Document of The World Bank FOR OFFICIAL USE ONLY Report No: 143040-MZ IMPLEMENTATION COMPLETION AND RESULTS REPORT TF017403 ON A SMALL GRANT IN THE AMOUNT OF EUR$2.975 MILLION TO THE REPUBLIC OF MOZAMBIQUE FOR Mozambique - Artisanal Fisheries and Climate Change (P149992) October 28, 2019 Environment, Natural Resources & Blue Economy Global Practice Africa Region CURRENCY EQUIVALENTS (Exchange Rate Effective April 30, 2019) Currency Unit = Euro (EUR) EUR0.89 = US$1 US$1.12 = EUR1 Currency Unit = New Mozambican Metical (MZN) MZN63.620 = US$1 US$0.01 = MZN1 FISCAL YEAR January 1 – December 31 Regional Vice President: Hafez M. H. Ghanem Country Director: Mark R. Lundell Director: Simeon Ehui Practice Manager: Africa Eshogba Olojoba Franka Braun, Andre Rodrigues de Aquino, Joao Moura Task Team Leader(s): Estevao Marques da Fonseca ICR Main Contributor: Manuela Ravina da Silva ABBREVIATIONS AND ACRONYMS ADNAP National Fisheries Administration BAF Blue Action Fund CCP Community Fisheries Council CTV Centro Terra Viva CM Campaign Manager DPMAIP Provincial Directorate for Sea, Inland Waters and Fisheries DEPI Directorate of Studies, Planning and Infrastructure ESMF Environmental and Social Management Framework FFP Fisheries Development Fund FishCC Fisheries and Climate Change Project FLAGS Fisheries Landscape Assessment and Goals Setting FDM Fundo de Desenvolvimento da Mulher GRM Grievance Redress Mechanism GOM Government of Mozambique IFR Interim Financial Reports IDPPE Institute for the Development of Small-Scale Fisheries IDEPA National Institute for the Development of Fisheries and Aquaculture IIP Fisheries Research Institute ICR Implementation Completion and Results Report ISR Implementation Status Report KAPs Knowledge, Attitudes and Practices MIMAIP Ministry of the Sea, Inland Waters and Fisheries MTR Mid-Term Review M&E Monitoring and Evaluation MZN Mozambican Meticais NDF Nordic Development Fund NGO Non-Governmental Organization NTZ No-Take Zone PF Process Framework PIU Project Implementation Unit PPACG Community Based Coastal Resource Management and Sustainable Livelihoods Project PPF Peace Parks Foundation RBM Results-Based Management REPMAR Maritime Fisheries Regulation RMPPO Ponta de Ouro Partial Marine Reserve SIDA Swedish International Development Agency SWIOFish1-MZ First South West Indian Ocean Fisheries Governance and Shared Growth Project TURF Territorial User Rights for Fishing TURFâ€?Reserve TURF with embedded “reserveâ€? (NTZ) UTEP University of Texas El Paso US$ United States Dollars UTEP University of Texas El Paso WCS Wildlife Conservation Society TABLE OF CONTENTS DATA SHEET .......................................................................................................................... 1 I. PROJECT CONTEXT AND DEVELOPMENT OBJECTIVES ....................................................... 4 II. OUTCOME .................................................................................................................... 12 III. KEY FACTORS THAT AFFECTED IMPLEMENTATION AND OUTCOME ................................ 29 IV. BANK PERFORMANCE, COMPLIANCE ISSUES, AND RISK TO DEVELOPMENT OUTCOME .. 33 V. LESSONS LEARNED AND RECOMMENDATIONS .............................................................. 37 ANNEX 1. RESULTS FRAMEWORK AND KEY OUTPUTS ........................................................... 41 ANNEX 2. PROJECT COST BY COMPONENT ........................................................................... 48 ANNEX 3. RECIPIENT, CO-FINANCIER AND OTHER PARTNER/STAKEHOLDER COMMENTS ...... 49 ANNEX 4. SUPPORTING DOCUMENTS (IF ANY) ..................................................................... 50 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) DATA SHEET BASIC INFORMATION Product Information Project ID Project Name P149992 Mozambique - Artisanal Fisheries and Climate Change Country Financing Instrument Mozambique Investment Project Financing Original EA Category Revised EA Category Partial Assessment (B) Partial Assessment (B) Organizations Borrower Implementing Agency Ministério do Mar, Ã?guas Interiores e Pescas, Direcção Ministry of Economy and Finance de Estudos, Planificação e Infra-Estruturas Project Development Objective (PDO) Original PDO To improve community management of selected priority fisheries. . Page 1 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) FINANCING FINANCE_TBL Original Amount (US$) Revised Amount (US$) Actual Disbursed (US$) Donor Financing TF-17403 3,277,558 3,277,558 3,318,068 Total 3,277,558 3,277,558 3,318,068 Total Project Cost 3,277,558 3,277,558 3,318,068 KEY DATES Approval Effectiveness Original Closing Actual Closing 23-Mar-2015 21-Apr-2015 30-Apr-2019 30-Apr-2019 RESTRUCTURING AND/OR ADDITIONAL FINANCING Date(s) Amount Disbursed (US$M) Key Revisions 10-Aug-2016 0.50 Change in Procurement Other Change(s) 18-Jan-2018 2.36 Change in Implementing Agency Change in Results Framework Change in Institutional Arrangements KEY RATINGS Outcome Bank Performance M&E Quality Moderately Unsatisfactory Moderately Satisfactory Modest RATINGS OF PROJECT PERFORMANCE IN ISRs Actual No. Date ISR Archived DO Rating IP Rating Disbursements (US$M) 01 06-Nov-2015 Unsatisfactory Unsatisfactory 0.00 02 07-Jun-2017 Unsatisfactory Unsatisfactory 0.70 Page 2 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) Moderately Moderately 03 03-Nov-2017 2.13 Unsatisfactory Unsatisfactory 04 14-Jun-2018 Moderately Satisfactory Moderately Satisfactory 2.36 Moderately Moderately 05 15-Apr-2019 2.59 Unsatisfactory Unsatisfactory ADM STAFF Role At Approval At ICR Regional Vice President: Makhtar Diop Hafez M. H. Ghanem Country Director: Mark R. Lundell Mark R. Lundell Director: Paula Caballero Simeon Kacou Ehui Practice Manager: Magdolna Lovei Africa Eshogba Olojoba Franka Braun, Andre Rodrigues Task Team Leader(s): Xavier F. P. Vincent de Aquino, Joao Moura Estevao MarquesdaFonseca ICR Contributing Author: Manuela Ravina da Silva Note 1: Task Team Leader: Benjamin Garnaud was the main TTL and Xavier F.P. Vincent the co-TTL. Due to system limitations at the time of the ICR preparation it was not possible to include Benjamin as main TTL in the system. Page 3 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) I. PROJECT CONTEXT AND DEVELOPMENT OBJECTIVES A. Context at Appraisal Context 1. The National Poverty Reduction Strategy 2011-2014 (Plano de Acção para Redução da Pobreza - PARP) was the medium-term strategy of the Government of Mozambique that operated the Five-Year Program (2010-2014) with the goal of achieving inclusive economic growth, as well as reduction of poverty and vulnerability. During project appraisal, poverty trends were attributed to (i) low productivity in agriculture and fisheries; (ii) vulnerability of the rural economy to climatic shocks; (iii) and worsening terms of trade due to fuel and food price increases. The national Fisheries Master Plan 2010-2019 (PDP - Plano Director das Pescas) articulated the strategic plan of the government for the sector. It was aligned with the PARP and the Government’s 5-year Program (Programa Quinquenal do Governo) where food security and poverty reduction were the main priorities. In addition, Mozambique’s Climate Change Strategy endorsed in 2012 stressed the need for building resilience at the community level. In the Mozambique’s National Adaptation Program of Action (NAPA, 2007), reduction of climate change impacts in coastal zones was identified as one of the four national priority adaptation actions. NAPA also recognized the complex climate impacts faced by the country and the limited institutional, technical and policy capacities to respond to them. The World Bank Country Partnership Strategy (CPS) for FY12-15 used as a starting point the Government’s PARP, with its theme of inclusive and broad-based growth. Sectoral and Institutional Context 2. Mozambique, with more than 2,700 km of coastline, was ranked third of all African countries by coastline length, and was particularly vulnerable to cyclones, storm surges, floods, droughts and erosion. More than 66 percent of the population of Mozambique lived in the coastal zone. The coastal population depends on its fisheries (2-4 percent direct contribution to gross domestic product), with more than 90 percent of the 150,000+ tons of fish reported to be caught each year by artisanal fishers. Most artisanal catch is used for subsistence or ends up in local markets, with very little fish exported (except for the shrimp industry). The Food and Agriculture Organization of the United Nations estimates that the Mozambican population derives 50 percent of its animal protein intake directly from fish and fisheries products. Coastal fisheries are fundamental for food security for one of the poorest and most underdeveloped countries in the world (Human Development Index is 0.39, 178th out of 187 countries, Human Development Report, 2014). 3. Mozambican artisanal fisheries constituted an underperforming asset; the open-access fishing and lack of governance lead to fisheries that are far below maximum economic yield or even maximum sustainable yield with current fleets at overcapacity and total catch declining each year. Improved fisheries governance could provide substantial benefits to local fishers and value chain operators. 4. Mozambican coastal ecosystems were experiencing direct human threat from open-access, non-sustainable use of natural resources. Threats from climate change compound the problem of habitat loss and degradation of ecosystems, the very natural capital that coastal communities need for their food security and livelihoods. Communities were particularly vulnerable to these impacts due to a lack of infrastructure, weak local capacity, and lack of basic means to respond during disasters, natural or man-made. The Mozambique Government had insufficient capacity to address these multiple threats. Page 4 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) 5. The then Ministry of Fisheries1 had overall responsibility for fisheries and works through a range of subsidiary institutions including those dedicated to small-scale fisheries, aquaculture, research, fish quality, sector finance and fisheries administration. Equity in joint venture shrimp companies and other investments was held by a state company, Emopesca, while strategic port infrastructure is vested in four financially-autonomous port companies under the Ministry. Several industry associations represent the private sector in a well-established formal dialogue. 6. The need of World Bank assistance was first identified when the Nordic Development Fund held its annual meeting at the World Bank headquarters in 2013. There were discussions on the importance of the fisheries sector in developing countries, which is at the front-line regarding impacts of climate change such as sea level rise and beach erosion that mainly affect vulnerable coastal communities. By that time, the conservation NGO Rare’s work was already known by the World Bank for their co-management approach in other countries. Rare’s agenda aimed to build social resilience through the provision of trainings and the use of social marketing campaign. These strategies would help to build trust and nurture change of behavior among fishermen in order to adopt sustainable fisheries practices. 7. In alignment with the CPS and national goals this project aimed to improve livelihoods and build resilience towards climate change to coastal artisanal fisheries in Mozambique. To catalyze this social resilience, the project piloted a process in which local communities self-organized through their community fisheries councils (CCPs), and prepared and implemented their own natural resource management regimes creating TURF and no-take zones (NTZ). This was facilitated by Rare programs called PRIDE Campaigns, in which Government staff were trained in the principles of social marketing and a theory of social change enabling them to establish constituencies at local level, accelerating the adoption and implementation of TURF- reserves. Theory of Change 8. FishCC was approved in March 2015 and implemented over four years, closing in April 2019. The project was designed targeting a bottom-up approach and aimed to improve local governance of fisheries and related natural resources at selected pilot sites, catalyzing a transformation of coastal artisanal fisheries management. A community-based spatial management approach to be adopted by the project would provide a platform for addressing risks to sustainable artisanal fishing, including overfishing, reducing the use of unsustainable fishing gears and practices, including fishing in sensitive habitats that are key for fish spawning. This would be achieved through community sensitization, using social behavioral change methods, as well as by supporting communities with alternative livelihoods. To do so, artisanal fisher communities would get support to be organized through their CCPs2 in six project sites. Once these were revitalized and legalized, they would prepare and implement fisheries resources management regimes in whose development they actively participated, creating community fisheries management areas called by the Project TURFs, including no-take zones (NTZ) or reserves3. 1 Changed after appraisal in 2015 to the Ministry of Sea, Inland Waters and Fisheries. 2 A CCP (Conselho Comunitário de Pesca) is a community fishing association that carries out its activities within a given geographic area to contribute to the participatory management of fisheries and the compliance with existing measures, to ensure the sustainability of activities and the improvement of the local population. 3 Thus, the expression TURF-reserve will be used the designate this type of fisheries management area within this ICR. Page 5 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) 9. This would be facilitated by an international Non-Governmental Organization, Rare, hired to provide trainings at the Ministry of Fisheries, district governments and communities using mainly behavioral change methods. The government staff would be trained on the principles of social marketing and the resulting social change that would enable them to establish constituencies at local level, accelerating the adoption and implementation of TURF management areas and no-take reserves. To build economic resilience of these communities with the establishment of Reserves, research studies would be conducted on livelihood options such as aquaculture, tourism and agriculture. Alternative livelihoods would then be selected for each site to help fishers in the transition from open-access management to TURF-reserve management. 10. The implementation of the activities described above would establish examples which, if successful, could be scaled up throughout the country enabling sustainable development in the artisanal fisheries sector. This would contribute to social and economic resilience for the communities and in the longer run poverty reduction in the face of any future climate-induced changes. Page 6 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) ACTIVITIES OUTPUTS OUTCOME LONG TERM OUTCOMES Improve community rights- - CCPs are well-integrated into District based fishery management and Provincial Government Improved community - Legalization of CCPs -CCPs developing local management of -Organizing CCP meetings management/development plans -Baseline study developed selected fisheries -Delineation of TURF reserves -Trained CCPs on climate change, -Creation of management plans • Community -Data gathered on biomass of catch, social and ecological resilience Management Strengthened coral and seagrass coverage -Monitoring of coral and sea grass resilience in selected Agreements signed -Training in financial planning bed coverage in Reserve fisheries between the relevant authority communities Improve livelihoods and Fishing -Development of Socio-economic - New revenue generating Community Councils. study opportunity identified and piloted -Identification of alternative • Increase in average livelihoods for each site. Catch Per Unit Effort (CPUE) in targeted - PRIDE Methods and Fish Forever communities Social marketing -Trainings in social marketing, the Methods taught to candidates from provincial directorates of fisheries • Improved access to science of behavioral change and income- generating and extension agents. conservation activities -Gathering of data -Organization of workshop on - PRIDE Campaigns at six sites are used to accelerate adoption of rights- barriers based fisheries management -Implementation of PRIDE campaigns -6 staff from provincial directorates Figure 1. Theory of Change (Results Framework) Page 7 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) Project Development Objectives (PDOs) 11. The project development objective was ‘‘to improve community management of selected priority fisheries’’ as stated in the legal agreement. Key Expected Outcomes and Outcome Indicators 12. The original PDO indicators were designed to track progress towards achieving the outcome, namely: • Indicator One: Community Management Agreements signed between the relevant authority and Fishing Community Councils. • Indicator Two: Increase in average Catch Per Unit Effort (CPUE) in targeted communities. • Indicator Three: Direct project beneficiaries, of which female. Components Component 1: Improve community rights-based fishery management (Estimated: US$ 392,000; Actual: US$ 229,148). 