Steps and tools towards integrated coastal area management

\‘,L/ I _--. Manuals and &ides i . 9 --x. % ’;cor PHI STEPS AND TOOLS TOWARDS INTEGRATED COASTAL AREA MANAGEMENT . ’ Wehave become masters of technical discovery inn and ovation. Wemustnowsetourselves becoming to masters of social /institutional discovery innovation and ’ Phua KaPhap Suk lfremer UNESCO2001 The designationsemployed and the presentation of the material in this document do not imply the expressionof any opinion whatsoever on the part of the Intergovernmental OceanographicCommissionof UNESCO, concerning the legal status of any state, territory, city or area, or their authorities, or concerningthe delimitation of its frontiers or boundaries. The views expressedin this document do not necessarilyrepresent the views of the Intergovernmental OceanographicCommission UNESCO. of Forbibliographic purposes document this shouldbe citedasfollows : Henocque,Y. and Denis,J. (editors) A Methodological Guide: Stepsand ToolsTowards Integrated CoastalArea Management IOCManuals and GuidesNo 42. UNESCO 2001 Publishedin 2001 By the United Nations Educational,Scientificand Cultural Organization 7, Placede Fontenoy,75700 Paris Printed in AQUALOG’s Workshops UNESCO 2001 Printed in France Thisguide was compiledand edited by : Jacques Denis and Yves Henocque, of lfremer with the participation of the following contributors : Martine Antona, CIRAD-Tera,TA 60115, J. F.Breton, 34398 - Montpellier Cedex5 Av. Tel : 04.67.59.37.07, : 04.67.59,38,27, Fax E-mail: antona@cirad.fr Julian Barbiere,COI-UNESCO, rue Miollis, 75732 ParisCedex15 1, Tel : 01.45.68.40.45, : 01.45.68.58.12, Fax E-mail: j,barbiere&unesco.org Paul Barusseau’, Laboratoire de sedimentologie marine, Universitede Perpignan, 52 avenue de Villeneuve, 66860 Perpignan Cedex,Tel : 04-68-66-20-57, e-mail : brs@univ-perp,fr. Louis Brigand2,IUEM,TechnopoleBrest Iroise,29280 Plouzane, Tel : 02-98-49-86-87, e-mail : louis.brigand@univ-brestfr Gilbert David, IRD,BP5045, 34032 Montpelliercedex 1, Tel : 04-67-63-69-81, : 04-67-63-87-78, fax e-mail : david@mpl-ird.fr Olivier Dedieu : CEPEL, Facultede Droit, 39 rue de I’llniversite, 34060 Montpellier Cedex Tel : 04 67 61 54 60, fax : 04 67 61 54 82, e-mail : dedieu@sc.univ-montpl .fr JacquesDenis : IFREMER, laboratoire cotier, centre de Toulon La Seyne,BP330 83507 La Seynesur Mer Cedex, Tel : 04-94-30-48-20, : 04-94-06-55-29, fax e-mail : jacques.denis@ifremer.fr Wile Grignon-Logerot, Ministere de I’Equipement, des transports et du Logement, La Grande Arche, 92055 La DefenseCedex, Tel : 01-40-81-94-86, : 01-40-81-82-92, fax e-mail : cecile.grignon-logerot@equipement.gouv.fr YvesHenocque3 IFREMER, : laboratoire cbtier, centre de Toulon La Seyne,BP330 83507 La Seynesur Mer Cedex, Tel : 04-94-30-49-07, : 04-94-06-55-29, fax e-mail : yves.henocque@ifremer.fr Bernard Kalaora : Conservatoiredu Littoral et des RivagesLacustres, quai d’Austerlitz, 75013- Paris. 36, Tel : 01-44-06-89-00, : 01-45-83-60-45, Fax e-mail : cel.paris@wanadoo.fr Marc Lointier : IRD,Maison de la teledetection, 500 rue JFBreton,34093Montpellier Cedex Tel : 04 67 54 87 03, fax : 04 67 54 87 00, e-mail : lointier@teledetection.fr Under the IOCFrenchNational Committee and FrenchCommitteesof /HP,IGCPand MAB programmes Supported by the UNESCO FrenchCommissionand The FrenchMinistry of foreign Affairs ‘FrenchNationalCommittee the InternationalGeological for Correlated Programme (I.G.C.P.) ‘FrenchNationalCommittee the Manand Biosphere for Programme (M.A.B.) IFrenchNationalCommittee the Intergovernmental for Oceanographic Commission (I.O.C.) 4French NationalCommittee the InternationalHydrological for Programme (I.H.P.) Cover illustrated Jacques ta Seyne, by Denis, France CONTENTS ACKNOWLEDGEMENTS PREFACE WORKMETHOD INTRODUCTION PHILOSOPHY APPROACH HOWTHEICZMPROCESS UNFOLDS 5 6 7 8 8 9 13 13 13 19 25 25 33 41 46 46 50 54 58 59 61 PHASE PRELIMINARY I: IDENTIFICATION Step ICZMprocess 0: initialization conditions Step : Feasibilityofthe 1 implementation ICZMprocess ofan PHASE: PREPARATION II Step2: Socio-environmental evaluation Step3: Desirable possible and outcomes Step Elaboration management 4: ofthe plan PHASE: IMPLEMENTATION III Step lnstitutionalization 5: Step6: fnforcementofthe managementplan Step7: Evaluation etadjustment ACRONYMS EXPANDED BIBLIOGRAPHY GLOSSARY ACKNOWLEDGEMENTS Wewould like to convey sincere our gratitudeto the following contributors : Organizations which repliedto our questionnaire : l Le Part National de Port-Cros(fort-00s National Park), La Cellule d’Environnement Littoral et marin (CELM)(The Coastaland Marine EnvironmentalCell), Le SyndicatIntercommunalde I’Aire Toulonnaise(SIAT) (ToulonArea Inter-Municipalities Corporation), CREOCEAN Engineering consultancy,Montpellier branch. l l l People took part in validatingthis manual: who l GuirecQueffeulou, SIAT, Direction du Contrat de Baie de la rade de Toulon, Toulon FrancoisMahoux, CELM,Toulon, Luc Hardy,CEPRALMAR, Montpellier, Pierre Boissery, Agence de I’Eau RMC,MissionLittoral, Marseille, Nathalie Beaulieu,Centre International D’agriculture Tropicale(CIAT),Montpellier, Marine Musson,Conservatoiredu Littoral, Rochefort sur mer, Catherine Gabrie,WWF,Marseille, Andre Dauphin& Universitede Nice Sophia-Antipolis,departement Geographie, Nice, l l l l . Philippe Deboudt, Universitede Lille I, UFRgeographie, Villeneuve d’Ascq, l l l And thosewho helpedwith the rephrasing correct and spelling: l Danielle L’Hostis,IFREMER CoastalLaboratory Assistant,Toulon ChristopheValia-Kollery,ScienceCouncellor,UNESCO FrenchNational Commission l ‘I ‘^‘,,,,:~~~~,.,)q!‘:i‘:i,‘,“:‘,,’:,.:~. I ,,: :1 q:‘*,&? :‘“) ,~,, ,,, jl ,:.z~,i, ,1 20,; ,I I*$ i* ,(/, ,, i’fr: ,, r( ,, ,, ,I, !J :~: /,/ / PREFACE It is a necessity,not a truism, to say that coastal areas are the placeswhere demograpl&, ~o~~~~~; and environmental pressuresreach their maximum.The spaceis already subject to conflicts of use ~~~~~~~~~~n~ such as fishing, fish-farming, industry, shipping, and recreation. In addition, all the will canvarge : changes in sea level, climatic changes,etc. The sustainablede there ‘,&“, j”. depends the way in which the use of the coastalareasis approached, not only upon ~~..~ also Governmentsand international organizations. Hence the need to advice t ‘,’ ’ ~~~~~~ of the coastal milieu, whoever they may be. This was the concern uppermost in our minds when we at the French National Corn t~~g~~~r~rnental Oceanographic Commission (IOC) decided to support the publication of Integrated Area Management(ICAM).The first volume publishedby the IOCdescribedthe Coastal of~~M, The secondvolume describes ICAMprocessin greater detail, citing examplesof the proc~~~~~~~~~, the from the experienceof the contributors to the guide. The work that went into the publication of both volumesof the “Guide” is remarkable in many re~~~~,~o begin the feedback isfrom a variety of experiences.Moreover,it isthe product of inter-disciplina~~~~~~~~ with, involving specialistsfrom all the Frenchagenciescompetent in the field. Lastly,it representsthe cooper$F of the national tommittees of UNESCO’s main scientific programmes(IOC,IHP MAB, IGCP): a cooperatioti@&is exemplaryas concernsother subjectsrelated to sustainabledevelopment. It is my personal hope that the methodology outlined in this Guide will reach far beyond the gro wrote it. Ideally, it will enable usersto elaborate further, more specificguides, and will help set up local especiallyin developing nations, The first volume of the Guide was so successful that the second allo hopes.This is only a beginning, not an end. Indeed,this is a beginning which highlights the role of UNESCO’s coastalprogrammeswith the IOC,in pa&cular the one entitled “Integrated CoastalArea Management” (ICAM) and the coastal module of the “Glob& OceanObservingSystem”(GOOS). programme (IOUICAM)is a meansof studying tools for integrated coasOne tal management, to which the Guide is a fundamental contribution. The other is concerned with operational implementation of monitoring means,the tools for such management.This is the future perspectivewe must all aim to achieveto make every dimension of modern oceanography operational. Fromthe global outlook to the local one, the theory must becomea tangible reality for citizensof coastalnations,enabling them to face the challenges of global change. We owe specialthanks to all the contributors to this Guide, and especiallyits coordinators, YvesHenocque j * >ati,Jacques Denis,for the quality of the work they have accomplished. Without their personalcommitment, the ‘.,,,, --,,,,, ”(_ ‘$ : I’ ,‘~~~~~ of their agencies,and that of the Secretariatof the IOC,nothing could have been done. _ s’: ;,~ * ‘: ,.I_ ’ f /. ,.(3 , 1 >,, $~.,<..‘“k:” ,,:.”‘,“~‘:)1 ,,,,, c(;“‘* I FrancoisGERARD, Presidentof the FrenchNational Committeefor the IOC. ~ s,,,1;1:<:* : z/..:^‘:i. *)1 ,’ ,’,-,hZ. /_“l ,“‘ :..g ‘. .‘,$& ,.p<., 5z‘xi::.s a:+ ‘*.a ,\! ,G’I‘!*w,“,,,;g&~’ &,,&+ip> :I,,,,:;tr:: ‘:.$ ‘;&i ‘),.,I,“, IO,j ;#I;:q:,r~#‘!‘~ ,,,, 6 /’ I’ ‘I’ ,,,,, (, ‘,,I /11, /’,I;I,i I,! ), I, ‘_ ,’ ” < Working Method This second volume of a guide to integrated coastal zone management opens a new dimension by discussing the processesinvolved in a more complete and dynamic way than the first, To fulfil1 this requirement, an expanded work group, drawing upon the knowledge of experts in political science,economics,and sociology, devoted over two years of effort (1999 2001) to its completion, following a disciplined working method. A dual principle prevailed in the application of this method. On one hand, it prescribedan approach structured as a seriesof steps,and on the other, it demanded that real situations be brought to light, emphasizing casestudiesof experiencewith or analysisof coastal management, - a second analytical phase,intencled to facilitate the collection and organization of information likely to add to the contents of the guide. A comparative analysiswas then undertaken, according to two axes, one “vertical” and the other “horizontal”. Vertical analysisconsistedof studying a total of twenty known or experienced cases of management, sifting them through a single analytical grid as a meansof comparison The casestudiesthat were processedin this way contribute to a management protess to varying degrees, since many of them are not yet entirely accomplished or finished. Horizontal analysis then consisted in considering all of the cariestudies according to phase, in such a way as to identify and select the most relevant elements in each.When this comparative analysiswas completed, the potential content The working method is thus1the outgrowth of three of the guide was clearly targeted; basicphases: - a third formalization phase, designed to arrive at intended to predefine the a synthesis of the information that would make up - an initial framing phase, steps in the management process,based on the prin- the guide, structured according to a definitive geneciples of the first guide as well as various representa- ric grid consisting of eight steps.To give the guide the tive experiencesand examplesof management drawn realistic aspect sought, twelve casestlidies were selecfrom the bibliography. This work enabled us to elabo- ted for their strong points and their aptitude to highrate an analytical template for ICZM,applicable to the light and demonstrate the principles of the managerest of the process; ment process, /’ Comparativeanalysisby At the end of the last phase,a validation workshop was organized, in order to draw upon the experiencesof ICZM professionalsand managersof coastal zones. INTRODUCTION ’ Environmental management not a question is of humans’ relationship nature;instead, is a to it question humanrelations thesubjectof nature.’ of on lacquesWeber Philosophy Although integrated managementof coastalzoneshas been the subject of a large number of studies and publications, the electronic Forum CSllUNESCO launched two yearsago, entitled “Wise Practices sustaifor nable human development in coastal zones”, pointed out how many obstacles to the implementation of these integrated management meansstill remain. it is difficult to draw conclusions from sucha broad array of new experiments.Nevertheless, experiences the contributed by the over 5,000 participants in this forum demonstrate that gradually, a global trend is emerging, expressing a genuine appropriation of the concept of sustainable development, the foundation for integrated managementof coastalzones. and social framework structuring the environmental fate of human activities.The ICZMoperator will thus find him or herself at the junction of severalworlds : scientific, economic, political, ecological, and cultural, “subject to continual tension and mandating a commitment to a pluridisciplinary, mediated approach” (Kalaora, 2000). His or her task will consist of working towards the sustainable management of coastal zones by applying procedures designed to remove the barriers between representations, practices, and uses,ultimately yielding a consensualpolicy on the fate of the ecosystem. this process, operaIn the tor is a player in the rationalization of the resourcepopulation-environment-development system. He or she contributes in a pragmatic way to harmonizing Of the many definitions of Integrated coastal zone public policy and making uses compatible with each management (ICZM),we find the following one most other. Fromthis point where ecological,economic,and accurate: “A continuous and dynamicprocessby which socio-political interests converge with social aspiradecisionsare made for the sustainable use, developtions, the ICZMoperator must simultaneouslyplay the ment, and protection of coastal and marine areas and roles of host and strategist, by drafting reports which resources” (Cicin-Sain,Knecht, 1998). In other words, the goal of this processisto emphasize“proper use” of present complex information clearly, by helping to the many opportunities the coastal zone offers to any resolveconflicts, by elaborating, running, and evalua“enlightened” person, Integrated management of ting interdisciplinary communications and education coastalzonestherefore appearsto be the most appro- programs,and by facilitating public participation, priate tool for the sustaineddevelopment of this ecosocial system,becauseit reconcilesdevelopment with The foregoing list, although not exhaustive, shows the good ecological health of the resources,and links how complex implementation of the integrated management of coastalzonescan be. It must be understood environmental, social,and economic issues. first and foremost as a collective dynamic process Oncea goal hasbeen defined, it soon becomesobvious (figure 1) which must be coordinated using a plurithat the field of action is always already limited to disciplinary, multi-tool approach, according to a nonsome degree by the political, institutional, economic, linear time scale. Localcommunities I Press I I Scientists I 1 fiqure 1 : Thep/averson the field Type approach of As a supplement to the first methodological guide on ICZMpublished by the IOC-UNESCO (1997),which was chiefly devoted to the elaboration of information systems,this second volume is intended to serve as a guide to the various agents involved in setting policy for ICZM (scientists,staff, managers, etc.) by setting forth the phasesinvolved in ICZMplanning. Figure 2 shows how the major phasesand stepsof the ICZM process unfold and indicates references to sections of the preceding guide. The field covered herein is much greater because it expressly incorporates the socio-economicalapproach, This figure is a meansof comparing this volume of the guide with the first one, which focused much more tlosely on setting up an information system,whilst Guide 2 approaches the ICZMprocessas a whole. / GUIDE11 1 GUIDE21 Phase: PRELIMINARY I IDENTIFICATION Step 0 lnitializationconditions for ICZMprocess Step 1 Feasibility implementation of of an ICZMprocess Phase: PREPARATION II Step 2 I Socio-environmental assessment I I Step 3 Desirable possible and scenarios Step 4 cc andal: Elaboration the of management scheme Phase : IMPLEMENTATION Ill Step 5 lnstitutionalization Fiaure2 : How the ICZMprocessunfolds Rather than making a vain attempt to be exhaustive, encounters an “ideal situation,” Eachcasepresentsits we aim to give the reader certain reference points by own particularities, which justify re-clombiningone or following the pattern outlined below : several phases or activities in a different order. - Each phase is initially given a general definition (in Moreover, each example also clearly shows what was italics). By articulating the main questions, this done as well as what should have been done. paragraph sumsup the general philosophy.Indeed, it is important to maintain a global vision of the issueand powers which provides a context for the action being undertaken in the same direction as the general approach. - At each step, key points set forth in the definition are returned to in greater detail. Set off in a rectangle, a few tools and their rules are specified.Thesetools have been selected for their exploratory capacities : the more conventional ones, which are presented in full elsewhere, have deliberately been set aside. - One or two examples,drawn from casestudies in the authors’ experience,are usedto illustrate the phaseby emphasizinga typical detail rather than the whole, The purpose of this approach is alsoto show that one never To simplify the presentation, the suggested procedure is initially outlined in linear termswhich are easier to grasp. An integrated management ‘of coastal zones programme implies a political colnmitment to a territory, i.e. a space,to the people and relationshipsit hosts both within and with outside elements. The application of this political commitment necessarily occurs in stages, in the course of which tasks or activities are developed and products and outcomes are obtained. Eachstep of the processis therefore described in this guide in terms of tasksto be carried out (figure 3). The tasksrequire the implementation of v(arious tools. Each of the tasks is then described in terms of the products and outcomes it yields. PHASE STEP Case study support : Fiuure3 : Blockdiaaramof the steDsand Dhases It is important to emphasizethe fact that the processes players, reinforcing the expertise of agents, engaging engaged by the ICZMapproach are as important asthe in debate with local officials and industrialists,raising resultsand documentsyielded. Theseprocesses contribute to a new social dynamic by implicating new the consciousness the participants and communicaof ting with the public, etc. Moreover,the reader must rememberthat the chronology and order of these phasescan be changedwithout sacrificing their dynamic links. In this respect, a chart depicting “loops” may be a more pertinent illustration of the various contexts and the evolving reality which the agent is continually confronting and adapting to (figure 4). Existing context and opportunities may convincean agent to initiate the processin phase II or even phase III, (figure 4) Sometimes,new data require the agent to backtrack to preceding steps in order to modify the content of the analyses.These re-adjustments attest to the reality of the program and justify the flexibility of the processwhile ensuring that the information collective is reliable, and that all the playersconcerned by ICZMare fully mobilized. Pioneer group Temporary group pilot ~NST~TUTIONALIZATION Steering Committee Coordination 1 structure Adoption and fundina Institutional structure identification )zdies IDENTIFICATION Follow-up andindicators J Existing information In-depth information Fiaure4 : Interconnections cyclesin the ICZMplanning process(adaptedfrom Salm& Clark2000) and This guide is intended for all ICZM operators, in developed, emerging, or developing countries. It is our belief, as the examples we present illustrate, that although contexts and the sophistication of the tools available may vary to a great degree, the implementation process is always basically the same. As the CSVUNESCO forum on “wise coastal practices” showed, this process stands only to be enriched when experiences from a broad spectrum of different horizons are shared. Thus, the reader’s task will be to adapt the approach suggested here, as in other specialist guides, to come up with activity lines appropriate to each local situation, As a result, we strongly recommend that this manual be used within the framework of training sessions or workshops dedicated to the integrated management of coastal zones. Howthe ICZM process unfolds PhaseI : PRELIMINARY lDENTlFlCA~/ON PHASE : Preliminary 1 identification / d Opportunities constrain& and J interviews context J identification the of STEP : hitialization conditions an ICZMprocess 0 for Casestudy support : ,:,, 1,The lagoon Enhancement SMVM), Thau (Sea Scheme, France 2.Saloum Biosphere Delta Reserve, Senegal I-“i;r ,f&qgy At the outset,an ideaisgenerated a pioneergroup, by a threatispointedout bya “whistle-blower”, a crisis or is observed, fate of thr’sidea or initial sparkwill The depend upon the analysisof initial conditions,the opportunities constraints and whicharedetermined by the overallcontext(political,institutional,economic, social), without necessarily drawingupon the concept of integrated management, However, isimportantto it realizethat one of the “givens”of the problemis the territorial context;that is, an area with spatial and social dimensions. analytical mustbe adapted The scale to encompass the aspects thesiteor regionwhere all of the projectis to be startedand implemented. some In cases, nationallevelwill automatically involved; the be in others,the provincialor regionalscalewill havea greaterimpacton the site and the issue concerned. In the evaluationof the overallcontext,the operators shouldbe able to producean initial identificationof the various typesof problems, their .social framework (groups players) economic of and interest, according to the variouscomponents the coastalzone system. of Determiningthe answersto these questionsyields reference pointsby pointing out the key indicators to be developed morefully in laterphases. 