Full report LR.pdf - DLIST Benguela

FOREWORDThe Namib Coast Biodiversity Conservation and Management (NACOMA) Project iscurrently under preparation. NACOMA aims to support sustainable coastal zonemanagement by 1) supporting targeted investments for biodiversity conservation incritical ecosystems, 2) developing a coastal policy and legislative framework, and 3)building institutional and technical capacity of Regional Councils. Underpinned by theprinciple of balancing biodiversity conservation and local economic development, thesethree project components require an understanding of the legal framework, institutionalsetting and natural resources base of the coastal regions of Kunene, Erongo, Hardap andKaras. Accordingly, three studies were commissioned to inform the preparation phase ofNACOMA.EcoAfrica Environmental Consultants were contracted to conduct three studies:(1) Rapid Assessment of the Development Plans, Biodiversity Conservation Projects andSocio-Economic Situation of the Namib Coastal Regions, (2) Review of Policy andLegislation Pertaining to Coastal Zone Management, and (3) Analysis of the InstitutionalCapacity of the Namib Coast Regional Councils in Relation to the DecentralisationProcess. The research team consisted of Dr Francois Odendaal, Dr Jan Glazewski, MrJacob Oranje, Ms Raquel Garcia, and Mr Ignatius Kauvee who are the authors of thethree reports contained here-in. NACOMA is an ongoing project and comments on thefindings and recommendations presented in the reports are welcome and can be sent tothe EcoAfrica investigators (francois@ecoafrica.co.za) or the NACOMA ProjectCoordinator (tmufeti@iway.na).

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsTABLE OF CONTENTSACRONYMS.................................................................................................................................................................. III1. INTRODUCTION ................................................................................................................................................... 12. THE COASTAL SETTING.................................................................................................................................... 22.1. PHYSICAL SETTING............................................................................................................................................ 22.2. ADMINISTRATIVE AND LEGAL SETTING ............................................................................................................. 32.3. BIODIVERSITY SETTING..................................................................................................................................... 42.4. SOCIO-ECONOMIC SETTING................................................................................................................................82.5. THE FOUR COASTAL REGIONS .......................................................................................................................... 92.6. KEY ROLE PLAYERS......................................................................................................................................... 103. BIODIVERSITY CONSERVATION .................................................................................................................. 133.1. NATIONAL FRAMEWORK FOR BIODIVERSITY CONSERVATION.......................................................................... 133.1.1. National vision ...................................................................................................................................... 133.1.2. Protected Areas..................................................................................................................................... 143.1.3. Conservancies ....................................................................................................................................... 153.1.4. Marine environment .............................................................................................................................. 163.1.5. Wetlands................................................................................................................................................ 173.2. PLANS AND PROJECTS IN THE COASTAL ZONE.................................................................................................. 173.2.1. Kunene River Mouth.............................................................................................................................. 173.2.2. Skeleton Coast National Park ............................................................................................................... 173.2.3. National West Coast Recreation Area................................................................................................... 183.2.4. Walvis Bay Wetland .............................................................................................................................. 183.2.5. Swakopmund / Walvis Bay dunes .......................................................................................................... 193.2.6. Henties Bay Marine and Coastal Resources Research Centre.............................................................. 193.2.7. Erongo Region ...................................................................................................................................... 203.2.8. Namib Naukluft Park............................................................................................................................. 203.2.9. Sandwich Harbour ................................................................................................................................ 213.2.10. Sperrgebiet ............................................................................................................................................ 213.2.11. Islands and other potential Marine Protected Areas (MPA)................................................................. 223.2.12. Orange River Mouth.............................................................................................................................. 243.2.13. The Greater !Gariep Transfrontier Conservation Area (TFCA)........................................................... 243.2.14. Relevance to NACOMA of plans and projects targeting the coastal environment................................ 254. DEVELOPMENT PLANNING............................................................................................................................ 324.1. NATIONAL PLANNING FRAMEWORK ................................................................................................................ 324.2. REGIONAL DEVELOPMENT PLANNING.............................................................................................................. 324.2.1. Kunene Region ...................................................................................................................................... 324.2.2. Erongo Region ...................................................................................................................................... 334.2.3. Hardap Region ...................................................................................................................................... 334.2.4. Karas Region......................................................................................................................................... 334.2.5. The role of RDPs in biodiversity conservation...................................................................................... 344.3. OTHER DEVELOPMENT PLANS AND INITIATIVES .............................................................................................. 384.3.1. North West Tourism Plan...................................................................................................................... 384.3.2. NAMPORT Environmental Management System .................................................................................. 384.3.3. Structure Plan for Walvis Bay............................................................................................................... 384.3.4. Swakopmund four-year strategy............................................................................................................ 384.3.5. Hardap Region Tourism Development Plan ......................................................................................... 394.3.6. Community Tourism Market Research for the South of Namibia.......................................................... 394.3.7. Relevance to NACOMA of key development plans and initiatives ........................................................ 39i

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regions5. THREATS TO BIODIVERSITY AND ROOT CAUSES.................................................................................. 415.1. THREATS AND POTENTIAL INTERVENTIONS ..................................................................................................... 415.2. ANALYSIS OF ROOT CAUSES ............................................................................................................................ 475.2.1. Poor awareness and lack of knowledge of coastal and marine values.................................................. 475.2.2. Unclear and centralised responsibilities............................................................................................... 485.2.3. Uncoordinated land use planning ......................................................................................................... 485.2.4. Insufficient natural resource management and protection of some key biodiversity hotspots .............. 495.2.5. Insufficient public involvement on how the resources are used and inequitable benefit sharing.......... 496. RECOMMENDATIONS FOR NACOMA.......................................................................................................... 516.1. THE NEED FOR NACOMA .............................................................................................................................. 516.2. RECOMMENDATIONS FOR TARGETED INVESTMENTS....................................................................................... 556.2.1. Sub-component 1: Biodiversity Information.......................................................................................... 566.2.2. Sub-component 2: Targeted Investment Projects.................................................................................. 57REFERENCES ............................................................................................................................................................... 61ANNEX I: TERMS OF REFERENCE......................................................................................................................... 64ANNEX II: LIST OF KEY STAKEHOLDERS CONSULTED................................................................................. 67LIST OF TABLESTable 1 Key biodiversity areas along the coastal regions of Namibia .....................................................................6Table 2 Socio-economic indicators for the four coastal regions............................................................................... 8Table 3 Some of the nearshore islands and their biodiversity value......................................................................23Table 4 Key plans and projects targeting coastal biodiversity and their relevance to NACOMA...................... 26Table 5 RDPs and their relevance to NACOMA..................................................................................................... 35Table 6 Key development plans and initiatives in the coastal areas and relevance to NACOMA ...................... 40Table 7 Threats to biodiversity conservation in the coastal regions and potential interventions ....................... 43Table 8 Root causes to biodiversity loss and potential contribution of NACOMA Project Components .......... 53Table 9 Activities recommended for NACOMA Component 3.............................................................................. 59LIST OF FIGURESFigure 1 Coastal Regions, Protected Areas and some Conservancies along the coastline of Namibia .............. 3Figure 2 Existing and proposed protected areas along the coastal areas of Namibia ......................................... 5Figure 3 Registered communal conservancies...................................................................................................... 16Figure 4 Map of the emerging Greater !Gariep Transfrontier Conservation Area (TFCA) ........................... 25Figure 5 Mechanism for Targeted Investments Proposals .................................................................................. 57ii

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsACRONYMSBCLMEBENEFITCBDCBNRMCBOCBTDLISTDRFNEIAEMPEMSGISGTRCHDIICDICEMAICZMICZMCIDPIUCNLAMAWRDMETMFMRMLRRMMEMPAMRLGHNACOBTANACOMANALISNaLTERNAMPORTNatMIRCNBRINBSAPNDPNGOBenguela Current Large Marine EcosystemBenguela Environment Fisheries Interaction and Training ProgrammeConvention of Biological DiversityCommunity-Based Natural Resources ManagementCommunity-Based OrganisationCommunity-Based TourismDistance Learning and Information Sharing ToolDesert Research Foundation of NamibiaEnvironmental Impact AssessmentEnvironmental Management PlanEnvironmental Management SystemGeographic Information SystemGobabeb Training and Research CentreHuman Development IndexIntegrated Conservation and DevelopmentIntegrated Community-Based Ecosystem ManagementIntegrated Coastal Zone ManagementIntegrated Coastal Zone Management CommitteeIntegrated Development PlanInternational Union for the Conservation of NatureLocal AgendaMinistry of Agriculture, Water and Rural DevelopmentMinistry of Environment and TourismMinistry of Fisheries and Marine ResourcesMinistry of Lands, Resettlement and RehabilitationMinistry of Mines and EnergyMarine Protected AreaMinistry of Regional and Local Government and HousingNamibian Community Based Tourism AssociationNamib Coast Biodiversity Conservation and ManagementNamibia Land Information SystemNamibian Long-term Ecological ResearchNamibian Ports AuthorityNational Marine Information and Research CentreNational Botanical Research InstituteNational Biodiversity Strategy and Action PlanNational Development PlanNon Governmental Organisationiii

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsNTBNTDPNWRNWTIPNWTMPNWTOPNWTPORMIMCPMUPTORDPSKEPTFCAToRUNAMUNDPWPCNamibia Tourism BoardNamibia Tourism Development ProgrammeNamibia Wildlife ResortsNorth West Tourism Implementation PlanNorth West Tourism Master PlanNorth West Tourism Option PlanNorth West Tourism PlanOrange River Mouth Interim Management CommitteeProject Management UnitPermission to OccupyRegional Development PlanSucculent Karoo Ecosystem PlanTransfrontier Conservation AreaTerms of ReferenceUniversity of NamibiaUnited Nations Development ProgrammeWorld Parks Congressiv

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regions2. THE COASTAL SETTING2.1. Physical settingThe 1,572 km long coastline of Namibia is an arid area characterised by low rainfall and limitedfreshwater resources that falls within the desert biome. Four different major vegetation types occur inthese coastal areas, namely the Northern, Central and Southern Namib, and the Desert and SucculentSteppe 5 . With a high level of biological specialisation and endemism, the Namib Desert is one of theoldest in the world and is listed by the International Union for the Conservation of Nature (IUCN) as ahabitat type that may have potential for World Heritage nomination 6 . In contrast to this arid terrestrialenvironment, the Benguela Current Large Marine Ecosystem (BCLME) off the Namibian coast has oneof the highest primary production rates in the world and is one of the most important renewable naturalresources of the country. Shared with Angola and South Africa, the BCLME supports vast populationsof commercially exploitable fish species and the inshore marine environment provides migration andnursery habitats for numerous marine organisms.The coastal areas fall within a series of contiguous protected and recreational areas, namely the SkeletonCoast National Park, the National West Coast Recreation Area, the Namib-Naukluft National Park andthe recently proposed Sperrgebiet National Park, formerly a mining concession completely off-limits tothe public and accessible to only a few scientists (Figure 1). The only portion of the coast with noprotection status is the areas of Walvis Bay and Swakopmund municipalities in the Erongo Region,between Mile 14 north of Swakopmund and the Kuiseb River south of Walvis Bay. The coastline ofNamibia is, in fact, part of a continuum of protected areas that stretches from Southern Angola intoNamaqualand in South Africa. Several wetlands provide important feeding grounds to a large number ofmigratory wading and seabirds, such as the Kunene River Mouth, Cape Cross Lagoons, Mile 4Saltworks, Walvis Bay Wetlands, Sandwich Harbour, Lüderitz Lagoon and the Orange River Mouth,and important coastal seabird breeding islands include Mercury, Ichaboe and Possession Island.Most of the coastline has offered limited access to the public due to conservation and economicactivities such as tourism and mining concessions. As a result of limited access through the years, thecoastal zone of Namibia is still relatively pristine. Approximately 75% of the coastline can beconsidered pristine with limited human impact according to the project document for the IntegratedCoastal Zone Management of the Erongo Region 7 . Section 3 of the current report provides more detailson the coastal biodiversity values.5 O’Toole, M.J., 1997. Marine Environmental threats in Namibia. Research Discussion Paper, 23. Windhoek: DEAPublications Department, Ministry of Environment and Tourism, pp 1-48.6 IUCN, 2004. The World Heritage List: future priorities for a credible and complete list of natural and mixed sites. AStrategy Paper prepared by IUCN. April 2004, pp 1-19.7 Ministry of Environment and Tourism, undated b. Project document for integrated coastal zone management for theErongo region. Ministry of Environment and Energy, pp 1-65.2

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsKunene RegionErongo RegionHardap RegionKaras RegionFigure 1 Coastal Regions, Protected Areas and some Conservancies along the coastline of NamibiaSource: EcoAfrica Environmental Consultants2.2. Administrative and legal settingThis section briefly describes the administrative setting in the coastal areas and the legal framework forbiodiversity conservation. The Report on “Review of Policy and Legislation Pertaining to Coastal ZoneManagement” provides a detailed analysis of the legal and policy context for coastal management andbiodiversity conservation. Four regions in Namibia extend to the coast: Kunene, Erongo, Hardap andKaras (see Figure 1). Each region has its own regional governing body, the Regional Councils, and isguided by a Regional Development Plan (RDP) 8 . Most of these coastal areas have been set aside forconservation and economic development activities such as tourism or for mining and therefore theMinistry of Environment and Tourism (MET) and the Ministry of Mines and Energy (MME) are keyadministrative bodies on land, while the Ministry of Fisheries and Marine Resources (MFMR) is themain administrative body on the sea. There is currently lack of clarity on the jurisdictional areas andmandates of these three bodies in relation to one another.8 Please see Section 4.2.3

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsBiodiversity hotspot Biodiversity values / priority Protection status Administrative / legal bodiesLüderitz Lagoon • Visited regularly by wetland birds• No protectionMunicipality of Lüderitz• Sites in the vicinity provide suitable habitat for shorebirdsSperrgebiet • An epicentre of biodiversity in the Succulent Karoo biome• Key for protection of the Succulent Karoo because it hasenjoyed de facto selective protectionTo be proclaimed NationalPark, including 3 nautical milesinto the seaMETIslands (north andsouth of Lüderitz)Orange RiverMouth• Excellent breeding habitat for a large number of seabirds• One of the top 6 most important wetlands in Southern Africa interms of water bird usage• Breeding ground or migration stopover point• Supports 15 Red Data Book bird species• Flora demonstrates high rates of diversity and endemismNo protection; lost marinereserves status upon Namibia’sindependence; access to theislands still controlledNo protection status; Ramsarsite, but added to the MontreuxRecord in 1995; plans inprogress to become a provincialparkMFMRMET and Department ofTourism, Environment andConservation (DTEC), theOrange River Mouth InterimManagement Committee(ORMIMC) and a TechnicalCommittee on the SouthAfrican side7

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsThe Hardap Region is named after the Hardap Dam, which provides for Namibia’s largest irrigationscheme, crop production and water for human consumption. Agriculture, particularly small-stock andostrich farming, is the major economic activity in the region. Within the region, fishing is confined tofresh water. The region boasts a well-developed infrastructure base and tourism is a rising economicactivity. The Hardap Region includes two spectacular deserts, the Namib Desert in the West and theKalahari Desert in the East. The tourism route from South Africa to the rest of Namibia runs through theHardap Region, rendering it ideally situated for tourism. Its strategic location serves as a gateway to theinternationally renowned scenic scenes, such as the Namib Naukluft Park, Sossusvlei and Sesriem. Thecoastal areas comprise some of the harshest parts of the Namib Desert, namely the red dune sea thatconsists of shifting sands running straight into the sea. Having no significant rocky shore, lacking freshwater, and possessing no infrastructure, this coastal area’s greatest value lies in its wilderness. TheHardap Region’s coastal areas have brought little or no income to the region, often leading toexpressions of frustration by leaders compelled to find new livelihoods for a region where income fromagriculture lies in the hands of a small part of the population. Even the tourism industry blossomingalong the eastern edge of the Namib’s dune sea brings little benefit to the region and employs scarcely ahandful of local people 22 .The Karas Region is named after the distinctive Karas Mountains. The region is diverse in terms ofeconomic activities, consisting of mining, agriculture, fisheries and tourism, but the economy is largelyprimary sector-propelled. The dualistic agriculture sector provides for communal farming (occupyingabout 48% of total agriculture land) and commercial farming. One of the main tourist destinations in theKaras region is the Fish River Canyon, the second largest canyon in the world and tourism is thriving inthe region. The restricted diamond mining area of the Sperrgebiet has acted as a barrier between theKaras people and their coast. The Sperrgebiet contains the bulk of Namibia’s share of the SucculentKaroo, making it part of the richest desert in the world in terms of biological diversity. It also containsimportant wetlands and along the coast rock lobster fishing grounds and a string of islands that areunparalleled as breeding sites for sea birds. The fishing sector is a major employment provider, andmariculture farming activities are emerging along the Lüderitz coastline 23 . Lüderitz is an importantfishing port and one of the main centres for industrial development on the coast of Namibia. Mining,which is a major foreign exchange earner, is dominated by diamond mining (both on and off-shore) atOranjemund and Lüderitz in the Sperrgebiet. Other minerals deposits are mined inland at Rosh Pinahand Haib, close to Noordoewer.The Karas Region is experiencing the effect of the downscaling of mining in the diamond miningindustry based along the coast, an effect that will be worsening with increased downscaling over thenext decades. While the potential of mariculture is often touted as a remedy for the region’s economicwoes, fluctuating trends in the fishing industry remains an underlying concern. Lured by potential workin the fishing industry and Orange River-based agriculture, people from all over Namibia have migratedto the South only to be stranded in growing informal settlements. Although it has a comparatively highHDI (see Table 1), the general perception is that the mining and agricultural sectors have enrichedrelatively few people while poverty is rampant in the rural and communal areas.2.6. Key role playersThis section provides an overview of the key role players in the coastal areas. More detailed informationabout responsibilities for environmental management and biodiversity conservation in Namibia can be22 Regional Council of Hardap and Hardap Tourism Board, 2003. Hardap Region Tourism Development Plan 2003.Mariental, pp 1-110.23 Mariculture fishing operations, of which two are currently established in Lüderitz, are increasingly encouraged by theMinistry of Fisheries and Marine Resources to divert from traditional fishing activities.10

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regionsfound in the report “Analysis of the Institutional Capacity of the Namib Coast Regional Councils inRelation to the Decentralisation Process – Recommendations for Institutional Strengthening andCapacity Building”.The Regional Councils are the bodies responsible for development planning at the regional level. Anumber of government line ministries have responsibilities in the coastal areas. They include theMinistry of Environment and Tourism (MET), the Ministry of Fisheries and Marine Resources(MFMR), the Ministry of Mines and Energy (MME), and the Ministry of Regional and LocalGovernment and Housing (MRLGH). Even though several ministries have regional offices,responsibilities in environmental issues are still much centralised. Parastatals like the Namibia TourismBoard (NTB) and Namibia Wildlife Resorts (NWR) assist MET. The Namibian Ports Authority(NAMPORT) was established in 1994 to undertake the management and control of ports andlighthouses in Namibia and the provision of facilities and services related hereto.In the private sector, mining, fishing, shipping, and tourism industries have a strong presence along thecoast. NAMDEB, the largest diamond mining company in Namibia, is a joint venture of De Beers andthe Namibian government that controls the majority of mining activities along the coast. The fishingindustry is the most important industrial activity in Walvis Bay, where there are more than 100companies active in the sector, onshore and offshore. In the tourism sector, the Namibia TourismDevelopment Programme (NTDP) supports the diversification of Namibia’s tourism economy andincreased employment opportunities and the Namibian Community Based Tourism Association(NACOBTA) supports communities in their efforts to develop tourism enterprises in Namibia.Training and research institutions include the University of Namibia (UNAM), the Polytechnic ofNamibia, the Gobabeb Training and Research Centre (GTRC), previously known as the DesertEcological Research Unit, and the Desert Research Foundation of Namibia (DRFN). Attempts atecosystem monitoring include the Namibian Long-term Ecological Research (NaLTER) programme,while the National Botanical Research Institute (NBRI) and the National Museum of Namibia have alsobeen involved in inventory of species in the country . 24 A number of Non Governmental Organisations(NGOs) and Community Based Organisations (CBOs) play an important role in facilitatingcommunity-based natural resources management (CBNRM) around the country but thus far there hasbeen little activity from that quarter focused on the coastal areas.The Namib and the Benguela Current Large Marine Ecosystem (BCLME) are shared by three nationsand international cooperation can thus not be overlooked. The BCLME Programme and the emergingTransfrontier Conservation Area (TFCA) provide frameworks for possible collaboration. Specific sitesof importance in the international context are the Orange and Kunene River Mouths, the Greater !GariepTFCA in the south that includes the coastal areas and runs inland, along the border with South Africaand the Skeleton Coast/Iona Transfrontier Park in the north, straddling the border with Angola.While the full range of stakeholders normally present in coastal areas anywhere else in the world alsoexists in Namibia, a closer and to the point examination of the stakeholders is necessary in terms of howdecision making power pertaining to the use of coastal areas is distributed amongst them. After all,coastal management and integrated development planning to a large extent are political processes thatinvolve a number of key actors and interest groups in addition to government 25 . These different coastalstakeholders and groups have different perspectives on coastal management integrated developmentplanning. Moreover, as is the case with virtually all other countries in Africa, Namibia has a strongcolonial legacy that persists to this day. To deny this will simply be unreasonable and will help nothing24 Ministry of Environment and Tourism, 2002a. National Report to the Conference of the Parties on theImplementation of the Convention on Biological Diversity in Namibia. April 2002.25 Beatley, T., D. Brower and A. Schwab. 1994. An Introduction to Coastal Zone Management. Washington, D.C:Island Press.11

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regionsand no one, least of all the case for conservation. Decision making powers in terms of natural resourceuse have resided in the hands of few, and it is not surprising that access to resources, including land hasfavoured a small sector of society. With respect to conservation little or no consultation took place withthe broader population.While Independence brought a redistribution of political power, much of the inequality and skewedaccess continues to persist, in varying degrees and for various reasons. Even when there is amplepolitical will and eagerness on behalf of all parties to hasten reform and transformation, it remains adaunting task to normalise society after decades of colonialism and inequity. Much has beenaccomplished in terms of redistributing fishing quotas although the process is by no means over. Lesshas been done in terms of mining rights – while the big mines operate much like they have done in pre-Independence times, small-mining has expanded greatly although with much less benefit to thehistorically disadvantaged than had been hoped previously.Frustrated by the slow pace of transformation in terms of natural resource use, the writers of this reportoften heard statements and were asked questions such as:“The big miners have always been allowed to mine in the Sperrgebiet and they left a proper mess, sowhy can we not be allowed in to get our share, even now that the big stones have already been taken?”In relation to the Sperrgebiet:“Now that mining is downscaling and security concerns are becoming less, why can we not open up theSperrgebiet for other uses such as grazing?”“We have not even seen our coast so how do we know we cannot use it for things other thanconservation that does not benefit anyone in our region anyway?”“Water is a problem in our region so we should develop Orange River agriculture like they did in SouthAfrica, and use all the arable land along the river.”“The sea does not want the water (of the Orange River flowing to the Ramsar Site), so why do we notuse it here where we have it for irrigation?”In relation to Cape Cross:“We should kill the seals for their skins and make bone meal for animal feed”In relation to the Namib Naukluft Park:“Our people do not benefit from tourism anyway so why can we not go and explore the coast for otheroptions?”“Why are the same people getting concessions to enter protected areas while we once again have tostand at the end of the line?”In relation to the Skeleton Coast Park:“This park should be re-zoned, we were never consulted and our people cannot get to the coast.”“Our coast is of no use to anyone, we should develop it by building a harbour at Cape Fria”“These are old borders from Apartheid times, why do we not scrap them and incorporate the coast intoour region so we can use it to relieve the poverty of our people?”While the imperative to redistribute resources and undo certain old patterns of resource use in this newpost-colonial era, and the emotions associated with this imperative are easy to understand, the dangerexists that ad hoc decisions made outside a comprehensive and well consulted policy framework can doirreparable damage to Namibia’s natural resources in ways that can parallel the excesses of the past.Rather than favour one over the other, all coastal stakeholders should realize that conservation and12

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regionsdevelopment must be reconciled to get the most of Namibia’s coastal areas. Globally there is a strongshift occurring toward conservation for the benefit of people, and this was amply illustrated at the mostrecent World Park Congress (WPC) held in 2003 in Durban with the suitable theme of “BenefitsBeyond Boundaries”. Namibia already has made progress in this regard on which more can be built.The political power balance has been corrected; what is now necessary is for careful planning andpervasive institutional and capacity building to take place to ensure that the best options will be arrivedat for the coastal areas so that all Namibians can benefit from them into perpetuity.Conclusions1. The Namibian coastal areas are rich in terms of biodiversity. While considerable advances havebeen made over the years in terms of its conservation, many critical gaps still exist particularlyoutside national parks. However, even inside national parks destructive activities such as miningcontinue.2. The major economic activities along the Namibian coastal areas are mining, fishing and tourism.Access and use of the rich natural resources in the coastal areas of Namibia have for historicalreasons not been equitable. While restricted access has in many cases ensured the conservation ofthe coastal areas’ biological diversity, the benefits from conservation and also economic activitiesalong the coast have reached a small section of society only. The “opening up” of coastal areaspreviously off-limits due to diamond mining security and increased industrial activity in other areasmeans that development and conservation must be reconciled rapidly.3. The Namib coastal areas form part of an unfolding “Big Picture” that is unparalleled anywhereelse in the world in terms of protecting arid coast biodiversity. This “Big Picture” can howeverbecome reality only when local and regional governance will be harmonised with conservationplans through an Integrated Conservation and Development (ICD) approach that will be reflectedin participative planning and increased livelihood creation that is linked to biodiversityconservation.3. BIODIVERSITY CONSERVATION3.1. National framework for biodiversity conservation3.1.1. National vision‘Biodiversity and Development in Namibia’ or Namibia’s Biodiversity Strategy and Action Plan(NBSAP) 26 , is Namibia’s ten-year strategic plan of action for biodiversity conservation. An intersectoralplan coordinated by MET, it provides guidance for the implementation of article 95:l of theNamibian Constitution and the Convention on Biological Diversity (CBD). Preparation of the strategyinvolved a cross-section of stakeholders and drew on technical input from the National BiodiversityTask Force, coordinated by MET. The plan reflects the views of MET, MFMR and other stakeholders,the Regional Councils having been involved through the ICZMC 27 . However, Namibia’s National26 Ministry of Environment and Tourism, undated a. Biodiversity and development: an overview of Namibia’s ten-yearstrategic plan of action for sustainable development through biodiversity conservation 2001-2010, pp 1-137.27 Shikongo, S. 2004. Personal communication, Windhoek, 16 October 2004.13

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsReport to the Fifth Conference of Parties on Implementation of CBD 28 remarked that despiteconsultation of Government ministries, NGOs, parastatals, unions, private sector companies, grassrootsorganisations and interested persons, the dialogue for the NBSAP centred in Windhoek and the largestcontribution was from technical specialists. Nevertheless, the NBSAP outlines the country’s priorities interms of biodiversity conservation and therefore NACOMA should build on it and support activities thatconverge with NACOMA’s objectives.The Biodiversity Task Force has reached the end of its mandate, but a follow up programme is plannedthat will merge the two programmes that created the Task Force, namely the Biodiversity Programmeand the Desertification Programme. This new programme will focus on the use of natural resources andbio-trade and desert research and planning 29 . However, with the merging of the two programmes thefunding available for implementation of the NBSAP has been significantly reduced and the preparationof a shorter programme including NBSAP’s highest priorities will start in November 2004 30 .One constraint to biodiversity conservation and coastal management is the lack of baseline data on thediversity and ecology of most Namibian flora and fauna, with important consequences on theconservation status of most groups of species. Only a small number (possibly as little as 20%) ofNamibia’s wildlife species have been described to date. Of the 13,637 species that have been described,almost 19% are endemic or unique to Namibia. This high prevalence of endemic species is mostpronounced in the Namib Desert and pro-Namib transition zone 31 , which highlights the need forscientific research in the coastal zone. The creation of the Sperrgebiet Protected Area, formerlyinaccessible to scientists, opens the way for scientific research about the Succulent Karoo ecosystem.3.1.2. Protected AreasThe protected areas in Namibia are illustrated in Figures 1 and 2. MET has drawn management plans formost of the coastal protected areas, yet stakeholder involvement in the process was poor 32 . The processtowards proclamation of the Sperrgebiet as a protected area has been more participatory and the LandUse Plan that has recently been prepared is considered to reflect the views of multiple stakeholders 33 .MET’s goal is to have management plans that include zoning of the area and tourism development plansin place for all protected areas, such as the plans that have been prepared for the Namib Naukluft Park 34 .The UNDP Protected Areas Project concentrates on development plans for the parks and strengtheningcapacity of ministry staff to manage the parks. It is based on the recognition that the financial gainsfrom the parks need to be increased, as well as the benefits accrued to neighbours and Namibia as awhole.All developments in protected areas are required to prepare an Environmental Impact Assessment(EIA). MET has a “Policy for prospecting and mining in protected areas and national monuments” 35 , but28 Barnard, P. and T. Shikongo, 2000. Namibia’s National Report to the Fifth Conference of Parties on Implementationof the Convention on Biological Diversity. Namibian National Biodiversity Programme, Directorate of EnvironmentalAffairs, Ministry of Environment and Tourism.29 Barnes, J., 2004. Personal communication, Windhoek, 18 August 2004.30 Shikongo, S., 2004. Personal communication, Windhoek, 16 October 2004.31 Government of the Republic of Namibia, 2004. Namibia Vision 2030. Policy framework for long-term nationaldevelopment: main report, pp l-248.32 The poor level of public consultation has been frequently referred to in several conversations, including with Barnard,P., 2004. Personal communication, Cape Town, 8 September 2004; and at the NACOMA preparation workshop held inSwakopmund.33 Beytell, B. 2004. Personal communication, Windhoek, 13 October 2004.34 Beytell, B. 2004. Personal communication, Windhoek, 13 October 2004.35 Ministry of Environment and Tourism, 1999a. Policy for prospecting and mining in protected areas and nationalmonuments. Policy Document. Ministry of Environment and Tourism, pp 1-10.14

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regionsadequate legal provisions for mining activities are lacking and are expected to be included in theforthcoming Environmental Management Act 36 . There is also a suggestion to compel mining companiesto deposit a percentage of total investment to be used in conservation and rehabilitation of mined areas.MET has written a Parks and Neighbours Policy and the evolving concession framework makesprovisions for the communities living inside and adjacent to protected areas. MET is currentlyresponsible for the allocation of concessions in protected areas and communal land. The initial tourismconcessions were allocated on the basis of applications that were submitted to the government beforeand/or in the first year of Independence. These concessions were automatically renewable and are stillin the hands of the first concessionaries. In this context and also because the Tourism Policy does notaddress the issue of concessions and there is no formal tendering process or adequate policy guidelinesfor tourism as well as hunting concessions, MET decided to change the tourism concessions policy 37and the new “Policy Framework for Concessions in Proclaimed Protected Areas” 38 has been preparedand is ready for Cabinet approval.3.1.3. ConservanciesIncreasing emphasis has been placed in Namibia on biodiversity conservation through sustainable useoutside the protected areas. There are currently 31 conservancies in the country and 41 are expected bythe end of 2004. The creation of conservancies is consistent with a philosophy of integratingconservation with the basic development needs of local people, which also underpins the NACOMAproject. The map on Figure 3 with the location of the conservancies and shows the extent of theconservancies adjacent to the narrow strips of the Skeleton Coast Park and National West Coast TouristRecreation Area. The conservancies adjacent to the Skeleton Coast Park are considered by MET as keyto biodiversity conservation in the region while at the same time providing the link between thecommunities and the park 39 .A key part of the government’s environmental and biodiversity strategy in rural Namibia is the MET-ledNational Community-Based Natural Resources Management (CBNRM) Programme, which offers thepotential of extending biodiversity conservation and management beyond Namibia’s protected areasnetwork, while providing at the same time for wildlife corridors between protected areas. The‘Integrated Community-Based Ecosystem Management’ Project (ICEMA) 40 , currently at launchingstage, aims to ensure that community-based integrated ecosystem management practices are supportedby the National CBNRM framework and used by targeted conservancies.In the old system, the Ministry of Lands Resettlement and Rehabilitation (MLRR) was responsible forgranting Permissions to Occupy (PTOs) in areas outside of protected areas, either to conservancies orindividuals outside conservancy areas. According to the new system, the Regional Land Boards are36 Beytell B. 2004. Personal communication, Windhoek, 13 October 2004.37 Boonzaaier, W. and K. /Awarab, 2003. Policy Framework Options for Tourism Concessioning in Namibia. A recordof Documentary Reviews and Stakeholder Consultations and Possible Policy Options. Ministry of Environment andTourism. February 2003, pp 1-43.38 Ministry of Environment and Tourism, 2004b. Policy Framework for Concessions in Proclaimed Protected Areas. 7December 2004.39 Beytell B. 2004. Personal communication, Windhoek, 13 October 2004.40 GEF/WB, 2004. Namibia Integrated Community-Based Ecosystem Management (ICEMA) – Project Document. May2004.15

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regionsresponsible for the zoning of areas within their region for national and community development and forsetting limits on the amount of land that can be made available for leasehold 41 .Figure 3 Registered communal conservancies(Source: MET)3.1.4. Marine environmentFor the preparation of the NBSAP’s Action Plan for sustainable coastal and marine ecosystemmanagement, MET staff was seconded to work in MFMR. This action plan addresses inter alia thedevelopment and enforcement of appropriate regulations for protection of MPAs and the establishmentof new MPAs around the Namibian islands.The Benguela Environment Fisheries Interaction and Training (BENEFIT) and the BCLMEProgrammes’ focus is on the large marine ecosystem and resources that are shared between Angola,41 Boonzaaier, W. and K. /Awarab, 2003. Policy Framework Options for Tourism Concessioning in Namibia. A recordof Documentary Reviews and Stakeholder Consultations and Possible Policy Options. Ministry of Environment andTourism. February 2003, pp 1-43.16

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsNamibia and South Africa. BENEFIT is a research programme that aims to promote joint research bythe three countries, while BCLME supports the ecosystem’s joint management.3.1.5. WetlandsVirtually all wetlands in Namibia are under protected 42 and the majority are not incorporated in thecountry’s protected areas network. The coastal wetlands of Walvis Bay and Orange River Mouth, whichhave been declared Ramsar sites, have currently no legal protection status. The declaration of theKunene River Mouth as a Ramsar Site has been investigated but never fully pursued. MET has recentlydrafted “Namibia´s Wetlands Policy” 43 , which has been sent to relevant line ministries for comments.The development of the wetlands policy was one of the activities envisaged in the NBSAP’s ActionPlan for Sustainable Wetland Management.3.2. Plans and projects in the coastal zonePlanning for coastal zone management and biodiversity conservation at the regional and local level hasincluded plans for protected areas, coastal zone management projects and plans for areas with noprotection status yet regarded as key for biodiversity conservation. A number of these plans as well asprojects targeting the coastal area, or the lack thereof, are highlighted in this section. Table 4 at the endof this section summarises the key plans and projects and their relevance to NACOMA.3.2.1. Kunene River MouthThe Kunene River Mouth falls within the proposed Skeleton Coast/Iona Transfrontier Park. The lowerreaches of the Kunene River contain an assemblage of flora, fauna and landscapes generally regarded ashaving high wilderness and conservation values. In the past the declaration of the Kunene River Mouthas a Ramsar Site has been investigated but never fully pursued. Angola is increasingly prepared tocontribute to the protection of this important wetland – it has adopted its National Policy on WetlandManagement and is moving towards becoming a signatory to the Ramsar Convention. The BCLMEProgramme, together with parties from the three BCLME countries, is undertaking collection of data onthe region’s biodiversity 44 .3.2.2. Skeleton Coast National ParkIn the northernmost coastal region of Namibia, the Skeleton Coast National Park extends from the UgabRiver in the south to the Kunene River on the Angolan border. The preparation of a new managementplan for the park is being planned 45 . The Skeleton Coast has been subjected to great controversy aboutits uses. The northern part of the park is leased on a long-term basis to a single tourism license holder.This concession is expiring in December and MET is working on changes to the agreement. A numberof post 1980 mines operated in the park with no environmental safeguards. Ten years after the closureof the Skeleton Coast Mines, the scars remain and new diamond mining activities have been allowed 46 .Mining, off-road driving, recreational angling, private tourism, littering and the excavation of trencheshave left their marks on the environment. A major issue frequently brought up by the Kunene RegionalCouncil is that the park forms a barrier between the people of the Kunene region and the coast, and that42 Barnard, P. (ed). 1998. Biological diversity in Namibia: a country study. Windhoek: Namibian National BiodiversityTask Force, pp 1-332.43 Ministry of Environment and Tourism, 2004a. Namibia’s Draft Wetlands Policy. April 200444 O’Toole, M., 2004. Personal communication, Windhoek, 7 October 2004.45 Beytell B, 2004. Personal communication, Windhoek, 13 October 2004.46 Molloy, F (ed) and T. Reinikainen (ed). 2003. Namibia’s Marine Environment. Windhoek: DEA EnvironmentInformation Systems Unit; Ministry of Environment and Tourism, Namibia, pp l-162.17

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regionsit is a relic of Apartheid times when the South African administration divided the country up intoBantustan entities and protected areas at will, and certainly without the input of the local population.Notwithstanding these issues and threats, progress has been made when a memorandum ofunderstanding was recently signed by the Governments of Namibia and Angola to create a transfrontierarea with the Iona National Park in Angola. Unfortunately there appear to have been little consultationwith the public or lower tiers of government before this memorandum was signed. With the event ofpeace, a survey on the Iona National Park 47 has been conducted by Angolan and Namibian officials inorder to get a better understanding of the condition of the park’s wildlife. The survey has producedimportant results in terms of wildlife, livestock and population distribution that are significant and cansupport management initiatives in this new transfrontier park that hitherto exists only on paper.The area that links the Skeleton Coast to the Etosha National Park is today covered by a mosaic ofcommunal conservancies where a number of initiatives have been implemented to allow ruralcommunities to generate income through biodiversity management and rural development. Theconservancies adjacent to the Skeleton Coast are considered by MET as very important in terms ofbiodiversity conservation 48 . They can provide a link between the communities and the park and act as abuffer zone.3.2.3. National West Coast Recreation AreaWith a lower conservation status than national parks, the National West Coast Recreation Area issubject to intensive recreation pressure especially during summer holidays. The National West CoastRecreation Area Plan dates from 1986 49 but a new management plan is going to be prepared for thearea. This area will be proclaimed as a national park due to its importance in terms of biodiversityconservation 50 . The Cape Cross Reserve in the National West Coast Recreation Area, which containsthe fur seal colony and lichen fields, is managed by the Cape Cross Nature Reserve Plan 51 .3.2.4. Walvis Bay WetlandThe Walvis Bay coastal wetland supports the greatest number of wetland birds in southern Africa andhas been declared Ramsar site. It is also the main feeding grounds south of West Africa for a number ofprotected migrants and resident bird species, including the greater and lesser flamingo. The dune areassouth and east of the lagoon, including the ephemeral Kuiseb Delta, hold significant ecological andcultural values and make up an important part of the area used by the Topnaar community. The WalvisBay Nature Reserve, comprising Walvis Bay Lagoon and the dune areas east of Walvis Bay, the KuisebDelta and the Kuiseb River, lost its protected status at reintegration in 1994.The Walvis Bay Lagoon falls within the jurisdictions of the Walvis Bay Municipality, NAMPORT andthe MLRR and therefore responsibilities for management are not entirely clear. Preparations started in1998 for the Walvis Bay Environmental Management Plan 52 as an extension of the Structural Plan forWalvis Bay. In the period between 2001 and 2004, the Walvis Bay Local Agenda 21 Project wasimplemented with funding from the Danish Government. This project aimed to promote sustainable47 Kolberg, H. and W. Kilian, 2003. Report on an Aerial Survey of Iona National Park, Angola, 6 to 14 June 2003.Technical Reports of Scientific Services, Directorate Scientific Services, Ministry of Environment and Tourism.Windhoek, Namibia, December 2003.48 Beytell B. 2004. Personal communication, Windhoek, 13 October 2004.49 Brady, R., 2004. Personal communication, Swakopmund, 16 August 2004.50 Beytell B. 2004. Personal communication, Windhoek, 13 October 2004.51 Brady, R., 2004. Personal communication, Swakopmund, 16 August 2004.52 Burger, L., 1998. Walvis Bay Lagoon integrated environmental management plan. Cape Town: EnvironmentalEvaluation Unit, pp 1-53.18

