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PROJECT INFORMATION DOCUMENT (PID)
APPRAISAL STAGE
Report No.: AB3887
Project Name
Region
Sector
Project ID
GEF Focal Area
Global Supplemental ID
Borrower(s)
Implementing Agency
Environment Category
Date PID Prepared
Date of Appraisal
Authorization
Date of Board Approval
Sustainable Management of Fish Resources
AFRICA
General agriculture, fishing and forestry sector (100%)
P105881
I-International waters
P092062
GOVERNMENT OF SENEGAL
Ministry of Maritime Economy
[ ] A [X] B [ ] C [ ] FI [ ] TBD (to be determined)
June 23, 2008
July 10, 2008
September 25, 2008
1. Country and Sector Background
Due to exceptional natural conditions, Senegal and its neighbours are endowed with some of the richest
fishing grounds in the world. As a result, the marine fish resources off the coast of Senegal play a role in
the culture, lives and economy of the population as large as any of the other natural resources in the
country. Senegalese fishers have been involved in marine fisheries for centuries and coastal communities
throughout the country have developed a culture of fishing. Fishing and associated activities such as
processing, marketing, services and other part-time activities together are estimated to provide more than
600,000 jobs in Senegal (accounting for 17 percent of the labour force, and 10 percent of the rural
population). In addition to livelihoods, the fisheries in Senegal make an extremely significant contribution
to food security, constituting some 70 percent of animal protein consumption in the country, as estimated
annual per capita fish consumption is 26 kilograms (well above the world average of 16 kilograms). At
the level of the country’s economy, between 1997 and 2002 the fisheries sector accounted for about 2.3
percent of the country’s GDP and 12.5 percent of the primary sector’s GDP (i.e. approximately FCFA
300 billion or US$ 714 million in gross production value generating an added value of about FCFA 200
billion or US$476 million). Fish products also account for some 32 percent of the country’s exports by
volume, and roughly 37 percent of the total export value. In summary, marine fisheries play a critical role
in the economy in Senegal, in terms of contribution to Gross Domestic Product (GDP), foreign exchange,
food security and livelihoods.
Despite the economic importance of Senegal’s fishery resources and the marine ecosystems that support
them, the sector has been facing major difficulties in recent years due to overfishing of the most valuable
commercial resources and uncontrolled expansion of the number of fishers, boats and gear, as well as
land-based fish processing and preservation facilities. The sector has essentially faced the ‘boom and
bust’ cycle common to many uncontrolled fisheries around the world, where rapid development and
investment led to strong growth in catches and returns, as well as the number of fishers and fishing
capacity. Then as the fisheries continued to grow in an uncontrolled environment beyond what the fish
stocks and resource base could sustain, they started to contract, bringing down catch and growth rates.
In Senegal fisheries production rose steadily until 1985, when catches began to level off and landings
began to decline. Since then, small-scale fishing effort has continued to increase, although the number of
industrial vessels has remained stable. Essentially, these small-scale vessels have continued to proliferate
even as fish stocks and catches have declined, due in part to rising world prices and demand for food fish
which helped offset declining catch rates, and by vessels going farther and farther up and down the coast
of West Africa in search of fish, or constantly replacing overfished higher value species for lower value
ones (i.e. ‘fishing down the food chain’).
The result of this uncontrolled growth in the small-scale fisheries is that many of the highest value coastal
demersal stocks have been severely depleted and are now in rapid decline throughout the country,
according to a World Bank sectoral study (ESW) in 2004. Senegal’s marine fish resources can essentially
(albiet somewhat artificially) be divided into (i) the coastal fisheries (often targeting sedentary coastal
demersal species) utilized directly by the coastal fishing communities, as well as migrating small-scale
fishers and industrial vessels, and (ii) the more offshore (and often migratory) fisheries that extend from
the coastal areas out to the 200-mile limit of Senegal’s waters. Because the coastal demersal species
usually account for more than 25 percent (in volume terms) of the country’s total catch, and more than 50
percent of the total value of fishery exports, that fact that these fisheries are struggling is of significant
concern.
