PIMS 2091BD MSP: Con Dao Project - End of Project Evaluation July2009

Report Cover Image
Evaluation Plan:
2006-2011, Viet Nam
Evaluation Type:
Project
Planned End Date:
07/2009
Completion Date:
12/2009
Status:
Completed
Management Response:
Yes
Evaluation Budget(US $):
12,000

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Title PIMS 2091BD MSP: Con Dao Project - End of Project Evaluation July2009
Atlas Project Number:
Evaluation Plan: 2006-2011, Viet Nam
Evaluation Type: Project
Status: Completed
Completion Date: 12/2009
Planned End Date: 07/2009
Management Response: Yes
Focus Area:
  • 1. Poverty and MDG
  • 2. Crisis Prevention & Recovery
Corporate Outcome and Output (UNDP Strategic Plan 2018-2021)
Evaluation Budget(US $): 12,000
Source of Funding:
Joint Programme: No
Joint Evaluation: No
Evaluation Team members:
Name Title Nationality
Sophie van der Meeren Team Leader
GEF Evaluation: Yes
Evaluation Type:
Focal Area:
Project Type:
GEF Phase: GEF-null
PIMS Number:
Key Stakeholders:
Countries: VIET NAM
Lessons
Findings
Recommendations
1 1. Given the fact that achievement of project outcomes depends on a) ongoing national development planning processes and the future pattern of development on Con Dao and b) completion of DANIDA funded activities under this project , it would be useful for GEF / UNDP to undertake a post project review of impact in one to two years time. This would enable more effective evaluation of the actual impact of the project in supporting improved biodiversity conservation and sustainable use in the Con Dao islands region. GEF may also like to consider this recommendation in relation to other projects within the GEF portfolio, particularly given GEF strategic objectives for projects to act as ?catalysts?. Evaluation of a project?s impact on development planning, awareness raising and capacity building towards sustainable biodiversity conservation and sustainable use outcomes implies a time frame far greater than the life of a GEF project.
2 2. The implications of complex implementation modalities with a number of agencies involved in management and with reporting to different donors should be noted and where ever possible GEF / UNDP should seek to ensure implementation modalities are streamlined, management responsibilities are clear and well co-ordinated and donor inputs are harmonized.
3 3. The extent to which in kind co-financing by GOV was effectively provided is difficult to evaluate in this project as it largely covers staff time and provision of amenities which were not quantified or measured over the life of the project. UNDP / GEF projects should try to ensure that co-financing is more measurable and can be quantified. Monitoring of in-kind contributions should be undertaken during project implementation to support evaluation.
4 4. The lack of a fishers union should be noted as typical in Vietnam and of a number of countries worldwide. Fishers rarely have organised representation and projects need to consider how fishermen can be represented within MPA project design and implementation. The recommendation here is also perhaps broader than this to stress the importance of ensuring effective involvement / representation of key interest groups in project design and implementation. Often both Government consultation processes and international projects consider ?the community? to be a homogeneous stakeholder group that can be consulted through one community representative. This is rarely the case. Projects should seek to understand who the key interest groups are within communities and how relevant groups can be involved in a project / consultation process. This has associated time and budget implications, particularly if there is a felt need to support key interest groups in establishing representative structures or organisations.
5 5. The project demonstrates the difficulty of establishing effective alternative income generation (AIG) for fishers in a remote location, such as Con Dao, within a two year time frame. It highlights the potential negative impact of AIG pilot project failure, in creating frustration amongst intended beneficiaries and in decreasing community support for MPA projects. Recommendations related to this are to ensure that projects: - Broadly assess livelihood support opportunities as part of design - Ensure that appropriate timeframes and budget are allocated to maximise the potential for effective AIG outcomes, recognising that effective consultation processes take time, especially where the key beneficiaries do not have group representation and extensive individual and household consultation is required. - Consider other ways to improve target beneficiary groups? existing livelihoods, if AIG opportunities are limited, towards increasing their overall wellbeing (examples could include improving safety of fishing vessels, establishing managed community fishing zones, or improving opportunities for fishers wives and children.) Potential support priorities should be set through consultation with local stakeholders.
6 6. Enforcement emerged as a key issue for achieving effective biodiversity conservation and sustainable use in MPAs, particularly where there is a significant impact by non resident resource user groups and high levels of reported illegal activity. The recommendation to UNDP / GEF is to recognise the importance of enforcement in this context. A stronger focus on enforcement within projects should be accompanied by participatory approaches that build trust between local resource users and park rangers, raise awareness, establish community participation in project activities and consider livelihood implications of MPA management. Projects should consider supporting outcomes which give communities controlled and managed access to specified community fishing zones in order to enhance livelihood and poverty alleviation outcomes and increase fishers support for and involvement in MPA management.
7 7. Climate change should be an integral consideration within MPA project design.
8 8. It is also recommended that adequate time is allocated for final evaluations of GEF projects and that evaluation schedules are discussed with evaluators in order to enable development of an appropriate evaluation methodology. 15 working days is inadequate for a final project evaluation of this nature . Giving an adequate weighting to final evaluations within the project monitoring and evaluation process is important both for accountability and if GEF and GOV are to be able to draw out lessons from project experiences towards an improved understanding of effective approaches for biodiversity conservation and sustainable use.
