mangrove management planning proposal (final 2)

Sewalanka Foundation 2011

Preparation of Mangrove Management Plans for Negombo, Chilaw and Puttalam Lagoons

a) Background

The Regional Fisheries Livelihood Project (RFLP) in Sri Lanka implemented by the Ministry of Fisheries and Aquatic Resources Development in co-ordination with the Food and Agriculture Organization of the United Nations (FAO) as a part of its mandate to conserve the coastal environment on a sustainable basis, is initiating a programme to promote increased community participation in protecting and managing mangrove ecosystems associated with Negombo, Chilaw and Puttalam lagoons.

The concept of ‘co-management’, where the user communities of a common property resource, is joining hands with the relevant government agencies to manage that resource is becoming well-known in the ‘sustainable development’ agenda.

This proposal outlines the rationale, objectives, methodology, required resources and the time frame to design a participatory mangrove management plan for the Negombo, Chilaw and Puttalam lagoon by respective user and stakeholder communities, and the relevant government and semi/non-government institutions.

b) Overview of the Negombo lagoon and its ecosystem

Negombo lagoon is considered as one of the most productive estuaries in Sri Lanka, with an area of approximately 3200ha. It opens to the sea at the northern end, and is connected to the Dandugamoya (freshwater river) and to the Muthurajawela marsh - declared as an important Ramsar wetland.

The Negombo lagoon comes under the purview of the Divisional Secretary-Negambo, Department of Fisheries and Aquatic Resources and Negambo Lagoon Management Authority while the conservation of mangrove comes under the Forest Department.

Most of the mangroves in the Negombo lagoon are confined to about 11 islets close to its northern end. These islets trap and retain silt of the inflowing and out-flowing water thus enriching the mangroves. The marshy vegetation at the southern end and the mangrove forests at the northern end of the lagoon make it an important wetland among 12 wetlands in Sri Lanka. While these mangroves are a feeding, spawning and sheltering ground for many aquatic animals (fish, shrimp, crabs etc.), the marshy vegetation is inhabited by variety of amphibians, reptiles and birds species of which some are endemic and endangered. The biological diversity of the Negombo lagoon is further enriched by sea-grass spread over about 1/5th of the lagoon bed. These biologically rich sea-grass beds are responsible for the high fish productivity (approximately 150kgs/ha/annum) of the Negombo lagoon.

Overview of the Puttalam lagoon and its ecosystem

Preparation for Mangrove Management Plans for Negombo, Puttalam and Chilaw Lagoons


Puttalam Lagoon is noted nationally for its high biodiversity. The lagoon includes mangroves salt marshes, extensive mudflats, sea grass beds, two adjoining river systems (i.e. Kala Oya and Mee Oya), and associated shoreline vegetation. Its diverse fauna includes marine mammals (i.e. dolphins and the globally endangered dugong), marine reptiles (i.e. turtles and sea snakes), migratory and resident water birds as well as marine and brackish water fish, crustacean and molluscs. Further, dominant anthropogenic habitats are prawn farms (abandoned and operational), slatterns, coconut plantations and home gardens.

Puttalam lagoon and adjacent areas are an important fishing areas and its economy depends mainly on fishing activities. These activities often cause environmental problems and are therefore substantial threat to the mangroves also. In early 1990s the Puttalam lagoon area was rich in mangroves. It is no longer so; vast areas of mangroves were destroyed in an unplanned effort to build commercial ponds for shrimp farming and also abundant at present. All these areas used to be covered with mangroves; at present only a small percentage of these mangrove forests remain.

Overview of the Chilaw lagoon and its ecosystem

The Chilaw lagoon (estuary) lies between the coast and the A3 Negambo – Puttalam motorway, Northwest, West and South of Chilaw, the main town in the direct environs. There are two main natural freshwater inlets into the estuary, Karambalan Oya, the most western section of which is named Lunu Oya. The other, the Daduru Oya has an open connection with the estuary but discharges into the Ocean, and due to the prevailing northerly sea current, inflow into the estuary is small.

