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PROJECT IDENTIFICATION FORM (PIF)
FULL-SIZED PROJECT
THE GEF TRUST FUND
Submission Date: 30 October 2007
Re-submission Date: 17 January 2008
PART I: PROJECT IDENTIFICATION
GEFSEC PROJECT ID: 3373
GEF AGENCY PROJECT ID: P088887
COUNTRY(IES): Madagascar
PROJECT TITLE: SIP: Watershed Management
GEF AGENCY(IES): World Bank
OTHER EXECUTING PARTNER(S): Ministry of Agriculture and Ministry
of Environment and Water and Forests
GEF FOCAL AREA (S): Land Degradation
GEF-4 STRATEGIC PROGRAM(S): LD-SP1 & LD-SP2
NAME OF PARENT PROGRAM/UMBRELLA PROJECT: Strategic
Investment Program for Sustainable Land Management in SubSaharan Africa (SIP)
INDICATIVE CALENDAR
Milestones
Expected Dates
Work Program (for SIP)
CEO
Endorsement/Approval
GEF Agency Approval
Implementation Start
Mid-term Review (if planned)
Implementation
Completion
June 2007
April 2008
May 2008
June 2008
February 2011
February 2015
A. PROJECT FRAMEWORK
Project Objective: This project aims at promoting sustainable land management in four priority watersheds in Madagascar, by
improving agriculture productivity and natural resources conservation practices addressing local drivers of land degradation and
accounting for the superimposed effects of climate change
Project
Componen
ts
Indicate
if
Expected Outcomes
Investme
nt, TA,
or STA**
1.
Inv, TA Increased utilization of
Development
demand driven
of
technologies to
Commercial
improve agricultural
Agriculture
productivity and
conserve natural
resources in four
priority watersheds
Expected Outputs
(i) 5,000 households trained in agroecological practices in targeted areas,
compared to baseline
(ii) Agricultural Service Centers (ASCs)
established in each of the four sites and
able to deliver SLM advisory services to
land users
(iii) Increase in private sector investments
in agriculture
(Delivers on SIP IRs 1 (iv) Best-bet SLM options (technologies
and local land use planning) included in the
and 3)
menu of community-driven activities,
depending on the type of agro-ecological
zone being targeted and also accounting for
prevalent climatic risks.
2. Irrigation
Development
Inv, TA
Targeted irrigated
schemes are better
managed through
infrastructure
rehabilitation,
improved institutional
framework, and
capacity building of
Water User
Associations.
(i) Rehabilitation of 21,780 ha related to
the irrigation plan
(ii) Capacity strengthened of 30 Water
Users Associations
(iii) Four Performance Contracts signed in
each of the sites
(iii) Fully satisfactory execution of Scheme
Development Plans and Performance
Contracts, including payment of O&M fees
as agreed
Indicative GEF
Financing*
Indicative Cofinancing*
($M)
%
($M)
%
2.62
21
7.45 (IDA) +
2.51
(beneficiaries)
79
0
0
15.67 (IDA) +
1.8
(beneficiaries)
Total
($M)
12.58
100
17.47
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GEF Project Identification Form. Madagascar -- SIP: Watershed Management
3. Watershed
Development
Inv, TA
(i) Stakeholder capacity
and knowledge
enhanced in the four
watersheds to manage
natural resources in
sustainable manner,
accounting also for
climate variability and
change
(ii) Enhanced sectoral
and partner cooperation
on SLM
implementation and
financing
(iii) Enhanced
productivity and
sustainability of the
land resource
(Delivers on SIP IRs
1, 2, and 4)
4. Project
management
TA
(i) Use of Project
resources in
compliance with agreed
objectives and
procedures,
(ii) Setting up a policy
framework that is
favourable to extending
the program to the
national level.
(iii) National enabling
environment more
conducive to SLM
upscaling
(iv) Oversight, M&E of
project activities,
policy guidance and
lessons learned are
carried out effectively.