9 Recommendations for Ba Ria-Vung Tau Province and Con Dao District 1. It will be important for Province and District authorities to ensure that development planning prioritises sustainable levels and patterns of development for the Con Dao islands region, recognising the key value of the terrestrial and marine natural resource base to long term socio-economic prosperity in the region. Long term benefits from tourism will rely on establishing sustainable levels of tourism and in supporting biodiversity conservation and sustainable use that maintains the natural and historical attraction of the Con Dao islands region.
10 2. It will be important for development planning processes to identify and provide sustainable livelihood opportunities for local residents and particularly for local fishermen who are amongst the poorest sectors of Con Dao society. Livelihood opportunities need to be identified that can provide Con Dao residents with alternatives to unsustainable patterns or levels of resource use.
11 3. Current development plans for expansion of Ben Dam Port present a number of risks to prioritised tourism development and biodiversity conservation objectives for Con Dao. The number of external fishers fishing illegally in near shore waters appears to be having a significant negative impact on fish stocks in Con Dao waters. Proposals to increase the number of offshore fishers coming into the area will only exacerbate this situation, making it harder for local fishers to support basic livelihoods and degrading marine biodiversity. Proposals to attract petroleum vessels to the port represent a significant threat to marine biodiversity from associated risks of oil spills. These risks in turn also threaten the establishment of world class tourism on Con Dao, which will rely on the quality of the natural resource base. Proposals to attract cruise ships to the port also have associated social and environmental risks as has been demonstrated internationally. The carrying capacity of the Con Dao islands social and environmental resource base needs to be assessed as part of impact assessments associated with provision of services to cruise liners. It is recommended that Provincial and District authorities consider commissioning an assessment of environmental and social impacts of proposed port developments in line with national legal requirements under the Law on Environmental projection for SEA on all proposed developments (Circular No. 08/2006/TT-BTNMT). This assessment should also examine the potential risks of port expansion for sustainable tourism development and biodiversity conservation in the national park.
12 4. Effective enforcement of CDNP marine areas will be critical to achieving effective management of the newly established marine protected area. Provincial and District planning authorities should recognise the importance of enforcement and where ever possible provide adequate financial and planning support to CDNP and the Fisheries Department for effective enforcement of the marine areas of the park, particularly given the challenges faced by these agencies in patrolling the increasing number of offshore boats in the area. Key issues for consideration by provincial and district authorities are outlined in the lessons learnt analysis above. It will be important for National, Provincial and District Planning authorities to recognise the need for appropriate national and local level MPA legislation that supports effective enforcement.
13 5. Provincial and District authorities should continue to support CDNP to effectively manage the park, recognising the important role of CDNP as guardians of both the historical sites in the park and the globally significant coastal and marine biodiversity which is a key attraction for tourism.
14 6. Related to this, it is recommended that Provincial and District authorities work with CDNP to establish the Conservation Trust Fund, following the proposal currently submitted under the project.
15 7. Consideration should be given to providing the Fisheries Department with adequate resources to enable them to establish an effective system for recording catch / effort data and assessing fish stocks. This is important to enable analysis of the sustainability of the Con Dao fishery and would build on training received under the project in fish stock assessment.
16 8. Consideration of the likely impacts of increased climatic events associated with climate change is a pressing issue for Con Dao development planning. The marine areas of CDNP are highly vulnerable to climatic events linked to climate change and the combined impact of climatic and anthropogenic stresses on marine systems will reduce their overall resilience. The marine areas of Con Dao are an important tourist attraction and proposed tourism developments will rely on effective conservation of marine biodiversity and in establishing sustainable patterns of use. Beach and coastal developments are particularly prone to climatic impacts and economic returns from coastal developments will depend on effective climate change planning and adaptation. It is strongly recommended that a climate proofing exercise is undertaken for the SEDP
1. Recommendation: 1. Given the fact that achievement of project outcomes depends on a) ongoing national development planning processes and the future pattern of development on Con Dao and b) completion of DANIDA funded activities under this project , it would be useful for GEF / UNDP to undertake a post project review of impact in one to two years time. This would enable more effective evaluation of the actual impact of the project in supporting improved biodiversity conservation and sustainable use in the Con Dao islands region. GEF may also like to consider this recommendation in relation to other projects within the GEF portfolio, particularly given GEF strategic objectives for projects to act as ?catalysts?. Evaluation of a project?s impact on development planning, awareness raising and capacity building towards sustainable biodiversity conservation and sustainable use outcomes implies a time frame far greater than the life of a GEF project.
Management Response: [Added: 2009/12/02] [Last Updated: 2009/12/02]