As Senegal’s coastal demersal fish stocks become increasingly overfished and as the degradation of the
marine ecosystems on which they depend becomes more severe, the small-scale fishery that relies on
them will probably continue to migrate to neighbouring waters, with the West African countries incurring
higher costs and making less profit. For all these reasons, the 2004 World Bank study concluded that
Senegal’s coastal demersal fish stocks and the small-scale fisheries that depend on them are facing a
crisis. Already, some estimates show that more than 30 percent of the coastal demersal species landed in
Senegal by small-scale fishers are caught outside of the country’s waters. Furthermore, as many as 2,000
Senegalese pirogues are now estimated to be fishing in the waters of neighbouring Guinea-Bissau at any
given moment. Senegal’s small-scale fishers are among the most dynamic in West Africa and this fishery
has now become an important cross-border activity, with environmental and economic implications for
neighbouring countries such as The Gambia, Guinea Bissau, Mauritania and Guinea, as well as social
concerns and increasing conflicts between local and Senegalese fishers as well as fisheries authorities.
The impacts of the overexploitation of Senegal’s coastal fisheries on rural poverty, as well as food
security and macro-economic growth are significant. The resource base for the fisheries which account
for roughly a quarter of the volume of fish caught in the country by the some 52,000 people directly
employed by the small-scale fisheries (and likely benefits a large portion of the some 600,000 people
indirectly employed in the sector) and 50 percent of the value of fish exports, is heavily overfished and
facing a collapse. As this resource declines, the costs for the thousands of small-scale and often rural
fishers to continue to participate in the sector will only increase, and the costs of relocating or shifting
into new careers will certainly have profound social impacts along the coast, as will the reduction in one
of the country’s largest exports. These social impacts can already be seen in the numbers of Senegalese
fishers participating in the growing immigration of West African citizens to Spain and Europe by sea.
2. Objectives
The combined development objective/global objective of the project is to empower communities to
reduce fishing pressure on the fish stocks supporting the central coastal fisheries of Senegal (from the Cap
Vert Peninsula to the Saloum River Delta). The project would achieve this objective by (i) promoting comanagement of the coastal fisheries, (ii) contributing to the rehabilitation of the essential ecosystems for
the coastal fisheries, and (iii) supporting alternative livelihoods and accompanying poverty reduction
measures in targeted poor fishing communities. Successful experiences would be used to draw lessons for
potential replication at a later date to the coastal fisheries in the other regions of the country.
The rationale behind this objective is that the coastal fish stocks that provide so many livelihoods, exports
and foreign exchange for the country, can be restored if the Government empowers small-scale fishers to
sustainably co-manage these resources, while at the same time conserving the key habitats that support
them. The central region of the coast, from the Cap Vert Peninsula to the Saloum River delta, is being
selected as a pilot area that could serve as a model for replication to the other two coastal regions of the
country (St. Louis and the Casamance) after the end of the project. These fisheries are globally significant
and vital for the livelihoods of numerous coastal communities. Resources and cross-border fishers will be
included in the project, as declining stocks in these waters have led Senegalese fishers to fish the entire
length of the West African coast.
3. Rationale for Bank Involvement
As described above, Senegal’s coastal fisheries clearly represent the nexus between poverty and
environment, as the fish stocks and the ecosystems that support them are overexploited and degraded, and
the large number of rural coastal fishing communities and livelihoods dependent upon them are
increasingly squeezed. The Government has made co-management of these coastal fisheries one of the
major objectives of the new Letter of Sector Policy (LPS). This project will allow the Government to
implement the LPS’s objectives for co-management of coastal fisheries throughout the entire central
coastal region, from the Cap Vert Peninsula to the Saloum River Delta. Thus, the project will support the
Government of Senegal to implement and expand the co-management reforms to help rehabilitate the
coastal fish resources in this central coastal region, thereby providing a consolidated model for the
implementation of the Government’s Letter of Sector Policy that could be replicated to the northern
coastal region and the Casamance in the south. As such, the project will also serve as a pilot that can be
replicated more widely through the region by the Canary Current Large Marine Ecosystem Project.