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regionsmanagement of the Walvis Bay area in accordance with the Local Agenda 21 principles, by addressingexisting problems and obstacles. Some of the key outputs of this project were a Municipal Policy, anenvironmental strategy and action plan for the coastal area, the establishment of a fund to supportcommunity projects, and the implementation of a number of micro projects to raise awareness andpromote local involvement in management of Walvis Bay’s natural resources. There has been a requestto extend the project until December 2004 to inform other municipalities about the project through aseries of four workshops in the north, central and south areas. The Project Steering Committee willremain after the end of the project to manage the environmental strategy and action plan 53 .With a basis on the draft Parks and Wildlife Bill and the resources provided by the Local Agenda 21project, a renewed effort is being made to investigate the possibility of proclaiming the Walvis BayNature Reserve, currently unregulated in respect of entry and activities that may be carried out in thearea. A workshop has been held in July 2004 to facilitate a common understanding among key roleplayers of the purpose of the nature reserve and to discuss the Walvis Bay Nature Reserve DraftManagement Plan 54 . In its draft form, the management plan aims to promote a multiple-use principle inlight of the varied interests and the multitude of stakeholders in and around the area. It includes adescription of the management approach and goals, together with a framework for decision making andmechanisms for involving stakeholders as well as ensuring socio-economic sustainability of themanagement measures. The management plan is based on a functional zonation according to differentregimes for protection, use and management: Pelican Point, inner lagoon, outer lagoon, Walvis BayHarbour, Paaltjies Coast, Salt works, Kuiseb River and Kuiseb Delta, and desert and dune areas aroundKuiseb River.3.2.5. Swakopmund / Walvis Bay dunesThe dune area between Swakopmund and Walvis Bay represents the only coastal dunes in Namibia thatare easily accessible to the public. In face of the increased use of this area and the lack of protectionstatus, the Management and Monitoring Plan for the Dune Belt between Swakopmund and WalvisBay 55 has been developed through a consultative process to define how the area can be managed mosteffectively. The plan recommends that an EIA be conducted to assess the environmental sensitivity ofthe area and that, in the absence of any other legislation governing the use of the area, the Walvis BayMunicipality be required to pass municipal regulations to govern the use of the area. Its designation asrestricted area is suggested, as well as its demarcation into different zones, control of access to and useof the area and the delegation of certain powers of enforcement to tour operators. The establishment ofan environmental fund is proposed into which all revenue generated from permit fees is paid and can beused to facilitate better regulation and monitoring of the area. The long term perspective is that this areashould be declared as a protected area.3.2.6. Henties Bay Marine and Coastal Resources Research CentreThe Henties Bay Marine and Coastal Resources Research Centre is a multidisciplinary research projectof the University of Namibia with the main aim of promoting sustainable and responsible utilisation ofNamibia's coastal resources for the benefit of all Namibians. The Centre is already involved insuccessful projects such as growing mushrooms and developing bio-gas pilot projects, as well as inresearch into mariculture. The Centre can play an important role in developing community projects, for53 Ushona, D., 2004. Personal communication, Walvis Bay, 16 August 2004.54 Clayton, M. (ed.), 2004. Walvis Bay Nature Reserve Training Wokrshop - Report. Welwitchia Conference Centre,Walvis Bay, 28 – 30 July 2004. Walvis Bay Local Agenda 21.55 Clayton, M and Avafia, T., 2002. Management and Monitoring Plan for the dune belt between Swakopmund andWalvis Bay: Annexure A. Unpublished document, pp 1-63.19

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regionsexample in fisheries upon which the community is highly dependent or in tourism as an alternative andgrowing activity, yet lacking funding.3.2.7. Erongo RegionThe DANCED-funded project entitled Integrated Coastal Zone Management of the Erongo Regionwas implemented during five years with the aim to maintain the long-term sustainable economic andecological potential of the coastal zone in the Erongo Region, by establishing a management system forsustainable development of the coastal zone 56 . One of the outputs of the project was the Coastal Profileof the Erongo Region 57 , which established environmental and socio-economic baseline informationabout the coastal areas of the region to support management decisions in the municipalities, the lineministries and Erongo Regional Council. The results of the project were extended into the other coastalregions by starting to train staff and policy-makers in ICZM issues and by providing partial support tothe Integrated Coastal Zone Management Committee (ICZMC) 58 .In the tourism town of Swakopmund conservation responsibilities lie with MET, which has a regionaloffice in town, while the Municipality’s Department of Environmental Health focuses on servicerendering, environmental impacts and public health. An Environmental Conservation Committee hasbeen created in the Municipality, with representatives from MFMR, MET and some local tour operators,to discuss potential environmental impacts from projects and advise the Management Committee 59 .3.2.8. Namib Naukluft ParkIn 1980 a policy regarding the objectives, zonation and utilisation of the Namib Naukluft Mountaincomplex and adjoining gravel plains, including Sesriem and Sossusvlei, was approved. TheManagement Plan evolved into a Conservation Strategy and a Development Guide for the NamibNaukluft Park in 1999. The strengths, weaknesses, opportunities and threats in the park are assessed inthe Management and Tourism Development Plan for the Namib Naukluft Park 60 . The goal and visionof the plan is ‘to create a world class Desert Tourism Experience which is ecologically and financiallysustainable, and which contributes to Namibia’s economic development’. Zonation of the area issuggested according to existing limiting factors, sensitivity and potential for different uses and closecooperation with local and regional authorities, communities and other groups is encouraged to ensurepositive impacts on the Topnaar community living within the Park, freehold farmers in or on the bordersof the park, as well as the adjacent urban centres.The Meob Conception Area used to fall into a security area for diamond mining where public accesswas prohibited. After a period of fifty years of intermittent diamond mining activities in the area, recentprospecting has shown that the diamond resources are depleted. Following de-proclamation, the MeobConception Area Land Use Plan 61 was prepared to provide guidance for future land use development,compatible with the overall goals of the Namib Naukluft Park. The goals and management objectives56 Ministry of Environment and Tourism, 1997. Integrated coastal zone management of the Erongo Region Namibia.Inception Report. Ramboll: Ministry of Environment and Energy, pp 1-43.57 Regional Council of Erongo, 1999. Coastal Profile of the Erongo Region. Integrated coastal zone project. August1999, pp 1-214.58 McGann, J., F. Odendaal and L. Nakanuku, 2001. Report on the integrated coastal zone workshop held inSwakopmund, Namibia May 10-11, 2001, pp 1-59.59 Lawrence, C., 2004. Personal communication. Swakopmund, 16 August 2004.60 Ministry of Environment and Tourism, 2003a. Namib-Naukluft Park: Management and tourism development plan.(Draft 3/04). Windhoek: Ministry of Environment and Tourism, pp 1-36.61 Ministry of Environment and Tourism, Ministry of Lands, Resettlement and Rehabilitation, Ministry of Mines andEnergy, 2001. The MEOB – conception area land use plan. Report No W309/2. Walmsley Environmental Consultants,pp 1-44.20

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regionsset out in the Namib Naukluft Park Development Guide were used as a basis for the Meob ConceptionArea land use management plan. According to the plan, this area should continue to be regarded as anintegral part of the Namib Naukluft Park and the most suitable land use options are tourism,conservation and research, for which the area would have to be zoned as IUCN Category 5 ProtectedLandscapes and Seascapes. Due to its remote location and lack of infrastructure, the Meob ConceptionArea remains relatively untouched and boasts attractions such as marine and bird life, andarchaeological and historical sites 62 . Falling in the “coastal foggy zone” characterised by wind, fog andtemperature extremes, the hyper-arid Meob Conception Area has little vegetation. Hardy succulents canbe found in sheltered sports, as well as some hummock vegetation that has developed that providesimportant habitat for gemsbok, brown hyena and jackal, as well as for rare and endangered species suchas the Namaqua dwarf adder and the desert rain frog. Lichens thrive in the cool misty conditions of thecoastal zone.3.2.9. Sandwich HarbourWithin the Namib Naukluft Park, the Sandwich Harbour covers almost 25 square kilometres of crucialwetlands, comprising saltmarsh, intertidal flats, and vast mudflats. It supports eight Namibian Red Databird species including the Damara Tern, a species breeding mostly in Namibia, with about 90% of theworld’s population occurring along the coast 63 . There are high densities of waterbirds, includingflamingos, pelicans and very high numbers of waders, which can number almost 200,000 and reachdensities of 7000 birds per square kilometre 64 . While it was at one time the only national protectedmarine area in Namibia, this formal protection is no longer in place. Although reduced, some protectionfrom fishing remains, but has been shown to be difficult to effectively police. Despite being a Ramsarsite, there is jurisdictional dispute between the MFMR and MET as well as conflicting sectorallegislation and this has resulted in the status of this reserve being questionable 65 . Sandwich Harbour isnevertheless a specially protected area in the Namib Naukluft Park that is rarely visited by tourists andstill closed to anglers at certain times of the year.3.2.10. SperrgebietThe recently proclaimed Sperrgebiet National Park in sheer number of species can be consideredNamibia’s most significant biodiversity hotspot; it forms an epicentre of biodiversity in the SucculentKaroo floral kingdom that is shared with South Africa. According to the State of the EnvironmentReport on Parks, Tourism and Biodiversity 66 , the southern Namib centre of endemism in the Sperrgebietis an area of special ecological importance requiring urgent conservation protection. The SucculentKaroo Ecosystem Programme (SKEP) promotes biodiversity conservation and sustainable land use inthis biome and has evolved during a one-year planning phase. However, the restricted access to the areahas created an air of mystery around the Sperrgebiet and most people are unaware of its values andimportance for the regional and national economy.62 Ministry of Environment and Tourism, 1999b. Proposal to produce a land use plan for the Sperrgebiet and MEOB –conception area of the Namib Maukluft Park. Walmsley Environmental Consultants, pp 1-7.1.63 O’Toole, M.J., 1997. Marine Environmental threats in Namibia. Research Discussion Paper, 23. Windhoek: DEAPublications Department, Ministry of Environment and Tourism, pp 1-48.64 Barnard, P. (ed). 1998. Biological diversity in Namibia: a country study. Windhoek: Namibian National BiodiversityTask Force, pp 1-332.65 Molloy, F (ed) and T. Reinikainen (ed). 2003. Namibia’s Marine Environment. Windhoek: DEA EnvironmentInformation Systems Unit; Ministry of Environment and Tourism, Namibia, pp l-162.66 Government of the Republic of Namibia, 2000. State of the environment report on parks, tourism and biodiversity.Online. Available from ftp://ftp.polytechnic.edu.na/pub/soer/biodiversity [28 July 2000].21

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsKey Plans and ProjectsWalvis Bay Nature ReserveDraft Management Plan: thePlan describes the managementapproach and goals, together with aframework for decision-makingand mechanisms for involvingstakeholders as well as ensuringsocio-economic sustainability ofthe management measures.Management and MonitoringPlan for the Dune Belt betweenSwakopmund and Walvis Bay:this document contains the outputof consultations andrecommendations for managementof the area.Meob Conception Area Land UsePlan: Prepared to provide guidancefor future land use development,compatible with the overall goalsof the Namib Naukluft Park.Relevance to NACOMA• The Walvis Bay Lagoon and surrounding area constitute an important biodiversity hotspot that has no protection status andfaces significant threats to biodiversity from economic activities. This area is seen as a priority by MET. NACOMA canplay a supporting role through its institutional strengthening and capacity building component by helping to clarify roles ofthe different parties (Walvis Bay Municipality, NAMPORT and the MLRR) currently in conflict, and making sure “lessonslearned” from the ICZM-Erongo Project are used.• NACOMA can support the revision and stakeholder consultation process for this plan. The envisaged policy process canuse Walvis Bay Nature Reserve as a concrete case study.• The plan recommends that an EIA be conducted to assess the environmental sensitivity of the area. However, this area isnot considered by the ICZM-Erongo Project crucial in terms of biodiversity conservation.• NACOMA can support efforts towards the zoning of the area, control of access to and use of the area and the channellingof tourism fees into better regulation and monitoring of the area, as suggested in the plan. T• This area falls fully in national park on the west side of the Namib Naukluft National Park and thus can potentially besupported by UNDP funding for Protected Areas.27

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsKey Plans and ProjectsManagement and TourismDevelopment Plan for the NamibNaukluft National Park: the Planpresents the values, policies andprinciples on which managementdecisions in the Park should bemade. Currently in draft version fordiscussion.Relevance to NACOMA• MET envisions similar plans for all protected areas and therefore the Plan and the process through which it was preparedprovide important “lessons learned” that should be applied to the other protected areas.• The Plan is based on a discussion of the Park’s strengths, weaknesses, opportunities and threats undertaken by MET staff.The Plan states the need for collaboration at all levels and the integration of the Park in the socio-economic landscape toachieve the potential benefits that could arise from the vision for the Park, and NACOMA can support furtherdissemination and discussion of the Plan with key stakeholders in the region to make sure they share the same vision for thePark and can thus more effectively contribute to, and share the benefits from it.• The Plan recognises the need for training to implement a new style of management that focuses not only on biologicalissues but also requires social, economic and business skills. The procurement process provided for in the plan for much ofthe investment and improved skills required from the private sector will constitute key opportunities for NACOMA supportto strengthening the link between protected areas, Regional Councils and rural communities.• The Plan recognises that the current Park boundaries are not the most efficient for conservation of the Namib region’sbiodiversity and thus calls for an improvement of the conservation status of the area, in particular the formal protection ofthe coast and immediate marine environment. Ensuring adequate protection of the coastal and marine biodiversityenvironments is key to NACOMA and requires enhanced collaboration between different jurisdictions (MET and MFMR)and adequate legal protection. NACOMA support in this case will be in terms of strengthening the institutional and legalframework for coastal zone management through a participatory policy development process.• The Plan considers tourism concessions to be awarded over limited time periods in specified areas. NACOMA can supporttargeted investments proposed by communities or private sector/communities joint ventures.• Collaboration with regional and local authorities, which is highlighted in the plan, can be facilitated by the process ofcapacity building and institutional strengthening for environmental management and biodiversity conservation thatNACOMA will support. Adequate mechanisms must be put in place to ensure that the Topnaars that live in the park takepart in this dialogue and also accrue benefits.• NACOMA can also support activities targeted at environmental education of the people in the region, especially plannersand those that do not know their coast.28

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsKey Plans and ProjectsSperrgebiet Land Use Plan: Firstphase of the process towards theproclamation of the Sperrgebiet asa protected area under theforthcoming Parks and WildlifeAct and its ultimate integration inthe TFCA.Orange River MouthDevelopment Plan: Focuses onland uses, rehabilitation, tourism,social and development plans,infrastructure and generalenvironmental issues.Coastal Profile of the ErongoRegion: It establishesenvironmental and socio-economicbaseline information about thecoastal areas of the region tosupport management decisions inthe municipalities, the lineministries and Erongo RegionalCouncil.Relevance to NACOMA• NACOMA can support a participatory process to prepare the Sperrgebiet management plan. It will be extremely importantto provide opportunities for the people in the Karas Region to see their coast and participate in future uses of the area. Itwill furthermore be important to integrate coastal and marine biodiversity protection with development and NACOMA canprovide support through the strengthening of the integrated coastal zone management structures involving the key lineministries and regional government.• The multiple uses proposed for the Sperrgebiet will open way for targeted investments that can be supported by NACOMA.• The Diamond Coast Recreational Area, which includes Lüderitz, provides multiple opportunities for targeted investments,environmental education, etc. as this is where the coastal population is concentrated. NACOMA support can aid thepositioning of this area in the Sperrgebiet which surrounds it.• NACOMA can encourage clarification of the institutional set-up and the drawing up of a transfrontier management plan.• This document provides a template that the other regions can build upon. NACOMA can support the development of acommon format for the four regions, and the preparation / revision of the coastal profiles. Through NACOMA the RegionalCouncils will have their capacities built to prepare and continuously update the Coastal Profiles. Most importantly,NACOMA will facilitate a process to develop coastal profiles whereby the views of coastal players are reflected.• NACOMA can also support the preparation of an overarching coastal profile of the entire coast, including a popular versionto be used for awareness raising purposes.• The existing coastal zone profile for the Erongo Region and all future coastal profiles provide valuable baselineinformation for an economic valuation of the Namibian coast.29

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsKey Plans and ProjectsWalvis Bay Local Agenda 21Project: The project aimed topromote sustainable managementof the Walvis Bay area inaccordance with the Local Agenda21 principles.Integrated Coastal ZoneManagement of the ErongoRegion: The project aimed tomaintain the long-term sustainableeconomic and ecological potentialof the coastal zone. Implementedduring 5 years in the Erongo regionand resulting in the establishmentof the ICZMC. Followed by anextension phase to train the other 3coastal regions.Baseline Study on theEstablishment of MarineReserves in Namibia: lists aproposed number of marinereserves.Relevance to NACOMA• The project provides a framework that can be replicated in other municipalities such as Lüderitz. The project generatedimportant “lessons learned” about environmental management at the municipal level that can be applied to NACOMA, aswell as built local capacity that can be strengthened and replicated in the other regions by NACOMA.• The Project Steering Committee will remain after the end of the LA21 project to manage the environmental strategy andaction plan and can play an important role in NACOMA, for instance to provide guidance to targeted investments in themunicipality. NACOMA can provide matching funding for community projects supported by the LA21 fund that addressbiodiversity conservation.• The “lessons learned” in the development of a Municipal Policy can give input into the development of a common visionfor a coastal zone policy during NACOMA implementation.• This project has shown that it essential to build capacity for new functions to be devolved to, and maintained by theRegional Councils. Activities in the ICZM-Erongo Project such as the establishment of an environmental and socioeconomicdatabase were not fully accomplished but NACOMA can build on the database and train more staff to use it. Thiscan be followed by GIS training and will build capacity for land use planning that is lacking in the Regional Councils.NACOMA can furthermore build on the training provided during the ICZM-Erongo Project to the other coastal regions.• This project has shown that considerable effort needs to be put into establishing effective coordination between thedifferent players, e.g. line ministries and regional government. NACOMA focuses exactly on this coordination and onbridging the gap between biodiversity conservation and the communities.• This project produced a list of possibilities of environmental initiatives for funding and some of them can be supported byNACOMA. It also produced a list of key biodiversity hotspots in the Erongo Region, their values and threats that can beused in the guidelines and criteria for targeted investments.• Early in NACOMA implementation a workshop can be held to clarify where the jurisdictions of MET and MFMR beginand end and define the future direction of MPAs between relevant parties.• Negotiations between MFMR and MET should be a priority in NACOMA implementation to define the future situation ofthe islands off the Sperrgebiet.30

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsConclusions1. The biodiversity conservation framework in Namibia has remained largely centralised, with poorcoordination between MET and the regions. The plans that are today in place to manage theprotected areas along the coast are implemented by MET with little or no coordination withregional development planning. The revision of preparation of new management plans for protectedareas (e.g. Sperrgebiet, National West Coast Tourist Recreation Area, Skeleton Coast Park andproposed MPAs) provide opportunities during the NACOMA Project to promote participatoryprocesses that take into account the views of stakeholders and potential benefits to the widerpopulation.2. There are positive examples of efforts initiated or undertaken by regional and local players toprotect and raise the conservation status of key biodiversity sites such as the Orange River Mouthand the Walvis Bay Lagoon. Projects such as the Walvis Bay Local Agenda 21 and the IntegratedCoastal Zone Management Project in the Erongo region provide invaluable “lessons learned” forthat can be tapped during NACOMA implementation and examples to be replicated in other sites.3. While many conservation plans exist, they are not easily found or accessible in one place. Similarly,many types of protected areas exist but not everyone is aware of them, let alone the reasons behindtheir existence. Easy access to such information will add considerable value to the great efforts onbehalf of conservation undertaken in Namibia through the years, and will make it much easier totransform conservation along the coastal areas into a coherent picture.4. NACOMA can build on existing initiatives (such as the database developed through the IntegratedCoastal Zone Management Project in the Erongo region and the preliminary wetlands databaseprepared by the NBSAP Wetlands Task Force) and use regional capacity built throughout theproject to enhance biodiversity information and make it accessible to the different stakeholdersaccording to specific needs.5. The importance of planning is recognised by most parties, as is illustrated by the large number ofplans that exist. The Regional Development Plans (RDPs) 78 provide an ideal opportunity toharmonise those plans into one spatial picture and to position them into the broader developmentframework. Enhanced institutional capacity building in terms of planning through NACOMAsupport can make this possible.6. While many conservation plans exist at the local level very few have been realised. Often theobstacle is the lack of relatively small funding, institutional clarity or all-round stakeholderinvolvement. Increased cohesion of stakeholders supported by participative regional planning willhelp move plans along, together with targeted investment made available through the NACOMAProject.78 Please see Section 4.2 of this report.31

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regions4. DEVELOPMENT PLANNING4.1. National planning frameworkIn the Namibian context planning typically takes place in a highly centralised environment, a situationthat is gradually changing with the ongoing decentralisation process. Namibia’s Vision 2030 79 isdesigned as a broad, unifying vision that can serve to guide the country’s five-year development plansand, at the same time, provide direction to government ministries, the private sector, NGOs, civilsociety, and regional and local government authorities. The aim of Vision 2030 is to transform Namibiafrom a developing, lower-middle income to a developed, high-income country by the year 2030. Themain body dealing with planning at national level is the National Planning Commission. TheCommission coordinates and directs national planning, whereas the line ministries are responsible forplanning in their respective sectors. The Second National Development Plan (NDP2) 80 presentspolicies that are geared to achieve the medium-term objectives of this vision.4.2. Regional development planningSpatial planning at regional level is under the auspices of the Ministry of Regional and LocalGovernment and Housing (MRLGH). The National Planning Commission, comprising Ministers ofvarious government departments including the MRLGH but not the MET 81 , is responsible for thedevelopment of Regional Development Plans (RDP) for each region. The RDPs outline each of theregions’ development potentials and weaknesses. Comprising a programme for action for the economic,social, and institutional structures in each region, the RDPs are also intended to guide decision andpolicy makers and assist officials at the national, regional and private level. RDPs have been preparedfor all four coastal regions for the period 2001/2002 to 2005/2006. They provide an overview of theregion with a situational analysis and directions for future developments; the development planframework for the different sectors; and a programme summary with specific objectives, activities andprojects.4.2.1. Kunene RegionThe Regional Development Plan for the Kunene Region 82 identifies ecotourism, combined withCBNRM as the region’s major growth sector. Ecotourism can take advantage of the region’s scenery,cultural heritage and wildlife and has the potential to reduce rural poverty in many parts of the region.Erongo Region. While tourism has been identified as a key development sector for the Kunene Region,further promotion of tourism depends on the provision or upgrading of the necessary infrastructure. Arange of tourism facilities exists in the region, from community campsites to exclusive fly-in lodges,and ten more conservancies are currently being established. The RDP for the Kunene Region proposes aset of programmes to boost tourism in the region that include the creation of tourism information offices79 Government of the Republic of Namibia, 2004. Namibia Vision 2030. Policy framework for long-term nationaldevelopment: main report, pp l-248.80 Government of the Republic of Namibia, undated b. Second National Development Plan (NDP2) 2001/2002 – 2005-2006. Windhoek, National Planning Commission.81 The National Planning Commission Act allows for the appointment by the President of an additional eight personsincluding one with knowledge of ecological matters, so this could conceivably be someone from MET (see Report on“Review of Policy and Legislation Pertaining to Coastal Zone Management” for more information).82 Regional Council of Kunene, undated. Regional Development Plan 2001/2002 – 2005/2006, Kunene Region. Opuwo:Namibian Development Consultants, pp 1-147.32

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regionsand a regional promotion office, the upgrading of off-road vehicle routes, the development ofcommunity tourism camps, training and development of cultural and ethnic skills.4.2.2. Erongo RegionThe vision of the Regional Development Plan for the Erongo Region is to transform Erongo into aregion with a more diversified economy in an effort to create employment and wealth in the region, andmore equitable distribution of resources, facilities and services throughout the region and among itsinhabitants. Some of the objectives the plan defines for the tourism sector are to increase participation ofpreviously disadvantaged entrepreneurs and integrate more community-based facilities in themainstream tourism activity. Programmes proposed in the RDP for the tourism sector include theestablishment of a cultural museum, improvement of public tourism facilities such as in Cape Cross, andtraining for community-based tourism. Walvis Bay Rural area is identified in the RDP as priority 1 areafor tourism development while the coastal zone is classified as priority 2 area.Future growth in the Erongo Region is likely in terms of fishing industries, offshore mining, and oildrilling activities 83 . The RDP highlights the need for diversification in the fisheries sector, namelythrough aquaculture development and further downstream processing of fish. Progress in this areaincludes the demarcation of sea front plots in Henties Bay for aquaculture development by the TownCouncil. In Swakopmund, oyster culture is well established in the Salt Works and an abalone and oysterfarm is being developed on municipal land at Mile 4. Walvis Bay offers a sheltered Bay with an area of200 ha already zoned for mariculture by NAMPORT 84 . Walvis Bay is to become a national nodebecause of the port and subsequently the Trans-Kalahari and Trans-Caprivi highways.4.2.3. Hardap RegionThe Regional Development Plan for the Hardap Region 85 identifies diversification of agriculture,including game farming, and the improvement of land use planning for agriculture as priorities. Tradeand industry within the Hardap Region will continue to be dominated by Mariental and Rehoboth,leaving the other constituencies with limited development opportunities. The diamonds at ConceptionBay and Fishers Pan have been exhausted, but clay mining may hold potential on a small scale by localcommunity. Tourism is identified in the RDP as a preferred land use option in the region. With theproposed development of the Sperrgebiet to the south and the number of up market lodges along theeastern boundary of the Namib Naukluft Park, there will be an increasing demand for access to the areafrom Lüderitz. A concession for a small up market lodge is planned for the Meob area, where a landingstrip has been constructed, and a small fishing camp and guided tours are planned for Conception Bay.4.2.4. Karas RegionAccording to the Regional Development Plan for the Karas Region 86 , for the majority of the region’spoor, agriculture will remain an important industry to develop. There is potential to expand irrigationalong the Orange River and to build dams in various locations, such as the Neckerdal Dam. Mining isconsidered essential for the region’s short-term benefit yet it can be channelled into long-termconservation activities to protect the environment. The RDP thus proposes that aerial geophysical83 Government of the Republic of Namibia, undated c. Second National Development Plan (NDP2) 2001/2002 – 2005-2006: volume 2 regional development perspectives. Windhoek, National Planning Commission, pp selected extracts.84 Enviro-Fish Africa, 2003. Namibian Mariculture Sub-Sector Scan. Walvis Bay Spatial Development Initiative.March 2003.85 Regional Council of Hardap, undated. Regional Development Plan 2001/2002 2005/2006, Hardap Region.NamibianDevelopment Consultants. Mariental, pp selected extracts..86 Regional Council of Karas, undated., undated. Regional Development Plan Karas Region Final Draft. NamibianDevelopment Consultants. Keetmanshoop, pp 1-162.33

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regionssurveys be conducted and mineral prospecting promoted in the Lüderitz, Karasburg and Oranjemundconstituencies. Lüderitz is a prime area for aquaculture development in Namibia and the RDP suggeststhat the region should promote private sector investment to exploit the mariculture potential of itscoastal areas. The coastal mining area between Lüderitz and Oranjemund offers suitable sites andinfrastructure for aquaculture. NAMDEB has entered in negotiations with interested companies toestablish aquaculture operations near the Orange River Mouth outside of the mining security area and inthe coastal ponds created during the mining process 87 . In addition, a number of activities to facilitateindustrial development in the region are suggested in the RDP that need investigation such as smallscale fish factories and processing and packaging of guano in Lüderitz. Other developments in Lüderitzinclude a new Waterfront with a station able to accommodate the Desert Express. The Karas region’slocation, level of infrastructure and scenery make it highly suitable for tourism development.4.2.5. The role of RDPs in biodiversity conservationThe RDPs for the four coastal regions present at most a broad and generalised overview of the regions,but the description of the natural resources in the region (including in protected areas under METadministration) is insufficient to back up the outlining of the programmes. This gap reflects the RegionalCouncils’ poor interaction with, and understanding of the coastal areas within their regions and indicatesthe need to assess and enhance the local bodies’ understanding of the natural resources existent in theirregions. Furthermore, the RDPs lack specificity in the strategies and programmes presented. Theenvironmental programme, for instance, is very similar among the four regions (see Table 5) and sogeneral that it can scarcely be useful. This may be the result of insufficient involvement of RegionalCouncils and local government bodies in the preparation of the RDPs. The consultant-led process toprepare the RDPs did not involve local players beyond gathering information through interviews.Furthermore, this process did not seize the opportunity to build regional capacities to engage in similarplanning exercises in the future. Furthermore, there was not significant input from MET into the processof preparing the RDPs and there is sometimes conflict between the vision stated in the RDPs and theobjectives of MET 88 . Nevertheless, the RDPs make important references to regional environmentalmanagement and biodiversity conservation that can provide indications to the needs and activities thatcan be supported by NACOMA in each region.Table 5 shows some activities and strategies that are presented in various chapters of the RDPs –environment, fisheries and marine resources, tourism, wildlife and mining – and an analysis of howthese activities can be supported by NACOMA.87 Enviro-Fish Africa, 2003. Namibian Mariculture Sub-Sector Scan. Walvis Bay Spatial Development Initiative.March 2003.88 Beytell B. Personal communication, Windhoek, 13 October 2004.34

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsTable 5RDPs and their relevance to NACOMASection inRDPEnvironmentReferences in RDPsKunene, Hardap and Karas• Appoint skilled personnel able to contribute to land use planning• Strengthen the human resource and financial capacities within the Regional Council and theLocal Authorities• Establish a Regional Environmental Fund in collaboration with international environmentalorganisations• Provision of equipment and facilities to conduct studies and train the local communities inenvironmental conservation• Establish a central regional information and research office; establish a regionalenvironmental database for an integrated regional programme to monitor and manage thenatural resources of the region• Ongoing workshops and training to educate communities in the importance of theenvironment and sustainable utilisation• Protect biotic diversity and maintain essential ecologic support systems through theestablishment of conservanciesErongo• Public education and awareness raising campaign on responsible behaviour in anecologically sensitive environment• Encourage eco-tourism and high-value low-volume tourism• Stricter enforcement of existing legislation• Enforcement of the national legislation on EIARelevance to NACOMA• NACOMA can help build local capacity in theRegional Councils for environmentalmanagement and biodiversity conservation andland use planning• NACOMA can contribute to the progressivedevolution of environmental functions to theRegional Councils in the context ofdecentralisation• Future preparation of RDPs and planningprocesses can be supported by local staff skilledin both environment and development planning• NACOMA can support the improvement anddecentralisation of the environmental database,facilitate access to a database and support thepreparation of coastal zone profiles• Regional Councils can play a more effective rolein channelling funding and support forcommunity-based projects and CBNRM as awhole• Erongo Region’s experience and “lessonslearned” in environmental management could bereplicated in other regions through NACOMA35

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsSection inRDPFisheries andmarineresourcesWildlifeReferences in RDPsKunene• Develop regulations to prevent or minimise the effects of activities that are likely toseriously or irreversibly damage marine ecosystems• Cooperate with MET and MAWRD in the management and conservation of resources andriverine and coastal environments• Establish a policy on regional fisheries to enable effective management of stocksErongo• Diversification of products, e.g. aquaculture, mariculture and seaweed harvesting• Further downstream processing of fishHardap• Formulate a policy on fisheries in this region, to manage the stock more effectivelyKaras• Mariculture and fish farming in coastal areas: seek expertise, conduct research anddevelopment work, conduct feasibility studies and prepare business plans for potentialinvestors• Freshwater aquaculture: research and development of activities alongside the Orange River,establishment of model demonstration projects of successful aquaculture models, trainingand extension service provision for aquacultureKunene• Implement the MET Park and Neighbour Policy to improve relations, generate income andsecure the long term status of the region’s parksKaras• Effective protection of the natural resource base of the region by adopting the land use planscompiled for the Karas Region• To proclaim the Sperrgebiet as a Nature Reserve by 2005; this park can also be consolidatedwith the Namib Naukluft Park and possibly also with the Richtersveld to form a crossborder park.Relevance to NACOMA• NACOMA can help support marine resourcesprotection on the regional level in line withMFMR and MET regulations• NACOMA can support feasibility studies fornew or expanded economic activities such asmariculture• Regional Councils can play a more effective rolein channelling funding and support forcommunity-based projects and CBNRM as awhole• NACOMA can support Regional Councils inplanning and consolidating TransfrontierConservation Areas (TFCA) linking coastalareas with protected areas further inland36

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsSection inRDPTourismMiningReferences in RDPsKunene• Promote equitable indigenous cultural and local participation in the benefits derived fromtourism projects• Develop a regional promotion office within the Regional Council• Employ qualified staff and generate income through membership fee contributionErongo• Introduction and development of tourism and related business managementtraining/education primarily aimed at empowering emerging previously disadvantagedtourism operators• Improve access to credit and other support services for new entrants into the tourism sector• Encourage and promote community based tourism projectsHardap• Effective cooperation in tourism between different components of government and betweengovernment and the private sector• Develop tourist concessions within the Meob Conception area• Develop ecotourism within the Namib Naukluft Park (including guided horse trails)Karas• To develop a 4x4 route in the Sperrgebiet, to link Lüderitz with the Meob Conception area• To establish, through community involvement, horse and camel routes in the eastern areasof the Sperrgebiet• To compile a comprehensive tourism master plan for the Karas Region• To effect an agreement with South Africa to open the border post at Sendlingsdrift• To formalise the Sperrgebiet/Richtersveld cross border park• To adopt a national policy through Cabinet that regulated the allocation of an annual quotaof crayfish to the tourism industry at LüderitzKunene• Establish training programmes in all mining related aspects of environmental managementKaras• Reduce the potentially negative environmental impact of mining through effectiveenvironmental management: training programmes, awareness campaigns, EnvironmentalManagement Policy, training of miners• Conduct aerial geophysical surveys, promote mineral prospecting, produce geological mapsRelevance to NACOMA• NACOMA can support the review of theregions’ natural resources and associated valuesfor tourism through an economic assessment ofthe coast. It is also important to review thecurrent framework for tourism development,including destination of tourism revenues• NACOMA can support feasibility studies andimplementation of new or improved tourismprojects in the regions (through targetedinvestments) including some specified in theRDPs.• NACOMA can promote local participation intourism activities in protected areas along thecoast through targeted investments.• It is important to build on existing tourism plans(e.g. Hardap Region Tourism Plan) or preparenew tourism plans in line with the RDP, such asfor the Karas Region.• NACOMA can support environmental trainingof tourism operators and other players in thesector• NACOMA will build capacity in terms ofenvironmental assessment and monitoring ofmining activities37

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regions4.3. Other development plans and initiativesSome of the key plans and initiatives targeting the four coastal regions are described in this section, andtheir relevance to NACOMA is analysed in Table 6.4.3.1. North West Tourism PlanThe North West Tourism Plan (NWTP) started by developing a vision and presenting an overview oftourism development in the Kunene and Erongo regions in the North West Tourism Master Plan(NWTMP). The Namibia North West Tourism Options Plan (NWTOP) 89 was developed in the secondphase to identify key product development opportunities and management requirements at aconservancy level. The third phase, the Northwest Tourism Implementation Project (NWTIP) willinvolve implementation of plans outlined in Phase II and the development of standard operatingprocedures. The project provides broad zoning but more detailed tourism product-related zones forspecific sites must be assessed in the light of acceptable developments or usage determined in theNWTMP, Conservancy Land Use Plans, and other land use plans and, when necessary, EnvironmentalImpact Assessments (EIA).4.3.2. NAMPORT Environmental Management SystemIn the Walvis Bay Harbour, NAMPORT is currently engaged in preparing its EnvironmentalManagement System (EMS) for certification according to the ISO 14001 standard. According to itspublicly available environmental policy, NAMPORT is committed to environmental management andpollution prevention in its operations. The EMS will address major threats to the marine and coastalenvironment such as pollution resulting from tankers in outer anchorage and from washing vessels afterpainting. Other plans in the pipeline include the extension of the Port, the construction of a floating deckfor boat repair and the rehabilitation of the Trans-Namib wash site 90 .4.3.3. Structure Plan for Walvis BayWalvis Bay is to become a national node because of the port and subsequently the Trans-Kalahari andTrans-Caprivi highways. The Structure Plan for Walvis Bay 91 provides the local authority withguidelines to manage and guide future development of the town in the long term, which should berevised every 12 years.4.3.4. Swakopmund four-year strategyIn line with the four-year strategy for Swakopmund, key projects that are planned for the municipalityinclude the development of a water front, upgrading of beach areas including the development of socialnodes on the coast and river and creation of ablution facilities, upgrading of jetty, sand mining in theriver mouth, rehabilitation of the garbage dump and creation of a new dumpsite, and the regulation ofinformal settlement 92 .89 NACOBTA, 2002. Namibia North West Tourism Options Plan – Phase 2. Windhoek: Ministry of Environment andTourism, pp 1-90.90 Eiman, T., 2004. Personal communication, Walvis Bay, 16 August 2004.91 Stubenrauch Planning Consultants cc., 1999. A structure plan for Walvis Bay Volume 1: general discussions andfindings. Stubenrauch Planning Consultants: Walvis Bay, pp selected extracts.92 Lawrence, C., 2004. Personal communication, Swakopmund, 16 August 2004.38