It depends on the availability of funding form GEF for Marine Biodiversity Conservation Projects in Viet Nam in coming year which may have a component in Con Dao.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Discussed with GEF Focal Point in Viet Nam to keep in mind this recommendations
[Added: 2009/12/02]
UNDP 2009/11 Completed
2. Recommendation: 2. The implications of complex implementation modalities with a number of agencies involved in management and with reporting to different donors should be noted and where ever possible GEF / UNDP should seek to ensure implementation modalities are streamlined, management responsibilities are clear and well co-ordinated and donor inputs are harmonized.
Management Response: [Added: 2009/12/02]

It is important to have better consultation during project formulations for new projects

Key Actions:

Key Action Responsible DueDate Status Comments Documents
This was discussed with all project stakeholders and GEF Focal points and agreed that a streamlined implementation structure need to be explored in all new project
[Added: 2009/12/02]
PMU, UNDP 2009/11 Completed
3. Recommendation: 3. The extent to which in kind co-financing by GOV was effectively provided is difficult to evaluate in this project as it largely covers staff time and provision of amenities which were not quantified or measured over the life of the project. UNDP / GEF projects should try to ensure that co-financing is more measurable and can be quantified. Monitoring of in-kind contributions should be undertaken during project implementation to support evaluation.
Management Response: [Added: 2009/12/02]

These are two separate and distinctive systems: one by CO and one by the Government, so CO financing system may not be able to record all details of the government contributions. This happens to all GEF funded project

Key Actions:

Key Action Responsible DueDate Status Comments Documents
This has been discussed with Financial Officers in UNDP and the Government; a better measure should be designed in the new projects.
[Added: 2009/12/02]
UNDP 2009/11 Completed
4. Recommendation: 4. The lack of a fishers union should be noted as typical in Vietnam and of a number of countries worldwide. Fishers rarely have organised representation and projects need to consider how fishermen can be represented within MPA project design and implementation. The recommendation here is also perhaps broader than this to stress the importance of ensuring effective involvement / representation of key interest groups in project design and implementation. Often both Government consultation processes and international projects consider ?the community? to be a homogeneous stakeholder group that can be consulted through one community representative. This is rarely the case. Projects should seek to understand who the key interest groups are within communities and how relevant groups can be involved in a project / consultation process. This has associated time and budget implications, particularly if there is a felt need to support key interest groups in establishing representative structures or organisations.
Management Response: [Added: 2009/12/02]

This has been fully recognised by MPU and WWF, so changes in approaches have been introduced.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
This has been discussed with PMU, and fishing households were invited to CCG meetings and consultation workshops. A representative of fishing households is in the management board of the Conservation Fund.
[Added: 2009/12/02]
PMU, UNDP 2009/10 Completed
5. Recommendation: 5. The project demonstrates the difficulty of establishing effective alternative income generation (AIG) for fishers in a remote location, such as Con Dao, within a two year time frame. It highlights the potential negative impact of AIG pilot project failure, in creating frustration amongst intended beneficiaries and in decreasing community support for MPA projects. Recommendations related to this are to ensure that projects: - Broadly assess livelihood support opportunities as part of design - Ensure that appropriate timeframes and budget are allocated to maximise the potential for effective AIG outcomes, recognising that effective consultation processes take time, especially where the key beneficiaries do not have group representation and extensive individual and household consultation is required. - Consider other ways to improve target beneficiary groups? existing livelihoods, if AIG opportunities are limited, towards increasing their overall wellbeing (examples could include improving safety of fishing vessels, establishing managed community fishing zones, or improving opportunities for fishers wives and children.) Potential support priorities should be set through consultation with local stakeholders.
Management Response: [Added: 2009/12/02]

