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Document of

The World Bank

FOR OFFICIAL USE ONLY

Report No. 12478-GM

STAFF APPRAISAL REPORT

REPUBLIC OF THE GAMBIA

CAPACITY BUILDING FOR ENVIRONMENTAL MANAGEMENTTECHNICAL ASSISTANCE PROJECT

MARCH 17, 1994

Infrastructure Operations DivisionSahelian DepartmentAfrica Region

This document has a restricted distribution and may be used by recipients only in the perfonnance oftheir official duties. Its contents may not otherwise be disclosed without World Bank authorization.

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CURRENCY EOUIVALEN"T S

Currency unit = Dalasi (D)US$1.0 = 9.1 Dalasis

SYSTEM OF WEIGHTS AND MEASURES

Metric System

ABBREVIATIONS AND ACRONYMS

ANR Agriculture and Natural Resource Management Project (US-AID'EIA Environmental Impact AssessmentEIS Environmental Information SystemERP Economic Recovery ProgramGBA Greater Banjal AreaGEAP Gambia Environmental Action PlanGIS Geographic Infonnation SystemsGTZ Gesellschaft fuir Technische Zusammenarbeit

(German Technical Assistance)MDI Management Developmert InstituteMHSW Ministry of Health and Social WelfareMLGL Ministry for Local Government and LandsMNR Ministry of Natural ResourcesMOA Ministry of AgricultureMTIE Ministry of Trade, Industry and EmploymentNEA National Environment AgencyNEAP National Environrnental Action PlanNEMA National Environmental Management ActNEMC National Environment Management CouncilNGO Non-Governmental OrganizationPFP Policy Framework PaperPSD Program for Sustained DevelopmentTAC Technical Advisory CommitteeTANGO The Association of Non-Governmental OrganizationsUNDP United Nations Development ProgramUSAID United States Agency for International Development

FISCAL YEAR

July 1 - June 30

This report is based on the findings of an appraisal mission consisting of Ms. Grace Yabrudy (Urban FinancialAnalyst, Task Manager) and Messrs. Yves Prevost (Environmental Specialist, Consultant) and Albert Greve(Coordinator, Multi-Donor Secretariat) conducted in October 1993. The lead advisor is Ms. Cynthia Cook (AFIDR),the AFTES advisor is Mr. Franqois Falloux, and the peer reviewers are Mrs. Catherine Cruveillier-Cassagne and Mr.Ian Hill. The managing director is Ms. Katherine Marshall and the managing division chief is Mr. Peter Watson.

FOR OFFICIAL USE ONLY


CAPACITY BUILDING FOR ENVIRONMENTAL MANAGERMENTTECHNICAL ASSISTANCE PROJECT


Table of Contents

1. INTRODUCTION AND MACRO-ECONOMIC BACKGROUND ... III. THE ENVIRONMENTAL SETTING ................................................... 3

A. Background ...................................................... 3B. Environmental Resources ...................................................... 4C. The Main Environmental Issues ...................................................... 6D. Institutions ..................................................... 7E. The Major Constraints on Reversing Enviromnental Degradation ......... 1........ 11F. The National Environmental Action Plan ............................................... 13G. IDA Assistance Strategy for the- Environment .......................................... 15H. Other Donor Assistance and Programs ................................................... 15

11. THE PROGRAM ................................... 17A. Rationale and Objectives ..................................................... 17B. Program Design ..................................................... 17C. Program Description ..................................................... 18

IV. DETAILED PROJECT DESCRIPTION . .................................................... 20A. Summary Project Description ..................................................... 20B. Detailed Description ..................................................... 22C. Project Implementation ..................................................... 34D. Financing Plan ..................................................... 37E. Auditing and Accounting ....................... .............................. 38F. Procurement ..................................................... 38G. Disbursements ............ .............................. . ......... 39

V. BENEFITS, JUSTIFICATION AND RISKS . . ................................................... 42A. Benefits and Justification ....................... .............................. 42B. Risks ..................................................... 42C. Impact on Women ..................................................... 42

VI. AGREEMENTS REACHED AND RECOMMENDATION ................................. 43

ANNEXES: 1. Organization Chart of National Environment Agency (NEA)2. Summary of the Gambia Environment Action Plan (GEAP)3. Project Cost Table by Year4. Project Implementation Schedule5. Matrix of Performance Indicators6. Timning and Composition of Supervision Missions

This document has a restricted distibution and may be used by rcipients only in the perfom ce of theirofficial duties. Its contents may not otherwise be disclosed without World Bank authodzation.


CAPACITY UJILDING FOR ENVIRONMENTAL MANAGEMENTTECHNICAL ASSISTANCE PROJECT

S1TAFF APPRAISAL REPORT

Credit and Project Suary

Borrower: Republic of The Gambia

Beneficiarv: National Environment Agency (NEA)

Credit Amount: SDR 1.9 (US$2.6 million equivalent)

Terms: Standard IDA terms, with 40 years maturity

Co-financinf: Government of The Gambia:US$0.60 millionGTZ: US$1.30 million

ProjectObjectives: The proiect's primary objective would be to establish the capacity within

the National Environment Agency (NEA) and other relevant agencies todevelop and guide an effective system for environmental planning andmanagement in The Gambia and to ensure that environmental concernsare fully integrated and reflected in the social and economic developmentpiomcess in The Gambia. Consequently, the project would focus on thedevelopment of the institutional infrastructure and on strengthening of thecapacity of associated human resources required to ensure that thisobjective is achieved and that the policy and program objectives of theGEAP are realized.

ProjectDescription: The project consists of six major components: (a) Institutional Support

for Coordination of GEAP Implementation, to support the NEA todevelop its operational capacity by financing equipment, training andtargeted technical assistance. The development of management andtechnical skills in NEA and the provision of associated training inenviromnental management for staff of sector agencies and private sectoroperators, through short-term practical attachments or workshops; (b)GEAP monitoring and policy development, to reorient the existingsectoral policies and develop new policies where necessary, in accordancewith the overall environmental policies elaborated in the GEAP; (c)Environmental education and public awareness, to support thedevelopment of a strategy to increase public awareness of environmentalissues and support for electronic and print media campaigns, using

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existing government and NGO skills and capacities; (d) Monitoring ofenviromnenial quality, to support the development of a system to collectinformation and monitor environmental quality against agreed thresholdlevels; (e) Environmental information management, to finance thedevelopment and implementation of an env.onmental informationstrategy according to a distributed model including (i) the design of acommon information architecture to establish coherence andcompatibility; (ii) the establishment of basic information infrastructures;(iii) the maintenance of key data sets; and (iv) analytical capabilities; and(f) Contingency planning and disaster preparedness, to develop a disasterawareness and contingency planning system.

Benefits: The project would support Govermnent's strategy for the sustainable useof the environment, as set out in the GEAP, and would assist with theimplementation of important aspects of the GEAP. The Gambia is one ofthe first group of countries to have completed a National EnvironmentalAction Plan (NEAP) and is one in which Government ownership of theprocess is very strong. Government commitment to integratingenvironmental issues to the development planning process is reflected inthe decision to create this new agency and place it under the auspices ofthe Office of the President. IDA has strongly supported countries'efforts to prepare and implement NEAPs; The Gambia's NEAP processcan serve as a model to other African countries involved in similarplanning processes. The project actions will ensure that the properinstitutional, legislative and functional frameworks are in place to addressthe critical environmental issues facing The Gambia and that activities areimplemented to reverse the trend of environmental degradation.

Rislcs: Risks are associated with the effectiveness of the enviromnentalmanagement system, in particular the ability to achieve effective inter-sectoral coordination of actions. However, the Government hasexpressed its conunitment to this integration of environment into thesectoral planning process through the GEAP and through the creation ofthe NEA. Also, the capacity building focus of this project is designed toassist not only the staff of NEA, but also within other sectoral ministrieswhose work requires attention to environmental considerations. Thereare risks related to the general lack of knowledge of environmental issuesand limited capacity to handle technical enviromnental issues. Theproject directly addresses these shortcomings through its focus ontechnical and managerial training of management and staff of the NEAand through the provision of technical consultancies to transfercompetence.

Program ofTargeted Interventions: not applicable

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Estimated Program Costs(US$'000)

ProjectComponent Local ForeignI Total % finl1. Institutional Support for 757.5 462.5 1,220.0 38

Coordination of GEAPImplementation -_ _

2. GEAP Monitoring and Policy 89.8 205.2 295.0 70Development I

3. Environmental Education 158.7 246.3 405.0 614. Monitoring of Environmental 131.3 383.8 515.0 75

Quality and Enforcentent5. Environmental Information 65.0 275.0 340.0 81

Management ___6. Contingency Planning and

Disaster Preparedness 23.9 101.1 125.0 81PPF Ref ing I 45.0 255.0 300.0 85Parallel financing (GTZ) 271.1 1,028.1 1,300.0 79TOTAL COSTS 1,542.3 1 2,957.7 4,500.0 T 66

Program Financing Plan(US$'000)

_ _ Local Foreign Total %of Total|Govermnent 600.0 0.0 600.0 13IDA 671.2 1,928.8 2,600.0 58GTZ 271.1 1,028.9 1,300.0 29Total Cost 1,542.3 2,957.7 4,500.0 _

Estimated Disbursements(US$'000)

FY and Semester Disbursement CumulativeFY95 1st semester 367.84 367.84

2nd semester 366.34 734.17FY96 Ist semester 408.50 1,142.67

2nd semester 406.04 1,548.71FY97 1st semester 363.50 1,912.21


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REPUBLIC OF THE CxAMBIA

CAPACITY BUILDING FOR ENVIRONMENTAL MANAGEMENTTECHNICAL ASSISTANCE PROJECT


I. INTRODUCTION AND MACRO-ECONOMIC BACKGROUND

1.1 The Gambia, a very small country located on the west coast of Africa, surrounded onthree sides by Senegal, occupies a narrow strip of land bordering the river Gambia. It covers10,700 km2 and has a population of about I million growing at 4. 1% per annum. It has anundeveloped human capital base with an illiteracy rate of 73%, primary school enrollment of61%, and infant mortality rate of 136 per 1000 (1990).

1.2 The Econonmy. The Gambia is an open economy with very limited natural resourcesand one of the least developed African countries, with a per capita income estimated at US$360in 1991. The mainstay of economic activity has traditionally been the production and export ofgroundnuts, even though in recent years some progress has been made in diversifying productionand exports toward tourism and trade services. Agriculture, which accounted for about 20% ofreal GDP in 1991/92, employs the bulk of the population; industry contributed 12% of value-added, with the rest accourted by services (trade 16%, hotels and restaurants 4%, and publicadministration 10%).

1.3 Macro-economic background. The first 10 years of independence saw broadly stablemacro-economic conditions, with modest rates of economic growth. But from 1970 until 1985-86, the economic and financial petformance of The Gainbia deteriorated markedly as a result ofexternal shocks and inappropriate domestic policies. During the same period, the involvement ofthe public sector in the economy increased sharply through the creation of several publicenterprises, particularly in the industrial and trade sectors. As a consequence of expansion incurrent Government expenditure, the growth of output in the productive sectors of the economyremained low. At the same time, price distortions and regulated markets for agricultural andindustrial products discouraged the development of viable small-scale activities in the secondarysector and hampered agricultural development as well.

1.4 In response to the deepening crisis compounded by the marked decline in externalaid, The Gambian Government adopted in mid-1985 a comprehensive macro-economicstabilization and adjustment program: the Economic Recovery Program (ERP) covering the 1985-1990 period. Under the ERP, The Gambia's economic and financial performance improveddramatically. Four factors contributed to this success: (a) firm determination by the Governmentto implement the program; (b) close monitoring by, and frank dialogue with IDA and the Fund;(c) large influx of external aid; and (d) improved weather conditions. Building on the success ofthe ERP, the Govermnent launched the Program for Sustained Development (PSD) in 1990,which is still in effect. The PSD aims at reinforcing policy reforms and at promoting privatesector growth by diversifying the economy.

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1.5 The economic strategy pursued under ERP and PSD has been primarily aimed atrestoring economic growth, lowering domestic and external imbalances, reducing the publicsector's role in the economy and promoting the development of the private sector. Between 1985and 1990, real GDP growth averaged 3.5%, reflecting continued growth in the private sector,particularly in tourism and construrtion. Real GDP growth in 1991-92 was estimated at 4% dueto quick recovery in trade and tourism, despite a slow recovery in agricultural production Theinflation rate was cut to 4% by the end of 1992 from about 70% in 1985. These results areimpressive, but they remain fragile and need to be sustained.

1.6 One of the main accomplishments of the reform program was the restructuring of thepublic eaterprise sector. Thus, the efficiency of enterprises and resource allocation hasdramatically improved. Some five wholly-owned and 10 mixed companies have been privatizedand performance contracts have been signed for the six public enterprises to ensure theirmanagerial autonomy including tariff setting and meeting efficiency targets. The Government hasrecently signed a 10-year management contract for The Gambia Utilities Company (GUC).

1.7 The way has been cleared, in the financial sector, to increase private sectorcompetition by phasing out the public sector's involvement accomplished with GCDB'sprivatizaiion in June 1992. The Government has revised legislation to enhance the CentralBank's supervisory role. Monetary policy is now implemented through open-market operationsand credit ceilings have been abolished. Moreover, market forces are allowed to play asignificanit role in determining key interest rates, on the basis of bi-weekly tender systems forTreasury bills.

1.8 The Gambia "graduated" from Enhanced Structural Adjustment Facility (ESAF) inNovember 1991. Subsequently, at the Government's request, a sixth year Project PolicyFramework Paper (PFP) wa.s approved in June 1992 (covering the 1992/93-1994-95 period) as aframework for continued monitoring of macro-economic performance and adjustment reforms.No IMF resources are attached to this PFP. The IMF is preparing a seventh PFP with theGovenmment.

1.9 Population and Urbanization. The present population of The Gambia is estimated tobe approximately 1 million and is estimated to reach 1.2 million by the end of this century. TheGambia has, in the past 15 years, experienced very rapid and uncontrolled urban growth withouta commensurate level of investment in infrastructure and urban services. In 1960, only 12% ofthe total population lived in urt.n areas. Based on the recent 1993 census, about 40% of thetotal population lived in urban areas. This considerable change in the living conditions of thepeople has been aggravated by severe environmental problems resulting from the interplay of twomajor factors. Successive years of drought and inadequate rainfall, and rapid population growthleading to undue pressure on the limited capacity of traditional agriculture and pastoralproduction has had a dramatic effect on the urban concentration. Although rainfall has improvedduring the last two to three years, it is not likely to reverse the trend of ongoing migration frommost rural areas towards cities and particularly the Greater Banjul Area (GBA).

1.10 The largest urban cepter is the GBA with the two main municipalities of KanifingMunicipal Council (about 229,000 inhabitants) and Banjul City Council (about 43,000inhabitants). The largest share of urban growth is concentrated in the GBA which accounted for15% of the 1982 total population and two-thirds of the total urban population. In 1992, it

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represented 30% of the total population and three-quarters of the total urban population. TheGBA is growing at 8 % per annum, while the total population is growing at about 4.1% perannuni. The population dynamic make the demographic data even more alarming. Currentestimates show that more than 50% of the population is less than 15 years old, In five to 10years when this young population reaches the child bearing age, a sharp increase in populationshould be expected.

1.11 The growth rate of the secondary cities is also very steady. In some cases, likeBrikama and Farafenni, they have witnessed an even greater growth than the GBA. Onehundred twenty-one thousand inhabitants live in 1 urban centers (one urban centeraccommodates about 5,000 inhabitants). The urban growth has led to rapid expansion of squattercommunities in the periphery of the capital city and tihe larger secondary towns. A large numberof poor households live without access to clean drinking water and sanitation services.