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regions4.3.5. Hardap Region Tourism Development PlanTourism is identified in the RDP, as well as in the Hardap Region Tourism Development Plan 93 , as apreferred land use option in the region. While the 6 constituencies in the region are in the commercialfarming area where title deed to all tourist developments can be obtained, a large portion of the Gibeonconstituency – which extends to the coastline – falls within either communal land or within the NamibDesert and the Namib Naukluft Park. Developments within the park by the private sector normally takeplace on the basis of concessions. The Gibeon Constituency is the most popular tourist area within theHardap Region and the tourism development plan recommends that a planning and coordinationprogramme for the coastal areas be developed in the framework of the NACOMA project.With the proposed development of the Sperrgebiet to the south and the number of up market lodgesalong the eastern boundary of the Namib Naukluft Park, there will be an increasing demand for accessto the area from Lüderitz. A concession for a small up market lodge is planned for the Meob area, wherea landing strip has been constructed, and a small fishing camp and guided tours are planned forConception Bay. The tourism development plan recommends that access to the tourism industry bebroadened, that particular attention be paid to rural areas, less developed areas in the Hardap Region,cultural attractions, and that increased participation of existing players in tourism development andinclusion of communities be sought.4.3.6. Community Tourism Market Research for the South of NamibiaThe Community Tourism Market Research for the South of Namibia 94 covered an inventory andanalysis of the tourism industry in the Hardap and Karas Regions and its market, short field surveys toidentify new community based attractions and an analysis of the potential of CBT. The Karas region’slocation, level of infrastructure and scenery make it highly suitable for tourism development. TheMarket Research highlights the potential of new attractions such as Lüderitz, the Ai-Ais / RichtersveldTransfrontier Park, the Sperrgebiet and the Orange River Mouth. Once Oranjemund is open to tourismtraffic, the supporting function of Aus to tourism will become more significant. The potential exists toestablish a cross-border park between the Sperrgebiet and the Richtersveld and at Orange River Mouth,thereby strengthening the TFCA. The scenic route suggested in the market study includes coastalattractions in the Sperrgebiet, such as Lüderitz, Elizabeth Bay, Pomona and Bogenfels, as well as Aus,the Ai-Ais / Richtersveld Transfrontier Park and Noordoewer. A cultural route on the western part of theregion is also presented, which would have the purpose of introducing travellers to the Nama and Basterculture by visiting places of historic importance or where cultural events can be experienced. One optionis also the development of some of the offshore islands for low impact, high quality tourism, possiblyusing Lüderitz as gateway 95 .4.3.7. Relevance to NACOMA of key development plans and initiativesThe plans and initiatives described above are analysed in Table 6 in terms of what activities or visionscan be supported by the NACOMA Project.93 Regional Council of Hardap and Hardap Tourism Board, 2003. Hardap Region Tourism Development Plan 2003.Mariental, pp 1-110.94 Stubenrauch Planning Consultants and DECOSA, 2003. Community tourism market research for the South ofNamibia. Stubenrauch Planning Consultants and Development Consultants for Southern Africa, pp 1-144.95 McGann, J., F. Odendaal and L. Nakanuku, 2001. Report on the integrated coastal zone workshop held inSwakopmund, Namibia May 10-11, 2001, pp 1-59.39

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsTable 6Key development plans and initiatives in the coastal areas and relevance to NACOMAPlans and initiativesNAMPORT’s Environmental ManagementSystem (EMS): Contains guidelines andresponsibilities for environmental managementof port operations. Accreditation processaccording to ISO 14001 ongoing.Municipal plans: Structure plan for WalvisBay and Swakopmund Four-year StrategyNorth West Tourism Plan (NWTP): Tourismdevelopment plan for the Erongo and KuneneRegions, with a focus on communal landsoutside the coastal protected areas.Hardap Region Tourism Development Plan:describe the role of the Hardap RegionalCouncil and the Hardap Tourism Board in thedevelopment of tourism in the region.Community Tourism Market Research for theSouth of Namibia: Identifies new communitybasedattractions and analyses the potential ofCBT.Relevance to NACOMA• The experience of implementing an EMS in the Walvis Bay port should be shared with other industries in theregion in an effort to prevent or mitigate environmental impacts. Clear environmental management proceduresin these industries, even if not certified according to ISO 14001, would promote, at the minimum, compliancewith existing regulations. In enhancing the framework for integrated coastal zone management, NACOMAthrough its multi-partner make-up can engage the private sector in adopting practices that do not contribute tobiodiversity loss.• If environmental tasks are to be decentralised, the preparation of structural and strategic plans at the municipallevel should result from a process that involves both environmental officers and planners. The process ofcapacity building and institutional strengthening envisaged by NACOMA will strengthen IntegratedConservation and Development (ICD) approaches to planning• The plan provides important indications on sustainable tourism development in communal areas that must bepart of the common tourism development vision for each region and linked with tourism development in theprotected areas of Skeleton Coast National Park and the National West Coast Recreation Area. NACOMA canplay a key role in strengthening the link between the Skeleton Coast Park, Regional Councils and theconservancies adjacent to it.• Recommendations included in the NWTOP are the affording of additional rights to conservancies to managetourism in partnership with MET and the private sector, and the finalisation of the MET concession policywhereby conservancies must be involved in the ownership, management and benefit from all natural resourcebased activities. NACOMA can assist promising pilot projects with targeted investments.• The Plan has many aims in common with NACOMA, including the need to distribute biodiversity-basedopportunities to local communities. NACOMA can make use of this plan, especially when it comes to selectingtargeted investments. Capacity built in terms of planning will strengthen the implementation of the Plan.• This market research can provide a framework against which to evaluate the feasibility of proposed targetinvestments for NACOMA support.40

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsConclusions1. Future growth is expected in the tourism, fishing (including mariculture) and industrial sectors.Tourism is perceived by all four regions as a key sector for future development, targeting cultural aswell as natural attractions. These future developments highlight the need to ensure that land useplanning capacity is built in the Regional Councils and that appropriate policies and regulationsare in place for these economic activities that protect the region’s biological and cultural diversity.The legal report has concluded that economic activities related legislation (such as mining, tourism,aquaculture) makes insufficient provision for sound environmental management and conservation ofbiodiversity. Clear zoning is required to guide development decisions according to the region’svarying sensitivity and potential.2. All RDPs acknowledge the imperative to promote fairer benefit sharing from tourism, mining andfishing and support the involvement of communities in the use of coastal resources. However,mechanisms to do so are largely lacking. Positive developments in this respect will depend onprogressive legal frameworks, including concession and other rights that are friendly to the peoplein the four coastal regions, and that can be supported by the NACOMA Project.3. The process used to develop RDPs and their statutory power needs to be revised to ensure that theirpotential as key instruments to guide development planning in the regions is tapped. The currentRDPs can nevertheless provide useful indications in terms of socio-economic trends in the regionand resulting opportunities that can be supported by NACOMA. Furthermore, the NACOMA Projectwill progressively build capacity in the regions and line ministries so that the next RDP exercise canbe truly participatory and useful.4. The different structural and sectoral plans are poorly interlinked yet they also provide usefulinformation that the NACOMA Project can build on. Examples are the Hardap TourismDevelopment Plan, which preparation followed a participatory process to reflect the views of thedifferent stakeholders in the Hardap Region, and that can thus guide targeted investments in theregion.5. THREATS TO BIODIVERSITY AND ROOT CAUSES5.1. Threats and potential interventionsThis section provides an analysis of the threats and potential interventions in biodiversity hotspots alongthe coast of Namibia in light of potential socio-economic impacts resulting from current and expecteddevelopments (Section 4) in the biodiversity conservation structure in place (Section 3).While the coastal areas of Namibia are still relatively pristine, the downscaling of mining anddevelopment of alternative livelihoods, rapid urbanisation and industrial development will in the futureinfluence the environmental and socio-economic features of the coast. The pursuit of unsuitableeconomic activities in important biodiversity sites – either due to weak enforcement or inappropriateplanning and zoning – may also have negative impacts on the coastal zone. At the same time, theproclamation or upgrading of protected areas and consequent strengthening of the TFCA can provideopportunities to mitigate impacts and tie coastal zone management and biodiversity conservation tolocal economic development.Activities taking place along the coast that may impact on the coastal and marine environment and,consequently, on the coastal population, include growing settlements, mining, fish processing, saltrefining and other industries, port authorities in Walvis Bay and Lüderitz, oil exploration activities inoffshore waters, uncontrolled fishing and aquaculture, uncontrolled tourism, and unplanned agriculture41

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regionsactivities upstream from important river mouths. There are also plans underway for a harbour along theKunene Region coast. Mining has left major marks on the environment and continues to threaten keybiodiversity values in protected areas in the absence of adequate zoning and strict regulations. Mostimportantly, failure to develop alternative livelihoods during the mining era leads to poverty now thatthe industry is downscaling, which in turn will lead to people leaning more strongly on natural resourcesbut not necessarily in sustainable ways. Because so much land has been closed to access, developmentand settlement pressure is exceptionally concentrated in and around the coastal townships.All four coastal regions see the tourism sector as a priority area for regional development. While tourismactivities can provide employment and an avenue for involving local communities in the region’seconomy through mainstream as well as Community Based Tourism (CBT), they are also likely to causemigration and increased movement of people through the regions to levels that can pose obstacles toeffective management of natural and cultural resources. Mining areas that have previously been closedto public, such as the Sperrgebiet, are now perceived as potential tourism attractions that will beincreasingly exploited under the new management plan. At the same time, biodiversity hotspots such asthe coastal wetlands and offshore islands that have currently no conservation status may suffer fromuncontrolled developments in the absence of adequate and enforced zoning and environmentalrestrictions.Table 7 identifies some of the major threats each biodiversity hotspot, based on the development trendsidentified in Section 4 and the conservation efforts in place described in Section 3. Possible approachesto address these threats are also analysed in the table and provide indications for potential interventionsand targeted investments to rehabilitate, maintain or improve those biodiversity hotspots.42

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsTable 7Threats to biodiversity conservation in the coastal regions and potential interventionsBiodiversityhotspotKuneneRiver MouthSkeletonCoastNationalPark andadjacentconservanciesThreats• Uncontrolled activities in thearea, such as mining, tourismand fishing• Developments upstream suchas the proposed Epupa Dam• Uncontrolled fishing(recreational angling)• Mining, the most affectedarea being Toscanini• Off-road drivingApproaches to address threats and root causes and potential interventions• The main root cause for the threats to the Kunene River Mouth is the insufficient legal protection of thisimportant wetland that has in the past been proposed for declaration as Ramsar Site. NACOMA can initiate andsupport the process to ensure the effective management and legal protection of this important biodiversityhotspot.• The Kunene River Mouth is not only important for its ecological functions but also key in the big picture of trifrontierconservation that is unfolding. In collaboration with the BCLME Programme and the Governments ofAngola and Namibia, NACOMA can facilitate the incorporation of this important site in the Kunene RegionRDP.• The negative impacts in the Skeleton Coast Park appear to be based on unsuitable or uncontrolled land useoptions and weak enforcement, which are based on an old and outdated plan for the park. The newmanagement plan that will be prepared will zone the area according to suitable land uses and will include atourism development plan. NACOMA will contribute to building an integrated coastal zone managementstructure that links the different role players at the national and regional level, which can support aparticipatory process to prepare this management plan in the frameworks of biodiversity conservation andregional development.• With the lowest of the four coastal regions’ HDI and a decreasing population due to unemployment, tourism inthe Kunene Region can play a key role in creating jobs and promoting local economic development.NACOMA can support CBNRM projects (through targeted investments) that provide opportunities to themarginalised Himba people and wider population of the Kunene Region and not only to selected entities. Theconservancies adjacent to the Park can play a key role in ensuring wider participation of the region’spopulation in tourism activities in the Park. In the national context of growing tourism industry based onbiodiversity values, it is equally important to ensure that the Tourism Policy makes provisions for equitablebenefit sharing and for the reconciliation between conservation and development.• Due to the Park’s importance in the emerging tri-frontier conservation area, NACOMA can support theconsolidation of the transfrontier park and the sharing of “lessons learned” with the Greater !Gariep TFCA insouthern coastal areas and the border with South Africa through, for example, exchange visits and sharing ofinformation on Distance Learning and Information Sharing Tool (DLIST, on www.dlist.org).43

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsBiodiversityhotspotNationalWest CoastTouristRecreationAreaWalvis BayWetlandCape CrossSeal ReserveThreats• Expected growth in thefishing industries andaquaculture• Offshore mining and oildrilling• Uncontrolled growth oftourism• Heavy human and industrialactivity, with industriesexpanding• Extensive land reclamationfor the salt works• Excessive water exploitationfor consumption• Fish oil, fish processingwastes and ship-bornepollution from the harbour• Tourism activities such asoff-road driving, motorisedand non-motorised vessels,and flying• No major threats; potentialshipping accidents anddumping of oil; possibledisturbance by touristsApproaches to address threats and root causes and potential interventions• This area has a lower protection status than a national park, which means that control of economic activities isless strict and has resulted in negative impacts. Due to its importance in terms of biodiversity conservation,MET has initiated a process to develop a new management plan and proclaim it a national park, which willresult in a new zoning of the area and stricter regulations for development and conservation. NACOMA cansupport a participatory process to prepare this management plan in the frameworks of biodiversity conservationand regional development.• It is equally important to ensure adequate tourism, aquaculture, fishing and mining policies that help reconcilebiodiversity conservation and development.• The main root cause for the threats to the Walvis Bay Wetland is the lack of legal protection and effectivezoning of this important Ramsar Site. NACOMA can initiate and support the process to ensure the effectivemanagement and legal protection of this important biodiversity hotspot.• Responsibilities for coastal zone management should be clarified to ensure better coordination both between thedifferent local planners and between the regional and national levels. NACOMA can support a participatoryprocess to finalise the management plan that is currently under preparation• It is equally important to ensure adequate tourism, aquaculture, fishing and mining policies that help reconcilebiodiversity conservation and development. Furthermore, coastal planning should be inclusive to ensure thatmore opportunities are given to local communities such as the Topnaars.• NACOMA during the policy making process can highlight Cape Cross as a site of special significance alongthe Namibian coast and needing restoration of the viewing area.44

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsBiodiversityhotspotWalvis Bay/SwakopmunddunesNamibNaukluftParkSandwichHarbourLüderitzLagoonThreats• Off-road driving• Littering• Impact from minerals mining• Of-road driving and excessivepedestrian pressure candestroy lichens• Increasing impact fromtourism• Commercial trawling• Pollution from the harbourand associated industrialdevelopment around the town• Disturbance by vehicles• Land reclamation• Potential introduction ofinvasive alien invertebratesthrough mariculturedevelopmentApproaches to address threats and root causes and potential interventions• Effective control is required of activities taking place in this area, particularly recreation activities. NACOMAcan provide support in the ongoing process of development of a management plan for the area.• Suitability of land use plan options and effective enforcement must be ensured for the Namib Naukluft Parkunder the new management plan.• It is also important to ensure that the under the forthcoming Tourism Policy equal opportunities are granted tocommunities and underprivileged communities, e.g. the Topnaars. NACOMA can fund targeted investmentsthat support this principle.• More effective protection is needed for this area, especially at the level of coordination between MET andMFMR. NACOMA can help strengthening the structure for integrated coastal zone management and the linksbetween MET and MFMR.• The main root cause is the lack of legal protection and adequate zoning of the lagoon. NACOMA can initiateand support the process to ensure its effective management and legal protection.• “Lessons learned” from the NAMPORT EMS in Wlavis Bay should be applied in this area to ensure bestpractice of industrial activities presently affecting the lagoon.• Feasibility studies are required to assess the potential impact of mariculture activities on the lagoon, as well astheir potential benefits to the local people.45

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsBiodiversityhotspotSperrgebietIslandsOrange RiverMouthThreats• Impacts from prospecting andmining activities• Increased movement andindustrial and infrastructuraldevelopments in Lüderitzmay impact on theenvironmentally sensitiveenvironment around• Proposed mariculturedevelopments may result inimpacts if not properlyplanned and controlled• Currently under no majorthreat but uncontrolledpromotion of tourism inoffshore islands mayadversely impact their richbiodiversity• Diamond miningApproaches to address threats and root causes and potential interventions• NACOMA can support a participatory process to finalise the Sperrgebiet management plan and ensure itsintegration with the regional development planning process. It is of paramount importance to establish a linkbetween the Sperrgebiet area and the wider population and this can be done through a centre in Lüderitz forinformation dissemination and promotion of visits to the coast.• It is equally important to ensure adequate tourism, aquaculture, fishing and mining policies that help reconcilebiodiversity conservation and development.• Due to the Park’s importance in the emerging tri-frontier conservation area, NACOMA can support theconsolidation of the Greater !Gariep TFCA.• The islands are key to biodiversity conservation but are currently not protected under the law. NACOMA cansupport the process of proclamation of the islands as MPAs by strengthening the structure for integrated coastalzone management and the links between MET and MFMR.• The main root cause for the threats to the Orange River Mouth is the lack of legal protection of this importantRamsar Site and the lack of transfrontier management plan. NACOMA can initiate and support the process toensure the effective management and legal protection of important biodiversity hotspots such as this wetland inthe light of the forthcoming Wetlands Policy and NBSAP’s Action Plan for Sustainable Wetland Management.46

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regions5.2. Analysis of root causesFrom the analysis of threats to the key biodiversity areas presented above, common issues can beidentified that are perceived as root causes for biodiversity loss. These issues, as well as their relevanceto the NACOMA Project, are described in this section and summarised in Table 8. The root causes forbiodiversity loss and the opportunities to improve the coastal zone’s biodiversity managementframework represent key areas that can be supported by the NACOMA Project.5.2.1. Poor awareness and lack of knowledge of coastal and marine valuesFundamental to support and involve key stakeholders in sustainable coastal management is anunderstanding of the value of biological and cultural diversity. Because most people in the coastalregions have had limited access to the coast, they cannot easily attach a value to it. In scientific terms,knowledge about species and ecosystems in Namibia is limited. The opening of the Sperrgebiet willprovide a major break through for the study of the Succulent Karoo ecosystem. It is important tounderstand the natural resources that exist in terms of their latent value as well as their potential aseconomic generators. Assessing the economic value of the coast’s biological and cultural assets can helpengage stakeholders and raise funding for initiatives promoting conservation and sustainable naturalresources use.Increased knowledge about the regions’ biodiversity would also assist the Regional Councils in theirplanning activities for conservation and wise use of natural resources. There is also a general lack ofunderstanding of the intrinsic changes of the BCLME, which impact on natural resources availabilityand therefore natural resource-based economic activities 96 . Diversification of economic activities ratherthan sole reliance on a specific livelihood would be positive for regional development, and therefore it isimportant that Regional Councils understand this natural variability.Scientific research into the coast’s biological and cultural values should be promoted and supported bythe indigenous peoples’ traditional knowledge. It is crucial to enhance the Regional Councils’understanding of the regions’ natural resources, their potential and vulnerabilities and their capacity tointegrate biodiversity concerns into regional planning. This will require coastal profiles to be drawn upalso for the Kunene, Hardap and Karas regions, and then to harmonise the four coastal profiles into asingle document (perhaps as four chapters with and overarching introduction and conclusion). A popularversion of this profile needs to be produced for consumption by the general public and all levels ofgovernment, NGOs and communities. It will also require the economic assessment of the naturalresources along the coast and their potential as economic generators. NACOMA targeted investmentsshould focus on those key natural resources. Initial guidelines were developed during the NACOMAworkshop held in Swakopmund in August 2004 97 for identifying projects, which should be finalised andadhered to as far as possible. Furthermore, it will require an awareness campaign to enhanceunderstating of the coast and facilitate the participation of the coastal population in the coastal zonepolicy development process.96 Barnard, P., 2004. Personal communication, Cape Town, 8 September 2004.97 Mufeti, T., F. Odendaal, R. Garcia, J. Oranje and I.Kauvee, 2004. NACOMA Preparation Workshop – WorkshopProceedings. Swakopmund, 11-13 August 2004.47

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regions5.2.2. Unclear and centralised responsibilitiesThe coastline is mostly covered by protected areas and mining concessions and thus falls under theadministration of MET, MME and MFMR. Regional Councils are not directly involved in themanagement of the parks or in concession allocation. The coastal zone – particularly in the Kunene andKaras regions – is an area that is unknown to the region’s population and where local and regionalauthorities, let alone the communities, are excluded from planning and use of natural resources. Theissue was raised during the NACOMA Preparation Workshop whether the protected areas should be theresponsibility of MET or devolved to regional authorities in the context of decentralisation.Coordination between line ministries, namely MET, MFMR and MME, is also poor. The MFMRfocuses on captures, often disregarding issues pertaining to degradation and conservation of the marineenvironment, which are perceived as MET’s responsibility 98 99 . According to the MET, this is slowlychanging as MFMR is starting to give more importance to protection of the marine environment 100 101 .The proclamation of the islands as MPAs and future concessions process where MET may have a role toplay, and the proclamation of the Sperrgebiet that extend into the sea, are important issues that requirebetter coordination between the two line ministries.Coordination between local players is sometimes also lacking, as the example of Walvis Baydemonstrates – the Walvis Bay Lagoon is a biodiversity site that needs to be protected in face ofdevelopment trends in the area, but where the roles of the municipality and other stakeholders are notclear 102 . A common vision, clear mandates and coordination are sometimes lacking between thedifferent players involved in biodiversity conservation. The decentralisation process offers an avenue todefine these roles and ensure that the required capacities are built at the different levels.5.2.3. Uncoordinated land use planningThis report has shown that there is a myriad of plans and projects in place along the coast. While lineministries develop management plans and policies in their respective mandates, the Regional Councilsprepare regional development plans. In addition, sectoral and structural plans exist for specific areas.Current coordination between different planning instruments is poor. Vision 2030 recognises thatNamibia’s parks and reserves face challenges such as a lack of linkages to local, regional and nationalplanning and management systems, which sometimes leads to inappropriate development withinprotected areas. In turn, the process of preparing the RDPs has not sufficiently engaged MET, which is akey stakeholder in all four coastal regions. The involvement of MET in regional planning wouldcontribute to clarify roles and change people’s perspective about conservation and the importance andpotential benefits of protected areas 103 .Clearly defined zones need to be established for different economic development activities to ensurethat current and future developments are in line with the potential and sensitivity of each differentarea 104 . This coastal zoning should then form the basis for any form of regional development planning.The RDPs are key instruments that can provide the framework for regional planning and which all otherland use and sectoral plans could refer to. As an example, the NWTOP suggests that tourism plansshould be integrated into regional plans and other ministries and activities should take cognisance of98 Barnes, J., 2004. Personal communication, Windhoek, 18 August 2004.99 Maketo, C. S. and R. Brady, 2004. Personal communication, Swakopmund, 16 August 2004.100 Shikongo S., 2004. Personal communication, Windhoek, 12 October 2004.101 Beytell B. 2004. Personal communication, Windhoek, 13 October 2004.102 Barnes, J., 2004. Personal communication, Windhoek, 18 August 2004.103 Barnard, P., 2004. Personal communication, Cape Town, 8 September 2004.104 Barnes, J., 2004. Personal communication, Windhoek, 18 August 2004.48

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regionsthese plans. The protected areas management plans should also be considered in the RDPs. There is thusscope in the NACOMA Project to revisit the legal power of RDPs and their role in coordinatingplanning at the different levels. The legal framework should be examined as to how RDPs can becomemore participative and how their role can be strengthened so that spatial developments plan in them cancarry some weight. NACOMA can also contribute to bring relevant stakeholders together for theforthcoming preparation of NDP3 (including line ministries and regional councils). In addition, sectoralpolicies are still evolving, with the Tourism Policy and the Aquaculture Policy still in draft forms forexample 105 . These policies should provide a framework in which sustainable development is ensured butmoreover reconciled with biodiversity conservation.Regional capacity and an enabling framework for coordination between the different sectors at thenational and regional levels are, however, lacking. Geographic Information System (GIS) capacity hasto be installed in the Regional Councils as well as an officer that understands conservation issues verywell and has the ability to integrate them into the RDP and also muster the Regional Council machineryto the best advantage of biodiversity conservation.5.2.4. Insufficient natural resource management and protection of some key biodiversity hotspotsKey biodiversity hotspots along the coastal zone of Namibia need to be protected by adequate andenforced legal status defining exactly what land use options are suitable. Some key biodiversity hotspotsare not protected in the law and their use is thus unregulated in terms of access and activities. This is thecase of the coastal wetlands of Walvis Bay and Orange River Mouth (and to some extent the KuneneRiver Mouth), as well as offshore islands, undermining the protection of marine and coastalbiodiversity.New or revisited plans that may be required in the light of the forthcoming Parks and Wildlife Bill forkey biodiversity hotspots, such as the coastal wetlands and offshore islands, provide ideal opportunitiesto promote planning processes that involve local people and regional authorities and are integrated withthe national and regional visions. Particular effort should be put into getting effective conservationframeworks for them in place that also allows benefits to the local communities. NACOMA can supportthese planning processes by creating adequate conditions for preparatory assessments, broad regionalconsultations, participatory planning meetings, and wide dissemination of information.Enforcement of regulations in protected areas needs to be strengthened and an assessment needs to beconducted to evaluate the impact and rehabilitation needs from uncontrolled activities in protected areas,such as mining in the Skeleton Coast and he Sperrgebiet. This will require the development ofmonitoring and evaluation capacity in the Regional Councils so they can play that important roleeffectively. Players on the ground such as tour operators can help control activities and ensurecompliance with regulations.5.2.5. Insufficient public involvement on how the resources are used and inequitable benefitsharingThe level of public participation in biodiversity management planning (for example in the preparation ofprotected area management plans) and in the use of natural resources in protected areas has been poor,despite the potential of local involvement to enhance the use of traditional knowledge to utilise andpreserve biodiversity. This is the result of restricted access to the coast, on one hand, and of awidespread perception that coastal resources are controlled by the government and used only by asection of society, on the other hand. Vision 2030 highlights that communities generally see parks asland that only benefits government and foreign visitors. The concession framework is perceived bymany people, including the Topnaars, as lacking transparency and benefiting only a small section of105 Please see “Review of Policy and Legislation Pertaining to Coastal Zone Management” Report.49

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regionssociety. In fact, MET is often perceived by people as an obstacle to development 106 . It has beensuggested in the NACOMA preparation workshop that the allocation of permission for operationswithin proclaimed parks should be decided by Regional Councils in consultation with MET and therespective jurisdictionally responsible Ministries. The tourism concession framework for protected areashas been revised by MET.Community participation outside protected areas can also help create positive spin-offs to the localpeople. MET’s Parks and Neighbours policy can lead to more progressive negotiated agreementsbetween the MET, private sector and adjacent communities. Mechanisms and incentives need to bestrengthened for conserving biodiversity and biotic resources outside of protected areas, in thecommunal and private lands. In the tourism sector, most benefits go to a small group of people and theindustry has remained largely untransformed. Fortunately, government institutions and tourismassociations appear to be very aware of the need to involve communities in tourism and ‘open up’ theindustry to the broader population 107 . Some recommendations drawn in the NWTOP include theaffording of additional rights to conservancies to manage tourism in partnership with MET and theprivate sector, and the finalisation of the MET concession policy whereby conservancies must beinvolved in the ownership, management and benefit from all natural resource based activities.There is scope to investigate and strengthen mechanisms and incentives for natural resource use andconservation outside or bordering protected areas. The allocation of legal rights to communities tomanage wildlife as well as other resources in conservancies is key to their survival. The NACOMAProject can address the Regional Councils’ participation and support to community-based naturalresources management by collaborating with the GEF-funded ICEMA Project and supporting projectsand activities that have a strong and sustainable community focus. Strengthening the emerging TFCAby raising its conservation profile and promoting different types of conservation areas as economicgenerators can provide a framework and a vehicle for conservation and sustainable natural resourcemanagement activities. The Kunene and Orange River Mouths are very important because they can playan important role in consolidating the tri-frontier TFCA.106 Braby, R., 2004. Personal communication, Swakopmund, 16 August 2004.107 Regional Council of Hardap and Hardap Tourism Board, 2003. Hardap Region Tourism Development Plan 2003.Mariental, pp 1-110.50

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsConclusions1. The coastal areas in Namibia and their unique biodiversity values face a number of threats. Thepresent threats are rooted in an uncoordinated picture between biodiversity conservation andregional development. The key root causes of biodiversity loss identified in this report are:• Poor awareness and lack of knowledge of coastal and marine values: The most pressing threat tobiodiversity conservation is the lack of understanding of the values of the coast and their potentialfor development.• Unclear and centralised responsibilities: Roles and mandates at the national and regional levels interms of coastal zone management and biodiversity conservation not clearly defined in the contextof the ongoing decentralisation process.• Uncoordinated land use planning: Poor and uncoordinated planning between the different sectorsand between the national and regional levels make it impossible to reconcile conservation anddevelopment, and environment loses out first.• Insufficient natural resource management and protection of some key biodiversity hotspots: Lackof a comprehensive policy framework and inadequate legal protection of key biodiversity hotspotsresult in negative impacts encroaching with development.• Insufficient public input on how resources are used and inequitable benefit sharing: Poor levelof public participation in biodiversity conservation and highly skewed patterns in terms of the useof natural resources and benefits to people resulted in detachment of the people from conservationobjectives along the coast.2. NACOMA can play a key role in addressing the root causes by enhancing the understanding of thecoastal natural resources and their potential as economic generators, involving key stakeholders ina coastal policy development process, building capacity and strengthening the institutional setup atthe regional level for biodiversity conservation, and supporting targeted investments that helpreconcile biodiversity conservation and development.6. RECOMMENDATIONS FOR NACOMA6.1. The need for NACOMAThe threats to biodiversity loss and root causes identified in the previous section are pressing and needattention. The current efforts towards coastal biodiversity conservation and management, includingother GEF-funded projects such as the Protected Areas Project and the ICEMA Project, each addresssome of the specific issues though in some degree of isolation. In the current context of decentralisation,these isolated efforts need to be “glued together” into a coherent interventions framework that willcreate an enabling environment for effective and decentralised coastal zone management andbiodiversity conservation in Namibia. NACOMA was in fact conceived from the lack of an overallcoastal zone management framework in Namibia and the gaps that exist in biodiversity conservation.Integrated coastal zone management will promote the harmonisation of the biodiversity conservationand regional development planning frameworks described in Sections 3 and 4 respectively. Striving foreffective and equitable protection and use of coastal resources, the NACOMA Project has three maincomponents:1) Policy development and action planning for sustainable management of the Namib Coast:This component will lead to a comprehensive coastal policy framework that will not only result51

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regionsin a higher level of understanding and appreciation of Namibia’s coastal resources, includingbiodiversity, but also will provide the platform for legal review and the drafting of necessarylegislation to fill the gaps and sometimes contradictions that currently exist.2) Capacity building and institutional strengthening for conservation and management of theNamib Coast: This component will build the institutional capacity of the four Regional Councilsin terms of environmental planning and management. Not only will Regional Councils be in afar better position to contribute to the policy making process, they will also be capacitated toapply the policy in their mandates relating to planning, development and conservation.3) Targeted investments in biodiversity conservation and sustainable use in prioritisedecosystems: Finally, this component will help to “test drive” policy through the development oftargeted investment pilot projects that will also help to reconcile biodiversity conservation anddevelopment. Through the execution of these projects capacity will be built at regional and localgovernment level to implement other such projects outside and beyond the NACOMAintervention and to work in partnership with communities and other partners.Table 8 shows how the three NACOMA Project Components can contribute to addressing the rootcauses of biodiversity loss. The table lists the root causes identified in the previous section and analyseshow NACOMA can address them by complementing the current framework for biodiversityconservation and streamlining current or planned efforts. The contribution that each NACOMA ProjectComponent can make is highlighted in the table.52

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsTable 8Root causes to biodiversity loss and potential contribution of NACOMA Project ComponentsRoot causes of biodiversity loss COMPONENT 1:Policy and legal framework forcoastal zone managementPoor awareness and lack of knowledge ofcoastal and marine valuesThe most pressing threat to biodiversityconservation is the lack of understanding ofthe values of the coast and their potentialfor development.Unclear and centralised responsibilitiesRoles and mandates at the national andregional levels in terms of coastal zonemanagement and biodiversity conservationnot clearly defined in the context of theongoing decentralisation process.Uncoordinated land use planningPoor and uncoordinated planning betweenthe different sectors and between thenational and regional levels make itimpossible to reconcile conservation anddevelopment, and environment loses outfirst.• Involvement of key stakeholders andthe wider population in developingcoastal zone policy• Regional Coastal Profiles developedas well as an overarching one for allthe Namibian coastal areas andpopular versions for awarenessraising• Identification of gaps in planning andconservation legislation• Involvement of key coastal players inpolicy development process and inclarification of responsibilities• Revision of the role of RDPs, theprocess followed in producing themand their level of statutory power• Coordination between sectoralpolicies with a view to reconciledevelopment and conservation• A policy that adequately addressescoastal issues and processes,including the access to resources,their use and conservation ofbiodiversityCOMPONENT 2Institutional strengthening andcapacity building• Training of Regional Councils onbiodiversity conservation and naturalresource management and boostMET regional staff• Institutional capacity building ofRegional Councils, specifically interms of environmental planning andmanagement and building ofpartnerships for these purposes• Enhanced integration between thedifferent ministries and betweenthem and the local government• Revision of RDP developmentprocess to integrate key stakeholderssuch as MET• Improved and skilled structure at theregional level for land use planningand biodiversity conservation• Capacity building of RegionalCouncils to play a key role in termsof coastal policy processesCOMPONENT 3Targeted investments in biodiversityconservation• Information on biodiversity andexplaining the value of well managedcoastal areas• Economic assessment of coastalresources and their potential aseconomic generators, which willprovide a basis for selection oftargeted investments• Further research in biodiversity areaswhere there are information gaps• Bringing tiers of government as wellas other partners together throughinformation sharing andimplementation of targetedinvestment projects• Guidelines on how natural resourcescan be used in an environmentallysound manner, how benefits can beshared and “lessons learned” frompilot targeted investments projects53

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsRoot causes of biodiversity loss COMPONENT 1:Policy and legal framework forcoastal zone managementInsufficient natural resourcemanagement and protection of some keybiodiversity hotspotsLack of a comprehensive policy frameworkand inadequate legal protection of keybiodiversity hotspots result in negativeimpacts encroaching with development.• Design, manage and implement acomprehensive policy programme forNamibia• Support to proclamation of keybiodiversity hotspots currentlylacking legal protectionCOMPONENT 2Institutional strengthening andcapacity building• Development of monitoring andevaluation capacity in the RegionalCouncils• Capacity building and involvement inselection and monitoring process oftargeted investmentsCOMPONENT 3Targeted investments in biodiversityconservation• Support to targeted investments thatpromote biodiversity conservation inor outside protected areasInsufficient public input on howresources are used and inequitablebenefit sharingPoor level of public participation inbiodiversity conservation and highlyskewed patterns in terms of the use ofnatural resources and benefits to peopleresulted in detachment of the people fromconservation objectives along the coast.• Ensure that the concessionframework for protected areas andsectoral policies promote equitableopportunities to the wider population• Investigate and strengthenmechanisms and incentives fornatural resource use and conservationoutside or bordering protected areas• Enhanced integration betweenbiodiversity conservation objectivesand regional development vision• Promoting participation of RegionalCouncils and communities inprotected areas managementdevelopment process• Increased support to CBNRMactivities in rural and communalareas• Targeted investments that supportnatural resources-based developmentopen to the wider populationincluding communities and NGOs• Increased capacity of RegionalCouncils to steer natural resourcemanagement and conservationrelatedprojects outside, and beyondNACOMA duration54

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regions6.2. Recommendations for Targeted InvestmentsRecommendations for Components 1 and 2 are presented in the separate reports “Review of Policy andLegislation Pertaining to Coastal Zone Management” and “Analysis of the Institutional Capacity of theNamib Coast Regional Councils in Relation to the Decentralisation Process – Recommendations forInstitutional Strengthening and Capacity Building” respectively. This section focuses on NACOMAComponent 3 and presents recommendations for activities to be undertaken to support targetedinvestments in biodiversity conservation in the coastal areas. The NACOMA project is expected tosupport targeted activities for "on the ground" biodiversity conservation. This financial support willtarget specific projects and plans of regional and national biodiversity importance, as well as piloteconomic activities designed for sustainable resource, including feasibility studies and the design andimplementation of pilot strategies to increase the flow of benefits from the sustainable use of coastalecosystems, as long as they fall within the scope of the RDPs and the overall goal of the NACOMAProject. Activities are expected to vary according to the regions, and could also focus on transfrontieractivities in the Karas and Kunene regions. Support can be made available to both local and regionalgovernments and related institutions; national government ministries and agencies; NGOs and CBOs;traditional authorities; schools and communities; and individuals.In order for NACOMA to make a meaningful contribution in the coastal areas through investments onthe ground that address key natural resources and promote their conservation and wise use to be benefitof the coastal population, two sub-components are envisaged.The first sub-component is “Biodiversity Information” to support land use planning and biodiversityconservation in the coastal areas. An information management system must be put in place in theRegional Councils that can continuously be updated with regional socio-economic and environmentalinformation. Such a Regional Council-based system can be linked to, and be mutually supportive ofexisting databases such as ConInfo and InfoCom that exist at a national level but not necessarily in aformat that is easily accessible to Regional Councils, user friendly and relevant to their planning needs,or updatable by the envisaged environmental and development planners 108 . Each Regional Council willhave its own information system that can be ArcView based, following examples in the Richtersveldsouth of the border and Tanzania. The purpose will be to provide updated information easily to plannersand managers that they can use to make the right decisions and to provide spatial data in terms ofdevelopment and conservation for the RDPs. If successful, this land information system can beexpanded to other Regional Councils away from the coast. The different information systems at aregional level can collectively then make up the Namibia Land Information System (NALIS). Thissystem can assist in the identification of priority areas for targeted investments (during and afterNACOMA implementation) by crossing information on biodiversity values and regional developmenttrends.The second sub-component is “Targeted Investments” in biodiversity conservation and wise useaccording to priorities grounded on the above information. Targeted investments should not overlapwith, but rather complement or support existing initiatives in protected areas and conservancies andshould be relevant in the regional context by promoting the balance between biodiversity conservationand local economic development. It is important to note that this sub-component will necessarilyinclude strong capacity building for the Regional Councils so they will be able to use the knowledgegained in projects outside and beyond the duration of NACOMA. Special effort should be made to use108 Please see Report entitled “Analysis of the Institutional Capacity of the Namib Coast Regional Councils in Relationto the Decentralisation Process – Recommendations for Institutional Strengthening and Capacity Building” for moredetails about the envisaged environmental and development planners and the proposed NALIS.55