PMU and WWF recognised the important of these elements in exploring and designing AIG activities.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Full consultation with fisher households has been conducted and recommendations expressed by the fishers were considered into selection and designing AIG activities and Conservation Trust Fund.
[Added: 2009/12/02]
PMU, UNDP 2009/11 Completed
6. Recommendation: 6. Enforcement emerged as a key issue for achieving effective biodiversity conservation and sustainable use in MPAs, particularly where there is a significant impact by non resident resource user groups and high levels of reported illegal activity. The recommendation to UNDP / GEF is to recognise the importance of enforcement in this context. A stronger focus on enforcement within projects should be accompanied by participatory approaches that build trust between local resource users and park rangers, raise awareness, establish community participation in project activities and consider livelihood implications of MPA management. Projects should consider supporting outcomes which give communities controlled and managed access to specified community fishing zones in order to enhance livelihood and poverty alleviation outcomes and increase fishers support for and involvement in MPA management.
Management Response: [Added: 2009/12/02]

Training for communities for their participation in the enforcement is needed and physical demarcation is also essential for enforcement.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Greatest efforts have been made for enforcement activities. Communities have been involved in enforcement. Demarcation has been well established by a mooring buoys system to ensure better enforcement.
[Added: 2009/12/02]
PMU, UNDP 2009/11 Completed
7. Recommendation: 7. Climate change should be an integral consideration within MPA project design.
Management Response: [Added: 2009/12/02]

This was not include in the project because it was designed before 2004

Key Actions:

Key Action Responsible DueDate Status Comments Documents
MPU, Government, UNDP and other stakeholders discussed and all agreed that it should be integrated into project design at the beginning.
[Added: 2009/12/02]
PMU, UNDP 2009/11 Completed
8. Recommendation: 8. It is also recommended that adequate time is allocated for final evaluations of GEF projects and that evaluation schedules are discussed with evaluators in order to enable development of an appropriate evaluation methodology. 15 working days is inadequate for a final project evaluation of this nature . Giving an adequate weighting to final evaluations within the project monitoring and evaluation process is important both for accountability and if GEF and GOV are to be able to draw out lessons from project experiences towards an improved understanding of effective approaches for biodiversity conservation and sustainable use.
Management Response: [Added: 2009/12/02]

The project design did not allocate large amount of fund for final evaluation. This project is medium size, so has limited budget and implemented in one site, so it is hard to justified for allocation a large budget for evaluation.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
This was discussed and agreed with MOU that a bit more funding should be allocated for final evaluation.
[Added: 2009/12/02]
PMU, UNDP 2009/11 Completed
9. Recommendation: Recommendations for Ba Ria-Vung Tau Province and Con Dao District 1. It will be important for Province and District authorities to ensure that development planning prioritises sustainable levels and patterns of development for the Con Dao islands region, recognising the key value of the terrestrial and marine natural resource base to long term socio-economic prosperity in the region. Long term benefits from tourism will rely on establishing sustainable levels of tourism and in supporting biodiversity conservation and sustainable use that maintains the natural and historical attraction of the Con Dao islands region.
Management Response: [Added: 2009/12/02]

Provincial authority recognized this.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Provincial People committee has taken the sustainable livelihoods into account in social economic development planning.
[Added: 2009/12/02]
PMU, PPC 2009/11 Completed
10. Recommendation: 2. It will be important for development planning processes to identify and provide sustainable livelihood opportunities for local residents and particularly for local fishermen who are amongst the poorest sectors of Con Dao society. Livelihood opportunities need to be identified that can provide Con Dao residents with alternatives to unsustainable patterns or levels of resource use.
Management Response: [Added: 2009/12/02]

Provincial authority recognized this.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Provincial People committee has taken the sustainable livelihoods into account in social economic development planning. Alternative Income Generations, for social All recommendations expressed by the fishers were considered into selection and designing AIG activities.
[Added: 2009/12/02]
PMU, PPC 2009/11 Completed
11. Recommendation: 3. Current development plans for expansion of Ben Dam Port present a number of risks to prioritised tourism development and biodiversity conservation objectives for Con Dao. The number of external fishers fishing illegally in near shore waters appears to be having a significant negative impact on fish stocks in Con Dao waters. Proposals to increase the number of offshore fishers coming into the area will only exacerbate this situation, making it harder for local fishers to support basic livelihoods and degrading marine biodiversity. Proposals to attract petroleum vessels to the port represent a significant threat to marine biodiversity from associated risks of oil spills. These risks in turn also threaten the establishment of world class tourism on Con Dao, which will rely on the quality of the natural resource base. Proposals to attract cruise ships to the port also have associated social and environmental risks as has been demonstrated internationally. The carrying capacity of the Con Dao islands social and environmental resource base needs to be assessed as part of impact assessments associated with provision of services to cruise liners. It is recommended that Provincial and District authorities consider commissioning an assessment of environmental and social impacts of proposed port developments in line with national legal requirements under the Law on Environmental projection for SEA on all proposed developments (Circular No. 08/2006/TT-BTNMT). This assessment should also examine the potential risks of port expansion for sustainable tourism development and biodiversity conservation in the national park.
Management Response: [Added: 2009/12/02]