The estuary is fringed by brackish water marshes and thin strands of mangrove forest, but to a large extent these have been converted into shrimp farms. Sand dunes are conspicuous on the coastline separating the estuary from the sea. The original vegetation consisting of semi dry zone plant species has now been degraded with the expansion of urban and rural population, coconut plantations and aquaculture ponds. At present, remnants of the terrestrial and water fringing vegetation exist only in patches and broadly consist of scrub, salt marshes and mangroves.

c) Problems and issues related to sustainable management of mangroves in Negombo, Puttalam and Chilaw lagoons

The problems and issues related to mangroves cannot be separated easily since the diverse components of its ecosystem (water, mangroves, sea grass beds, marsh land, dwelling land, flora and fauna) interact intricately. Various human activities related to dwelling, fishing, other livelihoods, food security, industries and recreation, while affecting mangroves directly they also cause a compound impact to mangroves through other parts of the ecosystem. Therefore, the proposed mangrove management plans for three lagoon ecosystems have to be designed in



an integrated manner taking in to consideration the wide spectrum of social, gender, economic, political and cultural factors.

Problems and issues related to sustainable management of mangroves in the Negombo lagoon

Several decades back the water area of the Negombo lagoon was about 4000 ha, and due to illegal filling nearly 800 ha is lost by now. Just 3 decades back, the mangrove forests of the lagoon was around 700 ha. But during the last 30 years nearly 400ha have been destroyed primarily due to human activity. The loss of wetland is uncertain but it is also believes to be considerably high.

These figures amply highlight the threat faced by the mangroves in this lagoon, and if an effective conservation and management system is not put in place, mangroves may be completely wiped out from the Negombo lagoon in the next 30 years. The expanding human population and growth of economic / industrial activities could possibly accelerate this destruction process.

Industrial effluents (waste, chemicals, sewerage) flowing from Katunayake and Ekala (Jaela) areas are a serious threat to aquatic life of the Negombo lagoon.

The growing human population around lagoon areas too is a major concern that should be taken in to consideration when addressing eco-conservation related problems. There are many poor families live around, and even in mangrove and marshes. Most of them are squatters living in unauthorized dwellings. Three mangroves islands are also occupied by several families, and they are permanently established their occupations since the water and electricity connections are given to their houses.

The pressure on land by increasing population leads to land filling along the lagoon boundary/ banks. Disposal of sewerage and solid waste to the lagoon and mangrove areas from people living around the lagoon is another serious concern. They also cut mangrove trees for built purposes and as fire food.

Expansion of the leisure industry (hotels, restaurants/guest houses etc.) along the lagoon bank and vicinity is also a major problem that further promotes lagoon filling, mangrove cutting (for cabanas and summer houses) and sewerage/waste disposal. The scenic beauty of the estuary has attracted a large number of tourist resorts to the area and there about 25hotels and guest houses around the lagoon.

Increasing fishing activities also exert undue pressure on the physical and biological elements of the lagoon. It is estimated nearly 3000 fisher families and their 15000 dependents live on the income deriving from the lagoon. There are at least 10 fish collecting centers located around the lagoon, mainly along the Pamunugama Road. About 5000 -10000 people (fishers, buyers,



traders/transporters etc.) daily gather at these collecting centers during the peak season, and the pollution from fish marketing activities is considerable.

The traditional ‘brush pile fishery’ that utilizes branches and twigs of mangrove species also is a major damaging factor that needs attention and control.

Anchoring of mechanized boats (primarily marine boats) along the banks is also a threat to the lagoon and the mangrove ecology. Piers and landing sites are irregularly and haphazardly constructed and they use mangrove poles for such constructions. The disposal of burnt engine oil from the boats heavily pollutes lagoon water.