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regionsfunds for Targeted Investments as leverage to unlock other funding, including funding from associatedprojects in the coastal areas.Specific activities for each sub-component are described below and summarised in Table 9. Theseactivities provide an idea of what is entailed under each sub-component and can inform theidentification of more concrete steps during the preparation of the Project Brief. References are made toactivities envisaged for the other two components and more information about those activities can befound in their respective reports.6.2.1. Sub-component 1: Biodiversity InformationActivity 1.1 Review existing biodiversity information, sources of information and identify gaps andprioritiesA wealth of information has been generated by different plans and initiatives targeting the coastal areas.However, this information is sometimes difficult to access, its potential for supporting land use planningbeing left untapped. There are also important information gaps in relation to biodiversity values along thecoast. By building an integrated framework for coastal zone management, NACOMA can facilitate theidentification of information sources, gaps and priorities. A role players workshop in the beginning of theproject can be used for this purpose.Activity 1.2 Establish a programme to gather biodiversity information and continuously feed it into NALISOnce the information sources, gaps and priorities are identified, a programme can be established forinformation collection and storage. This activity will be centred at the Regional Councils and will progress asthe capacity building programme outlined in the Report “Analysis of the Institutional Capacity of the NamibCoast Regional Councils in Relation to the Decentralisation Process – Recommendations for InstitutionalStrengthening and Capacity Building” is implemented. The Namibia Land Information System (NALIS) is aspatial data storage structure that will be established in the coastal regions to support land use planningthrough the use of Geographic Information System (GIS). Information on biodiversity will also need to befed into NALIS as it becomes available. NALIS will be able to reconcile relevant data from environmentaland socio-economic databases, and will allow regional planners to update the regionally-based database asnecessary.Activity 1.3 Assess the economic value of coastal resourcesAn environmental economic analysis of the coastal areas is required to inform decision and policymakers that have an influence on the direction development will take in the Namibian coastal areas. Anestimation of the economic values associated with different coastal resources is required to support landuse planning and, in particular, the selection process of targeted investments to be made during and afterNACOMA implementation. ToR for this activity have been drafted and will be implemented during theNACOMA Preparation phase.Activity 1.4 Prepare/review coastal profiles for the four coastal regionsSocio-economic and biodiversity information pertaining to the four coastal areas can be synthesised intoCoastal Profiles. A Coastal Profile for the Erongo Region already exists (see Section 3.2.6 of this report) andthis activity can draw “lessons learned” from that process to review it and prepare Coastal Profiles for theother three regions with a similar structure. The process of developing these profiles will draw on theinformation contained in NALIS, use capacity built in the Regional Councils and include a system forcontinuously updating the profiles.Activity 1.5 Disseminate and make information accessible to interested partiesThe biodiversity information available should be made accessible to interested parties for the purposes ofawareness raising and the coastal policy development process envisaged in for Component 1. The results ofthe economic study should be summarised in a popular version as well as in a PowerPoint presentation that56

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regionscan be used in policy making processes. A popular version of the coastal profiles should be prepared forwider dissemination, as well as an overarching report that presents the profile of the entire coast.6.2.2. Sub-component 2: Targeted Investment ProjectsActivity 2.1 Establish mechanism for selection, approval and monitoring of targeted investmentsThe mechanism that should be established for NACOMA targeted investments was discussed in theNACOMA Preparation Workshop 109 and will be refined during the drafting of the Project Brief (Figure5). The structure composed of the Regional ICZMC (endorsing body) and the Targeted InvestmentCommittee at the PMU (approving body) will be established. The Project Steering Committee will actas a periodic monitoring body.Targeted Investments Committee at PMU(approving body)Regional ICZMC(endorsing body)Project Steering Committee(periodic monitoring)Project Proponents(proposing entities)Figure 5 Mechanism for Targeted Investments ProposalsAn Environmental Management Plan (EMP) will be prepared that will ensure as far as possible thatprojects funded under the third component of NACOMA will in fact achieve their goal as far aspossible. This Plan will consist of sets of criteria and guidelines that will describe the process, roles andresponsibilities for identifying, preparing, reviewing, approving and supervising physical investments.ToR for this activity have been prepared during the preparation phase.The mechanism for selection and monitoring of projects should be transparent and guided by the criteriadeveloped in Activity 2.1. Projects should be in line with NACOMA’s objectives and target biodiversityhotspots, as well as the national and regional vision for the coast. Activities that increase the flow ofbenefits from the sustainable use of coastal ecosystems and that promote community involvement andownership should be encouraged. Community-based activities, especially those that encouragediversification of economic activities in the region, should also be encouraged, as well as joint venturesthat involve the private sector and communities. Most importantly, targeted activities shoulddemonstrate results on the ground, be cost-effective and ensure sustainability in the long term.Mechanisms should be created to ensure geographical distribution while at the same time addressing thekey gaps and capitalising on the opportunities in biodiversity conservation that have been identified foreach region. While the key factor in terms of funding distribution should be the benefits for biodiversityconservation, consideration should be taken of the fact that certain regions are more advanced in termsof knowledge, planning and management of natural resources. The capacity building programmeoutlined in Report “Analysis of the Institutional Capacity of the Namib Coast Regional Councils in109 Mufeti, T., F. Odendaal, R. Garcia, J. Oranje and I.Kauvee, 2004. NACOMA Preparation Workshop – WorkshopProceedings. Swakopmund, 11-13 August 2004.57

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsRelation to the Decentralisation Process – Recommendations for Institutional Strengthening andCapacity Building” makes provisions for this uneven pattern.Activity 2.2 Support preparation of project profiles for on-site management of natural resources forbiodiversity conservationThe Regional Councils, through the sub-ICZMCs, will assist proponents in selecting projects that respond toNACOMA’s objectives, follow the guidelines developed, and will add to the region’s ICD framework asdescribed in the RDPs. The Regional Councils can play an extension services’ role to which they are wellequippedby having development officers that can be trained through NACOMA. Such officers can provideassistance with proposal writing, budgeting, etc. This activity is interlinked with the programme for regionalcapacity building.Activity 2.3 Support implementation of project profiles for on-site management of natural resources forbiodiversity conservation and aftercare systemProject management for many Regional Councils staff and communities will be a new experience. On-sitemanagement is often where such projects fail. Trained Regional Council staff can play a supporting role andthe regional ICZMCs will monitor implementation of projects.Activity 2.4 Evaluate and share “lessons learned” and make them accessibleThe results from the projects on the ground will be analysed. Their impact on biodiversity conservationas well as “lessons learned” in terms of structure for protection of biodiversity on the ground will bediscussed. “Lessons learned” will be shared between Regional Councils, line ministries and other partiesthat were involved in implementation of targeted investments or were affected by them.By and large the third component will help along biodiversity conservation by linking communities tonatural resources in pilot projects that can be emulated outside the NACOMA Project and hopefully fora long time afterwards.58

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsTable 9 Activities recommended for NACOMA Component 3Subcomponent1. BiodiversityinformationActivities Priority* Indicators1.1 Review existing biodiversity information,sources of information and identify gapsand priorities1.2 Establish a programme to gatherbiodiversity information and continuouslyfeed it into NALIS1.3 Assess the economic value of coastalresources (a preliminary assessmentduring the preparatory phase will berefined during implementation)1.4 Prepare/review coastal profiles for thefour coastal regions1.5 Disseminate and make informationaccessible to interested parties1 • Information on biodiversity identified and collated• Information gaps identified and priorities for collection defined• Links built with ConInfo, InfoCom and Namibia Atlas2 • Environmental Planner in Regional Councils trained on biodiversityinformation collection and storage in NALIS• Communication and flow of information between Regional Councils and othersources of biodiversity information (e.g. MET) enhanced• NALIS fed with biodiversity information by Environmental Planner1 • Enhanced understanding of the different natural resources in the coastal areas,their current uses, benefits and future potential• Guidelines developed on where funding is best spent in the coastal areas• Options identified for financing coastal area conservation and development3 • Environmental and economic planners trained to develop coastal profiles and toaccess and produce information from NALIS• Coastal Profile of Erongo Region revised• Coastal Profiles of all four regions developed in a similar format• Overarching Summary Profile for the entire Namib Coast produced, also aspopularised versions2 • Summary of economic assessment of coastal resources prepared anddisseminated• Popular version of overarching profile of the Namibia coast prepared anddisseminated, and adapted for audio and visual media, including television• Enhanced understanding and awareness of the importance of coastalbiodiversity and their potential benefits as economic generators to the coastalpopulation59

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsSubcomponent2. TargetedinvestmentProjectsActivities Priority* Indicators2.1 Establish mechanism for selection,approval and monitoring of targetedinvestments2.2 Support preparation of project profiles foron-site management of natural resourcesfor biodiversity conservation2.3 Support implementation of project profilesfor on-site management of naturalresources for biodiversity conservationand aftercare system2.4 Evaluate and share “lessons learned” andmake them accessible1 • Process for identifying, preparing, reviewing, approving and supervisingmonetary investments defined• EMP and guidelines and criteria defined for targeted investments to besupported by NACOMA for selection of projects• Template documents drafted that can be used to solicit, receive, evaluate andkeep track of projects, as well as for project auditing• List of projects not eligible for funding prepared3 • Environmental Planner and Development Planner in Regional Councils trainedto assist potential proponents in selecting projects and writing proposals, also toother agencies• Projects identified and proposals prepared in the four coastal regions4 • Environmental Planner in Regional Councils trained to assist monitoring andaftercare of projects implemented• Projects for site-specific natural resources management ongoing in the fourcoastal regions• “After care” provided through Development Officers in Regional Councilsuntil projects are on a solid footing5 • Results of on-site project assessed• “Lessons learned” gathered and shared between the coastal regions, lineministries and other stakeholders involved in implementation or affected by theprojectsPriority: All activities are considered priority; the scale of 1(highest) to 5 (lowest) indicates “urgency” rather than absolute priority.60

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsREFERENCESBarnard, P. (ed). 1998. Biological diversity in Namibia: a country study. Windhoek: Namibian NationalBiodiversity Task Force, pp 1-332.Barnard, P. and T. Shikongo, 2000. Namibia’s National Report to the Fifth Conference of Parties onImplementation of the Convention on Biological Diversity. Namibian National BiodiversityProgramme, Directorate of Environmental Affairs, Ministry of Environment and Tourism.Beatley, T., D. Brower and A. Schwab. 1994. An Introduction to Coastal Zone Management.Washington, D.C: Island Press.Boonzaaier, W. and K. /Awarab, 2003. Policy Framework Options for Tourism Concessioning inNamibia. A record of Documentary Reviews and Stakeholder Consultations and Possible PolicyOptions. Ministry of Environment and Tourism. February 2003, pp 1-43.Burger, L., 1998. Walvis Bay Lagoon integrated environmental management plan. Cape Town:Environmental Evaluation Unit, pp 1-53.Clayton, M and Avafia, T., 2002. Management and Monitoring Plan for the dune belt betweenSwakopmund and Walvis Bay: Annexure A. Unpublished document, pp 1-63.Clayton, M. (ed.), 2004. Walvis Bay Nature Reserve Training Wokrshop - Report. WelwitchiaConference Centre, Walvis Bay, 28 – 30 July 2004. Walvis Bay Local Agenda 21.Dini, J., 2001. The Orange River Mouth Transboundary Ramsar Site. Report for the IntegratedConservation and Development Workshop, April, 2001. Cape Town: Eco Africa EnvironmentalConsultants.Enviro-Fish Africa, 2003. Namibian Mariculture Sub-Sector Scan. Walvis Bay Spatial DevelopmentInitiative. March 2003.GEF/WB, 2004. Namibia Integrated Community-Based Ecosystem Management (ICEMA) – ProjectDocument. May 2004.Government of the Republic of Namibia, 1990. The Constitution of Namibia. Out of Africa Publishers,pp 1-90.Government of the Republic of Namibia, 2000. State of the environment report on parks, tourism andbiodiversity. Online. Available from ftp://ftp.polytechnic.edu.na/pub/soer/biodiversity [28 July 2000].Government of the Republic of Namibia, 2004. Namibia Vision 2030. Policy framework for long-termnational development: main report, pp l-248.Government of the Republic of Namibia, undated a. Second National Development Plan (NDP2)2001/2002 – 2005-2006: volume 1 macroeconomics, sectoral and cross sectoral policies.Windhoek, National Planning Commission. Chapters 23-47.Government of the Republic of Namibia, undated b. Second National Development Plan (NDP2)2001/2002 – 2005-2006. Windhoek, National Planning Commission.Government of the Republic of Namibia, undated c. Second National Development Plan (NDP2)2001/2002 – 2005-2006: volume 2 regional development perspectives. Windhoek, NationalPlanning Commission, pp selected extracts.61

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsHeath, R., 2001. Orange River Mouth Development Plan, Phase 1: draft report. Pulles Howard and DeLange: Auckland Park. pp1-5.14.Heath, R., 2001. Orange River Mouth Development Plan, Phase 2: draft report. Pulles Howard and DeLange: Auckland Park, pp 1-24IUCN, 2004. The World Heritage List: future priorities for a credible and complete list of natural andmixed sites. A Strategy Paper prepared by IUCN. April 2004, pp 1-19.Kolberg, H. and W. Kilian, 2003. Report on an Aerial Survey of Iona National Park, Angola, 6 to 14June 2003. Technical Reports of Scientific Services, Directorate Scientific Services, Ministry ofEnvironment and Tourism. Windhoek, Namibia, December 2003.Masteller, M., 1998. Baseline Study on the Establishment of Marine Reserves in Namibia. Short-termConsultancy Report for GOPA Consultants. Advisory Assistance to the Ministry of Fisheries andMarine Resources.McGann, J., F. Odendaal and L. Nakanuku, 2001. Report on the integrated coastal zone workshop heldin Swakopmund, Namibia May 10-11, 2001, pp 1-59.Ministry of Environment and Tourism, 1994. Conservation of biotic diversity and habitat protection.Policy document, Ministry of Environment and Tourism, pp 1-3.Ministry of Environment and Tourism, 1997. Integrated coastal zone management of the ErongoRegion Namibia. Inception Report. Ramboll: Ministry of Environment and Energy, pp 1-43.Ministry of Environment and Tourism, 1999a. Policy for prospecting and mining in protected areas andnational monuments. Policy Document. Ministry of Environment and Tourism, pp 1-10.Ministry of Environment and Tourism, 1999b. Proposal to produce a land use plan for the Sperrgebietand MEOB – conception area of the Namib Maukluft Park. Walmsley Environmental Consultants,pp 1-71.Ministry of Environment and Tourism, 2001. The Sperrgebiet land use plan (Second Draft). Project No:W309/1 January2001. Walmsley Environmental Consultants, pp 1-173.Ministry of Environment and Tourism, 2002a. National Report to the Conference of the Parties on theImplementation of the Convention on Biological Diversity in Namibia. April 2002.Ministry of Environment and Tourism, 2002b. The Parks and Wildlife Management Bill – Draft fordiscussion purposes only. June 2002.Ministry of Environment and Tourism, 2003a. Namib-Naukluft Park: Management and tourismdevelopment plan. (Draft 3/04). Windhoek: Ministry of Environment and Tourism, pp 1-36.Ministry of Environment and Tourism, 2003b. Policy Framework for Concessions in ProclaimedProtected Areas. September 2004. Unpublished document.Ministry of Environment and Tourism, 2004a. Namibia’s Draft Wetlands Policy. April 2004Ministry of Environment and Tourism, 2004b. Policy Framework for Concessions in ProclaimedProtected Areas. 7 December 2004.Ministry of Environment and Tourism, Ministry of Lands, Resettlement and Rehabilitation, Ministry ofMines and Energy, 2001. The MEOB – conception area land use plan. Report No W309/2.Walmsley Environmental Consultants, pp 1-44.Ministry of Environment and Tourism, undated a. Biodiversity and development: an overview ofNamibia’s ten-year strategic plan of action for sustainable development through biodiversityconservation 2001-2010, pp 1-137.62

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsMinistry of Environment and Tourism, undated b. Project document for integrated coastal zonemanagement for the Erongo region. Ministry of Environment and Energy, pp 1-65.Ministry of Fisheries and Marine Resources, 1992. Sea Fisheries Act (Act 29 of 1992).Ministry of Fisheries and Marine Resources, 2000. Marine Resources Act (27 of 2000).Molloy, F (ed) and T. Reinikainen (ed). 2003. Namibia’s Marine Environment. Windhoek: DEAEnvironment Information Systems Unit; Ministry of Environment and Tourism, Namibia, pp l-162.Mufeti, T., F. Odendaal, R. Garcia, J. Oranje and I.Kauvee, 2004. NACOMA Preparation Workshop –Workshop Proceedings. Swakopmund, 11-13 August 2004.NACOBTA, 2002. Namibia North West Tourism Options Plan – Phase 2. Windhoek: Ministry ofEnvironment and Tourism, pp 1-90.National Planning Commission, 2001. 2001 Population and Housing Census.O’Toole, M.J., 1997. Marine Environmental threats in Namibia. Research Discussion Paper, 23.Windhoek: DEA Publications Department, Ministry of Environment and Tourism, pp 1-48.Regional Council of Erongo, 1999. Coastal Profile of the Erongo Region. Integrated coastal zoneproject. August 1999, pp 1-214.Regional Council of Hardap and Hardap Tourism Board, 2003. Hardap Region Tourism DevelopmentPlan 2003. Mariental, pp 1-110.Regional Council of Erongo, undated. Erongo Regional Development Plan 1997-2000. Unpublisheddocument, pp 1-27.Regional Council of Hardap, undated. Regional Development Plan 2001/2002 2005/2006, HardapRegion. Namibian Development Consultants. Mariental, pp selected extracts.Regional Council of Karas, undated., undated. Regional Development Plan Karas Region Final Draft.Namibian Development Consultants. Keetmanshoop, pp 1-162.Regional Council of Kunene, undated. Regional Development Plan 2001/2002 – 2005/2006, KuneneRegion. Opuwo:. Namibian Development Consultants, pp 1-147.Stubenrauch Planning Consultants and DECOSA, 2003. Community tourism market research for theSouth of Namibia. Stubenrauch Planning Consultants and Development Consultants for SouthernAfrica, pp 1-144.Stubenrauch Planning Consultants cc., 1999. A structure plan for Walvis Bay Volume 1: generaldiscussions and findings. Stubenrauch Planning Consultants: Walvis Bay, pp selected extracts.Suich, H. et al., forthcoming. Reflections on Transfrontier Conservation Areas (TFCAs) using theemerging Greater !Gariep TFCA along the Namibian and South African border as an example.Tapscott, C., 1999. An overview of the socio-economics of some key maritime industries in the BenguelaCurrent region. A Report Prepared on Behalf of the Benguela Current Large Marine EcosystemProject, Windhoek, October 1999. Extracts in DLIST Course material “The Socio-economiclandscape”, www.dlist.orgUNDP, 2001. Namibia Human Development Report 2000/2001.63

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsANNEX I: TERMS OF REFERENCETerms of ReferenceRapid assessment of the development plans, biodiversity conservation projects and socioeconomicsituation of the Namib coastal regions (Kunene, Erongo, Hardap and Karas)1. BackgroundThe Namibian Government (GRN) has received preparation funds from the Global EnvironmentalFacility (GEF) to prepare the "Namib Coast Biodiversity Conservation and Management Project"(NACOMA). The project intends to support Integrated Coastal Zone Management and biodiversityconservation implemented through an effective coastal zone planning framework. The project will beimplemented in two phases, an initial 15 month preparatory phase and a four year implementationphase. The project will be implemented through the Regional Councils in Kunene, Hardap. Erongo, andKaras.The project has three components targeting: (i) Policy and Planning for Sustainable Management of theNamib Coast (including capacity building and institutional strengthening of the Regional Councils); (ii)Biodiversity Conservation and Monitoring & Evaluation; and (iii) Project Coordination Support.The Integrated Coastal Zone Management Committee (ICZMC) and its Secretariat will facilitate andcoordinate the preparation phase activities and project formulation. The ICZMC is representing the fourRegional Councils of the coastal regions of Namibia as well as the Ministry of Environment andTourism, the Ministry of Regional Local Government and Housing, the Ministry of Fisheries andMarine Resources, and the Ministry of Mines and Energy. The ICZMC’s Secretariat is currently locatedin the Erongo Regional Council. The main output of the preparatory phase is the project document andproject implementation manual, on which 4 year project implementation will be based.During the preparation phase, a number of assessments and data collection activities are needed to feeddirectly into project document preparation, including a review of policy and legislation pertaining tocoastal zone management, and an institutional capacity analysis of regional councils andrecommendations for targeted institutional strengthening and capacity building. This particularconsultancy will respond to the need to gain an overview of the ongoing and/or proposed developmentinitiatives and plans. Together with an update on ongoing, recent or proposed biodiversity conservationactivities and natural resources management projects for the 4 coastal regions, this consultancy willassist with focusing project activities to be supported under project implementation.At national level big strides have been made recently in terms of availability and understanding ofcoastal zone biodiversity, mainly thorough the National Biodiversity Programme and Task Force, andrelated programmes. There are, however, big differences in the state of information and knowledgeavailable among the regions. The Erongo Region already has a Coastal Zone Profile, specificmanagement plans for a number of species and habitats, and information developed under recentprojects (Walvis Bay Local Agenda 21 Project and Integrated Coastal Zone Management Project(ICZM)), while the other regions are less advanced. The scope of work and the approach must thereforebe flexible and vary among the regions. In Erongo it will focus more on an update of the existing plansand information, while more time is needed in the other regions to collect information.64

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regions2. Objectives of the assignment:Objectives of this assignment are to identify the existing, ongoing and proposed Development Plans foreach of the four Coastal Regions, in order to determine their potential impact on biodiversityconservation sites and their (potential) socioeconomic impacts on the coastal population. Theconsultancy would also aim to identify other development activities and biodiversity hotspots (includingphysical locations) currently not covered in development plans and conservation efforts. Further, theconsultancy would contribute to the preparation of outlines for profiles to be developed or updated forthe four coastal regions after completion of the preparatory phase and during project implemenation.3. Key Tasks:The consultant will work under the supervision of the Project Coordinator and in close collaborationwith staff form the Regional Councils, and involved line ministries. All the regions should be visited tocollect data from all available sources (Regional Councils, local government, line ministries, NGOs,private and public enterprises, projects, National Statistics Office). Key tasks for this consultancyinclude:1. Through visits and consultations with the Regional Councils, government ministries in regions,municipalities and other stakeholders, and through study of secondary information, review theexisting or proposed Regional Development Plans, Land Use Plans or other structural planstargeting the coastal zone, at regional and local level.2. Compile and make a list of the proposed and ongoing projects in relation to the DevelopmentPlans, Land use plans and/or other structural plans targeting the coastal zone, at regional andlocal level, for each of the coastal regions.3. To the extent possible, summarise the socioeconomic impacts of the proposed developmentplans, and expected trends in employment and migration towards the coastal zone.4. Summarise and list the existing or proposed conservation and management plans/projects ofpriority conservation areas and/or biodiversity hotpots per location and region.5. Review and compile the threats from the development plans and/or other activities, to theidentified known conservation sites in the regions in a tabular format specifying potential threatcategory (such as industrial development, residential development, mining etc.) vs. the knownsite of conservation importance.6. To the extent possible, suggest new potential economic activities in the coastal area that willincrease the benefits flow from sustainable use of coastal resources to the local communitiesthrough regional governments.7. Coordinate activities with consultants on policy/legal issues and institutional development whereappropriate.4. OutputsThe consultant will prepare a report containing the following information with details specified for eachregion:· A short general introduction to the major economic indicators based on the region's most importantresources;· A presentation of the development plans (structural/land use and others) for each of the coastalregions, with the most important proposed or ongoing projects targeting the coastal zone;· A summary of the socioeconomic impacts of the proposed development plans;· A detailed analysis of threats and root causes/barriers to biodiversity conservation on the Namibcoast (in line with development plans) and approaches and/or actions to be supported by theNACOMA project in order to address threats and contribute to barrier removal;65

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal Regions· A description of ongoing and planned conservation and management plans/projects of priorityconservation areas in each region (or lack thereof);· A compilation of the threats from the development plans and/or other activities, to the identifiedconservation sites and biodiversity hotspots;· A description of critical cross-cutting issues/concerns that are perceived to be contributing tounsustainable coastal development and affecting biodiversity conservation in the Namib coast.· A set of recommendation as to how the NACOMA project can support the regions to bestintervene and/or to address these issues.The draft report would be presented to the ICZMC for comments and questions. Comments and inputreceived would be incorporated before final submission of the report.5. DurationApproximately 1.5 month (~33 days effective)6. Paymenta) Upon submission of an inception report, 10% of total contract value will be paid.b) Upon submission of the first draft report 110 , 40% of total contract value will be paid.c) Upon submission of a final report incorporating comments received, 50% of total contract value willbe paid.7. QualificationsThe consultant should have more than 5 years of relevant experience and a post graduate education insociology and/or biology or other relevant education. Should be experienced in carrying out similarassignments.8. Expression of interestInterested individuals or teams are requested to submit their covering letter and a detailed CV orportfolios to the Project Coordinator, Mr. Timoteus Mufeti, Erongo Regional Council, 461 TobiasHainyeko Street, Swakopmund, Tel. (064) 403905, Fax 064 412701, Email: tmufeti@iway.na. Forfurther information, also contact Mr. Timoteus Mufeti. Applications may be submitted by post, hand oremail to Timoteus Mufeti, but applications sent by fax will not be considered. Only short listedapplicants will be contacted, and documents cannot be returned.a) 110 The first draft of the proposed program should be circulated to key stakeholders for review,comments, and input. Comments should be addressed and incorporated into the final report.66

NACOMA Project - Preparation phaseRapid Assessment of the Development Plans, Biodiversity Conservation Projects and Socio-Economic Situation of the Namib Coastal RegionsANNEX II: LIST OF KEY STAKEHOLDERS CONSULTEDName Organisation Position Content of discussion Meeting dateBARNARD P. National Botanical The Global Invasive Species Threats to biodiversity in Namibia and gaps in biodiversity08/Sep/2004Institute (South Africa) ProgrammeconservationBARNES J. Design and Development DirectorThreats to biodiversity in Namibia and gaps in biodiversity18/Aug/2004Services / METconservationBEYTELL B. Ministry of Environment Director, Parks and Wildlife Status of protected areas and future plans, tourism concession 13/Oct/2004and Tourism (MET)framework, conservancies, targeted investmentsBRABY R. Ministry of Environment Chief Warden – Wildlife Gaps in biodiversity conservation; capacity at MET and Regional 16/Aug/2004and Tourism (MET) Management (Erongo) Councils; protected areas plansEIMAN T. Namibian Ports Environmental Control Major environmental problems resulting from the port operation and 17/Aug/2004Authority (NAMPORT) Officerprojects in place to address them, specifically the EMS in preparationGURIRAS C.W. Erongo Regional Regional Economic Planner Regional Council’s capacity, ongoing and required projects for 16/Aug/2004Councilbiodiversity conservationHERERO J. Hardap Regional Regional Economic Planner Extent of coastal zone, Regional Council’s capacity for environmental 11/Oct/2004Councilplanning, targeted investments and RDP processLAWRENCE C. SwakopmundGM – Health Services Tasks of the municipality in environmental protection and16/Aug/2004MunicipalitymanagementLINDEQUE P. Ministry of Environment Director, Scientific Services Planning systems, status of Ramsar sites, positioning of environmental 15/Oct/2004and Tourism (MET)planning capacity in Regional CouncilsMAKETO C.S. Ministry of Environment Chief Central Warden Gaps in biodiversity conservation; capacity at MET and Regional 16/Aug/2004and Tourism (MET) (Erongo)Councils; protected areas plansO’TOOLE M. BCLME Programme Chief Technical Advisor Threats to the marine environment; fishing opportunities for coastal 07/Oct/2004populations, MPAsPAXTON M. “Strengthening the Project Coordinator, UNDP Scope and work plan of “Strengthening the System of National 15/Oct/2004System of NationalProtected Areas” ProjectProtected Areas” ProjectSHIKONGO S. Ministry of Environmentand Tourism (MET)Acting Deputy Director NBSAP process and implementation phase, priorities in terms ofbiodiversity conservation, targeted investments12/Oct/200413/Oct/2004USHONA D. Walvis Bay Municipality Manager – Solid Waste &EnvironmentGaps in biodiversity conservation; Local Agenda 21 Project16/Aug/200467

REVIEW OF POLICY AND LEGISLATION PERTAINING TOCOASTAL ZONE MANAGEMENTNAMIB COAST BIODIVERSITY CONSERVATION AND MANAGEMENT(NACOMA) PROJECT: PREPARATION PHASEPrepared by EcoAfrica Environmental ConsultantsDraft VersionMarch 2005

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone ManagementTABLE OF CONTENTSAcronyms 31. Introduction 42. The Constitutional setting 42.1 Applicable laws 42.2 International Conventions 52.3 Environmental Considerations and ownership of natural resources 62.4 Governance 73. Key government agencies involved in the Namibian coastal areas 83.1 Arms of Government 83.2 Government Departments 93.2.1 Ministry of Environment and Tourism (MET) 93.2.2 Ministry of Fisheries and Marine Resources (MFMR) 93.2.3 Ministry of Mines and Energy (MME) 93.2.4 Ministry of Agriculture, Water and Rural Development (MAWRD) 103.2.5 Ministry of Regional, Local Government and Housing (MRLGH) 103.2.6 Ministry of Works Transport and Communication (MWTC) 103.2.7 Ministry of Lands, Resettlement and Rehabilitation (MLRR) 103.3 Key Government Institutions 113.3.1 National Planning Commission Secretariat 113.3.2 Town and Regional Planning Board (“NAMPAB”) 113.3.3 Inter-ministerial Committee for Land-Use Planning (IMSCLUP) 134. Extent of the Coastal Area 135. Relevant legislation: brief assessment 145.1 General 145.2 Environmental and natural resources related laws and policies 145.2.1 Environmental management laws and draft bills 155.2.2 Resource related laws 151

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Management5.2.3 Conservation laws 175.2.4 Mining 185.2.5 Tourism 195.3 Planning legislation 205.4 Dedicated coastal legislation 215.5 Pollution control and waste management laws 235.5.1 Atmospheric pollution 235.5.2 Freshwater pollution 235.5.3 Land-based pollution 235.5.4 Marine pollution 235.6 Governance related laws 245.6.1 Regional Councils 245.6.2 Decentralization initiative 256. Conclusions 277. Recommendations and the way forward 30Annex 1: Logical frameworkAnnex 2: Relevant international conventions to which Namibia is a partyAnnex 3: Laws relevant to coastal area managementAnnex 4: Policy and planning documentsAnnex 5: Terms of Reference32354144472

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone ManagementACRONYMSCITESCOPDIPEIAIDPIMOIMSCLUPMAWRDMETMFMRMLRRMMEMRLGHMWTCNACOBTANACOMANAMPABNBSAPNDPNGONPCRCRDPSWAUNUNCLOSConvention on International Trade in Endangered Species of Wildlife Fauna and FloraConference of PartiesDecentralisation Implementation PlanEnvironmental Impact AssessmentIntegrated Development PlanInternational Maritime OrganisationInter-Ministerial Committee for Land-Use PlanningMinistry of Agriculture, Water and Rural DevelopmentMinistry of Environment and TourismMinistry of Fisheries and Marine ResourcesMinistry of Lands, Resettlement and RehabilitationMinistry of Mines and EnergyMinistry of Regional and Local Government and HousingMinistry of Works, Transport and CommunicationNamibian Community Based Tourism AssociationNamib Coast Biodiversity Conservation and ManagementNamibia Planning and Advisory BoardNational Biodiversity Strategy and Action PlanNational Development PlanNon Governmental OrganisationNational Planning CommissionRegional CouncilRegional Development PlanSouth West AfricaUnited NationsUnited Nations Convention on Law of the Sea3

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Management1. IntroductionThe underlying objective of this report 1 is to outline and assess the legal and policyframework to support sustainable development of the coastal zone in Namibia. It providesan overview of the legislation pertaining to coastal area management in Namibia,identifies gaps in its coverage, and surveys its current application. It does so in thecontext of the constitutional and governance framework in Namibia, the relevantconventions to which it is, or ought to be, a party to, and refers to various policydocuments in this regard. The report concludes by summarising the legal context for thedevelopment and management planning options. It also includes 5 annexes:Annex 1: Logical FrameworkAnnex 2: Relevant International Conventions to which Namibia is a Party, with a briefdescription of eachAnnex 3: Laws Relevant to Coastal Area Management, with a brief description of eachAnnex 4: Relevant Policy Documents and PlansAnnex 5: Terms of Reference2. The Constitutional setting2.1 Applicable lawsThe Republic of Namibia is an independent sovereign state governed by a democraticConstitution having attained independence from South Africa in 1990. The Constitutionstipulates that “all laws that were in force immediately before the date of Independenceshall remain in force until repealed or amended by an Act of Parliament…” (Art 140).Thus certain old order legislation was extended to the territory by South Africa, but otherlegislation was not. The applicability of South African legislation to the then South WestAfrica (now Namibia) depends on various factors including the date on which SouthAfrica passed the legislation and South West Africa’s status at the time. Our researchconcludes that significantly the South African Sea Shore Act, Act 21 of 1935, which vestsownership of the sea and seashore in the State President of South Africa, was neverextended to South West Africa and is not applicable to Namibia today (see 5.3 below).1 This report was prepared to provide input into the Project Brief of the “Namib Coast BiodiversityConservation and Management (NACOMA)” Project. It is not intended to be an exhaustive review butrather to draw attention to legal and policy issues that needs to be addressed during the NACOMAProject implementation phase.4

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Management2.2 International ConventionsThe Constitution also provides that “…the general rules of public international law andinternational agreements binding upon Namibia under this Constitution shall form part ofthe law of Namibia.” (Art 144). Thus Namibia succeeded to a number of Conventionswhen it became independent in 1990 but also adopted a number of further internationalconventions since independence (Annex 2).This statement is however rendered complex due to the fact that prior to independence in1990, South Africa’s jurisdiction over Namibia was questionable at least after 1966 whenan Advisory Opinion of the International Court of Justice questioned whether SouthAfrica’s mandate over the territory was still valid. For the purposes of this report itsuffices to say that it is questionable whether the Conventions which South Africaadopted between 1966 and 1990 also extended to the then territory of South West Africa.This is a complex legal question which is simply highlighted but not elaborated on here.In short, while there is no doubt that pre-1966 conventions and post-1990 conventionsadopted by Namibia are applicable to it, there is some uncertainty as to whether thoseadopted by South Africa between 1966 and 1990 apply in Namibia.Among the more important international treaties which Namibia adopted postindependence is the UN Convention on the Law of the Sea which recognises a 12 nauticalmile territorial sea and 200 nautical mile exclusive economic zone and gives domesticeffect to the Territorial Sea and Exclusive Economic Zone of Namibia Act (3 of 1990).This is relevant for a number of reasons including the seaward extent of the coastal areadiscussed in paragraph 4 below.Also important is Namibia’s ratification of the Convention on Biodiversity in 1997. Theoverall objective of the Convention particularly pertinent to coastal area management inNamibia is quoted here:... the conservation of biological diversity, the sustainable use of its components and the fair and equitablesharing of the benefits arising out of the utilisation of genetic resources, including by appropriate access togenetic resources and by appropriate transfer of relevant technologies, taking into account all rights overthose resources and to technologies, and by appropriate funding.(Art 1. Own emphasis)5

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone ManagementIt is suggested that the three facets referred to in this article, namely:1 the conservation of biological diversity;2 the sustainable use of its components; and3 the fair and equitable sharing of the benefits arising from the use of coastalresources;should underlie coastal area management of the Namibian coastline. This aspect shouldbe taken up in Namibia’s domestic legislation discussed in Section 5. below.It can be mentioned here that while Namibia is party to most contemporaryinternational environmental Conventions, it is not a party to the 1979 BonnConvention on the Conservation of Migratory Species of Wild Animals. Howeverunder the auspices of the Ministry of Fisheries and Marine Resources (MFMR)Namibia did adopt in 1999 the non-binding Memorandum of Understandingconcerning Conservation Measures for Marine Turtles of the Atlantic Coast of Africa.2.3 Environmental considerations and ownership of natural resourcesChapter 11 of the Constitution titled “Principles of State Policy” includes environmentalconsiderations in that it exhorts the government to maintain ecosystems, essentialecological processes and the biological diversity of Namibia as well as to ensuresustainable use of natural resources for the benefit of all Namibians and to desist fromallowing the dumping of toxic and nuclear waste in Namibia. Article 100 of theConstitution vests ownership of natural resources, whether in or under the sea or on land,in the State unless these are otherwise lawfully owned.Conclusion:A feature of the Namibian legal and policy setting is its close adherence, at least onpaper, to a democratic constitution based on human rights and the rule of law. TheConstitution also makes clear reference to the State’s responsibility to ensure themaintenance and proper use of ecosystems and natural resources, environmentalprotection and benefit to all Namibians of such resources and actions.6

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Management2.4 GovernanceThe Constitution is also relevant to governance in that it provides for the following:2.4.1 National Council in Chapter 8. It sets out the National Council’s membership,that is, two members from each region (Art 69); the Council’s powers andfunctions (Arts 74 & 75) and related matters some of which are to beelaborated on in an Act of Parliament.2.4.2 Regional and Local Government provided for in chapter 12 of theConstitution. It stipulates that Namibia shall consist of regions and localauthorities as defined in an Act of Parliament (art 102) (1).2.4.3 The Regions are governed by Regional Councils (art 103). Their powers arecurrently limited to: electing members of the National council; the exercisewithin the respective regions of executive powers which have been assignedto them by Act of Parliament or delegated to them by the President; to raiserevenue, or share in revenue raised by national Government; to exercise anyother powers as may be determined by an Act of Parliament (Art 108).Regional Councils are run by management committees. These aspects arefleshed out in the Regional Councils Act, Act 22 of 1992 and are elaboratedon under legislation 5.6.1 below.2.4.4 The nature and functions of local authorities is similarly fleshed out in theLocal Authorities Act, Act (23 of 1992) as elaborated on in 5.3 below.2.4.5 The Constitution also provides for a Council of Traditional Leaders (art 102)(5). This Council is elaborated on in the Traditional Authorities Act, Act 17 of1995.However a significant development is a decentralisation initiative which makesprovisions to the devolution of powers to Local Authorities and Regional Councils inparticular. The legislative basis of this decentralisation initiative is a DecentralisationEnabling Act, Act 33 of 2000, which provides for the regulation and decentralisation toRegional Councils and Local Authority Councils of functions vesting in line Ministries.This would obviously include functions relevant to coastal management. TheDecentralisation Policy was approved by Cabinet in 1996 and was subsequently adoptedby the National Assembly in 1998. It has been elaborated on by the Ministry of Regional7

