – ACOFORE . Bogotá. 21 pp. Ulloa-Delgado, G., W. Gil-Torres O., J. C. Pino-Renjifo and H. Rodríguez-Cruz. 1998. Manual sobre Técnicas de Vivero y Restauración de Areas de Manglar del Caribe Colombiano. Ministerio del Medio Ambiente – OIMT- ACOFORE. Bogotá. 25 pp. Ulloa-Delgado, G., H. Sánchez-Páez, W. Gil-Torres, J.C. Pino-Renjifo, H. Rodríguez-Cruz and R. Alvarez-León. 1998. Conservación y Uso Sostenible de los Manglares del Caribe Colombiano. Ministerio del Medio Ambiente – ACOFORE- OIMT-. Bogotá. 224 pp. TECHNICAL REPORTS Informe Técnico 1. 1996. Metodología seleccionada para los estudios bióticos y abióticos. J.H. Polonia-Vorenberg. Informe Técnico 2. 1996. Metodología seleccionada para los estudios sociales, económicos y antropológicos. M.L. Machado-Caicedo. Informe Técnico 3. 1996. Elementos metodológicos para la determinacíon de unidades de manejo, zonificación y planeación estratégica. H. Sánchez-Páez. Informe Técnico 4. 1996. Estado de los Manglares del Archipiélago de San Andrés, Providencia y Santa Catalina. I. García-Hansen.

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Informe Técnico 5. 1996. Estrategias de Manejo para los Manglares del Archipiélago de San Andrés, Providencia y Santa Catalina. I. García-Hansen. Informe Técnico 6. 1996. El mangle nato, Mora oleifera (Triana) Ducke (Caesalpinaceae): Síntesis bioecológica. F.H. Pinto-Nolla. Informe Técnico 7. 1996. Guía de Campo para el Estudio de la Dinámica de los Manglares en Colombia. UNC-SM ( I. del Valle-Arango and M. L. Góez-Restrepo). Informe Técnico 8. 1996. Memoria de los mapas de los bosques de manglar de la costa Pacífica Colombiana. 1969,1996 y multitemporal. C.H. Zambrano-Escamilla and D. J. Rubiano-Rubiano. Informe Técnico 9. 1996. Bibliografía sobre el conocimiento de los ecosistemas de manglar en Colombia. R. Alvarez-León. Informe Técnico 10. 1997. Centro de Documentación e Información sobre Manglares. E. Lozano-Franco. Informe Técnico 11. 1997. Memoria de los mapas de los bosques de manglar del Caribe Continental Colombiano. C.H. Zambrano-Escamilla and D. J. Rubiano-Rubiano. Informe Técnico 12. 1997. Aspectos Sociales relacionados com los Manglares del Pacífico de Colombia. H. E. Bravo-Pazmiño. Informe Técnico 13. 1997. Selección, establecimiento y montaje de parcelas permanentes para el estudio de la dinámica y estructura de los manglares en la Costa Pacífica Colombiana. G.O. Murcia-Orjuela. Informe Técnico 14. 1997. Estudio de la dinámica de crecimiento, capacidad de regeneración y aspectos fenológicos de los manglares en la Costa Caribe Colombiana. S.P. Ceballos-Vargas. Informe Técnico 15. 1997. Diagnóstico y recomendaciones para el buen uso, cuidado y preservación de los manglares y zonas relacionadas, en los Departamentos de Bolívar, Sucre y Córdoba. J.R. Alviz-Martínez. Informe Técnico 16. 1997. Inventario de la avifauna de los manglares del Caribe Colombiano. R.M. de Ayala-Monedero. Informe Técnico 17. 1997. Distribución y composición de la flora algal, asociada al ecosistema de manglar de la costa Pacífica Colombiana. M. A. Correa-Ramírez. Informe Técnico 18. 1997. Transformación del ecosistema de manglar en la Isla de Barú (Cartagena de Indias, Bolívar). M. Y. Rueda-Baquero. Informe Técnico 19. 1997. Aspectos fitosanitarios de los manglares localizados en la Ciénaga de la Caimanera. Sucre. A. Ramírez-Correa. Informe Técnico 20. 1998. Restauración de las áreas de manglar en el Caribe continental de Colombia. H. Rodríguez-Cruz. Informe Técnico 21. 1998. Restauración de las áreas degradadas de manglar en el Pacífico continetal de Colombia. O.A. Guevara-Mancera. Informe Técnico 22. 1998. Dinámica de crecimiento de los manglares del Caribe continental Colombiano: 1996-1998. W.O. Gil-Torres. Informe Técnico 23. 1998. Dinámica de crecimiento, regeneración natural y fenología de los manglares del Pacífico continental de Colombia: 1996-1998. G. O. Murcia-Orjuela. Informe Técnico 24. 1998. Centro de Documentación e Información sobre Manglares. Complemento 1. S. Rodríguez-Piñeros. Informe Técnico 25. 1998. Fenología y regeneración natural de los manglares del Caribe continental de Colombia: 1996-1998. W.O. Gil-Torres.

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Informe Técnico 26. 1998. Monitoreo en aguas de los manglares del Caribe continental de Colombia. J.C. Pino-Renjifo. Informe Técnico 27. 1998. Monitoreo y caracterización de las aguas en los manglares del Pacífico continental de Colombia. O.A. Guevara-Mancera and F.H. Pinto-Nolla. Informe Técnico 28. 1998. Comunidades Negras del Pacífico Colombiano en áreas de manglar: aspectos sociales, económicos y culturales. H.E. Bravo-Pazmiño. Informe Técnico 29. 1998. Moluscos y crustáceos asociados a los manglares del Pacífico Colombiano y aprovechados por las Comunidades Negras. R. Alvarez-León and H. E. Bravo-Pazmiño. Informe Técnico 30. 1998. Actividades de vieveros comunitarios, transplante y desarrollo biológico de los manglares, en la costa Caribe Colombiana. G.A. Ulloa-Delgado. Informe Técnico 31. 2000. Aspectos de la Comercialización de Productos Forestales para la Ordenación y el Manejo de los Bosques de Mangle en la Bahía de Cispatá (antiguo Delta del Río Sinú). O. A. Guevara-Mancera. Informe Técnico 13. Versión 2000. Estudio de la dinámica de crecimiento, capacidad de regeneración y aspectos fenológicos de los manglares de la Costa Pacífica Colombiana. G.O. Murcia-Orjuela.

ex-post evaluation report...ex-post evaluation report itto project pd 171/91 rev. 2 (f)...

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