Problems and issues related to sustainable management of mangroves in the Puttalam lagoon

Major threats have been identified from the lagoon ecosystem are habitat degradation and deterioration, overexploitation of habitats and species. Mangroves, sea grass beds and coral reefs are the most important ecologically and there are many sub ecosystems are closely related to each other. There is a constant migration of organisms between these different ecosystems; also there is strong flux of nutrients between these ecosystems. Coral reefs, their inhabitants and many other coastal fauna depend for a great part on organic matter/nutrients which is produced by mangrove forests. Coral reefs are found at Talawila, Kandakuliya and the Bar Reef, the largest reef complex in Sri Lanka. The loss or reduction of mangroves in the area therefore greatly influences on coral reefs and its prevailing food chains too.

Mangrove vegetation has been severely cleared and damaged in several areas within the lagoon and adjacent areas. Extensive areas of mangrove vegetation were cleared during the early 1990’s for prawn farming and for slatterns. Local communities have also contributed to the destruction of mangrove vegetation to a lesser degree. Even at present, the mangrove vegetation is certainly threatened throughout the Puttalam lagoon, mangrove are harvested for manufacturing of fishing gear, traditional type fishing vessels, houses, charcoal production and for fire wood. Not only local inhabitants, illegal encroachment by Internally Displaced People (IDPs) also contributed towards the degradation of mangroves, which were inevitably converted into settlements while filling up in order to increase the land area. Large scale commercial salts Industries were established by the government in Puttalam and Karthieve; conversion of mangroves and salt marshes still take place around the Puttalam lagoon.

The changes in extent, of the mangroves around the Puttalam Lagoon and Dutch Bay area, from 1981 to 1992 as below (Coastal Environmental Profile-CCD-2007).

Area Mangrove Extent (ha)1981

Mangrove Extent (ha)1992

Puttalam Lagoon- Eastern Shore

829.4 465.9



Puttalam Lagoon- Western Shore

346.11 248.3

Total/ha 1175.5 714.2

These figures amply highlight the threat faced by the mangroves in the lagoon, and if a practical and effective conservation and management system is not put in place, mangroves may be considerably wiped out from the Puttalam lagoon vicinity within few decades. Even present, it has been recorded available area of Mangroves is around 600 ha, not the area of 714.2 ha (in 1992) as mentioned in the above figure. The expanding of human population, their shelter and growth of economic / industrial activities could possibly accelerate this destruction process.

Garbage and solid waste disposal: The dumping of garbage is a practiced by the communities including fishermen around the lagoon. The municipalities in Puttalam, Kalpitiya and Karathieve collect garbage daily and dump it in open areas around the lagoon, for example in Thora adi odai which is situated 3km north of Kalpitiya. In addition, damaged fishing nets, old boats, plastic and non-biodegradable waste have also been dumped near the lagoon posing a number of threats to the lagoon ecosystems as the lagoon water gets polluted and the scenic beauty of the area is lost. Dumping of plastic and polythene has extended many environmental issues not only for mangrove areas; it is up to Bar-reef coral species and reef fauna.

Present Development Activities: Rapid development is taking place within the Puttalam lagoon area including Puttalam-Kalpitiya road, improvement of other roads near the coastal areas, and proposed tourism development projects are some examples. The negative impacts on the environment can already be witnessed. For example, due to the road development project a large number of mature mangrove trees, which were growing on both sides of the road have been cut down.

Anchoring of mechanized boats (primarily marine boats): irregular and haphazard construction of piers and landing sites also cut and use mangrove poles for such construction. Disposal of burnt oil and leaked fuel from fishing vessels which deposited on mangrove soil bed may have effect on germination of some species of mangrove seedlings and microbial activities of mangrove soil.