1.12 Persistent declining economic prospects in many of The Gambia's rural areas explainthis substantial migration to urban centers from all parts of the country. The problem of rural-urhan drift has put considerable pressure on the urban environment and has given rise toincreasing health problems. The absence of physical planning and proper land-use resulted inover: rowded and unhealthy living conditions for the majority of the urban population,particularly the urban poor, and a severe lack of basic infrastructure, especially disposal of solidwaste ard sewerage system management.

II. THE ENVIRONMENTAL SETTING

A. Background

2.1 The Gambia's concern with environmental issues dates back to 1977, when thePresident issued The Banjul Declaration in favor of the protection of the country's biodiversity.In a subsequent attempt to develop an institutional framework for addressing environmentalissues, the Government created the Environment Unit in 1983. This was followed in 1987, bythe enactment of the National Environment Management Act (NEMA), which providedlegislative measures for environmental protection, and later by the creation of the Ministry ofNatural Resources (MNR). Despite these institutional initiatives, environmental problemsbecame more severe due to lack of adequate action on the ground. It was against this backgroundof intensifying environmental degradation that the Gambia Environmental Action Plan (GEAP)was prepared. Under the auspices of the National Enviromnental Management Council (NEMC),the GEAP was prepared with broad cross-sectoral involvement of Government agencies and withhigh-level Govermnent support. The GEAP was approved by Cabinet in July 1992, andpresented to the donor community at a Roundtable in Banjul in January 1993. The Governmentrapidly began implementing the recommendations of the GEAP, beginning with the creation(effective July 1993) of a new Na -Al Environment Agency (NEA) under the Office of thePresident, into which the old Environment Unit was folded.

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2.2 The GEAP was formulated in the context of The Gambia's structural adjustmentprogram supported by both the World Bank (SAL 1I) -.-d IMF (ESAF). IDA provided supportboth through the Sahelian Department and the servic.s of the Multi-Donor Secretariat forNational Envirounmental Action Plans (NEAP) to assist the Government in finalizing the GEAPand for attracting donor support for its implementation. M:,sions in April and September 1992,and in January and March 1993, provided assistance to the Government for completion of theGEAP and discussed ways in which implementation could be supported. Given the importanceof having sound institutional strtctures for environmental planning and management and inrecognition of the Government's decisive and rapid action in creating the new environmentagency as an autonomous unit under the Office of the President, it was agreed that IDA fundingcould be focused, in coordination with other donors, on providing institutional support to theNEA to enable it to fulfill its important coordinating and regulatory roles as defined in theGEAP.

B. Environmental Resources

2.3 Topography. The Gambia lies within the Sudano-Sahelian zone and follows thebanks of the Gambia River. With a total land area of 10,700 m2, the country is 470 kan long,following the course of the Gambia River and in places is only 24 km wide.

2.4 Agricultural Resources. Agriculture currently accounts for some 25% of GDP andprovides employment for about two-thirds of the labor force. It is estimated that the areaharvested averages about 160,000 ha, or about 40% of the country's suitable agricultural land.Nearly all of it is rain-fed and only about 1,000 ha are pump-irrigated, although rice is alsogrown on some additional 10-20,000 ha of uplands, mangrove swamps and in freshwater tidalareas. The predominant production system is traditional slash and burn cultivation, requiring asubstantial area for fallow and recovery. The increasing population pressure is graduallyreducing the fallow period, leading to more continuous cropping and soil degradation. The directeconomic and other consequences of this environmental degradation are being increasingly felt.However, agricultural production so far shows no clear trend, with crop output continuing to beprimarily a function of weather.

2.5 The principal crops grown are groundnuts, millet, sorghum, swamp rice, maize andupland rice. Minor crops are cotton (2,000 ha) and vegetables (800 ha). Productivity isgenerally low due to the low fertility of most of the agricultura' soils. While irrigated ricedevelopment is constrained by natural factors (salinity of the Gambia River due to tidal intrusionof sea water), vegetable growing has greatly increased in the last several years.

2.6 The family unit is the main source of labor supply. Although reliable statistics arenot available, the use of animal traction (oxen, donkeys and horses) has been reported to beincreasing and, at present, it is estimated that over 95% of the coarse grain and groundnut area isprepared using animal traction. Land tenure and allocation practices are traditional.

2.7 Livestock Resources. Livestock is also important, with about 15-20% of the ruralpopulation owning cattle. Almost all farm compounds keep sheep, goats and poultry. Thenational herd has recently been estimated to be as follows: 280,000 head of cattle, 120,000sheep, 180,000 goats, 14,300 horses and 36,500 donkeys. The pr sent stocking rate of about 70

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head of cattle per square kilometer is considerably higher than the generally accepted carryingcapacity of 50 head per square kilometer in the Sahel. When sheep and goats are included, thedensity is much higher, and the pressure on the grazing lands is a major factor in landdegradation. All livestock are kept under traditional husbandry systems and productivity isgenerally low. To date, no significant modem poultry producing units exist, largely because ofthe cost of imported animal feed and problems in obtaining supplies of day-old chicks.

2.8 Forest Rescurces. The forests of The Gambia are comprised of Sudanian woodland,wooded savanna and bush fallow, mangroves and isolated relics of closed forest in the moisterwestern region. Most of the forests have been modified by fire, grazing, exploitation for timberand fuel and for cultivation. Drought has also taken its toll. Forest cover is decreasing steadilydue to the destruction caused by bush fires and traditional slash and burn farming practices.Today only 175,000 ha, or 17%, of the total land area can be considered as wooded. The qualityof the stand and the canopy cover have dettriorated as a consequence of logging, land clearing,firewood collection and burning. The rate of firewood consumption exceeds the annual growthincrement of the remaining national forest, and the country has to import 95% of its constructiontimber requirements. Massive deforestation has resulted in soil erosion, excessive ruz"off and theextinction of animal species. Hunting is no longer an important source of protein for the ruralpopulation. Formal and informal forest products include honey, fencing, mats, rhun palm(Borassus aethiopum) splits and fruits. Other indirect and non-timber forest products arelivestock forage, nuts, oils, medicines and roofing materials. The sole formal forest productexport is palm kernel nuts from Elaeis guineensis.

2.9 Wildlife and Biodiversity. The level and diversity of faunal biodiversity has beendramatically reduced in The Gambia with the rapid disappearance of natural forests and otherhabitat. Currently, thirteen of the sixty-seven known mammal species have become extinct, andfew representatives of the remaining other species exist now. With the increased populationpressure and the increasing demands on land resources, the pressure on most of the remaininglarge mammals is increasing, particularly as damage to crops by warthogs, baboons, vervets,patas monkeys and hippopotami becomes of increasing consequenc.. Two large manunals whosehabitat was in the mangrove areas, creeks and islets and were thought in the 1970's to bepotentially capable of conservation-the aquatic antelope (Sitatunga) and the African manatee--arenow endangered and near extinction. On the other hand, The Gambia remains rich in avianspecies, though the increasing loss of habitat poses a serious threat to current levels.

2.10 Fishery Resources. Government efforts to encourage the fishing industry along theriver and The Gambia's 57 km of coast have attracted development assistance. The Governmentstrategy is to increase returns from the sector and to ensure that increased value added from theindustry is kept in-country. Currently, the fisheries industry in The Gambia has eight factories,15 Garnbia-registered vessels and, in 1987, 3,626 registered fishermen, of which 1,512 wereforeign nationals.

2.11 Water Resources. The River Gambia is the major source of surface water. Intensiveagriculture and the destruction of natural riverain wetlands has caused increased erosion andsiltation in the upper reaches. The reduced surface flows have resulted in greatly increased saltwater intrusion from the Atlantic. Ground water is the main source of multi-purpose watersupply in the country. The most recent surveys (1990) of the water supply situation in thecountry indicate that 48% of the population obtain their supplies from open wells; 31% from

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piped water, and 21 % from wells fitted with hand-pumps. There are two main aquifer systems inthe country: the Shallow Sand Aquifer that occurs between 10-20 m below the ground (except inNorth Bank Division, where it is 30-40 m below ground) and a Deep Sandstone Aquifer,confined between a 200-300m thick sequence of marts and clays. The reduced rainfall affects therecharge of ground water negatively, resulting in significant declines in the ground water tableand increased danger of salt water intrusion from the coastal areas.

C. The Main Enviromnmetal Issues

2.12 The main environmnental issues in The Gambia center around: (a) natural resourcedepletion; (b) coastal degradation; (c) expanding populations and rapid urbanization; and (d)dwindling sources of energy. These issues have been identified in the GEAP and the proposedproject will help ensure a sound institutional structure for environmental planning andmanagement to address these issues.

2.13 Natural Resource Depletion. High population growth and declines in rainfall are thetwo major catalysts in the depletion of natural resources in The Gambia. With high rates of ruralto urban migration, the non-agricultural population now accounts for almost 40% of thepopulation. Resultant demands for agricultural and natural resources products, especiallylivestock products, grains and forest products, are growing. Although the trend may reverse inthe future, the length of the rainy season has been declining, with the onset shifting from mid-June to mid-July. It has been estimated that the total annual rainfall in The Gambia hasdecreased 14% since the 1950's.

2.14 Traditional resource management practices in The Gambia have not been able toadapt effectively to these trends, with increasing pressure on land-based resources evident. As aconsequence, fallow periods on arable sites have been shortened, in some places from over adecade to only one year. Evidence from the Government's annua' agricultural survey suggeststhat this trend is continuing.

2.15 Decreasing fallow periods have led to loss of soil fertility and increased erosion.The extension of agricultural lands competes with the need for range lands, and the consequentdegradation of increasingly limited range land resources is evidenced by the disappearance ofperennial pasture species. This is exacerbated by the uncontrolled burning of range lands byfarmers and herders, reducing the long-tenn forage availability and undermining forestregeneration.

2.16 The increasing demand for fuelwood and forestry products has led to a decline in theforest cover and significant biodiversity loss. Approximately 70% of the areas classified asforest in The Gambia consist of tree and shrub savanna, with less than 10% tree cover. Using1988 landsat imagery, it was determined that the area of closed forest had decreased by 80%since 1972. This loss of habitat has contributed to the significant loss in biodiversity, includingthe extinction of a number of major animal specials fornerly indigenous to the country.

2.17 Coastal Degradadon. Land clearing and tourism development on the seashore,removal of beach sand for construction, pollution and rising sea levels are responsible for thedegradation of the country's coastal ecosystems, the basis of the tourism industry. The densely

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populated urban areas as well as the port and tourism sites are located in the coastal zone. Thedevelopment which has taken place has accelerated beachi erosion, which in some places isestimated to exceed two meters per year. Part of the problem is caused by removal of beach sandin an uncontrolled manner by building contractors. Coastal pollution is evident, withcontribution from the fish processing sector, litter from the tourist industry, sewage outfall, andoil spills from ships.

2.18 Rapid and Unplanned Urbanization. Rapid urbanization has resulted in a crowdedsituation in the Greater B3anjul Area. Over 75% of this population lives in sprawling andunplanned suburbs. Land in these areas continues to be allocated by village heads undercustomary tenure laws, without any accompanying infrastructure development or provision ofother basic services. The open communal farming areas that once separated the villages arerapidly disappearing. The resulting overcrowding, lack of sanitation and clean water suppliesand inadequate waste management have resulted in a sharp increase in communicable and waterand vector borne diseases. The Physical Development Plan for the GBA has not been adequatelyimplemented, as evidenced by the rapid urban sprawl and resulting environmental problems.There has been no collective conunitment to the master plan concept and no driving or organizingforce behind it. This is compounded by the lack of basic infrastructure services, in particularroads and drainage which have not kept up with the patterns of urban sprawl.

2.19 Energy Sources. Energy consumption in The Gambia is characterized by reliance onnatural resource-based sources of energy. Over 60% of total energy consumption is in the formof firewood, with the balance sourced from imported petroleum-based products. The fuelwood isused for domestic cooking and heating purposes. The petroleum products (estimated at 64,000tons annually in 1989) is used for transport fuels and for diesel electric power generation.

2.20 Deforestation at the present rates makes the present rate of fuelwood consumptionunsustainable. The Government has taken steps, starting with a 1980 ban on charcoalproduction, to try to alleviate pressure on the forests. There has been some limited success withtree plantations, improved cook stoves and groundnut shell briquetting. There are efforts tointroduce butane as a cooking fuel in urban areas, following the regional approach supported bythe EEC through the "Comite international de Lutte contre la Secheresse dans le Sahel."Currently, butane is imported from Dakar and transported overland, with a resulting high priceof 10-12 Dalasi per kilogram. In the long run, the substitution of butane for fuelwood as adomestic fuel could potentially save up to 80,000 tons of fuelwood annually through theimportation of 7,000 tons of butane, once costs are reduced.

2.21 Renewable energy sources such as solar, wind, biomass, hydroelectric andgeothermal offer alternatives to reliance on fuelwood. The question remains the financialfeasibility of adopting new alternative technologies. The issue is under study as part of the Bank-supported Sahel Traditional Energy Sources Study.

D. Institutions

2.22 The National Environment Agency. The NEA was created in July 1993, to ensureplanning, management and protection of the environment in The Gambia and to promote theintegration of environmental concerns into the national planning and development processes. At

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present. the NEA draws its authority from the NEMC, created in the NEMA of 1987. This actis currently under review. The revised version will empower NEA to fulfill its mandate,particularly its regulatory and monitoring role. During negotiations, agreement was reached withGovernment for all revisions to NEMA to be shared with IDA for review and comment (para.6.5 (a)). NEA is the key institution providing a focus for regulatory control and coordination ofintersectoral work on environment and natural resources issues. Its specific functions are:

(a) to promote, coordinate and support the formulation of national environmental policiesand to guide the execution of those policies in coordination and cooperation with theother agencies of Govermnent, as well as to propose to the competent authorities anygeneral or particular measures destined to facilitate the execution of Government'senvironmental policies;

(b) to coordinate, monitor and evaluate the GEAP and to review and revise, as necessary, itsgoals and strategies; to ensure full public awareness of the GEAP framework andobjectives and to carry out monitoring and review of all development activities to ensurefull compliance with environmental regulatory requirements in The Gambia;

(c) to collaborate with those public bodies responsible for planning and for finance, to reviewthe environmental content of the public investment program in order to ensure thatenvironmental concerns are fully integrated;

(d) to provide continued coordination and liaison with the technical ministries, localgovernments, local communities, private sector entities and non-governmentalorganizations to ensure adherence to national environmental policies;

(e) to establish and define guidelines and procedures for Envirorgnental Imact Assessments(EIA) and to monitor and ensure compliance, in cooperation with the technical ministriesand project promoters, with the EIA findings;

(f) to advise concemed ministries, agencies and otherwise authorized entities onenforcement of environmental legislation, regulations and standards as well as arbitrationof environment-related conflicts;

(g) to monitor adherence to international treaties and agreements on the environment;

(h) to coordinate and promote the use of environmental information systems and resultantdata;

(i) to enhance national capacity for environmental protection through the promotion andcoordination of environmental and natural resource management-related training, non-formal and formal environmental education and the enhancement of public awarenessconcerning enviromnent and natural resource protection issues; and

(j) to advise and support Government initiatives on collaboration with non-governmentalorganization and cotiununity organizations in the area of natural resource managementand environmental protection.