13 Society Population _I:sII Legislationan4 i $ institutional i: 2: \pzxi-l ,A” mechi . I \ / factors to be considered Step0 at The purpose of such an analysisis to make sure first and foremost that each player or group of playershas a congruent representation of the problem (or The eventsleading up to the processmayvary,but they problems).Indeed, it is more than likely that there will usually involve a small group of individuals,regardless be discord and conflict between the various represenof their identity and legitimacy.Where a crisisor risk tations of what constitutes a “natural resource” and situation is involved, sociologists call them “whistle- the threats that loom for such an entity. From the blowers” : that is, “non-official people or groups, with outset, the definition of these areas, their identificalittle legitimacy, or, on the contrary, individuals who tion as natural resourcesor reserves(ex : the status of are related to official agencieswho step out of their the mangroveswamp),the protection zone for coastal official role to sound an alarm, either on an individual and marine resources,etc. are all liable to be the or on a collective basis, and according to unusual subject of controversy.Opinion may diverge asto their procedures” (Kalaora, 1998). representation and definition, whether one is a useror The matter at hand may thus arise from the gradual a non-user,a resident or a non-resident,a local person evolution of a certain situation (for example,the impact or a visitor, of tourist development promoted a few years earlier), Any pioneer group which starts without making sure In other cases,it may be the result of an emergency there is at least some congruence between the social situation (the disastereffects of coastalerosion after a representations of the various players is doomed to storm). In either case, it is important to analyze the fail. Fromthe beginning, it is important for the pioneer overall context in order to evaluate all the forces and group to set aside time for discussionabout concepts, elements(near and far) acting upon the situation, Box terms, and ideas which are bound to have different meaningsfor different people. one refersto the relation between spaceand issues. The “Eureka!” that sparksthe pioneer group 14 Box 1 : Space issues and Theterritory maynot be a pre-existing entity : it is meaningfulsimplyin termsof the type of issues stake.We have at beenableto identifythree typesof situationslikelyto be at the origin of an ICZMprocess : - In a specific territory : sharedresources useconflictin a well definedzone(geographic, or administrative, in relation or to an ecosystem) which callfor arbitration and regulationbetweenusers, - Froman issue a territory : an environmental to issuehasbeentargeted and identified,but it is unrelatedto a particular geographic zone.Theconfigurationof the network of concerned players be a means definingthe space will of where interventionwill occur. - Froman economic sectorto a territory : the development management an economic or of activityin one sectorhasa negativeimpacton well definedspaces resources. or Spatialintegrationis basedupon an economic branch The territorial framework : the space concerned analyticalscales and This is first and foremost a matter of defining a territorial framework which makes it possible to grasp the forces present in an analytically useful way, For example, in the caseof small island states, the entire island will be taken into consideration, that is the national situation and its expression at the level of the main administrative units. In the case of a large state which may or may not be an island, the scale will depend on the degree of political decentralization. Should decentralization be very slight, it will be appropriate to take the national level into consideration. Conversely,if decentralization exists,analysisof national factors will be lesser in scope : the regional political framework is likely to be much more crucial in relation to the site targeted. Beyond the scalechosen, it will be important in every case to identify elements from outside the system, especially any possible impact of the international market on one resource or another. ests at stake, and the limitations imposed by this context. Its purpose is chiefly to draw up a comparative analysis of the main economic activities in order to identify those which have the most profound impact on society and the environment. This will help define the problems at stake, as well as the sectors where anthropogenic consequences are the most crucial, It is not sufficient to llist and describe economic activities. In general, regardless of the territorial framework chosen, a number of facts pre-exist but are not necessarily relevant from an operational viewpoint. When we define a population structure, we usually do so in terms of population density (the number of inhabitants per surface unit), although population pressure (the number of inhabitants per cultivated surface unit) may turn out to be a much more significant indicator. In this demographic and economic context, the prevailing characteristics are not lirnited to the job market alone. A whole spectrum of social questions related to poverty, inequality, salary scales, labor conflicts, community mobilizations, the education system, and even women’s role ill society. These factors will influence representations and attitudes about the environment. They underpin the degree of sensitivity to the threats existing for the biosphere and the natural resources. Society, population,economic activities The task at this step is to specify the general context in which the problems identified occur. An initial, succinct approach aims to identify the causes that underlie the problems, the main players and inter- The type of central government systemwill also have an influence : is this a free market economy or a state-run one; is the systemhighly centralized or not; what sort of regulations are in effect, and so on. The type of press (the role and status of the media) and the accessibility of information for different social classesare also part of the assessment opportuniof ties and constraints for the elaboration and application of any possible ICZMprocess. It is reasonable to specify that the depth of such an assessmentmust always be adapted as a function of the opinion it elicits from the other participants in this initial phase, It may not be necessaryto explore the entire economic, social, and political context of a project. Whether it depends upon the scope of the project, the level of development of the local thought and rhetoric on the subject, as well as the level of internal and external demand (prior experience of one of the pioneer-group members,known prerequisites of the investors and supervisors,etc.). An analysisof the economic and social situation thus is not independent of sectorial, territorial, and environmental policies developed at various echelons. tion), and non-regulatory tools (taxation, subsidization, voluntary agreement, national information system,scientific research,etc.). Property-ownership statutes and land-use planning are often at loggerheads with the application of sectorial or environmental policies. It is thus a matter of identifying these points of contention, which are often due to horizontal coordination problems (between institutions at the same level of governmental hierarchy). Vertical coordination (between institutions descending from national to local) may also be a problem. At the end of the chain, it would be appropriate to analyze the effective role of local authorities in the implementation of public policy, their degree of control over their territory’s resources, especially in coastal areas. Likewise, the ways in which local players participate in decisionmaking processes(traditional organizations, community groups, businesses, NGOs, etc.) are also relevant. Legislationand institutional mechanisms Despite its economic and ecological importance, the coastal zone, located where land and sea meet, is usually ignored by law as such, Only rarely does legislation institute a form of total integration of all the elements which should be taken into consideration, From the sea to the land, through such intermediate zones as the beaches or mangrove swamps, legal regimes overlap and replace one another, and traditional practices. Usually,there are several ministries piloting sectorial policies with regard to the sea (fishing, transportation, water-quality control, etc.) and with regard to the land (city planning, public works, agriculture, energy, etc,). It is therefore essential to inventory and analyze not only all the existing legislation, but also the institutional mechanisms which implement policy, from the national level down to the local one. Publicpolicies: sectorial,environmental, land-usemanagement, etc Sectorial activities and the conflicts that may result from them depend chiefly upon the sectorial policies implemented (or not) by specialized government agencies and m ministries, in a space (the coastal zone) which is still almost always subject to the traditional legal distinction between land and sea, and fragmentation which varies according to sector.Thus, it is necessaryto study the sectorial policies, the institutions involved, and the tools which are used to implement them. Of these last, we should make a distinction between regulatory and legislative tools (prohibitionslauthorizations, monitoring, inspec- ~X~~~/e 1 : An institutional mechanismwhich is explained by competition between activities in one space: The SeaEnhancementScheme(SAM/) for the Thau lagoon Thecontext: TheThaulagoonis a saltwaterlagoonlocatedon the westernpart of the FrenchMediterranean coast.It is surrounded by severalmunicipalities is part of the Languedoc-Roussillon and Region,which covers entire westernhalf of the the French Mediterranean coast,from the RhbneRiverto the Spanish border. Since 196Os, populationin this zonehasincreased the the sharply, especially the edgesof the lagoonwhich havebeen on built up at a great rate.Theproportionof unemployed populationisalsohigh. Thesoutheastern southernshores the sea-lake and of were developed coastal for tourism,one of the g(Dals soughtby the nationalgovernmentin the 1970s 80s(Interministerial and programfor the development the Languedoc-Roussillon of coast). policyfundedthe construction marinas other amenities touristsin and aroundthe mainlocalcity, This of and for S&e.AlthoughS&e’sshippingindustryisin decline,it still hasa strongindustrialpotential,andthe city hasa largeindustrial zone.It is alsothe biggestfishingport on the FrenchMediterranean coast(largeand smallcraft). The lagoon’snorthern and northwesternbordersconsistof a lessdenselybuilt-up residentialarea, characterized by economicactivitieslike fishing (declining)and seafoodfarming (steadilyrising),wine-growing (which has received European Unionincentives concentrate qualityratherthan quantity),andtourismand leisureactivities, to on which have a high development potentialand will createincreasingly importantuserconflicts. In France, centralgovernment Paris alwayshad a pre-emptive the in has poweroverthe coastline, which isseenasa strategic zone.It hasthus beenentitled to full jurisdictionoverthe DPM(or PublicMaritimeDomain), which is boundedon the oceanside by the low-tide line at,neap tide. The management most of the activitiescarrieclout in this zone of (fishing,seafoodfarming,harbor infrastructure, shipping,and pleasure boating)hastraditionallybeenthe State’s business. Within this framework,two typesof policyexistsideby side: sectorialpolicies(industrialand shippinginfrastructure, seafoodfarming,fishing,and the environment) the land-use and development policieswhich were enacteduntil the decentralization was passed 1982.Since law in then, the power of localauthoritieshasincreasingly beenasserted, especially relationto the development the tourist and fishingindustries. in of However, would not be appropriateto it saythere isany leadership comparable that plied by the centralgovernment. to Illustration the ICZM of approach : Beginningin the mid-1980s, Stateadoptedasgoalsthe settlementof the conflictualcoexistence variousactivities the of aroundThaulagoon,the applicationof the 1986Coastal and the assertion the State’s Law, of leadership in coastalrole zone matters. As a result,the scheme chosen the management Thaulagoonand its activities the SMVM(SeaEnhancement for of was Scheme), multisectorial-type a masterplan institutedby the 1986Coastal Law.The only pilot legallypossible sucha for plan isthe State(throughthe Prefectand MaritimeServices). 0 waslimitedto reflectingupon the enforcement Step of the coastallaw and the arbitration of the manyconflictsasto useslegitimizedby the State: conflictbetweenpleasure boatingand seafoodfarming,urban pollution and pond water quality,etc. SourceDedieu, : 2000 fXa/llp/e 2 : Elaboration of an integrated management plan for the Saloum Delta Biosphere Reserve (Senegal) Thecontext: TheSaloum Deltaestuaryand mangrove swamp(Senegal) madeup of three systemsisland,maritime,and continenis : tal. Havingbecomein large part (180.000 hectares) Biosphere a Reserve, territory is inhabitedby a populationof this 200,000, although its influenceconcerns populationsixtimeshigher.Although it is classified a protectedarea,the a as activitiespracticed there (oyster-farming, agriculture,herding,arboriculture, forestry)and the way they are manaand ged are exertingincreasing pressure the biota,threateningits integrity.In the early199Os,group of scientists, on a aware of the impasse, decidedto take action. Illustration the ICZM of approach : In this case, pioneergroup is a scientific the team from CheikhAnta Diop University Dakar, in with the supportof the UNESCO Ecological Sciences Division MAB,which playedthe following role : and - synthesis impacts, of constraints solutionhypotheses, and - formulationof integratedmanagement actionstrategies and orientedtowardsthe recovery protectionof damaand ged ecosystems (mangrove swamps, tannes), improvement the way naturalresources used,and the reinforcethe of are ment of the population’sinstitutional,technical, financial capacities, and - definition of implementation mechanisms follow-up. and In the field of legislationand regulation,the group emphasized existence an abundantbody of decrees, the of ordinances, codeswhich regulatethe propertyrightsof villageand community and spaces the management fishing and of rights. Because interfere with customary they practices, thesetexts are often poorly adaptedand disregarded. Local communities were hardly ever associated drafting these regulations,especially with with regard to natural resource management. Furthermore, lackof personnel funding isan obstacle the institutionsin chargeof enforcingthe the and to provisions, Lastly, numberof activities a (wood harvesting, extraction,and the extractionof shells salt from sambaquis) are entirelyoutsidethe law. These well-aimedobservations madeby a pioneergroup remained the stageof a message warning.Thenormative at of recommendations whichthe work gaverisewere neverapplied- like earliernormative to recommendations etc.). (laws, Institutionalsupportwill clearlybe necessary. Source Diopet al., 1998 : PHASE : Preliminary 1 identification Products ,I Thematic maps d Bibliographic asto factual data XIU d “Cause/problem/effect” trees d Feasibility technical report: summary. andanalysis Tasks ti definition the zone b of to Tools studied d evaluation publicof ti inventory assessment and ( policy effectiveness studies projects and I ti thematic workshops d identification interest of ti a participative or groups concerted method for 4 evaluation political of identifying project the determinationlmobilizatior 4 communication Outcomes ti constiution a taskforce of I d prioritization the problems of ti spread information products) I of (the to obtainplayer approval Step1 : Feasibility implementation an of of ICZMprocess Casestudy support 3,Reunion Natural Island Reserve 4.The d’opale, C&e France ’ : environmental, land-use ar7d plans. Once conditions positive negative) the (both and rela- form of economic, ted to the overallcontexthavebeenmadeexplicit,it is This fact-finding report must be more than just a important to specifywhat the contextcovers locally. simplejuxtapositionof knowledgeand facts.It must the system whichwill makeit Thiswill help define the geographical limits of the striveto elucidate causal to identified(the zoneor siteconcerned theproject.Thegroupwhich possible reachthe rootsof the issues by carries the tasksinvolvedin this step maybe the problem tree). Thepurposeof this report shouldbe out available same as the pioneer group, but not necessarily. both to makean inventoryof the resources Because mustrepresent numberof interests it a (insti- (human,institutional,and financial)and to evaluate tutional, disciplinary,geographic),it may be an the level of political determinationto implementan at administrative levels. Step The embryonic form of the steeringcommittee.Thistask ICZMprocess various be forcewill haveto supervise elaborationof a fact- 1 feasibilityreportshouldrepeatedly submittedto the of finding report (on environmental socio-economic all the playersinvolvedfor validatiorlin the course and or factors existing in the zone), the main issues, the workshops meetings. playersconcerned, the possible and solutions,in the 19 political will 11’~ factors to be considered Per, 1 at remains