(i-a) Four watershed development plans
and eight participatory sub-watershed
management plans developed and adopted;
(i-b) Five guichets fonciers operational.
(i-c) 60 SLM groups trained and
strengthened – including support provided
for 32 contracts for delegated land use
rights (GELOSE);
(ii) National level multi-partner, multisector SLM investment framework is
established and under implementation (cofinanced by UNDP GEF-SIP support);
2.42
56
1.82 (IDA) +
0.09
(beneficiaries)
44
4.33
(iii-a) (proxy indicators to be piloted: no
long-term decrease in soil quality or Net
Primary Productivity)
(iii-b) % change in SLM applications
adopted by land users, against baseline
data, including hotspot erosion control
interventions (100 small, 40 medium, 5
large);
(i) All financial and technical audit reports
are qualified,
(ii) National strategy on fertilizer supply
and legal guidelines for the application of
new seed legislation adopted and
implemented,
(iii) Program BV/PI incorporated into
MAEP’s medium term expenditure
framework,
(iv) Integrated Management Information
System for SLM established to monitor
SLM upscaling and disseminate knowledge
across scales (linked to regional TerrAfrica
KM system and national frameworks).
0.86
15
4.31
+ 1.61
(Prep
Fund)
3.45M (IDA) +
1.61M (Prep
85
Fund)
(Delivers on SIP IRs 2
and 4)
Total
project
5.9
15%
34.4
85%
40.3
cost
* List the $ by project components. The percentage is the share of GEF and co-financing respectively to the total amount for the component.
** TA = Technical Assistance; STA = Scientific & technical analysis.
B. INDICATIVE FINANCING PLAN SUMMARY FOR THE PROJECT ($)
Project Preparation*
GEF
Co-financing
Total
318,929 *
1,250,567
1,569,496
Project
5,900,000
33,149,433
39,049,433
Agency Fee
531,000 (9%)
Total
6,431,000**
34,400,000
40,831,000**
* The GEF preparation amount is under GEF-3, has been disbursed, and is not added to the project total here in Table B. The operation
will not access PPG funding.
** does not include GEF-3 preparation grant.
C. INDICATIVE CO-FINANCING FOR THE PROJECT (including project preparation amount) BY SOURCE and
BY NAME (in parenthesis) if available, ($)
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GEF Project Identification Form. Madagascar -- SIP: Watershed Management
Sources of Co-financing
Type of Co-financing
Amount
In kind
Cash
---
4,400,000
30,000,000
Project Government Contribution
GEF Agency(ies)
Bilateral Aid Agency(ies)
Multilateral Agency(ies)
Private Sector
NGO
Others
Total co-financing
--34,400,000
D. GEF RESOURCES REQUESTED BY FOCAL AREA(S), AGENCY (IES) SHARE AND COUNTRY(IES)*
* No need to provide information for this table if it is a single focal area, single country and single GEF Agency project.
PART II: PROJECT JUSTIFICATION
A. STATE THE ISSUE, HOW THE PROJECT SEEKS TO ADDRESS IT, AND THE EXPECTED GLOBAL ENVIRONMENTAL
BENEFITS TO BE DELIVERED:
Land degradation is one of the most serious and widespread environmental problems in Madagascar. The farming systems
in Madagascar are predominantly rice-based, largely characterized by traditional farming techniques and very low input
use. Annual production of paddy rice has stagnated over the past ten years in the irrigated lowland areas and increasing
demographic pressure has led to the extensification of agricultural production into the adjacent hillsides. This dynamic has
brought about deforestation in the upland forested areas, and, coupled with rudimentary and unsustainable production
practices such as inadequate soil and water conservation techniques and frequent burning of pastures, has led to the
degradation of upland production ecosystems and lowland agro-ecosystems (due to soil erosion and sedimentation). The
impact on the overall production landscape has therefore seen such global costs as increased carbon emissions and
declining ecosystem services such as water provisioning and filtering, habitat fragmentation and destruction leading to
loss of above and below ground biodiversity, and reduced carbon storage capacity. Climate change is expected to
exacerbate the trend. Recent analytical work supported by the World Bank suggests that the signs of climate change are
becoming increasingly visible through changes in climate variability and the exposure to cyclones. However, weaknesses
in the enabling environment at all levels – such as weak sector and stakeholder coordination, poor access by rural land
users to financing and knowledge, weak incentive/policy structures and institutions – have prevented the large-scale
uptake of needed best-bet approaches.