8

2.23 NEA also plays the key roles of secretariat for the NEMC and chairman of theTechnical Advisory Committee (TAC), the two intersectoral coordination mechanisms responsiblefor policy formulation and enviromnental oversight in The Gambia. The President of The Gambiapresides over the NEMC, indicating the high priority assigned to environmental planning andmanagement by Government. The Agency itself is under the Office of the President, which providesoversight and budgetary support, while the NEMC oversees its technical activities. NEA is headedby an Executive Director and has a total of twenty-four staff including eight professionals (seeorganization chart, Annex 1). The professional staff includes the Executive Director, a DivisionDirector, a Registrar of Pesticides, and five programn officers.

2.24 There are other public institutions whose responsibilities cover natural resourcemanagement and environmental issues. NEA will have to work closely with these agencies,which are implementing agencies, in order to ensure both inter-sectoral coordination andplanning as well as facilitating problem solving and policy development. The other agencies aredescribed below.

2.25 Ministry of Natural Resources. The MNR, formerly Ministry of Natural Resourcesand the Environment, has four technical departments: Forestry, Water Resources, Fisheries andWildlife. It is supported in its policy analysis and planning functions by the Planning Unit. TheMNR has partial responsibility for natural resources management and for technical work relatedto natural resource management and for policy formulation in that domain.

2.26 The Planning Unit was created to address a broad spectrum of natural resourcemanagement issues, including appropriate natural resource utiiization, sectoral integration toachieve multiple-use management and land prod ictivity. The principal responsibilities of thisunit include medium term planning and policy formulation and monitoring and evaluation. Thisunit has three professional staff. Assistance to the Planning Unit is included in the Agricultureand Natural Resources Support Project (ANR), financed by USAID.

2.27 The Department of Forestry is responsible for the management of The Gambia'sforests, including the establishmer.t of forest parks, the collection of fees from licenses, permits,royalties and the sale of confiscated illegal forest products. The head office is in Banjul, withrepresentation in all divisions of the country. In 1955, 66 forest parks were created totaling34,029 hectares or 3 % of the total area of the country. A total of 34 of these parks were setaside for protection (22,239 hectares).

2.28 The Wildlife Conservation Act of 1977 provides for the conservation andmanagement of wildlife, for the establishment of national parks and local sanctuaries and for thecreation of the Department of Wildlife Conservation. The Department of Wildlife Conservationis charged with the protection of national parks and reserves. It has 26 employees, but with littlecapacity to supervise, control and inplement programs in the wildlife refuges under itsresponsibility.

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2.29 The Department of Water Resources is empowered under the Water Resources Actof 1979 to carry out the development, exploitation and conservation of water resources in TheGambia. The Act provides for a National Water Resources Council and a technical committee.Since the Act was adopted, it has remained unenforced and is inadequate, given the rapidincreases in human and livestock populations, contamination of water bodies and the need fornew industries.

2.30 The Fisheries Department is responsible for managing the aquatic resources of thecountry under the Fisheries Act of 1991, which provides for the management of fisheries and thedevelopment of the fishing industry.

2.31 The Ministry of Agriculture. The MOA is the principal government agency involvedin agriculturai development. The Department of Planning has overall responsibility for planningin the agriculturai sector and provides policy advice to the Minister. The Department ofAgricultural Research and the Department of Agricultural Services are responsible for providingagricultural research and extension services, respectively. The Soil and Water Management Unitfalls under the Department of Agricultural Services and is responsible for promoting improvedsoil and water management practices. The Department of Livestock Services is responsible forcontrol of notifiable diseases, the inspection of animal products and for livestock extension. It isresponsible for the introduction of innovations in range lands management.

2.32 The Ministryfor Local Government and Lands. The MLGL is responsible forproviding the institutional superstructure for local government administration. These includedistricts, which are governed by commissioners, and divisions, which are run through "areacouncils". The Department of Community Development within the MLGL has over 60 fieldagents working with rural communities to stimulate self-help actions. The Department is alsocharged with assisting in the formation of village development committees. The Department ofPhysical Planning and Housing is responsible for regulating and guiding the rational utilization ofland resources.

2.33 7he Ministry of Health and Soaal Welfare. The MHSW is responsible for managingthe Government's subvention to the Cleansing Service for the two local government authorities ingreater Banjul. The MHSW provides the bulk of solid waste disposal costs in addition totechnical and managerial assistance through the assigmnent of a senior memnber of its staff to headthe Cleansing Service. Again, this Ministry is severely limited in its operational capacity by lackof adequate human and financial resources. This inhibits it from adequately carrying out solidwaste management responsibilities in the GBA.

2.34 The Ministry of Trade, Industry and Employment. The MTIE is responsible for thedevelopment of renewable energy resources, and for the promotion and regulation of industrialdevelopment. The MTIE's Energy Division will act as the secretariat of the National EnergyCouncil, soon to be established to advise Cabinet on energy matters. It is specifically responsiblefor petroleum exploration and for monitoring the imnportation, utilization, distribution and pricingof petroleum products. It is also responsible for formulating energy policy and legislation. TheGambia Renewable Energy Center is the technical arm of the MTIE, responsible for research,development and utilization of renewable energy resources, as well as for the coordination of allnational renewable energy development activities. It lacks funding and adequate human resourcesto carry out meaningful research work and the promotion of alternative renewable energy

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resources. The Human Resources Development Division and the Industrial Unit of the MTIEalso have important environment-related responsibilities. The coordination of population-relatedactivities has been moved from MTIE to .he Population Commission under the Office of thePresident.

2.35 Non-Governmental Organizations. NGOs work predominately in the areas ofagriculture, food aid provision or in community services such as education, literacy and maternalcare and child health. There are about 100 NGOs in The Gambia, of which 50 are registeredwith The Association of Non-Governmental Organizations, an umbrella promotional group.More recently, NGOs have become involved in seed production and distribution as well as treeplanting, and about 11 of the registered NGOs have environmental activities. These includeAction Aid, which is in the process of establishing a reforestation program, and World WideFund for Nature, which is working in Kiang West National Park. The present role and potentialfor expansion, and for assuming a greater responsibility on the part of the major international andGambian NGOs in environmental management, is essential to expanding development efforts inThe Gambia. Under present austerity measures, the Government cannot expand services bysignificantly increasing public employees, and the capacity to work closely at the field levelseverely limits effective implementation of development programs. There is a need, therefore, tofoster more cooperation between the Government and NGOs to develop a working partnershipfor development and for the implementation of environmental activities.

2.36 As illustrated by the multiple and frequently overlapping programs mentioned above,there is a real need for coordination. The proposed project would support the NEA as it puts inplace appropriate structures, systems and mechanisms for environmental management.

E. The Major Constraints on Reversing Environmental Degradation

2.37 Most of the direct causes of environmental degradation have been noted in theprevious sections. There are commonly complex inter-relationships between these direct causes,which are often the result of equally complex linkages between underlying factors and forces.The main underlying causes for the depletion of the natural resource base and increasingenvironmental problems in urban areas are: (a) rapid population growth; (b) widespread ruraland urban poverty; and (c) a lack of institutional structures for adequate and effectiveenvironmental planning and management.

2.38 Population. The needs of The Gambia's rapidly expanding population have beenmet largely through the unsustainable exploitation of the natural resources. This is reflected inshortened fallow periods, encroachment of agricultural lands onto pastures and continued loss offorest cover. The problems of rapid population growth are exacerbated by the uncontrolled andrapid drift to the major urban area of the country around Banjul: Over one third of thepopulation lives in this area, taxing the resiliency of the environment as traditional systems ofresource use and land allocation break down. The rapid increase in urban populations and thelack of corresponding movement in infrastructure and basic services development has led topollution and degradation of the urban environment. At the risk of being repetitive, the linkagebetween an unchecked population growth and environmental degradation cannot be stressedsufficiently. In fact, if the current growth rates continue, environmental policies will do no morethan simnply slow current trends.

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2.39 Poverty. With an income estimated at US$360 in 1991, The Gambia is one of theworld's poorest countries. Poverty, both urban and rural, is a strong impediment to adoptingnew practices which have a less damaging effect on the natural resource base. Poor farmers andurban dwellers do not have the time, the financial resources, or the motivation to invest in newtechniques and technologies for conservation, since their daily efforts are focused upon obtainingthe minimum necessary requirements for survival of self and fatnily. In the situation of skewedincome distribution, with only a small percentage at the top having the time and/or the resourcesnecessary to adopt innovations, the poor will remain generally unresponsive to educationalmessages concerning natural resources management and conservation and will continue to exploitthe available resources in an unsustainable manner. Unless the basic needs of the populations aremet through effective income-generation programs which precede or accompany efforts tointroduce conservation practices, these will fail.

2.40 Inadequate Institutional Frameworkfor Environmental Planning. The lack ofadequate institutional structures to deal with environmental planning and management andpromotion of public awareness and understanding of environmental issues is a factor whichexacerbates the underlying causes of environmental degradation. Lack of effective institutionalstructures reflects a lack of understanding on the part of decision makers of the importance ofenvironmental issues in overall development planning. With the adoption of the GEAP, thiscritical issue is being addressed and actions taken. With the creation of the NEA, theGovernment has begun to address the important institutional question, which will enable it tofocus cross-sectorally on the issues and problems described in this and the preceding sections.The challenge for the Government will be to expand the NEA's commitment to the environmentso that it becomes normal behavior in all ministries and agencies and in the population at large.The current project will support the Government's efforts to plan and manage environmentalissues in a sustainable manner as part of the overall development program for the country.

2.41 The problems mentioned above are being addressed by the following currentexercises: (a) a comprehensive national population policy has been prepared with a view toreducing the current population growth rate and bringing about a sustainable equilibrium betweenhuman and natural resources demands and consumption. An IDA-supported Health andPopulation Project (FY96) will finance specific interventions within this overall program (eg.family planning, AIDS control, gender-focused activities); (b) the rural issues are being exploredand dealt with by the USAID ANR (see para. 2.55); and (c) improvements in urban poverty arethe objectives of two projects: Public Works and Capacity Building Project, approved by theBoard in December 1993, and Urban Environment Project (an FY95 project). The proposedproject addresses the inadequate institutional framework for environmental management.

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F. The National Environmental Action Plan

2.42 The NEAP for The Gambia is called the GEAP. The GEAP was approved byCabinet in July 1992, after a long process of planning and preparation, and marks theGovernment's conunitment to face its environmental problemns and try to find solutions to them.The (iEAP is divided into two parts: (a) the GEAP itself, which provides an overview of theenvironmental situation, a discussion of the critical issues and proposed strategies for solvingthose problems; and (b) a compilation of projects forming a Technical Cooperation Program,indicating suggested project priorities to address the issues identified in the GEAP proper (seeAnnex 2 for GEAP summary).

2.43 Seven policy objectives were formulated as underlying assumptions for the GEAPframework. These objectives are: (a) to conserve and promote the rational use of naturalresources; (b) to protect and improve the health and quality of life of Gambians through soundenvironmental management; (c) to restore and preserve the equilibrium of the ecologicalprocesses; (d) to strengthen the institutional framework for environmental management andcoordination; (e) to increase public environmental awareness and understanding and foster greatercommunity participation in environmental management; (f) to ensure the integration ofenvironmental considerations into the development process; and (g) to accelerate the adoption ofalternate sources of renewable energy.

2.44 In order to achieve the overall goal of sustainable and effective enviromnentalplanning and management, the GEAP policy objectives have been translated into a programwhich focuses both on the overall institutional framework and other broad issues such asenvironmental information management and environmental education and awareness as well as onthe priority sectoral concerns of natural resources, the urban enviromnent and renewable energysources. The three major sectoral programs are: (a) natural resource management; (b)environmental health; and (c) energy. These programs were designed to address the major issuesidentified during the GEAP preparation. They are inter-linked, since they have a number ofcommon issues which, when addressed, will have a cross-cutting effect.

2.45 Natural Resource Management Program. This program will: (a) assist andencourage producers to adopt improved land and natural resource management practices; (b)foster proper management of coastal and freshwater resources; (c) develop Governmentpartnerships with non-governmental organizations for natural resource management; (d) collect,analyze and use data for natural resource management planning; and (e) develop local areaintegrated management plans.

2.46 Environmental Health Program. This program will: (a) improve waste managementin urban areas; (b) control pollution related to hazardous chemicals and industry and (c) increasecommunity involvement in controlling adverse environmental factors.

2.47 Energy Program. This program will (a) introduce new and renewable sources ofenergy as fuelwood substitutes; and (b) increase the amount of cultured fuelwood available.

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2.48 Cross-Sectoral Programs. The GEAP also identifies the need for several cross-sectoral program initiatives which focus on: (a) management of environmental information; (b)public education and awareness of environmental issues; and (c) environmental institutional andlegislative framework development. These three areas are critical if environmental issues are tobe addressed in a meaningful way in The Gambia. They will ensure that the foundation forsuccessful environmental planning and management, as well as for ensuring coordination ofenviromnental activities and their integration into the overall development planning framework, isput into place. They will also provide for a clear definition of institutional roles andresponsibilities so that environmental planning can be facilitated and have the desired impact.

2.49 The GEAP and On-Going Environmenta Programs and Projects. The GEAPrecognizes that there are currently a number of environmental or environmnent-related projectinitiatives underway in The Gambia and that one of its objectives is to support and strengthen andto build onto those initiatives. Areas in which actions are already underway include: (a)livestock and range management; (b) soil and water management; (c) forestry and wildlifeconservation; (d) fisheries management; and (e) urban management and development.hmplementation of the GEAP objectives and strategies will be through strengthening theseinitiatives, as well as developing new ones which directly address the critical issues identifiedduring the GEAP preparation process. As these projects and activities are reviewed, attentionwill also be given to further defining a number of issues critical to achieving soundenvironmental planning but for which more studies are required. These include issues such as:(a) coastal zone management; (b) decentralization and devolution of authori.ty to localcommunities for natural resources management; (c) land use planning and land tomnre; (d) theeffects of economic policy on the environment; and (e) the economic impacts of environmentaldegradation and of conservation efforts.

2.50 The Institutional and Legal Frameworkfor GEAP Implemention. One importantrepercussion of the GEAP preparation process was the recognition at the highest levels ofgovernment that rapid and concerted attention should be paid to ensuring that there is a soundinstitutional framework for environmental planning and management and an accompanying andempowering legal framework. Moving rapidly beyond the weakly defined recommendations inthe GEAP text, the Govermnent subsequently decided to create an autonomous environmentalagency. This has been done by upgrading the Environment Unit, under the MNR, into the NEAunder the Office of the President. This recognizes the need for an institution that can: (a)effectively coordinate and monitor the implementation of the GEAP; (b) provide support forenvironmental planning, policy formulation and management across sectoral lines and incooperation with technical agencies and ministries; (c) facilitate the integration of environmentalconsiderations into the national development process; (d) monitor the enforcement ofenvironmental regulations; and (e) work on a broad cross-sectoral basis with public and privateinstitutions to promote environmental awareness. The NEA will act as secretariat to the NEMC,which will be chaired by the President.

2.51 The Govermnent is also conducting a general review of the laws relating toenvironment to identify the changes required to put in place comprehensive legislation that willfacilitate environmental planning and management. This legal review and formulation of

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environmental legislation and an appropriate environmental regulatory code will facilitate inter-agency coordination and will empower the NEA as the key player, thereby facilitating its cross-sectoral coordinating role (para. 2.22).