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Managementand Local Government and Housing (MRLGH) in a number of reports 2 . Decentralisationas it pertains to the coastal area is elaborated on in 5.6.2 below.Conclusion:The decentralisation process can enable the effective implementation of the variousimperatives relating to the environment and natural resources emanating from theConstitution and implied by Namibia’s ratification of conventions. Decentralisation alsopresents the opportunity to put integrated coastal management in place in the RegionalCouncils structure and boost biodiversity conservation at the local level. However, forthis opportunity to translate into reality there has to be legislation that gives RegionalCouncils clear mandates, powers and mechanisms to manage such processes and relatedstructures, raise funds and obtain clarity as to the respective roles of nationaldepartments and regional and local governments regarding community based-naturalresource management.3. Key government agencies involved in the coastal areaThe key role players are:3.1 Arms of Government- National Council – an ancillary body to Parliament referred to above.- Regional Councils – constituted by the Constitution as seen above and elaborated onin the Regional Councils Act, Act 22 of 1992. In the coastal area there are fourregions: Karas, Hardap, Erongo and Kunene. The first mentioned two regions straddlethe width of the country from the Atlantic Ocean to the eastern border.- Local Government – the main ones in the coastal area are: Swakopmund, WalvisBay, Henties Bay and Lüderitz. But cognisance must also be taken of various smallermunicipalities, “autonomous”, villages, settlements, which fall under the respectiveRegional Councils.- National Planning Commission (the NPC), established under the National PlanningCommission Act, Act 15 of 1994 as elaborated on under 3.3.1 below.2 “Decentralization in Namibia. The Policy, its Development and Implementation” of March 1998;“Decentralization in Namibia. Situation Analysis” of April 1998; “A Report of the Study Tour toUganda and Ghana on Decentralization by a Delegation from Namibia” of August 1999; and“Decentralization Performance: Functions – Rules – Procedures” of June 2000.8

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Management- Council of Traditional Authorities.- Community Courts Act, Act 10 of 2003.3.2 Government Departments3.2.1 Ministry of Environment and Tourism (MET), responsible for promotingsustainable development, biodiversity conservation, participatory environmentalplanning; promotion of tourism and tourism management.Administers - Sea Shore Ordinance, Ordinance 37 of 1958;- Nature Conservation Ordinance, Ordinance 4 of 1975 andamendment;- Forest Act, Act 12 of 2001.Prepared - EIA policy- draft Environmental Management Act- draft Parks and Wildlife Bill- report on recommendation of a draft Integrated Waste ManagementBillGap:The MET has prepared comprehensive environmental legislation, built on a solidfoundation of participative policy initiatives and reports, but these, in particular the draftEnvironmental Management Bill, have not culminated in actual legislation. Moreover,although many laws would apply to coastal as well as inland areas, there is a deficiencyin dedicated coastal area legislation as elaborated on under a separate heading below.3.2.2 Ministry of Fisheries and Marine Resources (MFMR): responsible for thesustainable utilization of marine resources, and economic and social developmentthrough fisheries.- Administers - Territorial Sea and Exclusive Economic Zone ofNamibia Act, Act 3 of 1990; Marine Resources Act, Act 27 of2000; Aquaculture Act, Act 18 of 2002; draft Inland FisheriesBill.3.2.3 Ministry of Mines and Energy (MME): responsible for increasing mineralproduction and energy supply, encourages national benefits and employment9

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Managementcreation through mineral prospecting. Mining has been responsible for asignificant amount of environmental perturbations in the coastal area.- Administers – Minerals (Prospecting and Mining) Act, Act 33 of1992, Petroleum (Exploration and Production) Act, Act 3 of1991; Diamond Act, Act 13 of 1999.3.2.4 Ministry of Agriculture, Water and Rural Development (MAWRD): responsiblefor bulk water supply and water distribution, regulation of agriculturaldevelopment;- Administers – Water Act, Act 54 of 1956; Namibia WaterCorporation Act, Act 12 of 1997.3.2.5 Ministry of Regional and Local Government and Housing (MRLGH): this is a keydepartment in so far as the NACOMA project is concerned. It is responsible forurban planning and administration, regional land use planning, and theadministration of Regional Councils.- Administers – Regional Councils Act, Act 22 of 1992, LocalAuthorities Act, Act 23 of 1992; Town Planning Ordinance,Ordinance 18 of 1954; National Housing Development Act, Act28 of 2000; Decentralisation Enabling Act, Act 33 of 2000;Community Courts Act, Act 10 of 2003. It has also prepared anUrban and Regional Planning Bill (2002). These statutes areelaborated on in Section 5. below.3.2.6 Ministry of Works, Transport and Communication (MWTC): responsible forproviding effective and efficient transport systems, and maintaining transportinfrastructure.- Administers: Namibian Ports Authority Act, Act 2 of 19943.2.7 Ministry of Lands, Resettlement and Rehabilitation, responsible for resettlingdisplaced and landless citizens, land administration, and the management andmonitoring of resettlement schemes.- Administers: Communal Land Reform Act, Act 5 of 2002,Agricultural (Commercial) Land Reform Act, Act 6 of 1995;10

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone ManagementTraditional Authorities Act, Act 25 of 2000. Has published theDraft National Land Tenure Policy – Proceedings ofConsultative Workshops, 2002 and the National Land Policy1998.3.3 Key government institutions3.3.1 National Planning Commission. Established under National PlanningCommission Act, Act 15 of 1994. Comprises Ministers of various governmentdepartments including the Minister of Regional and Local Government andHousing but not the Minister of Environment and Tourism. However, the Actallows for the appointment by the President of an additional eight personsincluding one with knowledge of ecological matters (sect 2) (1) (g) so this couldconceivably be someone from MET. The Commission’s functions according tothe Act are broad-ranging and include the initiation of “regional and developmentplanning design and co-ordination” (sect 3) (1) (c). This is particularly relevant asthis power has resulted in the development of Regional Development Plans(RDPs) in the 13 regions (four coastal) by the respective Regional Councils aselaborated on in 5.5 below. Further powers of the NPC include: the design of andparticipation in institution building and capacity strengthening activities (sect 3)(1) (j). The former includes the formulation of RDPs and potentially includescoastal development plans. It emerges that in practice the NPC compares andevaluates planning policies and activities of the line Ministries, and mainlyconcentrates on national macro-economic planning.Observation:The challenge is to ensure that the various coastal plans which have been or may beprepared in future are integrated and receive statutory status in terms of relevantlegislation. A future coastal management policy is a possible instrument by which this canoccur while a coastal management policy programme is the vehicle to achieve the latter.The potential role of Regional Councils in this regard is explored in 5.6.1 below.3.3.2 Town and Regional Planning Board. (“NAMPAB”). This structure wasestablished originally during the South African era as the South West AfricanPlanning Advisory Board. It “shall continue to exist as a body corporate under the11

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Managementname Namibia Planning Advisory Board (NAMPAB) in terms of the TownPlanning Ordinance, Ordinance 18 of 1954 as amended by the Town PlanningAmendment Act, Act 27 of 1993 (Sect 6). It comprises of a minimum of three andmaximum ten members of the board representing: the National PlanningCommission (NPC); the Ministry of Lands, Resettlement and Rehabilitation(MLRR); the Ministry of Works, Transport and Communication (MWTC); theMinistry of Regional and Local Government and Housing (MRLGH); theMinistry of Fisheries and Marine Resources (MFMR); the Ministry ofAgriculture, Water and Rural Development (MAWRD); the Ministry of Justice;the Ministry of Environment and Tourism (MET).The Board focuses on the urban environment in that the Ordinance has beenamended to stipulate that the Board shall be “entrusted with all matters relating totown planning schemes as are assigned to it in terms of this Ordinance” (sect 12)(1); to advise the Minister in matters relating to the preparation and carrying intoeffect of town planning schemes (sect 12) (2) (a); the formulation of townplanning policies for Namibia (sect 12) (2) (b). However, it also provides that theBoard may “undertake any survey within Namibia and to assign plans inconnection therewith” (sect 12) (2) (c). This would seemingly include coastalplanning although the focus of the Board’s functions is clearly the urbanenvironment.There is clearly potential for the Board to broaden its mandate to firstly, bettercoordinate and integrate the various activities of other government departments,but the mechanics thereof need to be investigated. Secondly, the functions,powers and duties of the Board do not comprehensively cover sustainableenvironmental/coastal development and are by and large confined to urbanplanning. Mechanisms need to be investigated to see how sustainable coastaldevelopment can be included in the Board’s ambit. It is suggested that theregional development plans referred to above are central to this aspect. Moreoverthe decentralisation process currently underway in Namibia potentially providesan opportunity by giving Regional Council’s greater powers in this regard12

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Managementprovided it has the concomitant capacity as referred to in a separate report 3 .3.3.3 Inter-ministerial Committee for Land Use Planning (IMSCLUP)IMSCLUP was initiated by the Ministry of Lands, Resettlement andRehabilitation to facilitate the integration of land use planning in rural areas. Thisbody is not constituted under any legislation and our surveys indicate that it iscurrently dormant. Its potential to coordinate planning in the rural environmentincluding the coastal zone is accordingly doubtful.Recommendation:It is recommended that NAMPAB (the statutory Board) initiate the coastal policyplanning process as it is a national and not regional policy. Moreover NAMPAB has thepotential to play a crucial role in co-ordinating the coastal policy process on the groundas a co-ordinating body of the functions to be devolved to Regional Councils. It wouldcollaborate with the NACOMA program and receive input from NPC, NAMPAB orIMSCLUP (although the latter is currently defunct, as seen above.4. Extent of the Coastal AreaInternational experience has shown that there is no ideal way of delineating both thelandward and seaward extent of the coastal area for coastal zone management purposes.As regards the landward extent coastal countries adopt either: (1) an ecological approach(e.g. the top of coastal mountain ranges or in Namibia’s case the fog belt would be anoption), or (2) an administrative approach (an arbitrary line say, 1km landward of, andparallel to, the high-watermark, or the inland extent of the respective administrativeregion, or the inland extent of the respective protected areas which dominate each of thefour coastal regions). There are advantages and disadvantages in both the ecological andadministrative approaches – the former makes ecological sense; the latter administrativesense. As regards the seaward extent an arbitrary line is usually adopted, for example, the12 nm territorial sea or 200 nm exclusive economic zone.3 “Capacity Building and Institutional Strengthening for Biodiversity Conservation and Management ofthe Namib Coast”, also prepared to provide input into the NACOMA Project Brief.13

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone ManagementConclusion:The landward and seaward extent of Namibia’s coastal area was vigorously debated atthe NACOMA Preparation Workshop held in Swakopmund in August 2003 4 . Onerecommended option was that Namibia adopts the seaward extent of the coastal area be a12 nautical mile in conformity with the Namibia’s territorial waters under the TerritorialSea and Exclusive Economic Zone of Namibia Act (3 of 1990) and that the landwardextent be the existing Park boundaries (Skeleton Coast in the Kunene, Namib NaukluftPark, Sperrgebiet). However, it was decided in the workshop that the coastal area willbe defined during a consultative process for the development of the coastal policy.5. Relevant legislation: brief assessment5.1 GeneralAs mentioned in 2.1, above Namibia succeeded to certain, but not all, legislation enactedby South Africa while South West Africa was a South African mandated or occupiedterritory. Some of the legislation which was applicable to South West Africa has beenrepealed and replaced (e.g. fisheries legislation), but others have not (e.g. the Water Act,54 of 1956). Since independence Namibia has repealed and replaced some of the oldorder legislation, but not all of it. A significant feature elaborated on below is the amountof background policy documents and draft legislation which has been developed sinceindependence.5.2 Environmental and natural resources related laws and policiesOur survey reveals that Namibia has in place a solid body of actual and draftenvironmental laws. These have been based on a comprehensive public participationprocess and a set of related policy documents tabulated in Annex 3. The backbone tothese policies is the undated draft Namibia’s Green Plan (Environment and Development)which was crafted shortly after Namibia attained independence in 1990. The Green Planis underpinned by the notion of sustainable development and details variousenvironmental sectors such as water, agriculture, wildlife, and mining, the archaeologicaland historical heritage, land reform and related matters. While it contains a4 Mufeti, T., F. Odendaal, R. Garcia, J. Oranje and I. Kauvee, 2004. NACOMA Preparation Workshop– Workshop Proceedings. Swakopmund, 11-13 August 2004.14

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Managementcomprehensive chapter on fisheries (Part 2) (c), it does not contain any dedicateddiscussion on the coastal area.Namibia’s environmental laws relevant to the coastal area are surveyed under thefollowing sub-headings:5.2.1 Environmental management laws and draft billsDraft framework environmental legislation: A draft Environmental ManagementBill (dated 2002) has been prepared by the MET and includes EnvironmentalImpact Assessment (EIA) principles. It is centred on a cabinet approvedenvironmental impact assessment policy for Namibia. It could be adapted to meetsome specific objectives of coastal area management before it is tabled inparliament. The suggested inputs are: that the Bill includes a principle identifyingthe coastal area as a particularly vulnerable and delicate ecosystem and requiringthat it receive special consideration by applying integrated coastal areamanagement to the area; the trigger for EIA in the draft is based on a set ofactivities. While not detracting from this list of activities (which does not includeharvesting of marine resources) it could be supplemented by an area-basedapproach by a fall-back provision suggesting that “where the coastal area or itsnatural or cultural resources could be impacted” an EIA is required. Moreeffective legislation is required in face of ongoing destructive activities in thecoastal areas, such as mining, even inside protected areas. Ongoing or proposedtourism and aquaculture developments can also have destructive effects in thecoastal areas in the absence of appropriate and enforced legislation. More detailson current and planned developments in the coastal areas and associatedenvironmental threats is presented in the report “Rapid Assessment of theDevelopment Plans, Biodiversity Conservation Projects and Socio-EconomicSituation in the Namib Coastal Regions”.5.2.2 Resource related lawsThese are indirectly relevant to the coastal area and relate to:(i) Water: the Water Act, Act 54 of 1956 is a vestige of the South Africanlegislation which should ideally be replaced by a new water Act dedicatedto Namibia’s peculiar needs and circumstances. It pays no heed to the15

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Managementhydrological cycle and its ecological and environmental provisions arelacking. South Africa has met these deficiencies by replacing its WaterAct, Act 54 of 1956, with a new progressive National Water Ac, Act 36 of1998. However there is a much lauded national water policy for Namibia.The National Water Policy White Paper has been published in August2000 by the MAWRD.(ii) Agricultural resources: the Soil Conservation Act, Act 76 of 1969, is similarlya vestige of South African legislation which the latter has replaced by theConservation of Agricultural Resources Act. It is not directly relevant to thecoastal area, not being prime agricultural land.(iii) Marine Fisheries: the Territorial Sea and Exclusive Economic Zone ofNamibia Act, Act 3 of 1990, (amended by Act 30 of 1991) and the MarineResources Act, Act 27 of 2000 have replaced previous South African legislationand comprehensively meet and cater for Namibia’s independent circumstancesand philosophy of sustainable development. There has been some debate as towhether principles of sustainable use of marine resources have been adequatelyincorporated into the Marine Resources Act and implemented in practice.The jurisdiction of the Act comprises the Namibian waters, including internalwaters, the territorial sea, the contiguous zone, the exclusive economic zone ofNamibia (EEZ) and the seabed up the high water mark. The White Paper –Towards Responsible Development of the Fisheries Sector, 1991, set out themain objective of the fisheries sector as the utilization of the country’sfisheries resources on a sustainable basis and to develop industries based onthem in a manner that ensure their lasting contribution to the country’seconomy and overall development goals. The Policy also includes certainresource management policies in the fishing sector.(iv) Inland Fisheries:The Inland Fisheries Resources Act, No. 1, 2003, provides for theconservation and protection of aquatic eco-systems and the sustainabledevelopment of inland fisheries resources through appropriate control andregulatory measures. The White Paper on the Responsible Management of16

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone ManagementInland Fisheries of Namibia, 1995, sets out the exploitation of inland fishresources in a sustainable manner and optimal level, by conserving andmaintaining biodiversity and genetic integrity of indigenous fish fauna andfollowing a holistic multi-stock management strategy. There are not manyinland fisheries in the coastal zone, but they Act would apply to the lowerKunene River and the Lower Orange River and likely the associated wetlands.The Aquaculture Act, No. 18 of 2002 5 , regulates and controls aquacultureactivities and provides for the sustainable development of aquacultureresources. Namibia’s Aquaculture Policy Towards Responsible Developmentof Aquaculture, 2001, has one fundamental objective – the responsible andsustainable development of aquaculture to achieve socio-economic benefits forall Namibians and to secure environmental sustainability. To affect the Policy,the following strategies are to be followed: (a) establish an appropriatelegislative and administrative framework for aquaculture – includingestablishing systems of tenure and rights for commercial aquaculture, (b)establishing appropriate institutional arrangements for aquaculture, (c)maintaining genetic diversity and the integrity of aquatic eco-systems, and (d)ensuring responsible production practices.5.2.3 Conservation laws(i) The Nature Conservation Ordinance, Ordinance 4 of 1975.This legislation hasalso been inherited form South Africa and is based on old order conservationneeds and practices. A progressive amendment (Nature Conservation OrdinanceAmendment Act, Act 5 of 1996 provides for community based natural resourcemanagement (or conservancies).(ii)Draft Parks and Wildlife Management Bill. A significant development isthe anticipated replacement of the Nature Conservation Ordinance andamendment by a draft Parks and Wildlife Management Bill. The versionwhich has been made available to us (dated 2002) is comprehensive,5 MFMR, 2004. Development Opportunities in Namibia’s Aquaculture Sector and Why Invest in theKaras Region. Speech presented on behalf of Dr. Ekkehard Klingelhoeffer and Dr. Alec Forbes at theKaras Investors Conference, held at Keetmanshoop on 23 March 2004.17

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Managementcomprising sections and ten parts dealing with: Part 1, Introductoryprovisions; Part 2, Missing; Part 3, Administration; Part 4, ProtectedAreas; Part 5, Conservancies; Part 6, Wildlife Farms and Game ProofFences; Part 7, Categories of Species Protection; Part 8, Utilisation ofWildlife; Part 9, Trade in Wildlife and Wildlife Products; Part 10,Compliance and Enforcement.Observation:Although the draft Parks and Wildlife Management Bill does not refer to the coastal areaspecifically, clearly most of the above is relevant to the coastal area. A particular gapappears to be a dearth of provisions relating to the conservation and use of biodiversity.It can also be noted that while the domestic implementation of CITES is giveneffect to in Part 9 of the draft, no provision is made for transboundary protectedareas (such as the │Ai-│Ais -Richtersveld Transfrontier Park which straddlesNamibia and South Africa); nor is provision made for the transboundarymigration of wild animals as contemplated in the 1979 Convention on theConservation of Migratory Species of Wild Animals (Bonn Convention) whichNamibia is not a party to as mentioned in 2.2 above.5.2.4 Mining:The Minerals (Prospecting and Mining) Act, No. 33 of 1992, sets outthe reconnaissance, prospecting and mining for, and disposal of andexercise of control over minerals in Namibia. It provides for theestablishment of the Mining Commissioner’s position and MineralsBoard of Namibia to make recommendations and provide appropriateadvice to the Minister. Most notably, the Act establishes liability oflicense or mining claims holders for pollution of the environment orother damages/ losses. The license holder is expected to inform theMinister of the event and must take appropriate steps to remedy thesituation. The Minerals Policy of Namibia provides guiding principlesand direction while communicating the values of the Namibian peoplein pursuit of the development of the mining sector. One of theobjectives of the Policy is to ensure compliance with national18

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Managementenvironmental policy and other relevant policies to develop asustainable mining industry.5.2.5 Tourism:A Tourism Policy is in draft form. The purpose of the draft Policy is topresent a vision for tourism in Namibia in the next decade and definingthe roles of stakeholders. The objective of the draft policy is to seekdiversification of the tourism product, emphasising the development ofcultural and natural resources to be used in a sustainable manner withmaximized benefits, especially for previously disadvantaged groups.The Policy for the Promotion of Community-based Tourism (1995)provides a framework intended to ensure that communities have accessto opportunities in tourism development, and that they are able to sharein the benefits of tourism activities that take place on communal land.There is however some debate in certain circles on whetherconservancies and community-based tourism does not in some casesthe reverse result from what is stated above as the intention, preciselybecause an illusion is created that provision has been made forcommunities when in fact they have been “pigeon-holed” into specialcases like conservancies while the existing private sector reap the bigincome from tourism. The Namibia Tourism Board Act no 21 of 2000establishes the Namibian Tourism Board which has to promote thedevelopment of the tourism industry, both within Namibia and fromabroad. It relates to facilities and standards, registration ofaccommodation establishments, promote training of people involved inthe industry, and promote environmentally sustainable tourism byactively supporting the long-term conservation, maintenance anddevelopment of the tourism-related natural resource base of Namibia.19

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone ManagementObservation:The various environmental management and natural resources laws and polices are notconsistent in delivering the three facets of sustainable development of the coastal area,namely ecological protection, economic development and social upliftment. But the draftParks and Wildlife Bill will redress this criticism if enacted. Nevertheless a coastalmanagement policy process is recommended that will result in a participative,comprehensive and coherent policy for the sustainable development of the Namibiancoastal areas.5.3 Planning legislationThe Regional Councils Act, Act 22 of 1992, establishes Regional Councils election ofmembers management committees and related matters; while the Local Authorities Act,Act 23 of 1992 provides for powers, duties and functions of local authority councils,matters relating to supply of water, sewerage and drainage, streets, public places, housingschemes, rates, valuation and related matters.The Townships and Division of Lands Ordinance, Ordinance 11 of 1963 provides for theestablishment of townships and for the regulation and control of the development of thesubdivision of land; while the Town Planning Ordinance, Ordinance 18 of 1954 providesfor the preparation and carrying out of town planning schemes and for matters incidentalthereto and to provide a framework for planners within which such schemes are to beprepared.An Urban and Regional Planning Bill has been prepared which will repeal and replace theTownships and Town Planning Ordinances referred to above. It comprises a number ofchapters the most important being chapters on a Town and Regional Planning Board (the‘Board’), Structure Plans, Zoning Schemes, Subdivision and Consolidation of Land. TheBoard will replace the Townships Board constituted by the Townships and Division ofLand Ordinance, Ordinance 11 of 1963, as well as the Namibia Planning Advisory Boardconstituted by the Town Planning Ordinance, Ordinance 18 of 1954. While the Bill doesnot refer specifically to the Board’s functions, it does provide that the objectives of theBoard are to exercise control over-20

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Management(a)(b)(c)(d)structure planning, zoning schemes, planning policies and standards;the subdivision and consolidation of land;the establishment of new towns or the extension of existing towns; andthe authorization of local authorities in accordance with prevailingGovernment policy, so as to ensure order, amenity, convenience, economicsustainability and environmental sustainability in the process of developmentand land management (Sect. 3).Observation:Planning legislation is currently an uneasy amalgam of old order, urban focussedstatutory provisions on which a progressive regional planning approach have beenimposed. The possible enactment of the Urban and Regional Planning Bill into law willalleviate this tension but the compatibility of this Bill to development planning generallyand to coastal considerations in particular needs to be assessed. The Bill should also bereviewed in the context of the decentralisation initiative.5.4 Dedicated coastal legislationThe chief dedicated coastal legislation which is applicable in Namibia today is the SeaShore Ordinance, Ordinance 37 of 1958. The Ordinance comprises only three sections:section 1 is definitions; section 2, titled “Determination of actual position of high-watermark” and which comprises the bulk of the Ordinance, sets down comprehensive rulesand procedures for establishing and demarcating the physical location of the high- waterand low-water marks. This was in all probability enacted because of the celebrated case ofthe same year of Consolidated Diamond Mines of SWA (Ltd) v Administrator South WestAfrica 1958(4) SA 572A concerning a dispute around the high-water mark and therebyaccess to the lucrative diamond deposits in the inter-tidal zone. Section 3 provides for themaking of regulations regarding the use of the seashore, bathing in the sea, removal fromthe seashore or bed of the sea “within the three miles limit” of sand, shingle, rock, stone,shells, mussels, redbait or seaweed and the prevention or regulation of depositing ordischarging upon the sea shore or in the sea within three miles of offal, rubbish oranything liable to be a nuisance or danger to the health of the public; concerning thecontrol generally of the sea and sea shore or the bed of the sea “within the three mileslimit”. (sect 3) (1) (a) to (e).To this extent the Ordinance echoes provisions of the South African Sea Shore Act, Act21 of 1935, which was significantly not extended to South West Africa and is thus not in21

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone ManagementRecommendation:Dedicated coastal area legislation, underpinned and supported by a thorough publicconsultation process, could include: the notion that the coast, its natural and culturalresources and sea is owned by nobody and subject to access and enjoyment of all unlessotherwise prescribed by law; include a definition of the coastal areas for integratedcoastal management purposes; include a set of coastal area management principles;provide for the development of coastal management plans to be incorporated intorelevant planning laws of Namibia and related matters.5.5 Pollution control and waste management laws.Namibia does not have any framework legislation dealing with pollution and wastemanagement generally. However there are a number of statutes dealing with pollution ona sectoral basis. The main ones are:5.5.1 Atmospheric pollution, the Atmospheric Pollution Prevention Ordinance,Ordinance 11 of 1976, which is dedicated to combating air pollution;5.5.2 Freshwater pollution, the Water Act, Act 54 of 1956 provides for thesetting of effluent discharge standards for both sea and freshwater and forthe prevention of water pollution;5.5.3 Land based pollution: the Minerals (Prospecting and Mining) Act, Act33of 1992 contains no environmental provisions and nothing on waste orpollution management. Similarly, the Diamond Act, Act 13 of 1999contains no such provisions. This is in stark contrast to the equivalentSouth African legislation, the Mineral and Petroleum DevelopmentResources Act, and is of paramount importance in the current context ofmining developments in the Namib coastal areas 6 .5.5.4 Marine Pollution: The South African Dumping at Sea Control Act,Act73 of 1980 was never extended to Namibia. This remains a deficiency.The Marine Resources Act, Act 27 of 2000 includes an empoweringprovision enabling the Minister to make regulations:6 Much of Sperrgebiet coastal areas south of Lüderitz are subject to intensive open-cast diamondmining that causes large-scale surface damage. For more details on current developments in the Namibcoastal areas, please refer to the Report “Rapid Assessment of the Development Plans, BiodiversityConservation Projects and Socio-Economic Situation of the Namib Coastal Regions”.23

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Management“regulating or prohibiting the discharge in the sea or discarding on the sea-shoreand land of specified substances or materials, or substances or materials notcomplying with specified requirements or having specified properties (sect 61)(1)(r).”Agricultural sector pollution is regulated by the Fertiliser, Farm Feeds AgricultureRemedies and Stock Remedies Act, Act 36 of 1947, a vestige of the SouthAfrican era legislation. More generally the Hazardous Substances Ordinance,Ordinance 14 of 1974 regulates the use of certain toxic substances, as the titleimplies.5.6 Governance related laws5.6.1 The Regional CouncilsThe Regional Councils Act, Act 22 of 1992, sets out the powers, duties, functions, rightsand obligations of Regional Councils (sect 28). Of relevance to the coastal area are thepowers to undertake, with due regard to the powers and functions of the NationalPlanning Commission, and any other law relating to planning:“the planning of the development of the region for which it has been established with aview to –(i)(ii)(iii)(iv)(v)(vi)the physical, social and economic character of such region…the distribution, increase and movement and the urbanisation of thepopulation in such region;the natural and other resources and the economic development potential ofsuch region;the existing and planned infrastructure, such as water, electricity…in suchregion;the general land utilisation pattern;the sensitivity of the natural environment”. (section 28(1) (a).This provides the legal basis for the drawing up of Regional Development Plans (RDPs)for the Regions. Although initiated and guided by the NPC the Regional Councils play acentral role in developing RDPs.24

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone ManagementObservation:While the initiation of Regional Development Plans (RDPs) has a legislative basis, theseplans do not appear to enjoy any legal status in that they provide only guidelines whenspecific development applications are being considered. This is in stark contrast to theSouth African Integrated Development Plans (IDPs) which have to be prepared by,regularly updated, and adhered to in terms of the South African Development FacilitationAct, Act 15 of 1994 and Local Government Transition Ac, Act 209 of 1993. It isrecommended that mechanisms be explored whereby the relevant line Ministries andTown and Regional Planning Board referred to below have to have regard to the RDPs inthe respective Regions.It should be noted that the Regional Councils Act (Sect 23(1) (b)) allows RegionalCouncils to spearhead socio-economic planning in the regions. However, this function iscurrently curtailed by limited human, capital and financial resources. The proposedintegration of the biodiversity conservation planning and management function is likelyto exacerbate this predicament – if not addressed in time It is, however, believed that anaccelerated and effective decentralisation process would ensure that this fundamentaldevelopment function is executed appropriately. However with the initiation of thedecentralisation process a number of line Ministries have seconded staff to RegionalCouncils resulting in uncertainty as to who these staff are responsible to.Observation:It appears that there is much scope for increasing the staff complement and developingstaff competencies of Regional Councils; and to concomitantly increase its capacity tocarry out conservation related functions particularly in the light of the decentralisationinitiative referred to below.5.6.2 The decentralisation initiativeOf particular importance is the Namibian decentralisation initiative referred to in 5.6.1above. The Decentralisation Enabling Act, Act 33 of 2000 provides for the regulation anddecentralisation of functions currently vesting in line Ministries to Regional Councils andLocal Authority Councils. The Minister of Regional, Local Government and Housing is25

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Managementempowered to decentralise any function determined by him or her to any regional councilor local authority council and this would include functions relevant to the coastal area.Considerable progress has been made by the decentralisation process – notably theappointment of managerial staff in Regional Councils. However, the process is hinderedby, inter alia, the delay in submission of ministerial action plans by the relevant lineministries.The mechanics of the decentralisation process are comprehensively set out in TheDecentralisation Implementation Plan: Support to Decentralisation Process in Namibia(Ministry of Regional and Local Government and Housing). It describes five maindecentralisation principles as: Political decentralisation, financial decentralisation,administrative decentralisation, changed central-local relations and functionaldecentralisation. It sets out the steps in preparation of devolution and assignsresponsibilities for the execution thereof. For more detail on the progress of thedecentralisation process prefer to the Report “Institutional Strengthening and CapacityBuilding for Conservation and Management of the Namib Coast”.The interaction between key line ministry staff such as MET and Regional Council staffneed to be clarified, both on how they will work together to integrate environmentalconcerns into the RDPs in the immediate term and intermediate terms and whatpermanent arrangements should be put in place for the futureObservation:The decentralisation initiative which is underway has great potential to further the aimsand objectives of the NACOMA project in that it will enable Regional Councils to play amore proactive role in developing and implementing coastal plans in their respectiveareas, as well as address and incorporate coastal zone issues and planning in the RDPs.The challenge is to identify synergies to effect the integration of these complementaryvehicles.26

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Management6. Conclusions6.1 While Namibia has a comprehensive set of environmental laws on the StatuteBook, or in the course of preparation, which is applicable to the entirecountry, there is no comprehensive, coherent or dedicated coastal legislationor national coastal area policy document. The Sea Shore Ordinance,Ordinance 37 of 1958 is outdated and totally inadequate to address the needsand requirements to achieve the modern day notion of integrated coastal areamanagement. More specifically the Ordinance does not conform to modernday needs, trends and general understanding of what is required or involved incoastal area management, in particular ecological and social dimensions ofintegrated coastal zone management.6.2 There is no dedicated and community owned coastal policy for Namibiawhich should underpin future legislative developments as regards coastal areamanagement.6.3 From a planning law perspective coastal area legislation in Namibia ischaracterised by divided and uncoordinated control both vertically andhorizontally, (“horizontally” being between line Ministries at national level;and “vertically” being between national Ministries and lower tiers ofgovernment, in particular Regional Councils and Local authorities). Moreparticularly, there is a lack of integration between planning legislation on theone hand, and the plethora of planning policies and recommendations whichhave been formulated for the coastal area resulting in suboptimal integratedcoastal area management.6.4 Effective management linkages in national government, particularly the METand regional government structures are lacking. However, an opportunityexists in this regard as Namibia is currently in the process of decentralisationas elaborated on in 7.7 below.6.5 Planning legislation is currently an uneasy amalgam of old order South27

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone ManagementAfrican imposed legislation which focuses on urban and town planning, withnew Namibian enacted legislation which establishes a new governance orderwhich embraces regional and local government in addition to urban planning.The possible enactment of the Urban and Regional Planning Bill into law willalleviate the tension between old and new order legislation, but thecompatibility of this Bill to development planning generally, and to coastalconsiderations in particular, needs to be assessed. The Bill should also bereviewed in the context of the decentralisation initiative.6.6 While the initiation of Regional Development Plans (RDPs) has a legislativebasis, these plans do not appear to enjoy any legal status in that they provideonly guidelines when specific development applications are being considered.This is in stark contrast to the South African Integrated Development Plans(IDPs) which have to be prepared by, regularly updated, and adhered to interms of the South African Development Facilitation Act, Act 15 of 1994 andLocal Government Transition Act, Act 209 of 1993.6.7 The decentralisation area of law and governance is in a state of fluiditybecause Namibia is currently engaged in a process of decentralisation. Thispresents a golden opportunity to further integrate coastal area managementand regional and local levels of government. Simultaneously the possibleenactment of the Urban and Regional Planning Bill into law will divestNamibia of its old South African imposed legislation and provides theopportunity to base Namibia’s coastal planning on the principles of integratedcoastal area management. More specifically the decentralisation initiative hasgreat potential to further the aims and objectives of the NACOMA project inthat it will enable Regional Councils to play a more proactive role indeveloping and implementing coastal plans in their respective areas, as wellas address and incorporate coastal zone issues and planning into coastalRDPs.6.8 The possible enactment of the Urban and Regional Planning Bill into law islikely to result in an opportunity to give legal effect to any coastal plan whichmay be drawn up. This initiative must be seen in the context of the28

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Managementdecentralisation policy.6.9 The environmental laws and policies tend to be reactive rather than proactivein ensuring the sustainability of coastal resources. For example, if a developerwants to initiate a particular project or natural resource harvesting, it has tocross the various hurdles, in particular, carry out an EIA, before commencingan activity. The suggestion is to strengthen the planning laws referred toabove by indicating various uses areas to which the coastal zone can be putthereby anticipating sustainable development considerations rather thanreacting to particular project proposals.6.10 Mining is having a serious impact on coastal resources, and the degree bywhich it influences the coastal areas, including national parks makes it clearthat mining legislation has to be reviewed to bring this industry in line withthe sentiments so clearly expressed in the Namibian constitution (see 2.3above). Moreover there is a serious dearth in the mining legislation ofenvironmental protection and socio-economic provisions. This is in sharpcontrast to South African legislation which provides a pertinent model asmany Namibian mining companies have South African holdings orassociations. The positive effects that coastal areas policy and legislation willaspire to will be nullified if appropriate mining legislation is not developedconcurrently so that mining activities cannot so easily override all otherconsiderations as it the case presently.6.11 There is potential to incorporate sustainable development criteria into themarine fisheries legislation which is a mainstay of Namibia’s socio-economicdevelopment profile.6.12 Tourism policy and legislation is highly relevant to the coastal areas. Tourismis the fastest growing sector in Namibia, and it will be largely through tourismthat biodiversity conservation will be realised. For historical reasons the lion’sshare of the tourist industry ended up in a small sector of society and to alarge extent the tourism industry has remained untransformed in terms ofbroadening its benefits the wider population. Tourism policy makes reference29

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Managementto “equity” in the papers examined 7 but by and large the precise mechanismsthat will bring about transformation of the industry appear to be lacking.While no intensive study of tourism-related legislation was made, it isnonetheless recommended that Namibia takes a hard look at the industry andfinds ways to promote broad-based black empowerment in the industry assoon as possible especially as tourism usually requires a long time to showbenefits on the ground.7. Recommendations and the way forward7.1 A coastal area policy process should be initiated which is underpinned by a set ofpolicy principles. The underlying vision of such a process should be to develop acomprehensive and coherent legal framework to ensure effective implementationof a national and regional coastal policy plans for Namibia against the backdropof the principles of integrated coastal area management.7.2 Agreement should be reached on a practical and working definition of the extentof the coast for integrated coastal management purposes. The suggestion raised atthe August 2004 Workshop, namely, that the seaward and landward extent ofNamibia’s coastal area should be: 12 nautical mile seaward in conformity with theNamibia’s territorial waters under the Territorial Sea and Exclusive EconomicZone of Namibia Act, Act 3 of 1990; that the landward extent be the existingprotected areas boundaries (Skeleton Coast in the Kunene, Namib Naukluft Park,Sperrgebiet) is recommended. Buy-in from all interested and affected partiesshould be obtained in this regard.7.3 As regards planning laws it is recommended that:7.3.1 The various coastal plans which have been formulated should beintegrated with planning laws, particularly the Regional DevelopmentPlans;7.3.2 That the Regional Development Plans (RDPs) be accorded legal statusakin to the South African Integrated Development Plans (IDPs). This willhave the effect that rezoning, subdivision and other developments outside7 White Paper on Tourism, 1994; Revised Draft Tourism Policy 2001 – 2010.30

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Managementurban areas will have to take cognisance of the plans before being grantedapproval. It is accordingly recommended that mechanisms be exploredwhereby the relevant line Ministries and Town and Regional PlanningBoard referred to below has to have regard to the respective RDPs inapproving any developments in the coastal area.7.3.3 It is recommended that legal mechanisms be explored whereby therelevant line Ministries and Town and Regional Planning Board have toadhere to the respective RDPs of the Regions in particular in so far asdevelopment may impact the coastal area.7.3.4 It is recommended that the potential of the Urban and Regional PlanningBill for including coastal area management considerations be assessed andthat this be done in the context of the decentralisation initiative.31

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone ManagementANNEX 1: LOGICAL FRAMEWORK FOR NACOMA COMPONENT 1: POLICY AND LEGAL FRAMEWORKSub-Components Activity Steps Indicators/Outputs1. Ensure key role playerssuch as Regional Councilsand line ministries have athorough understanding ofpolicy process andlegislation1.1 Through audits, identify gapsin understanding ofgovernance, policy making andenvironmental legislation1.1.1 Assess training needs andmodes of training1.1.2 Appointments of trainers1.1.3 Training and workshopsLevel of understanding inRegional Councils and lineministries pertaining governance,policy making and environmentallegislation improved, and keystaff trained2. Review environmentallegislation relating to thecoast and coastal processesand key players2.1 Assess legislative mandates/functions of:2.1.1 National/ regional developmentplanning institutions/ bodies2.1.2 Planning institutions in privatesector, NGOs/ CBOs and donors2.1.3 Relevant planning mechanisms(e.g. NDP/ Vision 2030)Planning legislative mandatesintegrated and harmonized toeffect National/RegionalDevelopment Plans and Vision20302.2 Situational analysis of existinglegislation2.2.1 Legal framework forgovernance/decentralization2.2.2 Legal framework forbiodiversity conservation2.2.3 Legal framework institutionalcapacity building2.2.4 Recommendations toconsolidation of legal frameworkEffective management linkages innational governmentrecommended in line with thenation-wide decentralizationprocess and principles ofintegrated coastal zonemanagement. Strong legalplatform for institutional capacitybuilding recommended forincorporation in the envisagedcoastal zone management policy.Existing gaps limiting biodiversityconservation identified.32