13. This component would allow the National Institute for Fisheries and Aquaculture Development (IDEPA)4 to work with the CCPs at the six project sites so that they would meet on a regular basis, create their management plans, delineate their TURF-reserves, and organize necessary protection and monitoring. Further, the component aimed to support financial planning, integration of the management body into provincial and district governments, and sponsoring training on climate change, social and ecological resilience to the CCPs. IDEPA would oversee the collection of data by local community members to monitor improvement in biomass of catches and catch value. Component 2: Improve livelihoods (Estimated: US$ 525,000; Actual: US$ 471,701). 14. The component aimed at developing site-specific socio-economic studies and recommending livelihood pilot projects for each project site, together with subsequent implementation. The pilot activities would be conducted in tourism, aquaculture and other sectors depending on geographic locations. These alternative livelihoods would help transition from open-access management to TURF-reserve management. Component 3: Social marketing (Estimated: US$ 1.4 million; Actual: US$ 1.65 million). 15. The component aimed to increase capacity of social marketing within the Ministry of Sea, Inland Waters and Fisheries as well as the local communities. Social Marketing refers to the theory of social change, which would enable targeted communities to establish local constituencies, accelerating the adoption and implementation of Territorial Use Rights for Fisheries (TURF)-reserves. Capacity development of the CCPs in the six pilot sites would be promoted. Rare would provide social marketing training to IDEPA staff members. The selected IDEPA staff members would take part in a Master’s Program in social marketing, the science of behavioral change and conservation. These staff would take the role of Campaign Managers, acting as the main liaison points with communities in selected sites. Campaign Managers would plan and implement social marketing campaigns at 4 During appraisal the institution was called IDPPE which after government elections it became IDEPA. See section on significant changes during implementation. Page 8 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) each site. Furthermore, the component would support an event involving the graduation of the six Master’s students and would disseminate lessons learned and exchange experiences. Component 4: Project management (Estimated: US$ 700,000; Actual: US$ 743,713). 16. This last component aimed at supporting the implementation and coordination of the project at IDEPA. It would also support monitoring and evaluation of the project activities and results. IDEPA would be supported by a technical assistance on, inter alia, development of terms of reference and external communication. Different types of communication materials including tailored awareness and education materials, website, and visual communication would be developed by Rare. Separate consultancies would be undertaken to perform technical studies and support implementation. A. Significant Changes during Implementation 17. The project went through two restructurings. The first restructuring took place in August 2016 and involved a change in procurement to include works as an eligible expenditure category in the Grant Agreement. The project design envisaged works to build or rehabilitate small infrastructure in some of the six pilot sites that would support fisheries co-management (e.g. small markets, storage facilities, fisheries co-management headquarters). Accordingly, the Environmental and Social Management Framework prepared by the Government, approved by the Bank and disclosed on February 19, 2015 in country and on the World Bank’s InfoShop, mentions these works. The Administrative Agreement between the Nordic Development Fund and the World Bank was modified on April 4, 2016 to incorporate works as an eligible expenditure category. The second restructuring took place after the October 2017 Mid-Term Review, being finalized on January 18, 2018. It enabled streamlining activities and reviewing the results framework to include better defined and more realistic targets. Within this process, project coordination was also transferred from a FishCC-specific PIU housed in IDEPA to another PIU that was responsible for SWIOFish1-MZ implementation, a larger World Bank-financed project. 18. Changes in Institutional arrangements- The project was approved in 2015 after the general elections took place in Mozambique, which led to the creation of MIMAIP, encompassing the previous Ministry of Fisheries and other sea-related mandates, and the Ministry’s internal institutional restructuring. The project was first implemented by the Ministry of Fisheries, through its Institute for the Development of Small-scale Fisheries (IDPPE), which was reformed and renamed to National Institute for Fisheries and Aquaculture Development (IDEPA) within the first few months of implementation. Additionally, a decentralization process by MIMAIP transferred key responsibilities from IDEPA to provinces and district authorities. This decentralization push that accompanied project startup caused significant implementation delays to the project, mainly due to the inability of IDEPA to manage the change against the initial project setup, which envisaged a central administration. Once the re-organization was settled, the World Bank task team and related institutions managed to continue to support the implementation of the project and its activities. Additionally, following the Mid-Term Review, it was identified that the National Fisheries Administration (ADNAP) needed to be much more closely involved, given their mandate on fisheries management. As such, the teams involved made efforts to ensure ADNAP was co- leading project implementation together with IDEPA. 19. Changes to allocation of funds between components- The project financing was in Euros, at the time of the project approval 1 € =1.12 US$. During implementation it was decided that the Technical Assistant would no longer be needed. As a result of this decision the earmarked budget (US$ 336,296) was transferred from Component 4 (Project Management) to Component 2 (Improved Livelihoods) before the mid-term review (MTR). There were subsequent realoocations to component 3 in order to cover taxes realted to the contract with Rare, Page 9 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) which had not been correctly estimated during initial contract signing. It should be noted that component 3 reflects the budget associated with the contract with Rare. While Rare supported capacity bulding in social marketing, it also had a major role in the implementation of activities that fall within component 1. Thus, the budget distinction between component 1 and 3 should be understood as a distinction in budget executing agencies (component 1 by the Government, component 3 by Rare), rather than a strict thematic division. By the end of the project, exchange rates fluctuations did not have a significant impact on financing available for implementation. Table 1. Budget reallocation by component Component Initial (US$) After final reallocation (US$) 1. Improve community rights- 392,000 341,045 based fishery management 2. Improve livelihoods 588,000 722,072 3. Social Marketing 1,568,000 1,930,775 4. Project Management 784,000 516,608 Rationale for changes and their implication for the original theory of change 20. Implementing Agency- The coordination of the project was under the responsibility of IDEPA5. As reported in the ISRs, IDEPA made insufficient progress between two implementation support missions and did not report problems on time to the World Bank as these arose. The agreed upon deadlines were not respected, which hampered the effective support to implementation. In November 2017 the PIU was transferred to the PIU of the SWIOFish1-MZ project hosted at the Directorate of Studies, Planning and Infrastructure (DEPI) under MIMAIP. In August 2018 the SwioFish1-MZ and FishCC PIU were thereafter reallocated to the Fisheries Promotion Fund (FFP), MIMAIP. The changes aimed at improving management of the project but also to improve synergies with other sectoral initiatives and mainstreaming of lessons learned within MIMAIP, including within the context of SWIOFish1-MZ. The change of PIU helped to accelerate implementation of the project. For more information on how the Theory of Change was affected see paragraph below. 21. Amended Results Framework. Prior to MTR the indicators lacked an agreed-upon definition and verification methodology allowing for discrepancies in interpretation. At MTR the PDO level and Intermediate level indicators and targets were revised. The definition of outcomes was also revised and focused on results attributable to the project (see key factors under implementation section for more information). The task team prioritized discussing and agreeing with the Government on implementation strategies to improve the likelihood of sustainability after Project closure (e.g. linking activities with other World Bank and donor-financed projects, private sector operators and discussing an arrangement for continued Grievance Redress Mechanism (GRM) implementation after project closing). The changes to activities and indicators were significant but did not impact the achievement of the PDO. Indicators for CCPs, fisheries management plans, direct beneficiaries and equitable livelihoods 5 Once the project was approved Mozambique went through elections and IDPPE changed to IDEPA in the Ministry of Fisheries. Page 10 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) trained in social marketing had their designation/definition changed and/or targets adjusted. See table below for details and reasoning. Table 2. PDO and Intermediate result indicators, original and after restructuring, its reasoning and effect. Original After Reason/effect restructuring PDO Level Results Indicators and end targets Indicator One: Number of Revised: The indicator lacked an agreed-upon definition and Community Management Number of verification methodology allowing for discrepancies in Agreements in place between the Fishing interpretation. administration and Community Community Definition: A CCP was considered legalized when its formal Management Units Councils authorization request was signed by the relevant (Number, Custom). legalized and government authority. The legalized CCP was considered End target: 4 functioning. functioning if, on average, it had one recorded meeting per End target: 6. month. A CCP would be legalized and functioning when both criteria was achieved. Cumulative target. Indicator Two: Increase in average Dropped The indicator did not seem attributable to the project due Catch Per Unit to its short duration in particular with huge delays in Effort (CPUE) in targeted implementation and the choice of fish species with long life communities (%). cycle. External factors (e.g. climatic events) could also End target: 7.5 impact its results. Indicator Three: Direct project Revised The target was reduced based on more accurate beneficiaries (Number, Core), of assumptions regarding the universe of fishers and other which female (%). End target: community members that could be directly impacted by End target: 6,000, 10 2,700, 10 the project across the 6 sites. Intermediate Result (Component One): Improve community-based fishery management 1.1. Increase in coral and sea grass Dropped The indicator did not seem attributable to the project by bed coverage in Reserve (%). MTR due to the short duration and since external factors End target: 5 (e.g. climatic events) could also impact its results. 1.2. CCPs developing a local Revised: The indicator lacked an agreed-upon definition and management/development plan Fisheries verification methodology allowing for discrepancies in (Number, Custom). Management interpretation. Plans developed and submitted Definition: Fisheries Management Plan is a guiding tool for End target: 6 for approval by the development of the CCP's activities to reach its main the relevant objective, which is to ensure the sustainability of activities authority. and the improvement of the living conditions of the local population. The plan is the basis for the implementation of End target: 6 the activities, their monitoring and evaluation. The Fisheries Management Plan will contain the main objectives and the key actions to be taken. It should also contain a specific component dedicated to relevant activities Page 11 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) undertaken by women and present the specific roles of women in the plan implementation. The Fisheries Management Plan would be submitted to the relevant authority at the national/ministerial level (MIMAIP) or at other level provided in the regulatory framework in force at the time of submission. Intermediate Result (Component Two): Improve livelihoods 2.1 New revenue generating Revised: In order to ensure the completion of alternative livelihood opportunity identified and piloted. New revenue projects within the implementation period of the project, it (Number, Custom). generating was agreed to immediately identify them and to launch their opportunities implementation as soon as they were ready, in coordination End target: 2 identified and with the parallel processes of improving fisheries launched management. (Number, Custom) End target: 2 Intermediate Result (Component Three): Social Marketing 3.1. Staff trained on social Target revised After MTR the Bank team encountered difficulties in marketing (Number, Custom). interpreting the calculation for the end target as there was End target:30. no definition available. The End target was re-calculated End target: 24 involving the training of extension agents in addition to the Campaign Managers. Definition: This indicator measures the number of Mozambican government staff members trained on the principles of social marketing. Social Marketing refers to the theory of social change, which will enable targeted communities to establish local constituencies level, accelerating the adoption and implementation of Territorial Use Rights for Fisheries (TURF)- reserves. II. OUTCOME A. Relevance of PDO Rating: Substantial 22. At preparation stage the PDO was relevant to the World Bank’s Mozambique Country Partnership Strategy FY13-FY15 which recognized the fisheries sector as an important contributor to economic growth. During implementation the objective remained relevant to the CPS and the current Country Partnership Framework for Mozambique (FY17-FY21), which seeks to support country priorities for the promotion of food security and nutrition, job creation for rural coastal populations, and increased income to fishing communities including Page 12 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) strengthening resilience to climate change. The CPF supports the objectives of the Government of Mozambique (GoM) for growth and poverty reduction, which are outlined in the Five-Year Plan of the Government for 2015– 2019, creating more inclusive growth through employment promotion and improving productivity and competitiveness in a sustainable manner including strengthening climate resilience. B. Achievement of the PDOs (efficacy) Rating before restructuring: Negligible 23. The fisheries co-management approach (from here on referred to as co-management) is defined as a shift in the governance and management of fisheries to a broader approach that recognizes the participation of fishers, local stewardship, and shared decision-making6. The methodology behind this included TURF-Reserves which are Territorial User Rights for Fishing that have noâ€?takeâ€?zones (NTZs) embedded within their boundaries. The reserves (often called sanctuaries) would encompass as much as 20 percent of the TURF area, provide the basis for ecosystem health recovery, and through the effect of spillover7 and as a result fishery stocks would increase. The production would be made sustainable through managed access, in which local fishers would have a leading role in coordination with other stakeholders. Thus, the “rightsâ€? portion of the management of these TURF- Reserves would be based on community rights of access to the TURF area and is a type of communityâ€?based natural resources management. The process was conducted through participatory methods involving social marketing methodology to achieve behavior change among community members. The project as designed was implemented in a maximum of six pilot sites along the coast of Mozambique, each encompassing 5 to 10 communities. Six out of 24 sites were selected based on pre-established criteria and factors, including vulnerability to climate change impacts, population density, socioeconomic status, local deployment capacity; relevant ecosystems or biological conditions, degree of dependence on marine resources, etc. Assessment of Achievement of Each Objective/Outcome Before project restructuring 24. To achieve the PDO the project aimed to establish at least four CCPs which would be at the forefront of the community management of the TURF-reserves. Supported by the Government and the project, they would meet on a regular basis, create their management plans, delineate their TURF-reserves, and organize necessary surveillance and monitoring. One year after the implementation of the management plans and the establishment of TURF-reserves the community would observe changes such as increase in the average catch per unit of the selected fish species for protection and an increase in coral and sea grass bed coverage. To compensate for restrictions and reducing fishing opportunities for that period, new revenue generating opportunities would be identified and piloted to improve fisher’s income while respecting the management plans and TURF reserves. PDO level Indicator 1. Number of Community Management Agreements in place between the administration and Community Management Units (Changed in October 2017) underachieved. 