G. IDA Assistance Strategy for the Environment

2.52 Lessons from Previous Bank Group Operations. IDA's assistance strategy forenvironmental matters in The Gambia is based on a continuing dialogue with Govermnent and onlessons from previous operations in The Gambia, as well as in other countries in the regionwhere NEAPs have been prepared. Although there has been no Bank Group lending in TheGambia specifically for environmental operations, much of the prior IDA lending for sectoraloperations (agriculture, urban infrastructure) has had a direct impact on the environment.Experience with other lending operations and other Bank Group support for the NEAP processindicates the need to develop strong institutional and legal frameworks for environmentalplanning in order to guide any subsequent policy formulation and project development activities.This also provides the focal point for donor coordination for environmental activities and ensuresbetter programs for environmental training and capacity building within a comprehensiveframework.

2.53 Policies and Priorities. In light of this experience and the framework provided bythe GEAP, IDA's assistance strategy aims to ensure that environmental considerations are fullyintegrated into The Gambia's overall macro-economic and development policy, its sectoralstrategies and specific development initiatives. This will be facilitated in The Gambia, given thebroad Government ownership of the GEAP and the expressed desire to have the properenvironmental policies and institutional structures. The difficulty will be to achieve broad,grassroots comiitment to environmental improvement, in both the public and private sectors.IDA aims to assist The Gambia to put into place the proper structures for environmentalplanning, management and overall coordination through support for the new NEA and fordeveloping local capacity for environmental planning and management. IDA assistance willensure that the new agency is properly structured and empowered by appropriate legislation,which clarifies the role of the agency and its relations with the sectoral ministries anddepartments, as well as with donors, the private sector and NGOs. This is in line with the BankGroup's overall strategy for future assistance to The Gambia, which will focus largely oninstitutional capacity development. IDA will also support sector programs identified in theGEAP, such as urban infrastructure, sanitation and urban management, as well as issues relatedto natural resource management and renewable energy resources.

H. Other Donor Assistance and Programs

2.54 There are two major bilateral donors involved in funding environmental activities inThe Gambia: Germany (GTZ) and the United States of America (USAID). Both of these donorshave on-going programs related to natural resource management, environmental planning andforestry management issues. They are both planning to provide support for the new NEA, incoordination with IDA assistance. IDA's support has been structured in coordination with theproject preparation efforts of GTZ and USAID to ensure a complementary and comprehensivepackage of long-term support for the agency.

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2.55 USAgencyfor International Development (USAID). USAID has recently (August1992) approved a new project to support initiatives in natural resources management, TheAgriculture and Natural Resource Management Project (ANR). This US$22.5 million, five-yearproject will provide: (a) a US$10 million cash transfer for foreign exchange payments inexchange for policy reform in the natural resources sector; and (b) US$12.5 million in projectassistance for grants to NGOs for conmmunity-level natural resource interventions, technicalassistance for institutional support and natural resources planning, training for Gambians innatural resource management, land tenure issues, and support for the Peace Corps volunteersworking in the natural resources field. USAID will also provide funding under this project tosupport environmental education efforts-integrating environmental studies into the educationcurriculum--to be coordinated by NEA.

2.56 Deutsche Gesellschaftfdir Technische Zusammenarbeit (GIZ). GTZ funded aNational Forest Inventory in 1980 which led to the production of a National Forest ManagementPlan in 1983. In 1985, the Gambia-Gennan Forest Project embarked on intensive natural forestmanagement of three forest parks, covering about 1,500 ha. Currently, the thrust of themanagement activities are fire protection and deadwood utilization. To involve the ruralpopulation in the management of their forest resources, the project has introduced a community-based forest management program which started as a pilot scheme in 1991.

2.57 Afnican Development Bank (AfDB). The AfDB will provide support for a majorstudy on coastal land management, with a particular attention to the problems of coastal erosion.AfDB financing will be utilized for a feasibility study and for engineering works aimed atmitigating coastal erosion in the GBA. This program may also receive technical support from theGovernment of the Netherlands.

2.58 United Nations Development Program (UNDP). The Gambia has been chosen as oneof five African countries to benefit from Capacity 21 funds. UNDP will make $800,000available to the Government of The Gambia under this program. Use of funds is not yetfmalized, but could be utilized for: (a) the development of a comprehensive program of naturalresource accounting and environmental economics; (b) a study for decentralization of GEAPimplementation; (c) miscellaneous funding which will be made available to help other sectoralagencies respond to environmental issues for which they have no resources and (d) for review ofthe Technical Cooperation Program.

2.59 Donor Coordination. Subsequent to the January 1993 sectoral consultations onenvironment and natural resources in The Gambia, GTZ and IDA agreed with the Government tosupport and finance jointly this program for environmental management, with a focus on theinstitutional and human resources capacity development of the new NEA (see 3.9 for details ofthe GTZ-funded components). Other donors mentioned above (USAID, AfDB and UNDP) areall implementing or planning activities which will support priority objectives of the GEAP. Asan overall planning document guiding the efforts of individual donors, it serves as a frameworkfor ensuring donor coordination within the priorities established during the GEAP process.

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III. T1HE PROGRAM

A. Rationale and Objectives

3.1 Rationale. The program would support economic and social development whilemaintaining the integrity of environmental processes and ensuring long-term sustainability ofnatural resource use. This would be pursued through support for the implementation of theGEAP, most notably the effective establishment of the recently created NEA. The program isbased on agreements with Government on the priorities to be attached to the various functions ofthe NEA. It would represent the first stage in the implementation of the Bank's strategy forproviding environmnental assistance to The Gambia. The program being supported by thisproposed project will directly benefit the sector-specific interventions being financed by IDA andother donors (paras. 2.55 - 2.59) through the establishment of standards and guidelines, thecollection and dissemination of information and institutional support and guidance, all within theframework of the GEAP.

3.2 Objectives. The program's primary objective is to establish the capacity within theNEA to develop and ensure the coordination of an effective system for environmental planningand management in The Gambia so that environmental concerns are fully integrated and reflectedin the social and economic development process in The Gambia. Consequently, the programwould focus on the development of the institutional infrastructure and on strengthening of thecapacity of the human resources required to meet this objective and to realize the policy andprogram objectives of the GEAP.

B. Program Design

3.3 Proposed strategy. As a technical assistance program, the main focus would be oninstitutional capacity development, particularly to help set up the NEA. The project wouldsupport the programmatic objectives of the GEAP and emphasize environmental managementmechanisms and processes rather than prescribe specific environmental actions. Since the long-term success of enviromnental planning initiatives in The Gambia will be contingent upon thedevelopment of adequate human resources in NEA and other associated agencies, the programwould aim to bolster local talents and skills in order to reduce gradually the country'sdependence on extensive technical assistance. To this end, the program would support a newapproach that relies on stronger local management supplemented by short- and medium-termtargeted consultancies.

3.4 Strategyfor technical assistance and training. Technical assistance and trainingwould aim to build capabilities of local staff in NEA and its collaborating agencies, in thoseskills in which Gambian capacity is lacking or deficient, in particular the technical andmanagerial skills required for successful project implementation. Accordingly, all technicalassistance will consist of focused short term consultancies. Similarly, training will consistmainly of short-term, out-of-country practical attachments, on-the-job, in-country instruction orshort-term technical workshops. This arrangement wouid ensure continuous technical guidanceand gradual capacity development without the drawbacks of sustained presence of expatriateadvisors.

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3.5 Intersectoral linkages. The inter-sectoral nature of environmental managementnecessitates the involvement of many agencies in planning, policy development andimplementation, data collection, monitoring, problem-solving and enforcement. Because theNEA is not an implementing agency, it must focus on inter-agency coordination and inter-sectoral lirnkages rather than direct control. Furthermore, NEA should use cxisting capabilities inother agencies, rather than attempt to create its own capabilities. As a consequence, the programwould help NEA develop working relations and cooperative links with technical and sectoralministries involved in national development so that they integrate environmental issues in theirown planning aid operations and work together on issues which overlap their sectors ofresponsibility. Similarly, NEA would need to work closely with NGOs and commnunityorganizations that are involved in environmental matters.

3.6 The program would give priority to initiatintg and consolidating core regulatory andcoordination functions, letting other facets of environmental management arise without explicitlypromoting them, simply as a repercussion of the implementation of a process or mechanism. Forexample, the EIA will indirectly generate substantial coordination and advisory work for NEA.As deveiopment actors see that EIA procedures are rigorously implemented and cannot bepolitically circurnvented, they will then systematically consult NEA during the design phase toavoid having to modify proposals after they are formulated.

C. Program Description

3.7 Overall Program and expected outputs. The IDA project would be part of a multi-donor program of support for the establishment and operations of the NEA that includes twomain thrusts: (a) the establishment of environmental management processes; and (b) institutionaldevelopment and capacity building. The expected ouiputs at project completion would consist of:

l. Establishment of environmental management processes

- legislation revised or amended to integrate environmental concerns;- an effective and tested Environmental Impact Assessment (EIA) process including the

implementation of mitigation measures;- the capacity to assess and identify trends and changes in environmental quality;- the capacity to monitor and respond to reported violations of the enviromnental code;- the alignment of sectoral policies throughout Government in accordance with

principles promoted in the GEAP;- the capacity to monitor and report on C-EAP implementation;- plans and capacity to respond to unexpected environmental crises.

ll. Institutional development and capacity building

- an operational environmental agency that has close working relations with otherdevelopment actors concemed with environmental matters;

- capacity within government agencies to handle environmental issues;- greater awareness of environmental matters throughout the general public;- the possibility for the public to locate and access environmental information;- broad diffusion of major developments in environmental matters in The Gambia;

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much greater availability and use of environmental information in support ofenvironmental management.

3.8 Program components. The proposed program would initially cover a three-yearperiod. It would consist of 10 major components, 6 of which would be funded by IDA (furtherdetails on activities, costs, implementation issues and work programs for each of the IDAcomponents may be found in Section IV of this document); the other four components would befunded by the GTZ.

Establisnment of environmental management processes

a) Legislative reform. The review and revision of existing legislation, and theformulation of new legislation as required, to develop a comprehensive and coherentenvironmental regulatory code (GTZ);

b) ElAs. The development and implementation of EIA guidelines and procedures,including review and performance monitoring mechanisms, for all public (PIP) andprivate sector projects above a pre-determined level of funding (GTZ);

c) Monitoring of environmental quality. The development of a system for the collectionof information to monitor environmental quality, and the establishment of andinspectorate to conduct on-site observations of violations and follow-up onappropriate measures (IDA);

d) GEAP monitoring and policy development. The coordination and monitoring ofGEAP implementation, including reorientation of existing sectoral policies inaccordance with the overall environmental policies elaborated in the GEAP, andreporting to higher authorities on GEAP implementation (IDA); and

e) Contingency planning. The development of a disaster preparedness and contingencyplanning system (IDA).

11. Institutional development and capacity building

a) Institutional support to GEAP. Support to NEA to develop its operational capacity,including equipment, training and targeted technical assistance. The development ofmanagement and technical skills in NEA and the provision of associated training inenvironmental management for staff of sectoral agencies and private sector operators,through short-term practical attachments or workshops (IDA);

b) Environmenal education and public awareness. The development of a strategy toincrease public awareness of environmental issues and support for electronic andprint media campaigns, using existing government and NGO skills and capacities(IDA);

c) Establishment of a Documentation Center. The establislunent of: (i) a shareddatabase of information relevant to environmental concerns; and (ii) anenvironmental library (GTZ);

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d) Publication of a newsletter. Regular production of newsletter informing the nationaland international community of progress made on the GEAP (GTZ); and

e) Environmental information management. Development and implementation of anenvironmental information strategy according to a distributed model, including: i)the design of a common information architecture, to establish coherence andcompatibility; ii) the establishment of basic information infrastructures; iii) themaintenance of key data sets; and iv) analytical capabilities (IDA).

3.9 Specifically, the GTZ project will finance the following components (refer to para.3.8): (Ia) development and implementation of environmental legislation and legal reforms; (Ib)development of procedures, guidelines and operational systems for LIAs; (Ilc) establishment of adocumentation center; and (Ild) support for dissemination of environmental information in theform of a newsletter. The project will rely upon short termn consultancies to help develop thecapacity to carry out environmental assessments and implement the necessary legal reforms. TheIDA project would finance the requirements for institutional support and capacity building notincluded in the GTZ grant or the USAID project. Because legislative reform and theestablishment of an effective environmental assessment process are essential for the success of theIDA project, signature of the grant agreement with GTZ by Government will be a condition ofeffectiveness (para. 6.4(a)). Furthermore, negotiation discussions included Governmentagreement on the implementation of EIA procedures acceptable to IDA, no later than eighteenmonths after credit effectiveness (para 6.5 (c)).

3.10 Programfinancingplan. The overall cost of the program would be US$4.50million, of which 13% would be Government contribution. IDA funding would represent 58%of total costs, while GTZ funding would represent 29%.

Financing Plan(US$'000)

Local Foreign Total % of TotalGovermnent 600.0 0.0 600.0 13IDA 671.2 1,928.8 2,600.0 58GTZ 271.1 1,028.9 1,300.0 29

i Total Cost 1,542.3 2,957.7 4,500.0

IV. DETAILED PROJECT DESCRIPTION

A. Summary Project Desciption

4.1 As part of the global program described in Section III, the proposed IDA creditwould fund the following six components:

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1) Institutional support to GEAP2) GEAP monitoring and policy development3) Environmental education and public awareness4) Monitoring of environmental quality5) Environmental information managementC Contingency planning.

4.2 Project Costs. Project cost is estimated at US$3.2 million equivalent (aboutD29, 120 million) net of taxes and duties. A summary of cost estimates is presented below(detailed cost table appears in Annex Three). Cost estimates are based on IDA's estimations andother reports documenting component costs. Project costs are expressed in February 1994prices. Since this is a technical assistance project, there are no provisions for physical or pricecontingencies (all equipment and vehicles will be procured in the first six months of the project)and consultant cost estimates include allowances for travel and subsistence. Prices are free oftaxes and duties.

Proiect Cost Summary (net of taxes and duties)(US$'OO0)

USS Dalasi i

Project Component J Local Foreign Total Local J Foreign Total % For.

1. Insiaitional Support for 757.5 462.5 1,220.0 6,893.3 4,208.8 11,102.0 38Coordination 'f GEAPImplementation -

2. GEAP Monitoring and 89.8 205.2 295.0 817.2 1,867.3 2,684.5 70Policy

Development3. Environmental Education 158.7 246.3 405.0 1.444.6 2,240.9 3.685.5 61

4. Monitoring of Envir. Quality 131.3 383.3 515.0 1.194.4 3,492.1 4,686.5 75

5. Environmental Information 65.0 275.0 340.0 591.5 2,502.5 3,094.0 81Management _

6. Contingency Planning and 23.9 101.1 125.0 217.5 920.0 1,137.5 81Disaster Prevaredness

7. PPF Refiancing 45.0 255.0 300.0 409.5 2,320.5 2,730.0 85

TOTAL COSTS 1,271.2 1,928.8 3,200.0 i,567.9 17,522.1 29,120.0 60

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B. Detailed Description

1. Institutional Support for the Coordination of GEAP Implementation (base cost:US$1,220,000)

4.3 Introduction. The successful implementation of the GEAP will depend on a fullyfunctional NEA. Because NEA was only recently created and is still untried, it must quicklydevelop its management capacity in order to become fully operational. To this end, NEA woulddetermine the structure and procedures required for its mandated functions, organize itselfinternally, finalize staffing requirements and job descriptions, prepare a human resourcesdevelopment plan and implement it. Moreover, NEA would need to fit in specific units such asthe Pesticides Laboratory, the Inspectorate, the Resource Center and the LDocumentation Center,as well as specific tasks such as guidance of the environmental information system.