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone ManagementSub-Components Activity Steps Indicators/Outputs2.3 Reduce/ eliminate fragmentedenvironmental legislation2.4 Public awareness2.3.1 Determine and strengthensynergies in legislation2.3.2 Identify possible overlapping/incoherent legislation2.4.1 Publicize outcomesCoherence in existing legislationachieved through a participativeand consultative elimination ofshortcomings and consequentconsolidation of the legalframework for sustainable coastalzone development.3. Develop and make availableregion specific CoastalProfiles2.5 Amend or repeal legislation.3.1. Appoint specialists workinggroup3.2. Acquisition of assessment tools2.5.1 Solicit public participation(stakeholder engagement)2.5.2 Draft revised legislation and resubmitto Parliament3.1.1 Mandated regional employmentadministration3.1.2 Mandated regional financialadministrationAmended legislation forwarded tothe National Assembly and theNational Councils forendorsement and consequentpublication.Regional Coastal Profiles createdand published and popularversions produced and widelydisseminated..4. Development of aharmonized National Vision4.1 Regional consultations4.1.1 Regional Councils conduct aconsultative process for inputfrom all stakeholders includingcoastal communitiesNational coastal zonedevelopment “Vision Papers”drafted and disseminated.4.2 Solicit public participation4.2.1 Public meetings, forums,workshops are to consolidateregional visions andendorsements4.2.2 Stakeholder participation4.3 Public awareness4.3.1 Publicize outcomes/visionpapers33

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone ManagementSub-Components Activity Steps Indicators/Outputs5 Namibian Coastal ZoneManagement Policy Process5.1 Regional Policy dialogue5.1.1 Establish a specialist groups(legal and policy, biodiversity,institutional capacity building,and related initiatives) forpolicy drafting“White Paper” for SustainableCoastal Zone Developmentdrafted and published.5.1.2 Analyze deficiencies arisingfrom the existing legislation5.1.3 In harmony with the revised(consolidated) national andregional environmentallegislation, determine coastalzone boundaries and theeventual jurisdictional area ofthe proposed policy orlegislation5.1.4 Analyze regional visions (e.g.Sustainable development andutilization of resources in thecoastal zones) to guide theformulation of an appropriatePolicy.5.2 Policy drafting5.2.1 Regional deliberations fordrafting policy5.2.2 Prepare draft policy5.2.3 Solicit feedback from thestakeholders and public5.2.4 Refine draft and publish34

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone ManagementANNEX 2:RELEVANT INTERNATIONAL CONVENTIONS TO WHICHNAMIBIA IS A PARTY1948 Convention on the International Maritime Organization, (Member as from 1994).This Convention simply allows countries to be members of the IMO – a specializedUN agency concerned with safe clean seas. It has initiated and monitors most marineconventions to do with navigation and pollution of the marine environment.1973/78 International Convention for the Prevention of Pollution from Ships,(MARPOL 73/78). (Annexes 1, 2, 3 and 5 on March 2003).This convention lays down standards which ships carrying oil in bulk have tocomply with.1992 Protocol to the 1969 International Convention on Civil Liability for OilPollution Damage (18 December 2003).This convention lays down a liability and compensation regime for oil spillsfrom bulk oil carriers where environmental damage occurs in coastal waters ofmember states.1992 Protocol to the Convention on the Establishment of an International Fundfor Compensation for Oil Pollution Damage (FUND Convention).This convention supplements the Civil Liability Convention (above) byproviding further compensation where damage from oil spills from bulkcarriers exceeds a certain ceiling.1974 International Convention for the Safety of Life at Sea (SOLAS)1982 United Nations Convention on Law of the Sea (Acceded 18 April 1983).This is a comprehensive codification of law of the sea; allowing coastal statesto claim various maritime zones; regulates international fisheries both withinand outside exclusive economic zones; provides a framework for the regulationof marine pollution on all the worlds’ oceans and seas and provides for relatedmatters.35

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone ManagementAgreement relating to the implementation of Part XI of the convention(Acceded 28 July 1995)Agreement for the Implementation of the Provisions of the Convention relating tothe Conservation and Management of Straddling Fish Stocks and HighlyMigratory Fish Stocks (Acceded 8 April 1998)1981 Convention for the Protection and Development of the Marine and CoastalEnvironment of the West and Central African Region (Abidjan)This is a regional convention applicable to 18 members states (including Namibia) inWestern and Central Africa which promotes mutual cooperation and combating of themarine and coastal environment of member states and conservation of naturalresources.Natural and Cultural Resources1979 Bonn Convention on the Conservation of Migratory Species of Wild Animals(not a party) The Convention aims to conserve terrestrial, marine and avian migratoryspecies where these traverse national boundaries on a regular basis by protecting thesespecies, conserving or restoring the places where they live, mitigating obstacles tomigration and controlling other factors that might endanger them.Non-binding Memorandum of Understanding concerning Conservation Measures forMarine Turtles of the Atlantic Coast of Africa (signed in 1999).1973 Convention on International Trade in Endangered Species of Wild Fauna andFlora (CITES) (Acceded 18 December 1990)The aim of CITES is to ensure that the international trade in wildlife does not threatenthe survival of the species being traded.1972 Convention Concerning the Protection of the World Cultural and NaturalHeritage (World Heritage Convention) (Acceded 04 June 2000).Member states have to ensure the protection of their natural and cultural heritage.36

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Management1994 Convention to Combat Desertification in those Countries Experiencing SeriousDrought and/or Desertification, Particularly in Africa (.Signed 24 October 1994,Ratified 16 May 1997)This convention seeks to alleviate the negative social and environmental consequenceswhich result form land degradation in Africa by providing for the formulation of actionplans and providing financial relief.1973 Convention on International Trade in Endangered Species of Wild Fauna andFlora, (Acceded 18 December 1990).This convention seeks to regulate and in some cases ban trade in endangered speciesand/or their products.1971 Ramsar Convention on Wetlands of International Importance Especially asWaterfowl Habitat and 1982 Protocol (Acceded 23 August 1995).This convention invites parties to designate wetlands of international importance intheir territories with a view to their long term sustainable survival.1992 Convention on Biological Diversity (Acceded 16 May 1997).This is a comprehensive convention which has as its objectives the conservation ofbiodiversity, the sustainable use thereof and the equitable sharing of benefits arisingthere from.Pollution and Waste Management1992 United Nations Framework Convention on Climate Change, and Kyoto Protocol(Signed 12 June 1992 and Ratified 16 May 1995)This is a framework convention which seeks to reduce the amount of greenhouse gasesin the atmosphere to mitigate the effects of climate change. The Kyoto protocol laysdown specific targets in this regard.1985 Vienna Convention for the Protection of the Ozone Layer (Acceded 20 Sept1993).This is a framework convention which seeks to reduce the amount of ozone depletinggases in the atmosphere.37

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Management1987 Montreal Protocol on Substances that Deplete the Ozone Layer,(Acceded 20 Sept 1993).This is a convention which lays down specific targets regarding the reductionof ozone depleting gases into the atmosphere.1990 London amendment (Ratified 06 November 1997)The amendment introduced control measures for both production andconsumption for three new groups of substances, namely other halogenatedCFCs (Annex B, Group I substances), Carbon Tetrachloride (Annex B, GroupII) and Methyl Chloroform or 1,1,1-trichloroethane (Annex B, Group III).Control measures also included restrictions on trade with non-Parties.1992 Copenhagen amendment (Approved 28 July 2003)The amendment introduced control measures for consumption only for HCFCs(Annex C, Group I substances). The amendment further introduced controlmeasures for both production and consumption for two new groups ofsubstances, namely HBFCs (Annex C, Group II substances) and MethylBromide (Annex E, Group I).1997 Montreal Amendment (not ratified)The amendment introduced the requirement for licensing systems to allowcontrol and monitoring of trade in substances controlled under the protocol.1999 Beijing Amendment (not ratified)The amendment introduced control measures for production for HCFCs(Annex C, Group I substances) and imposed restrictions on trade with non-Parties for these HCFCs. The amendment further introduced control measuresfor both production and consumption for one new group of substances, namelyBromochloromethane or BCM (Annex C, Group III substance).1989 Basel Convention on the Control of Transboundary Movement of HazardousWaste and their Disposal, (Acceded 15 May 1995)This convention lays a down a prior informed consent procedure before hazardouswaste may be transported to or through another member state.38

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Management1995 Ban Amendment (not ratified)At the Second Meeting of the Conference of the Parties (COP – 2) in March 1994,Parties agreed to an immediate ban on the export from OECD to non-OECDcountries of hazardous wastes intended for final disposal. They also agreed to ban,by 31 December 1997, the export of wastes intended for recovery and recycling(Decision II/12). The amendment makes provision that the Decision III/1 does notuse the distinction OECD/non-OECD countries. Rather, it bans hazardous wastesexports for final disposal and recycling from what are known as Annex VIIcountries (Basel Convention Parties that are members of the EU, OECD, andLiechtenstein) to non-Annex VII countries (all other Parties to the Convention).1991 Convention on the Ban of Import into Africa and the Control of TransboundaryMovement and Management of Hazardous Waste within Africa (signed only).This convention seeks to ban the importation of hazardous waste into Africa but doesnot prohibit intra- African trade in waste.1972 Convention on the Prevention of Marine Pollution by Dumping of Wastes andOther MatterCountries that are parties to the convention are to control and prevent sources ofpollution to the marine environment.Southern African RegionSADC (Ratified)This treaty seeks to promote economic development in the SADC region, reduce tariffand non-tariff barriers and harmonize relevant laws in this regard.1968 African Convention on Conservation of Nature and Natural Resources (Signed 9Dec 2003)This treaty seeks to conserve natural resources and provides for cooperation andmutual assistance in this regard.Protocol on Shared Watercourse Systems in the Southern African DevelopmentCommunity, 1995This SADC protocol seeks to promote mutual cooperation in the SADC region asregards shared watercourses and water use.39

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone ManagementMultilateral Agreement on the Control of Pollution of Water Resources in the SouthAfrican Region, 1985Lusaka Agreement on Co-operative Enforcement Operations Directed at Illegal Tradein Wild Fauna and Flora, Lusaka, 1994This treaty seeks to promote cooperation between member states as regards theenforcement of resource protection laws.40

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone ManagementANNEX 3: LAWS RELEVANT TO COASTAL AREA MANAGMENTGeneralThe Constitution of Namibia, Out of Africa Publishers 1990, pp 1-90.The Constitution of Namibia lays down the general framework for governance and humanrights in the independent sovereign Namibian state.Resource RelatedMineralsMinerals (Prospecting and Mining) Act (33 of 1992)This Act lays down a general regulatory regime for the orderly exploitation ofNamibia’s minerals other than petroleum and diamonds.Petroleum (Exploration and Production) Act (3 of 1991)This Act lays down a general regulatory regime for the orderly exploitation ofNamibia’s petroleum resources.Diamond Act (13 of 1999)This Act lays down a general regulatory regime for the orderly exploitation ofNamibia’s diamond resources.Water and Freshwater resourcesNamibia Water Corporation Act (12 of 1997)Water Act (54 of 1956)This act lays down the general regulatory regime for the use and conservation ofNamibia’s water resources. It is a vestige of the old South African Act and needsto be repealed and replaced with a new water act to suit independent and waterscarce Namibia.Aquaculture Act (18 of 2002)This act regulates both freshwater and marine aquaculture and includesenvironmental provisions in this regardArtesian Water Control Ordinance (35 of 1995)Inland Fisheries BillForestsForest Act, (12 of 2001) provides for the development and environmental41

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Managementprotection of Namibia’s forests.Mountain Catchments Areas Act (6 of 1970)MarineTerritorial Sea and Exclusive Economic Zone of Namibia Act (3 of 1990)This Act claims a 12 nm territorial sea for Namibia as well as a 200 n.mileexclusive economic zone, and provides for related matters, in conformity with theLaw of the Sea Convention referred to above.Marine Resources Act (27 of 2000)This Act provides for the conservation and orderly exploitation of Namibia’smarine resources.Walvis Bay and Off-Shore Islands ActConservationNature Conservation Ordinance (4 of 1975)Nature Conservation Ordinance Amendment Act (5 of 1996)Game Products Trust Funds Act, 7 of 1997DRAFT Parks and Wildlife Bill 2002AgricultureSoil Conservation Act (76 of 1969)Agricultural (Commercial) Land Reform Act (6 of 1995)Fencing Proclamation (57 of 1921)Governance Related LawsNamibian Ports Authority Act (2 of 1994)Decentralisation Enabling Act (33 of 2000)National Planning Commission Act (15 of 1994)Local Authorities Act (23 of 1992)Town Planning Ordinance (18 of 1954)Town and Regional Planners Act (9 of 1996)Communal Land Reform Act (5 of 2002)Regional Councils Act (22 of 1992)Traditional Authorities Act (17 of 1995)42

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone ManagementForeign Investment Act (96 of 1990)Environment Investment Fund of Namibia Act (3 of 2001)Trust Funds for Regional Development Act and Equity Provisions Act (22 of2000)Tourism related lawsNamibia Tourism Board Act (21 of 2000)Namibia Wildlife Resorts Company Act (3 of 1998)Planning Related LawsNational Planning Commission Act (15 of 1994)Township and Division of Land Ordinance (11 of 1963)Town Planning Act (zoning)National Housing Development Act (28 of 2000)Urban and Regional Planning Bill (2000)Pollution LawsAtmospheric Pollution Prevention Ordinance, (11 of 1976)Fertilizers, Farm Feeds, Agricultural Remedies and Stock Remedies Act (36 of 1947)Agricultural Pests Act (3 of 1973)Public Health Act (36 of 1919)Recommendations for integrated Waste Management and Pollution Control legislation.Environmental Management LawsDRAFT Environmental Management BillNuclear LawsAtomic Energy Act (90 of 1967)Nuclear Installations (Licensing and Security) Act (43 of 1963)Coastal LawsSea Shore Act 21 of 1935Sea Shore Ordinance 37 of 195843

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone ManagementANNEX 4: POLICY AND PLANNING DOCUMENTSGovernance RelatedNamibia Vision 2030. Policy framework for long-term national development: mainreport. Namibia, 2004, pp l-248.Decentralisation, Development and Democracy: A Decentralisation Policy for theRepublic of Namibia, Ministry of Regional, Local Government and Housing, September1997Decentralization Process. S Goaseb, Ministry of Regional and Local Government andHousing, Windhoek undated.The Decentralisation Implementation Plan: Support to Decentralisation Process inNamibia Ministry of Regional and Local Government and Housing, September 2001.Tourism RelatedNamibia, 2001. Revised draft tourism policy 2001-2010. Unpublished paper. pp1-14.Ministry of Environment and Tourism, 1995. Promotion of community based tourism.Policy Document. Windhoek: Ministry of Environment and Tourism. pp1-7.Resource RelatedMinistry of Fisheries and Marine Resources, 2004. Policies of the Ministry. Online.Available from http://www.mfmr.gov.na/policy/policies.htm [28 July 2004].Ministry of Environment and Tourism, 1999. Policy for prospecting and mining inprotected areas and national monuments. Policy Document. Ministry of Environment andTourism. pp1-10.Conservation RelatedNamibia, undated. Parks and neighbours: A policy for linking Namibian protected areaswith neighbouring people and sharing protected areas with resident communities. Draftpolicy, unpublished document. pp1-11.Ministry of Environment and Tourism, undated. Biodiversity and development: anoverview of Namibia’s ten-year strategic plan of action for sustainable developmentthrough biodiversity conservation 2001-2010. Ministry of Environment and Tourism.pp1-8.Planning RelatedMinistry of Regional, Local Government and Housing. Town Planning Policy. Ministry ofRegional and Local Government and Housing.Ministry of Environment and Tourism, 1994. Land use planning towards sustainabledevelopment. Policy Document. Windhoek: Ministry of Environment and Tourism. pp1-18.Ministry of Lands, Resettlement and Rehabilitation, 2004 Draft National Land TenurePolicy. Policy Document. Windhoek. Ministry of Lands, Resettlement andRehabilitation.44

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone ManagementMinistry of Lands, Resettlement and Rehabilitation, 1998. National Land Policy. PolicyDocument. Windhoek. Ministry of Lands, Resettlement and Rehabilitation.Proceedings of Consultative Workshops, 2002 and the National Land Policy 1998.PlansBROWN, C.J., undated. Namibia’s Green Plan (environmental and development) tosecure for present and future generations a safe and healthy environment and prosperouseconomy. Windhoek: Ministry of Wildlife, Conservation and Tourism. pp1-174.Ministry of Environment and Tourism, 2000. The Sperrgebiet land use plan (DraftReport). Project No: W309/1 October2000. Walmsley Environmental Consultants. pp1-163.Ministry of Environment and Tourism, 2001. The Sperrgebiet land use plan (SecondDraft). Project No: W309/1 January2001. Walmsley Environmental Consultants. pp1-173.Ministry of Environment and Tourism, 2003. Namib-Naukluft Park: Management andtourism development plan. (Draft 3/04). Windhoek: Ministry of Environment andTourism. pp1-36.Ministry of Environment and Tourism, 2003. Namib-Naukluft Park: Management andtourism development plan: Business Plan. (Draft 3/04). Windhoek: Ministry ofEnvironment and Tourism. pp1-13.Namibia, undated. Second National Development Plan (NDP2) 2001/2002 – 2005-2006:volume 2 regional development perspectives. Windhoek, National Planning Commission.pp selected extracts.Namibia, undated. First National Development Plan (NDP1) volume 1 1995/1996 –1999/2000. Windhoek, National Planning Commission. pp1-521.Namibia, undated. First National Development Plan (NDP1) volume 2 1995/1996 –1999/2000. Windhoek, National Planning Commission. pp1-325.NACOBTA, 2002. Namibia North West Tourism Options Plan – Phase 2. Windhoek:Ministry of Environment and Tourism. pp1-90.NACOBTA, 2002. North- West (Kunene and Erongo) Tourism Development Plan andmonitoring manual. Directorate of Tourism, Ministry of Environment and Tourism. pp1-18.Regional Council of Erongo, undated. Erongo Regional Development Plan 1997-2000. Unpublished document, pp 1-27.Regional Council of Hardap, undated. Regional Development Plan 2001/20022005/2006, Hardap Region. Namibian Development Consultants. Mariental, ppselected extracts.Regional Council of Karas, undated., undated. Regional Development Plan Karas45

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone ManagementRegion Final Draft. Namibian Development Consultants. Keetmanshoop, pp 1-162.Regional Council of Kunene, undated. Regional Development Plan 2001/2002 –2005/2006, Kunene Region. Opowo:. Namibian Development Consultants, pp 1-147.Windhoek Consulting Engineers, 1996. Karas Strategic Development Plan Draft.Keetmanshoop: Karas Regional Council. pp1-58.Hardap Regional Council and Hardap Tourism Board, 2003. Hardap Region TourismDevelopment Plan 2003. Mariental. pp1-110.Hardap Regional Council, undated. Investment Plan for Hardap Region. Mariental:Hardap regional council.Resource RelatedPoliciesMinistry of Environment and Tourism, 1999. Policy for prospecting and mining inprotected areas and national monuments. Policy Document. Ministry of Environment andTourism. pp1-10.Ministry of Fisheries and Marine resources, 2001. Namibia’s aquaculture policy, towardsresponsible development of agriculture. Policy Document. Ministry of Fisheries andMarine resources. pp4-25.Environmental Impact Assessment RelatedPoliciesMinistry of Environment and Tourism, 1995. Namibia’s environmental assessmentpolicy. Windhoek: Ministry of Environment and Tourism. pp1-17.PlansEnvironmental Evaluation Unit. undated. Environmental assessment of the Walvis Baydevelopment project: Environmental management and monitoring plan. EnvironmentalEvaluation Unit, University of Cape Town. pp 7-9.Coastal Zone RelatedPlansMinistry of Environment and Tourism, 1998. Integrated Coastal zone management ofErongo Region. Draft environmental impact assessment and recommendations forenvironmental management plan. Unpublished document. pp1-24.46

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone ManagementANNEX 5: TERMS OF REFERENCEConsultancy to review the policy and legislation pertainingto Coastal Zone Management in Namibia.1. BackgroundThe Namibian Government (GRN) is preparing the "Namib Coast BiodiversityConservation and Management Project" (NACOMA), with grant funds from the GlobalEnvironment Facility. The project intends to support Integrated Coastal ZoneManagement and biodiversity conservation implemented through an effective coastalzone planning framework. The project will be implemented in two phases, an initial 15month preparatory phase and a five year implementation phase. The project will beimplemented through the Regional Councils in Kunene, Hardap. Erongo, and Karas.The project has three components targeting: (i) Policy and Planning for SustainableManagement of the Namib Coast (including capacity building and institutionalstrengthening of the Regional Councils); (ii) Biodiversity Conservation and Monitoring& Evaluation; and (iii) Project Coordination Support.The Integrated Coastal Zone Management Committee (ICZMC) and its Secretariat willfacilitate and coordinate the preparation phase activities and project formulation. TheICZMC is representing the four Regional Councils of the coastal regions of Namibia aswell as the Ministry of Environment and Tourism, the Ministry of Regional LocalGovernment and Housing, the Ministry of Fisheries and Marine Resources, and theMinistry of Mines and Energy. The ICZMC’s Secretariat is currently located in theErongo Regional Council. The main output of the preparatory phase is the projectdocument and project implementation manual, on which 4 year project implementationwill be based.During the preparation phase, there is a need to update and bring together the informationon policy and legislation referring to the Coastal Zone, to gain an overview of the Actsand Ordinances applicable for planning and management, with a future view to adaptingthese in a larger coordinated framework.The existing legal framework is fragmented, overlapping and scattered, as most of theActs and Ordinances pertaining to environment is the responsibility of a large number ofline ministries. Although great progress has been made, many are laws are outdated andnot revised since before the independence.There is no clearly defined policy framework for CZM, which results in a situation whereministries only define environmental standards once proposals for new developmentprojects are submitted within coastal areas, and thus inconsistent planning results. Certaininitiatives (such as NAMPAB, IMSCLUP, LUEB have in the past attempted to integratepolicies for improved planning, but there still seems to be lack of integration, as eachregion (and local authority) are undertaking planning in isolation from each other.47

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Management2. Objectives of the assignment:To obtain an overview of the legislation in force in the coastal regions, the gaps incoverage, and current application status of laws and regulations pertaining to the coastalzone environment,3. The Consultancy:The consultant will work under the supervision of the ICZMC secretariat coordinator inclose collaboration with staff from the Regional Councils, and involved line ministries,specifically the MET. All the regions must be visited to collect data from all availablesources (Regional Councils, line ministries, NGOs, private and public enterprises,projects, National Statistics Office).Activities will include:Some working groups under the ministries have been1. Review the legislation pertaining to the coastal zone environment, and assess gapsin coastal environmental legislation2. Review the fate of the Namibian Planning Advisory Board NAMPAB and(originally established to coordinate and integrate land use planning andmanagement actions of the ministries) and the Inter-ministerial Committee forLand Use Planning IMSCLUP, and present an update of current Coastal policyand planning initiatives3. Review the Green Plan and the progress of enacting the Environmental Act, aspart of the policy framework4. Update current lists of Acts, Ordinances and other legislation pertaining to theCoastal environment (several studies exist e.g. in Erongo Region, which needupdating)5. Prepare an updated lists of international conventions that Namibia is signatory to,and which have been ratified.6. In coordination with the consultancies on socioeconomic issues and biodiversityhotspots, analyse the legislation pertaining to ongoing development activities andproposed development plans (e.g. mining), and biodiversity conservation areas7. Analyse the current status on enforcement of the laws, and the role of theRegional Councils in this respect.8. Present findings in a report summarising the legal context for development &management planning options, to be incorporated in the outline coastal zoneprofile.4. DurationApproximately 0.5 month (~10 days effective)48

NACOMA Project – Preparation PhaseReview of Policy and Legislation Pertaining to Coastal Zone Management5. QualificationsThe consultant should have more than 5 years of experience and an post graduateeducation in environmental law or other relevant education within legal and naturalsciences . Should have experience from carrying out similar assignments.6. Expression of interestInterested individuals or teams are requested to submit their covering letter and a detailedCV or portfolios to the Project Coordinator, Mr. Timoteus Mufeti, Erongo RegionalCouncil, 461 Tobias Hainyeko Street, Swakopmund, Tel. (064) 403905, Fax 064 412701,Email: tmufeti@iway.na for receipt by 17:00 on 05 April 2004. For further information,also contact Mr. Timoteus Mufeti. Applications may be submitted by post, hand or emailto Timoteus Mufeti, but applications sent by fax will not be considered. Only short listedapplicants will be contacted, and documents cannot be returned.49

ANALYSIS OF THE INSTITUTIONAL CAPACITY IN THE NAMIBCOAST REGIONAL COUNCILS IN RELATION TO THENAMIBIAN DECENTRALISATION PROCESSRECOMMENDATIONS FOR INSTITUTIONAL STRENGTHENINGAND CAPACITY BUILDINGNAMIB COAST BIODIVERSITY CONSERVATION AND MANAGEMENT(NACOMA) PROJECT: PREPARATION PHASEPrepared by EcoAfrica Environmental ConsultantsDraft VersionMarch 2005

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsTABLE OF CONTENTSLIST OF ACRONYMS................................................................................................................................ 31. INTRODUCTION............................................................................................................................... 52. DECENTRALISATION IN THE CONTEXT OF NAMIBIA........................................................ 63. BRIEF REVIEW OF THE DECENTRALISATION PROCESS THUS FAR.............................. 73.1 LEGAL AND POLICY CONTEXT............................................................................................................... 83.2 STATUS OF THE DECENTRALISATION PROCESS...................................................................................... 83.3 LINE MINISTRY ACTION PLANS ............................................................................................................ 93.4 PERCEPTIONS ABOUT THE DECENTRALISATION PROCESS.....................................................................113.5 CONCLUSIONS AND MAIN CHALLENGES FOR THE DECENTRALISATION PROCESS................................144. REGIONAL PLANNING AND DEVELOPMENT........................................................................164.1 PLANNING FRAMEWORK ......................................................................................................................164.2 ENVIRONMENTAL PLANNING ...............................................................................................................164.3 KEY ROLE PLAYERS .............................................................................................................................174.4 PLANNING IN PRACTICE...............................................................................................................184.5 CONCLUSIONS AND RELEVANCE FOR THE NACOMA PROJECT............................................................205. INSTITUTIONAL AND CAPACITY BUILDING ANALYSIS....................................................215.1. THE FOUR COASTAL REGIONS............................................................................................................215.2 SWOT ANALYSIS................................................................................................................................255.3 CAPACITY BUILDING – TOWARD UNFOLDING THE ‘BIG PICTURE’ ......................................................296. PROGRAM FOR INSTITUTIONAL STRENGTHENING AND CAPACITY BUILDING .....306.1. OBJECTIVES ........................................................................................................................................306.2. ACTIVITIES AND INDICATORS .............................................................................................................31REFERENCES & BIBLIOGRAPHY........................................................................................................40ANNEX I: TERMS OF REFERENCE......................................................................................................42ANNEX 2: LIST OF KEY STAKEHOLDERS CONSULTED...............................................................47INDEX OF TABLESTable 1: Staff complement (management cadre).............................................................. 11Table 2: Interventions for biodiversity conservation in the coastal regions ..................... 21Table 3: Vision and goals for Regional Development Planning....................................... 23Table 4: SWOT Analysis of the Regional Councils ......................................................... 27Table 5: Programme for institutional strengthening and capacity building...................... 32INDEX OF FIGURESFigure 1: Organisation structure of Regional Councils (management cadre)................... 10Figure 2: Organisational Structure of Directorate - Planning and Development Services192

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsLIST OF ACRONYMSBCPCBOCDCCHCMTCROCSSDDCDIPDPICEIAEMPEMSEMUFINIDAGISGSHRICDICTICZMIDPIMSCLUPLADCMAWRDMBESCMETMFMRMHSSMIBMLRRMMEMRLGHMWACWMWTCNACOMANALISBiodiversity Conservation PlanningCommunity-Based OrganisationConstituency Development CommitteeCommunity HealthCross Ministerial TaskforceChief Regional OfficerCorporate Social SpendingDirectorate of Decentralisation CoordinationDecentralisation Implementation PlanDecentralisation Policy Implementation CommitteeEnvironmental Impact AssessmentEnvironmental Management PlanEnvironmental Management SystemEnvironment Management UnitFinish Development AgencyGeographic Information SystemGeneral ServicesHuman ResourcesIntegrated Conservation and DevelopmentInformation Communication TechnologyIntegrated Coastal Zone ManagementIntegrated Development PlanInter-Ministerial Committee for Land Use PlanningLocal Authority Development CommitteeMinistry of Agriculture, Water and Rural DevelopmentMinistry of Basic Education, Sport and CultureMinistry of Environment and TourismMinistry of Fisheries and Marine ResourcesMinistry of Health and Social ServicesMinistry of Information and BroadcastingMinistry of Lands, Resettlement and RehabilitationMinistry of Mines and EnergyMinistry of Regional and Local Government and HousingMinistry of Women Affairs and Child WelfareMinistry of Works, Transport and CommunicationNamib Coast Biodiversity Conservation and ManagementNamibia Land Information System3

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsNAMPABNBSAPNPCNDPNGONPCSOPMPDSRDCCRDPSDCSWOTTFCATFPToRToTNamibia Planning and Advisory BoardNational Biodiversity Strategy and Action PlanNational Planning CommissionNational Development PlanNon Governmental OrganisationNational Planning Commission SecretariatOffice of Prime MinisterPlanning and Development ServicesRegional Development Coordinating CommitteeRegional Development PlanSettlement Development CommitteeStrengths, Weaknesses, Opportunities and ThreatsTransfrontier Conservation AreaTransfrontier ParkTerms of ReferenceTraining of Trainers4

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional Councils1. INTRODUCTIONThe "Namib Coast Biodiversity Conservation and Management" (NACOMA) Projectintends to support Integrated Coastal Zone Management (ICZM) and biodiversityconservation by implementing an effective coastal zone planning framework. NACOMAwill pursue this overall goal by implementing three components. First, there will be acoastal policy process that will address all coastal issues in a manner that is wellinformedand participative so that the needs and aspirations of the coastal inhabitants canbe incorporated and the roles of all parties can be clearly defined in terms of ensuring thewise use of Namibia’s coastal areas. Second, NACOMA will make provision for capacitybuilding and institutional strengthening of the Regional Councils as the organs that willplay a major role not only in the policy making process itself, but also in theimplementation of the policy once it is in place. In particular will the environmentalplanning and management capacity of Regional Councils be strengthened, this being tiedclosely to progress made in terms of decentralisation in the country. Finally, there will bea third component that will increase linkages between biodiversity conservation andlivelihood creation by establishing pilot projects and programmes that will lead toconservation of coastal biodiversity.The project will be implemented through the Regional Councils in the Kunene, Hardap,Erongo, and Karas regions whose mandates are closely tied to the decentralisationprocess. This process is grounded in the Decentralisation Enabling Act of 2000 1 , theresponsibility that falls under the Ministry of Regional and Local Government andHousing (MRLGH). In order for the Regional Councils to perform their designatedfunctions, adequate institutional capacity must be built. Such capacity building willrequire focused action in terms of:o The internal institutional capacity of the Regional Councils, their mission, goals,strengths and weaknesses, and those of related institutions/ agencieso The most adequate organisational structure to cater for the demands ofdecentralised environmental and biodiversity conservation planning.A capacity assessment was carried out by MRLGH in 2000 2 for all the regions inNamibia, which focussed in particular on the central level MRLGH obligations towardsthe Regions. The current report focuses more specifically on the Regional Councils’operational situation in the current state of decentralisation. It assesses the capacity of theRegional Councils and recommends on the optimum and sustainable institutional set-upand capacity building strategy to be supported by the NACOMA Project. The role of theRegional Councils is expected to be enhanced and strengthened through thedecentralisation process, which entails organisational and functional changes in terms ofidentified roles and mandates. Therefore, the secondary objective of NACOMA is toupdate and link the information on the decentralisation process to the institutional1 The Decentralisation Enabling Act, 2000 provide the legislative basis for the Decentralisation process.2 MRLGH, 2000. Capacity Assessment of Regional Councils in Namibia.5

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional Councilscapacity development foreseen for the Regional Councils. This report, therefore,attempts:• to relate the present status of the decentralisation process to the institutionalfunctioning of the Regional Councils,• to determine the Regional Councils' institutional setting and capacity for servicingthe functions pertaining to regional planning for biodiversity conservation,• to determine the optimum support in terms of institutional strengthening andcapacity building to be provided by the NACOMA project duringimplementation.The overall purpose of the current report is to discover how NACOMA can contributebest in terms of equipping the Regional Councils for the role they will play in the threecomponents of NACOMA and by doing so, will also place the Regional Councils in a farbetter position to bring about sustainable development through improved environmentalplanning and management, both in terms of specific tasks and in the broadest sense ofsustainable development. The full Terms of Reference (ToR) for the work are attached asAnnexure 1.Considering the close relationship between the nationwide decentralisation process andwhat the NACOMA Project will try to accomplish, the report starts by providing aconcise review of the decentralisation process in Namibia and ends with an assessment ofthe coastal Regional Councils’ institutional and human capacity. Finally, specificproposals are made on how NACOMA can contribute to the capacity building andinstitutional strengthening of Regional Councils.2. DECENTRALISATION IN THE CONTEXT OF NAMIBIADecentralisation entails the devolution of agreed responsibilities, functions and powersfrom central government to regional and local levels of government. The DecentralisationPolicy 3 serves as the legitimate vehicle through which the promotion of socio-economicand participatory democracy, inter alia, is to be achieved. The Policy, which is defined asthe transfer of political, administrative, legislative, financial and planning authority fromnational government to sub-national governments, is embedded in the NamibianConstitution.While the MRLGH, particularly the Directorate of Decentralisation Coordination (DDC),provides overall direction and co-ordination of the decentralisation process, lineministries serve as key implementing bodies. In addition to other responsibilities,regional and local authorities – aided by multiple sub-regional organs, such asConstituency Development Committees (CDC’s) – are tasked to prepare budgets,planning and service-delivery systems for services, which will be delegated in the firstphase and decentralised within the first five years.3 The Decentralisation Policy, which was adopted in 1997 by the Namibian government, describes theframework in which decentralisation in Namibia is occurring.6

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsThe decentralisation process is characterised by two phases, namely delegation anddevolution. Delegation entails the decentralisation of a function from a line ministry toenable and empower Regional Councils or local authorities to perform the function as anagent on behalf of the line ministry while devolution, in turn, provides regional and localauthorities full administrative decision-making and budgeting and planning powers.Devolution normally remains the ultimate goal of decentralisation processes. The policyof decentralisation in the context of Namibia is aimed at devolution but within theframework of a unitary state. 4 However, neither delegation nor devolution has yet takenplace up to date, although the decentralisation process is on the brink of entering thedelegation phase. 5 The first ministries to delegate are expected to do so during the nextfinancial year. It is likely that the Ministry of Basic Education, Sport and Culture(MBESC), Ministry of Information and Broadcasting (MIB), Ministry of Women Affairs,and Child Welfare (MWACW) and the Ministry of Agriculture, Water and RuralDevelopment (MAWRD) will be among them.The Namibian decentralisation process provides for delegation and devolution in thefollowing spheres 6 : (a) political, (b) financial, (c) administrative, (d) changed centrallocalrelations, and (e) functional. These elements, thus, form an integral part of theDecentralisation Policy.3. BRIEF REVIEW OF THE DECENTRALISATION PROCESS THUS FARGiven the relatively “young” status of decentralisation, it is difficult to make a thoroughassessment of the process as many tangible results may still be obscured because theyare, silently or behind the scenes, in progress. However, considering the close linkbetween NACOMA and decentralisation such an assessment is necessary, not only interms of how decentralisation can aid progress in terms of sustainable coastaldevelopment but what dangers and obstacles may stand in the way of NACOMAachieving its results within the determined timeframe of the project.Countries in Southern Africa have experienced considerable political and economicliberalisation that has resulted in a push to change the role and instruments of nationaldevelopment planning systems in these countries”. 7 In response to these trends, mostgovernments vigorously pursued strategies to facilitate the transfer of specified authority,responsibility and resources from central government level to regional and local authoritylevels. In Namibia, this trend became increasingly conspicuous as a result of centralgovernment’s drive towards the promotion of participatory democracy and socioeconomicdevelopment in the Namibian society. This trend, which became officially4 MINISTRY of Regional and Local Government and Housing, 1998. Decentralisation in Namibia: ThePolicy, Its Development and Implementation.5 This is dependent on Cabinet’s approval of the MRLGH’s Decentralisation Implementation Plan.6 MRLGH, 2004. Draft Decentralisation Implementation Plan.7 Haddingham, T.J., Paige, M.A., and Smith, G.N., 2002. A Comparative Review of the Role ofDevelopment Plans as Tools to Support Decentralisation in Six Southern African Countries.7

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional Councilsknown as decentralisation, was preceded by the establishment of appropriate institutionsand policies to propel the process coherently.3.1 LEGAL AND POLICY CONTEXTIn Namibia, the existence of Regional Councils is facilitated and supported by theNamibian Constitution (1990) that provides for the establishment of structures of regionaland local government in Namibia. The imperative to decentralise is clearly espoused byChapter 12 of the Constitution, which stipulates “For the purpose of regional and localgovernment, Namibia shall be divided into regional and local units, which shall consistof such regions and local authorities as may be determined and defined by Act ofParliament” (Article 102(1)). 8 The legal basis for these authorities is further accentuatedby four fundamental pieces of legislation, namely, the Regional Councils Act (Act No. 22of 1992) – referred to in this document as ‘the Act’, the Local Authorities Act (Act No.23 of 1992), the Trust Fund for Regional Development and Equity Provision Act (ActNo. 22 of 2000) and the Decentralisation Enabling Act (Act No. of 2000).o The Traditional Authorities Act (Act No. 25 of 2000) and the Council of TraditionalLeaders Act (Act No. 13 of 1997) – the former provides for the establishment oftraditional authorities and their jurisdiction (inter alia), whereas the latter provides forthe establishment of the Council of Traditional Leaders and its powers, functions andduties.o The Regional Planning and Development Policy, 1997, provides the framework forplanning and development in the regions.o The Decentralisation Policy was approved by Cabinet in 1996, adopted by theNational Assembly in 1997 – and subsequently officially launched/ implemented in1998. The Decentralisation Enabling Act (Act No. 33 of 2000) provides for, andregulates, the decentralisation to Regional Councils and local authority councils offunctions vested in line ministries, (NDP2).o Additional relevant legislation is the Community Courts Act, (Act No. 10 of 2003) andthe National Housing Development Act (Act No. 28 of 2000).Currently, the Regional Councils Amendment Bill, 2003, which amends the RegionalCouncils Act, 1992, aims ‘to adjust the period within which general elections formembers of Regional Councils are to be held; to make a consequential adjustment to theperiod of office of members of Regional Councils; and to provide for incidental matters‘,and is under consideration for amendment in the National Assembly. All in all, therelevant legislation provide for a sound legal basis for the Decentralisation process.3.2 STATUS OF THE DECENTRALISATION PROCESSTo effect the implementation of the Decentralisation Implementation Plan (DIP), theDirectorate of Decentralisation Coordination (DDC) (within the MRLGH) has developeda three-sponged strategy, focusing on:o The establishment of Cross Ministerial Decentralisation Taskforces (CMT) –consisting of representatives of line ministries, regional and local authorities – to8 MRLGH, 2003. Manual for Local Authority Councillors in Namibia.8