Problems and issues related to sustainable management of mangroves in the Chilaw lagoon

According to a survey conducted in 1983/84 (by Jayawickrama and Sideek), water fringing mangrove vegetation showed that, at that time, two third of the estuary had mangroves while the reminder was surrounded by coconut tree plantations. A survey carried out by the survey team of Wetland Conservation Project (October 1993) showed that most of the mangroves had been decimated on the eastern side of the estuary while only thin stand of mangroves exist in the western and southern sections of the estuary. According to the data released by Wet land conservation Project (May 1994) – Sri Lanka, less than 100 ha of mangroves or mangrove associate vegetation remains within the lagoon area. However, at present it has been noted



that most mangroves had been felled and marshy lands were reclaimed for the construction of aquaculture farms, homesteads for fisher families, fishery purposes (such as poles, oars for outrigger boats, stake seins, brush piles) for extraction of fire wood, and coconut plantations. At present, mangroves cut by illicit alcohol producers and lime producers in a considerable scale. From 2005 Clamps are harvesting without control and this also affect to reduce the mangrove area at Merawala.

Destruction of mangroves for aquaculture ponds also affect decreasing of fish yield, reduction or loss of habitats for aquatic birds, increase of salinization of soil in the area. Though many of the ponds are abounded today, there is limited chance to recover the loss of mangroves since those depleted mangrove areas are under lease of private parties.

Domestic, agriculture, aquaculture, industrial or tourism sewage and waste disposal has created number of environmental and social impacts such as decreasing of fish yield, contamination of fish and shell fish, decrease tourism and recreation attraction. Rapid urbanization in nearby areas could possibly accelerate the problem. However, long term impacts of waste disposal into mangrove areas still need to be realized and much essential to take into consideration.

d) Review of past and on-going mangrove management/ rehabilitation measures- Negambo Lagoon

The urgent need to conserve not only the mangroves, but also the entire ecosystem of the Negombo lagoon caught the attention of the government in the early 1990s when many environmental and civil society groups brought up the issue of water pollution in the lagoon due to expanding industrial activity in the Katunayake Free Trade Zone. Overfishing and use of environmentally destructive fishing methods were also major concerns among small scale fishers during this time.

The Greater Colombo Economic Commission (GCEC now the BOI) facilitated the preparation of a Master Plan for the Muthurajawela and Negombo Lagoon (MMNL). An ecological survey and a socio-economic survey were carried out in the planning process. Flora sampling and mapping the ecological characteristics of the mangroves in the Negombo lagoon was carried out during the planning process, during which an environmental profile was prepared. The main focus of this master plan finalized in 1991 was environmental sustainability.

In 1998, Negombo Lagoon (Fisheries) Management Authority was established under the Fisheries and Aquatic Resources Act primarily to conserve and manage the aquatic fauna and flora, and to enhance fish productivity and fisheries revenue from the Negombo lagoon.

During the 1999-2003 period, Central Environmental Authority developed an Integrated Wetland Resource Management Plan (IRMP) for the Negombo lagoon (and the Muthurajawela marsh) with the objective of promoting optimally sustainable exploitation of natural resources through a community-driven natural management system.



In 2002, five mangrove islands (approximately 50 ha) in the Northern part (Munnakkare) of the Negombo lagoon were declared as conservation forests under the Forest Ordinance.

In 1997, The Coast Conservation Department (CCD) initiated the Special Area Management (SAM) concept with the Rekawa lagoon and in the Hikkaduwa coastal area. After successfully testing the SAM concept was introduced to the Negombo lagoon as well. The key focus areas related this special area management strategy are ecosystem management, fishery management, pollution control and waste management, community development and uplifting of the socio-economic conditions and strengthening of institutional capabilities and mechanisms. The Negombo Special Area Management Community Coordinating Committee (CCC) has been established to coordinate the implementation of the plan. This committee is represented by few fisheries societies and federations.

National Aquatic Research Agency (NARA) is running a mangrove conservation plot of about 10 hectares (in Kadolkelle) to promote public awareness to protect and conserve mangroves. Also there is a proposal by NARA to declare a mangrove park in the Negombo lagoon.