4.4 Since NEA's main role is the coordination and monitoring of GEAP programs ratherthan their actual implementation, it will necessarily rely on the capabilities of numerous othergovernment agencies, as well as those of correspondents in the private sector or the NGOcommunity. Thus, capacity for environmental management and planning would also need to bedeveloped in these institutions through training of selected staff.

4.5 Objectives and expected results. The project component's outputs would include:

a) a management information system (MIS) to monitor Agency performance andefficiency in terms of the use of staff, funds and equipment;

b) staff within NEA with the skills required to fulfill Agency functions;

c) staff in other institutions that can operate as NEA correspondents; and

d) equipment required by NEA for its operations.

4.6 Activities. The project would support the following activities:

In year 1: (July 1994-June 1995)- training of NEA's staff in management, budgeting and project administration,- training of NEA staff in computer literacy,- development of NEA's business (operational) procedures, including yearly

activity planning,- establishment of a Management Information System (MIS),- equipment is ordered, delivered and installed.

In year 2: (July 1995-June 1996)- review and update operational procedures,- review use of MIS,- organize short-term training and workshops fo. telected sv'ff from key

institutions and correspondents on environmental management issues andtechniques.

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In year 3: (July 1996-June 1997)- review and update business procedures and MIS,- organize short-term training and workshops for selected staff from key

institutions and correspondents in environmental management issues andtechniques.

4.7 Costs. The IDA credit would fmance: (a) 1 months of international and 14 monthsof national short and medium-term technical assistance on organizational and operational issues,including the establishment of an MIS and the organization of training on environmentalmanagement; (b) an additional five months of technical assistance for needs to be determinedduring the life of the project; (c) 30 months of training for NEA staff and selected staff from keysectoral institutions and regional authorities; (d) the acquisition of information processing,communications and office equipment, as well as one vehicle and a generator; (e) incrementaloperating expenses (communications, fuel and maintenance); and (f) regular audits.

Comnonent 1: Institutional Support for coordination of GEAP imlelemenatbon(US$'000)

CATE*ORY 1994 1995 1996 1997 TOTALInternational consultants 70 90 90 0 250National consultants 15 25 20 10 70Training 25 50 50 25 150Equipmentlvehicles 100 0 0 0 100Audits 10 15 15 10 50Incremental Operating Expenses 97 198 203 102 600TOTAL 317 378 378 147 1220

4.8 Implementation. The main implementation issues to be resolved would be: (a)completion of recruitment of minimum required staff by NEA for project implementation; (b)availability of staff from NEA and other institutions for training; and c) availability of adequatetraining capabilities in-country or in the sub-region.

4.9 Work program. With the help of an international management consultant (twomonths in first year), NEA's administrator would establish business procedures and develop aManagement Information System (MIS) and accounting system, taking into account the ProgramBudgeting System introduced by USAID/The Gambia's ANR project. The internationalconsultant would also train NEA staff in the use of the MIS/Accounting system. The consultantwould return for one month in each of the second and third years, to evaluate and recommendimprovements to the business procedures in light of experience gained, and modify theMIS/Accounting system accordingly.

4.10 NEA's senior management would initiate efforts to build agency staff into a cohesiveteam, with the assistance of an international expert (1 month in first year), inclur1ing theorganization of a team building workshop. The consultant would return for twi weeks in each ofthe second and third year of the project to evaluate NEA team cohesiveness and effectiveness,make recommendations to NEA management and conduct yearly team building workshops.

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4.11 NEA's Director of Networks would organize training of NEA staff in projectmanagement, verbal and written communuications skills, administration (budgeting, accountingand office management), as well as computer literacy. Training would either be in-country,through the Management Development Institute (MDI) or locally employed consultants, or out-of-country (total 10 months over the three-year period of the project).

4.12 NEA's Director of Networks would supervise the development and implementationof training programs on environmental issues and environmental management for staff withinNEA and selected staff from other institutions or correspondents. Training material would beprepared by the Director of Networks, with the assistance of an international expert inenvhonmental management (three months in first year) working in collaboration with nationalconsultants (four months in first year) and staff from MDI. Training itself would be providedthrough MDI, either by its staff or locally employed consultants (eight months), in the form ofshort-term training sessions or workshops. At least one training workshop per year would targetenvironmental desk officers, and selected NGO representatives, and/or correspondents in lineagencies within Government, and another would target decision makers. The internationalconsultant would return for one month in each of the second and third year to evaluateeffectiveness of training delivered and suggest improvements in the curriculum or trainingformat. Additional out-of-country training on specific environmental issues would be provided inthe form of short-term practical attachments for NEA staff (total 10 months) and staff frominstitutions other than NEA (total 10 months).

2. GEAP Monitoring and Policy Development (base costs: US$295,000)

4.13 Introduction. One of NEA's major functions is to coordinate and guide theimplementation of the GEAP. On the one hand, NEA is to assist line ministries in their effortsto revise and reorient their policies, in conformity with GEAP recommendations, and in light oftheir impact upon the environment and use of natural resources. On the other hand, NEA is toprovide the Secretariat for the NEMC and the chair for the TAC, the two intersectoralcoordination mechanisms created to monitor and coordinate GEAP implementation. As part ofthese functions, NEA must prepare yearly a "State of the Environment Report", have it discussedand agreed on by TAC and submitted to NEMC for discussion and acceptance.


(a) capacity within NEA to monitor, evaluate and report on GEAP implementation;and

(b) assistance from NEA to relevant sectoral agencies to align their policies withGEAP principles.

4.15 Activities. The project would support the following activities by NEA:

In year 1: (July 1994-June 1995)- identify policies in need of revision,- establish a format for reporting on progress in GEAP implementation,- adopt procedures for project implementation monitoring and evaluation,

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- produce State of the Environment Report for 1994, discuss it with TAC andsubmit it to NEMC.

In year 2: (July 1995-June 1996)- coordinate revision/formulation of sectoral policies,- organize workshops,- commission studies,- produce State of the Environtnent Report for 1995, discuss it with TAC and

submit it to NEMC.In year 3: (July 1996-June 1997)

- update GEAP,- continue to coordinate revision/formulation of sectoral policies,- organize additional workshops,- commission additional studies,- produce State of the Environment Report for 1996, discuss it with TAC and

submit it to NEMC.

4.16 Costs. The IDA credit would finance: (a) four months of international and 15months of national short and medium-term technical assistance, to determine (i) what policiesneed to be revised, and (ii) a system and a format for reporting on the state of the environmentand on progress achieved in meeting GEAP objectives; (b) four months of out-of-country trainingfor NEA staff in policy analysis and programn monitoring; (c) workshops, organized by NEA andrelevant public agencies, to develop new policies in consultation with public agencies, non-governmental organizations and private sector institutions; and (d) studies on major issues.

Component 2: GEAP Monitoring and PoUicv DeveloDment(US$'000)

CATEGORY 1994 1995 1996 1997 TOTALInternational Consultants 20 30 20 10 80National Consultants 0 30 30 15 75Training 5 10 5 0 20Workshops 3 7 7 3 20Studies 15 35 35 15 100TOTAL 43 112 97 43 295

4.17 Implementation. Prior to project effectiveness, NEA would have establishedworking groups for key sectors affected by environmental concerns.

4.18 Work program. The Coordinator for Inter-Sectoral Networks (with the assistance ofan international consultant (one month in year 1) would, within six months of projectimplementation, identify the key sectoral policies to be targeted using project resources. Theofficers in charge of the relevant program would coordinate the working groups for each of thepolicies selected for formulation or revision. To this end, they would organize workshops thatwould formulate recommendations, and would supervise national consultants (total 15 monthsover the three-year period of the project) that would prepare working papers on specific policies.The international consultant would return for two weeks in each of the second and third year to

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further advise the coordinator and inter-sectoral network officers on policy development. Thecoordinator would receive out-of-country training (one month in both the first and the secondyear) in the form of practical attachments with an institution involved in the formulation ofenvironmental policy.

4.19 The Coordinator of Inter-Sectoral Network, in cooperation with the ProgramOfficers, would, within six months of project implementation, identify studies to be funded bythe project and draft their terms of reference. Such studies might include: a) coastal zonemanagement; b) the effects of economic policies on the environment, c) the economic impacts ofconservation and natural resources degradation, and d) historical trends in natural resourceavailability and use in The Gambia. The studies themselves would be conducted under contractby national institutions or private consulting firms, each of them under the direct supervision of aspecific inter-sectoral network officer.

4.20 The Director of Networks, with the assistance of an international consultant (twomonth in year one) and in coordination with other national agencies, would, within one year ofproject implementation, design and implement monitoring and evaluation systems to track theprogress made in achieving GEAP programmatic and policy objectives (including benchmarksand targets), as well as a reporting format. Using this format, the coordinator and the inter-sectoral network officers would each year prepare the "State of the Environment Report", nolater than six months after the end of the relevant year. The international consultant wouldreturn for two weeks in each of the second and third year before report completion, to furtheradvise the coordinator and inter-sectoral network officers. The coordinator would receive out-of-country training (one month in both the first and the second year) in the form of practicalattachments with an institution involved in the formulation of enviromnental policy.

3. Environmental Education (base costs: US$405,000)

4.21 Introduction. Under the GEAP, NEA is responsible for promoting the education ofthe public on environmental issues. To fulfill this responsibility, NEA faces two challenges.The first is. to increase awareness of environmental issues among the general public in order togenerate public support and participation regarding environmental management measures. Thesecond is to create public awareness of NEA and the GEAP itself: its mandate, mission,capabilities, the nature and extent of NEA's regulatory functions and the services and assistanceNEA can provide to the public, sectoral agencies, or local government. To accomplish this,NEA would adopt a two-pronged strategy: (a) to broaden public understanding of environmentalissues through the use of the media and cooperative endeavors with academic institutions, localenvironmental NGOs and various professional groups such as journalists, teachers, extensionagents or health workers; and (b) to reach critical target groups within national and localgovernment through workshops and training courses.

4.22 Objectives and expected results. The project component's outputs would be:

(a) increased public awareness of environmental issues; and

(b) public knowledge of NEA and its functions.

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In year 1: (July 1994-June 1995)- coordinate the preparation of an environmental public awareness strategy (para.

6.5 (g)),- prepare a popular version of the GEAP,- carry out public awareness campaign regarding GEAP and NEA.

In year 2: (July 1995-June 1996)- carry out public awareness campaigns for specific target audiences on selected

environmental issues, using a multi-media approach,- organize regional and sectoral environmental workshops on specific

environmental issues.In year 3: (July 1996-June 1997)

- carry out further awareness campaigns- organize additional workshops.

4.24 Costs. The IDA credit would provide: (a) four months of international and 16months of national short and medium-term technical assistance for the preparation of anenvironmental education strategy; (b) three months of out-of-country training for the ProgramOfficer for Environmental Education; (c) workshops for public officials and private sectordevelopment actors; and (d) public awareness campaigns in the printed and broadcast media.

Comnonent 3: Environmental Education(US$'000)

CATEGORY 1994 1995 1996 1997 TOTALIntemnational consultants 20 20 20 0 60National Consultants 30 20 20 10 80Training 0 5 5 5 15Workshops 10 20 15 5 soPublic awareness campaign 35 70 65 30 200contracts I __

TOTAL 95 135 125 50 405

4.25 Implementation. NEA itself would conduct few activities, instead subcontracting toother national institutions or NGOs. Coordination would be ensured through the working groupon environmental education and public awareness, under the coordination of the relevant programofficer(s). For this reason, the establishment of the environmental education working group is acondition of effectiveness (para. 6.4 (c)).

4.26 Work program. The Program Officer for Environmental Education, with the help ofan international consultant (two months) and national consultants (six months), in collaborationwith other national agencies, and through the Environmental Education and Public Awarenessworking group, would formulate an environmental education and communications strategy settingresource allocation among various media (print, electronic, etc.), as well as other communicationoptions, and identifying key institutional collaborators from both the public and private sector.The officer would also develop mission statements, identify key target constituencies, and

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determine the most effective media and methods for the transmission of specific awarenessbuilding messages. The strategy would be available for review by IDA within three months ofproject effectiveness (para. 6.5(g)).

4.27 The strategy would include: (a) at least four workshops each year for the first twoyears after project effectiveness for targeted audiences, including journalists, teachers, local levelpolicy makers, NGOs and extension agents; (b) production of a video on priority environmentalconcerns within one year of project implementation and its presentation in 10 villages/towns foreach of six administrative regions within one and a half years of production; (c) weekly nationalradio programns on the environment in all national languages, as of start of project; (d)preparation of a popular version of the GEAP within six months of project effectiveness; (e) twonational canpaigns on GEAP and NEA within one year of project effectiveness: (f) workshopson GEAP and NEA organized in at least five Divisions for opinion leaders (alkalis, imams,seyfos, area councilors and women leaders); and (g) two public awareness surveys on theenvironment, the GEAP, and NEA, the first no more than three months after projecteffectiveness, and the second no less than six months before project completion, to measureincreased awareness of environmental issues.

4.28 NEA would subcontract other actors, such as environrmental NGOs, to conductenvironmental awareness campaigns. National consultants (total 10 over the three-year of theproject) would assist the officer in implementing the strategy. The international consultant wouldreturn for one month in each of the second and third year to help the Program Officer to reviseand improve the strategy.

4. Monitoring of Environnental Quality and Enforcement (base costs: US$515,000)

4.29 Introduction. Two of NEA's key functions are to: (a) monitor environmentalquality, with particular regards to industrial emissions, water and solid waste; and (b) enforceenviromnental quality standards when violations are detected. In support of these functions,NEA would design and coordinate the implementation of a monitoring and reporting system,built around key indicators and benchmarks derived from a range of chemical and biologicalparameters. NEA would also create an Inspectorate, under the supervision of the ProgramOfficer for Environmental Quality, that would follow up on violations and initiate the necessarymitigative or repressive measures.


a) stronger capacity to monitor environmental quality; and

b) capacity within NEA to act on specific environmental violations.


In year 1: (July 1994-June 1995)- develop monitoring system (para. 6.5 (g)),- develop/strengthen monitoring capabilities,- establish Inspectorate,

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- order Inspectorate equipment,- train Program Officer for Environmental Quality.

In year 2: (July 1995-June 1996)- implement monitoring program,- train staff in executing agencies,- establish enforcement mechanism.

In year 3: (July 1996-June 1997)- organize workshops,- review monitoring program.

4.32 Costs. The IDA credit would include: (a) six months of international and eightmonths of national short-term technical assistance to help with the design and review of themonitoring system; (b) nine months of out-of-country training for staff from the inspectorate, aswell as staff from other institutions involved in the monitoring program, in appropriate samplingtechniques and the use of specialized equipment; (c) workshops to establish and periodicallyreview the monitoring program; (d) equipment for the Inspectorate, including two vehicles andsampling equipment; (e) the initial cost of establishing the monitoring network; and (f) contractscovering the recurrent costs of collecting and analyzing samples.

Component 4: Monitoring of Environmental Oualitv and Enforcement(US$'000)

CATEGORY 1994 1995 1996 1997 TOTALInternational consultants 60 40 20 0 120National consultants 10 25 5 0 40Training 15 15 15 0 45Equipment 25 25 0 0 50Workshops 10 20 20 10 60Monitoring costs 30 65 70 35 200TOTAL 150 190 13.) 45 515

4.33 Implementation. Within one year of project implementation, NEA would establishthe Inspectorate, recruit staff, define its status, its regulatory powers and its relationships withother public offices such as the Attorney General's Chambers (para. 6.5(g)). An importantassumption is that environmental regulations (financed through GTZ support) covering essentialenvironmental issues would be finalized before project completion. Another majorimplementation issue will be the choice of either limits or permits as the basic mechanism forpollution control and waste management.