flexible as a function of the problem concerned. It is important to note that in any case, these boundaries are indicative, and that it is vital to take a number of outside influences into account, as well as Despite its dependence on the overall context, the any need that may arisefor policy coordination mechalocal context has specific political, institutional nismsfor dealing with neighboring areas. (community groups, decentralized administrations, Geographic definition of the area goes hand in hand traditional authorities), socio-economic,and environ- with the appointment of a task force which is suffimental characteristics.The goal is to highlight all the ciently representative of concerned local players and elements or factors which contributed to the selection institutions. At the point in the process,it is approof the area which is the subject of the feasibility study. priate to take steps to provide for the recognition of The local context will define the geographic bounda- the task force by local and national authorities, If the ries of the area concerned. These boundaries will be task force is truly representative, it will usually form drawn according to two horizontal axes : along the the core of the steering commissionwhich will be coastline, with perpendicular lines indicating the formed later. upstream boundary in the watershed and the lower of undertakenand one toward the sea. As a general rule, this definition Assessment research will rest on three main considerations: administrative projects underway boundaries,ecosystem boundaries,and the boundaries This should not be a systematiccatalogue of informain within which the issue(s)occur. Often the definition tion (which will be necessary the next step). Instead, arises from a compromise between these limits, or it should lay the groundwork by gathering references Definition of the area being studied for an ICZMproposal,and constitution of a task force 20 to studies, their final outcome (environmental, sectorial, social, economic),their form (descriptiveor prospective studies), and the main issuesand stakes they identify. In this regard, it is important not to omit to classifythe kinds of studies which have been or are being carried out by public agencies,or, further, the developing countries for long-term development projectsset up by lending organizations. It is important to identify the types of follow-up which have been or are being conducted (environmental assessments, impact studies, monitoring) and the economic sectors involved. It is also important to indicate whether the findings of these studies are accessible the public, to perhaps through subsequent popularization and outreach efforts (citizens’ lectures,forums, community groups, socio-professional groups, NGOs,etc.). This planning evaluation will pay particular attention to assessingthe coordination of various planning measuresset up by government at scalesthat are not always congruent. It is important to become familiar with the impact of these various types of planning on the area under consideration, Regardless of their degree of application, plans or schemesare the most prominent policy implementation instruments available. As a result, they are vital to any ICZM process, which aims to improve rather than replace traditional planning practices. joint analysisin the courseof meetingswith these very groups of players, Existingsectorial,land-use,and environmentalplans As a rule, there is little coordination between developmental sectorswhen management plans are drafted. Land-use development and local zoning usually rule out the environment, Becausedifferent administrations supervise these processesand the scales of intervention also differ, it is important to be well apprised of the impact of the various types of planning on the area under consideration, Regardlessof their degree of enforcement, plans or programs are the prime implementation tool for policies, and are thus vital to any ICZMinitiative. The goal of the ICZM is to improve upon rather than replace traditional forms of planning. Assessment politicalwill andspheres of of influenceof the playersinvolved A broad range of political support based on the motivations of the decision-makersis fundamental to drive any ICZM processwith a chance of succeeding.As a result, it is primordial for any local IKZM initiative to seeksupport from national authorities, by creating the appropriate links. An evaluation of me political forces Identification of the main issues and involvedshould alsoexamineany potential or ongoing processof player coordination : institutions (governplayersinvolved mental or otherwise), social groups, etc., may work It is essentialto underpin the list of the issues identified together to discussand define goals collectively.This with a reasonedhierarchization basedon observation, concept, which is currently commonly called “govereven if this hierarchization may be changed at later nance”, will be the heart of the ICZMprocess(see box phasesin the diagnostic and validation of the feasibi- 2). Depending on original contractsfor the grouping of lity report, This identification may also be based on administrative territories (example : watershed preliminary surveys submitted to selected individual contract), “governance” “refers to all of the instituplayersor groups of players.The main body of the data tions, networks, directives, regulations, standards, collected can be supplemented by maps, even cursory norms, political and social practices,public and private ones, as a means of identifying where the various playerswho contribute to the stability of a societyand groups of actors are clustered geographically. In a a political regime, its orientation, and its capacity to subsequent phase,the management-plan preparation guide, to supply services,and ensure its legitimacy.” phase, we shall return to the use of these maps for a (Stoker,1998). Box2 : Fiveproposals an approach the theoryof governance for to (Stoker, 1998) 1. Governance solicits contributions from a rangeof institutionsand players which are not all government organizations. 2. Wheregovernance working,the boundaries dutiesare not asclearasin the field of socialand economic is and action. 3. Governance expresses interdependence the betweenpowerand institutionsassociated a collective in action. 4. Governance solicits contributions from networksof autonomous players. 5. Governance basedon the principlethat it is possible take actionwithout relyingon the poweror authorityof the is to state.The role of the stateisto usenew techniques tools to steerand supportthe collective and action. Inventoryof availableresources Feasibility involves being realistic in the assessment of the goals and scope the project will target. Even with additional outside resources, it is advisable to adjust the size of the project as a function of the resources which are readily available, rather than long-term promises. The term “resources” covers both human and financial means. The purpose of making an inventory of resources is to see where efforts should be focused to mobilize these means. &/e Often, they are used poorly, if at all, especially in the caseof human resources, ICZM projectfeasibility report The decision-maker will pay the most attention to the recommendations in the feasibility study, becausethese are supposed to give him/her the keys to the best approach. Thus, these recommendations should be summed up clearly in a report presented separately from the technical assessment.. 3 : Creation d’une reserve naturelle sur le littoral recifal de I’ile de la Reunion Thecontext: Of the 208km of coastline belongingto Reunion island,coralformationsand the beaches associated them account with for only 25 linear kilometers. Theseare all barrier reefswith a well developedboating channel,locallydescribed a as lagoon,Anthropogenic pressure the entire areaisquite high,especially the municipality SaintGilles, on near of which is the island’s main resortarea.The numberof vacationers abroadusingthe beachis growing steadily(500,000 from visitors in 2000).Thefirst efforts madeat protectingthe Reunionese lagoondate backto 1976,when a Prefectural decree strictlyregulatedunderwaterhunting and shellfish gathering.Forlackof a widespread consensus, lawswere rarely these enforced. Illustration the ICZM of process Frompioneer groupto successive forces task Localcitizens’groups,mostnotablythe NGO“Vie Oceane”, with the supportof scientific circles, were the drivingforce in encouraging governmental powersto reinforcethe protectionof the reef environment. 1992,a new Prefectural In decreebannedall fishingexceptpole fishingfrom the lagoonareas.In 1997,after a series studies a long instituof and tional coordinationprocess, non-profitorganizationcalled“Part Marin” wasestablished the regionto manage a by the entire reef environment a fishingreserve, to promoteits protectionin relationto users as and other than fishermen. In 2002,the entire Reunionlagoonareashouldbe classified a naturalreserve the state.Thislegalstatusis irreversible, as by and, according the authorities,shouldmakeit possible applyan integratedmanagement to to process all of the islanto d’scoralreefs. 22 From1994to 1998,regionalgovernment droveenvironmental action,by funding a feasibilitystudyand then creating the Part Marin association granting it operating resources. and Departmental central governmentare secondary and players. Municipalcouncilmen largelyenvironmentally are awaredue to a series meetings of sponsorled the steering by committee,and they finally joined the management process. subsequent In years(1999-2001), State,through the the DIREN office,took the reinsof the process. was encouraged do so by the IFRECOR, FrenchInitiativefor Coral It to the ReefProtection, which is part of an internationalstructure, InternationalCoralReefInitiative(ICRI). the Another distinctive feature is the growing protestof the lagoon’s“informal fishermen”,who feel excluded from the decision-making process, refuseto serve role of scapegoats the issue pressure the lagoon. and the in of on The coordinationstructureof the projectedreserve probablybe the current staff of the “Part Marin” association. will However, statusas a non-profit organizationwill probablybe exchanged one as a corporationwith public and its for privatestakeholders. Thedifficultyof coordinating planning structures schemes and Thecomplexinstitutionalinterplaybetweenfive mainagencies the Prefectand RegionalEnvironmental : Office(hereinafter referredto asDIREN representing centralstate),aswell asregional,localdepartmental, municipal the and authoritieshinderedthe applicationof the ICZMprocess. considerable of Reunionese The size municipalities not encoudoes rage mayors engagein intermunicipal to coordinationor the applicationof guidelinesand directives forth by the set Stateon the subjectof zoning or conservation. Generally speaking,the relationships betweenthesefour playersare characterized moreby concerns independence by a will to coordinateinstitutionalinitiatives. for than Nevertheless, municipalities seven consented join the association to “Part Marin”, thus establishing facto geographic de borders.The ReunionPart Marin is part of the structureof the SeaValueEnhancement Scheme (SMVM) which, along with the ReunionDevelopment Scheme (Schema d’Amenagement la Reunion, de SAR), drafted policyguidelines has for the next IO-15years. SAR The consists a report completewith mapsand graphswhich point out the generaldestinaof tion of the territory of the region: the mapsare drawnto a scale 1 :lOO,OOO. SAR SMVMhavebeenvalidated of The and asguidesfor development zoning.In other words,all other city planningdocuments, and zoningregulations, deveand lopmentprojectsmustcomplywith the guidelines established. they Currently, however, municipal-level the government refuses changeits zoning regulations complywith thoseof the SAR. ICZMprocess to to The underwayisthus markedby its inabilityto solicitinput from municipalauthoritiesfor the elaborationof its regionalplanningscheme. TheICZM process cannotbecome ongoingeffort until it isvalidatedby the players the field, in particularthe munian in cipalities their citizens, Statehastried to avoidthe problemby legitimizingthe process thlenationallevelby and The on creatinga natural reserve, this is no guaranteeof success. but bWYIp/e 4 : The C6te d’0pale (Nord-Pas-de-Calais, France) : how a corporate instrument was created as a means of defining an ICZM strategy, or the story of the Syndicat Mixte de la Cbte d’0pale. Thecontext: Thecoastalareaconcerned extendsover 150linear kilometers, from the easternEnglish Channel the North Sea(4% to of the French seaboard). geographic This sectoris characterized a high populationdensitywhich iistypicalof northby western Europeancountries.Mean density is 319 inhabitantsper squarekilometer,i.e. three times higher than the average nationwide(103inhabitantsper km2),and clearlyhigherthan the average French coastal density(260per km?); however, isclosedensityfiguresfor Belgium(328peopleper km?)and the Netherlands per km’?). high popuit (377 This lation concentrationleadsto heavyconsumption space,especially of along the coast: harbor and shippingfacilities, growth of variousharbor cities(Dunkerque, Calais, Boulogne-sur-Mer), tourist facilities,the Eurotunnel terminal,international highways(the Al6 linking it to the Netherlands Belgiumis called“the Estuary and highway”). Moreover, the Pas-de-Calais whichseparates North Sea strait the from the easternChannel the world’sbusiest is shippinglane(700ships cruiseit daily,i.e. 18%of the entire world shippingtraffic). In parallel,a high populardemandfor naturalreserves resultedin the development a numberof conservation has of policies.As an example,nearlyhalf of the coastlinein our studywas alreadybeing studiedor had beencategorized a as “natural” space, under a wide varietyof statutes.Indeed,the coastalfringe of the easternChannelis rife with regulations, measures, contracts, nationaland internationalconventions and which protectthe habitat.At least73 protection measures various with extentswerecounted.Mostwereconcentrated CapeGris-Nez the northernshores the near and of bayof Authie and the mouth of the Canche. Illustration the ICZM of process : Thisshoreline, which hasbeendenselyinhabitedfor centuries, numberof entitiesplayedpioneeringrolesin setting a public natural-resource preservation policy.For example, Nord-Pas-de-Calais the Regionled the way in 1978when it empowered agency(Espace an Nature1 Regional Regional NaturalSpace)to manage enhance region’snatural and the heritage.As for the General(departmental) Councils, were instrumentalin setting asidefunds to purchase they and managenatural sites.Theyworked closely with the Conservatoire I’Espace de Littoral et desRivages Lacustres (CELRL Coastaland Lakeshore Conservation Agency),providingsignificantlogisticand financialsupport,in particularfor the management its lands.Indeed,nearly30%of the coastline of betweenthe Belgianborderand the Baiede Somme the is propertyof the CELRL, a percentage i.e. three timeshigherthan the nationalaverage France. initiativeand expein This riencewerefactorsin the European Union’s1996decision select Cbted’0pale asone of thirty-fivelocaland regioto the nal projectsasmodels integratedmanagement coastalzonesin Europe. of of Theintegratedcoastal-zone land-use process institutionalized was within the frameworkof the publicand privatecorporation Syndicat Mixtede la Coted’0pale (SMCO) 1996.Theterritory coveredby the SMCO by extends from the Belgian borderto the Somme River.It includes geographiczones,two departments, 243 municipalities, a total of four and for nearly800,000 inhabitants. SMCO instrumental enablingthe C&e d’0pale to federateand unify its projects, The was in Fromthe outset,it operatedon a principleof “subsidiarity”, whichenables to respect associate players the it and the and variouscommunities serves. SMCO it The succeeded makingup for the lack of coherence in betweenthe activitiesof variousentities,and, through coordinationand complementarity, defining a long-term,development strategywhich reaches beyondFrench borders. TheC&e d’0pale projecttook shapeasa charterwhich wasdraftedfor the development the coastalregion,Its duty of isto associate four governmental the levelsinvolvedin the elaborationof proposals concerning coastalzone(munithe cipality,department,region,and State),and it appearsin all localmanagement programs. SMCO’s The approachis also part of an effort to obtain a modificationof nationallegislation providefor the management seaand land space to of within the frameworkof a singleapproach. definition of the Coted’0pale enhancement The scheme would guarantee and perpetuatethe integratedcoastal-zone land-use development and strategyin this territory. Source Excerptfrom the guide “Rationaliser connaissances prherver durablement patrimoinenature/littoral”, in : /es pour le Dauvin,co/l.fatrimoinesNature/s, Muskm Nationald’Histoire Nature//e, bepublishedin 2002 to PhaseII: PREPARATKIN PHASE : Preparation 2 Tasks d setting a steering up committee ti datacollection analys and 4 construction an of information system I/ identification organizatior andmanagement method J micro actions models as d reporton andapproval of evaluation :I PfOdUCfS Tools (I database and geomatics (remote detection and geographic information systems) ti surveys ti impact studies (I conflict-resolution techniques d models pairings and ,i, ‘I- # environmental atlas v territorial maps d impact matrices ti project (micro files actions) fl socio-environmental evaluation report r’ communication products for informing public the (broadcas& workshops, brochures, etc.) r “+# Outcomes ti zero-state diagnosis founda& and for follow-up system ti mobilization players of ti awarenesswhatisat stake of ,, STEP : Socio-environmental 2 Assessment ‘I Casestudy support : 5.The of Mauritius reefs 6,Environmental evaluationtheComoros in I,, ‘?