25. The PDO indicator was underachieved given the fact that the project suffered several delays due to external 6 International Development Research Centre. 2006.Fishery Co-Management: A practical Handbook. 7 Target fish production would increase within the reserve, spilling over into the adjacent fishing grounds. Page 13 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) and other factors as explained below. However, project sites and Campaign Managers (CMs) were selected, with their training starting thereafter with some delays. At MTR, this PDO indicator was revised. 26. The project was approved right after the general elections in 2015, which led to institutional restructuring, the creation of IDEPA from IDPPE and a decentralization process with IDEPA. The decentralization process and the transfer of responsibilities to the provinces led to significant delays in the project including institutional insertion of the Campaign Managers, which in turn delayed the implementation of the activities planned in the selected sites. Delays followed in handling contracts and delivering payments to Rare, the main service provider for Component 1 and 3, and subsequent approvals of the contract by the Administrative Court. Late payments to Rare also led to delays in the implementation of the activities, as the successful implementation of the Campaign Managers work plan depended on Rare's technical support and training (see more details under key factors during implementation). Due to these different factors, project activities started with over 12 months of delay in January 2017. At that time, Rare had obtained its official registration as an international NGO with authorization to work in Mozambique and IDEPA furnished Rare its office space. 27. Selection of project sites. Rare, in conjunction with IDEPA and the Fisheries Research Institute (IIP) staff, conducted a site evaluation of the whole coast of Mozambique which began in February 2016. After interviewing members of 25 CCPs dispersed along the north and south coasts of the country, the two teams convened on March 2016 to select six pilot sites that would best represent the first six demonstration sites for FishCC namely; Machangulo, Zavora, Pomene, Inhassoro, Memba and Mefunvo. The sites were chosen based on a set of attributes such as 1) biophysical characteristics such as presence of reefs, seagrass beds, estuaries, mangroves, etc.; 2) attributes of the fisheries such as target species, gear types, value chain for fish sold, distance to markets, etc.; 3) socioeconomic characteristics such as income, relative wealth, infrastructure; and 4) receptivity, such as interest in the project, previous experience with NGOs, social capacity and resilience, etc. A full report8 on the sites and the site selection process was developed. 28. Training and selection of Campaign Managers. To support the professional development of CMs, Rare partnered with the University of Texas, El Paso (UTEP) to incorporate the awarding of a Master of Arts in Communication. Rare facilitated the recruitment workshops which took place between March 14 and 25, 2016 for DMAIP staff. From 18 selected candidates, IDEPA and Rare selected six (one per site). The final six candidates were selected by IDEPA with input from Rare, through internal advertisement. 29. The course started with a three-month delay9. Between July and September 2016 CMs initiated their first term at Eduardo Mondlane University and were trained in data collection, actions for the implementation of TURF-Reserves and design of PRIDE Campaigns. The course was thereafter paused for six months (see key factors during implementation section for more details). From July to September 2017 the course started again and the CMs performed their field work in each of the six sites, which consisted of (i) CCP Diagnostic and operationalization; (ii) Stakeholder Matrix Survey; and (iii) Establishment of CCP Sub-Committee. During this period Rare organized, in close collaboration with the CMs, IDEPA, DPMAIPs and District Governments, two 8Rare. 2016. Site Evaluation Mozambique Program. 9 The delays were due to IDEPA encountering challenges from the provincial directorates releasing the staff to participate as CMs. Page 14 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) workshops per site to perform the Fisheries Landscape Assessment and Goals Setting (FLAGS) to (i) characterize the fisheries; (ii) assess the relevant ecosystems status; (iii) define the fisheries goals to be achieved through establishment of TURF-Reserves; and (iv) prioritize fish species and habitats. PDO level Indicator 2. Increase in average Catch Per Unit Effort (CPUE) in targeted communities (Dropped in October 2017). 30. The PDO indicator was underachieved given the fact that the project suffered several delays due to external and other factors as explained below. There were also coordination challenges between the institutions which caused delays in collecting baseline information. This indicator was dropped after MTR. 31. During the World Bank mission performed in December 2016, the task team was informed by IDEPA that the indicators Catch per Unit Effort and coral and sea grass bed coverage in Reserve would not be available before the second year of the project implementation. A Monitoring and Evaluation (M&E) system was still not in place and the definition and identification of targeted populations, sites and reserve zones were still not initiated. In August 2017 key baseline studies were initiated by IIP, which would help feeding the fisheries management plans. In September 2017 a fish catch data report10 was developed, as part of the implementation of a MOU signed between IDEPA and IIP, and based on the existing data in the MIMAIP database. The report consisted of small- scale fisheries data compilation for the period between 2004-2016 for Memba and Inhassoro Districts. By the end of September 2017, the national NGO CTV, under the responsibility of Ponta de Ouro Partial Marine Reserve (RMPPO), developed another fish catch data report11 for the period between 2015 to 2017 for Machangulo District, as part of the partnership among RMPPO, IDEPA and Rare. 32. During the subsequent World Bank mission, it was noted a consensus to drop this indicator (see key factors during implementation). According to the MTR Aide Memoire the PIU faced challenges and delays in establishing its baseline. It was also evaluated and considered that ‘‘it did not reflect a direct result that would lead to the achievement of PDO’’. After project restructuring Rating after restructuring: Substantial 33. The PDO indicator one targeted the establishment of six CCPs (legalized and functioning). The legalized CCPs were considered functioning if, on average, they had recorded at least one meeting per month. Each CCP would participate in preparation of fisheries management plans and develop TURF-reserves and the plans would be submitted for approval to the relevant authority. As mentioned earlier, during MTR, due to the short remaining project implementation period, it was decided to drop PDO indicator 2 catch per unit effort and intermediate results indicator 1.1. increase in coral and sea grass bed coverage in reserve. Yet, it was assumed that the 10 IIP. 2017. Levantamento de dados sobre a produção pesqueira artesanal, espécies e ecossistemas na área do PPAMC/Fish/CC, no período 2004 -2016. 11 Louro, C. M. M., C. Litulo, R. S. Fernandes, T. I. F. C. Pereira & M. A. M Pereira. 2017.Fisheries in the western shores of the Ponta do Ouro Partial Marine Reserve, southern Mozambique: towards a holistic approach to management. Final Technical Report. 118 pp. Maputo, Centro Terra Viva. Page 15 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) implementation of the fishery management plans would still lead to an overall improved management of the TURF-reserves, enhancing fish stock and ecosystem health over time. The project would continue to provide support to diversify the livelihoods of the communities and increase business opportunities as alternatives to fishing or support management and sustainable fishing practices. The following indicators, the operations activities and outputs and achieved outcomes are described below. PDO level Indicator 1. Number of Fishing Community Councils legalized and functioning (achieved). 34. Seven CCPs were established/revitalized and legalized. Field visits by the task team combined with reports by Campaign Managers confirmed that all CCPs were having meetings and functioning well, though only two managed to provide consistent records of meeting minutes held and list of attendees. This has been explained due to the low level of literacy among the CCPs. 35. The six CMs revitalized/established a total of seven CCPs. ADNAP was the main institution within the Ministry of Fisheries moving the legalization of the CCPs. As a result of their action, all CCPs were legalized through the submission of formal authorization requests signed by MIMAIP between October 2017 and July 2018 (in October 2017 the legal framework of this process was regulated by the Decree 43/2003, which is currently being reviewed and updated according to the Law 22/2013). The target on the number of CCPs legalized and functioning surpassed its goal of six as one additional CCP was included in the Machangulo project site, making it a total of seven. The revitalized or formed CCPs consist of 13-35 members and a Steering body (Comité de Direcção) that represents the fishery communities. The CCP Steering bodies are meeting once or twice per month as per the performance standard set. However, only two of the CCPs have managed to present systematic evidence of registering minutes and list of attendees. During the November 2018 World Bank mission, it was noted that the CCPs would need more capacity building in fisheries management as well as recording meeting minutes. One external factor could have been be the low level of literacy among the CCP Steering bodies. During the meetings, CCPs discuss diverse types of subjects, ranging from licensing rates, community-based surveillance, to issues related to access to gear and other fishing tools and products and decide on priority issues to take to the district and provincial institutions for resolution. Intermediate Results Indicator 1. Fisheries management plans developed and submitted for approval by the relevant authority (underachieved). 36. This indicator was not achieved due to government restructuring and coordination challenges as explained before which caused significant delays in the development of the management plans. Rare also played a significant role in delaying with the baseline data collection which would feed the management plans. 37. The fisheries management plans were expected to be finalized by December 2018. Currently only the Machangulo12 plan is aimed to be submitted for approval by MIMAIP by November 2019. The remaining plans besides Mefunvo are under revision and planned to be submitted by December 2019, amounting to an eight month delay. In order to finalize this activity Rare secured funds through the Blue Action Fund (BAF) grant13 to 12Plano de Gestao de Pesca Artesanal Machangulo 2018-2022 (Advanced Draft) 13Network of Community-Managed MPA’s for Inshore Small-Scale Fisheries in Mozambique (community level approach) (2018- 2021) Page 16 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) ensure continuation for three years. A Memorandum of Understanding was prepared between Rare and MIMAIP to confirm the areas of support. It is decided that this activity will continue and be finalized by December 2019 through ADNAP and Rare. 38. A lack of coordination between IDEPA, ADNAP, IIP and Rare affected the process of this activity. ADNAP had the responsibility to interact with the CCPs in the process for the development of the management plans. Between April and June 2018 ADNAP performed field visits in all sites and collected information. During the same period Rare presented TURF-reserve proposals for each site to be validated with the implementing agencies ADNAP, IIP, DEPI and IDEPA. 39. The formation/revitalization of CCPs facilitated meaningful community participation in management planning of nearshore fisheries in the six sites, although no management plans were finalized by project closure. CCPs were facilitated, through a consultative process, to identify viable and effective fisheries management measures, including agreement on the location of one or more fisheries no-take reserves at each of the six sites. Despite fisheries management plans not having been finalized or formalized, certain agreed upon management measures are reportedly already under informal implementation in some of the sites. In some areas, pre-existing fisheries rules were reinforced or extended, such as not fishing on Sundays or at night (Závora); and seasonal closures for beachside nets extended to include a second period from February to March (Fequete CCP at Inhassoro). During the visits it was mentioned by leaders and members of the CCPs the need of providing physical demarcation of the proposed fisheries no-take reserves, to clarify the boundaries of the reserve area, for both local and external fishers. This active engagement of CCPs and implementation of agreed upon management measures demonstrate important behavioral change within CCPs to improve fisheries management. Rare worked with the CCPs and communities to produce maps for all suggested reserve locations based on local knowledge and mapping was completed in February 2018. 40. Baseline studies. In December 2017, IIP concluded fish catch data report for Závora, Pomene and Mefunvo. In February 2018 Rare and the Campaign Managers organized a workshop with ADNAP and IIP to inform on the identified species for protection in each site through their Fisheries Landscape Assessment and Goals Setting (FLAGS) reports. Based on the FLAGS report IIP started data collection for biological analyses in June 2018, which informed parts of the Plans, the study was finalized in August 2019. In March 2018 CTV finalized the baseline study on habitats and fish population health. The data was used to better focus the design of the TURF-reserves. Intermediate results Indicator 2. New revenue generating opportunity identified and launched (achieved). 41. This indicator was achieved since it managed to identify and launch two livelihood opportunities out of six project sites, which was the minimum requirement as stated in the results framework. 42. SOFRECO (a private international consulting firm) was selected by the World Bank to develop livelihood studies for the project sites to help identify livelihood opportunities per site. Peace Parks Foundation14, which 14PPF (2017).Projectos ComunitaÌ?rios de Geração de Rendimentos e Conservação dos Recursos Naturais Costeiros e Marinhos no Posto Administrativo De Machangulo. Peace Parks Foundation, 61 pgs, Maputo-Outubro de 2017. Page 17 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) already worked in Machangulo, hired one consultant that developed the report in October 2017. SOFRECO15, competitively recruited by the World Bank, worked in the remaining five project sites (Mefunvo, Memba, Inhassoro, Pomene and Závora) and developed the report in May 201816. The methodology included conducting interviews with CCPs, the government districts and other relevant stakeholders. The study identified a total of 15 new revenue generating opportunities or ‘‘community projects’’ for the five sites (three per site). A meeting was held in April 2018 with the participation of key stakeholders (DEPI, ADNAP, IDEPA, FFP, IIP, INIP and SOFRECO) to narrow down and select only five out of the 15 community projects (one per site), as the available budget was of about US$ 100,000 per site. 43. In June 2018, SOFRECO developed an operations manual for the selected opportunities including the selection process for each site. The selection criteria were in function of the geographic location and socio- economic status of the communities, as the selected opportunities at each site would be delivered through matching grants. Opportunities were considered “newâ€? if they did not exist before project support – i.e. improving trading capacity by enabling community member to acquire improved conservation equipment was considered a new opportunity. The project aimed to cover 80 percent of the costs for the development of the projects and the beneficiaries with the remaining 20 percent. In some cases, the communities covered the costs through Savings Clubs. The selected opportunities were later disseminated through a consultation process that took place with CCPs, campaign managers and extension agents at each site between May and June 2018. 