In response, the global costs above will be addressed via a GEF-SIP intervention blended with IDA support to advance
sustainable land management (SLM) in order to establish a viable intensification of agriculture to prevent cropland
encroachment into sensitive upland areas, and help stabilize four deteriorating upland catchments prioritized by the
government as high potential areas. In addition, the operation will help leverage policy reforms and align stakeholders in
key watersheds in order to drive larger uptake of SLM practices in the key watersheds and elsewhere in the country. To do
this, the operation will promote an integrated and participatory watershed management (WSM) approach, with a longterm focus on complex natural resource management issues in the landscape (such as fire use, deforestation, and
unsustainable rural land-use practices, adaptation to climate change), as well as the broader institutional/policy
environment and knowledge dissemination needed to upscale SLM activities. On the latter, GEF-SIP will support land
tenure strengthening, capacity building in SLM at multiple levels, and identify/disseminate successful processes and
lessons learned to facilitate upscaling. Lastly, the operation will support the development of a replicable model for
incorporating climate risk in SLM interventions in Madagascar and regionally (see below).
More specifically, GEF funded activities will assure the provision of high quality technical assistance and the capacity
strengthening of SLM implementers and the SLM service providers in agro-ecological techniques and principles. The
proposed techniques will be tested and adapted in farmers’ fields, and serve as demonstration plots where interactions
with other stakeholders will be taking place that is part of an embedded scaling up strategy. GEF will also provide
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GEF Project Identification Form. Madagascar -- SIP: Watershed Management
matching grants for agro-ecological and agroforestry activities that contribute to the overall improved land management at
the landscape level.
GEF funding will also be used to advance SLM implementation through a participatory and integrated approach, and will
provide technical assistance to develop land use alternatives that should encourage local population to take responsibility
and engage in the sustainable management of their natural resources. The approach will include: a) establishing
participatory zoning and planning with the stakeholders at the sub-watershed level to determine optimal land use
according to topography, current land use and land rights, diagnosis of soil fertility and soil production potential, location
and characteristics of water sources and streams, and the origin and pathways of erosion; b) environmental awareness
raising campaigns; c) training and capacity strengthening in alternative sustainable NRM practices according to
stakeholders’ needs; d) provision of support to communities to obtain land rights (GELOSE) and of technical assistance to
prepare natural resource management plans, and e) provision of support to prepare a multi-partner SLM investment
framework (with UNDP) that allows donor and stakeholder alignment and can be integrated with the watershed
development plans. In addition, interventions will be targeted at increasing vegetation cover on communal land and to a
lesser extent on private land, which includes improved pasture management without fire, afforestation and reforestation,
natural regeneration of native vegetation, and provision to protect natural habitats (forests, wetlands, lakes) and associated
biodiversity.
B. DESCRIBE THE CONSISTENCY OF THE PROJECT WITH NATIONAL PRIORITIES/PLANS:
The government has put in place the Madagascar Action Plan (MAP), a development plan for 2007–12 that is the secondgeneration Poverty Reduction Strategy. The MAP envisages accelerated and better-coordinated reforms and outlines the
strategies and actions that will ignite rapid growth. “Rural development and a green revolution” and “cherish the
environment” are two of the core eight commitments of the MAP. The specific objectives with respect to rural
development are (i) to increase agricultural value-added (through, inter alia, Agricultural Service Centers), (ii) diversify
rural activities (focusing on support to producers' organizations among other activities), (iii) launch a sustainable green
revolution through integrating environmental dimensions in agricultural activities and (iv) promote market-oriented
activities through strengthening farmers' organization and investment in infrastructure. The MAP Commitment to “cherish
the environment” focuses on reducing natural resource degradation through better land use practices.