4. Description
The project will support the following components and sub-components:
(A) Co-management of Coastal Fisheries. The objective of this component is to implement comanagement systems to improve the governance of the coastal fisheries for a more sustainable use of the
resources.
This component will support the following sub-components: (1) Promotion of Local Co-Management
Initiatives in 4 Pilot Sites; (2) Consolidation and Strengthening of Coastal Fisheries Co-management; (3)
Institutional Support for a System of Local Fisheries Governance; and (4) Registration of Small-Scale
Fishing Vessels.
(B) Rehabilitation of Ecosystems Essential for Coastal Fisheries. The objective of this component is
to contribute to the rehabilitation of ecosystems essential to the coastal fisheries, by implementing a
network of fisheries conservation areas to help regenerate the resources, implementing artificial reefs,
improving practices and technologies in the industrial shrimp fisheries operating in coastal ecosystems,
and creating market mechanisms to encourage sustainable management of the ecosystems.
This component will support the following sub-components: (1) Fisheries Conservation Areas; (2)
Artificial Reefs; (3) Introduction of Access Rights to Fisheries Conservation Areas and Artificial Reefs ;
(4) Improved Practices and Technologies in the Coastal Industrial Shrimp Fisheries to Protect the
Ecosystems; and (5) Market Incentives for Sustainable Management for Targeted Fisheries.
(C) Alternative Livelihoods and Accompanying Social Measures. The objective of this component is
to establish and strengthen revenue-generating activities in targeted fishing communities, in particular for
fishers and their families.
This component will support the following sub-components: (1) Activities to Support Targeted
Communities; (2) Support for Alternative Livelihoods to Fishing; and (3) Monitoring and Evaluation of
the Fund for Alternative Livelihoods.
(D) Institutional Strengthening for Fisheries Management, and Monitoring and Evaluation. The
objective of this component is to support the Ministry of Maritime Economy to manage and implement
the project in the context of the Letter of Sector Policy, and to monitor and evaluate results.
This component will support the following sub-components: (1) Development of a Fisheries Code and
Support for the Implementation of Fisheries Management Plans, including research, policies, regulations
and management measures; (2) Project Management; and (3) Monitoring and Evaluation.
5. Financing
Source:
BORROWER/RECIPIENT
International Development Association (IDA)
Global Environment Facility (GEF)
EC: European Development Fund (EDF)
SWITZERLAND: Swiss Agency for Dev. & Coop. (SDC)
FRANCE: MOFA and AFD
Total
($m.)
.5
8.5
5
8.0
.5
.4
22.9
6. Implementation
The Ministry of Maritime Economy (MEM) is the project’s executing agency, and more specifically the
Directorate for Marine Fisheries (DPM) within the Ministry. The DPM already has a small project
implementation unit (COMO) for the fisheries component of the World Bank-financed Integrated
Maritime and Coastal Resources Management Project (GIRMaC), as well as another for the
implementation of the EU-funded fisheries STABEX project. Additionally, the Sustainable and Equitable
Management of Maritime Fisheries Sector Capacity Building Project, funded by the Agence Française de
Développement (AFD) is also managed by a coordination unit with technical assistance within DPM. The
fiduciary and technical capacity of the COMO for the fisheries component of the GIRMaC project has
been strengthened so that it can also support the Sustainable Management of Fish Resources project. In
this context, DPM will establish a monitoring and evaluation system for all donor funded initiatives
within the Directorate, in order to ensure that the synergies and co-financing is captured between them
towards the achievement of the common objectives of the Letter of Sector Policy. Thus, shared
supervision missions between the projects and donors are envisaged, so that progress is monitoring jointly
as the first steps towards a future sector-wide approach (SWAp). The IDA and GEF funds will flow from
the World Bank to the Special Account established at MEM for the GIRMaC Project.
7. Sustainability
The issue of sustainability is examined from the perspective of institutions, policies and individual sites.