The Muthurajawela wetland conservation project implemented with the participation of communities /youth in the area is creating public awareness to safeguard this biological diversity of the Muthurajawela marsh and of the Negombo lagoon.

Promotion of alternate livelihoods for fisher /lagoon based communities that encourage them to engage in non-mangrove based income generating activities such as home gardening, organic farming, handicraft production etc.

In spite of various interventions initiated during recent years to protect the ecological damage caused to the Negombo lagoon and its environs, land filling, overfishing and mangrove destruction continue unabated. In view of this situation several, research organizations, universities, environmental groups NGOs, IUCN etc. have raised concern and are planning and implementing various projects and programmes. Central Environment Authority (CEA) has started a participatory GIS project in the catchment area Negombo lagoon and the NARA is monitoring fluctuations of fish productivity, aquatic vegetation and water quality. But there is seems to be no effective general coordination among these diverse conservation measures.

Review of past and on-going mangrove management/rehabilitation measures in the Puttalam lagoon

The following five mangrove areas on the Kalpitiya Peninsula were declared by the Forest Department as Mangrove Conservation areas (Gazette No 1152. 13, published on 10 th April 2002).

Pavethi, Karukattiv and Yataworavasi lands at Mampuri (24.32 ha) Kattaveli and Karawaikani iands at Kuringanpitiya (39.31 ha) Kavalpitunadu land at Thillithotai (39.31 ha)



Marikarthottam, Alakthottam (13.19ha) Teeule land at Kinali (13.19 ha)

The Coast Conservation Department (CCD) initiated the Special Area Management (SAM) concept to the Kalpitiya area including Puttalam lagoon as well. The key focus areas related this special area management strategy are ecosystem management, fishery management, pollution control and waste management, community development and uplifting of the socio-economic conditions and strengthening of institutional capabilities and mechanisms. The Kalpitiya Special Area Management Community Coordinating Committee (CCC) has been established to coordinate the implementation of the plan.

During the past five years Twelve Hearts Community Development Society (THCDS) and Turtle Conservation Project (TCP) have planted more than 12 ha of fringing mangroves in Puttalam Lagoon, with financial assistance from Global Environment Fund Small Grants Programme (GEF SGP), the Provincial Ministry of Fisheries, Rural Industries and Rural Development (PMoFIRRD) and UNDP’s Programme to Promote Tropical Forrest (PPTF). Under the PPTF, TCP completed a survey of the mangrove coverage in Puttalam Lagoon, which was used as the basis to identify replanting areas under the PPTF project. The areas planted by TCP and THCDS are now well established.

The Puttalam Lagoon Conservation Management Plan (PLCMP) was developed by IUCN. The main purpose of the Puttalam Lagoon Conservation Management Plan (PLCMP) is to address some of the threats faced by lagoon ecosystems and issues regarding their sustainable management of lagoon ecosystems. Based on the PLCMP, a set of actions to be implemented under the BMZ project as pilot initiatives were decided upon and prioritized. These are aimed at addressing environmental, socio-economic and institutional issues which hinder the sustainable management and conservation of the lagoon.

Review of past and on-going mangrove management/ rehabilitation measures in the Chilaw Lagoon

Comparing to the Negombo and Puttalam Lagoons, considerably less amount of interventions made by government or non government institutes on Chilaw lagoon ecosystem. Number of mangrove replanting programs were implemented by Twelve Hearts Foundation (around 5 ha) and Small Fisheries Federation (7-8 ha) during recent past. Northwestern Provincial Council-Regional Resources Development Authority also initiated mangrove replanting programmes together with community based organizations in the area.

e) Institutional frameworks related to mangrove management of Negombo, Puttalam and Chilaw lagoons



The major institutional framework that has legal jurisdiction over mangrove management is the Forest ordinance Act.

The Coast Control Act enforced through the Coast Conservation Department (CCD) also has mandate to conserve, develop and sustainably use mangroves. The Coastal Zone Management Plan (CZMP) initiated in 1990, and to be updated every 4 years is instrumental in enforcing such conservation and development measures.