This SIP operation and its results indicators are closely aligned with these MAP objectives. As previous approaches to
irrigation negatively affected the environmental systems in upper watersheds, the Government is now pursuing a more
integrated and holistic approach where agricultural development takes into account land management issues at the
watershed scale. Additionally, the project is in line with the new National Program for Rural Development, among whose
pillars is the improved management and use of natural resources and the protection of natural production factors and
ecosystem functions.
The operation will also dovetail with the implementation of the Third Environmental Program, with which a MOU has
been established, as well as with the National Forestry Law which seeks to protect watersheds, promote reforestation,
combat wild fires, and protect natural habitats and biodiversity. Furthermore, the project directly contributes to the
implementation of the UNCCD National Action Plan and will address priorities under the National Biodiversity Strategy
and Action Plan and UNFCCC NAP and NAPA.
C. DESCRIBE THE CONSISTENCY OF THE PROJECT WITH GEF STRATEGIES AND STRATEGIC PROGRAMS, AND THE
SIP:
In accordance with the GEF strategy, the focus of the operation is to introduce and upscale sustainable practices among
land users on existing productive land. The operation will support LD-SP1 and LD-SP2 as well as both SO 1 (enabling
environment will place SLM in the main stream of development policy and practice at regional, national and local levels)
and SO 2 (mutual benefits for the global environment and local livelihoods through catalyzing SLM investments for largescale impact). This project will create synergies with other focal area objectives especially adaptation to climate change,
biodiversity conservation in production landscapes, and reduction in pollution and sedimentation of international water
bodies.
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GEF Project Identification Form. Madagascar -- SIP: Watershed Management
The SIP. This blended operation is a targeted investment under the GEF-SIP umbrella, a regional strategic multi-donor
program designed to scale up the area of African cropland, rangeland, and woodland under sustainable management. The
operation delivers on the SIP goal, objectives, and more specifically will provide measurable results that aggregate up to
the regional program level across key SIP intermediate results. In direct alignment with the SIP, the operation supports
Madagascar government and stakeholders (mostly community and local government) in their efforts to design and manage
programs of activities that advance SLM mainstreaming, improve governance for SLM, and catalyze investments that: i)
address weaknesses in the enabling environment that hinder SLM scale up, ii) apply practices on the ground that
simultaneously help secure ecosystem services and increase productivity of croplands, pasture, and woodlands, and iii)
scale up hectarage of land under more sustainable management in recognized priority areas, here four key watersheds
selected by the government as high potential. The project will also build on the emerging knowledge from analytical work
led by the World Bank and others on the effects of climate change on disaster risk and general climate variability and the
associated implications for agricultural activities. UNDP has a related SIP operation in the country with which this
operation will be coordinated (see below).
Lastly, the operation is in full conformity with the agreed SIP principles:
a. Madagascar has demonstrated commitment to the SLM related objectives of NEPAD’s environment and
agriculture programs (EAP, CAADP).
b. The operation contributes to reaching SIP results.
c. The operation commits beneficiaries to using harmonized indicators and benchmarks to measure SLM
scale up and progress toward established goals at regional program level.
d. The operation exceeds the 1:4 financial leveraging ratio for SIP operations (GEF: non-GEF).
D. OUTLINE THE COORDINATION WITH OTHER RELATED INITIATIVES:
GEF-SIP support is channeled through two partner agencies in the country, UNDP and the WB, together promoting a
strategic package of investment designed to initiate a programmatic approach to SLM implementation in the country,
starting by building operational alliances and carrying out complementary activities to improve enabling environments.