*‘*1&q1 :~~:~,~~~ Theenvironmental evaluation covers “zero-state” the situationand diagnostic. goal of this step is not The necessarily produce in-depth, to an detaileddiagnostic, which might involve too much work. Instead,an overallassessment the currentstateof the site will of suffice,focusing the threeor four mainissues on identified in the previous of the process. purpose step Its is to go beyond simple sectorialapproaches to and broach transversal the problems terfitorialorganizaof tion. Thedata collectedwill help build a Geographic Information Systemvia the processand indicators described the IOC-UNESCO in manualno36(1997). is It superfluous rehashinformationalready to collected in the form of inventories studies.On the contrary and the informationcontainedin thesereportsshouldbe presented the users. to Communication one of the is key elements this phase,whichincludes report of the on the environmental assessment, slated to be the subject of discussions all the playersand the will sources whichprovideddata for the elaboration the of evaluation. Likewise, purposeof this phaseis also the to make explicitbasicfacts,which too often remain obscure, about the players.How doeseachgroup of playersrelate to the environmen problemsdiagnota/ sed?Is eachgroup apt to participatein the improvementof the environmental situations observed? What are the dominantand secondary activities, how and aretheyorganized? isa matterIofidentifyinghow This players operate: existing potentialconflicts, or existing or latent conflicts, potential fOfWi for resistance or change. additionto thesteering In committee, task this requires technical capable handlingthe data, a staff of constructing operational appropriate an and information managementsystem(G/S,but also grids and manual maps, etc.), doing documentaryresearch, conducting interviews leaders users, drafwith and and ting the diagnostic a clearand readable in form. 25 Characterization q$$ jJ@ thenatural s Factorsto be considered Steo2 at support staff. Indeed, the environmental technicians should be seen as partners in the processrather than suppliers of a service.The quality of this relationship To superviseand accomplishtasks that will be crucial will be decisive in the way the processlater unfolds. to the rest of the process,at this point it is essential The steering committee is legitimated when the to reinforce and empower the step-one committee, socio-environmental evaluation is validated by the giving it the status of a temporary steering commit- usersand players involved. tee whose composition may change until the plan is actually being implemented. At this stage, the Characterization the natural environof committee may be made up of “qualification types commissions” (Gorgeu et al,, 1997), which will focus ment and its management on broad issues such as Poverty, Wealth, Risks, As a function of the stakes identified during the Handicaps,Transformation, Projects, etc. The idea is previous phase,the information to be gathered is not to promote a spatial approach which integrates data only environmental, in the ecological sense of the and analysescarried out earlier byprofessional tech- term. It may also concern all aspects of the populanical staff people (technical specifications, written tion’s heritage : that is, whatever is related to local and cartographic reports, staff meetings, drafting of culture, lifestyle, institutions, socio-economic activireports, etc). With this goal in mind, and in order for ties, customs,practices,the local history, architecture, the committee to assume its role as the body over- and so on. seeing the entire process, the steering committee Generally, there is far less pre-existing information must include at least one member of the technical available about the players themselves. Usually, it is Fromthe taskforceto the empowerment of a temporarysteeringcommittee 26 advisable to collect this data via an approach incorporating interviews and surveys.The purpose of the questionnaire is to survey the activities of the main groups of players concerned, their management styles, open or potential conflicts, and their vision of the problems. This data will be used to analyze the trends underway in both time and space, since the trends will go a long way towards explaining the state of the environment and vice-versa.To expand the approach, it is also important to find out what community servicesare available to the population (housing, sanitation, et(,). This work is directly rela- ted to social observation tools which understand the social scene as an interplay of different groups and interests, where different rationales and priorities are in conflict, When this information is fed into the diagnosis process,it will be easier to create a context lending itself to consensus.This could be the foundation for real “social engineering” (a set of prescriptive and instrumental practices which aim to shed light on the social players’ aptitude to adapt, resist, or innovate in responseto environmental problems). Box3 : Questions useasguidelines to whendraftingthe territory’ssocio-environmental questionnaire : 1. How isthe territory positioned? How do the playersrepresent ? it 2. What isthe territory’simage?Fromthe outside? the inside? And 3, How structuredisthe localeconomy? (verylittle, fragmented,partitioned,dense,networked,etc.) 4. What activities jobs alreadyexist? and 5. Are localproductscompetitive? markets them accessible? Are for 6. How can players cooperate? canterritoriescooperate? How 7. Are informationtechnologies present? they havean impact? Do 8. How are the humanpotential and localskillsexploited? 9. Haveall development opportunitiesbeenexploredand madeprofitable? IO.What localdynamics usedto consolidate are activities jobs and Il. What localdynamics available sustaininitiatives projects? are to and 12.Has there beenany localexperimentation hybridization resources with of (public,private,collective, community, indi/idual)in order to generatenew activities? 13.Are the territory’sactivities compatible with sustained development local ? 14.Towhat degreeare the players mobilizedin termsof the project? Excerpted adaptedfromthe guide ” Construire projet de territoire,du diagnostic stratbgies in Ciorgeu, and un aux “, 1997, At this point, we must decide what information will be relevant to the rest of the ICZMprocess.The information must be narrowed down to describe goals and issuesaccurately, yet broad enough to contain the keys to understanding the social and territorial systems present. At this point, it may be useful to commissionsome specialized studies, if necessary(cf. Box 4). The information may be organized in a functional information system : a broad spectrum is available, going from simple statistical tables or synthetic diagrams to elaborate data bases,which will be georeferenced if possible (Geographic Information Systems).Descriptive models of ecosystemsmay even be necessary(cf. box 5). The second objective is to make it possible to report this information in a way that it is accessibleand comprehensible to the players concerned. Example 5 is a model of a simplified report on an environmental evaluation Box4 : TheEnvironmental Impact Assessment, example a tool an of Environmental ImpactAssessment are undertakenon a point-by-pointbasisto measure impactof a specific (EIA) the projector program.Butthe approach techniques are relatedto thoseneeded draft an environmental and used to evaluation in the ICZMplanningcycle.It maythus be usefulto draw upon the way they are organized(specific eachcounto try) while ignoring some of the formal aspectsnecessitated their regulatory nature (cf. guides cited in the by Bibliography). The Environmental ImpactAssessment hasbecome fundamentalregulatorytool for environmental (EIA) a policy.Based on the Environmental Assessment approach,it hasbecome normalpracticein mostcountries aroundthe world. In some countries, legislationhasgone sofar asto covernot only the Environmental ImpactAssessment relatedto landdevelop ment,but also“StrategicEnvironmental Assessment” for evaluating (SEA) policies programs other fields.However, and in the latter are asyet lessprevalent. Theoretically, field covered the EIAand the SEA quite broad,but in practiceit is often limitedto the aspects the by is of a projectwhich havea direct impacton the biosphere. Ideally,if broadly interpreted,an environmental impactstudy would includeimpacts the community, health,risks, evencost-effectiveness on on and analyses. the table belowshows, As it canbe beneficial combinean EIAwith an SEAwhen a multi-scale to planningsystem, going from the nationallevelto the localone, is involved.. Combining Environmental Studies Strategic Impact and Impact Studies a muhscale develop. in land mentsystem (From & George, Lee 2000) Government level National/ Federal Territorial land-use policy (SEA) Nationalland-use scheme Category actionandtypeof assessment brackets) of (in Sectorial multi-sectoral and actions Policies (SEA) Plans (SEA) Programs (SEA) Projects (EIA) Planfor National Transportation+ a national highwaynetwor? Policy -c National Economic Development Policy Highway construction program .+ Construction of onesection of highway Region State I Regional land-use scheme Strategic Regional Development Plan 1 Sub-regional land-use scheme \ Sub-regional Investment Program 1 Local Local land-use plan \ Local works project Box5 : Models Although muchhasbeenwritten about models, there are asyet veryfew modelsavailable simulatingcause-effectfor responsechains.In an interdisciplinary context, mono- or bi-disciplinary models(physics/biology, economy/ecology) shouldbe designedand useas analytical,exploratory, communications and tools, compatiblewith the useof GISand expertsystems. the currentstateof research, At quantified,global,interdisciplinary modelization still a horizonrather is than an operationaloption for management endeavors. More modestapproaches, which resortto qualitativemodels, systemic charts, sharedinformation-gathering codingprocedures, and accountability frameworks specialized and models with limited interdisciplinarity better adaptedto the currentneedsof managers planners. are and Pre-zoning divisionof the territory into : geographical units The diagnostic and report processis the proof of the functionality of the territorial units selected for the approach to the problems, Negotiation will make it evident whether these territorial units should be defined by their boundaries and contents as conceptualized by the players. When they are laid over a map of what is at stake in the territory, this spatial qualification approach will make it possibleto list the key orientations as goals specific to each of the management units, This type of zoning (which has nothing to do with zoning for land use) contributes to the gradual construction of the management plan : each unit is considered as a territory for which a specific action plan will be defined, in the form of a development scheme,an inter-community contract, a territorial agreement, or any other form of local planning tool. This approach is described in detail in the IOC-UNESCO manual no 36, as well as in the UNESCO guide no38 on drafting maps of sensitivity and vulnerability. hold waste collection, improvement of mining practices, developing a beach, etc.) which can be completed in a small amount of time and at little cost, Such micro-projects, which should be implemented quickly, serve to mobilize and train personnel. They must thus be carried out according to the same procedures as large projects (goals, procedure, schedule, follow-up committee, financilng plan) with the local communities involved. Validationof the diagnostic Problems will be prioritized on ,the basis of the diagnosis report and its validation, It is thus essential to present the diagnosis and its chief conclusions clearly within the framework of various meetings or perhaps a validation workshop, Maps and cross-referenced graphs are the best mediurn for this type of presentation (cf, Example 5). Suggestionsfor modification, comments, and other reactions must be accurately transcribed with a view to modifying or readjusting the conclusionsof the diagnosis as a consequence. The finalization and approval of the diagnosiswill be crucial to sustaining support in subsequent phases,by obligation of coherence,. Micro-projects ICZMpracticalexercises or During the validation of the diagnostic, it is important for the committee to identify and agree upon actual activities in the field. Theseshould be practical exercises in ICZM or small actions which remedy a well-defined problem (restoration of a levee, house- kW7/J/e 5 : An illustration of the diagnosis of players’ expectations and representations -the case of integrated management of the reefs of southeastern Mauritius Island Thecontext: Thisprojectcorresponds a pilot ICZM to projectcarriedout within the frameworkof the Regional Environmental Program of the IndianOceanCommission (1995-2000). zoneconcerned The (Mahebourg) characterized fairly stablepopulais by tion-densityfigures.However, varietyof activities(textileand sugarindustries, a fishing,sandquarrying,tourism)were causing conflictsamongusers, all havean impacton the qualityof the lagoonand reef. and Illustration the ICZM of processhowthe diagnosis carried : was out Oneof the special goalsof the diagnosis programwasto gain knowledgeof the socialmotivations, reasons, processes, and strategies which were resultingin suchnegativeand unsustainable management resultsfor the biosphere. Indeed, everyeffort to modifyusagepatternsand improvethe management the areawill fail unless logicof the prevaiof the ling system not broughtto light, from the viewpointof both knowledgeand playerawareness the prevailing is of system. Sixexploratory visits the areawerethus necessary, to targetingthe mainplayers the population(sandquarriers, in fishermen,villagers, sugargrower/refiner, the hotel manager, the natureconservation and NGO). the courseof thesevisits, In a samplegroup of thirty peoplewere identified.Theywere willing to be interviewedsubsequently, giving interviews lasting2 to 3 hours.Thesettingswherethe variousmeetings took placewere alwaysmeaningful. Likewise, content the of their discourse quite significant: the solemnity someof thesemeetings appropriateto the emotionalplea was of was the message conveyed. Fishermen, quarriers, villagers referredto a “Creolediscomfort”,without namingit sand and all explicitly. Theysawthe presence observers of working on an official projectasan opportunityto address institutionsdirectly the with their grievances concerning their daily lives,their family and professional problems. Their sense injusticewas of expressed variousways: by providingproof of one’sprofessionalism, the usefulness one’swork, by pointing out in of of the know-how involved, age-oldquality of the trade, the “pride one feelsat being an assetto regionaldevelopthe ment,” etc. Isolationwasput forth asthe resultof “a deliberatepoliticalorientationwhich leadsto the exclusion an of entire villageand doesnot take the community’s materialand socialneedsinto account.”Althoughthesefeelingsmay havebeenexaggerated slightlyfor the benefit of “foreign” experts, feedbackwasvaluablein that it put the intethe grativeapproachinto perspective, relationto a givensituation. in The observers learnedfrom theseencounters the principaleconomic also that operatorsin the region were organized accordingto a strict hierarchy. Everyone knowsthe rulesof the game,and the playersin eachsectorexert exclusive controlovera predefined whichexcludes thosefrom outside. highlyeffectivemanagement area all This arrangement has serious consequences, because disruptionof the system perceived a lossof equilibrium.Considering advanany is as the tagesof stabilityand comfortwhich resultfrom sucha well-definedand respected system, clearregulatorylaws, with effectivefinancialcircuits,and territory recognized beingtheir own, the operator hasno reasonto turn to an inteas grated management modelwhich would bring in players from outsidethe sector.Environmental mediationwill consist in graduallyintegratingthe strategies sectors the heterogeneous of and viewpointof the players who dependon the samebiota. In the absence an organizednegotiationprocess a means arrivingat a consensual of as of determination on the part of the players reachthe ICZMgoals,the process grind to a halt and the socio-environmental to will evaluation will be forgotten, Thiswasthe casein Mauritius, wherethe limitationsidentifiedin the diagnostic were neverresolved. Example6 : Thecontext: A socio-environmental evaluation in the Comoro Islands The socio-environmental evaluation carried out in the ComorosIslandswithin the framework:of the Regional Environmental Programof the Indian OceanCommission (1995-2000) one of the most succe:ssfuI. territory was The suggested an ICZMinterventioninvolved entire islandof LaGrandeComore. goal wasto identifythe natufor the The ral ecosystems areaswhich were fragile or subjectto useconflicts, to identify localmanagement and and initiatives. Illustration the ICZM of processExecution presentation an evaluation : and of Thediagnostic process involved useof “problemtrees” and a cohort of heavystudies. localthematicteam carried the A out the diagnostic, receiving training in the process qualify them for continuedparticipationin the ICZM, to after the completionof this operation,Thisteam set up a localofficeon the basis well identifiedskills, of To presentthe findingsof the diagnostic, simplifiedsummary drafted in order to makethe informationasaccesa was sibleaspossible the players(cf.the figure below).Followinga validationworkshopattendedby someof the responto dentsto the study,a decision madeto emphasize was supportfor initiativeswhich had alreadybeen identified (waste collection,pollution),to limit damage the mostthreatenedzones(reefs,beaches), to promotethe visibilityof the to and actionsundertakenasa means raisingthe awareness the entire population, of of fXMIp/e 5 : Presentation of the Comoros coastal zone environmental assessment (An EUIPRE-IOC project) COASTAL AREAS CHIEF ACTIVITIES TYPES OF PRESSURE PROBLEMS IDENTIFIED 1 Dredging quarrying 1 and Tourism Urbanization Transportation Encroachment Resource mining Waste deposit Coastal fishing PoachingUrbanization Transportation Waste deposit Resource mining Housing Transportation infrastructure Encroachment Waste deposit Resource minina Development temporary of housing Liquidandsolidpollution Public-health problems Highdemand wood,for builfor dinqandfuel Agriculture subsistence for andsale Pasturing Urbanization Encroachment Waste deposit Pressure landin villagers’ on reserves Property-ownership conflicts Erosion Sedimentation reef of Lumbering (woodfor fuel/ woodfor building) Encroachment Resource mining Water scarcity Forest degradation Watershed erosion Retreat beaches of Decline marine in biodiversity Coastal erosion Ecosystem degradation Public-health problems Threat coastal to fishing Loss potential of touristbusiness r Strong regulation local of access - depending demand on for materials - Local notvalidated rights by theState . Activities regulated selectivelybyenhanced as value touristattractions . Veryweak(absence enforof cement) . Presence localrulesfor of access the areaand to regulating techniques . Local rightsnot validated by the State . Existing unenforced but legalframework . Regulation the players’ via multiplepurposes Veryweak(absence of enforcement) DIAGNOSTIC Thecoast offshore : and zone the onlyavailable wastedeposit areas . Absence waste-treatment of or sanitation infrastructure . Presence localwasteof management efforts(neighborhood groups) . Unenforced city-planning rulesfor housing construction Lack control of . Presence a traditional of land-attribution procedure . Forest State-owned q domain opento the public . Flexibility the agro-sylvoof pastoral system . Dependence internatioon nal markets exportcrops for (Ylang-Ylang) . Players’ multipleactivities Complex property land legislation . Local appropriation and regulation year-round by resident communities . Recent adoption a Forest of Code (unenforced) PHASE: Preparation 2 v issuescenario I grids d economic assessments ti public declaration (officialization of thescenario chosen Tasks d institutionalizationthe of steering committee fl initialization a negotial of platform ti identification desirable of scenarios /arbitrationof choices and agreement possible on scenarios ti social economic and Outcomes 1,shared termvision long fl alternative scenarios ti consensual of goals choice and I 1 STEP: Desirable possible 3 and scenarios Case study support: 7,Saint-Cyprien France Beach, 8.Grand Bay, Anse Seychelles Thisstep is interdependent upon the precedingone, and in somesituations, be conducted the same may at time.A discussion about “what is going on” and what problems presentleadsto a discussion how the are of future shouldbe. Thisinvolves useof communicathe tion, negotiation,and mediationtechniques, developed by socialengineering “resource and mediation” (Mermet,7992 Weber, ) act asa frameworkfor ; 1996 linking different collectiveor individual representationsof the sameterritory.It is importantto carryout this mediationphasein a pragmaticway, adapting scenario-constructiveprospective or techniques the to realityof the terrainand the people: it is advisable to ensurethat a real debatetakesplace,involvingthe intentionsand choices variousgroupsof players of (“validation”)on their own landratherthan elaborate sophisticated scenarios the expert level. Clear, on simplechartsof strategicchoices be submittedto calI the communitiesinvolved by interface teams or commissions. These chartscan be excellentteaching tools,leadingto level-headed economic planningand the most realisticchoicesof vocarionand strategy possible 33 lnitialization of a “” dialogue between Factorsto be considered Per, 3 at How to structurethe steeringcommittee In the wake of step 2, it may now be useful to change the orientation of the steering committee. Instead of “qualification commissions”, they will be “recommendation commissions” (Gorgeu, 1997) focusing on a few key issues which were identified previously (land-use management, tourist development, water management, erosion prevention, etc.). It is important to note that the way the steering committee “labels” its commissions, their establishment and their stated purpose determines future orientations, To ensure that reflection takes place about the issues institutionalized through these commissionsin this way, it is the duty of the steering committee to engage the players concerned in the ICZM in a processdesigned to reach a consensus,This processis included in step 3.. important issuesand differences in opinion of the players involved to an agreement concerning individual and collective measuresprescribed as a means of solving the problems which were identified. The goals of this consensus, mediation, or negotiation approach are to facilitate joint action on the part of institutional and sectorial players, and to go deeper into specific issuesas they emerge in the course of negotiation, to identify acceptable scenarios,and to convince the players to commit resourcesfor implementation lnitialization of an approachto consensus One of the most delicate phases in the ICZM process consists in going from an observation of the most Negotiation is usually presented as a multi-phase process(cf. box). Instituting an ICZMprocessamounts to elaborating a collective action plan. it is thus important to define the contours of the project and the collective. We feel it is useful to present a plan for carrying out a coordinated approach as formalized by J. Weber (1996). 