UNDP recognised this

Key Actions:

Key Action Responsible DueDate Status Comments Documents
UNDP conducted Strategic Environmental Assessment for an existing Socio-Economic Development Strategy for Con Dao and that provided very good recommendations to integrate sustainable development principles into development planning. This has been fully welcomed and accepted by the PPC.
[Added: 2009/12/02]
PMU, PPC 2009/11 Completed
12. Recommendation: 4. Effective enforcement of CDNP marine areas will be critical to achieving effective management of the newly established marine protected area. Provincial and District planning authorities should recognise the importance of enforcement and where ever possible provide adequate financial and planning support to CDNP and the Fisheries Department for effective enforcement of the marine areas of the park, particularly given the challenges faced by these agencies in patrolling the increasing number of offshore boats in the area. Key issues for consideration by provincial and district authorities are outlined in the lessons learnt analysis above. It will be important for National, Provincial and District Planning authorities to recognise the need for appropriate national and local level MPA legislation that supports effective enforcement.
Management Response: [Added: 2009/12/02]

UNDP and Con Dao NP management recognised that enforcement is important: and prioritized to support training, provide equipment and complete demarcation of the MPA.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Essential equipment like patrol boat, speed boat have been procured and equipped for teh park. The demarcation of the MPA has been completed with a mooring buoys system in place.
[Added: 2009/12/02]
PMU 2009/11 Completed
13. Recommendation: 5. Provincial and District authorities should continue to support CDNP to effectively manage the park, recognising the important role of CDNP as guardians of both the historical sites in the park and the globally significant coastal and marine biodiversity which is a key attraction for tourism.
Management Response: [Added: 2009/12/02]

The Provincial authorities and Con Dao NP management recognised this.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Provincial People?s Committee has approved the Management Plan for Con Dao national park, its stats that all other planning must be developed based on the Con Dao Management Plan.
[Added: 2009/12/02]
Ba Ria Vung Tau PPC 2009/11 Completed
14. Recommendation: 6. Related to this, it is recommended that Provincial and District authorities work with CDNP to establish the Conservation Trust Fund, following the proposal currently submitted under the project.
Management Response: [Added: 2009/12/02]

A Biodiversity Conservation Trust Fund has been established and approved by Provincial Authority.

Key Actions:

Key Action Responsible DueDate Status Comments Documents

[Added: 2009/12/02]
WWF, PMU 2009/11 Completed
15. Recommendation: 7. Consideration should be given to providing the Fisheries Department with adequate resources to enable them to establish an effective system for recording catch / effort data and assessing fish stocks. This is important to enable analysis of the sustainability of the Con Dao fishery and would build on training received under the project in fish stock assessment.
Management Response: [Added: 2009/12/02]

The Con Dao NP management recognised and communicated with the Provincial authority, but it is dependent on the mandates assigned by PPC (provincial People?s Committee)

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Con Dao NP management has communicated/ reported to the Provincial authority
[Added: 2009/12/02]
Con Dao NP management. 2009/11 Completed
16. Recommendation: 8. Consideration of the likely impacts of increased climatic events associated with climate change is a pressing issue for Con Dao development planning. The marine areas of CDNP are highly vulnerable to climatic events linked to climate change and the combined impact of climatic and anthropogenic stresses on marine systems will reduce their overall resilience. The marine areas of Con Dao are an important tourist attraction and proposed tourism developments will rely on effective conservation of marine biodiversity and in establishing sustainable patterns of use. Beach and coastal developments are particularly prone to climatic impacts and economic returns from coastal developments will depend on effective climate change planning and adaptation. It is strongly recommended that a climate proofing exercise is undertaken for the SEDP
Management Response: [Added: 2009/12/02]

The Provincial authorities and Con Dao NP management recognised this, but the project design before 2004 did not take this into account

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Province started preparing Provincial action Plan to response to CC, as part of the implementation of the National Target Programme to Respond to CC.
[Added: 2009/12/02]
Ba Ria Vung Tau PPC 2009/11 Completed

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