In terms of institutional sustainability, the project will work with partners to support the Directorate for
Marine Fisheries in the implementation of the fisheries management aspects of the Letter of Sector
Policy, to ensure that the progress made towards achieving the objectives of the Letter is continued by
MEM after the project. Furthermore, the project is promoting the implementation of existing policies for
co-management already established by the Government. Thus, the policies supported by the project are
fixed, and the institutions involved all subscribe to them. Lastly, in terms of individual sites, the project is
designed to minimize the operating costs per site after the end of the project, and to ensure clear benefits
are seen by the communities, who will themselves continue the coastal fisheries management activities
long after the project.
8. Lessons Learned from Past Operations in the Country/Sector
This project directly reflects the lessons learned from global good practices as well as Bank-financed
operations in Senegal such as the Integrated Maritime and Coastal Resources Management (GIRMaC)
project, and the Bank’s ongoing analytic work on the sector and in the country. The design also reflects
innovations from a multitude of non-Bank financed projects and programs, such as the fisheries comanagement initiatives financed by the Government of Japan (JICA) in Nianing, and feasibility studies
on eco-labelling of fish products financed by the Government of Germany (GTZ).
First, global experiences with collaborative or co-management of coastal fisheries resources have
confirmed that this project should include several aspects in the design: (a) communities should be placed
at the center of fisheries and coastal ecosystem management; (b) coastal fisheries management is most
likely to be sustainable when the Government forms a partnership with coastal communities (i.e.,
collaborative management); (c) collaborative coastal fisheries management is a process, and must be
implemented as such, rather than in a compartmentalized or fragmented approach focused on individual
outputs; and (d) the establishment of fully-protected fisheries conservation areas, i.e. ‘no-take or nofishing zones’, is one of the most effective tools communities and local governments can employ to both
rehabilitate depleted fisheries and protect the coastal ecosystems upon which they depend.
Second, the model of co-management piloted by the GIRMaC works, as community demand for increased
responsibility in the management of the coastal fish resources in Senegal is high. In almost all pilot sites
of the GIRMaC, as well as the similar co-management sites financed by JICA, fishing communities and
fishers have clearly understood and appreciated the threats to the resource base, and have welcomed the
opportunity to take management measures to address them. In some cases they have even begun to
implement management measures without waiting for Government support. This co-management model
includes Government-financed facilitators living and working with the communities, to help them form
legally-recognized local fishers’ committees (CLPs) that prepare management plans for the fisheries with
work programs and budgets, which are legally recognized by the Minister. At the supra-community level,
Government-established Local Councils of Artisanal Fishers (CLPAs) help coordinate management
between different communities and CLPs, as well as serve as a forum and communication channel
between the Ministry and the communities. Lessons to date have shown that neighboring communities
have the will and ability to work together and collaborate, and that the CLPAs have a crucial role to play
in this process, and therefore must be established and operational in areas of intervention. Furthermore,
lessons to date have shown that co-management initiatives have a multiplier effect, whereby neighboring
communities see the results of a pilot and wish to participate as well. For this reason, the project is being
designed so that project sites will be selected based on a principle of geographic concentration, i.e. by
expanding outwards from the existing pilot sites in the central coastal region of the country between Cap
Vert and the Saloum River delta.
Lastly, because in the current situation of overcapacity and overexploitation in the coastal fisheries, in
order to reach the project’s objective of restoring the coastal fish resources, many communities will need
to restrict or reduce fishing activities in the near-term as part of co-management activities and the
implementation of ‘no-take’ marine reserves. For such co-management initiatives to be successful, and to
address the drop in livelihoods amongst the affected poor fishers, the project must provide support
fishers’ efforts to acquire new skills and the micro-credit necessary for them to pursue alternative
livelihoods to fishing outside the sector, to both help reduce pressure on the resources and compensate
fishers for lost revenues as a result of management measures.