The WB is focusing on the upland watersheds linked to priority production zones, while the UNDP is working in the
southern end of the country (one of the most unique and biologically rich drylands areas on Earth). Both interventions
address local institutions to improve the enabling conditions for SLM up-scaling, and will regularly exchange knowledge
and experience.
SIP is a priority program of TerrAfrica, which was launched by NEPAD and focuses on regional partnership, knowledge
generation and dissemination, as well as investment development and donor alignment. Key TerrAfrica partners are
investing in the country and will be brought into the process being initiated by UNDP and the World Bank under the SIP.
Importantly, UNDP and the Bank are exploring modalities to collaborate via their GEF-SIP investments to build a
Country SLM Investment Framework as a common output of the two operations. This investment framework will be
designed to cover all SLM interventions in the country across sectors and multiple donors. In this way, these efforts will
contribute to scaling up SLM to achieve the objectives of the country’s UNCCD NAP, as well as NEPAD’s
Comprehensive African Agriculture Development Program (CAADP) and Environment Action Plan. The project will also
be closely coordinated with the UNEP implemented regional NEPAD SLM project, which reinforces regional level
knowledge management and program-level M&E, to which the WB and UNDP Madagascar operations will contribute
experience and data.
On the implications of climate change, the project will coordinate with World Bank led work, which will be financed
through the technical assistance grant under the Track II of the Global Facility for Disaster Reduction and Recovery
(GFDRR) and focused on, inter alia, assessing and mapping climate related vulnerabilities, upgrading norms and
standards for key infrastructures (including irrigation systems) and institutional capacity building.
E. DISCUSS THE VALUE-ADDED OF GEF INVOLVEMENT IN THE PROJECT DEMONSTRATED THROUGH INCREMENTAL
REASONING :
The GEF intervention will promote a long-term participatory and integrated approach to a broader operation and scale up
SLM practices on the ground. Building upon recent knowledge acquired on climate risks in the country, it will strengthen
integrated land use planning, reinforce upstream and downstream linkages, promote environmental sustainability in
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GEF Project Identification Form. Madagascar -- SIP: Watershed Management
watershed development, build-up local capacity and promote the use of technologies to improve agriculture productivity
while conserving natural habitats. The absence of GEF funding would limit the application of knowledge in sustainable
land management, including an improved understanding of climate risks, and the strengthening of institutions to handle
cross-sectoral SLM issues. It also would impede the broader operation to address longer-term land degradation threats and
climate vulnerabilities at the watershed level that negatively impact environmental goods and services such as lowland
and upland agricultural production systems.
GEF and IDA involvement reinforce each other the country context, where the need to sustainably increase agricultural
productivity is a clear national mandate. The past response to low productivity in irrigated lands was the extension of
rainfed agriculture in adjacent watersheds and encroachment into environmentally sensitive areas. IDA-led intensification
of agricultural production in irrigated lands will therefore lower pressure on upland natural resources, while GEF
supported sustainable management of watersheds will lower sedimentation impacts on irrigated lands, and deliver
additional ecosystem services. More than an added value, GEF involvement is therefore seen as conditional for success of
the project.
F. INDICATE RISKS, INCLUDING CLIMATE CHANGE RISKS, THAT MIGHT PREVENT THE PROJECT OBJECTIVE(S) FROM
BEING ACHIEVED, AND IF POSSIBLE INCLUDING RISK MEASURES THAT WILL BE TAKEN:
Envisaged risks to attainment of project objectives and the proposed mitigation measures are as follows:
(a) Weak/poor oversight over project activities by executing agencies due to excess work load on executing agency’s
staff. This risk will be mitigated by recruiting technical assistants who will devote 100% of their time on project
activities.