44. Most of the selected opportunities targeted adding value in the fishery sector. However, there were also intended alternative opportunities in involving the private sector in ecotourism and training communities to become community or snorkeling guides. In some sites freezer equipment and cooling boxes were delivered, which would help to preserve fish catch longer, increasing profits and enhancing livelihoods. In sites where dominant fishing practices consisted of beachside fishing the selected opportunities aimed for the construction of motorized boats. The rationale was to allow line fishing in deeper waters and decrease the pressure of unsustainable fishing practices in nearshore areas. The boats were supposed to be constructed by the communities themselves with help of certified boat builders. However, this activity was not finalized on time. The reasons included delays in payments from the PIU to the provincial authorities, procurement delays in the district government and transport of the boat materials to the sites (see section in factors during implementation for more details). By project closure livelihood assets were disbursed or in place to the communities in two out of the six project sites, namely: Memba and Mefunvo. However, the use of equipment in Mefunvo has not been confirmed. For more details on type of opportunities launched per site and its status, see table 1 below. The financing of opportunities that were in the process of being started have been transferred to SwoFish1-MZ project given FishCC’s closure and are expected to be completed by December 2019. 45. The launched projects benefited 2,440 households. 54 percent of the individuals were women. The status of finalization of selected activities in each project site is summarized in the table below. Table 3. Project sites, type of revenue generating opportunities selected and launching status. 15 While SOFRECO was competitively selected to perform the study, PPF was a co-manager of the RMPPO with a long term interest in the area. 16 SOFRECO. 2018. Estudo de identificação e preparação de alternativas de subsistência - Projectos Comunitários - no âmbito do PPAMC. Page 18 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) Site Revenue generating opportunity Launching Comments status Mefunvo Fish Conservation and Processing Yes equipment (25 Freezers, 40 Isothermal Boxes) Memba Fish Conservation and Processing Yes Equipment (2 Freezers, 2 Isothermal Boxes and 20 Processing Kit) Inhassoro Construction of 4 motorized boats No Procurement delays in delivering boat materials and 20 improved rafts for open and administrative issues in contracting the sea fishing. community-based carpenter have affected the process of the construction of the boats and rafts. The boats are expected to be delivered by November 2019, whereas the rafts are planned to be finalized by February 2020. Pomene Fish Conservation and Marketing No Equipment was not yet in use by project closure Support (4 Freezers, 4 1,000-liter due to problems surrounding distribution and Water Tanks, Isothermal Boxes operationalization. The 40 processing kits were and 40 Processing Kits) delivered in October. There is lack of electricity in the area. There were significant delays in procuring solar PV panels and batteries for the freezers. Solar panels were purchased and installed, thereby establishing the power source and successfully testing the functioning of freezers for fish preservation. Tourism – training in guides for No The project managed to start a dialogue with eco-tourism Zavora hotel lodge. In total six fishers have received certification as divers in September 2019. The project is also training community-based eco- tourist guides. Their training is expected to be completed in October. This activity is now being funded under SWIOFish-1MZ project. Závora Construction of 12 motorized No Six boats have been finalized and delivered to the boats for open water fishing end-beneficiaries on September 28, 2019 (celebration day in the site). Six boats remain 10% of its construction to be finalized and aimed to be delivered by 21 November 2019 (International Fishers day). Machangulo Fish conservation – Construction No By July 2019, the ice plant was thought to be very of ice plant close to being launched (two weeks). However, it was then noted no bathrooms had been constructed, which are now being constructed. The launching of the plant is planned for International Fishers day 21st of November 2019. Page 19 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) Intermediate results Indicator 3. Staff trained on social marketing (overachieved). 46. This indicator supported the training of six CMs. It also included a social marketing training (7 days) to 24 extension agents from the Provincial Fisheries Directorates (DPMAIPS) allocated at the district level at the project sites, with the aim to support the CMs on the project sites. This was not previously planned in the project design. Although they did not benefit from the Master’s title their capacities were strengthened with low incremental cost for the project. The activity also aimed to help to improve sustainability in the project once the CMs would have to leave their sites. 47. In January 2018 the PIU and MIMAIP included the training for 24 extension agents. In March 2018, the second University Phase took place and CMs based in Maputo reviewed the pre-campaign data collected in the field to develop campaign strategies for each site. 48. Social Marketing and Behavior Strategy. In June 2018, Rare drafted a Unified Social Marketing and Behavior Change Strategy17. The strategy included the principles of how a PRIDE campaign should be run, summaries on desired behaviors from the communities, barriers and conservation results in each site. Additionally, communication materials were produced including mascots, call for action message proposals and slogans to be applied in the social marketing plans. The CMs (with the Rare staff) created a unified logo, draft messages and songs, and options for mural paintings to be used in the campaigns at each site. All produced materials were validated by the community in the Barrier Removal Workshops held in August 2018. 49. Barrier Removal workshops. Throughout August 2018 Rare conducted five ‘‘Barrier Removal’’ workshops in Memba, Mefunvo, Inhassoro, Pomene, and Zavora as part of the Social Marketing and Behavior Change strategy. The workshops engaged fishing households and major stakeholders in prioritizing the main barriers that hinder implementing sustainable coastal fishing practices. Each community validated a unified logo, message, songs, and mural options for the PRIDE campaign to be rolled out in each site. Additionally, during the workshops the CCPs received trainings by ADNAP in improved fishery management practices and relevant fishing legislation. 50. Launch of PRIDE Campaigns18. Based on the social marketing and behavior strategy Rare coordinated the launching of PRIDE Campaigns in each site. The PRIDE campaigns was launched in a one day-event and set for the same day as the World Fisherman’s Day on November 21st, 2019. The implementation of these campaigns was a time of festivity, including awareness raising and a spreading a feeling of exaltation including PRIDE for fishing communities and local authorities. This participatory event involved fisher communities, DPMAIPs, governmental local authorities, community leaders and local communities. Campaigns were launched by Provincial Governors (in Machangulo and Zavora sites), District Administrators (in Mefunvo and Memba sites) and Permanent Secretaries of the Districts (in Inhassoro and Pomene sites). However, it not clear that the campaigns were implemented during a longer period of the time after the event as a concerted and strategic set of actions. 17 Rare. 2018. Estratégia de Marketing Social Para a melhoria da condição de vida das comunidades de pescadores em Mefunvo, Memba, Inhassoro, Pomene, Zavora e Machangulo. 18The PRIDE campaign is an ongoing series of messages and activities that focus on festivity, awareness raising, and an expression of PRIDE within the fishing communities and local authorities Page 20 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) 51. The campaigns targeted fisher community behaviors with use of flagship species19. These were conducted based on the model of the Unified Social Marketing Strategy. The key-message focused on protection and conservation of the flagship specie and the desired behavior changes centered in three main messages: Knowing fishing rules and regulations, registration in CCP, and participating in CCP meetings. The messages were selected based on the earlier results of CCP diagnosis, aiming at making the CCPs effective and functional. The launching of the campaigns used local media to broadcast their messages (posters, bumper stickers, billboards) as well as mass marketing techniques (campaign songs and radio spots), school presentations, community festivals, and recreational activities (football, boat racing, and swimming contests). The campaigns reached 2,100 attendees (with an average of 350 per site) and a total cost of $72,000 equivalent of about $4 per person across the target communities. As recorded in the March 2019 Aide Memoire, there was a great optimism about the impact of this process on fisher's behavioral change, although means of verification were still being collected. During the implementation completion mission in July 2019 it was noted by the District Administrator of Závora that the project site’s PRIDE campaign generated over 2,000 attendees including neighboring districts and the Governor of Závora. Because of this positive outcome, the Director sent a letter to the PIU requesting a repeat of the event in November 2020. 52. In November 2018 as part of UTEP’s requirements the CMs produced six PRIDE Campaign reports. These summarized the activities they managed to perform, reasoning for those that did not happen, and provided a list of participants and agenda for each site. Rare also developed a consolidated report on the PRIDE Campaigns for each site20. 53. The CMs conducted the Knowledge Attitudes and Practices (KAPs) study for each site, which assessed how knowledge, attitudes and behavioral changes were measured at start of the project (2015) and at project completion (2019). The Project showed that an average of over 90 percent of the fishers adopting unsustainable fishing practices became aware and abandoned these practices in the areas. However, there is still no accurate baseline or prior data available which would prove the increase of fish catch in the sites because of the project. This is what it makes it difficult to ascertain an increase. 54. The CMs presented their results to MIMAIP and at a workshop at UTEP which were summarized in the second KAP report (post-KAP). The CMs graduated in April 12, 2019 with a Master of Communication by the University of Texas El Paso and went back to continue to work for the DPMAIP. C. Efficiency Rating: Modest 19 Flagship species: Siganus Sutor locally known as Mbabe (in Fequete-Inhassoro), Epinephelus malabaricus locally known as Garoupa de mancha castanha (in Závora-Inharrime and Pomene-Massinga), Pomadasys kaakan locally known Kwekwe (in Machangulo-Matutuíne) and Lethrinus lentjan locally known as Ndjana (in Mefunvo-Quissanga) and Namuankela (in Memba Sede-Memba). 20Rare.2019. Summary Report on Key Achievements & Lessons Learned Artisanal Fisheries and Climate Change Project (“FishCC Projectâ€?) . Page 21 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) 55. There was an additional disbursement of US$ 40,510 relative to the original project amount, given exchange rate fluctuations. Additionally, Project Management component surpassed its 10 percent limit up to 20 percent of the project’s budget. The project component on social marketing although initially planned to have higher costs than the remaining components was also considered costly (amounting US$ 1.93 million). 56. Due to project delays, many economic benefits have not materialized before the project closing or the data was not collected to showcase the results in a quantitative way. Also, as per the caveats described in subsequent paragraphs, the analysis below should be considered only illustrative, given the lack of systematic information from project sites and non-project sites. The economic benefits were illustrated in (i) fishery stock recovery due to less unstainable fishing practices and protection of critical spawning areas (No-Take Zones/reserves) so the natural capital condition is better off; (ii) fishermen’s income increase through improved fish catch (bigger size and/or better price, better fishing practice); (iii) alternative livelihood created to reduce fishing effort. The following will present the comparison for each aspect. 57. Fishery stock recovery due to reduction of illegal and harmful fishing. Table 4 shows the illegal and harmful fishing practice situation comparison of the six targeted areas before and after the project. There has not been any stock assessment done to compare the fishery stock situation to show the difference. However, with the reduction/eradication of illegal/harmful fishing methods (such as use of mosquito net), implementation of closed season in critical spawning areas, it is very likely the stock is in better shape or at least does not continue deteriorating. Marine protected species such as turtles are also more protected. The most salient example is the turtle in Mefunvo. Mefunvo used to be called “graveyard of turtlesâ€?. The available reports demonstrate a very positive impact with the banning of their capture. Table 4. Illegal Fishing Activities Comparison (before vs. after project) Community Before the project After the project Pomene There were 27 fishers involved in Harpoon fishing was banned in the harpoon fishing in the coral zone. corals: a) a memorandum of understanding was signed between Pomene Lodge and the local CCP to absorb 13 of the 27 harpoon fishers to be included in tourism activities. b) Remaining 8 former harpoon fishers joined the line fishing Mefunvo • 30 quinias (predominantly used • quinias fishing was banned by women); • banned the use of mosquito nets • 6 trawls with mosquito net bags; • turtle catches were banned / • use of toxic plants (uthupa, eradicated; cactus-like plant) • 4 motor boats were introduced to • capture of bottom-tilled turtles replace illegal fishing methods (zone was considered turtle graveyard); Machangulo • fishing with quinias • quinias still persist (modus • mosquito net bag trawls operandi & survival of women Page 22 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) • prohibited gillnets (1inch) use catching prawns). Discussion • 77 speedboats (5-7 meters) between CCPs and the Government • fishing with mesh 1.5 inches on alternatives for the group of women who use quinias, but nothing has been implemented yet. • banned/eradicated mosquito nets 58. In Inhassoro • Harmful fishing practices were • The community maintains a ban on banned / eradicated prior to harmful fishing practice and the CCP project start; playing a relevant role. • community has already started • The community has decided to implementing a 3-month closed introduce 2 more months of closed season (June-August); season (Feb - March) • About 400 registered fishers (of • 4 9-meter fishing vessels under which close to 300 beach trawlers construction to help improve the and the rest using handlines and fishermen’s income harpoons); Závora • 12 gillnets with illegal mesh size • eliminated harpoon fishing; • mosquito nets on gillnets • legal gillnets were used; • 27 fishers used harpoons Memba • 55 trawl nets with mosquito net • 49 mosquito nets removed and bag; replaced by gillnets and line. • bright lure fishing with mosquito • There were no new entries of net. harmful gear/boats. 59. Catch per unit of effort (CPUE). In Pomene, the Catch Per Unit Effort for Epinephelus malabaricus fishery has increased from 50/day in 2016 to 150/day in 2019, a 200%. This is probably related to a combination of factors, including the reduction of illegal fishing methods, coupled with, in some instances, improved catchability and reduction in fishing effort. Unfortunately, there is no data to show the difference from other communities because this indicator was not systematically monitored by the implementing entities. 60. Alternative livelihoods. The alternative livelihoods targeted mostly adding value in the fishery sector, such as providing fish handling training, distributing freezers, cool boxes and processing toolkits to improve fish quality and value of the product. For some areas, the motorized boats were supported so the nearshore dominant fishing can be replaced to further fishing with better gears. Some of them (particularly those who were involved in harpoon fishing) were trained to become dive guides for the tourist industry. Due to the delays of the implementation on alternative livelihood training, tour guide opportunities were not materialized, and other alternative livelihood data was not collected to show the economic difference. 