34 Box6 : Negotiation a three-phase as process Assoonasnegotiationreaches certainlevelof complexity duration,it canbe dividedinto a series phases a and of which are characterized differenttypesof reasoning. by Thus,the pre-negotiationphaseconsists pointing out the obstacles the negotiation itself. It shouldconcludeby of to leadingthe partiesto acceptthe principleof discussion the rulesthat will governthat discussion. and Thesecondphaseaimsto establish agreement“formula” by reachingconsensus an about the definition of the problem to be solved, guiding principles, pointsof contention,the possible the the packages in short,the global configuration : of the agreement, Thethird phaseconsists ironing out the details: that is,fine-tuningan equilibriumfollowing a discussion eachof of of the pointsup for negotiation,Manysuchencounters, especially internationalones,simultaneously the follow two parallel courses an “official” one basedon the implementation formal procedures, an informalone which provides : of and a forum for muchmoreopen discussion whichthe role of individuals in themselves essential is (Based Faure al.,1998). on et At the outset, the entire coordination approach assumesthat an initial situation has been established, that the players are clearly informed of the conflicts which oppose them to others, and that the welfare of all of them depends on solving the issue (J. Weber, 1996). In addition to integrating players directly involved in the process, it is important to draw in those who are absent from the process at this point (cf, box), If the discussion forums are structured around a unifying theme (the official purpose of the ICZM), backed up by the environmental assessment, cohea rent result can be expected. Based on the environmental assessment (current state of the area/diagnostic), and assuming that the trends observed will continue, the players are encouraged to discusswhat they see as the most probable evolution of ecosystemsin relation to their own activity and situation, This will lead to the production of a “perception chart”. The players will then discussthe social, economic, and environmental acceptability of an indefinite extension of the trends observed. The fact that these trends will inconvenience everyone anchors the entire approach. It creates the initial situation from which the rest of the process can unfold. The mediation approach requires people with listening skills who can report on the opinions expressed : They must also have the ability to point out the valid aspects of each viewpoint during negotiation. Box7 : Coordination commissions workshops or Although plannersoften dreadthe organizationof suchlargepublicmeetings, are wrong. On the contrary,they they shouldbe designed opportunities(1)which giveriseto mutualsocialization the perspectives sustainable as of for developmentwhich are the basis the ICZM of approach. Thus,the commissions shouldbe set up with this goal in view,First and foremost,they mustbe drivenby somesort of inner dynamic whosepotential efficiency be increased the will if discussion leaders recognized legitimatespokesmen the issuein question,dynamicenoughto devotethemare as for selves this duty,and highly integratedin the pilot structurewhich hasassumed task of intercommission to the coordination.Secondly, thought about the composition the commissions altogetherworthwhile. Theircomposition of is will be meaningless unless respects two factsbelow : it the - The commission be representative the field concerned primaryrequirementis not alwayseasyto fulfill, must of This Certainplayersmayrefuseto participatein this sort of mediationalthoughtheir agreementis crucial.In other cases, certainsegments societylackrepresentative of structures despitethe fact that they play a preponderantrole on the coastal (recreational area beachusers, poachers, gatherers shrimp,crabs, shellfish, example). shouldbe and of and for It noted that the oppositesituationcanalsoposea problem: a numberof different playersmaypositionthemselves as representatives a sector(tourismor the environment, example). this case, will be necessary screen of for In it to candidatesfor representation (moreor less strictly). - Althoughthe commission fulfil1the abovementioned must requirement, it is limitedto that alone,it will reproduce if a mono-sectorial dynamic.Discussion basedon a familiar field may be mucheasierto structure,but it will not be meaningfuland productiveunless players from other sectors integratedinto the commission. taskwill consist are Their in confrontingtheir issues values thoseof the field in question.Toachieve purpose, isadvisable step and with this it to up this dynamicby promoting multi-commission participationon the part of the players,though the number of members eachcommission of shouldbe kept low enoughto makediscussion possible. 1)Thesteeringcommitteeisanothersuchopportunity.Socialization alsobe a productof the communication may policythesecommissions adopt. goals. This is the step which calls upon input from On the basis of a common refusal of consequences scientific experts, especially economists, as a means that a prolongation of current trends might have, it of comparing the feasibility of the scenariosdevelobecomes possible for the different actors to discuss ped by the players (rather than by the “specialists” what elements would make up a desirable, long- alone). By introducing the scientific evaluation of term future, tong-term planning is a means of overcoming conflict and arriving at a shared vision much more easily. The appropriation of long-term goals “precedes and authorizes the definition of management procedures in the middle and short term” (Weber, 1996). The shared vision may not necessarilybe applied in a uniform way to the whole of the area involved, but may be interpreted differently depending on prevailing characteristics,attitudes, values, and purposes in each territory. The spatial analysiswhich was part of the previous step (state of the environmentldiagnostic) is indispensable in this respect, scenarios,in the form of feasibility studies (especially in institutional, legal, and economic terms), these scenarios can be fine-tuned until the players (and therefore the decision-makers) agree that they comply with their own long-term plans, Their choice will then be based upon the best cost/value compromise.Thanksto the scenarios,the desirable future (or long-term vision) becomesa possible future. Mid-term scenarios validated by the players The construction of mid-term scenariosis a meansof considering the various ways of reaching long-term 36 Box 8 : How canan ecosystem priced be ? Environmental economics makesa distinctionbetweenthree typesof ecosystem value: usevalue,non-usevalue,and existence heritage)value. (or Usevalueitselfis dividedinto two components, directand indirect: - Directusevaluemeasures currentadvantages the drawnfrom usingpart or all of the ecosystem. Activities which remove resources (fishing,seafoodharvest, farming,etc.)or consume fish them (recreational research or activities, belong etc.) to this category. Obviously doesnot involvethe destructionof the asset,Private use goodsand services drawn from the useof the ecosystem (fishing,etc.)are usuallymarket-related. Recreational activities (leisureactivities,. fishing)are sport collective services use suppliedby the ecosystem. Conventional economic analysis methods applied‘to determine are their value: substitution value(the costof producingfish in a hatchery a means quantifyingthe valueof naturallyproduas of ced fish), marginalproductivity(contributionto an economicactivity,such as the pasturingof ca,ttlein a wetland meadow), lastly,opportunitycost. and - Indirectusevalueisattributedto the regulatoryfunctions(ecological functions) an ecosystem. functionsqualify of These asvaluesonly if they havean influenceon the presentor future useof at leastone player.Thisis thlecasewhen these functionshavea direct influenceon economic pursuits: when dunesprotectagainsterosion,when foliage absorbs CO2 and thus helpsregulatethe climate,when wetlandsfilter runoff or act as a buffer zone,the nurseryfunction of the mangrove, belongto this category. etc., Thereisno directmarketvaluefor theseservices. methods to pricethem The used concern costs the avoidedby the fact that thesefunctionsare operating(flood prevention, combined the funds etc.) with the community willing to makeavailable maintainthesefunctions,and the amountindividuals willing to spend is or are to haveaccess them (beaches, to scenery, etc.). Thisdetermines their valueto the community. - Non-use valuerefersto future or asyet unknownusepossibilities. evaluates willingness groupsof individuals It the of (or the community) payto preserve possibility engagingin thesefuture uses the ecosystem itscomponents. to the of of or Forthis reason, isalsocalled“option value”andcouldbethought of asan insurance future uses the asset, it on of regardlessof currentuses. Anothervirtual option valuerefersto the possibility discovering species new usages of new or once technicalinnovations appear(marinebiotechnologies). - The existence heritagevaluemeasures maximum or the willingness pay in order to preserve ecosystem its to the and quality,to whichthe individuals attached,regardless its currentuses evenif there is no suchthing asa useor are of and one in the foreseeable future. Maintainingbiodiversity, the culturaland symbolic or valueof remarkable species sites or are relatedto this type of value.It is dividedinto two categories legacyvalue,or the valueattributed to the ability to : transmita naturalheritageto posterity, the existence and valueitself,which isthe valuedrawnfrom the existence the of site or space, which couldbe associated its preservation with value.These values calculated the basis a continare on of gent evaluationmethod,which createsa fictitious marketfor the asset,In addition to technicalbias problems, this methodhasbeen criticizeddue to its scope: who shouldbe questionedabout the existence valueof a whale or of a ColoradoRivercanyon? currentgenerations Can presume speakfor posterity? to Dueto all the uncertainties involvedin calculating thesevalues, they havea significantrole to playasan aid to decido sion-making? Indeed,controversy concerns their role in the decision-making process. mayillustratevariousoptions They (development, conservation, alreadyidentified,by supplying comparative etc.) a assessment theseoptions.In this case, of they become elements the negotiationaroundtheseoptions.Onthe other hand,when they are usedupstream the in of decisionto identify the possiblechoicesby reinforcingthe quality/costanalysis, they must be handledwith extreme caution,because maybe usedto comparenon-comparable thev values. Goalsand strategiesof short- and midterm implementation The choice of a scenario leads to a choice of goals and short- and mid-term implementation strategies. The point is not to choose a rigid scenario; instead, the scenario should be flexible enough to be adapted spatially or temporally, depending on changes in the context. The task of the steering committee, or any mediating committee acting under its aegis, will be to stimulate discussionsand choices,keeping a record of the chief short and mid-term objectives desired by the community and the trail (strategy) for reaching them. Each objective should be matched with an implementation strategy which specifies players (contracts, institutional coordination etc.), resources (additional studies, collaboration, etc.) and a choice of tools. Options may be evaluated according to a variety of methods, but there are obstacles’to using conventional evaluation techniques, because it is so difficult to place a monetary value on the environmental costsor advantages of whatever measuresare taken, The use of maps will make it possible to visualize the future aims for the territory or territories, as well as emphasizing the major spatial intentions (vocations), the intensity of the efforts required for sites deemed strategic or major, and to report on the desired modification dynamics. At this stage, it should be possible to validate both the approval of the environmental assessment,the vision and realistic goals of the change. This validation would probably be formalized as an official public document addressedto the local and national authorities (see example 8), Example 7 : Intensification of development and erosion of the beach at Saint-Cyprien on the French Mediterranean coast Thecontext: In 1963,when the French Riviera saturatedand hugewavesof touristswere going to Spainor Italy in search sea was of and sun,the French government decidedto develop tourist potentialof the Languedoc-Roussillon the region.TheRacine Mission, federalgovernment a effort for tourist development, supervised seven over yearsof planningfor the development of seaside resortslike Capd’Agde,Port Leucate, Port-Barcar&. and Since then, moreinfrastructure continually has beenneededfor the ever-increasing tourist pressure. isthe case the municipality Saint-Cyprien, Such of of which,in 1969, openedthe French Mediterranean Coast’s secondbiggestmarina(2600berths).Nevertheless, intensification developof ment aggravated coastline erosionphenomena. Since1996,an association the preservation St.Cyprienbeachhasbeenworking to alert the community(shopkeefor of persand other users) the dangerthat the beachmaydisappear, that housingmaybe damaged. to and Theyhavelobbied municipal authoritieson the subject.Based a studyfor a protectionplan for the St.Cyprienseaboard, beachwas on the dividedinto two geographicunitsaccording different Pressure/State/Impact to criteria. Illustration scenarios : established the absence coordination in of In response a communitydesireto savethe beach(for a varietyof reasons), scenarios to the imaginedessentially deal with physical regulatoryconsiderations. is because and This regulatorycoherence mostlikelyto attract investment is from nationaland regionalgovernment (departmental regionalcouncils). shortterm plan hasbeenadoptedto artifiand A ciallysandthe beacheverysummer, althoughthe quality and availabilityof sedimentary materialrequiresdredgingat sea.The midtermcoastaldevelopment alsorequests all the players plan that cometo an agreement with localauthorities (both municipal decentralized and federaloffices). These officialsmustengagein a long regulatoryprocedure before the workscanstart, No socialor economic evaluationof the scenarios place,despitethe fact that economic took considerationsare uppermost the arguments variousplayers. in of Thiscaseshowshow the ICZMprocess often viewedasa series technicalinterventions is of ratherthan a choiceof solutions negotiatedby all the players who, in this case, accustomed systematic intervention,Moreover, the are to State since problemis not exclusive the municipality St.Cyprien, would be wisefor town authoritiesto approach to of it other municipalcouncils the area,to seeka broadenedactionplan applicable the entire department. in to kW?lp/e 8 ,’ Management plan for the Grand-Anse Special Reserve, Seychelles Thecontext: Since1970,the Seychelles developeda network of natural land reserves have covering40% of the territory (about 20,000hectares). However, none of these reserves includes coastalzone. Marine reserves the covera surfacearea of 23,000ha. The Statehasdelegatedmanagement thesespaces a para-publicagency, Marine ParkAuthority. of to the But the extent and dispersion the network makes of their inspection monitoringespecially and difficult. Moreover, the Seychelles, a population of some75,000inhabitants,haveinvestedin the developmentof tourist infrastructure with which would makeit possible accommodate to 130,070 visitorsper year in 143hotels(1997figures).Thisexclusive type of tourismis basedon a demandfor “natural wonders”and helpsto enhance economic the valueof protectedreserves. However, is alsoa heavyconsumer water - a rare resource and produces it of waste,both solid and liquid. Grand-Anse of Mahe)corresponds the ICZMpilot zone defined by commonagreementin 1997,betweenthe (Isle to Government the Seychelles the IndianOcean of and Commission Regional Environmental Program. isa relativelysmall It area(68 ha),where a diversityof milieusand useshasbeen preserved. ecosystem variedin a site which doesnot The is containany hotel infrastructure, although it supportsa varietyof other economic activities, Localinhabitants, city-dwellers,and touristsare all site users. After a player-identification phase(surveys) a period of negotiation about the fate of this natural site, various and scenarios were elaborated.Thecruxof the problemconsidered the maintenance management the quality was and of of natural milieuswhich contribute to the islands’attractiveness a tourist destination.In this case,Grand-Anse as is also a site with a number of usesand part of the Seychellois heritage.The scenariothat would result if a natural reserve createdat Grand-Anse to be madeexplicit accordingto the valuesattributed to the site by various was had players. workshopresultedin consensus a long-termvisionof the site,officiallysealedby a PublicCharterengaThe on ging all the players. Illustration the ICZM of processthe Grand-Anse : Charter ThePublicCharterwasan officialmeans sealingthe approvalof all the playersin the area.It isworded asfollows : of “The inhabitantsof Grand-Anse, attachedto the naturalsetting in which they liveand awareof the valueof the natu, ral resources locatedat Grand-Anse, the economic socialinterestof this environment the presentgeneratron of and for aswell asfor posterity, statethe following intentions: 1.A will (I)to preserve improveenvironmental and quality,beingvigilantaboutthe waysin which resources (water,land, forests,crabs,etc.) are managed,in order to ensurethe long-termviabilityof these resources to keepthe beach, (II) forest,and mangrove Grand-Anse at clean(Ill) to avoiddestroyingthe dunesby tramplingthem or removing sandfor other uses. 2. Toreachthesegoals, peopleof Grand-Anse to createa special the wish reserve which includes mangrove, forest the the alongthe DaubanRiver, the beachat Grand-Anse. and 3. Thepeopleof Grand-Anse recognize legitimacy the Grand-Anse the of Environmental Committee concerns envias the ronmentregardingthe future Grand-Anse Reserve. peoplewill be represented this Committee five members The on by it shallappoint itselfaswell asthree substitutemembers. 