(b) Failure of communities to cooperate on integrated watershed management approaches. This possible risk has two
likely reasons: i) lack of interest of upland producers to protect lowland irrigated lands, and ii) lack of integration of
marginalized communities. The project mitigates this risk by an integrated approach, pointing out the local benefits to
upland farmers like management transfer of natural resources, improved pastures and improved rainfed productivity.
The project also actively mobilizes and integrates marginalized communities like recent immigrants, charcoal
producers or migrant herders. The project supports the establishment of their farmers associations, which will be able
to seek matching grants from the project and to defend their interests within the negotiations of the managements
plans and the ‘guichets fonciers’.
(c) Difficulty in identifying the behavior changes that lead to greater uptake of sustainable land management approaches.
This risk will be mitigated by developing an M&E system that is robust enough to monitor progress on SLM and
adjust interventions based on measurable quantitative outputs and qualitative feedback.
(d) Low rates of adoption of technologies intended to promote sustainable watershed management, and low capacity in
communities to adopt technologies. The project will minimize this risk by trying as much as possible to use already
tested technologies and to sustain support to communities over several agricultural cycles, until the new technologies
start paying back the investments. The project also develops a graded strategy that permits lower counterpart
participation for technologies and activities with high public benefit.. In addition, the project makes provisions for
building the capacity of communities.
(e) Lack of timely accounting, financial reporting and auditing. At the project level, this risk will be reduced by
recruitment of a Financial Management Agency to provide accounting services to the executing agencies. The project
will also recruit a consultant to design and implement a computerized system to allow for timely production of
reliable financial statements and reports.
(f) High vulnerability to climatic extremes and associated impacts. The project will draw on analytical activities on
mapping climate related vulnerabilities and also conduct targeted risk screening for relevant activity lines to identify
risk mitigating options, where necessary. These include higher standards for irrigation and erosion control devices,
and production technologies that include soil and water conservation measures, in order to counter a future increase in
the incidence of extreme weather events such as cyclones and droughts.
G. DESCRIBE, IF POSSIBLE, THE EXPECTED COST-EFFECTIVENESS OF THE PROJECT:
As land degradation is one of the most impeding factors to agriculture development in Madagascar, the country has
developed over the past 20 years strategic erosion control and sustainable land management techniques. Agricultural
research institutions and development NGOs have made available SLM best practices that have been piloted and proven
to be efficient to counter the land degradation dynamics in the uplands and lowlands in the four project sites. The
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GEF Project Identification Form. Madagascar -- SIP: Watershed Management
operation will use GEF resources for addressing barriers in the enabling environment (policy, institutional/sectoral,
knowledge) that hinder SLM implementation, along with targeted efforts to drive uptake of the successful SLM
approaches on the ground; this will lead to long-term cost savings in SLM diffusion.
H. JUSTIFY THE COMPARATIVE ADVANTAGE OF GEF AGENCY:
The operation falls within the World Bank’s comparative advantage according to GEF Council and the SIP.
PART III: APPROVAL/ENDORSEMENT BY GEF OPERATIONAL FOCAL POINT(S) AND GEF
AGENCY(IES)
A. RECORD OF ENDORSEMENT OF GEF OPERATIONAL FOCAL POINT (S) ON BEHALF OF THE GOVERNMENT(S):
(Please attach the country endorsement letter(s) or regional endorsement letter(s) with this template).
RAKOTOBE Andriamanganiaina Tovondriaka
General Secretary and Operational Focal Point
GEF
Ministry of Environment, Waters and Forest
Date: 26 October 2007
B. GEF AGENCY(IES) CERTIFICATION
This request has been prepared in accordance with GEF policies and procedures and meets the GEF
criteria for project identification and preparation.
Steve Gorman
GEF Agency Coordinator
Christophe Crepin
Regional Coordinator
Project Contact Person
Date: 17 January 2007
Tel. and Email: 1.202.473.9727
[email protected]
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GEF Project Identification Form. Madagascar -- SIP: Watershed Management