61. Fish Product Quality Improvement. Because of the high demand of fish products, the post-harvest loss has not been an issue within the targeted sites as most of other Africa countries. The issue has been the quality of fish due to bad handling and packaging. Coolbox (46), freezers (31) and processing toolkits (60) were distributed among communities, and the exact economic benefits have not been assessed yet. As the project has supported the fish handling and treatment training and the reduction of illegal/harmful fishing methods, the quality of the Page 23 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) fish has been improved, which is reflected by the better price of fish products. While this can be partially attributable to the quality increase, there is not enough evidence to distinguish quality from other price change drivers, such as overall economic inflation and fish quantity. The price difference ranges from 7 percent to over 100 percent depending on the species and areas (Table 3). It is believed the price will increase even further once the insulated boxes are used by fishers/traders to conserve fish, especially when sold outside the fishery center areas. Table 5: Price Comparison for Certain Species in the Targeted Areas (Mts/kg) Price Community Species Price Before After Change Menfuvo Average 100 169 69% Memba Average 100 150 50% Pomene Grouper and saw 120 180 50% 62. Stone and vermilion fish 70 120 71% 63. Caparau fish 50 100 100% Inhassoro Grouper and red fish 250 270 8% 64. Saw and snapper 220 250 14% 65. Rabbit fish 90-100 120 20-33% Závora Stone, Grouper, Saw, Vermilion 220-230 250 n/a Machangulo Stone and vermilion fish 250 270 8% 66. Grouper 280 300 7% 67. Saw Saw and Snapper 200 250 25% 68. Hake 180 250 39% 69. Shrimp 400 600 50% Source: CMs from each site, 2019. 70. Construction of boats. The project supported motor boats for some communities to allow the fishers to go further fishing in deeper water and using proper fishing gears. In total, 16 boats were planned to be constructed. It is estimated the total catch from each boat will be between 18,000 kg-38,400 kg/year (assuming they fish 4-5 days each trip, 12-15 days a month, with catch of 500kg-800kg per trip). If the price is 250 Mts/kg, then the total revenue from each boat will be between 4.5 million Mts and 9.6 million Mts a year, equivalent to $72,000- $153,000/year before taking into account of harvest cost (no data was collected). Therefore, 16 boats can bring between $1.1 million to $2.4 million revenue. Normally, each boat will operate with a crew of 9-10 fishermen. So these 16 boats will convert between 144-160 fishers from unstainable fishing practice to a more sustainable ones. Payment for fishers is based on production and share system. The owner will get 50 percent and the remaining will be shared among crew. Currently, fishers make about 5,400 Mts/day. Therefore, the total income brought by the project each year is $233,280 (assuming 15 fishing days/month for 300 fishermen). The Present Value for this is $1.1 million or $1.4 million for 20% and 15% discount rates, respectively. 71. It should be noted that improvement in gear will only result in lasting economic benefits if community awareness built during project implementation is sustained over time. In other words, the increased capacity could result in further resource depletion if the management measures established in each site are not enforced. 72. Credit and Savings Associations. The project helped either to revitalize or create 18 Savings Clubs. Each group Page 24 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) consists of 10-30 members (about 80 percent were women). Over a period of 12 months, training, club materials and ongoing support were provided to communities to establish the Savings Clubs. An estimated US$ 160,000 has been collectively saved, and over US$ 120,000 has been made available through loans to members of the fund. An initial baseline study has not been done and an income assessment has not yet been made, but there is clear evidence of investments made by members of these groups in the purchase of freezers for the marketing of fish, household goods and childcare financing. Therefore, the economic benefits are reflected from the income increase (price increase and sell at a higher price is presented separately) or human capital investment (childcare, which is hard to monetize at this point). 73. Social Marketing training. One key activity of the project is to train CMs who are supposed to help initiate and promote social marketing thus leading to behavior change. It is estimated that these six campaign managers have reached out to over 3,000 people across six sites by using flyers, roll-ups, t-shirts, caps, tote bags, posters and so on. They were paid at 25,000 Mts / month. After they completed their Master’s degree, there is no clear sign that they will receive more payment as this is already a high salary for the areas they live (US$ 4,800 per year versus US$ 250 per capita income for Mozambique). 74. Training and digitalization of data collection. The project has supported digitization of data collection on registration, landing and pricing as well as providing training for women on financial management. These have generated benefits in terms of working time saving, information sharing, better market knowledge, and better financial planning. However, more detailed data was not connected as to allow for assessing the economic implication of these exercises. 75. Behavior changes of the communities. Specific studies have not yet been carried out to assess the average size of fish caught in each site before and after the project. The dynamics and commitments from each community has shown a strong sign to extend the closing season (in Inhassoro) and not to fish in the identified NTZ areas, implying the impact of the project on local communities. They have recognized the needs and results and are more cooperative to work toward more sustainable fishery management. 76. Currently, the CCPs do not cover all the fishers in the communities for each site. They join on a voluntary base and it is facilitated by customary cultural and social relations. However, the new Sea Fishing Regulation under preparation will make it an obligation for the fishers to join so each CCP can manage the fisheries within their area. In that regard, the project has provided a pilot and early education and trials for the establishment later. Lessons learned from this exercise is certainly valuable for the scale-up. 77. Improved relationship between fishers and tourists. Before the project, the conflicts of use between the local fishers and tourists were common. In some cases, tourists cut fishers’ nets and fishers fished around the tourist areas intended for snorkeling/recreating fishing/scuba diving. After the project, the relationship has been significantly improved, especially in Machangulo, Závora and Pomene where the dialogue and cooperation took place mainly by access to fishing areas for the tourists and management of NTZ between tour operators and fishers through the CCPs. Unfortunately, data were not collected to show the change of tourism industry due to better protection of the areas. E. Rating the Outcome of Operations with Revised Objectives Rating : Moderately Unsatisfactory Page 25 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) 78. Given the high relevance that the project had in terms of reviewing and mainstreaming co-management in national fisheries law the project was transformational, however the PDO was not fully achieved due to several factors explained in the document. Although the development of management plans was not finalized the fishers practiced relevant protection measures in fisheries. The project supported mobilization of fisher communities through CCPs and shift perceptions on poor fishing practices through changing behaviors in abandoning or banning the use of harmful fishing practices such as mosquito nets, elimination of harpoon fishing and banning of turtle catches. This has required significant awareness, trainings and capacity building of various stakeholders and decision-makers. At project closure PDO indicator 1. Number of Fishing Community Councils legalized and functioning surpassed the revised established end targets of 6 CCPs to 7 although only five CCPs proved its functioning; Indicator 2. Direct project beneficiaries also surpassed the revised target 2,700 achieving 2,713. The direct project beneficiaries were described as individuals that benefited from training and capacity building activities, as well as alternative livelihood activities, Rotating Savings and Credit Associations and formal registration. The economic analysis also shows the difficulties in proving economic benefits as activities implemented were not finalized by project closure. The table below illustrates how the split rating was calculated given the changes to PDO-level indicators. Table 1 Performance Ratings and Data Without restructuring With restructuring Relevance of PDO Substantial Efficacy (PDO) Negligible Substantial Improve community management of Negligible Substantial selected priority fisheries Efficiency Modest 1 Outcome ratings Unsatisfactory Moderately Satisfactory 2 Numerical value of the ratings* 2 4 3 Disbursement $2.13 million $0.96 million 4 Share of disbursement 0.68 (68%) 0.32 (32%) 5 Weighted value of the outcome 1.36 1.28 rating (Row 2 * Row 4) 6 Final Outcome Rating Moderately Unsatisfactory (1.36 +1.28= 2.64 rounding it to 3) *Note: Highly Unsatisfactory (1); Unsatisfactory (2); Moderately Unsatisfactory (3); Moderately Satisfactory (4); Satisfactory (5); Highly Satisfactory (6) F. Other Outcomes and Impacts Gender 79. The Project benefitted 2,713 people, of which 52 percent are women. It exceeded the target in terms of number of beneficiaries, including the target of 22 percent of women beneficiaries. From the mid-term review an additional activity was included to the project whereby the CMs revitalized five Credit and Savings Associations (PCRs) and created 13 (for a total of 18) consisting from 10-30 members per group where about 80 percent were women. Over a period of 12 months, training, club materials and ongoing support were provided to communities Page 26 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) to establish the Savings Clubs. An estimated US$ 160,000 has been collectively saved, and over US$ 120,000 has been made available through loans to members of the fund. A ‘‘savings box’’ was distributed by Rare to each savings club and the groups saved money by collecting individual monthly contributions. With the larger fund collected credit was given by the end of the month to the members of the association and by the end of the year. During the ICR mission in July 2019 two PCRs in Závora were visited, in which most of the members were women. Communities that were visited voiced the benefits of Savings Clubs to sustain livelihoods and support alternative income-generating activities. Women who managed to save and borrow from the savings clubs were satisfied and most of them able to invest in their businesses and increase of assets and facilities key for wellbeing and livelihood improvement e.g. to buy fish for trading, upgrade fishing gear, restauration of homes, purchase equipment to improve fish quality as ice boxes and freezers, investment in small businesses as selling phone chargers, cookies, purchase of food products for sweatshops (sugar, flower, cooking oil). The Savings Clubs have also functioned as an emergency fund covering medical treatments or funeral costs for example. Additionally, all women are managing to sponsor children or grandchildren to school contributing to poverty alleviation. 80. In addition, Rare identified two local NGOs – Women Development Fund (in Portuguese Fundo do Desenvolvimento da Mulher, FDM) and Ophavela – to conduct trainings21 on financial literacy to the groups enhancing therefore mainly women’s capacity in financial management. Both are certified NGOs with extensive experience in microfinance, financial literacy and women’s empowerment. The training provided participants with the knowledge of financial concepts such as savings, income and expenses, budgeting, cash flow management, and the use of financial services. Trainings focused on including women and savings club members, and out of a total of 155 participants trained, 102 were women (65 percent), and 120 belonged to savings clubs. Technology 81. Mozambique’s government through ADNAP stressed the urgent need to strategically invest in a digital electronic registration and licensing system for managing the country’s small-scale fisheries and surfacing the true value of Mozambique’s small-scale fisheries to the global blue economy. After the mid-term review a new activity was added where Rare developed a digital registration system for small-scale fisheries including two main components: digital fisher registration (via Fast-Field Application) and digital catch recording (via OurFish application) with use of mobile apps. The fisher registration system aimed to help recognize small scale fisheries as a sector contributing to the economy. Rare and the CMs worked together to roll out both systems. 82. Rare identified, trained and equipped merchants to collect and record information (biological and financial statistics) resulting from their day-to-day commercial transactions in fish and other seafood. Rare in coordination with the CCPs and district level governments distributed android phones to fish traders of the CCPs which included OurFish app. The registration system was designed to register fishers in their communities using an offline mobile device. Once the device was connected to the internet, registration data was submitted to the cloud (OurFish) and used to generate ID cards, a plastic photo ID card that has a scannable bar code on one side. Although it was not possible to complete the distribution for all fishermen, these were printed and distributed 21FDM. 2018. Relatório de formação de membros de PCR, Pescadores e vendedores de peixe em matérias de educação financeira, em Závora Pelo MdE, 17 e 18 de Dezembro de 2018. Page 27 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) amounting to over 1,000 ID cards for all sites. 83. OurFish app was used to link catch data, collected through the app, to individual fishers. The system aimed to generate capture data with the intention of monitoring the implementation of the Community fisheries management plan, as well as for a more comprehensive assessment of fish stock trends in the project sites. About 22,000 kilos of catch were recorded. The fish traded on the first sale of 45 registered active users (fish buyers) in the six communities, gave information of the most captured species in each of the communities and respective sale prices. This was a rapid expansion and had as strong points the perception by the community that the system can help: (i) characterize fishing activity, economic and social status, impact measures of the management programs/project and other relevant information on different fisheries and stakeholder groups; (ii) support decision-making with recompiled data to improve management effectiveness and provide new capabilities for fishers, traders and other actors in the fishing value chain; and (iii) allow communities to identify the species that are captured more frequently and monitor how these catches change over time. However, the data was not integrated into MIMAIP’s system. 84. An unplanned benefit of this activity was noted during the ICR mission in July 2019, as one trader beneficiary Ms. Olalia Fernando Batista, expressed gratitude for the android phone received which facilitated communication with clients through instant messaging allowing her to sell more fish than usual, thus contributing to business management. Institutional strengthening 85. A key result of the project was the support in shifting co-management policies in Mozambique, including providing an actual (ongoing experience) to the administration at both central and national levels as to how to systematically apply a spatial management approach to community-based management of artisanal fisheries. The results of these outcomes are reflected in innovations in the legal framework as in the current draft of the REPMAR (Marine Fisheries Regulations), key for management of marine fisheries, which is expected to be approved by October 2019. This regulation is the tool that can enable scaling up and mainstreaming co- management approach in Mozambique. Many of the debates that enabled this regulatory revision were started based on the experience under FishCC. 