4. TheGrand-Anse Environmental Committeeis an entity which canarbitrateand negotiateenvironmental disputes, Its purposeisto providelocalcoordinationof activities aroundthe siteof the Grand-Anse Reserve sucha way asto ensure in the long-termco-viability the naturalresources localeconomic socialactivities. committee, of and and This whichispurely environmental local,hasno politicalgoals.It isan assembly the representatives the players and of of involved the creain tion of the reserve, is madeup of ten members three substitutes, committeeis entrustedwith the task of and and This seeking waysand means the necessary reachthe goalsdesignated point I, It promises reporton its activities to in to regularly,both to localplayers residents relevantstateagencies, compliance the lawsof the Republic the and and in with of Seychelles. 5. The peopleof Grand-Anse requestthat the economic profitsfrom the eco-tourism activities contributeto localdevelopment(jobs,the creationof additionaleconomic activities, improvement the environment of beyondthe bordersof the reserve, etc.). 6. Thischartercannotbe modifiedunless new workshopopento the entire publicof Grand-Anse held. a is PHASE : Preparation 2 Products I/ territorialandthematic maps ti evaluation follow-upsystems and I/ actionI project files ’ IQIAJ ti preparation the of institutionalframework d additionalstudies ti zoning fl training *I identification actions of andprojects _I v communication ti evaluations and Outcome5 ti awareness the valueof of ecosystems ti validationof the management plan “.” a,* -iI I STEP : Elaboration the Management 4 of Plan 9,Met-he Master Madagascar Plan, * Themanagement of an integratedapproachto plan sustainable development be comprised several may of different dimensions,spatially and thematically. Dependingon what precededit, it may involve a masterplan for the development an entire region, of or the management of a resource (water, for example). other cases, maybe a muchmorespeciIn it fic plan of action,targetinga given issue(example : management the mangrove of swamp). The management-scheme document to be drafted shouldcoverthe following mainpoints: - a definitionof the zoneinvolved its specific and territories, based on the results of the environmental assessment (biotas, resources, activities, institutions); - the top priorities, defined by a consensual agreement,whichwill actasguidelines studyanddiscusfor sionby interconnecting various andenabling the issue the group to approachthem coherently(productof phase 3); - the main guidelinesfor the drafting of the plan (na tionalllocal, governmen hierarchy,adaptation, ta/ Casestudy support :: support spatialimplementation, ; etc.) - a presentation the overallgoal or goalsand its of spatial breakdowndependingon the milieu (river, wetland,mangrove swamp,lagoon,reef, urbanarea, etc.)and the territory (territorialu&j; - locations whereactionwill be taken,and the prioritized list of actions selected the snortandmidterm for (about five years),as well as the projectsfor which outsidefundsmustbe sought; - the type of follow-up evaluation&tic/~ is planned and the mainstepsinvolved the implementation in of the entire plan; the institutionalframework(projectmanagement and follow-upstructure), fundingsource:;, timetablefor a achieving goals,and outreach the policy. What matters here is the implementationstrategy, which must accountfor the way variousscales and levels of decision-making toge;!her.it must be fit realistic and progressive its grasp of issuesor in commitments. Factorsto be considered Ster,4. at ment) and step 3 (desirable and possible scenarios) resulted in the definition of territorial units with During this step, the steering committee and its their own goals and activity plans. The Geographic subcommittees (commissions)continue to supervise Information System(GIS)must allow the printing of the plan elaboration work, which may be carried out corresponding maps. In this respect, it is important to by a technical team. Becauseit is the cornerstone of note that, like the indicators, cartography is a process the rest of the process, the steering committee’s which lasts through the different steps. Just as the specific task is to prepare the institutional structure indicators do, the maps are an integral part of the which will be recommended for the plan’s implemeninformation system and thus of the evaluation and tation and ongoing activities, by integrating them follow-up process. into existing or emerging regional and national (and, if applicable, international) structures, To be viable, Carryingout specificstudieson top-prioany ICZM project, no matter how local it is, must be conceived as part of a more global approach, in the rity issues construction of which it is an element. (“double As the elaboration of the management plan track” approach, CRC,1999). proceeds, additional studies may be needed (analyses,surveys,etc.) to specify the goals. In-depth Focusing the division of the areainto studies dealing with top-priority issuesmay also be on undertaken when this step is reached. They will then geographical units be considered as elements in the implementation Work initiated during step 2 (environmental assessstrategy nurturing a given objective. Roleof the steeringcommittee 42 Validation of the management pian opinion surveys, press kits, radio broadcasts, etc. project The management plan must be acknowledged and validated by all of the players who participated in the process, as well as by the partners it is desirable to associate with its implementation and the decision-makers who will endow the plan with a legal existence as well as a legitimate one. This approval process may take place in the form of public workshops and/or consultations which, in addition to supplying an approval of the choices and strategies, will make it possible to specify mutual commitments and the exact contribution of each partner (these documents could be annexed to the manaqement plan). The debate could also be broadened to a public forum, in the form of Evaluation of the budget, costs, and impactof the actionsconsidered For the coherence of the whole, each orientation and goal identified by the plan must correspond to operational actions and measures to be taken. A convenient way of summing up this whole is the “logical framework”, which is in widespread use these days for programs and projects. But the logical framework is insufficient : to remaiin realistic in the implementation, it is important for t:he actions outlined in the logical framework, whether they are thematic or territorial, be catalogued on “individual action files” which may contain the following type of information : Box 9 : Implementation the management : models actionfiles of plan for 1)Title of the mission. Supervisory implementation agency. 2) Briefdescription the corresponding of contextand problem 3) IO-year goalstargeted by the action,brieflyexplained 4) Goals the actionwithin one,two, or three years, of globalor specific, qualitativeand quantitative,expressed situaas tional conditions be reached to 5) Descriptionof the action : approachmethod,geographiclocation,content,playersinvolved 6) Projected budget 7) Projected resources (technical, human,and material) 8) Projected financingplan 9) Worksschedule 10)Evaluation system indicators results(quantitativeand qualitative), : of evaluationmeans 11)Necessary inter-institutional coordination. Playereducation/training Ideally, training should be addressed to all the players involved, at every different level of governance. The guidelines chosen will determine which training fields it is appropriate to emphasize. and training efforts are part of the goal implementat’on strategy’ Identificationof projectsto be submitted to donors One of the key aspectscontributing to the raising of Becausesome actions will be projects in themselves awareness of ICZM issuesand the discussionspresen- due to the technological or financial means they ted by players involves a familiarization with the require (levee construction, highway construction, concept of “total ecosystem value” and the costs water-treatment and irrigation plants, etc.), they engendered by impacts, even though the means of may be the subject of specific proposals and negotiacalculating these values is still approximate (what matters here is more the raising of awareness that tions with investors. At that stage, each of these market value is not the only thing that counts, and actions will become a project in and of itself which that other values should be considered). Outreach should be treated as such. Evaluationand follow-up process Although they are essential to evaluating change and adapting to it, the evaluation and follow-up processesare still in their experimental stages. bing socio-economic dynamics. As a means of evaluating the performance of a Program or Project, it is advisableto supplement the DPSIRindicators with a series of other indicators referring to the guiding principles of sustainable The DPSIRindicator system (Driving forces-Pressuredevelopment, i.e. : efficiency, fairness in usage, State-Impact-Response) is a convenient way of public participation, the viability of the alternatives organizing information according to cause-andchosen, and risk prevention measures. effect relationships applied to resource management. However, its deterministic aspects make it somewhat lacking as a tool for accurately descriEXafI7p/e 9 ,’ Elaboration of the Coastal Zone Master Plan for the Menabe region, Madagascar Thecontext: The Menaberegion was chosenas a pilot ICZMarea within the frameworkof the IndianOceanCommission Regional Environmental Program, sponsored the European by Union(IOC-REPIEU). of the main reasons this regionwas One why selected that it had alreadyset up a Regional is Development Committee (RDC) the basis localdynamics, on of encouraged by the WorldBankwithin the frameworkof its policyof assisting management decentralized the of structures. After a partial environmental assessment, chieflyon surveys based conductedin 27 coastal villages, summary/approval a workshop (September, 1997)made it possible initiate a coordinationprocess to with all the playersconcerned. The problems were prioritizedfor the first time and variousscenarios outlined. were Illustration the ICZM of process : The MenabeRDC, the help of the IOC-REPIEU with (1998),beganto implementselected micro-projects pilot villages in (fishingequipment,wells,schoolfacilities,and first-aidsupplies). For the RDC’s strategicconsiderations (because must assertits role in the decentralizationprocessunderwayin it Madagascar) muchasdue to the needfor visibleresults the IOC-REPIEU as for program,a decision madeto elabowas rate a first draft of a Regional MasterPlanfor sustainable development Menabe’s in coastalzones. elaborationwas This subjectto a certainnumberof conditionsand prerequisites, : the MasterPlanfits into a dual structure,nationaland i.e. international(the IndianOceanCommission); elaborationis basedon a double-track its approach(fromthe regionalto the local,andvice-versa); elaborationwasthe subjectof ongoingnegotiation;the field of application extends multiple to usesin termsof management resources, of productionspaces, coordinationbetweengovernance and levels. Several specific studies were carriedout simultaneously urgent subjects asthe tax system erosionof the coast on such or at the city of Morondava. divisionof the area into geographicunits wasfine-tunedon the basisof existingdata The (morequalitativethan quantitative)and the administrative boundaries townshipsand municipalities. and sea of Land boundarieswere temporarilyestablished being those coveredby the coastalcommunities, a line 100 meters as to offshore.These geographic specifications would subsequently makeit possible deepenenvironmental to impactstudies by geographicunit. Dueto plansto hold a second summarizationlvalidation workshop,it was importantto presentthe Coastal ZoneMaster Planin the mostadvanced accessible possible. wasto articulatea development and way It visionfor the verylong term, aswell asgeneraland territorial orientations,aswell as implementation tasks.It wassupplemented two morefocuby sedcomponentplans: a Pilot Planfor communityactionand an UrbanPlanningProjectfor Morondava, maincity, the After the summarizationlapproval workshopfor thesegeneralplanningframeworks, two yearsafter the first, the held focuswason narrowingdown the generalstructures activitiesprogrammed time and space, to in according existing to financial,institutional,and humanresources. of the top-priority issues One definedand suggested outsidefunding for waserosionprotectionfor the Morondova coast,which hasgotten evenworsesince. PHASE : Implementation 3 /institutionalstructure access incentive to \ Outcomes ti formal adoption the plan of d Institutional recognition the of territory itsmanagement and scheme ‘:6x% _I STEP : lnstitutionalization 5 .: Case study support: 10. The Marine Reserve o Formal adoption of the managementplan is the outcomeof an approvalprocess whichbeganin step 1.Because was it arrivedat througha process negoof tiation and validation,the plan (whateverits name and form : master or scheme, plan management plan, etc.)actsas a socialcontractinvolvingthe local officialsof a territory or several territories,the residents, and their partners.Although the contractis a local one, it is integrated into the sustainable national development strategyfor coastal zonesand must be recognizedas such during the institutionalization stageof implementation. the territoryisnot too big, If it might evenbe advisable “ritualize” the moral to commitmentby havingall the localplayerswho are involvedin the plan and wish to participate in its implementation the document.In signing,partsign ners from outside the area immediatelyconcerned (higher-levelgovernmentagenciesor officials, the State,socio-professional organizations, recognize etc.) the legitimacyof the area (or territory)and its development project. This is also a matter of making certainthat the funding sources foreseen during the elaborationstageare still available.Because outside financing(investors) usuallylimited to a period of is fiveyears, is importantto guarantee it somemeans of ongoingfinancingby internal fundkg sources. These maybe matchingfundsfrom the St;jte and/orrevenue generatedat the local level. In this context, the follow-upand adaptationin time of the management plan are alsoexpenses which must be evaluated and integratedinto the overallbudget. 46 factors to be consideredin step 5. Formalapprovalof the plan As we noted above, the plan is the outcome of a negotiation process which reflects the image and aspirations of the inhabitants of a given territory, their society, and their shared natural heritage. It offers a project for their future, with explicit alliances and support, Whether it has regulatory value or not, the plan thus draws its strength from the act of politics or local government (institutions, networks, regulations, norms, public and private usages/players) that it represents, and the public affirmation of this act. The agreement to which the parties to the plan are signatory (local players and authorities) will express (IV) lastly, their commitment to take action and pool their resources Institutional structure This is a matter of setting up the institutional references which will be needed for the sectorial and territorial plans, to make the plan operational and coherent with corresponding national policies and their implementation instruments (legislative, regulatory, economic, etc.). The steering committee usually becomesthe core staff, hosted within one or another institution, The strength of this core staff residesnot only in the official recognition of its legitimacy and, in some cases,its legali*ty,but especially (I) common recognition of the territory or territories, in its ability to embody the collective project that the in terms of their geographic limits and characteris- management plan represents. As such, it has the authority to remind everyone of his commitments : tics; the more debates are expressed publicly, the more (II) agreement as to the goals and strategies of deve- the weight of the collective opiniorl of the partners lopment, stated in an overall way and individually, will matter. This is the crux of local governance when (II) their recognition of the institutional structure in faced with the threat of power struggles and expensive legal battles, charge of coordinating and enforcing the plan; 41 Mobilizing funding and incentive measures In addition to financing from lending institutions, which is limited in time, before the implementation phase begins, it is essential to define the financial and economic mechanisms which may generate resources belonging to the programme itself and thus ensuring its ongoing activities. There are a number of incentive and non-incentive tools available, such as subsidies, taxes, permits, etc., depending on production areas and uses. In communitymanagement systems,voluntary agreements instituEXaI77pk ting partnerships sharing a single resource between several usersfrom the same community may lead to the mobilization of the “Community Investment Fund” (Borrini-Feyerabend, 2000). This type of fund is designed to be re-invested in production activities which, in turn, will generate wealth for the entire community and income for those who are directly involved in the operations. It may be useful to combine this type of management with partnerships entered into locally with the private sector (real estate, fishing, tourism, etc.). 