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional Councilsensure that all necessary preparatory work is completed to effect the gradualdelegation of functions, staff and funds and to prepare for devolution.o The initiation of regional decentralisation taskforces to support a smooth transferprocess and to maintain communication among relevant stakeholders.o The review of outdated and new decentralisation action plans to be produced by theline ministries.Further, the DDC has established the Decentralisation Policy Implementation Committee(DPIC) – consisting of a Committee of Permanent Secretaries chaired by the Secretary toCabinet (based in the Office of the Prime Minister (OPM)) – to provide policy directivesand guidance to the entire decentralisation process. The CMT prepared the followingdraft documents, for endorsement by the DPIC:o Manual on secondment of staff to regional councils and local authoritieso Budgeting guidelines for delegated functions to regional councilso Draft document on rationalization and harmonization of sector laws affecting withdecentralizationo Guidelines on development planning and budgeting under the delegation phaseThe MRLGH created the following portfolios in Regional Councils:o Chief Regional Officerso Directorso Deputy Directorso Development/ Economic Planners3.3 LINE MINISTRY ACTION PLANSFrom 2002 onwards, line ministries were tasked to submit (to the MRLGH) the staffingand budgetary implications of functions to be delegated to Regional Councils. Thepurpose was to obtain an overview of the staffing and budgetary implications forparticular regions, which would in turn assist in the implementation of the proposedadministrative structure. However, lacklustre co-operation from line ministries compelledthe MRLGH to provide them support with the compilation of the required action plans.The following line ministries have started to take action for the advancement of thedecentralisation process:o MBESC – finalised the recruitment of 13 Education Directors in line with therequirements of the Decentralisation Policyo MBESC & MHSS – finalised the restructuring of its regional units to allow for theestablishment the thirteen regional Health Directors as envisaged by theDecentralization processo MWTC & MAWRD – are in the process of restructuring their regional units to alignwith the thirteen Regional Councils for the implementation of decentralization –particularly, Works Asset Management (MWTC) and Rural Water Supply(MAWRD)o MRLGH - Conducted a series of Technical Working Sessions with line ministries tospeed up the development and finalization of Line Ministerial Action Plans9

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsIn line with the decentralisation process, the MRLGH instituted the managementstructure of the Regional Councils as per the underneath figure. This is based on aCabinet directive (no. 7 th /07.03.00/007) given to the Office of the Prime Minister (OPM)and the MRLGH to work out institutional arrangements and new personnel structures forthe Regional Councils. The rationale was to expand the organisation structure ofRegional Councils to effectively accommodate the functions to be decentralized. This hasled to the approval of the Regional Council blue-print structure through the OPM andCabinet. 9 The new structure, which was preceded by the amendment of the RegionalCouncil’s Act of 2002, was eventually implemented.Figure 1: Organisation structure of Regional Councils (management cadre)Regional CouncilManagement CommitteeChief Regional Officer(CRO)GovernorDirector –Planning &DevelopmentServices (PDS)Director – GeneralServices(GS)Director –Education(E)Director –CommunityHealth (CH)Deputy Director –Planning &DevelopmentServices (PDS)DeputyDirector –Finance (F)Deputy Director– Education(E)Deputy Director– CommunityHealth (CH)DeputyDirector –HumanResources(HR)DeputyDirector –Administration(A)9 The Regional Council structure is considered a blue print, as it can be adapted for individual regions – tosuit the region-specific needs and activities.10

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsAccording to the MRLGH, the filling of management posts in the Regional Councilmanagement structures will enable Regional Council representatives to negotiate/ consultbetter during forthcoming negotiations between themselves and line ministries – oncritical transitional issues such as transfer of staff and funds.The table underneath illustrate the newly-created management portfolios in the structuresof Regional Councils and the occupation status.Table 1: Staff complement (management cadre)Portfolios/RegionsErongo Hardap Karas KuneneCRO Occupied Occupied Occupied OccupiedDirector – PDS Occupied Occupied Vacant VacantDeputy Director Vacant Vacant Vacant Vacant- PDSDirector – GS Occupied Occupied Vacant OccupiedDeputy Director Occupied Occupied Occupied Occupied- FinanceDeputy Director Occupied Occupied Occupied Occupied– HRDeputy Director Vacant Vacant Vacant Vacant- AdministrationDirector -EducationVacantOccupied Occupied OccupiedDeputy Director Vacant Vacant Vacant Vacant- EducationDirector - CH Vacant Vacant Vacant VacantDeputy Director- CHVacant Vacant Vacant VacantIt is clear from the above that the process of implementation of the organogram(Figure 1) is well underway, although somewhat incomplete at the time this report ispublished (October 2004). It is, however, conspicuous that most vacancies occur in theadministration, education and health sectors – which could be attributed to functions(although earmarked) that are not yet decentralised by line ministries.3.4 PERCEPTIONS ABOUT THE DECENTRALISATION PROCESSDespite these positive developments, an accelerated and efficient decentralisation processin Namibia appears to still fall short of the ideal situation. However, the process does notaim for a complete devolution from the outset – as this could be dangerously unrealistic.Hence, the current activities constitute preparations for delegation. The ultimate phase ofdevolution will be planned for from next year onwards. Thus far, the process shows some11

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional Councilsprogress with the establishment of structures to effect decentralisation and an awarenessas well as challenges on the part of both regional and local authorities. It may be useful tobriefly examine the viewpoints of key stakeholders in Regional Councils and various lineministries.o Shared vision – The decentralisation process was subjected to considerableconsensus-building to solicit support from the relevant stakeholders (including primebeneficiaries) during the preparation phase. These activities ensured a commonunderstanding of the (rationale behind the) decentralisation process – particularlywithin the coastal Regional Councils.o Enabling environment – The sound legal framework provided the platform on whichthe required enabling environment had to be cultivated and developed. However,there are strong perceptions (within regional and local and even central governmentlevels) that the process is impeded by ‘deliberate restricted transparency, opennessand unwillingness to share authority and resources’ – obviously damaging thoseingredients that are required to create and enhance the required conduciveenvironment. A major reason for that perception emanates from the poor, and ratheruneven, flow of information from central government to the regions. A proposeddecentralisation newsletter was never put into effect. The ministries’ apparentresistance to change emanates, to a large extent, from widespread anxiety caused bylimited information and proactive support from the top administrative and politicallevels. Decentralisation has after all never been an easy and smooth process anywherein the world as it requires authority to be released from certain centres to be lodgednearer to ground level. There are, however, clear and positive signs that attitudestowards the decentralisation process are changing in a positive way.o Dependency – A fundamental impetus for the decentralisation process is the need toreduce dependence of regional and local government on the national fiscus. However,the dependency-syndrome has remained largely unchanged – it is the view of somethat these authorities are becoming increasingly reliant on central government forfunding. Due to capacity constraints, all finances are controlled by the MRLGH -based on the agency arrangements. This finance function is likely to be one of the lastfunctions that will be transferred. Since Permanent Secretaries remain the accountingofficers during delegation, and since a grant-transfer-system still has to be developed,the financial control will remain at the centre for the time being. Under devolution,once the grant system is in place, the financial management responsibility will bevested in Regional Councils.The Act’s prohibition of the generation of any additional funding – besides the 5%rate income from local authorities – is also believed to aggravate the financialpredicament of the Regional Councils. Various options are explored by the MRLGHon how to improve this situation. For example, Regional Councils’ own potentialrevenues will be explored as an element of the FINNIDA programme, just as revenuecollection systems will be developed.12

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional Councilso Resources transfer – Decentralisation is stated to facilitate the transfer of certainresources and functions from central government to regional and local authorities.While this process is embraced by the Regional Councils in general, the gradualtransfer of responsibilities (up to now) from central government was not yetaccompanied by increased financial and human resources. Once functions identifiedfor decentralisation are being delegated, funds and staff will follow those functions.This is currently being discussed with the relevant line ministries in work sessions.Ultimate decision-making authority, pertaining to issues such as the staff appointment(even at clerical levels), is believed to be confined to the realm of central government.This view/ perception is not true. Appointment of regional council staff is theresponsibility of Regional Councils by virtue of the Regional Councils Act whilesecondment is the responsibility of line ministries by virtue of the Public Service Act.Regional Councils have limited (if at all) control over budgetary allocations, ascentral government is the primary source of funding. Interviews with line ministriesrevealed that there is still considerable control from ministries headquarters on issuessuch as finance, personnel and assets. This proves that no active decision-makingauthority has yet been granted to Regional Councils. As stated elsewhere, the gradualtransfer of authority and resources will take place within the delegation anddevolution phases – the decentralisation process is currently on the verge of thedelegation phase pending Cabinet’s approval of the DIP. Once endorsed, plannedactivities for delegation will be implemented systematically.Further, the sharing of office space, minimise the likelihood of possible expansionwhen more staff recruitment occur within Regional Councils. Inadequatetransportation in Regional Councils impedes administrative and operational activitiesin the regions.o Co-ordination - It is anticipated that the decentralisation process will provide themeans for enhanced regional co-ordination between sectors and management levelsrelated to, inter alia, regional development planning, environmental planning andmanagement. However, there are no clear linkages (in terms of jurisdiction) betweenthe various levels of government – and among the various committees in thestructures of regional and local authorities – e.g. the RDCC, LADC, CDC, and SDC.The quantity of these organs (and their overlapping responsibilities and spheres ofoperations) could general influence effective/ efficient service-delivery.o Planning - Most line ministries that are affected by decentralisation have not yetsubmitted detailed management plans that will form the basis for negotiations to takeplace between line ministries and individual regional councils, and facilitated by theMRLGH. Once finalised, such plans will simplify planning within Regional Councilsas the following issues will consequently be clarified: (a) the impact on the staffcomplement of Regional Councils, (b) the impact on material resources, e.g. offices,office equipments, etc. and (c) the impact on financial resources – as salaries are paidby Regional Councils.13

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional Councilso Communication - Insufficient communication and co-operation between, and among,central government and Regional Councils have been identified as a majorimpediment to the decentralisation process. As the lead agency, the MRLGH isexpected to keep the relevant parties constantly abreast of developments and progressmade. Also, the lack of open communications channels and bureaucratic delays(mainly caused by line ministries) is perceived as a major impediment to regionaldevelopment. To improve the flow of information among the relevant stakeholders, anewsletter focussing on decentralisation was proposed although it never materialised.o Mandate of Regional Councils - The functions of Regional Councils are clearlydelineated by the Act. It is conspicuous that the powers and functions of theseCouncils are largely confined to regional planning and development – except forsettlement establishment, management and control where control is fully granted toRegional Councils. However, Regional Councils find it virtually impossible to fulfilthis fundamental function due to limited skilled personnel and material resources.Ever decreasing budgets, limited and frequently shared office space, lack of technicalexpertise or the tools to do planning (such as GIS), inadequate transportation, etc.makes development planning difficult. It is also noteworthy that regional planningand development provides for the ‘natural environment’. However, the skills requiredto deal with environmental issues are non-existent – throughout the RegionalCouncils.o Human resources – While there is undeniably no question in terms of the Act thatRegional Councils must develop capacity to manage, monitor and communicateregional development planning, including environmental planning and management,there are no guidelines on how to go about such tasks. There is no national model todemonstrate how to do this. This is complicated by the diversity of issues in thecoastal areas and differences (geographic) between regions. All Regional Councilsare confronted with skill deficiencies which demands skilled human resources whocould devise region-specific intervention strategies based on distinctive assessments.3.5 CONCLUSIONS AND MAIN CHALLENGES FOR THE DECENTRALISATION PROCESS3.5.1 General ConclusionsIt is clear that the Decentralisation process, which is primarily driven by the MRLGH(via the DDC), has attained multiple milestones, considering its relatively short history.However, there are some impediments to decentralisation - it appears that theimpediments to the decentralisation progress start at the planning level and continue tothe implementation level.At the root of these planning-oriented constraints are 10 : the lack of a coherent transitionplan (management and operational) understood and endorsed by the relevant10 These constraints were echoed at the ‘National Workshop on Organisational Structuring and Recruitmentof Staff to Regional Councils’ Establishment’, held on 15-17 September 2004 at Tsumeb.14

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional Councilsstakeholders, limited institutional support and backing (for Regional Councils) from lineministries, and unclear roles and functions of line ministries and Regional Councils, inparticular with respect to delegated functions. The Decentralisation Implementation Planis an overall management and implementation tool. However, it needs to be translatedinto action oriented programmes to be understood and utilised by the relevantstakeholders. Currently, the MRLGH, in co-operation with the line ministries, are dealingwith this task. Once such programmes are finalised, regional councils and line ministrieswill engage in meetings to iron-out transfers-related issues – under the auspices of, anddirection by, the MRLGH.The gradual transfer of authority and responsibilities from central government to regionaland local authorities needs to correlate positively with increased human, financial andmaterial resources – to ensure that the delegated functions are administered in aneffective and efficient manner. The recent filling of management structures in RegionalCouncils is a major step towards consolidating capacity – as it will provide the platformon which the required consultations and negotiations could effectively take place.3.5.2 Relevance to the NACOMA ProjectIt has already been said that deficiency in planning skills (and perhaps also a failure bysome to understand the intrinsic value of planning as a tool for good governance) isweakening the Regional Councils and therefore the decentralisation process itself.Three broad observations regarding decentralisation that relate to NACOMA are:3.5.2.1 The current planning machinery that guides the decentralisation process does notcater for environmental planning and management per se. The effective integration ofenvironmental concerns into the planning machinery of the MRLGH, both at the regionalas well as national level is likely to yield positive results in terms of sustainableutilisation of the coastal areas.3.5.2.2 Biodiversity conservation, environmental planning and management tend toinvolve many sectors by their very nature and thus would require input from a range ofparties, and of course the Regional Councils themselves. The way line ministries andRegional Councils are presently set up is not conducive to such coordination. Theseinstitutions report to different structures, are in different buildings and it is unclear howthey relate to one another. Unfortunately there is also little coordination at the nationallevel, for instance between MET and MRLGH in terms of what their respective dutiesand roles are when it comes to reporting. Improved co-ordination of developmentplanning policies and activities at the national level will certainly enhance regionaldevelopment planning, and may lead to more integration at the level of RegionalDevelopment Plans. For instance, MET could devise ways to infuse environmentalrelatedplanning and management into Regional Development Planning - with the fullcooperation and participation of the MRLGH of course. In this regard, the activeengagement of the Directorate Decentralisation Co-ordination could pave the way.15

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional Councils3.5.2.3 The MET line ministry action plans, which clearly set out functions, portfoliosand related resources transfer modalities, have not been submitted to the MRLGH.Needless to mention, this passive responses could only delay the process further.4. REGIONAL PLANNING AND DEVELOPMENTAs stated elsewhere, regional development planning is one of the core functions ofRegional Councils – as conferred by the Act.4.1 PLANNING FRAMEWORKIn Namibia, the development planning system is spearheaded by central government andregional and local authorities to ensure that effective co-ordination is developed andmaintained. The regional development planning process is also meant to be participativewith operational mechanisms ensuring participation by society takes place. However,during the country’s first National Development Plan (NDP), overall developmentplanning was primarily confined to the national and sector levels only – with varyingdegrees of consultations at regional levels. In line with the Decentralisation Policy, theGovernment extended this cardinal function to the regional level during the second NDPperiod. Since all national development plans are confined to a five-year implementationperiod, a longer term planning tool was required. In response, the government introducedVision 2030 11 , which aims to guide these relatively short-term development plans(starting with NDP2 up to NDP7) until 2030.The Regional Planning and Development Policy, which was approved by Cabinet in1997, seeks to establish a coherent regional planning framework for the decentralisationprocess to facilitate improved co-ordination between regional development institutionsand to avail the required resources for the attainment of regional gaols. It therefore goeswithout saying that the policy provides the platform for the decentralisation transitionprocess aimed at establishing enhanced planning, management and operational capacitiesat regional and local authorities.4.2 ENVIRONMENTAL PLANNINGToday, it is well-accepted that environmental concerns should be an integral part ofplanning. This is particularly true for Namibia because “much of its economy and most ofits people depend directly on the natural resource base and diverse ecosystems.” 12 Coastalareas tend to be places of concentrated economic activity and rapid development andNamibia is no exception. Increasing economic activities – in the spheres of mining,tourism, fishing, and to a lesser extent, agriculture – mean growing threats to theecologically sensitive coastal areas of Namibia, unless proper integrated developmentplanning is put in place swiftly. Furthermore, the Namib coastline, like other coastal areas11 Vision 2030 serves as the country’s strategic national development plan/ framework.12 Barnard P., 2001. Biodiversity and Development in Namibia: Namibia’s Ten-Year Strategic Plan ofAction for Sustainable Development through Biodiversity Conservation (2001-2010).16

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional Councilsflanked by the Benguela Current, is in a state of rapid transition. 13 This reality, which isdescribed in the report “Rapid Assessment of the Development Plans, BiodiversityConservation Projects and Socio-Economic Situation of the Namib Coastal Regions”,accentuates the imperative to introduce strong environmental capacity to planning in theNamibian coastal areas.In line with Article 95(1) of the Namibian Constitution, the State is mandated to takemeasures to promote and maintain the welfare of the Namibian people through, inter alia,“the maintenance of ecosystems, essential ecological processes and biological diversityof Namibia and utilisation of living natural resources on a sustainable basis for thebenefit of all Namibians, both present and future …” Namibia has taken up this challengein a number of ways. One of which is the establishment of the MET primarily tasked toaddress and advance environmental development issues in the country. Others responsesincluded tools such as inter alia, the Namibian Green Plan 14 and the NationalBiodiversity Strategy and Action Plan (NBSAP) 15 , aimed at supporting the aboveconstitutional obligation.At the regional level of governance, the Regional Councils Act confers the most thesignificant function, the socio-economic planning of the region, to regional authorities. 16The area that planning should cover include the following socio-economic activities(ibid):o distribution, increase and movement of people in the regions;o economic infrastructures and utilities such as water, electricity, transport andcommunication;o land-use management; ando the natural environment.Despite its significance and relevance to local communities, an established and effectivefunction for environmental planning and management currently does not exist within thestructures of Regional Councils. Therefore, Regional Councils are unable to respond toeffective land use management or the protection of the natural environment in theregions. This impediment could help to explain the recent upsurge of unsustainableeconomic activities within the ecological sensitive areas of the coastal regions.4.3 KEY ROLE PLAYERSRegional development planning involves multiple institutions, across various levels ofgovernance – due to its multi-disciplinary and cross-sectoral nature:13 Mabudafhasi, R., 2001. Knowledge Management, Capacity Building and a Collective Approach toSustainable Development in the Coastal Areas of the Northern Cape, South Africa. Global Conference onOceans and Coasts at Rio + 10, Paris, December 2001; Mabudafhasi, R., 2001. The Role of KnowledgeManagement and Information Sharing in Capacity Building for Sustainable Development. WBI WorkingPapers. The World Bank Institute.14 Namibia’s Green Plan, which was adopted in 1993, provides the framework within which sustainabledevelopment and conservation should take place in Namibia.15 NBSAP provides an overview of the country’s ten-year strategic plan of action for sustainabledevelopment through biodiversity conservation.16 MRLGH, 2000. Decentralisation Performance: Functions – Rules - Procedures. p- 62.17

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsAt the national level, the National Planning Commission (NPC) 17 and the MRLGHorchestrate the process. “These institutions are also tasked with the specificresponsibilities of providing planning guidelines and technical advice to RegionalCouncils; assist with the formulation of the regional development plans and ensure thatthey are integrated into the National Development Plans; ensure that there is moreequitable development in the regions.” 18 The sector ministries are tasked to implementspecified programmes and projects endorsed by ministries and Regional Councilrepresentatives. The national planning machinery is aided by the Town and RegionalPlanning Board (NAMPAB) 19 which planning jurisdiction is more urban-orientedwhereas that of the Inter-ministerial Committee of Land-use Planning (IMSCLUP) isconfined to rural land-use planning. The Legal and Policy Component provides adetailed assessment of these two planning bodies.Relevant planning instruments are the Townships and Division of Lands Ordinance, No.11 of 1963 as well as the Town Planning and Ordinance, No. 18 of 1954. While theformer provides for the establishment of townships and for the regulation and control ofthe development of the land sub-division, the latter provides for preparation andexecuting of town planning schemes. 20At the regional and local levels, Regional Councils are the leading agencies primarilytasked with planning, implementing and co-ordinating sustainable regional developmentactivities and processes – in collaboration with relevant stakeholders - in line with theDecentralisation Policy.4.4 PLANNING IN PRACTICEPlanning does not happen automatically. There have to be structures in place that consistof properly capacitated people. There have to be linkages with other structures that canparticipate, enhance or otherwise contribute usefully to planning. There have to bemechanisms that will ensure the participation of society in all its diversity in planning,meaning the communities, private sector, NGOs and CBOs – including the mining sectorthat can contribute much to planning, not only because mining often involves vast areasand the companies have technical planning tools such as GIS at their avail, but also interms of where and how the big mining houses will direct their Corporate SocialSpending (CSS) 21 .17 The NPC is mandated by Article 129 ‘to plan the priorities and direction development activities andprocesses in Namibia.’18 Regional Development Perspectives, Vol. 2, NPC, 2001.19 NAMBAP is entrusted with all matters relating to town planning schemes, in terms of the Town PlanningOrdinance, No. 18 of 1993, which as amended by the Town Planning Amendment Act, No. 27 of 1993.20 The Urban and Regional Planning Bill is envisaged to substitute these Township and Town PlanningOrdinances.21 In South Africa the large mining houses are increasingly becoming interested in collaborating in regionaldevelopment, at least in part because of the new Minerals and Petroleum Development Act, promulgated in2004 that requires a Social and Labour Plan as well as an Environmental Management Plan (EMP) to be inplace as prerequisites to renewing mineral concessions allocated under the Old Order. In Namibia the samesituation can follow suit; for instance, at the Karas Investors Conference held in 2004 there clearly wasgoodwill from the mining sector toward assisting in regional development. However, monetary assistancecan be best applied in the proper context and guidance that a good RDP can provide.18

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsPlanning thus does not belong to government only; while government is mandated to leadthe process and make sure that it does happen, development planning should be viewedas a process of government planning with the people. It is, therefore, necessary toexamine if such structures exist in government so it can play this very important role.Regional Councils are relatively new structures and still evolving. However, there arevery promising signs that the machinery to affect planning with multiple partners is beingput in place. The report Capacity Assessment of Regional Councils in Namibia 22proposes the following organizational structure for the Directorate – Planning andDevelopment Services:Figure 2: Organisational Structure of Directorate - Planning and Development ServicesDirectorate – Planning and Development ServicesDivision – Planning Division – Rural Services Division – DevelopmentSub-Division –Economic PlanningSub-Division – RuralWaterSub-Division –SettlementsSub-Division –CommunityDevelopmentSub-Division –EnvironmentalResource ManagementSub-Division – Town &Regional PlanningSub-Division – MgtInformationSub-Division – Lands,Resettlement &RehabilitationSub-Division –Sub-Division – CapitalDevelopment ProjectsSub-Division –ContractsSub-Division –Technical ServicesSub-Division – HousingSub-Division –Population PlanningCurrently, the Directorate of Planning and Development Services as well as its Planning,Rural Services (with its three sub-divisions) and Development Divisions are establishedcomponents within the institutional structures of Regional Councils – represented by allthe boxes that are not coloured. All the sub-divisions (coloured) under the Planning and22 MRLGH, 2000.19

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsDevelopment Divisions are components that were proposed by the 2000 MRLGH study.While the incumbent Economic and Development Planners could operate from theproposed Economic Planning Sub-Division (blue box), the proposed EnvironmentalResources Management Sub-Division (pink box) appears to be most suitable for theintegration of the proposed ‘Environmental Planner’ portfolio. Equally importantly, thereexists also a Sub-Division for Community Development and it is clearly this Sub-Division that can play a major role in making sure that communities and the broadersociety at large is involved in regional planning.4.5 CONCLUSIONS AND RELEVANCE FOR THE NACOMA PROJECT4.5.1 General ConclusionsThe country’s development-planning framework is clear in terms of what it aims toaccomplish. It is also clear that planning at regional level is pivotal both in terms ofproviding the necessary input ‘upstream’ into planning, and at the same time ensuringthat the ‘downstream’ needs, realities and aspirations of the people are accuratelyreflected and taken into account in the planning processes. However, the environmentaldimension has been almost totally absent in planning except for some general statementsin the Regional Development Plans that give the impression that they have been ‘cut andpasted’ from one document to another. Amongst many other reasons for this, the linkagesbetween the Regional Councils and the relevant line ministries (in this case the MET) arerelatively weak – an impediment that undermines planning activities and processes.Further, the environmental management function is neither clearly defined nor clearlydeveloped or co-ordinated at the regional level. While much emphasis has been place onthe environmental dimension of planning it will be a serious mistake to address this issuein isolation from the community dimension in planning; after all, the two go hand inhand, and the regional level ‘downstream’ to the local level is where the two can bereconciled under the auspices of the RDP.4.5.2 Relevance to the NACOMA projectIt appears that the legal framework for decentralised planning is in place – at least inprinciple and enshrined in policy and the Act. The importance of incorporating theenvironment element into planning is also realised. However, the following impedimentsexist:4.5.2.1 The Regional Councils’ organogram provides for the Directorate of Planning andDevelopment Services, which in turn provide for the Planning Sub-Division where the‘Environmental Planner’ needs to be located. However, while these structures are only inthe conceptual stage at present and recruitment taken place, they at least exist and puttingthem in place and enabling them can be a focal point for NACOMA intervention.4.5.2.2 Incorporating environmental planning and management into the regionaldevelopment planning system posses a pertinent challenge to regional and centralgovernment authorities. The provision of sufficient legal substance to the regionaldevelopment planning system – for increased decision-making powers to RegionalCouncil - is another distinct challenge that needs an appropriate policy intervention.20

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional Councils5.5.2.3 Lack of planning will never be remedied by simply staffing the position in theorganogram presented in Figure 2. While planning is as old as humanity itself, it remainsa relatively new experience for Regional Councils and the entities that need to beinvolved with them in terms of broader regional planning. To develop a culture ofplanning, especially one in which people at ground level have the power that democracyis supposed to bring to them, will require concerted actions, programmes and above allexposure to situations where planning has been successful and in fact benefit the people.5. INSTITUTIONAL AND CAPACITY BUILDING ANALYSISThis section examines the strengths, weaknesses, opportunities and threats (SWOT) ofthe coastal Regional Councils with regard to environmental planning and management.This analysis is based on a SWOT analysis 23 that was carried out through interactionswith relevant key stakeholders in structures of regional authorities and line ministries. 245.1. THE FOUR COASTAL REGIONSBefore analysing the institutional and capacity setup of the Regional Councils, it is usefulto have a better grasp of how the development visions and missions of the four regionsaddress environmental concerns and the protection of the key biodiversity areas.5.1.1 Areas of biodiversity significanceThe four coastal regions consist of areas with significant natural resources andbiodiversity. This biodiversity pose pertinent challenges to the coastal Regional Councilsin terms of contributing to its conservation.Table 2: Interventions for biodiversity conservation in the coastal regions 25Region Areas of Biodiversity Interventions RequiredKunene • Skeleton Coast Park,• Kunene River Mouth• Conservancies adjacent to theSkeleton Coast Park• Improved information flow andawareness raising• Create synergies andpartnerships (encourage localcommunity engagement)• Provide training and education 2623 A ‘strength’ is a resource or capacity an institution can effectively use to achieve its objectives whereas a‘weakness’ is a deficiency or defect in an institution that keeps it from attaining its objectives. An‘opportunity’ depicts any favourable situation in an institution’s environment while a ‘threat’ refers to anyunfavourable situation in an institution’s environment that is potentially damaging to its strategy/ existence.24 Input into the SWOT analysis was obtained from reports, interviews, workshop reports from the PDF Aand PDF B phase and assessments of various government papers by the EcoAfrica team.25 Staff members from the coastal Regional Councils were asked: ‘please name the key biodiversity areas inyour region and what could be done to ensure your effective engagement towards in these areas’?26 In this instance the focus of training and education was suggested to be on developing biodiversityplanning and management capacity (BDPM).21

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsRegion Areas of Biodiversity Interventions RequiredErongo • National West Coast RecreationalTourist Area• Walvis Bay Wetland• Cape Cross Seal Reserve• Namib Naukluft Park• Sandwich Harbour• Harmonise & promoteunderstanding of policies,regulations, etc.• Develop participatorymechanisms (encourage localcommunity engagement)• Provide training and educationHardap • Namib Naukluft Park • Provide access to coastalresources• Improved information flow andawareness raisingKaras • Sperrgebiet• Islands (north/ south of Luderitz)• Orange River Mouth• Improved information andawareness raising• Provide training and educationIt appears that the most significant needs for the regions as perceived by thoseinterviewed were: (a) improved information flow and awareness raising and (b) theprovision of adequate education and training, followed by (c) the creation of synergiesand partnerships, (d) harmonisation and increased understanding of policies as well as (e)increased access to coastal resources. The NACOMA Project can contribute in terms ofproviding the required capacity for the suggested interventions. However, cooperationand co-funding from the government, and for them to be sustainable, is required ifpositive outcomes are to be attained.5.1.2 Vision and Goals of Regional CouncilsThe Act mandates regional authorities to take charge of socio-economic planning in theregions. The RDP planning framework is in place to guide socio-economic developmentrelatedactivities and processes in the regions.Table 3 underneath presents the vision and mission identified by each region in theirRDP’s and analyses whether environment management and biodiversity conservation areaddressed within the current RDP framework.22

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsTable 3: Vision and goals for Regional Development PlanningRegion Vision/ mission Long-term goalsErongoHardapIt is the vision of the Erongo Region thatdevelopment takes place in such a manner asto facilitate the diversification of economicactivities in an effort to create employmentand wealth in the region, while distributingresources, facilities and services more evenlythroughout the region and among itsinhabitants. Furthermore, development mustbring about the sustainable utilisation of itsnatural resources and contribute towards thealleviation of povertyThe socio-economic upliftment of the peoplewith health for all, equal employmentopportunities in a crime-free and harmonioussociety, ensuring adequate infrastructure,affordable housing and portable water for allwhilst protecting the natural environmentThe RDP needs to address the following to realise the development Vision:o Unequal distribution of resourceso Unemploymento Agriculture and Tourismo Economic/ business diversificationo Physical infrastructureo Water scarcityo Education and trainingo Environmento HIV/ AIDSo Institutional capacityTo create a suitable framework to:o The sustainable development of the region’s agriculture, mining, tourism, tradeand industryo The sustainable management of the region’s natural resourceso The provision of adequate infrastructureo To development the human resources potential of peoples of all ages andbackgroundso For Regional Council to support, coordinate and spearhead regionaldevelopment23

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsRegion Vision/ mission Long-term goalsKarasKuneneTo raise living standards and reduce povertythrough the equitable, sustainable anddecentralized provision of education, healthhuman resources development and thecreation of economic opportunity for all,emphasizing the removal of genderdiscrimination and the development of themarginalized groups, while improvinginfrastructure, preserving culture and heritage,reducing crime and ensuring peace,reconciliation and stabilityThe development of the Kunene Region,through the implementation of a regionaldevelopment plan, focused on sustainablemarket-related development and thesustainable management and utilization of thenatural resources of the Kunene RegionTo create a suitable framework to:o To develop the full economic potential of the region’s mining, tourism,agriculture and fisheries sectoro To manage the region’s natural resources sustainablyo To improve the equitable and decentralized provision of education, socialservices and infrastructureo To development the human resources potential of peoples of all ages andbackgroundso For Regional Council to support, coordinate and spearhead regionaldevelopmentTo create a suitable framework for:o The sustainable development of the full economic potential of the region’stourism, agriculture, mining, trade and industryo The sustainable management of the region’s natural resourceso The development of the human resources potential of peoples of all ages andbackgroundso The Regional Council to support, coordinate and spearhead regionaldevelopmentIt appears that all the regions - except the Karas - have vision and mission statements that make specific reference to sustainablenatural resources management to guide development activities. However, reference is made only in the widest sense, for instance,“sustainable development”. The management of their natural resources feature in the long-term goals of all the regions. Thisrealisation bodes well for the integration of biodiversity conservation planning and management (as a pertinent goal and activity) inthe RDP’s of regional authorities. However, there is now a need to move from generalised statements to specific activities to pursuethese broad ideas and make a difference on the ground. For that to happen, much capacity in terms of environmental planning andmanagement needs to be brought to Regional Councils.24

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional Councils5.2 SWOT ANALYSISAs pointed out above, the capacity of Regional Councils has been assessed in numerousways and at various occasions. However, the Swakopmund Workshop carries particularsignificance because representatives from the divergent key parties were present andparticipated in working groups in the workshop. Also, the workshop occurred recently, inthe final stages of the project preparatory phase, and thus presents an up-to-date reflectionof the status of capacity in terms of environmental planning and management. It istherefore useful to briefly summarise the findings 27 of the Working Group on InstitutionalStrengthening and Capacity Building 28 below.The Working Group that dealt with ‘Institutional Strengthening and Capacity Building’had general agreement on the following:1. Regional Councils are experiencing severe skill deficiencies in terms of regionaldevelopment planning. This is particularly the case with environment. The lack ofqualified staff and limited understanding of biodiversity, environmental managementand management all contribute to the problem. According to the participants, theproblem can be addressed at least in part by the deployment of a type of EnvironmentManagement Unit (EMU) and appropriately qualified staff within Regional Councils.2. Based on various training needs assessments within Regional Councils, and againconfirmed at the workshop, well-structured and properly planned capacity buildingexercises are required to improve skills in terms of biodiversity planning andenvironment management. The nature and intensity of this training will be dependenton specific needs at the various levels that should be targeted:• Executive level – Governors and Councillors• Administrative level – Chief Regional Officers• Operational level – Economic/ Development Planners3. Regarding funding of the required training courses, NACOMA should fund trainingwithin project duration (4 years) – with limited co-funding from Regional Councilsand the MET. After 4 years, Regional Councils and the MET should fund training ona continuous basis.4. Despite possessing the required capacity, the MET is hampered by a very small staffcomplement – which makes interventions on their part in terms of capacity buildingin Regional Councils difficult and impractical. However, the MET is well positionedto provide training in biodiversity planning and environmental management. Shortcourses (both theory and practice) could be provided either on-the-job or at the MET.27 Summarised from: Mufeti, T., F. Odendaal, R. Garcia, J. Oranje and I.Kauvee, 2004. NACOMAPreparation Workshop – Workshop Proceedings. Swakopmund, 11-13 August 2004.28 This group was tasked to determine the need for institutional strengthening and capacity buildinginitiatives in Regional Councils in terms of biodiversity planning and environmental management.Participants were also asked ‘how best could the NACOMA project contribute/ add value to suchinitiatives’?25

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsThis will, however, depend on the nature of course and prevailing logisticalarrangements. On-the-job is however preferred as it will ensure that training isregion-specific, as it should encapsulate regional differences and inequalities.5. In follow-up meetings with the MET regional staff during and after the workshop, itwas pointed out by them that the MET regional staff members are also in need oftraining courses, especially specialist ones such as EIA, SEA and GIS. The better theMET staff are trained, the better they can train so that a “training of trainers”approach may be the best route to follow (so that outside people need not be engagedat time, which is expensive).6. Collaboration between Regional Councils, the MET and relevant key institutions ismarred by non-effective communication channels and structures. Activecommunication structures and open communication channels among relevant keystakeholders are necessary – to ensure effective co-operation and co-ordination.Sufficient awareness raising pertaining NACOMA’s role in Regional Councils andbiodiversity planning and environment management is required. Everyone agreed thatNACOMA has the potential to bring parties much closer together during theevolution of good governance/ decentralisation.7. Lack of clarity regarding roles of the relevant key stakeholders is a major obstacle toco-operation and co-ordination. Therefore workshops to clarify and agree upon roleswill be necessary.8. The slow pace of decentralisation inhibited general development planning andmanagement – and is likely to decelerate envisaged capacity building and institutionalstrengthening undertakings related to biodiversity planning and environmentalmanagement.9. For effective capacity building in the interim, a qualified person (multi-skilled interms of environmental matters such as environmental education, planning andmanagement) should be appointed by Regional Councils /MET and funded byNACOMA for the project duration – after 4 years, that position will be fully fundedby Regional Councils (or possibly the MET) as such a position will beinstitutionalised by then. This appointment would ensure:• The establishment of a specialist (Environmental Planner) portfolio in theorganisational structure of Regional Councils, or should be fully seconded andavailed of Regional Councils.• Transfer of skills should take place in optimal manner (for instance via in-housetraining) as the incumbent will be located within Regional Councils offices.Facilities and equipment required by the ‘Environment Planner’ should beprovided by Regional Councils and MET.• The installation of effective and appropriate communication, networking andcoordination (including reporting) mechanisms between Regional Councils andMET that will establish and consolidate communication between RegionalCouncils, MET and stakeholders. In this way, roles of key stakeholders could beclarified.26

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional Councils• To mitigate the cost implications of the proposed appointment, for a transitionalperiod during the implementation of NACOMA there could be one EnvironmentalSpecialist for two regions. MET could draft a job description early on duringNACOMA implementation for this position in consultation with RegionalCouncils.The above points that came out of the workshop were amalgamated with the insightsgathered by the writers during numerous one-on-one meetings, smaller group meetings,report findings, and proceedings from the workshops held during the PDF A Phase toproduce the concise SWOT analysis presented in Table 4.Table 4 further provides an analysis of the interventions that are recommended in thecontext of the NACOMA Project to address current weaknesses and threats as well as toseize strengths and opportunities and it thus forms a basis for the Programme forInstitutional Strengthening and Capacity Building presented in Section 6 of this report.Table 4: SWOT Analysis of the Regional CouncilsNo. Category1 Strengths1.1 Political will and support for goodgovernance and decentralisation1.2 Hands-on knowledge of regions e.g.cultural practices1.3 Established linkages with RDCC’s,RDC’c, LADC’s, SDC’s, etc1.4 Close alliances with key supportstructures, e.g. NGO’s, CBO1.5 Local community participationmechanisms exist1.6 Appointment of management staff inRegional Councils (see Figure 2,section 4.4)2 Weaknesses2.1 Limited understanding of biodiversityconservation planning and managementamong stakeholders2.2 Non-existing function and capacity forbiodiversity conservation planning andmanagement in Regional Councils andlocal communities2.3 Unclear roles and mandates of lineministries in decentralisation process2.4 Limited co-operation and co-ordinationamong stakeholdersIntervention1.1 Encourage good governance as a route to betterlife for all1.2 Assist in research and knowledge managementsystems1.3 Enhance Regional Council structures toimprove coordination and linkages1.4 Capitalise on synergies and strengths ofpartners1.5 Encourage local community engagement inenvironmental planning and management1.6 Provide training programmes to enhanceenvironmental planning and managementcapacity2.1 Promote training, education and awarenessraising programmes as well as field trips2.2 Develop appropriate capacity, e.g. funding‘Environmental Planner’ position duringproject duration2.3 Have role-players workshops to clarify roles ofdifferent parties2.4 Improved coordination through sub-ICZMcommittees, RDCC’s, etc.27