86. At local level, strengthened institutional capacity was clearly demonstrated through the Project’s engagement with CCPs through capacity-building, training sessions and sensibilization work which helped to raise awareness on the importance of co-management and sustainable fishing practices. Regarding the trained CMs they have received an international Master’s degree thanks to the project. After project completion they returned to their original District Government jobs and will be an added value potentially helping to strengthen institutions at district level with their new skills and experiences gained through the project. Community empowerment 87. The project through the engagement and organization of the CCPs and the performed PRIDE Campaign targeted a bottom-up approach which supported a change of mindsets and involvement among the communities to abandon unsustainable fishing practices, adopt improved fishing practices and create TURF-reserves. The implementation completion mission in July 2019 observed that the formation/revitalization of CCPs and the PRIDE campaigns helped communities to (i) boost their self-esteem and commitment, (ii) feel secure in expressing their opinion, (iii) gain a sense of autonomy in the participation of conservation programs, (iv) be encouraged to denounce existence of fishing violators to inspectors and deliver illegal gear to the Local Page 28 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) Government and (v) sensitize local and neighboring community fishers sharing the same fishing area under the same management measures. Additionally, after project closure CCP meetings are still being held and savings clubs are ongoing without the supervision of the CMs. The registration of fishers through the provision of IDs (as described under technology section above) also contributed to provide a sense of belonging, empowerment and pride to fishers, especially as many did not possess a formal identification card before. Poverty Reduction and Shared Prosperity 88. Although it is very early to report significant changes in poverty reduction and shared prosperity, results from the formation of the Credit Savings Clubs were encouraging. As mentioned under the gender section, with capacity building to members of the Savings Clubs in financial management, most women can invest in sending children or grandchildren to school, thus contributing to poverty reduction. The amount of savings varied among the groups and would depend on their income status. From the implementation completion mission in July 2019 the visited Savings clubs in Závora, Ms. Celeste Luís president of the Savings Club mentioned that they were able to invest with a minimum of 100 MZN (US$ 1.65 ) and a maximum of 500 MZN (US$ 8.25 ) per person saving every two weeks up to six months and with a 5 percent interest rate. The group was able to save up to 54,800 MZN (US$ 900) between February and July. The other group mentioned that savings ranged from minimum 60 MZN (US$ 1) and maximum 300 MZN (US$ 4.95). In Inhassoro, one member of the saving clubs expressed that he managed buy a boat of a value of 550,000 MZN (around US$ 9,000) while another member managed to invest and buy land. 89. No impact study was developed for the sites. However, the KAP reports developed by the CMs reveal that over 90 percent of the fishers using unsustainable fishing practices became aware and abandoned these in the sites. While positive results are likely, the percentage figures should be cautiously interpreted, given the bias of responders. However, there is still no data available to demonstrate the increase of fish catch in the sites as a result of the project. This could be explained that there was no baseline data available prior to the implementation of the project, and since the collection of baseline data during project implementation was delayed assertion of fish catch increase was difficult to estimate during the project implementation. 90. Regarding the revenue-generating opportunities for the projects that were timely launched (Memba and Mefunvo) there is currently no impact evaluation to provide evidence that their incomes have been improved. III. KEY FACTORS THAT AFFECTED IMPLEMENTATION AND OUTCOME A. Key Factors during Preparation 91. Realistic Objectives. The project had a simple PDO which reflected appropriately the level of ambitiousness for funds available. The PDO was broadly defined which allowed other defined PDO and intermediate indicators to feed in with more relevant evidence in order to achieve improved community management or co-management of the fisheries communities. 92. Simple design. The initial project design was more adapted from Rare’s experience working in other countries and thus lacked country context from Mozambique. As stated in the project paper, it was expected that the National Fisheries Administration (ADNAP) would enter into Community Management Agreements with Page 29 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) qualifying CCPs to enact co-management of the TURF-reserves and after one year the management plans would be implemented and TURF-reserves established. It was not until the revision of the legal framework REPMAR in 2018 (to be approved) that this issue was being handled in formal regulations. Before this project no legal framework for these proposed community management agreements was in place. This also caused delays in the project implementation as it was not well anticipated at project design. 93. Selection of stakeholders to engage or beneficiary groups to target. As written in the project paper, experience from working with IDPPE on a former project (Community-Based Coastal Resource Management and Sustainable Livelihood Project (P150546)) showed that the institution demonstrated a strong ownership but limited absorption capacity which could impact project implementation. The Bank team proposed a much larger role for service providers and IDPPE would benefit from technical assistance to support project monitoring and coordination. Yet, due to the institutional restructuring and decentralization process as a result of the change in government in 2015, IDDPE was reformed into IDEPA and thus implementers were changed, leading to coordination challenges between the national and sub-national levels during implementation. The original project strategy was focusing on where the capacity lied (IDPPE) rather than working closely with ADNAP which would have been a more relevant institution due to its mandate. This created some delays on the policy/institutional side. The Bank team during MTR identified key issues and attempted to improve and accelerate implementation. 94. Adequacy of risk and mitigation measures identification. During project design financial and procurement management capacity in IDPPE was noted to be weak and posed significant fiduciary risks. During preparation, it was though that close follow-up and training would enable managing these fiduciary risks, but performance of fiduciary staff was lot until the project was transferred to another PIU after the Mid-Term Review. At the level of beneficiaries, it was noted the increasing competition over marine resources between local fishers and tourists, which could cause a central issue to this project. The selection of alternative livelihood opportunities could also have small-scale impacts on natural habitats. As the project proposed to strengthen the effective management and protection of natural resources in near-shore waters as well as potentially expand areas under protection, it was noted that changes in access could provide some prospect for negative impacts on livelihoods for some individuals, at least in the short-term. The sustainability of the project relied on the country’s interest and funding opportunities. Regarding political and governance risk it was a key factor causing serious project delays and should have been classified as High, see table below for risk categories identified at project approval. As mitigation measures, the World Bank provided close implementation support to the implementing agency. IDPPE accepted to partner with Rare, whose had experience in implementing similar approaches and would be an asset. However, since Rare was not present before in Mozambique, this also presented a risk. A strong presence in the field, as well as training and awareness-raising envisaged helping to mitigate the stakeholder risk. The gradual mainstreaming of the approach into IDPPE was intended to help lower the sustainability risk. Table 4. Risk ratings at project approval Risk Categories Rating1 1. Political and Governance S 2. Macroeconomic M 3. Sector Strategies and Policies M 4. Technical design of project or program M 5. Institutional Capacity for implementation and S Sustainability Page 30 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) 6. Fiduciary S 7. Environmental and Social M 8. Stakeholders H Overall S S: Substantial; M: Moderate; H: High. B. Key Factors during Implementation (a) Factors subject to the control government and/or implementing entities. 95. Governance and politics. As mentioned earlier, the project was approved in 2015 after the general elections took place in Mozambique, which led to institutional restructuring within MIMAIP. This caused significant delays in the project due to decentralization and reforms of institutions within MIMAIP. Additionally, the newly established IDEPA was not able to manage the change against the initial project setup, which envisaged a central administration. Once the re-organization was, to a certain extent, settled the World Bank task team and related institutions managed to continue to implement the project and its activities. 96. Selection of project sites, stakeholders to engage or beneficiary groups to target. Based on the selection of the project sites, the district and provincial authorities selected different sites extended along the coast of Mozambique. A trade-off of this approach was the need to work with four distinct provincial governments and the distance from Maputo, where the PIU was located. This impacted the project’s communication flow and transaction costs. Rare had good experience from providing social marketing trainings and building community support for adoption of more sustainable behaviors in other countries. However, Rare had limited experience in Mozambique, and the dialogue with the Ministry was not easy. The World Bank task team had frequently to facilitate the dialogue between the MIMAIP and Rare. The SWIOFish1-MZ project PIU that replaced the PIU formed within IDEPA managed to speed up the activities in the project. Other stakeholders included small-scale fisheries communities at the six sites as the beneficiaries, including women, which were properly selected to achieve the PDO. 97. Coordination and engagement. The project lacked sufficiently effective coordination to ensure clarity of respective roles of central government, provincial government and NGOs and co-ordination mechanisms between them. As mentioned in the last Aide Memoire there was consensus that institutional coordination was a major constraint for the implementation of FishCC. Project delays in the first 18 months undoubtedly affected the achievement of the project objectives which was a result of both government restructure and lack of coordination among the different institutions working in the Project. Due to the establishment of the new Ministry (MIMAIP), institutional challenges were encountered among the IDEPA, IIP, ADNAP, DPMAIPs due to changes in the responsibilities among themselves. These led to significant delays in the project. The World Bank team after MTR made significant efforts in trying to address this issue through the arrangement of several meetings (see factors subject to World Bank control). A Steering Committee was formed and held in February 2017 composed by IDEPA, ADNAP, IIP, DPMAIP, CMs as well as representatives from other artisanal fisheries projects from MIMAIP (PROPESCA, ProDirpa and SWIOFish1-MZ). It resulted in: (i) clarified roles and responsibilities of each of the relevant MIMAIP institutions for project implementation, taking into account the current attributions as per the new MIMAIP statutes; (ii) an agreement on the legalization of CMs’ e ngagement with project implementation; (iii) an agreement on the challenges being faced by the project, their causes and potential solutions; and (iv) clarified roles and duties for CMs. Page 31 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) 98. Human resources and organizational capacity. Rare was chosen to manage a project and was just recently starting to establish its work in Mozambique which led to coordination and administrative delays. In the beginning of the project, Rare had no office space and was understaffed. Rare was only officially registered in Mozambique in 2017. In addition, Rare went through four changes in presidents and vice president in a period of four years. At the Memba project site the local government replaced a CM in June 2018, due to its low performance following the implementation support mission recommendations. The new CM was selected by the local government and attended all trainings after his seletion delivered by Rare and UTEP. 99. Monitoring and Evaluation. During preparation there was a results framework but relevant data was not collected as it depended in a coordination between IDEPA, IIP, ADNAP that was not occurring effectively. Initial baseline data was to be provided after the first six months of the project. The main data for the project outcome was decided to come from the first-hand survey to be done by RARE’s partner, University of California Santa Barbara, including the underwater survey on biomass, coral cover, and sea grass bed cover. Other data would be collected by RARE in cooperation with IDPPE. However, these activities did not take place as planned or started later in the project. 100. The institutional restructuring within MIMAIP also led to the transfer of small-scale fisheries statistical data from Fisheries Research Institute (IIP) to the Department of Studies, Planning and Infra-Structures (DEPI) within MIMAIP. At the provincial and other lower levels, it was transferred from IIP provincial delegations to the Provincial Directorates for Sea, Inland Waters and Fisheries (DPMAIPs). This caused delays for Rare’s coordination with the new leads and accessing data for the sites. 101. Fiduciary. There were significant delays in the approval of Rare’s contract by the Administrative Court, due to lack of Rare bank guarantee and other administrative procedure. This prevented Rare from receiving payments. Due to delays in payments from the PIU, Rare also delayed its timeline to implement the activities. IDEPA signed the contract with Rare on November 16, 2015 for a total amount of US$1,636,250 (55 percent of the grant). After the World Bank facilitated discussions between IDEPA and the Administrative Tribunal, in June 2017 the contract was approved by the Administrative Court which enabled delayed payments amounting to over US$ 1 million to take place. 102. There was lack of accountability at the provincial level where around US$ 108,000 remained to be justified. It was also noted that project funds for operational activities were mixed with other sources of financing. In the last Aide Memoire, it was agreed that the PIU’s FM would follow-up these issues by visiting critical sites. Resources was accounted for in the end, but with significant delays and efforts by all involved 103. Procurement delays also further affected the launch of income generating activities in the respective sites. The delays were largely due to the decision to advance with decentralized procurement, which was found to increase local ownership, due to the local nature of the initiatives. By the end of 2018, only 11% of the acquisitions were disbursed and the acquisitions started to take place. By March 2019 one activity was launched (provision of cold storage material in Memba). The capacity of the procurement technicians at the provincial level was low to effectively manage timely procurement of materials to the livelihood opportunities. Part of the decentralized activities for the provinces were not being processed, mainly due to the poor communication between the PIU and DPMAIPs. Contracts were also substantially higher values than originally expected. Page 32 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) (b) Factors subject to World Bank control. Adequacy of supervision 104. Low turn-over of TTLs. The project went through one TTL turn-over as recorded in the Aide Memoires. The first World Bank task team that designed the project and implemented was not based in Mozambique and were not able to provide the day-to-day support that the specific project and context required. If more involvement would have been available from start the delays in unblocking the fiduciary challenges experienced during startup could have been avoided. When the project was handed over to the task team based in Mozambique in mid- 2017 project implementation activities were accelerated. 105. Follow- up and resolution of implementation issues. From June 2017, the project was transferred to the World Bank team based in Maputo and the follow-up and resolution of issues encountered during project implementation progressed significantly. The Task Team met several times per week with counterparts on specific subjects, and monthly meetings were organized to go systematically through the action plans of the project, key milestones and supported resolution for implementation issues. In addition, while the team noted that certain activities (generating livelihood income opportunities and development of fisheries management plans) would not be completed by project closure, the team made sure arrangements were in place for sustainability such as maintaining a post-project Grievance Redress Mechanism (GRM), transfer of activities to SWIOFish1-MZ and continuing discussions with Rare, ADNAP, IIP and FFP for sustainability purposes. Fiduciary aspects were also supervised by FM team who also supported with trainings on expense documentation. 