4.34 Work program. NEA's Program Officer for Environmental Quality, under the directsupervision of the Coordinator for Technical Services Network and in consultation withappropriate national institutes and agencies, (-ith assistance from international consultants andnational consultants), would coordinate the dt gn of a monitoring strategy. The strategy wouldindicate the purpose of each data collection pi -,gram, indicate its relevance to current orenvisaged regulations, set provisional benchmarks and thresholds, and define a monitoringsystem, including the density, location and frequency of sampling, and the range of analyses tobe conducted. The Program Officer would organize workshops, as necessary, to establish the

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monitoring system. Except in the case of pesticide monitoring, which explicitly is part of NEA'smandate, the Agency itself would neither collect nor analyze samples. Instead, collection andanalysis would be conducted, either by agreement or on contract, by the appropriate nationalinstitutes or agencies. The strategy would be available for review by IDA within one year ofproject effectiveness (para. 6.5(g)(ii)). NEA would arrange for periodic independent verificationof monitoring results. The international consultant would return for two months in the secondyear and one month in the third year to help the officer-in-charge review and improve thestrategy. During the second and the third year of the project, selected staff from institutes oragencies involved in the monitoring program would be trained abroad (total six months).

4.35 Monitoring results woulu be delivered to the Inspectorate where they would be kept.Government would take measures to guarantee that results of monitoring programs by sectoralagencies, funded outside of the project, are passed on to NEA. In turn, NEA would takemeasures to ensure that monitoring results are widely available both to other governmentagencies and to the public at large.

4.36 Within one year of project effectiveness, the Program Officer for EnvironmentalQuality, with the assistance of national consultants (two months in year one) would establishprocedures to be followed by the Inspectorate for responding and reporting on violationsidentified either through the monitoring system or complaints from the public (para. 6.5(g)(ii)).Follow-up would first consist of advice or graded warnings, in an attempt to solve the problem ina non-confrontational manner, but in refractory cases the Inspectorate would, in cooperation withrelevant govermnent agencies, collect evidence to build up a case which it would then transmit tothe Attomey General's Chambers for prosecution.

4.37 During the second and third year of the project, the Program Officer forEnvironmental Quality, with the assistance of national consultants (two months), would organizeworkshops for government officials, local level policy makers, opinion leaders and the privatesector on the Inspectorate, its mandate, the monitoring program and enforcement regulations andprocedures.

4.38 Within three months of project start-up the Program Officer would be expected to goabroad for a three-month long practical attachment with an institution managing an environmentalmonitoring program and another institution with a mandate similar to the Inspectorate.

5. Enviromental Information Management (base costs: US$340,000)

4.39 Introduction. Implementation of the GEAP would require the existence of referencedata, both geographic and thematic, to serve as supports to NEAs technical functions, includingthe supervision of the EIA process, environmental monitoring, policy development andenvironmental education. Some of these data needs were identified during an assessment madeby the United Nations Soudano-Sahelian Office (UNSO) in August 1992. Many of these needsare presently unmet, because the agencies mandated to produce and maintain the data have notbeen able to do so. Implementing the GEAP will require that at least key sectoral databases beupgraded to meet GEAP needs and that they be widely distributed to serve as a support fordiscussion of environmental issues. USAID/The Gambia's Agriculture and Natural ResourceManagement Project, initiated in 1993, will meet part of these needs since it includes funds for a

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new aerial photographic coverage of all of the country, for updating of 1:25,000 base maps fromthese photographs and the digitizing of the updated base maps (Survey Department), and themapping of natural resources from the new aerial photographs (MNR). GTZ would use the newphotographic coverage to update current forestry maps. Nonetheless, major gaps remain,particularly regarding the upgrading land information and the conversion of data sets from analogto digital formats. These gaps would be filled by this component.

4.40 Because of the trans-sectoral nature of envi,onmental issues, NEA will have tointegrate information from many sources and in an eclectic range of incompatible formats andnomenclatures, thus hampering data integration and analysis, as well as data aggregation fromlarger to smaller scales. Accordingly, it is in NEA's utmost interest that a common informationarchitecture for spatial information in The Gambia be decided on and widely adopted, and thatthis architecture ensures coherence and compatibility among the various types of "enviromnentalinformation", and between "enviromnental information" and other types of information, mostparticularly the population census.

4.41 Environmental management would also require in-country analytical capabilities, forexample to project the likely impact on resources of development options, using models ofecological processes. Such capabilities are extremely limited in The Gambia and would need tobe developed.


a) coordination of the development and implementation of an EnvironmentalInformation System (EIS) strategy, including guidelines and setting priorities;and

b) development of national capabilities to conduct spatial analysis.

4.43 Project activities. The project would support the following activities:

In year 1: (July 1994-June 1995)- develop EIS strategy,- initiate the establishment of common data architecture and common data

dictionaries (nomenclatures),- identify key data sets to be produced or converted,- train NEA's Program Officer for Enviromnental Information Management,

In year 2: (July 1995-June 1996)- finalize the establishment of common data architecture and common data

dictionaries- production and conversion of key data sets

In year 3: (June 1996-1997)- organize workshops for public officials, private sector and NGOs,- train staff in key departments, private sector and NGOs to develop skills for the

analysis of environmental information.

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4.44 Project costs. The IDA credit would finance: (a) six months of international short-tern consultancies to help NEA develop and review an EIS strategy; (b) four months of out-of-country training for staff in NEA and in selected agencies on the management and utilization ofenvironmental information; (c) workshops to inform public officials and private sectordevelopment actors on the EIS; and (d) the development, upgrading and distribution of selectedkey data sets (including equipment).

Component 5: Environmental Information Management(US$'000)

CATEGORY 1994 1995 1996 1997 TOTALInternational consultants 0 30 70 0 100Training 10 5 5 0 20Workshops 5 5 5 5 20Data production/conversion contract 50 75 50 25 200TOTAL 65 - 115 130 30 340

4.45 Implementation. Successful implementation of the environmental informationstrategy is closely tied to effective coordination of all actors concerned. For this reason, theestablishment of the environmental information working group is a condition of effectiveness(para. 6.4 (c)). Production of digital base maps by the Survey Department, under the naturalresources information component of the USAID/The Gambia's ANR project is an importantproject assumption. Topographic base maps, in both digital and paper formats, would serve asthe standard support for all geo-referenced information used by NEA. Their systematic usewould be a cornerstone of NEA's policy to assure the compatibility of geographic informationfrom different sources and a key element of its EIS strategy. The widespread availability of thesemaps, at a cost equivalent to that of their reproduction, would further encourage their extensiveuse and is additional important assumption. It is also assumed that NEA will organize an EISworkshop prior to project implementation that would address most of these issues.

4.46 Work program. The Program Officer for Environmental Information Management,with the assistance of an international consultants (one months in the first year), would formulateand coordinate the implementation of an EIS strategy. The strategy would be available forreview by IDA within three months of project effectiveness (para. 6.5 (g)). A first version of thecommon data architecture would be available in the Documentation Center within twelve monthsof project effectiveness. On the basis of this strategy, NEA would then contract specific agenciesto develop or upgrade key data sets. NEA would not itself produce information, but ratherwould subcontract these tasks to other national institutions or private operators. Support to anypublic institution would conform to its statutory mandates. The officer-in-charge, would prepareterms of reference for each contract, with the assistance of the international consultant andregularly monitor progress of their execution. The international consultant would return for twoweeks in both the second year and third years to assist the officer-in-charge in reviewing the EISstrategy, to suggest improvements, and to advise the various actors involved in the production orthe conversion of environrnental information. A second international consultant (one month inboth the second and third year) would install computer equipment and Geographic InformationSystem (GIS) software in the agencies contracted to produce or convert information, as well asprovide training in the use of GIS. This consultant would also provide training to developanalytical skills in using GIS for selected staff from key departments, private sector and NGOs(two months in third year).

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4.47 The Environmental Information working group, under the leadership of the ProgramOfficer for Environmental Information Management, would coordinate all activities touching onthe production, management and use of environmental information in The Gambia. It wouldrecommend compatibility standards, clarify responsibilities in order to avoid duplication,promote the respect of statutory mandates, serve as a forum to express user needs and generallykeep all parties concerned abreast of new developments. NEA would take the lead role inpromoting "he acceptance and use of data standards recommended by the working group, as wellas of existing data sets developed according to these standards, by requiring that they be used forall work under its supervision, such as EIA, or under its commission, for example the monitoringof indicators, problem solving or the production of any new enviromnentally related information.

4.48 Within three months of project start-up the Program Ofiicer for EnvironmentalInformation Management and the Program Officer for EIAs would both be expected to go abroadfor a one month practical attachment with an institution m-ri- ing an environmental informationsystem. An additional two months of out-of-country training would be available for staff fromother govermnent agencies involved in the management of geographic information in digitalformats.

6. Contingency Planning and Emergency Preparedness (base costs: US$125,000)

4.49 Introduction. NEA will occasionally be confronted with environmental crises thatare both unpredictable in their occurrence and magnitude and infrequent. These include: (a)industrial accidents; (b) accidental leakage of toxic chemicals; (c) epidemics of water-bornediseases; (d) oil spills and other forms of marine and coastal pollution; (e) flooding caused byhurricanes; (f) severe drought; and (g) extensive bush tires. The capacity to respondappropriately and rapidly to these environmental crises in order to mitigate their effects willdepend greatly on adequate preparedness, including both the mobilization of resources and theprior existence of contingency plans and strategies. The latter falls in NEA's brief.

4.50 Objectives and expected results. The project component's output would include:

(a) a set of contingency plans to mitigate the effects of the major potential environmentaldisasters which could adversely affect The Gambia and its population; and

(b) networking mechanisms for the implementation of contingency plans.

4.51 Actvities. The project would support the following activities:

In year 1: (July 1994-June 1995)- identify possible environmental disasters,- prepare strategy for contingency planning and include an outline for one

contingency plan.In year 2: (July 1995-June 1996)

- complete contingency plans,- develop capacity for the implementat :f contingency plans,- organize multi-disciplinary planning workshop.

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4.52 Costs. The IDA credit would finance: (a) three months of international and feurmonths of national short term technical assistance to identify the major potential disasters anddevelop appropriate contingency plans to mitigate their effects; (b) workshops to assist in thepreparation of contingency plans; and (c) workshops for public officials and the private sector todevelop capacity for implementation.

Component 6: Contlnaency Planning and Disaster Preparedness(US$'O00)

CATEGORY 1994 1995 1996 1997 TOTALInternational consultants 20 30 110 L o :1 60National consultants 0 5 15 0 20Training 0 10 25 10 45TOTAL 20 . 45. . _ 50 10 125

4.53 Implementation. During the first year of the project, NEA would prepare a strategyfor contingency planning, including the circumstances, how and by whom enviromnental criseswill be officially declared, the extent of the Inspectorate's authority during a crisis, and anoutline of one contingency plan (para. 6.5 (g)(ii)).

4.54 Work program. NEA's Coordinator for Technical Services Network, in coordinationwith the agencies mandated to respond to the various crises, would identify possibleenviromnental disasters requiring contingency plans. The contingency plans would be preparedby a team of officers from relevant national agencies, under the technical guidance ofinternational (three months) or national (two months) consultants, and under the supervision ofthe officer-in-charge. At least one contingency plan outline would be available as part of thestrategy due within one year of project implementation (para. 6.5 (g)(ii)). The Coordinator forTechnical Services Network would also organize workshops for staff from technical agencies,public officials and the private sector to ensure that the provisions of the contingency plans areknown by all parties concemed. In addition, the Coordinator for Technical Services Network,with the assistance of national consultants (two months), would organize at least one simulationexercise, in order to develop capacity within line agencies and local communities to act in casesof emergency.

C. Project Implementation

4.55 Organization and rmanagement. The NEA will be the implementing agency for theproject. However, the inter-sectoral nature of many environmental concerns and the diverseinformation required for effective management mean that many other agencies must be involved,including the Ministries of Natural Resources, Agriculture, Local Government and Lands, Healthand Social Welfare, Trade, Industry and Employment, as well as national NGOs. Projectfunding would be used to support closely-related and clearly defined activities in some of theseagencies that lie within their present mandates. NEA would play a key role in coordinating theinvolvement of these agencies. Inter-sectoral working groups would be set up around specifictopics (environmental education, environmental information, policy development, etc.), in orderto simplify project management and enhance linkages.

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4.56 The project would take specific actions to develop NEA's capacity to fulfill its rolein project management. This would include issues related to the organization of the Agency,such as work program, human resources development, budgeting and management procedures.Project management arrangements would be further strengthened by the provision of functionaltechnical assistance and the integration of training with technical support. The Goverunent willgive assurances that at all times during project implementation, the Agency Director will beacceptable to IDA, and the Agency will be operated in an efficient manner (para. 6.5(d)).

4.57 Staffing requirements. As mentioned earlier, the NEA currently has twenty-fourstaff, with eight professionals (one Executive Director, one Division Director, one Registrar ofPesticides, and five program officers). Implementation of the project would require a sustainedcommitment of human resources by NEA over the course of the project in order to meet theproject's calendar. The Government has demonstrated its strong commitment to NEA's mandateby agreeing to a three year staffing plan (which includes additional positions) and the upgradingof all positions to salary levels which are higher than the civil service's albeit within the publicservice. As a condition of negotiations, Government has sent IDA official notification of theappointment of the Agency Director (para. 6.3 (a)). NEA would designate individual staffmembers for each of the project components as a condition of effectiveness (para. 6.4 (b)).Expected needs for the project in person-months over the three-year period of the project arelisted in the following table (takes into account other requirements on NEA staff time):

Position person monthsExecutive Director 12Director of Networks 18Coordinator of Inter-Sectoral Network 24Program Officer for Natural Resources 12Program Officer for Environmental Education 302 Program Officer(s) for Envir. Information 60

Management

Media Specialist/Education Assistant 36Coordinator for Technical Services Network 122 Program Officer(s) for Environmental Quality 72Program Officer for Envir. Impact Assessments 62 Inspector(s) 60

Administrator 24Assistant Accountant/Accounts Clerk 24Administrative Assistant 24Assistant for Public Relations (workshops) 24

35

4.58 Teclnical assistance and training. Technical assistance and training for each projectcomponent would be linked to the agency's work program and feed into the Agency's humanresource development plan, to ensure that they fully contribute to capacity building. Anindicative three-year human resources development program was reviewed during the appraisalmission (para. 6.2(a)), taking into account the need for increased technical and managerial skillswithin NEA and related institutions. As a condition of negotiations, NEA submitted to IDA anupdated human resources management plan, a draft manual of procedures and a detailed workplan for the first year (para. 6.3(b)). Subsequent annual work and human resource managementplans wol ld be prepared by NEA and reviewed by IDA during the fourth quarter of every yearto reflect the needs identified during supervision of project execution. Assurances will be soughtthat Government will make such staff available for the project to fulfill its objectives since it iscrucial that, at all times during project implementation, NEA be fully staffed with competentpersonnel and be provided with adequate budgetary resources to cover staff costs (para. 6.5(e)).

4.59 Details of recruitment of international and national consultants, together with thetiming of their inputs was finalized during the appraisal mission (para. 6.2(b)). The followingtable gives a provisional breakdown of the technical assistance required over the three-yearperiod of the project. Overall, there would be about 28 months of international consultancies,paralleled by about 55 months of national consultancies, mainly for short-term assignments.During appraisal, agreement was reached on a tentative schedule of consultant recruitment.Subsequent annual plan(s) and draft TORs for the recruitment of consultants would be preparedby NEA to reflect the needs identified during supervision and reviewed by IDA during the fourthquarter of every year.