9. Safeguard Policies (including public consultation)
The project builds upon the Environmental Management Framework prepared for the GIRMaC, and has
conducted an Environmental Assessment (EA) to identify any safeguards that could be triggered by the
activities additional to the GIRMaC introduced by this project. This assessment showed that the key
safeguard issue (and the reason for which the involuntary resettlement safeguard applies) is the potential
restriction of traditional access to coastal and fish resources that may be introduced by the project in
targeted communities, in order to reduce fishing effort to allow the stocks to rebuild. Currently, the
resources are utilized through a system of open access that has allowed essentially more fishers and
fishing pressure than the resources can sustain. The project addresses this in the central coastal region by
supporting co-management of the coastal fisheries, as a precursor to a community level rights-based
system. It is from this transition away from open access to more regulated fisheries, that the key risks are
created. These risks are largely social, because the implementation of co-management and rights-based
systems imply that access to specific areas or types of fisheries will be restricted. The project-wide
instrument to address this risk is the fishers' reconversion fund in component three of the project, which
will compensate fishers for potential losses as a result of reduced fishing effort. This instrument will
address these risks wherever they may emerge in local project sites. From a safeguards standpoint, the
reconversion fund will utilize a process framework prepared by the project, to ensure that decisions
concerning restriction of access to fish resources are decided on the basis of consensus of stakeholders.
The fund will also utilize the Environmental Management Plan (including an Environmental and Social
Management Framework) prepared through the EA, as a framework to ensure individual sub-projects are
screened for any potential impacts under the natural habitats safeguard (OP/BP 4.04). This safeguard was
triggered because the project is oriented towards the conservation of natural habitats. However, the
project is expected to have beneficial impacts on targeted natural habitats, and any activities with
potential negative impacts would not be financed by component 3.
The first draft of the Environmental Assessment and the Process Framework was made available to the
World Bank by the Ministry of Maritime Economy on June 9, 2008, and to the InfoShop on July 8, 2008.
10. List of Factual Technical Documents
1. Evaluation Sociale, Economique et Politique des Sites Pilotes du GIRMaC (2008)
Agriconsulting Maroc, Senagrosol Consult. Dakar, Senegal
2. Etude des Perceptions des Communautes de Pêche sur la CoGestion et les Perspectives de
Reconversion (2008). Monnet, M. and O. Niang Mbodj. Dakar, Senegal.
3. Programme d’Immersion de Recifs Artificiels pour une Gestion Durable de la Pêche au
Sénégal (2008). Sene, C and K. Sane. Dakar, Senegal.
4. Etude sur la Faisabilité de l’Écolabellisation dans les sites pilotes du GIRMaC (2008).
ENDA/REPAO. Dakar, Senegal.
5. Proposition d’un Programme Pilote pour l’Écolabellisation des Produits de la Pêche
Artisanale au Sénégal (2008). ENDA/REPAO. Dakar, Senegal.
6. Etude de base sur les méthodes, les technologies de capture et les pratiques en usage dans
les pêcheries industrielles crevettières côtières et sur leurs problématiques d’exploitation,
d’aménagement et de contrôle (2008). Faye, B. Dakar, Senegal.
7. Analyse coûts bénéfices des impacts d’une réduction des subventions à la pêche artisanale
(2008). Seck, P. D. Dakar, Senegal.
8. Creation d’un Reseau National des Aires Marines Protegees pour une Gestion Durable de la
Pêche au Sénégal (2008). Sene, C. Dakar, Senegal.
9. Guide de Creation et de Gestion D’Aires Marines Protegees pour la Gestion de la Pêche au
Sénégal (2008). Sene, C. Dakar, Senegal.
10. Proposition d’un Cadre Legislatif et Institutionel pour la Gestion des Aires Marines
Protegees au Sénégal (2008). Sene, C. Dakar, Senegal.
11. Contact point
Contact: John Virdin
Title: Sr. Natural Resource Management Specialist
Tel: (202) 473-2077
Fax: (202) 473-5147
Email: [email protected]
12. For more information contact:
The InfoShop
The World Bank
1818 H Street, NW
Washington, D.C. 20433
Telephone: (202) 458-4500
Fax: (202) 522-1500
Email: [email protected]
Web: http://www.worldbank.org/infoshop