106. Adaptation to changing conditions. During the mid-term review mission in October 2017 it was noted that actions related to the Operations Manual and results framework baselines were not achieved by the previously established due date. The MTR mission realized constraints and restructured the project in a realistic way through the revision of the results framework. 107. During MTR most of the initial designed PDO and intermediate indicators were perceived as too ambitious or unrealistic to achieve by project closure given the limited implementation period, as well as difficulties to interpret their definition (see significant changes during implementation section for further details). It was also noted that the baselines related to Catch Per Unit Effort and coral and sea grass bed coverage were still not in place. Therefore, they were dropped. The revised indicators included Indicator Three: Direct project beneficiaries (Number, Core), End target: 6,000; Intermediate indicator 1.2, CCPs developing a local management/development plan (Number, Custom). End target: 6; Intermediate Indicator 2.1. New revenue generating opportunity identified and piloted. (Number, Custom). End target: 2 and Intermediate result 3.1. Staff trained on social marketing, (Number, Custom) End target: 30. 108. The baseline definition and monitoring became under the responsibility of ADNAP and IIP. The dropped indicators whose values were in the process of being collected would still be monitored through the Project as they reflected key aspects of ecosystem health of each site. In April 2017 a Memorandum of Understanding (MoU) was signed between IDEPA and ADNAP and later in May 2017 a MoU was signed between IDEPA and IIP for collection of baseline data. The data was collected, but with some gaps, and only towards the end of FishCC implementation. IV. BANK PERFORMANCE, COMPLIANCE ISSUES, AND RISK TO DEVELOPMENT OUTCOME Page 33 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) A. Quality of Monitoring and Evaluation Rating: Modest M&E design 109. The Project paper lacked clearly-defined indicators. Others were considered too ambitious or not attributable to the Project within the period of implementation. Key baseline data was also not available with which to measure predicted changes. As the World Bank Task team changed in 2017, due to the absence of an agreed description of the indicators, the team noticed discrepancies in how stakeholders intended to measure Project outcomes. Considering these factors and given the short time remaining prior to project closure, the team agreed to redesign the results framework to better capture expected results and monitor Project performance through a restructuring. As part of the restructuring new activities regarding the registration of fishers and establishment of savings clubs were added. As a result, these activities helped to reach a larger number of beneficiaries. M&E implementation 110. There was a gap in the monitoring of activities from project approval to June 2017, however once the PIU changed to SWIOFish1-MZ the newly assigned M&E specialist in the PIU started to work on the M&E plan. The data collection system was similar as SWIOFish1-MZ project recording technical and financial data in the form of a registry. The PIU’s M&E specialist compiled the data through visits to the project sites and thereafter verified and tested its data on consistency. This data was used for the preparation of quarterly progress reports. M&E utilization 111. The project’s M&E system was poor prior to project restructuring. After restructuring it improved and was used to track progress towards the PDO, assess performance and inform project management. The project’s M&E system was also useful to support the development of the ICR including a lessons learned publication which distills good practices generated from the project to be considered and guide on lessons for improvement in future projects. Justification of overall rating of M&E quality 112. Given improvements in M&E implementation and utilization after the MTR, which was critical for the enhancement in project performance observed, the performance rating is Modest. B. Environmental, Social, and Fiduciary Compliance 113. Safeguards compliance. The project was classified as environmental category B partial assessment and triggered safeguards policies Environmental Assessment OP/BP 4.01 and Natural Habitats OP/BP 4.04. Additionally, the Government recognized that measures which reduce the access of vulnerable and marginalized groups to fisheries or other natural resources may entail adverse impacts on their existing livelihoods. For this reason, the Bank’s Operational Policy (OP/BP 4.12) on Involuntary Resettlement was also applied to the project. The instruments prepared for the project included an Environmental and Social Management Framework (ESMF), providing screening procedures for environmental and social impacts, as well as outlining proposed mitigation measures. The project developed only one infrastructure (for the building of an ice factory) for witch an adequate Page 34 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) Environmental and Social Screening was developed. Although a satisfactory Environmental and Social Good Practice Manual was prepared for this infrastructure, the project missed to build bathrooms for workers and was thus delayed in the launching of the activity. Since the project entailed restrictions in access to natural resources in legally designated parks and protected areas, a Process Framework (PF) was also prepared before project appraisal. However, during project implementation, these foreseen restrictions in access to fisheries or other natural resources could not be applied because local management agreements were not fully developed and enforced as initially planned during project preparation. The project implemented an GRM accessible to PAPs in its last year of implementation. Grievances submitted were adequately registered and processed. 114. Financial Management (FM). The project had two FM Specialists based in the country office who carried out regular implementation support missions. Quarterly Unaudited Interim Financial Reports (IFR) were submitted to the Bank for review on time and there were no inconsistencies for follow-up. In the last report the project was rated Moderately Satisfactory linked to delays in submitting expenditures at the provincial level which affected the supporting documentation needed for the financial report. The auditors expressed qualified opinion on the project financial statements for the fiscal year ended 31 December 2018 due to expenditures incurred under the project without supporting documentation. The Bank is still discussing this issue with the PIU and the issue will be solved by the end of the year. 115. Procurement. Procurement processes were implemented in accordance with the World Bank's Guidelines at the time of project appraisal22 and in accordance with the procurement plan, duly updated, reviewed and disclosed by the World Bank on a regular basis. A procurement plan has been developed and available from September 2016 up to April, 2019 indicating the type of contracts and acquisitions made. Procurement performance was Moderately Satisfactory. C. Bank Performance Rating: Moderately Satisfactory Quality at entry 116. The project was the second in Mozambique targeting co-management of artisanal fisheries and has remained strategically relevant within national priorities of fisheries economic development and building resilience towards climate change. The bottom-up approach worked on mobilizing and institutional strengthening among fisheries communities along with providing generating income opportunities, including capacity building and autonomy. The balance of components was suitable, but the results framework did not include proper definitions and measurement methodologies for each indicator. This was later refined after MTR. 22 Procurement of Goods, Works, and Non-Consulting Services under IBRD Loans and IDA Credits & Grants by World Bank Borrowersâ€? and “Selection and Employment of Consultants under IBRD Loans and IDA Credits & Grants by World Bank Borrowersâ€? (January 2011, Revised July 2014), as well as “Guidelines on Preventing and Combating Fraud and Corruption in Projects Financed by IBRD Loans and IDA Credits and Grantsâ€?, (October 15, 2006, Revised January 2011). Page 35 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) Quality of supervision 117. The World Bank performed project supervision through six implementation support missions carried out regularly at least once per year (twice in 2016). However, there was a supervision gap in 2015 due to the project delays as explained under factors under implementation section. When the project was handed over to the new task team based in Mozambique the project improved its performance and implementation as the new team managed to interact more frequently and increased its supervision level arranging meetings several times per week with counterparts. Since 2017, meetings were held at least on a monthly basis with key stakeholders e.g. MIMAIP, ADNAP, IIP and FFP to go systematically through action plans of the project and key milestones which helped to accelerate project implementation. The World Bank team was proactive and increased the level of support in technical expertise needed to supervise the Project by hiring a Senior Fisheries Expert who contributed with technical advice and shared experiences from already implemented work performed in Tanzania and Kenya. In June 2018 a two-day retreat was organized by ADNAP and facilitated by the World Bank consultant to incorporate TURF-Reserve design into national legislation. The frequent technical visits during the last year of the project allowed the World Bank to provide close technical assistance to the Project team, which contributed significantly to strengthening capacity of implementation by the government units. The GoM has recognized this assistance as useful due to the innovative nature of the activities. 118. ISRs and Aide Memoires were candid and of high-quality reporting. They systematically recorded challenges encountered, critical milestones, key decisions and next steps including timelines for implementation and information on project field visits and stakeholders met. Fiduciary aspects were regularly supervised by the FM specialist and the FM consultant based in the World Bank country office who also supported with trainings on expense documentation. The challenges that were hindering the project to move forward were captured in a timely manner such as the disbursement challenges captured in the first supervision mission which caused delays in the implementation of the project. Justification of overall rating of Bank Performance Facts collected during the elaboration of this ICR demonstrated consistent proactiveness by the World Bank task team in trying to address challenges and supporting implementation. There were no significant problems encountered in the way the World Bank team provided its support. D. Risk to Development Outcome 119. IDEPA, ADNAP, IIP, Rare and DPMAIP remain committed to the sustainability of the project with the aim of finalizing the management plans as well as the livelihood projects. Several measures have been agreed to ensure sustainability of results, including: continued financial and technical support from Rare to all sites in the long run; maintenance of the GRM until at least April 2020 by FFP; and establishing linkages between ongoing activities and other projects (World Bank financed MozBIO II and SWIOFish1-MZ; as well as the Swedish International Development Agency (SIDA)-financed Coastal Resilience to Climate Change Project). Since project closure, some remaining livelihood activities are being financed through the SWIOFish1-MZ project. In addition, Rare managed to secure funds from the Blue Action Fund (BAF) to complete interventions and ensure continuation of the activities and that achievements during the projects are sustained. For this an MoU was signed between Rare Page 36 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) and MIMAP to confirm areas of support. Thanks to the project, co-management is in the process of being mainstreamed in national policies and regulations, ensuring there is national commitment to support co- management implementation. Interviewed beneficiaries during the implementation and completion mission stated the added benefit of the project intervention and showed an inclination to continue activities after project closure. However, there are risks which may hinder the project to complete its activities, namely: 120. Change of government. As the fisheries management plans are being managed and finalized by ADNAP and as experienced in the beginning of the project, a change in government with internal restructuring or change of staff may put at risk the project’s development outcome in terms of the finalizing the fisheries management plans. 121. Ineffective governance of marine resources. Mozambique’s coastal population continues to grow. A lack of appropriate governance and management frameworks to control the use of fish resources and restrict access leads to an excessive fishing pressure. While most of the catch in Mozambique (90 percent) is done by small- scale fishers, the project aimed to some extent to sustainably manage the resource base of small-scale fisheries and reduce the pressure in selected communities. However, there is still a need to prevent illegal fishing at larger scale from vessels ‘‘mining’’ fishery resources, which requires strengthening the governance and the management of the sector to improve regulations and enforcement at the national level. 122. Climate change and increased frequency of extreme weather events may also undermine the project’s development objectives to strengthen resilience of fishery communities. If global action trends continue at the same pace and surpass 2°C pre-industrial levels limit23, most negative impacts and trends will continue to be borne and escalated targeting the most vulnerable in tropical and developing countries. The project’s efforts are key for targeting bottom-up approach and equipping communities with social resilience and co-management. However, a global ''business-as-usual’’ pathway will still continue to trigger serious physical impacts such as increased frequency of extreme weather events (e.g. Cyclone Idai and Kenneth that struck Mozambique in 2019). Coastal resources will still be affected by a number of consequences of climate change including increased ocean temperatures, changes in precipitation and coastal run-off, ocean acidification and deoxygenation combined with other stresses which may also lead to change in primary productivity, growth, distribution of fish populations, coral bleaching, resulting in changes in the potential yield of exploited marine species and the economic and social benefits that they provide to the coastal communities24. V. LESSONS LEARNED AND RECOMMENDATIONS 123. Fish CC developed an unintended positive outcome contributing to strengthen fisheries co-management in national legislation, through the potentially game changing inclusion of key co-management principles in 23UNFCCC 2019. The Paris Agreement https://unfccc.int/process-and-meetings/the-paris-agreement/the-paris-agreement 24U.R. Sumaila, T. C. Tai, V. W. Y. Lam, W. W. L. Cheung, M. Bailey, A. M. Cisneros-Montemayor, O. L. Chen, S. S. Gulati, Benefits of the Paris Agreement to ocean life, economies, and people. Sci. Adv. 5, eaau3855 (2019). Page 37 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) REPMAR and in relevant policy and governance frameworks. This was mainly due to the fact that ADNAP was more involved in the development of fisheries management plans and legalization of the CCPs. Thanks to this, the activities undertaken within FishCC reached the legislative level as key principles relating to spatial approaches to fisheries co-management included in the Marine Fisheries Regulation (REPMAR). It was supposed to be approved by end of October 2019, but the process has been delayed by Presidential Elections in October. It is now expected to be approved only in the beginning of 2020. REPMAR represents a highly relevant instrument supported and informed through the Project, as it provides the legal foundation and institutional framework for the long-term management and sustainability of co-management in Mozambique. This unintended outcome has the potential to be a key enabling condition for future co-management in the country. Given this positive experience, it is considered crucial to involve national authorities early enough in the project when it concerns any policy or legal frameworks that can be a game changer for sustainable development. 124. The project was too ambitious in regard of the expected outcomes; the selection of project sites; the capacity in place and expertise mobilized. Several key activities remain outstanding after project closure, including the development and implementation of fisheries management plans (including no-take zone or TURF- reserve boundary demarcation); operationalization of livelihood projects and implementation of further social marketing/PRIDE campaign activities. 