Number of months of technical assistance per year(international/national)

Component Year I Year 2 Year 3 Total7/94 - 6/95 7/95 - 6/96 7/96 -6/97

1. Institutional support to GEAP 2.5/6 2.5/4 2.5/2 7.5/122. GEAP monitoring and policydevelopment 2/3 1/6 1/6 4/153. Environmental education 1/8 1/4 1/4 3/164. Monitoring of environmentalquality and enforcement 3/6 2/1 1/1 6/85. Environmental informationmanagement 1/0 1.5/0 2.5/0 5/06. Contingency planning anddisaster preparedness 2/1 1/1 0/2 3/4TOTAL 11.5/24 9/16 8/15 28.5/55

36

4.60 The following table provides a provisional breakdown of the training inputs requiredover the three-year period of the project.

Number of months of training assistance per yearComponent Year 1 Year 2 Year 3 Total

7/94 - 6/95 7/95 - 6/96 7/96 - 6/971. Institutional support to GEAP 11 14 5 302. GEAP monitoring and policydevelopment 2 2 0 43. Environmental education I I 1 34. Monitoring of environmentalquality and enforcement I I 1 35. Environmental informationmanagement 3 3 3 96. Contingency planning and disasterpreparedness 0 0 0 0TOTAL 18 21 10 49

4.61 Public access to information. Open and public access to environmental informationused for decision-making is a prerequisite for the full participation of society at large inenvironmental management. Unrestricted and full access (with appropriate cost recoverymeasures in place) to the environmental information held by NEA is important to promote theopen debate of environmental issues by all sectors of Gambian society and to increase the use ofenvironmental information in environmental management. Consequently, Government'sendorsement of a policy of full access to the results of environmental assessments, environmentalmonitoring and data held in the environmental information system will be a condition ofeffectiveness. (para. 6.5 (f)).

4.62 Implementation schedule. The project would be implemented over a three-yearperiod according to the timetable in Annex Four. To assess results achieved, the NEA willprepare quarterly and annual reports to be submitted to IDA no later than one month after the endof the quarter and no later than March 31 of the following year respectively. The quarterlyreport will report progress vis-a-vis the verifiable key indicators which appear in Annex Five.

D. Financing Plan

4.63 The proposed financing plan includes an IDA credit of US$2.6 million equivalent,which will finance 81 % of project costs, excluding parallel financing, or 58% including parallelfinancing, net of duties and taxes. IDA's financing will cover approximately US$1,928,800 offoreign costs and US$671,200 of local costs. The Borrower will be The Government of TheGambia, with the project loan funds to be made available by the Government to the NEA. Asregards Government counterpart funds, agreement was reached during appraisal that theGovernment will provide these funds by covering the incremental operational costs of the NEAduring the three years of the project life (para. 6.2(c)). Parallel co-financing totaling DM2.1million (about US$1.30 equivalent), amounting to 29% of total program cost, is in the process ofbeing finalized by the GTZ as a result of a separate project appraisal. The proposed financing isthe following:

37

Financing Plan(US$'000)

L ocal Foreign Total % of Total[ Government 600.0 0.0 600.0 13IDA 671.2 1,928.8 2,600.0 58

i GTZ 271.1 1,028.9 1,300.0 29Total Cost 1,542.3 2,957.7 4,500.0

E. Auditing and Accounting

4.64 Since NEA is a new agency, an adequate accounting system has to be set up. Anaccounting firm acceptable to IDA will be selected under PPF financing to help the Agencyestablish its accounting system. The appointment of this firm, and the signing of a relevantcontract with the firm, was a condition of negotiations (para. 6.3 (c)), and the setting up of anoperational accounting system will be a condition of effectiveness (para. 6.4 (e)).

4.65 The NEA's accounts will be audited every six months by an external auditoracceptable to IDA and the audited accounts would be submitted to IDA not later than one monthafter the end of the semester and not later than three months after the end of the year for theconsolidated annual audit. The preparation of relevant terms of reference and short list for anexternal auditor acceptable to IDA was a cndition of negotiations (para. 6.3 (d)). Theappointment of, and signing of a multi-year contract with, external auditors acceptable to IDA tocarry out semi-annual audits will be a condition of effectiveness (para. 6.4 (d)).

F. Procurement

4.66 Consultant services for technical assistance, training and studies will be procuredaccording to Bank Guidelines dated August 1981. Procurement under parallel financing willfollow GTZ procedures and will be carried out simultaneously with the IDA procurement.Contracts for vehicles, materials and equipment will be procured either through internationalshopping (at least three suppliers) or using the International Agencies Procurement Service Office(IAPSO) procedures. All contracts for consultants/technical assistance, training and studies willbe subject to prior review by th. IDA. The table below sum=mrizes the project elements, theirestimated costs and the proposed methods of procurement:

38

Procurement(US$'000)

Project Element Procurement Method Not IDA TOTALfinanced

ICB LCB Other .1. Goods

1.1 Vehicles/Equipment 150 90 240________________________ _ _____(150) _ (150)

2. Consultancies 1,705 850 2,555__________________________ ._______ __________ (1,705) (1,705)

3. Training/Workshop 445 206 651.___________________________ _________ (445) (445)

4. Incremental Operating 754 754Expenses (0)

5. PPF Refinancing 300 300__________________________ ________ __________ (300) (300)

TOTAL 2,600 1,900 4,500________-. (2,600) (2,600)

Amounts in parentheses are financed by IDA.

G. D)isbursements

4.67 The credit will finance 100% (see table below) of all the project componentsexcept for the category of incremental operational expenses, for which the project will financezero costs.

Disbursements by Category(US$'000)

Category Amount % Financed1. Consultant Services 1,705,000 100%2. Training/Workshops 445,000 100%3. Equipment/Vehicles 150,000 100%4. PPF Refinancing 300,000 Amount due

TOTAL 2,600,000 I _

39

4.68 This technical assistance project will have a life of three years; the closing date willbe December 31, 1997. The related disbursement profile shown below, in US$ million:

Estimated Disbursements(US$'000)

FY and Semester Disbursement CumulativeFY95 1st semester 367.84 367.84

2nd semester 366.34 734.17FY96 1st semester 408.50 1,142.67



4.69 The Government will establish a US$ Special Account, in The Central Bank of TheGambia, to which IDA will make an initial deposit of US$240,000 (estimate of about threemonths of expenditures). Upon effectiveness, IDA will advance 50% of the authorizedallocation. The remaining balance will be available as needed. This Special Account will bereplenished by IDA monthly according to disbursement regulations and will include acertification of the bank holding the account showing: (a) account activity since the lastreplenishment application; (b) the account balance; and (c) a reconciliation statement. Shouldany disbursement made be disallowed by IDA, the Government will re-deposit the correspondingamount to the Special Account. Given the availability of the Special Account, applications fordirect payment, Special Commitment, and reimbursement will normally be for US$24,000 (or10% of the initial deposit) equivalent mninimum. Disbursements from the IDA credit will be fullydocumented, except for payments under contracts of less than US$20,000 equivalent, which willbe reimbursed against certified statements of expenditures, for which documentation will beretained by NEA for review by IDA supervision missions and project auditors.

4.70 Stawus of project preparation. At the conclusion of the Sectoral Consultations inOctober 1992, the Government proposed to IDA the financing of a project to build on themomentum achieved by the GEAP process and the consensus achieved within the country of theimperative to have strong institutional structures for envirownental planning and management.Based on Government's request, IDA put in place a Project Preparation Facility in March 1993to fund some of the activities required to set up the NEA. There has been some delay, however,in the utilization of the PPF due to the fact that the NEA was not officially created until July1993, and that a scheduled move to NEA headquarters took place in late February 1994. Thisresulted in the purchase of equipment and other operational infrastructure also being postponeduntil this date. During the appraisal mission, agreement was reached on the following: atentative human resource development plan for the three-year project period, and a tentativeschedule of consultant recruitment. In addition, and as a result of the Objectives Oriented ProjectPlanning (ZOPP) seminar at the inception of the appraisal mission, agreement was reached on theproject monitoring indicators which will be tracked during project implementation (Annex 5).

40

Draft terms of reference for the major consultancies during the first year of the project and theagency strategy paper were also reviewed. A draft of the revised NEMA was shared with IDAin November 1993 and comments from IDA and GTZ (IUCN) were incorporated into the latestdraft. The revised piece of legislation was finalized and presented to NEMC in January 1994 andwill be presented to Parliament in March 1994.

4.71 Project supervision. Project supervision would be closely linked to theimplementation schedule discussed above and would involve monitoring a number of keyindicators determined during appraisal (Annex 5). Details of the timing of supervision missionsand the skills that are likely to be needed for supervision are presented in Annex Six. Therewould be four missions during the first year of the project to provide close supervision andassistance during the critical start-up period. The Multi-Donor Secretariat (MDS) for NEAPswill play a support role in these supervision activities.

4.72 In an effort to ensure proper coordination of donor activities, at least one supervisionwould be undertaken jointly each year with GTZ and USAID/The Gambia.

4.73 Mid-terni reviewv. No later than 18 months after the project becomes effective, amid-term review would be held, involving NEA and related agencies as well as donors (IDA,GTZ and USAID). To facilitate this review, NEA would prepare a mid-term project report, tobe distributed to all participants one month prior to the start of the review (para 6.5 (h)). Thereview team would review progress against the key indicators monitored during supervision(Annex 5) and towards the revision of key policy and legislative measures set out in the GEAP,that are of particular relevance to project supported activities. The review would focusparticularly on progress in capacity building, staff development as well as the functionality andefficacy of the environmental management systems put into place. The mid-term review wouldalso lead to changes in project design if they are thought to be necessary, with recommendationsfor the implementation of the proposed changes.

4.74 Completion Review. The project completion review would focus on theachievements of the project and its impact in relation to objectives. In particular, considerationwould be given to the effectiveness of the capacity building for environmental managementinitiatives. A project completion report would be prepared, presenting findings andrecommendations. The review team would be headed by a member of the NEA and wouldinclude representatives from all the other agencies as well as one recognized expert inenvironmental planning. Additional resources for the team could be provided by the Multi-donorSecretariat and the Network for Environment and Sustainable Development in Africa. Terms ofreference for the team and its membership would be agreed to, and the project completion reportwould be submitted to IDA no later than six months after completion of the project.

41

V. BENEFITS, JUSTIFICATION AND RISKS

A. Benefits and Justification

5.1 The project is fully consistent with the Bank's strategy for The Gambia, whichstresses the need to strengthen the institutional framework for environmental management and theimplementation of the GEAP. The project also supports Government's strategy for thesustainable use of the environment, by financing the implementation of important aspects of theGEAP. The Gambia is one of the first group of countries to have completed a NEAP and is onein which Govemment ownership of the process is very strong. Government commitment tointegrating environmental issues to the developmeiit planning process is reflected in the decisionto create this new agency and place it under the auspices of the Office of the President. IDA hasstrongly supported countries' efforts to prepare and implement NEAPs; The Gambia's NEAPprocess can serve as a model to other African countries involved in similar planning processes.The project actions will ensure that the proper institutional, legislative and functional frameworksare in place to address the critical environmental issues facing The Gamnbia and that activities areimiplemented to reverse the trend of environmental degradation.

B. Risks

5.2 Risks are associated with the effectiveness of the environmental management system,in particular the ability to achieve effective inter-sectoral coordination of actions. However, theGovernment has expressed its commitment to this integration of environment into the sectoralplanning process through the GEAP and through the creation of the NEA. Also, the capacitybuilding focus of this project is designed to assist not only the st- ff of NEA, but also withinother sectoral ministries whose work requires attention to envir imiental considerations. Thereare risks related to the general lack of knowledge of environm. -ital issues and limited capacity tohandle technical environmental issues. The project directly addresses these shortcomings throughits focus on technical and managerial training of management and staff of the NEA and throughthe provision of technical consultancies to transfer competence.

C. Impact on Women

5.3 The project will contribute to a greater ptblic awareness and undenctanding ofenv onmental issues in The Gambia; in particular, rural populations will be made aware of therelationship between their utilization of the natural resource base and the need to manage thoseresources properly for future generations. Women will be particular target groups for thismessage in their role as educators of future generations.

42

VI. AGREEMENTS REACHED AND RECOMMENDATION

6.1 The following event took place before appraisal:

(a) Government created the NEA in August 1993 (para. 2.22).

6.2 The following agreements were reached during appraisal:

(a) agreement on an indicative human resources development plan for the three-yearperiod of the project (para 4.58);

(b) agreement on tentative schedule of consultant recruitment together with timing oftheir inputs (para. 4.59);

(c) agreement on Government counterpart covering all incremental operating costs of theNEA during the three years of project life (para. 4.62);

(d) agreement on the conditionality to be attached to the main activities carriedout with GTZ financing (para. 6.5(a) and 6.5 (c); and

(e) project monitoring indicators (see Annex 5).

6.3 The following were conditions of negotiations:

(a) the official notification to IDA of the appointment of the Agency Director(para. 4.57);

(b) the finalization of a human resource management plan, a manual ofprocedures and a detailed first-year work plan for NEA (para 4.58);

(c) the appointment of, and signing of a contract with, an accounting firm acceptable toIDA to setup NEA's accounting system (para 4.64); and

(d) the preparation of terms of reference and short list for an external auditoracceptable to IDA (para. 4.65).

6.4 The following are conditions of effectiveness:

(a) signature of the grant agreement with GTZ by Govermnent (para. 3.9);

(b) NEA has designated required staff members for each of the project components (para4.57);

(c) working groups have been established for environmental education andenviromnental information (paras. 4.25 and 4.45);

43

(d) the appointment of, and signing of a multi-year contract with, external auditorsacceptable to IDA to carry out semi-annual audits (para. 4.65); and

(e) setting-up of an operational accounting system (para. 4.64).

6.5 The following assurances are reflected in the legal documents:

(a) NEMA revisions will be shared with IDA for review and comment (para. 2.22);

(b) NEA will submit to IDA for review and comment updated human resourcesmanagement plan, annual work plan(s) (para. 4.58), consultant recruitmentschedule(s) and draft TORs (para. 4.59) for the second and third years of the projectduring the fourth quarter of the preceding year (para. 4.58);

(c) Govermnent will put in place EIA procedures that are acceptable to IDA, no laterthan 18 months after credit effectiveness (para. 3.9);

(d) at all times during project implementation, the Agency Director will be acceptable toIDA, and the Agency will be operated in an efficient manner (para. 4.56);

(e) at all times during project implementation NEA will be fully staffed with competentpersonnel and will have adequate budgetary provisions to cover staff costs (para.4.58);

(f) results of EIAs, environmental monitoring and data held in the EIS will be madeavailable to the public at large (para 4.61);

(g) the Government will: (i) submit within three months of project effectiveness,strategies and action plans for environmental education (para. 4.26) and anenvironmental information system (para. 4.46); (ii) submit within one year, astrategy for environmental monitoring (para. 4.34) and contingency planning,including one draft plan (para. 4.54) as well as establish the Inspectorate, define itsstatus (para. 4.33) and its operating procedures (para. 4.36); and

(h) in anticipation of the mid-term review, which would take place no later than 18months after project effectiveness, NEA would prepare a mid-term project report tobe distributed to all participants (IDA, GTZ, and other Government agencies) onemonth prior to the start of the review. The review would focus particularly onprogress in capacity building and staff development, as well as the functionality andefficiency of the environmental management systems being put into place (para4.73).