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsNo. Category2.5 Limited or distorted flow of informationcreated mainly by too many committees– adding to bureaucracy2.6 No specific legal provision forbiodiversity conservation planning andmanagement in Regional Councils Act2.7 Impression that conservation anddevelopment are irreconcilable and thatenvironment laws exist to hamperprogress2.8 Limited human, capital and financialresources to effectively integratebiodiversity conservation planning andmanagement2.9 Poor community development in theRDP process3 Opportunities3.1 Political will and sound legal basis forfunctions of Regional Councils exists3.2 There is an awareness that support forhuman resources exists3.3 Integration of biodiversity conservationplanning and management function inregional development planning system(RDP) can happen3.4 ICT can be utilised, good telephonelines and hardware exists3.5 Research and development andincreased stakeholder engagement inbiodiversity conservation planning andmanagement4 Threats4.1 Human, capital and financial resourcesconstraints that restricts biodiversityconservation planning and management4.2 Overlapping roles and mandates ofstakeholders impedes coordinationcooperation4.3 Continuing degrading and overexploitationof sensitive coastal areas4.4 Slow decentralisation process likely todecelerate integration of biodiversityconservation planning and managementfunction/ capacityIntervention2.5 Coordinating body to ensure the free-flow ofinformation2.6 Solicit support for the integration of thisfunction and its required legal basis2.7 Through study tours, show how ICDframeworks can benefit people2.8 Co-fund human, capital and financial resourceswith Regional Councils and line ministries2.9 Put in place planning personnel and enablefunctions that will involve communities3.1 Support strengthening of institutionalstructures3.2 NACOMA can provide support with cofundingfrom Regional Councils and lineministries (MET & MRLGH)3.3 Increase exposure to ICD pictures, site visitsand capacity building activities and processesmust be put in place3.4 Facilitate exposure to ICT, basic trainingcourses, and put networks in place3.5 Provide appropriate resources to enableresearch activities and stakeholder involvement4.1 Establish structures to ensure provision ofrequired resources as well as training4.2 Facilitate role-player workshops, assist inbuilding the initial linkages4.3 Build awareness and capacity as anintervention strategy4.4 Establish strong linkages with relevantinstitutions and capitalise on existing synergiesand strengths28

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional Councils5.3 CAPACITY BUILDING – TOWARD UNFOLDING THE ‘BIG PICTURE’It is widely accepted that there is a dearth of skills in Regional Councils. This isparticularly true in terms of environmental planning and management capacity. Withoutthis capacity and little more than a rudimentary knowledge of the available naturalresources it is very difficult for these authorities to make provision for sustainabledevelopment. These shortcomings pose serious challenges in terms of the conservationand development mandate of the Regional Councils, in effecting natural resource-baseddevelopment and in curbing the continued degradation of sensitive areas.Capacity building is the obvious intervention for creating and enhancing planning andmanagement of the regions’ distinct environments. The tacit assumption is that basicunderstanding and knowledge of biodiversity and conservation fundamentals will enableRegional Councils and relevant stakeholders (particularly communities) to takeadvantage of the natural resource base while reducing over-exploitation of resources anddegradation of their fragile natural resources at the same time.Limited knowledge and planning capacity is the first and foremost obstacle in effectivecontrol and management over the coastal regions’ sensitive and diverse biodiversityassets. But the underlying problem is much wider. It is well known that the constructiveengagement of local communities as the primary custodians of their natural resources iscritical for conservation to be widely understood and practiced on ground level. Toengage those primary custodians one can make use of representative structures such asthe DCC’s, RDCC’s, etc. Yet, while partnerships between government, private sector andlocal communities have been constantly advocated and encouraged, the reality is thatlimited benefit sharing has resulted thus far and local communities have remained on theperiphery of development. This has led to scepticism regarding the relevance andessence of conservation.Prevailing inequities provide pertinent challenges to Regional Councils and centralgovernment as it is difficult to convince poor people to refrain from plundering naturalresources, or from pursuing activities that are not necessarily friendly to conservation. Areal-life case is a proposed black empowerment agricultural project situated along theOrange River – right in the corridor that would join the Sperrgebiet and the GreaterGariep TFCA 29 . Yet, it is difficult to convince people who have not benefited for acentury from the destructive mining in the area that their Orange River based agriculturedevelopment is ‘bad’. Thus the critical question might still be posed: Does effectivecapacity building guarantee positive outcomes, namely equitable development and propercontrol and management of own natural resources? Posing the question another way,29 A TFCA refers to a cross-border region whose different component areas have different forms ofconservation status such as national parks, private game reserves, communal natural resource managementareas and even hunting concession areas. The proposed Greater Gariep TFCA straddles the South Africanand Namibian borders while the Skeleton Coast/Iona Park TFP straddles the Namibian and Angolanborders. For more information, see www.dlist.org.29

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional Councilsonce relevant stakeholders are empowered what happens next? Will biodiversityconservation automatically follow?The answer is probably no. In that sense capacity can be likened to a match stick. Youcan use the fire to cook a meal or to burn down a house. Again, the vision is of vitalimportance – not to be confused with the expressed vision that each Regional Council has– but planning provides us with the road map. Without it, we will never get there, nomatter how ‘capacitated’ we have become. So, capacity building in itself is not enough.Nice visions espoused by the Regional Councils that almost sound as if they could havebeen made by consultants are also not enough. People must be assisted to far betterunderstand and embrace the ‘Big Picture’ that the Namib Coast offers them in terms ofIntegrated Conservation and Development (ICD), not only biodiversity as a currency thatis difficult to translate to Namibian dollars and cents – this ‘Big Picture’ is a potentiallattice of conservation and multiple use areas along the coast and expanding inland areasthat stretches for the length of Namibia. It can be a picture that embodies sustainable andsensible development that has something for everyone, or it can remain a mere dreamchampioned by a few privileged scientists and conservationists as TFCA’s along theNamibian/ South African and Namibian/ Angolan borders.Rooted in the two TFCA on the northern and southern border of the country, the trifrontierlattice of protected areas span three countries and is impressive by any standardin the world – in beauty, diversity and scale. It is this ‘Big Picture’ that needs toincorporate the aspirations of the people as well as biodiversity conservation; it is easyenough to follow for those who have enough exposure to it, and at least in the case of theGreater !Gariep TFCA there are clear signs that is has enough promise and charm toinspire all sectors of Namibian and transfrontier society to be a uniting force inconservation. It is something to strive toward, to use as a real-life exercise to focusplanning and management efforts on and, above all, it is highly suitable for RegionalCouncil level as it involves so many players that the RDP’s are the most suitable, if notthe only workable planning framework in which they can be embedded. Considering themandate of development and conservation that Regional Councils have, the ICDapproach can add much value to the RDP process. Thus, in short, not only can people betaught the technical aspects of planning, but they can also be introduced to the virtues ofplanning by showing them that which is well worth planning for – the growing, butpoorly developed ICD picture in all four regions.6. PROGRAM FOR INSTITUTIONAL STRENGTHENING AND CAPACITY BUILDINGOn the basis of the strengths and weaknesses of Regional Councils identified in theprevious chapter, strategic options are proposed for carrying out regional developmentplanning related to biodiversity conservation and environmental management.6.1. OBJECTIVESIn the light of the SWOT carried out of Regional Councils, a number of objectives areoutlined for effect for integrated conservation and development at the regional level.30

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsThese objectives will guide the activities required, which can to a great extent besupported by the NACOMA Project and pursued beyond its continuation.Objective 1Enhance co-operation and co-ordination within, and among key institutions engaged inconservation and developmentObjective 2Develop and install information systems to assist in integrated conservation anddevelopmentObjective 3Enhance capacity of staff within line ministries and coastal Regional Councils to ensureIntegrated Conservation and Development (ICD)Objective 4Enhance the financial base of coastal Regional Councils to ensure better outcomesregarding ICDThe four objectives above translate to a Sub-Component in the section below, each withhis own activities and indicators.6.2. ACTIVITIES AND INDICATORSThe objectives above provide indications for the activities required for institutionalstrengthening and capacity building for integrated conservation and development at theregional level.Table 5 presents the sub-components and respective activities recommended for theNACOMA Project.31

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsTable 5: Programme for institutional strengthening and capacity buildingSub-component Activities Indicators1. Coordination andcooperation among key1.1. Reviewing and clarifying roles and mandates of keyinstitutions involved in conservation and development• Legal roles, mandates and jurisdictions clarifiedinstitutions involved in 1.2. Conduct a role players’ workshop. This should be • Role players aware of roles and more prepared toconservation and done by expert facilitators knowledgeable of theaccomplish integrated conservation anddevelopmentsituation.development functions2. Information systemfor IntegratedConservation andDevelopment (ICD)3. Capacity buildingfor IntegratedConservation andDevelopment2.1. Developing the Namibia Land Information System(NALIS)2.2. Reviewing and improve communication channelsbetween the different institutions and broader partners toensure adequate input into NALIS and wider access toNALIS2.3. Introduce the key role players to the unfolding ICD‘Big Picture’ in their region by undertaking site visitsand study tours (planners of all four regions should bepresent during all regional study tours) to the regionsand the areas immediately beyond the Kunene andOrange Rivers.3.1. Conduct a comprehensive human resource audit andtraining needs assessment within the Regional Councilsand broader partners including regional MET3.2. Training to fill the gaps identified, of RegionalCouncils and broader partners including regional MET(including ICZM courses, ToT, exchange visits, etc)• GIS equipment and license acquired in the fourregions• NALIS installed in the four Regions andoperating• Key staff in different institutions appointed toprovide feedback into NALIS• NALIS continuously fed with information• Mechanisms in place to ensure wider access toNALIS (e.g. on Internet)• Site visits and study tours undertaken to theregions and areas immediately beyond theKunene and Orange Rivers• Detailed training needs assessed in RegionalCouncils and broader partners• Regional Council staff and from other institutionstrained on ICZM• Regional Council staff trained to conduct trainingregularly on a as needed basis• Exchange visits conducted32

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsSub-component Activities Indicators3.3. Recruiting and training “Environmental Planner” inthe Regional Councils• Environmental Planners appointed progressivelyin the four regions3.4. Preparing Coastal Profiles of the region through aparticipatory process and based on information fromNALIS• Coastal Profiles prepared with input fromstakeholders• Coastal Profiles disseminated• Regional Council staff trained to prepare Coastal4. Strengtheningfinancial base ofRegional Councils3.5. Drafting of RDPs from Environmental andDevelopment Planers, based on information fromNALIS and through a participatory process3.6. Assisting in the selection, implementation andaftercare of targeted investment projects for biodiversityconservation in the region4.1. Reviewing financial resources required to maintainthe system and budget for themProfiles• Public participation process carried out to gatherstakeholder input for RDPs in the four regions• RDPs prepared and disseminated• Regional Council staff trained to prepare RDPsand to fulfill tasks in line with the RDPs’ vision• Stakeholders aware of the RDPs’ vision• Regional Council staff trained to assess and selectproject proposals and monitor projects on theground for biodiversity conservation andlivelihood creation• New tasks and system budgeted for in the fourRegional Councils33

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsSub-Component 1Coordination and cooperation among key institutions involved in conservation anddevelopmentActivity 1.1 Reviewing and clarifying roles and mandates of key institutions involvedin conservation and development• Review legal basis (laws, but also memoranda, job descriptions, etc.) of relevantinstitutions – MET, MRLGH, line ministries and Regional Councils - to assess gapsin terms of possible overlapping responsibilities (such an audit has not been donebefore involving all staff in Regional Councils. It should be a systematic andtransparent process).• Capitalise on synergies between the above parties and reduce identified gaps andloopholes (this can only be done after the activity above).• Review roles and mandates of both political and administrative staff to reducecounter-productive interferences and bureaucracy (there often is complaints thatindividual politicians have one agenda while the prevailing realities may bedifferent).• Solicit sufficient political and administrative support to promote environmentalmanagement and integrated conservation and development (this has to follow abovemeetings which will then be encapsulated in a memorandum).• Identify to-be-decentralised functions and provide clear transitional guidelines foroperational staff, management and administration (the product could be a simple touse manual).• Introduce legislative measures and incentives for sustainable environmental planningand management – including the restoration and rehabilitation of fragile environments(while there are various laws, including EIA, they are not being applies properly andin some cases not at all).• Establish newsletter to address relevant transitional issues (this newsletter is aimed atthe parties involved in above exercises).• Provide assistance to MET and Regional Councils to provide a decentralisationimplementation plan for the line ministry and RC in terms of ICD.Activity 1.2.Conducting a role players’ workshops• Have several workshops with role players to make sure they understand their basicmandates and roles in general, and then with particular reference to ICD. This shouldbe done by expert facilitators who are knowledgeable of the regions (otherwise only acertain point will be reached).• Promote detailed dialogue on the operational use of Integrated Coastal ZoneManagement (ICZM), / Biodiversity Conservation Planning (BCP) and IntegratedConservation and Development (ICD) concepts in all institutions and across differentsectors. Develop a comprehensive strategy and plans for Regional Councils in termsof ICZM, BCP and ICD planning, Integrated Coastal Management/ BiodiversityConservation Planning.34

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional Councils• Establish regional coordinating body to promote ICZM, BCP and ICD relatedactivities effectively.• Devise policy (inter-regional) for addressing biodiversity and environmentalmanagement effectively and efficiently in decentralisation process. The proposedCoastal Management Policy Programme as a good starting point where RegionalCouncils can play a powerful role in terms of participation by the role playersincluding local communities.• Determine how Public-Private-Partnerships can promote biodiversity andenvironmental management in Namibia along the lines of the coastal policy that willbe developed for Namibia during the NACOMA project.• Ensure the active engagement of local communities.• Provide an interactive platform on formal (ministerial/ Permanent Secretary level)and informal (operational) levels, between line ministries and Regional Councils asthe Integrated Coastal Management/ Biodiversity Conservation Planning concept/practice is relatively ‘new’ in Namibia, and has not been ‘institutionalised’ in apractical and consistent way. Such an interactive platform can be the starting point offorging functional and collaborative conservation and environmental planning at theregional level.Targets: Revive the Regional Development Co-ordinating Committees (RDCC) and theNamibia Planning and Advisory Board (NAMPAB) to increase effective/ efficient freeflowof information among, and between, relevant stakeholders. Disseminate informationpertaining clarified roles and mandates of various stakeholders coherently together withpractical guides/ booklets on Integrated Coastal Management/ Biodiversity ConservationPlanning.Sub-component 2Information system for Integrated Conservation and Development (ICD).Activity 2.1. Developing the Namibia Land Information System (NALIS)At the heart of information and knowledge management is an easily updatable GISsystem that can store relevant data on environmental as well as social parameters so thatsuch information is available at the push of a button (or almost). Following successfulexamples elsewhere staff will need to be trained in GIS and the upkeep of data bases.Activity 2.2. Reviewing and improve communication channels between the differentinstitutions and broader partners to ensure adequate input into NALIS and wider access toNALISNALIS can through overlay mapping present politicians, administrators, the privatesector and communities a clear picture in terms of development and conservation. It canalso generate maps for the RDP, for ICZM, etc.35

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsActivity 2.3 Introduce the key role players to the unfolding ICD ‘Big Picture’ in theirregion by undertaking site visits and study tours (planners of all four regions should bepresent during all regional study tours) to the regions and the areas immediately beyondthe Kunene and Orange Rivers.Sub-component 3Capacity building for Integrated Conservation and DevelopmentCapacity building does not only refer to technical capacity to work GIS, but to exposingpeople to what they should plan for. This is largely an alien picture to people who havebeen marginalised from natural resources and conservation.Activity 3.1. Conduct a comprehensive human resource audit and training needsassessment within the Regional Councils and broader partners including regional MET.• Obtain detailed information and statistics regarding existing capacity and determinetraining needs accordingly.• Based on outcomes of training audit, develop a coherent training and developmentstrategy – with a distinct focus on ICZM, BCP and ICD. Training and developmentstrategy should be a ‘blue print’ – containing each institution’s distinct training needsand thus allowing for adaptation to fit the different regions (to ensure that it iscustomised, though consistent – as training needs is likely to differ from one institutionto another).• For full-time on-the-job training, establish ‘Environmental Planner’ portfolio inproposed ‘Sub-Division Environmental Resource Management’ (figure 2, section 4.4)within structure of Regional Councils. Appoint an ‘Environmental Planner’ for eachcoastal Regional Council (although it was agreed that two can initially be appointed forall four regions).• To aid capacity-building initiatives, the MET could second environmental specialists toRegional Councils – to report to the Regional Council CEO on planning matters aswell as directly to the MET (to ensuring that their recommendations will be acted upon,and their needs addressed without having to negotiate unnecessary bureaucracy). It isrecommended that the latter situation can be a starting point in a four-year programmethat will gradually lead to the usurpation of MET line ministry staff into the regionalcouncils.Activity 3.2. Training to fill the gaps identified, of Regional Councils and broaderpartners including regional MET (including ICZM courses, ToT, exchange visits, etc)The types of training are to be determined by the training audit. However, the targetgroup consist of:• Executive level, e.g. Governors and Councillors, whom would most likely benefit froma basic/ elementary environmental planning and management training course.Permanent Secretaries/ Directors from line ministries could be accommodated at thislevel.36

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional Councils• Administrative level, e.g. CRO’s, whom would find more detailed training useful –including basic environmental planning/ management training and project managementto build technical competency. Deputy Directors and senior staff in line ministriescould be accommodated at this level.• Operational level, e.g. Economic/ Development/ Environmental Planners.Comprehensive/ detailed training will be required – including project management,ICZM and BCP. This level is applicable for all relevant Supervisors and operationalstaff in line ministries.• Study visits/ tours to South Africa and possibly also Tanzania should be undertaken ona “lessons learned” basis as those countries can help Namibia avoid certain pitfalls.• Introduce role players to plans other than the RDP as well as the later has its limitationsin terms of what it can do for ICD and BCP. Eventually all good plans can find a placein the spatial planning for the coastal areas.• Basic environmental training courses should be provided to all the relevant staff at thecoastal Regional Councils as well as line ministries - regularly.Pertaining to the interval of capacity-building initiatives/ programmes:• Short training courses (about a week duration) – this could be in-house or away fromwork (although the former is preferred). Workshops and seminars are suitable optionsfor this type of training.• Longer-term training courses, which include studies at recommended tertiaryinstitutions.• Due to their appropriate skills and competencies, the MET staff and the‘Environmental Planner’ could provide certain short-courses to staff within lineministries and Regional Councils. However, they would requiring some trainingthemselves – if not in terms of aspects of the environment then at least in terms ofgovernance and physical planning - which could be provided by external institutions/consultants.Targets: A well-structured training programme, which forms part of an overall regionaldevelopment management plan, can be developed at the start of the projectimplementation period. Strengthening existing synergies among relevant stakeholdersand institutions will consolidate this intervention.Activity 3.3. Recruiting and training “Environmental Planner” in the Regional Councils• Incumbent should possess strong training skills to create overall awareness and exposepeople (via practical training) to fundamental issues and practices based on ICZM,BCP and ICD.• Training (transfer of skills and knowledge) should be hands-on and in-house-orientedto optimise institutional resources and for better outcomes.• Collection of relevant information (via research) and establishment of a database(mainly environmental issues) need to form an integral part of the incumbent’s jobdescription.• The incumbent should be responsible for the interactive linkage/ networking betweenthe line ministries (particularly the MET) and the Regional Councils as well as withrelevant research, academic, private and public institutions, NGO’s, etc and37

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional Councilsdissemination of information to the relevant stakeholders (including communities, e.g.CDC, SDC, LADC). Some type of a co-ordination function is, thus, required to ensurethat communication flows freely and unrestricted.• Due to cross-sectoral nature of the position, a high degree of independence is requiredto ensure direct/ timely linkages with sectoral institutions are established – however,although incumbent could account directly to the Planning Director, he/she shouldhave direct links to the MET.• In terms of the hierarchy, the ‘Environmental Planner’s’ position should be above thelevel of Economic/ Development Planners and below that of the Planning Director.Primary functions (of the division/ incumbent) should be: (a) capacity-building, (b)communication/ awareness raising – targeting teachers, pupils, journalist, etc., (c)research and development, and (d) establishment and maintenance of database.Provision should also be made for programmes that prepare, translate and distributetraining materials.Activity 3.4. Preparing Coastal Profiles of the region through a participatory process andbased on information from NALISActivity 3.5. Drafting of RDPs from Environmental and Development Planers, based oninformation from NALIS and through a participatory processActivity 3.6. Assisting in the selection, implementation and aftercare of targetedinvestment projects for biodiversity conservation in the regionSub-Component 4Strengthening the financial base of Regional CouncilsActivity 4.1. Reviewing financial resources required to maintain the system and budgetfor them• Develop capacity to plan, budget and spend wisely.• If the funding criteria and budget allocations (from central government) becomes moretransparent and consistent, budget planning could improve considerably.• An accelerated decentralisation process could reduce the precarious financial situationin Regional Councils• Regional Councils should be allowed to identify alternative sources of funding toreduce sole reliance of central government funding – which is inadequate. [Note: theAct prohibits this.]• Benefits of sound environmental planning and benefits in terms of ecological services,or passing criteria (such as reviewing EIAs) can be translated into revenue for RegionalCouncils that can be linked to addressing the financial needs of the “environmentalunits” – in order words there should be an investigation on how to make soundenvironmental management pay for itself (or at least partly so).Reduce reliance on central government funding• Seek alternative funding sources that are legitimate.38

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional Councils• NACOMA (during its project duration) to support Regional Councils in followingmanner:o Provide funding for training and development activities. Line ministriesand Regional Councils to ‘co-fund’ even in non-monetary terms.o Fund the salaries of the four “Environmental Planners”. If funding isinsufficient, only two such Planners could be recruited for the fourregions. Co-funding by Regional Councils to start in the second half of thethird year, and full financial responsibility should be assumed during thesecond half of the final year of NACOMA (see 3.2.2.3 below).o Regional Councils needs to budget for funding of salaries of‘Environmental Planners’ to take effect within the fourth year.o Assist with purchase of equipment required for regional developmentplanning and monitoring, e.g. GIS tools.Targets: Proactively seek increased financing for sound environmental planning fromregional government (within the context of an accelerated decentralisation process andthe decrease in financial reliance on national government that must go with this) andmultilateral sources. NACOMA will be instrumental during the project implementationphase.39

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsREFERENCES & BIBLIOGRAPHYBARNARD, P. (ed); Shikongo, S. (ed); and Zeidler, J (ed). Biodiversity and developmentin Namibia 2001-2010. Windhoek. Ministry of Environment and Tourism,pb@dea.met.gov.naDANCED/Erongo Regional Council, 1999. Coastal Zone Management of ErongoRegion: Review of the Institutional Component. DANCED/Erongo Regional Council.Pp1-27.GOASEB, S., undated. Decentralization Process. Windhoek: Ministry of Regional andLocal Government and Housing.GONDANA,T., and Naimhwaka, E., 2002. Decentralisation of Capital Projects. NEPRUWorking Paper No. 83,HADDINGHAM, T.J., Paige, M.A., and Smith, G.N., 2002. A Comparative Review of theRole of Development Plans as Tools to Support Decentralisation in Six Southern AfricanCountries.MARGULES, C., 2000. Biodiversity planning and monitoring in Namibia. ResearchDiscussion Paper, 53. Windhoek: DEA Publications Department, Ministry ofEnvironment and Tourism. pp1-27.McGANN, J.A., 1999. Towards the establishment of the Environmental Investment Fund:opportunities, constraints and lessons learned. Research Discussion Paper, 39.Windhoek: DEA Publications Department, Ministry of Environment and Tourism. pp1-30.MINISTRY of Environment and Energy, 2000. Walvis Bay: Local agenda 21, Namibia.Ministry of Environment and Energy. pp1-95.MINISTRY of Regional and Local Government and Housing, 1998. Decentralisation inNamibia: The Policy, Its Development and Implementation, Vol 2.MINISTRY of Regional and Local Government and Housing, 1998. Decentralisation inNamibia: Situation Analysis, Vol3.MINISTRY of Regional and Local Government and Housing, 1998. Decentralisation inNamibia: Decentralisation, Development and Democracy, Vol 1.MINISTRY of Regional and Local Government and Housing, 2000. Capacity Assessmentof Regional Councils in Namibia.NAMIBIA, 1990. The Constitution of Namibia. Out of Africa Publishers. pp1-90.40

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsNAMIBIA, 2004. Namibia Vision 2030. Policy framework for long-term nationaldevelopment: main report. ppl-248.NAMIBIA, undated. Second National Development Plan (NDP2) 2001/2002 – 2005-2006: volume 1 macroeconomics, sectoral and cross sectoral policies. Windhoek,National Planning Commission. Chapters 1-22.NAMIBIA, undated. Second National Development Plan (NDP2) 2001/2002 – 2005-2006: volume 1 macroeconomics, sectoral and cross sectoral policies. Windhoek,National Planning Commission. Chapters 23-47.NAMIBIA, undated. Second National Development Plan (NDP2) 2001/2002 – 2005-2006: volume 2 regional development perspectives. Windhoek, National PlanningCommission. pp selected extracts.NAMIBIA, undated. Second National Development Plan (NDP2) 2001/2002 – 2005-2006: volume 3 public sector investment programme – financing the plan. Windhoek,National Planning Commission. pp1-394.NAMIBIA, undated. First National Development Plan (NDP1) volume 1 1995/1996 –1999/2000. Windhoek, National Planning Commission. pp1-521.NAMIBIA, undated. First National Development Plan (NDP1) volume 2 1995/1996 –1999/2000. Windhoek, National Planning Commission. pp1-325.NAMIBIAN Development Consultants, undated. Regional Development Plan KarasRegion Final Draft. Keetmanshoop: Karas Regional Council. pp1-162.NAMIBIAN Development Consultants, undated. Regional Development Plan 2001/2002 –2005/2006, Kunene Region. Opowo: Kunene Regional Council. pp1-147.NAMIBIAN Development Consultants, undated. Regional Development Plan 2001/2002 –2005/2006, Erongo Region. Erongo Regional Council.NAMIBIAN Development Consultants, undated. Regional Development Plan 2001/2002 –2005/2006, Hardap Region. Hardap Regional Council.ODENDAAL, F., 1999. Proposal for coastal capacity building programme in Namibia.Cape Town: Eco-Africa environmental consultants. pp1-10.41

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsANNEX I: TERMS OF REFERENCETerms of ReferenceConsultancy to analyse the institutional capacity of the Namib CoastRegionalCouncils (Kunene, Erongo, Hardap, and Karas) in relation to the decentralisationprocess and to develop recommendations for institutional strengthening andcapacity building1. BackgroundThe Namibian Government (GRN) has received preparation funds from the GlobalEnvironmental Facility (GEF) to prepare the "Namib Coast Biodiversity Conservationand Management Project" (NACOMA). The project intends to support Integrated CoastalZone Management and biodiversity conservation implemented through an effectivecoastal zone planning framework. The project will be implemented in two phases, aninitial 15 month preparatory phase and a four year implementation phase.The project has three components targeting: (i) Policy and Planning for SustainableManagement of the Namib Coast (including capacity building and institutionalstrengthening of the Regional Councils); (ii) Biodiversity Conservation and Monitoring& Evaluation; and (iii) Project Coordination Support.The Integrated Coastal Zone Management Committee (ICZMC) and its Secretariat willfacilitate and coordinate the preparation phase activities and project formulation. TheICZMC is representing the four Regional Councils of the coastal regions of Namibia aswell as the Ministry of Environment and Tourism, the Ministry of Regional LocalGovernment and Housing, the Ministry of Fisheries and Marine Resources, and theMinistry of Mines and Energy. The ICZMC’s Secretariat is currently located in theErongo Regional Council. The Secretariat’s set-up for the implementation phase is yet tobe determined during project preparation. The main output of the preparatory phase is theproject document and project implementation manual, on which 4 year projectimplementation will be based.The project will be implemented through the Regional Councils in Kunene, Hardap,Erongo, and Karas, whose mandates are being changed as a consequence of thedecentralisation process. This process is based on the Decentralisation Enabling Act of2000, the responsibility which falls under the MRLGH (Ministry of Regional and LocalGovernment). Other legislation, such as the Trust Fund for Regional Development andEquity Act of 2000 was designed to make available funding for the implementationprocess. In addition, the four key line ministries involved in coastal zone managementwill also have a role in project implementation as certain tasks will fall directly undertheir mandate.42

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsUnder the proposed NACOMA project, the ICZMC and its Secretariat will promotedialogue and facilitate cooperation among the various actors in the Regions with regardto mainstreaming biodiversity and environmental sustainability into coastal planning andmanagement, but implementation will depend on the Regional Councils and also lineMinistries. New policies, legislation and the decentralisation process determine that thereis a need for an assessment of the institutional capacity of the Regional Councils relatedto biodiversity conservation and environmental management within which the projectmust operate.In order for the Regional Councils to perform their designated functions, adequateinstitutional capacity must be build. This requires focused and concerted action in respectof the Regional Council's internal and institutional capacity, related to the following:a. The internal institutional capacity of the Regional councils, the mission, goals,strengths and weaknesses, and that of related institutions/agencies.b. The most adequate organisational structure to cater for the demands ofdecentralised environmental and biodiversity conservation planningA capacity assessment was carried out by MRLGH in 2000 for all the regions inNamibia, which focussed in particular on the central level MRLGH obligations towardsthe Regions. The present consultancy should focus more specifically on the RegionalCouncils operational situation in the current state of decentralisation.2. Objectives of the assignment:An independent institutional and organisational analysis is required to assess the capacityof the Regional Councils and recommend on the optimum and sustainable institutionalset-up and strategy to be pursued by the NACOMA project. The mandate of the RegionalCouncils is expected to be enhanced through the decentralisation process, which entailsorganisational and functional changes in roles and mandates, therefore the secondaryobjective is to update and link the information on the decentralisation process to theinstitutional capacity development foreseen for the Regional Councils. To this end, aconsultancy is needed:• to determine the Regional Councils' institutional setting and capacity for servicingthe functions pertaining to regional planning for biodiversity conservation,• to relate the status of the decentralisation process to the institutional functioningof the Regional Councils,• to determine the optimum support in terms of institutional strengthening andcapacity building to be provided by the NACOMA project duringimplementation.3. ActivitiesThe consultant will work under the supervision of the Project Coordinator and in closecollaboration with staff form the Regional Councils, and involved line ministries. All theregions must be visited to collect data from all available sources (Regional Councils, lineministries, NGOs, private and public enterprises, projects, National Statistics Office).This will include:43

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsA. Assessment of Institutional Capacity (approximately 30% of assignment):The purpose of the institutional capacity assessment is to provide a basis for (i)recommendations for institutional arrangements for environmental planning andmanagement and (ii) development of a targeted institutional strengthening and capacitydevelopment program to be implemented with support of the Project. The institutionalassessment should be carried out with participation and input from key stakeholders, e.g.Regional Council staff. They would thus be the principal actors in the evaluation process,not the objects of it. Involving key actors in planning, conducting, and interpretingevaluation findings will ensure that information is collected and used in ways that meetthe needs of everyone involved. The programme is not intended to strengthen allfunctions of the Regional Councils, but only those functions related to environmentalmanagement and biodiversity conservation on the Namib coast. Thus the institutionalassessment should focus mainly on aspects relevant to the NACOMA project interventionand should include, but not necessarily limited to the following activities:1. Determine the institutional setting of each Regional Council, to facilitate a commonunderstanding within the organisation and their target groups.2. Carry out a brief and focused SWOT analysis in each Regional Council in order todetermine the functioning of the Regional Councils with regard to environmentalplanning and management since approval of the Decentralisation Act, including toidentify the various mandates, tasks, work programmes and other activities which theRegional Council pursues in relation to regional planning. Prior to carrying out theSWOT analysis, introductory letters with objectives and description of SWOTmethod and expected procedures would be provided to the regions.3. Determine the external opportunities and threats in relation to the decentralisationprocess (seen as opportunity for the Regional Council).4. Determine the internal situation on basis of the above context including existingstrengths and weaknesses. This would include identification of e.g. the followingaspects:· Technical/Program Implementation Functions (e.g. program delivery, programplanning, program monitoring and evaluation, available skills and technology forcommunication and knowledge management and use thereof)· Structure and organizational culture (e.g. vision, governance approach)· Resources (e.g. human, financial)· Administrative procedures and support functions (e.g. financial management)B. Recommendations for institutional arrangements (approximately 20% of assignment):5. On the basis of the analysis of strengths and weaknesses of the Regional Councils,propose strategic options for carrying out regional planning related to biodiversityconservation and environmental management. Recommendations should take intoaccount that institutional capacity of Regional Councils will be build over the courseof project implementation. Thus, recommendations for institutional arrangementscould be presented as a process corresponding to the increasing roles andresponsibilities that Regional Councils would take on (e.g. as they would meetbenchmarks related to institutional capacity).44

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsC. Development of a program for institutional strengthening and capacity building(approximately 50% of assignment):6. Make practical and viable recommendations for a programme of capacity building tobe (partially or fully) financed by the Project, that could later be developed into afour-year action plan for implementation, taking into account:a) The major elements of the decentralisation process;b) The potential financing options for the Regional Councils to take financialownership of its own function on a sustainable basis;c) The ongoing process of the restructuring of the Regional Councils andhighlighting the synergies and complementarities between the RegionalCouncils, municipalities, and central government;d) The need for the Regional Council to maintain continuous communicationwith municipalities, line ministries, and other institutions and projectsoperating in the Regions.The programme of capacity building should mainly focus on the achievable targetsfor capacity building over the period of the project implementation (next four years)and required actions to achieve these targets. To the extend possible, the programmeshould (i) specify the type of actions recommended (e.g. technical assistance,workshop, staff training, partnership development, etc.), and (ii) estimate budgetneeded for financing proposed actions. In addition, performance indicators to trackprogress in achieving results in institutional strengthening and capacity buildingshould be identified.D. Brief review of status of decentralization process:7. Fundamental to the above analysis is a review of the status of the decentralisationprocess, which should be analysed separately. This involves:a) Reviewing the underlying legislation (Decentralisation Act, Trust Fund forRegional Development and Equity Act of 2000 and other legislation).b) Undertaking discussions with MRLGH, line ministries, and other stakeholders, toobtain a view on the decentralisation progress in practice4. OutputsThe following deliverable are expected:1. A report on findings of the institutional analysis including internal strength andweaknesses per region.2. Presentation of strategic options for institutional arrangements to carry out regionalplanning related to biodiversity conservation and environmental management.Recommendations would be based on findings from the SWOT analysis.3. A programme for institutional strengthening and capacity building to be supported bythe NACOMA project including:45

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsI. a four-year plan of action with description of activities (i.e. to be implemented bywhom, for whom, how and when);II. estimated cost to implement plan of action (cost per activity);III. indicators to assess progress towards achieving set;IV. baseline for indicators according to results from the institutional analysis (to theextend possible);4. Presentation of the above deliverables of the consultancy to the ICZMC.5. DurationApproximately 2 calendar month (~43 days effective)6. Paymenta) Upon submission of the institutional capacity assessment (including SWOT analysis),20% of total contract value will be paid.b) Upon submission of recommendations for institutional arrangements, 30% of totalcontract value will be paid.c) Upon submission of a final draft program for institutional strengthening and capacitybuilding, 50% of total contract value will be paid. (The first draft of the proposedprogram should be circulated to key stakeholders for comments. These commentsshould be addressed and incorporated into the final draft of program. Payment will bebased on the latter.)7. QualificationsThe consultant should have more than 5 years of relevant experience and an post graduateeducation in sociology and/or communications or other relevant education within socialsciences. Should be experienced in carrying out institutional analysis and demonstrateexperience with developing capacity building plans based on similar previousassignments.8. Expression of interestInterested individuals or teams are requested to submit their covering letter and a detailedCV or portfolios to the Project Coordinator, Mr. Timoteus Mufeti, Erongo RegionalCouncil, 461 Tobias Hainyeko Street, Swakopmund, Tel. (064) 403905, Fax 064 412701,Email: tmufeti@iway.na. For further information, also contact Mr. Timoteus Mufeti.Applications may be submitted by post, hand or email to Timoteus Mufeti, butapplications sent by fax will not be considered. Only short listed applicants will becontacted, and documents cannot be returned.46

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsANNEX 2: LIST OF KEY STAKEHOLDERS CONSULTEDName Organisation Position Content of discussion Meeting dateLAIN P. MET Regional capacity building options – environmental planningand managementJOODT L. Karas Regional Council Development Planner Role of NACOMA in strengthening regional council capacity 12/July/2004HERERO J. Hardap Regional Council Development Planner Role of NACOMA in strengthening regional council capacity 13/July/2004JACOBS S.GOLIATH S.Karas Regional CouncilKaras Regional CouncilCROGovernorConstraints in regional council and role of NACOMASCHRODER K. SKEP Namibia Assistant Role of SKEP Namibia in Biodiversity Conservation inNamibiaUSHONA D. Walvis Bay Municipality Manager – Solid Waste &EnvironmentGaps in biodiversity conservation; Local Agenda 21 ProjectLAWRENCE C. Swakopmund Municipality GM – Health Services Tasks of the municipality in environmental protection andmanagementGURIRAS C.W. Erongo Regional Council Regional EconomicPlannerKATOMA T. Erongo Regional Council Regional EconomicPlannerMAKETO C.S. MET Chief Central Warden(Erongo)BRABY R. MET Chief Warden – WildlifeManagement (Erongo)EIMAN T.BARNES J.Namibian Ports Authority(NAMPORT)Design and DevelopmentServices/ METEnvironmental ControlOfficerDirectorRegional Council’s capacity, ongoing and required projectsfor biodiversity conservationAssessing regional council’s capacity for developmentplanningGaps in biodiversity conservation; capacity at MET andregional councils; protected areas plansGaps in biodiversity conservation; capacity at MET andregional councils; protected areas plansMajor environmental problems resulting from the portoperation and projects in place to address them, specificallythe EMS in preparationThreats to biodiversity in Namibia and gaps in biodiversityconservation16/July/200417/July200416/Aug/200416/Aug/200416/Aug/200416/Aug/200416/Aug/200416/Aug/200417/Aug/200418/Aug/200447

NACOMA Project – Preparation PhaseAnalysis of the Institutional Capacity in the Namib Coast Regional CouncilsName Organisation Position Content of discussion Meeting dateKRAGH O. MRLGH Consultant(Decentralisation)GAMSEB MRLGH Deputy Director -DecentralisationKAHUIKA M. MRLGH Consultant(Decentralisation)Status of Decentralisation process and how NACOMA couldaid processStatus of Decentralisation process and how NACOMA couldaid processPerceptions of the Decentralisation ProcessSHIKONGO S. MET Acting Deputy Director NBSAP process and implementation phase, priorities in termsof biodiversity conservation, targeted investmentsBEYTELL B. MET Director, Parks andWildlifeStatus of protected areas and future plans, tourism concessionframework, conservancies, targeted investments15 Sept/200415 Sept/200413 Sep/200412/Oct/200413/Oct/200413/Oct/200448