125. The selection of the project sites seems to have been dictated by “scientificâ€? criteria, and possibly the administration’s agenda, without taking sufficiently into consideration the implementation challenges, the lack of exposure of Rare to the reality of Mozambique and the lack of pragmatism of the implementing agency. The selection of the project sites which although strategically chosen might have been too many and too dispersedly located. Selecting sites in maximum one or two provinces would have facilitated the work with provincial authorities, and could have also facilitated coordination, procurement and financial management. 126. The approach to preparation of management plans was not well planned or executed due to poor coordination from the new Ministry in place. For the six management plans to have been finalized on time and to meet an acceptable quality, a much better coordination of ADNAP’s involvement would have been needed. ADNAP’s involvement on the ground to develop the management plans was limited to only 2-3 hours of contact with community stakeholders at each site. ADNAP’s management planning team should have been involved in CCP consultation processes earlier, more frequently, more meaningfully and more systematically. Ensuring quality of the management plans was challenging throughout the development process and required several rounds of technical input and quality reviews, which delayed development and implementation. The type of content and format needed of the management plans should have been developed and agreed upon by all parties prior to the collection of information, to ensure the adequate preparation/collection of data. In addition, lessons learned from the PPACG project should have been captured in order to facilitate implementation of the project. 127. The overall training offered by Rare and UTEP was perceived challenging as time-consuming, costly and not properly adapted to the local conditions. The introduction of behavioral changes in fishing communities is challenging, requires time and follow-up with communities and relevant authorities, this was also shown to be the case in FishCC. The overall training for CMs was perceived as challenging to standardize by Rare due to CMs with different educational backgrounds, writing skills, abilities to use smart phones (for electronic registration), which were required to meet the academic standards. Moreover, budget constraints did not allow for intensive distance mentoring or site visits by mentors, to areas with low internet connectivity. These challenges led to delays in meeting deliverables. The Fish Forever model of community engagement and campaigning requires Page 38 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) that CMs dedicate significant amounts of time in the target communities to ensure that engagement remains high and challenges can be resolved quickly so that momentum is not lost. During the FishCC project, it was difficult for CMs to balance the demands that both MIMAIP and this project placed on their time. To compensate for this, Rare had to adjust timelines, workplans and budgets with partners, government, communities, and target audiences which took a lot of additional staff time and effort. Consequently, delivery of the project deliverables was delayed. The financial cost of the six Pride Campaigns may also not be sustainable for government led future replication. However, key materials used for the Pride Campaigns remained with the communities and may also be used for a series of mini campaigns. Lessons learned from this activity drawn by MIMAIP included to opt for shorter and more cost-efficient trainings and targeted towards local staff at DPMAIP in order to ensure sustainability in projects (this kind of approach is being done for SWIOFish1-MZ). This sentiment was shared by Rare who is also adjusting their training materials. 128. The government and partners did not extract lessons from the previous World Bank-managed JSDF- financed project PPACG (P150546). Many of the challenges mentioned were already faced during the JSDF- financed project and the FishCC project apparently did not build on the failures and successes of the former. The project implemented activities that were not necessarily conducive to achieve PDO - such as providing communities with motorized vessels; training communities members in diving to become instructors; de-linking self-support groups from fisheries management activities; continuing to work in silos; etc., while some past successes such as a strong integration of project in provincial and local administrations were not capitalized. 129. Risks of involving organizations with significant global expertise but which lack specific context experience should be adequately considered during Project design and implementation. Rare’s limited exposure to and limited expertise with Mozambique contributed to the slow pace of implementation. The fact that Rare had no prior experience in Mozambique and just recently started to establish its work led to coordination challenges and administrative delays during project implementation. The initial objective of the project was that the communities themselves would play a major role in the development of the management plans, which was not possible due to different procedures within the government of Mozambique. Rare tried, but did not manage to effectively promote the coordination needed between Mozambique’s regulatory agencies early in the management plan elaboration process. This resulted in delays as well as tensions throughout the process. However, the collaboration with Rare during FishCC implementation improved and it has enabled the GoM to become more open to partnerships in co-management implementation, given the increased technical and financial resources that such partnerships can leverage to the sector. 130. Improving gear to strengthen fisheries livelihoods can pose a risk to sustainable fisheries management. The investment in boats that allow fishers to shift fishing effort further offshore, including a shift away from beach seining at some sites, resulted in an increase of fishing possibilities, enhanced safety at sea, and potentially generate higher, and more sustainable, revenues for the selected fishers and their families. However, given the lack of adequate data on the health of stocks, it could also be furthering over exploitation of nearshore fish stocks. The two cases of investment in gear (boats) resulted from prioritization by communities followed by inputs by MIMAIP. Given the very high expectations generated at community-level, intense push back from the Government, and the relatively low impact due to the very limited number of gears targeted, the task team decided not to block such activities from going ahead. A negative list produced before any engagement on livelihood identification could have prevented investments in such high-risk options. Promoting various aspects of the seafood value chain is a potentially more long-term, more sustainable way to improve management, as it is currently being implemented under SWIOFish1-MZ through the Mais Peixe matching grant that focuses on Page 39 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) developing aspects of the value chain. 131. Most of the so-called ‘alternative’ income-generating for fishers targeted in fact fishing livelihoods. Generating alternative incomes was intended to help with the transition from open-access fisheries, to more controlled access, under a TURF-reserve management regime, to help compensate for a reduction in fishing effort. As such, livelihood activities were intended to provide ‘alternatives’ to restrictions in fishing, which could target any economic sector (such as tourism, aquaculture, agriculture and other sectors). At all sites, however, strengthening existing fisheries livelihoods was prioritized by both the communities and by MIMAIP. In addition, in some cases there were no other readily available alternatives, though making fishing more sustainable and/or generate higher value, could itself also incentivize compliance with co-management rules. A lesson drawn from this is that it is not always realistic, whether socially, environmentally or economically, to establish ‘alternative’ non-fishing livelihoods, especially within a very tight project timeframe. The project did attempt to pilot at least one or two examples of non-fishing income generating activities (tourism and diving instructors including general commercialization in Memba). These were the activities with less follow-up by MIMAIP due to lack of interest, despite the positive effect that these would have on overall fishing livelihood and were not achieved. In future and larger projects, it would be thus important to involve other Ministries or the private sector from the beginning of the project (e.g. agriculture, tourism, environment) in order to enhance synergies and achieve inter- sectoral collaboration for sustainable development and strengthening resilience early enough. . Page 40 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) ANNEX 1. RESULTS FRAMEWORK AND KEY OUTPUTS A. RESULTS INDICATORS A.1 PDO Indicators Objective/Outcome: to improve community management of selected priority fisheries. Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion Number of Fishing Community Number 0.00 4.00 6.00 7.00 Councils legalized and functioning 01-Apr-2015 30-Apr-2019 30-Apr-2019 30-Apr-2019 Comments (achievements against targets): The target achieved by 70%. Seven fishing community councils were legalized. The CCP Steering bodies are meeting once or twice per month as per the performance standard set. However, only two of the CCPs presented systematic evidence of registering minutes and list of attendees. Unlinked Indicators Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion Direct project beneficiaries Number 0.00 6000.00 2700.00 2713.00 Page 41 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) 01-Apr-2015 30-Apr-2019 30-Apr-2019 30-Apr-2019 Female beneficiaries Percentage 0.00 10.00 20.00 52.00 01-Apr-2015 30-Apr-2019 30-Apr-2019 30-Apr-2019 Comments (achievements against targets): The target achieved over 100%. The beneficiaries include members of the CCPs, Savings Clubs, beneficiaries that benefit from the alternative generating opportunities including their families ( mean housheold number of 5) , fishermen which benefitted from ID registration and number of people that received trainings. A.2 Intermediate Results Indicators Component: Improve community rights-based fishery management Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion Fisheries Management Plans Number 0.00 6.00 6.00 0.00 developed and submitted for approval by the relevant 01-Apr-2015 30-Apr-2019 30-Apr-2019 30-Apr-2019 authority Comments (achievements against targets): The target was not achieved by project closure. However, two Management plans are in advance draft and are to be submitted for approval by MIMAIP by September 2019. Page 42 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) Component: Improve livelihoods Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion New revenue generating Number 0.00 2.00 2.00 2.00 opportunities identified and launched 01-Apr-2015 30-Apr-2019 30-Apr-2019 30-Apr-2019 Comments (achievements against targets): This indicator achieved 100%. Two new revenue generating opportunities were identified and launched in two sites Mefunvo and Memba and targeted improvement of fisheries conservation and marketing support. Component: Social Marketing Unit of Formally Revised Actual Achieved at Indicator Name Baseline Original Target Measure Target Completion Staff trained on social Number 0.00 30.00 24.00 30.00 marketing 01-Apr-2015 30-Apr-2019 30-Apr-2019 30-Apr-2019 Comments (achievements against targets): This indicator surpassed 100%. A total of 30 Mozambican government staff members at district and provincial level trained on the principles of social marketing. 24 extensionists from the Provincial Fisheries Directorates (DP-MAIPS) allocated at the district level at the project sites received 7 days training and 6 staff at the provincial level received a Masters of Communication by the University of Texas El Paso. Page 43 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) Page 44 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) B. ORGANIZATION OF THE ASSESSMENT OF THE PDO Objective/Outcome: to improve community management of selected priority fisheries’’ as stated in the legal agreement 1. Number of Fishing Community Councils legalized Outcome Indicators and functioning 2. Direct project beneficiaries, of which female 1. Fisheries Management Plans developed and submitted for approval by the relevant authority. Intermediate Results Indicators 2. New revenue generating opportunities identified and launched 3. Staff trained on social marketing 1. Improve community rights-based fishery management - CCPs legalized and functioning - Meetings between CCPs, District and Provincial Governments - TURF management plans developed - Baseline study developed - CCPs trained on climate change, social and ecological Key Outputs by Component resilience (linked to the achievement of the Objective/Outcomes) - Improved data on coral and sea grass bed coverage in Reserve 2. Improve livelihoods - New revenue generating opportunity identified and piloted 3. Social marketing Page 45 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) - CMs and extension agents trained in PRIDE Methods and Fish Forever Methods - PRIDE Campaigns carried out at the 6 sites Page 46 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) . Page 47 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) ANNEX 2. PROJECT COST BY COMPONENT Amount at Approval Actual at Project Percentage of Approval Components (US$M) Closing (US$M) (US$M) Component 1: Improve community rights-based 0.39 0.23 57 fishery management Component 2: Improve livelihoods and household 0.59 0.47 78 income Component 3: Social 1.57 1.65 103 marketing Component 4: Project 0.78 0.74 92 management Total 3.33 3.09 93 Note: The project financing was in Euros, at the time of the project approval 1 € =1.12 US$. In April 30, the exchange rate was also 1 € =1.12 US$. The amounts at approval of EUR 2,975,000 in US$ likewise the total amounts at project closing differs from the financing table in the operations portal due to system issue in the portal. Page 48 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) ANNEX 3. RECIPIENT, CO-FINANCIER AND OTHER PARTNER/STAKEHOLDER COMMENTS The draft ICR was shared with the MIMAIP and Rare. Comments were received from both institutions and were considered in revisions to this version of the ICR. MIMAIP highlighted several updates regarding the livelihood activities, which have since been included. Rare generally agreed with the assessment reflected in the document but argued that impact of the PRIDE campaigns was higher than what is portrayed in this report. Page 49 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) ANNEX 4. SUPPORTING DOCUMENTS (IF ANY) Fisheries Research Institute (IIP).2017.Levantamento de dados sobre a produção pesqueira artesanal, espécies e ecossistemas na área do PPAMC/Fish/CC, no período 2004 -2016. Louro, C. M. M., C. Litulo, R. S. Fernandes, T. I. F. C. Pereira & M. A. M Pereira. 2017.Fisheries in the western shores of the Ponta do Ouro Partial Marine Reserve, southern Mozambique: towards a holistic approach to management. Final Technical Report. 118 pp. Maputo, Centro Terra Viva. Plano de Gestao de Pesca Artesanal Machangulo 2018-2022 (Advanced Draft) Peace Parks Foundation (PPF) (2017).Projectos ComunitaÌ?rios de Geração de Rendimentos e Conservação dos Recursos Naturais Costeiros e Marinhos no Posto Administrativo De Machangulo. Peace Parks Foundation, 61 pgs, Maputo-Outubro de 2017. Rare. 2016. Site Evaluation Mozambique Program. Rare. 2018. Estratégia de Marketing Social Para a melhoria da condição de vida das comunidades de pescadores em Mefunvo, Memba, Inhassoro, Pomene, Zavora e Machangulo. Rare.2019. Summary Report on Key Achievements & Lessons Learned Artisanal Fisheries and Climate Change Project (“FishCC Projectâ€?). SOFRECO. 2018. Estudo de identificação e preparação de alternativas de subsistência - Projectos Comunitários - no âmbito do PPAMC. United Nations Framework Convention on Climate Change (UNFCCC) 2019. The Paris Agreement https://unfccc.int/process-and-meetings/the-paris-agreement/the-paris-agreement U. R. Sumaila, T. C. Tai, V. W. Y. Lam, W. W. L. Cheung, M. Bailey, A. M. Cisneros-Montemayor, O. L. Chen, S. S. Gulati, Benefits of the Paris Agreement to ocean life, economies, and people. Sci. Adv. 5, eaau3855 (2019). World Bank. 2008. The importance of Africa’s Coastal and Marine Ecosystems World Bank. Communities Livelihoods Fisheries-Fisheries Governance and Shared Growth in Mozambique. World Bank Climate Knowledge Portal: https://climateknowledgeportal.worldbank.org/country/mozambique Page 50 of 51 The World Bank Mozambique - Artisanal Fisheries and Climate Change (P149992) International Development Research Centre. 2006.Fishery Co-Management: A practical Handbook. YouTube videos Rare, Restoring our Oceans: How TURF+Reserves Help Fishing Communities: https://youtu.be/qbBDsenO2SE Rrae, Restoring Our Oceans: How Fishers Can Turn the Tide of Overfishing: https://youtu.be/faRlUJ0jLbA Page 51 of 51