10 : The case of the Sea of lroise Isles Natural Reserve (Northern Brittany, France) Thecontext: In 1992,the islesof Bannec, Balanec, Trielen,in the MoleneArchipelago, and were officiallydeclaredto be a natural reserve. wasthe resultof several This yearsof scientificresearch localand institutionalcooperation, sealed and and the archipelago’s asan environmental fate haven,Ownership the isleshad beenacquiredin 1972by the Finistere of departmentaladministration, the proddingof an association the protectionof nature(SEPNB).wasa turning point for at for It the territory which,beforethe 195Os, beenprivatelyowned.At that time,they were chieflyusedby seaweed-gathehad rerswho usedthem asa basefor harvesting laminariain the Seaof Iroise.Thegradualabandonment theseisles, of for both economic humanreasons and (laminariais no longercollected) promotedthe acquisition the territory aspublic of propertywhichtoday isdevotedto natureconservation, Asfederal naturalreserves, theseislesare managedby an agencyappointedby the Prefect. is in chargeof settingup It a conservation management and policythroughout the territory coveredby the reserve. agencyis the association This “BretagneVivanteSEPNB”, non-profit,public-interest a organization. isassisted the Finistere It by departmental hunters’ association concerns as gamemanagement, because traditionallythe peopleof the Molenearchipelago huntedduck had and rabbit there. Theestablishment this reserve part of a nationalpolicyfor the establishment protectedareas. of is of Theoverallplan for the reserve the management is plan. Illustrationof the ICZMprocess Implementation, : institutionalization, follow-up and of the management plan Several versions the management were drafted and submittedto the association of plan headsfor approval.Thedefinitiveversionwasadopted by the reserve’s consultative committee.Formalapprovalof the plan wasachieved when it wasadoptedby the NationalCouncilfor the Protectionof Nature(a nationalagencyoperating underthe aegisof the Ministryof the Environment the Ministryfor LandDevelopment, and vestedwith the authority to approvethe managementplan). The management hasbeen implemented plan within the frameworkof time and spaceon the basisof an operational programand the scheduleassociated it. Operationsplanneddiffer from one isleto the next and from one year with to the next. Plannedand prioritized,theseactionsaffect all aspects the life of the reserve of (maintenance, scientific research, publicoutreach,monitoring,follow-up studies,etc.). The managementplan also providesfor a yearly evaluation,when the activity report is drawn up, which assesses progress madeon the variousactionsplanned.Thisisalsoan opportunity to eliminateactionswhich mayhavebecome obsoletedue to profound changes management in techniques. In 2002,the management plan comesup for review after five yearsof implementation,At that time, an evaluation will be made,basedon the goalsset in the management plan, The evaluationwill be carriedout either by a member of the association an engineeringconsultant,asa means recordingand analyzingthe resultsobt,ained. will give or of It riseto a specific documentwhich will reviewall of the goalsthat had beensetfor the five yearswhkh havejust elapsed.The management will be updatedasa meansof re-orienting management plan goalsasa function of the evolution of the situation and the future plansfor the reserve, PHASE : Implementation 3 Products (I annual reports d ongoing log (I specific contracts ti pilotcommittee operation d technical operations staff ti mobilizing resources d training d indicator-based d communication \ Outcomes I/ tangible accomplishments fl practice inter-institutional in coordination v practice local in leadership ‘,,$ STEP : Applicationof the management 6 scheme Casestudy support : 11.Rhone=Mediterraneran-Corsica planfor water-resource Master management, France Implementation involvesmore than just the accomplishmentof the activities forth in the plan; it also set providesfor the organizationof the meansfor the transformation the territoriesas well as the relaof tionships betweenstructures people.Thus, is as and it mucha matterof organiza asof planningof activition ties, which the steering committeemust negotiate with its partners orderto formalize ways in the each playerconcerned participate. fact,implementawill In tion will testthe follow-up/evaluation system, bringing about a numberof adjustments that system, to based on theperformance each of yearlysection activityIn of light of the results obtained (progress made and effects produced),combined with new events or opportunities,it will probably be necessary reto examine, revise, need the section activities and if be, of whichis to follow Coordination I Factorsto be consideredin step 6. Roleof the steeringcommittee Using its recommendation commissions(cf. Step 3), the steering committee can rely on work teams which will be organized on the basisof goals and/or actions planned. The steering committee does not carry out the plan. Instead, its purpose is political : to orient and supervise. It must therefore also be able to rely upon an interdisciplinary technical coordination team, whose tasks and missions must be defined : management and technical coordination of the process, action engagement and follow-up, communication and coordination, carrying out particular studies, carrying out operations and works, etc. In the execution phase, the steering committee will have to devote particular effort to the modification or creation of training and awareness-raising sessionsfor the partners, institutional or relational devices, regulatory devices or goodconduct codes, financial devices, and lastly legal devices. All of the foregoing structures are vital to the actual execution of the activities planned for in the management scheme. Coordinating actions with sectorial or territorial policies To make sure that the plan’s actions are coherent with those undertaken by other agencies in charge of sectorial or territorial policy, it is important to activate the systemsset up for inter-institutional coordination. This is a meansfor both institutions to gather information about the evolution of the policies and their implementation tools (zoning plans, city-planning projects, housing construction, top-priority investment projects, forest conservation plans, network of protected marine areas, etc.). At this point it becomes obvious why it is so important to plan for corresponding coordination mechanisms, even when acting at the local level. Ongoinglog for following-up the execution of the plan The follow-up/evaluation system, based essentially (but not only) on a series of DPSIR indicators (Driving forces - Pressure - State - Impact - 52 Response)and indicators of the performance if the ICZM system, will feed into the ongoing log for following-up the actions undertaken.. These ongoing logs or “management boards” include standby devices to detect changes or opportunities as well as evaluation devicesto assess effectivethe ness of actions and make the decisions needed to adjust or modify the implementation, In addition to an overall follow-up of the zone, the ongoing log will make it possible to verify each geographic unit as a micro-territory with its own sensitivity and vulnerability factors, It is fundamental for this follow-up/evaluation system to be operational, because it is the best tool for maintaining an overall vision of the activities, without getting lost in routine daily operational details, The ongoing log will also include, in a useful form, budgetary follow-up, because allocation of financial resources for investment and operating costs is an expression of the effective choices made earlier, An analytic presentation of expenses and revenue, goal by goal, will make it possible to compare projected budgets with real spending, analyzing cost overruns (or underruns). Mobilizing resources To implement the various activities for each goal and use all the opportunities for support available, it is important to negotiate special agreements and contracts with various partners. Thesecontracts may include, in addition to the financial commitment to activity programs, specific commitments to certain policies and interventions which the partners (local and State agencies) intend to carry out in the territory concerned, as well as the coordination means being considered (development plan, purchase of the areas to be protected, changes in the organization of social services). Any contribution, small or large, financial or technical, can be useful to the realization of the plan. Where private agencies are involved, these contributions may come in various forms : from a simple letter of commitment to a point-by-point contract, from a financial donation to a major grant. EXM7pk 11 : The Rhone-Mediterranean-Corsica Water-Management Plan (SDAGE-RMC),France Thecontext: In France, law passed 1964concerning distributionand supplyof water and the fight againstpollution” introa in “the ducedthe conceptof management watershed.At that time, the French by territory was dividedinto six majorhydrographicwatersheds, sixWatershed and Committees appointedto planwater policy.Oneof thesewatersheds were -the Rhone-Mediterranean-Corsica basin- coversall of the French rivers and their tributaries which drain into the Mediterranean. watershedcovers or part of 9 administrative This all regionsand 30 departments, extendsoveran and areaof 130,000 km?,i.e. nearly25%of the nationalterritory.Thewatershedactivities characterized a numberof are by different water usesand the mobilizationof high volume.The 1992WaterQualityLaw set up decentralized planning tools for the implementation sustainable of management water and aquaticecosystems of known asthe SDAGE Water Development Management and Plans. Theseplanswere actuallydrafted between1992and 1995,in particularfor the Rhone-Mediterranean-Corsica watershed. watershedwasfinally dividedinto ten territories,includingthree with a This coastal fringe. Illustration the ICZM of processa management : boardasthe SDAGE follow-upsystem In conformitywith the policy guidelinesof its SDAGE Water ManagementPlan,the Rhone-Mediterranean-Corsica committee, coordinatedby the Rhbne-Mediterranean-Corsica Agency, Water decidedto createa system the followfor up of the implementationof the goals set forth in the planning document.This is the Water ManagementPlan Management board.Thisdevice drafted by the WaterAgency was technical (WaterAgency, staff Regional Environmental Bureau) the help of specialized with research (surface staff water,groundwater, water prices, risks, coas’tal waters,etc.)It isa means pilotingthe water policies of carriedout by various agencies, guidedby the ten strategicpointselaboratedby the SDAGE Watershed : (1)emphasize Plan water quality(2)purifywater in response userequirements consider to (3) the importance vulnerabilityof groundwater(4) improvemanagement to investment respectnaturalenvironand prior (5) mentalprocesses conceive (6) water management a corollaryof land development reinforcelocalwater manageas (7) ment boards, etc. Themanagement boarduses three typesof indicators State- Pressure-andResponse, : which are a means evaluating of the variousactionsundertakento satisfythe goalsof the SDAGE Water Management Plan.Accordingto the ten orientations and the three typesof indicators, management the board is divided into 15 moduleswhich break down local implementation SDAGE of policy guidelines(SAGE watershedplans),the 13 top-priority goals of the SDAGE Water Management (qualityof the waterways, Plan fight againstpollution,eutrophication, toxicpollution,spills,physical condition of streambeds banks,quantitativemanagement waterways,flooding risks,groundwater,drinking water and of supply,wetlands,species preservation, coastline), finally the networksof measurement inspection the and and (followup/monitoring). indicators set up on the basis technicalinformationsuppliedby a largenumberof producers. The are of It isthus an annuallyupdatedcollective endeavor (Cornit de Bassin RMC, 2000). PHASE : Implementation 3 d performance evaluation J sustainability evaluation ti standard indicators fl multi-criteria evaluation STEP : Evaluation Adjustment 7 and ti practice adaptative in management I.,,L Evaluation not an inspection. isan ongoingprocess is It which begins with giving thought to the followup/evaluation systemwhich is most likely to fit the goalsandstrategies There two typesofevaluaset. are tion : a “self-evaluation’, whichfollowsan operational pace (annual,as a rule), and “outside evaluation” whichoccurs a contractual on basis(halfwaythrough and/orat the end of the contract, sometimes and “expost” - some time after the contractends).Thus, evaluation first and foremost“a tool for refiningthe is intelligence the action” (Gorgeu, of 1997)In light of the resultsof the actionsundertaken, evaluation a is means re-examining goalsandstrategies of the implemented,their chronological development, complethe mentarynatureof the actions undertaken, structuthe ral organizationand operating habits, partnership endeavors, In addition to the periodicaladjustetc. mentsto whichtheygiverise,theplan in its draft form usuallyhasa predefinedlife expectancy to ten (five years),at the end of which it must be reviewed.In changingenvironmental, socio-economic, instituand tional contexts, relevance the goalsmustbe rethe of examined. doesnot onlyconsist changing This in them, but, again,going backto the drawingboard for the elaborationof a new plan basedon the preceding steps. thisstagein the iterationof the ICZM At process (the loopingprocess illustratedin the introductionto this manual),we may consider the first cycleof that implementationof the integrated managementof coastal zones beencompleted. has Factorsto be consideredin Step 7. may also rely on opinion surveysand periodic inquiries. Whether the evaluation is internal or external, it The evaluation of the performance of an ICZM will also rely on a structured questionnaire, many project or programme will be all the more relevant if examples of which are available in various publicait is based on precise data (environmental, socio- tions (METAPIMAP, 1998 ; CRC,1999 ; EC,2000) economic) initially gathered in the identification and of preparation phases,The second condition (related to Evaluation sustainability the first) is the existence of a follow-up/evaluation Sustainability is an outgrowth of project perforsystem, and therefore a set of indicators, which is mance, but goes beyond it. It concerns scales(natiofunctional and in use. When the performance of a nal, international) which exceed the territorial limits project is discussed,there are a number of “impact” of the project, It is related to ex-post evaluation criteria that make it possible to qualify the perfor- which is sometimes undertaken by lending institumance. They concern ecosystemsand uses, institu- tions : Are the mechanismswhich were set up strong tions and policy, and society (quality of life, educa- enough to resist the passageof time and change? A tion, women’s role, etc.). Where it is appropriate, distinction should be made between financial quantitative data will be used to evaluate impact : aspects,institutional aspects,and political aspects,all ecosystems and uses can usually be measured. of which have an impact on sustainability. However, qualitative data is most often provided, Nevertheless, whereas the ex-post evaluation although it is difficult to measure (cf. example lo), In conducted by donors can be viewed as a top-down any case,it is necessaryto have an initial situation to approach, centered on effects clustered according to use as a reference, as well as an initial strategic activity sectors as evaluated nationally, the sustainaobjective which indicates clearly (and, if possible, in a bility evaluation will pay more attention to the way quantifiable way) the outcome(s) sought. In this in which costs and advantages (both monetary and respect, it should be noted that one of the duties of non-monetary) have been distributed between the the steering committee is to receive “feedback” from various categories of players : local, national, interplayers after the implementation of an ICZM project national, and global. Likewise, the operating condi: grievances, demands for arbitration, or various tions of the institutions and rules set up by the ICZM other opinions. Likewise, the steering committee will be examined. Performance evaluation 55 Box10: Examples sustainability of indicators rypeof indicators Parameter measured Type of approach Normative Ex-ante Hypotheses Implementation Example application of I IEx: CIFOR the criteriafor sustainable management Indicators Sustainable of Development Conditions required to Indicators of reach stateof reference a Sustainability ;A+!;e$;under conditions of in Assume stateof reference defined Problems scale relation the is - physical criteria with the measurement - economic criteria of indicators - social criteria Stillquiteglobal Ideaof an “optimal”pathto follow up Assumes performances be that can measured defined. and Gaps between currently set Indicators of norms effective and performentDegree ofgoals deviationfrom mantes: of achievea norm Cross-referencing of narrowly definedactions andgivenecosystems Corrective Ex-post of Assumescompromise the Examples the procedures a on - for Impact Assessment (physical goals) goals, make to themacceptable possible revi- - of the “Green Different possible norms: environmental to all the players: Domestic National Product’ cost, maintenance a “naturalcapital” sion of values supply Assumesconceptual a framework linking actions (pressure), ecosystems (state), Linear cause-effect outlook andmanagement (response). rarelyapplicable to Assumes environmental that advantages Sectorial; canbeevaluated economic in terms processes Example the OECD scheme of MR Indicators of impact Prospective Corrective Ex-ante Ex-post Indicators of thresholds, risks Norm preservation of of ecosystems reach the to at leasteconomic : cost Definition “criticalnatuof ral capital” Descriptive Ex-ante Assumes environmental that damage can Evaluation environmental/economical UB beevaluated economic in terms cost Useful anteto select ex policy. “value”,opportunity Israrelyused evaluatepolicy. to Environmental indicators State (no measurement deviation). of A second planning cycle is thus begun. It will enable planners to consider new contexts and developAs time passes, local environmental and socioments, as well as approach more complex problems, economic conditions change, as do national and strengthened by the experience they have already international ones. We are becoming increasingly acquired in the ICZM approach. The evolution of aware of how many external factors can have an people’s attitudes (behaviour) and the way they see impact on a territory and its fate, Thus, it is necesand act upon their own environment is a complex sary, based on the progress and the deficiencies of process which evolves over the long term (20 or 30 the management plan which was implemented, to years and more). Thus, several generations of the circle back to the initial steps : identification (O-l) jCZM cycle are necessary and preparation (2-3-4). This will give rise to a new management plan or project, Exam/I/e 12 : Main positive impacts identified within the framework of the ICZM European demonstration programme of Their projectsupervisors then were Thirty-ninesiteswere selected Europeas a demonstration the ICZMapproach. in interviewed determinewhat they sawasthe mainpositiveimpacts the ICZM to of approach, following implementation. After several yearsof operation,it is interestingto note that the mostobservable effectsare generallyqualitative.They are usuallyrelatedto improvements the decision-making in process which resultedin morecoherentplanningpractices, Thequantifiablecriteria,in termsof sectorial activityand improvement the quality of the milieus, only beginning of are to emergeat this point, Startinganothercycle Positive ICZM impacts Improved decision-making Improved understanding between partners Improved awareness public Consensus priorities on Sustainable tourist activity Coherentterritorial planning Strongercommunity identity Educationalinitiatives Habitat restoration Improvedquality of life More sustainablefishing activity Pollution reduction Landscape improvement Lower environmentalvulnerability Reduced erosionand flooding Reduced travel costs Total number of positive impactsmentioned Totalnumberal j % of mentions Nb % (I) 33 32 32 29 28 26 24 22 20 18 16 16 16 16 11 5 344 Mean impact score (3) I,84 I,41 I,81 I,83 2,00 I,85 2,04 I,91 2,05 I,89 2,31 2,25 I,94 2,19 2,40 3,00 Chief benefits (4) 9 17 8 5 1 9 4 5 2 1 2 3 1 (2) 84,6 82,1 82,1 74,4 71,8 66,7 61,5 56,4 51,3 46,1 4,O 41,o 41,o 41,o 28,2 12,8 I 55,1 I 2,04 I 67 Source: EuropeanICZMSurvey,2000.Notes: (1) Totalnumberof mentionsin 39 ICZMprojects;(2) % of mentionsin the39; (3JAverageimportanceattributed to eachfactor where I= very positive impact,2 q positive impact,3 = no impact,4 = negative impact,5 = very negativeimpact. Thelower the score,the morepositive the impact, (4) Numberof im,pacts rated 1 (very positive). ACRONYMS : Zone CELMCelluled’Environnement Marin- ICZMIntegratedCoastal Management : Littoral Seacoast Environment Cell IFRECOR : InitiativeFranCaise lesR&ifs pour CELRL : Conservatoire I’Espace de Littoralet des Coraliens (French CoralReefInitiative) Rivages LacustresLakeandSea Shore MAB: ManAnd Biosphere Conservancy Agency METAPlMAP : Mediterranean Environmental CN=COI NationalFranFais