6.6 Subject to the above conditions, the proposed project is suitable for a Credit of SDR1.9 million (US$2.6 million equivalent) to the Republic of The Gambia on standard IDA terms.

44

ANNEX 1

45

OFFICE OF THEPRESIDENT

NATIONALENVIRONMENTMANAGEMENT

COUNCILI

NATiONALENVFONENT

Coordinstor CoordinatorTechnlcal Inter-Sectoral Administrator

Services Neto Network

Environmental Environmental GeneralLegislation Education Administration

Environmental Environmental Hu~ma ReOcekImac Assessment Information Development

Services

EnvironmentalL Natural Resources FwQuality Mngmn

Public Reations

46

ANNEX 2

4.7

GAMBIA ENVIRONMENTAL ACTION PLAN

(GEAP)

I. SUMMARY

1 Introduction. The Gambia Enviroranental Action Plan (GEAP) is intended toprovide a framework for national environmental policy planning and iuatural resourcemanagement decision making on a continuous basis. It was initiated under the auspices of theNational Environmental Management Council and pr-epared by the Environment Unit of theMinistry of Natural Resources and the Environment (now the National Environment Agency).The CEAP provides a review of the existing envirownental situation and outlines approaches todeal with the problems, including institutional changes and other required actions.

2. The State of the Environment in The Gambia. Major environmental problemsimnpacting The Gambia stem from the effects of a rapidly growing population which is makingunsustainable use of the natural resource base. The results of this population increase, coupledwith widespread poverty, are: (a) uncontrolled urbanization; (b) depletion of the naturalresources base, particularly forests and pasture lands and decline in soil fertility through poorfarming practices and (c) poor management of natural resources whica has led to destructive bushfires, exploitative tinber cutting, depletion of the vegetation cover and intensive grazingpractices. Management of these issues has been handled haltingly by a wide array of publicinstitutions, but coordination and information management has been poor and the problems havecontinued to worsen.

3. Environmental Policy. While economic performance has improved over the pastyears due to Govertment's efforts, environmental degradation has increased, posing a threat tocontinued economie growth. Attenpts to deal with environmental problems within a policyframework date to the Banjul Declaration of 1977. A series of institutional developmentsfollowed, including the creation of the Environment Unit and the enactment of the NationalEnvironment Management Act of 1987. Government recognized that a sectoral and policy-basedappreach to environmental protection and natural resources management was inadequate. Ittherefore decided to prepare a national environmental action plan, in order to develop a cleardefinition of enviromnental priorities consistent with the overall goal of sustainable development.This process culminated in the Gambia Environmental Action Plan (GEAP), which was approvedby Cabinet in July 1992.

4. GEAP Strategy Framework Sununa. The GEAP contains a series of policyobjectives, programs and implementation strategies aimed at ensuring environmentally safedevelopment and based upon an analysis of the environmental situation of The Gambia, containedin the GEAP. The following is a summary of the framework for action as laid out in the GEAP.

48

II. POLICY OBJECTIVES

OBJECITVE A: TO CONSERVE AND PROMOTE THE RATIONAL USE OF NATURALRESOURCES FOR THE BENEFIT OF PRESENT AND FUTUREGENERATIONS

Problems addressed:* bushfire damage* drought and growing scarcity of water resources* inadequate land use/natural resource planning* degradation of vegetation and loss of forest cover* soil degradation and reduction in fertility* reduction in fish stocks* coastal erosion

OBJEC'TIVE B: TO PRESERVE AND IMPROVE THE HEALTH AND QUALITY OFLIFE OF ALL GAMBLANS THROUGH SOUND ENVIRONMENTALMANAGEMENT

Problems addressed:e water supply reduction and water-borne pollution- poor sanitation- waste management and disposale deleterious use of inorganic fertilizers and groundwater pollution* inappropriate use of pesticides and resultant contamination* rapid and uncontrolled urbanization* coastal pollution

g roundwater pollution and salinizatione lack of adequate physical planning* inapproprlate and inadequate infrastructure

OBJECTIVE C: TO PRESERVE AND/OR RESTORE THE EQUILIBRIUM OFECOSYSTEMS

Problems addressed:* degradation of vegetation and loss of forest cover* loss of biodiversity and wildlife* soil erosion and loss of production capability* degradation of coastal areas

49

OBJECTIVE D: TO STRENGTHEN THE INSTITUTIONAL FRAMEWORK FORENVIRONMENTAL COORDINATION AND MANAGEMENT AT THENATION, REGIONAL AND GLOBAL LEVELS

Problems addressed:* lack of information for enviromnental planning and mangemente inadequate national environmental policy and legislation* land tenure issues* poor coordination of implementing agencies* lack of coordination with non-governmental organizations* transboundary movement of hazardous waste* regional coastal erosione atmosphenc and waterway pollution* inadequate technology transfer

OBJECTIVE E: TO INCREASE THE ENVIRONMENTAL AWARENESS ANDUNDERSTANDING OF THE PUBLIC AND BRING ABOUT EFFECTIVEPUBLIC PARTICIPATION AND COMMUNITY INVOLVEMENT INENVIRONMENTAL MANAGEMENT

Problems addressed:* inadequate incentives for comnunity participation in natural resource

mnagement* lack of environmental awareness among the populatione insufficient environmental education in the school system

OBJECTIVE F: TO ENSURE THE INTEGRATION OF ENVIRONMENTALCONSIDERATIONS IN ALL DEVELOPMENT STRATEGIES ANDRELATED ACTIVITIES

Problems addressed:* uncontrolled industrialization* urban and rural polluton* commercial over-exploitation of natural resources* lack of environmental assessment procedures and legislation* indequate environmental planning

50

OWBECTIVE G: TO ACCELERATE THE ADOPTION OF ALTERNATE SOURCES OFENERGY

Problems addressed:* inadequate fuelwood supplies and deforestation* pollution from use of fossil fuels* inadequate promotion and use of renewable energy resources (solar, wind, etc.)

m. PROGRAMMATIC OBJECTIVES:

A. Actions to Address the Poli,y Issues

1. Natural Resources Management Program* assist and encourage producers to adopt improved land and resource management

practices* manage coastal and freshwater resources* develop Government/NGO partnerships for natural resources management* collect, analyze and use data for nantral resources management and planning* develop local area integrated management plans

2. Environmental Health Program3 improve waste management in urban areas

-control pollution related to hazardous chemicals and industry- increase comnunity involvement in controlling adverse environmental problems

3. Energy Programe introduce new and renewable sources of energy to substitute for fuelwoodi increase the amount of cultured fuelwood available through community forest

managemnent programs and reduction in depletion of natural forests

B. Proam Implementation Strategies: Policy Level Changes

1. Insitonal Framework Development* improved inter-sectoral coordination* improved NGO coordination* modified institutional structures for environmental planning and management* improved and codified environmental legislation• improved enforcement of regulation* study of influence of property rights on naural resources management

2. Fisca Measures for lmproved Environmenal Protection* improved and rationalized tax and tariff regime* appropriate use of fines and penalties for regulatory breach

51

3. Public Awareness* media campaigns* environmental extension* environmental education in schools* environmental programs aimed at women, teachers and media practitioners

4. Environmentat Informadon Management* data standardization* data collection and dissemination* development of appropriate EIS/GIS for The Gambia* support for the Documentation Center of the National Environment Agency

C. Projects which Support Required Actions

There are many ongoing projects which support the policy objectives as outlinedabove. They have been taken into account and will be built upon as the investment program forGEAP implementation is designed.

D. Cross-Sectoral Policy Support Projects

* Institutional Support Projects for Environmental Management* Projects to Develop Environmental Information Systems and Data Base* Projects for Environmental Education and Public Awareness

E. Institutignal and Legal Framework for IUloementation

The institutional and legal framework recommendations in the GEAP call for a

revision of the institutional structures and a strengthening of the enviromnental coordination,

regulatory and monitoring functions. The Environment Unit has therefore been succeeded by a

National Environment Agency, under the auspices of the Office of the President.

52

a X3NNV

THE GAMBIA-CA-PACITY BUILDING FbOR-ENVIRONMENT MANAGEMMNT-- I

= . . ..~*AR C U_ u

International Consultants 70 90 90 250National Consultants 15 25 20 10 70Training 25 50 50 25 150EquLpment/Vehicles 40 40 20 0 100Audit a10 is is 10 soIcremental Operating Expenses 97 198 203 102 6Q00

Total ____*.2S7 418_ 3~98 17 1,2

._ Me

International Consultants 20 20 20 20 10National Consultants 20 25 20 10 75Training 8 1 5 2 20Workshops 3 2 7 2 20Studies 15 35 37 35 100

Total 63 96 87 49 295

Ieaolouas 30 2 10 60

Intornational Consultant. 0 50 30 10 1060

National Consultants 20 30 20 10 80Training 5 8 3 3 2SWorkshops 10 18 15 3 20Public awareness campaign contr 35 68 65 33 200

Total 70 140 123 63 40S

International Consultants 30 30 30 10 120National Consultants S 13 15 8 40Training a 10 15 0 4.tguL n a is is 10 soWorkshops 10 20 20 10 60*Monitrn Contracts 30 65 70 35 200

Total 90 178 168 2o 515

n ~~~~~~~~~~~5

International Consultants 10 so 30 10 100Training 5 8 5 3 20Workshops 5 a 5 3 20Data production/conversion cont so 75 so 25 200

Total 70 140 90 40 340

Xnternatlonal Consultants 20 30 10 0 60National Consultants 13 is S 0 35Training 5 10 5 0 20Workshops 3 5 3 0 10

itotal 40 _63 23 0 125

54 --

ANNEX 4

55

THE tHFA- CsAcA Y B DIs iO FOR E ieeoN ALCENMXT VA PROECT 1994 1886 lo 1998 99

___________________________ J AON|D J IFMIAIMJ JIJIA S|ONID J FIMIA|M|J |J A801N|D J FIM|AMJInstitutional Support to the GEAP

AcqXuisitionof aquipttwwnt RR|___ ______Zrr rIL _I Tr*it* of NEA manaetomnt I Mill 1__L_____|_4A L-L- I I I _ Pisparstion of trniing materil end taining of NEA staf ll I

Trainkng of .toff In key Instilutions

GEAP Monitoring end Policy Development

Sectora policies identilic tion

* ¢vi ion_Studies idenitication

- tulilsnelitI I I I I

Reponts

Environmental EducationPieparetion of strategyPublic owerenss cam'gn regarding GEAP end NWAP

Public *w eness carmpaigne on specific themes

Regionl en sectoral workshops

Monitoring of Environmental Quglity and Enforcement

Deveopmnt of rmontoring system

Establishnent ol h npectoreto and trkinung oe telt

Estashmnent of monitoring capabiliies

WorkshopsOperation of monitoring sytem

Environmental Information Management

Development of EIS etrategy and guidelines

Treining of NEA inlormation office

Cpoeion of koey dat osete

Workshop

Develpment of analytical skilII

Contingency Planning and Disaster Preparenessr

Peprdation of contingency plan

Workshio|-Sirr"ltion exercise,

Matri of Perfomasuce Judicators

COMPON NT AND OJECTIVE S.. END YEAR ONE END YEAIA TWO . YEAR THREEt. utslls e,lpal tot the kt_ lneaUtlos d tW GtSA'1.I SkWi of tWAst08t bapoved 1.,11.1 Alt.11 two ess tall Ittt bsheE t l.t . et 1.1.1 At sheI 4 stliakin Pro" i.t.t At4 stttlsUk s pt*a i wau oat

t.n1. NS mewA0.o

t.l.2 Akmdm

tt qnutt,on duh tat tgo tA1.1.2 lFU tt twl o pmr5icl5 h a tam bu t..2 Al gU55l

.m2werbo A cs o nAe wesonoft ndcctl d st a tNp 1e1

blwo P ttal mniPaS on commnukton Aku ad -aIlInepal %Wulslige 1.1.3 AN 5508* San teceelved conupstow tish*s1.1.3 ,ttnbu tin COsPstes uacy has "tedd 1.1.3 Cotpu tas Itey tsarv t tconllsw.1ed 1. SeAt te 4 stalnad itn.derdtson1.1.4 Al b$m Exec xue betos, Deputy Ctttt 1.1.4 As l"st 2 Utall Utnd in errustimonatd FtnntW Otilcot sieaelt h ati scenki On1.2.1 ISorntel cusklosA 4vpsed and b|.2 Stet of .th..

orettsort d_y Jdm ddvy by M1M1Iselned 1.2.2 Al kW on voskid conducted AMt

1.2.2 As st on, woolsloop ondut gmcnWavir t dek olticmslorpocmnts Jo 1.2.2 Al balt om WootkshIop cnucted loar swluosnlt deuk o0Ism agn"

a dek olt_ sethscvposlds In MO agendte ag4Ie. op 81.4 w.lotttl cWt SWr dam"tnakw on &VAMikAWsne mawsgan elad.3 MIS la p ot.

5. txe*1.) NK. tlAgMu t _naso Stls

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.

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59

ANNEX 6

60

TIMING AND COMPOSITION OF SUPERVISION MISSIONS

APPROXIMATE ACTIVITYDATE EXPECTED SKILLS

(SW)September 1994 Supervision Mission Urb. Fin. Analyst (1)

Proiect Launch Workshop Environmental Specialist (1)Objectives:a) Explain project objectives to participants (NEA.

Government agencies, donors)b) Review effectiveness:

i) Achievement of credit effectivenessii) Review management and accounting proceduresin NEA

December 1994 Supervision Mission Urb. Fin. Analyst (1)a) Review project progress Environmental Specialist (1)

l__________________ b) Review outstanding issuesMarch 1995 Supervision Mission Urb. Fin. Analyst (1)

a) Review project progress Environmental Specialist (1)l__________________ b) Review outstanding issues |June 1995 Supervision Mission Urb. Fin. Analyst (1)

a) Review project progress Environmnental Specialist (1)b) Review outstanding issues 11

Sept/Oct. 1995 Supervision Mission Urb. Fin. Analyst (1)a) Review project progress Environmental Specialist (1)

l_________________ Db) Review outstanding issuesDecember 1995 Supervision Mission Urb. Fin. Analyst (1)

a) Review project progress Environmental Specialist (1)b) Review outstanding issues

March 1996 Joint IDA/GovtlGTZ Mid-Term Review Urb. Fin. Analyst (1)a) Review overall project progress and adequacy of Environmental Specialist (1)institutional arrangementsb) Review project accounting, SOE and

disbursementsc) Review project's overall impact

May/June 1996 Supervision Mission Urb. Fin. Analyst (i)a) Review project progress and imnplementation of Environmental Specialist (1)recommendations from the mid-term reviewb) Review outstanding issues

September 1996 Supervision Mission Urb. Fin. Analyst (1)a) Review project progress Environmental Specialist (1)b) Review outstanding issues

December 1996 Supervision Mission Urb. Fin. Analyst (1)a) Review project progress Environmental Specialist (1)

_ b) Review outstanding issuesMarch 1997 Supervision Mission Urb. Fin. Analyst (1)

a) Review project progress Environmental Specialist (1)b) Review outstanding issues

June 1997 Supervision Mission Urb. Fin. Analyst (1)a) Review project progress Environmental Specialist (1)b) Review outstanding issues

September 1997 Final Supervision Mission Urb. Fin. Analyst (1)_ Environmental Specialist (1)

Staff inputs in staff weeks (sw) to supervision are as follows: eight sw for FY95. eight sw for FY96, eight sw for FY97.two sw for FY98.

61

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