Ia : Comite pour Commission Oceanographique lntergouvernementale - French National Committee the Intergovernmental for Oceanographic Commission andTechnical Assistance Programme I Mediterranean ActionPlan plan) POSPland’occupation Sols(localland-use : des PRE-COIIUE : Programme Regional EnvironnementCommission I’Ocean de lndienI UnionEuropeenne (IOUEU PRE IndianOcean : Commission/ European Union- Regional Environmental Programme) CEPRALMAR d/Etudes de : Centre et Promotion Activities des Lagunaires Maritimes et CIATCenterfor the StudyandPromotion : of MaritimeandLagoon Activities CRCCoastal : Resource Centre CRDComiteRegional Developpement : de (Regional Development Committee) (Regional Environmental Agency) SARSchema : d’Amenagement Regional (Regional Development Plan) d’Amenagement de Gestion Eaux Rhone et des Mediterranee-Corse (Watershed Development and WaterQualityMaster - RhonePlan Mediterranean-Corsica) DIREN : Direction Regionale I’Environnement SDAGE=RMC Directeur de : Schema DPM Domaine Maritime : Public DPSIR : DrivingforcesPressure Impact State Response EC European : Commission EHESS desHautes : Ecole Etudes Sciences en Sociales SEAStrategic : Environmental Assessment SEPNB pourI’Etudeet la Protection : Societe de la Natureen Bretagne (Society the Studyand for Protection Naturein Brittany) of EIA: Environmental Study Impact EIS Etuded’lmpactStrategique Strategic : Impact Study SIS - SIATSyndicat : Intercommunal I’Aire de Toulonnaise (Greater ToulonAreaIntermunicipal Corporation) GIS Geographic : Information System GOOS Ocean : Global Observing System ICAM IntegratedCoastal Management : Area ICRIInternational Reefs : Coral Initiative SMCOSyndicat de la Coted’0pale: Mixte Cbted’opalePublic Private and Partnership SMVMSchema MiseenValeurde la Mer : de (Sea Enhancement Master Plan) BIBLIOGRAPHY Generalreferences ICZM: to - BabinD., BertrandA., WeberJ., Antona M, : PatrimonialMediation and ManagementSubsidiarity: Managing Pluralism Sustainable for Forestryand Rural Development. Proceedings an International In of Workshopon Pluralism Sustainable and Forestryand RuralDevelopment, Rome,9-12 December1997. - BardeJP. : Economic Politiquede I’environnement et Ed.PUF, 2emeedition, Paris1992. logique. SerieMethodeset Instrumentspour la gestion du cyclede projet. Fevrier1993, - EuropeanCommission EuropeanSpatialDevelopment : Perspective. TowardsBalanced Sustainable and Development the Territory of the EuropeanUnion. of EuropeanCommission, 1999. May - EuropeanCommission Planningand Management : ProcessesSectoraland Territorial Cooperation,Final : Report,March 1999. - Bioret J., CibienF.,Genot C.,LecomteJ.C.: A guide to - FaureG.O.,Mermet L.,TouzardH., Dupont C, : BiospereReserve Management: A Methodologyapplied Connaitreet pratiquer la gestion- La nelgociation to FrenchBiosphereReserves, Digest19, UNESCO, Situationset problematiques.Ed.Nathan, 1998, MAB Paris,1998. - GorgeuY,,JenkinsC ,, GentilA. : La chartede territoire - Borrini-Feyerabend FarvarM.T.,Nguinguiri J.C., G., - Unedemarchepour un projet de developpement NdangangVA, : Co-management Natural Resources of : durable.La DocumentationFrancaise, 1997. Organising,Negotiating and Learning-by-doing. GTZ K., and IUCN,Kasparek Verlag,Heidelberg(Germany), 2000. - Gustavson Huber R.M.,RuitenbeekJ. : Integrated CoastalZone Managementof Coral Reefs: Decision - Bioret, F.Cibien,C,Genot,I. C. Lecomte, : A guide to J. Support Modeling. Ed.The World Bank,2000. BiosphereReserve Management: a Methodology applied to french Biospheres Reserves, Digest 19, MAB UNESCO, 1998. Paris, - BunceL.,TownsleyR, PomeroyR.,PollnacR. : Socioeconomic Manualfor CoralReefManagement, GlobalCoral ReefMonitoring Network, Ed,Australian Institute of Marine Science, 2000. - BurbridgeRR.: The guiding principlesfor a European ICZMstrategy.Towardsa EuropeanStrategyfor ICZM, Brussels, 1999. - Cicin-Sain KnechtR.W.: Integrated Coastaland B., OceanManagement- Concepts Practices. and Ed.IslandPress, 1998. - CoastalResources Center: A Manualfor Assessing Progress CoastalManagement- The Common in Methodologyfor Learning.CoastalManagementReport # 2211,CRC, Universityof RhodeIsland, The January1999. - Cohende LaraM., Dron D. : EvaluationPconomique et environnementdanslesdecisions publiques.Ed.La DocumentationFrangaise, Collectiondes rapports officiels,1997 - Commission Communautes des Europeennes Manuel : Gestiondu Cyclede Projet- Approcheintegree et cadre - HenocqueY. : Bilandu contrat GREEN-0(1996-2000) L’expertise internationale et regionaleaidservicede la gestion integree deszonesc&i&es danslesetats membres la Commission I’Oceanlndien (COI), de de Juin 2000. - IFEN Amenagementdu territoire et environnement. : Politiqueset indicateurs.IFEN-DATAR, 2000. juillet - KalaoraB. : Au-dela de la nature I’environnement L’observation socialede I’environnement. Ed.L’Harmattan, Collection” Environnement 1998. “, - KalaoraB., CharlesL. : Interventionsociologiqueet developpement durable : le casde la gelstionintegree deszonescotieres.Nature Sciences Societe, et vol 8 n”2, 2000. - Le Moigne J.L.: Latheorie du systeme general.Theorie de la modelisation.Ed,PUF, Paris,1984. - LeeN., GeorgeC. : Environmental Assessment in Developingand TranstionalCountries.Principles, Methodsand Tractice.Ed.John Wiley & SonsLtd., 2000. - Mermet L. : Strategiespour la gestion de I’environnement - La nature commejeu de societe? Ed. L’Harmattan, Collection’ Environnement 1992. “, - METAPlMAPAssessment IntegratedCoastal : of Area ManagementInitiativesin the Mediterranean: Experiences METAP MAP(1988-1996), from and 1998. - PNUElPAMlPAP : Cadreconceptuelet directives pour la gestionintegreedu littoral et desbassins fluviaux.Split, Programme d’ActionsPrioritaires, 1999. - PrieurM,, GhezaliM, : Legislations nationalesrelatives a I’amenagement a la gestion deszonescbtieresen et Mediterraneeet propositionsde lignesdirectrices. UNEPIMAPIPAP, octobre 2000. Split, - SalmVR., ClarkJR., SiirilaE.: Marineand Coastal ProtectedAreas.Aguide for Planners Managers, and Third Edition,IUCNMarineProgramme USAID, I 2000. - TaherSra’iriM. : Determinisme applicationsde la et recherchesystemique pour I’etude de I’elevagelaitier, Le Courrierde I’Environnement I’INRA,N”42, de Fevrier2001 - UNEPlBlue : ta prospective Plan territoriale en Mediterraneeet I’approchepar acteurs.MAPTechnical ReportsSeriesN”127,2000. - UNEPlPAPFormulationand Implementationof CAMP : Projects, OperationalManual.Athens- Split, 1999. - UNESCOGuidemethodologiqued’aide a la gestion : integree deszones&i&es, IOC,Manualsand Guides n”36, 1997. - UNESCOGuidemethodologiquepour I’elaboration : de cartesde vulnerabilitedeszonescbtieresde I’Ocean Indien. IOC,Manuelset guidesn”38, 2000. - Weber1, : Conservation, developpement coordinaet tion : peut-on gerer biologiquementle social? Colloque Panafricain GestionCommunautaire ressources des naturellesrenouvelables developpement et durable, Harare, 24-27juin 1996. - Antona M., Delmas-Ferre HenocqueY.,Rajaonson M., H.,TodiarivoP. : Contribution a la finalisationdu plan de developpement durable d’une zone cotiere de la region COI: Applicationa la zone cotiere du Menabe, Madagascar. RapportGREEN-01, PRE-COIIUE, Octobre 1999. - AugustaveJ.C.,KalaoraB. : ta gestion integree des zonescbtieres.Questions sociologic.Applicationa de I’operation pilote de la zone sud-estde I’ile Maurice. RapportGREEN-01, PRE-COIIUE, 1998. Mars - Comitede BassinRMC: Tableaude bord du SDAGE Rhone-Mediterranee-Corse - Panoramique 2000,Ed. Agencede I’EauRMC,2001, - DauvinJ.-C.,BellanG., Bellan-Santini BeurierJ.-P,, D., Deboudt P, DesroyN,, DewarumezJ.-M;,GhezaliM., GuillaumontB., MesnardA.-H.,Meur-FerretC.,Petit C., Pouille X., RuzM,H.,VidementL. : Rationnaliser /es connaissances preserverdurablementle patrimoine pour nature/ littoral, COIL Patrimoines Naturels,Museum National d’HistoireNaturelle,a paraitre en 2002. - Dedieu0. : LeSMVMdu bassin Thauet safacade de maritime: I’apprentissage amenagement d’un partenarial et concertedu littoral. In ValarieP.,La Consommation d’espace zone littorale languedoen cienne: representations systemes et d’action. Rapport CNRSIIFREMER, 2000,pp. 104-142, Mars - Diop ES., Sall M.M., SorvA.A., Soumare Diouf P.S. A., et al. : Contribution a I’elaborationdu plan de gestion integree de la Reserve Biosphere delta du Saloum de du (Senegal). UCAD-UNESCO I DivisiondesSciences Ecologiques MAB,Dakar,1998. I - European CommissionAn Assessment the Socio: of Economic Costs Benefitsof IntegratedCoastal & Zone Management, FinalReport,November 2000. - GuizolP.,Stirling I. : Operation pilote de GrandAnse, - White A.T.,Cruz-Trinidad : The Valuesof Philippine Mahe,Seychelles. A. Missions preparatoiresa la structuraCoastalResourcesWhy Protectionand Management : tion d’un comitede pilotage et a la propositiond’un are Critical.CoastalResource ManagementProject,Cebu plan de gestion.RapportGREEN-01, PRE-COIIUE, City,Philippines, 96p. 1998. Fevrier1998. Specificreferences casestudies: to - Antona M., ChaboudC.,Henocque Moizo B., Y., Razafindrabe WeberJ. : Restitutiondesp&audits M., nationauxet consolidation elementsregionaux. des RapportGREEN-01, PRE-COIIUE, Fevrier1997. - Le BerreI. : Reserve Biosphere la Mer d’lroise, de de Cartesde synthese. CG29/Geosystemes/MABUNESCOlMinistPre I’Environnement, de 1997. - Rafecas : Etudedu casreel de Saint-Cyprien. N. Rapportde DEAnon publie. CN-COI, 2000. 23p, GLOSSARY 0Integrated Coastal Management 0 Ghomatique: “The Zone : A dynamic processinvolving governments and societies, sciences and decision-makers, and public and private interests, aimed at protecting and developing coastal systems and resources. The goal of this process is to optimize long-term choices which emphasize resourcesand their reasonable and rational use. people, and the relationships they maintain mutually and with the outside world developed in the 1970s and used by various foreign-aid agencies ever since. It consists of an exercise coupled with an analytic method, as well as a means of formalizing the results of the exercise. It results in a logical and systematic presentation of the objectives of a project or program, which may have an influence on its sucess. The main results of the process are summarized as a matrix which describes in a logical way the goals, the results (outcomes) expected, the resources applied, and the costs, the hypotheses for success,and the indicators, It is important to note that this exercise must be applied throughout the process, in an ongoing way. It would be wrong to believe that the logical framework could be completed at the beginning. Its completion and correction are an ongoing, gradual process.The logical framework could also be considered as a foundation for the elaboration of other tools, in particular the detailed budget, the attribution of tasks and duties, the indicator system, the execution schedule, and a follow-up plan. study of the management and processing of data referring to spatial parameters, which draws upon the sciences and technology related to their acquisition, storage, processing, and diffusion. The term “geomatics” is used to designate a set of such disciplines as cartography, topography, photographic surveying, remote sensing, statistics, and data Iprocessing.The GIS (Geographic Information System) is a tributary of geomatics as a data base with a spatial reference.” (Excerpted from the “Multilingual Land Thesaurus”, published by the FAO). 9Territory : An area, the 0 Logicalframework : A tool * GovernanceRefers to all of the institutions, : networks, directives, regulations, standards, norms, political and social practices, public and private players who contribute to the stability of a society and a political regime, its orientation, and its capacity to guide, to supply services,and ensure its legitimacy. e Social engitleeritlg : This concept refers to skills and practices which are much broader than those of the sociologist or the anthropologist : it is a case of “applied” social science. The “social engineer” is not usually expected to understand how social systemsoperate; instead, he or she should be able to arrive at an effective implementation of the procedures and devices for collective action in favor of the management of fragile environmental resources, as related to the values and interests specific to the social groups at hand (enhancement of grass-roots initiatives, cooperative approach, governance, etc.). Based on a social and ecological diagnostic of an environmental situation, the social eExternalities: “Costs or drawbacks that the engineer should be able to persuade the commuactivity of one economic player imposes on nity to change the state of ecosystems and another, in the absence of any financial compensa- resources at stake, making it more sustainable. By tion or merchant exchange. An external cost is thus creating cultural and cognitive frarneworks encouan uncompensated social cost : that is, it is imposed raging these changes, the social engineer should on a third party, outside of any voluntary transac- help in finding a way to transmit the resource to posterity, near and far. tion.” (Barde, 1992). CASE STUDIES l Example 1 Example Example Example Example Example : The SeaEnhancementScheme(SMVM)for Thau lagoon and its coastalfringe of an integrated management plan for the SaloumDelta BiosphereReserve, l 2 : $bo;;;ion l 3 : Creation of a natural reservein a Reunion Islandcoral lagoon 4 : The CQted’0pale (Nord-Pas-de-Calais, France): how a corporate instrument was created as a meansof defining an ICZMstrategy 5 : the caseof integrated managementof the reefs of southeasternMauritius Island : A socio-environmentalevaluation in the Comoroslslandss l l l Example 6 l 7 : Intensification of development and erosion of the beach at Saint-Cyprien, FrenchMediterranean coast : Management plan for the Grand-AnseSpecialReserve, Seychelles l Example 8 Example l 9 : Elaboration of the CoastalZone Master Planfor the Menabe region, Madagascar : The caseof the Seaof lroise IslesNatural Reserve, Northern Brittany, France . ExampleIO l Example11 : Rhone-Mediterranean-Corsica Water-ManagementMaster Plan Example12 : Main positive impactsidentified within the framework of the ICZMEuropeandemonstration programme l BOXES l BOX 1 2 3 4 5 : Spaceand Issues : Five proposals for an approach to the theory of governance (Stoker, 1998) : Questions to use as guidelines when drafting the territory’s socio-environmental questionnaire : : The Environmental Impact Study, an example of a tool : Models : Negotiation as a three-phase process : Coordination workshops, seminars,commissions : How can an ecosystembe priced? : Implementation of a management plan : Exampleof an action file : Examplesof sustainability indicators l BOX 9 BOX l BOX l BOX l BOX 6 BOX l 7 l BOX 8 BOX l 9 l BOX 10 IOCMANUALSAND GUIDES N” 1 rev,2 2 3 rev.3 4 5 rev. 6 rev. 7 8 9 rev. Title Guide to IGOSS Data Archives and Exchange(BATHYand TESAC).1993. 27 pp. (English, French, Spanish, Russian) International Catalogue of Ocean Data Station. 1976. (Out of stock) Guide to Operational Procedures for the Collection and Exchan e of JCOMM Oceanographic a Data. Third RevisedEdition, 1999. 38 pp, (English, French, Spanis , Russian) Guide to Oceanographic and Marine Meteorological Instruments and Observing Practices. 1975. 54 pp. (Englrsh) Guide for Establishing a National Oceanographic Data Centre, 1997. 42 pp, (English) Wave Reporting Procedures for Tide Observers in the Tsunami Warning System. 1968. 30 pp, (English) Guide to Operational Procedures for the IGOSSPilot Project on Marine Pollution (Petroleum) Monitoring. 1976. 50 pp. (French, Spanish) (Superseded by IOC Manuals and Guides No. 16) Manual on International Oceanographic Data Exchange. (Fifth Edition). 1991. 82 pp, (French, Spanish, Russian) 9 AnnexI (Supersededby IOC Manuals and Guides No. 17) 9 AnnexII Guide for Responsible National Oceanographic Data Centres, 1982. 29 pp, (English, French, 10 11 12 13 14 15 16 17 Spanish, Russian) (Superseded by IOC Manuals and Guides No. 16) The Determination of Petroleum Hydrocarbons in Sediments. 1982. 38 pp, (French, Spanish, Russian) Chemical Methods for Use in Marine Environment Monitoring. 1983. 53 pp. (English) Manual for Monitoring Oil and DissolvedlDis ersed Petroleum Hydrocarbons in Marine Waters and on Beaches.1984. 35 pp, (English, Frenc , Spanish, Russian) Manual on Sea-LevelMeasurements and Interpretation. 1985.83 pp, (English, French, Spanish, Russian) Operational Procedures for Sampling the Sea-SurfaceMicrolayer, 1985. 15 pp, (English) Marine Environmental Data Information Referral Catalogue. Third Edition,, 1993. 157 pp, (Composite English/French/Spanish/Russian) A GF3 : A General Formatting Systemfor Geo-referenced Data Vol. 1 : Introductory Guide to the GF3 Formatting System. 1993. 35 pp, (English, French, Spanish, Russian) Vol. 2 : Technical Description of the GF3 Format and Code Tables. 1987. 111 pp, (English, French, Spanish, Russian) Vol. 4 : User Guide to the GF3-ProcSoftware. 1989. 23 pp. (English, French, Spanish, Russian) Vol. 5 : Reference Manual for the GF3-ProcSoftware. 1992. 67 pp, (English, French, Spanish, Russian) Vol. 6 : Quick Reference Sheets for GF3 and GF3-Proc.1989. 22 pp, (English, French, Spanish, Russian) User Guide for the Exchange of Measured Wave Data. 1987. 81 pp, (English, French, Spanish, Russian) 18 N" 19 20 21 22 23 24 25 26 27 28 29 30 Title Guide to IGOSSSpecialized Oceanographic Centres (SOCs). 1988. 17 pp. (English, French, Spanish, Russian) Guide to Drifting Data Buoys. 1988. 71 pp. (English, French, Spanish, Russian) (Superseded IOCManualsand Guides 25) by No. GTSPP Real-time Quality Control Manual, 1990. 122 pp, (English) Marine Information Centre Development : An Introductory Manual. 1991. 32 pp. (English, French, Spanish, Russian) Guide to Satellite Remote Sensing of the Marine Environment. 1992. 178 pp. (English) Standard and Reference Materials for Marine Science.RevisedEdition. 1993. 577 pp. (English) Manual of Quality Control Procedures for Validation of Oceanographic Data. 1993. 436 pp, (English) Chlorinated Biphenyls in Open Ocean Waters : Sampling, Extraction, Clean-up and Instrumental Determination. 1993. 36 pp, (English) Nutrient Analysis in Tropical Marine Waters. 1993. 24 pp# (English) Protocols for the Joint Global Ocean Flux Study (JGOFS) Core Measurements. 1994. 178 pp . (English) MIM Publication Series : Vol. 1 : Report on Diagnostic Procedures and a Definition of Minimum Requirements for Providing Information Serviceson a National and/or Regional Level. 1994. 6 pp, (English) Vol. 2 : Information Networking : The Development of National or Regional Scientific Information Exchange. 1994. 22 pp, (English) Vol. 3 : Standard Directory Record Structure for Organizations, Individuals and their Research Interests. 1994. 33 pp, (English) 31 32 33 34 35 36 37 38 39 40 41 HAB Publication Series : Vol. 1 : Amnesic Shellfish Poisoning. 1995. 18 pp. (English) Ocean0 raphic Survey Techniques and Living Resources Assessment Methods. 1996. 34 pp, (English 3 Manual on Harmful Marine Microalgae. 1995. (English) Environmental Design and Analysis in Marine Environmental Sampling. 1996. 86 pp, (English) IUGGllOCTime Pro’ect. Numerical Method of Tsunami Simulation with the Leap-Frog Scheme. 1997. 122 pp. (EngIish) Methodological Guide to Integrated management of coastal zones, 1997.47 pp, (French,English) Post-TsunamiSurvey Field Guide. First Edition. 1998, 61 pp. (English, French, Spanish, Russian) Guidelines for Vulnerability Mapping of Coastal areas in the Indian Ocean. 2000. 40 pp, (French, English) Improved Global Bathymetry; Final Report of SCOR Working Group 107. (under preparation) Guidelines for the Study of Shoreline Change in the Western Indian Ocean Region. 2000.73 pp. (English) IOCINCWIO Identification Guide Book to Potentially Harmful Marine Microalgae. (under preparation) t mer