The Special Area Management (SAM) approach initiated in 1996 and tested through Rekawa, Hikkaduwa and in Negombo areas compliments CZMP, by identifying, implementing and monitoring participatory coastal resource (mangrove) management interventions.

The CZMP advisory councils and SAM coordination committees are the key institutional structures that provide space for community participation and interagency collaboration in coastal resource conservation and management.

The other legal instruments that are enforced through various institutions and that are supportive to manage and conserve mangroves are:

Marine pollution prevention act Fisheries and aquatic resources act NAQDA act NARA act Fauna and Flora protection ordinance National Wild Life policy National Environmental policy (1980) National Environmental Act,

State land ordinance State Land Encroachment Ordinance National forestry policy (1995) Forest ordinance National Wetlands Policy (2004) Felling Trees (Control) Act Plant Protection Act UDA law

Several international conventions such as Ramsar Convention on Wetlands of International Importance (1971), the Convention on Conservation of Migratory Species of Wild Animals (1979), the Convention on Biological Diversity (1992) and the United Nations Convention to Combat Desertification (1999) also are helpful to influence the government and other stakeholders to commit towards conservation of mangroves.

It is clearly evident that many different types of institutions and regulations have been introduced during the last several years to address management issues related to coastal natural resources such as mangroves. These institutions, regulations and policies have significant influence to sustainable manage mangroves. But the implementation of these policies and regulations are not yet fully streamlined and the relevant institutions need to be further empowered to enforce the regulations more effectively. The stakeholder /user communities need further education, mobilization, networking and empowerment to become true partners of mangrove conservation efforts.

f) Zoning as a sustainability mangrove management strategy



Mangroves are not uniform in size, species and density. Depending on many factors (water depth, frequency and duration of tidal flooding, land elevation, soil salinity etc.) mangroves show a spatial variation.

For the purpose of conservation and management it is good to zone mangrove areas in the lagoon system. That will allow user communities to harvest mangroves only in specified fast growing areas (productive mangrove forest). Areas that are highly and sensitively bio-diverse could be declared as protected mangrove forest, which could be used for scientific research and education. Areas that are ecologically important but degraded due to human activity could be zoned as replantation zone. If there are areas that are degraded beyond rehabilitation, such areas could be converted in to suitable activities such as eco-guide centers, medicinal plant cultivation, salt making, crab ponds etc.

Zoning of mangrove forests and application of differentiated development interventions is successfully practiced in several countries. The success of this strategy is largely dependent onthe scientific, social and economic criteria adopted for creating mangrove zones.

g) Establishment and operation of mangrove nurseries

Scientific guidance is necessary to select appropriate lagoon areas to be replanted with mangrove seedlings. The species ecology, water retention/flow patterns and other physical conditions of that environment have to be considered in selecting areas for reforestation. The necessity of setting up mangrove nurseries will arise if the proposed mangrove management plan demands high numbers of seedlings to be planted in a larger area.

Operating mangrove nurseries has the advantage of high survival rate of seedlings when compared to direct planting. This is because nursery raised seedlings have a well-established root system after being maintained for about 8 months in the nursery before transplanting in degraded areas. Only requirement is that good quality, mature and healthy seeds/propagules without insect attacks have to be collected. Stakeholder communities – volunteers/youth and women have to be educated on seed /propagule collection and the nursery management techniques. If large numbers of mangrove seedlings are required, women groups of fisher communities could be trained an organized to operate mangrove nurseries in their backyards as a supplementary livelihood.

In a sustainable participatory mangrove management system local communities could own and manage mangrove forests. Then those communities will operate their own nurseries to continue replanting of degraded mangrove areas.

h) Strategies for local community participation in the utilization, conservation, and rehabilitation of mangrove ecosystems



For successful conservation and sustainable management of mangrove areas, it is very essential that local communities are actively involved. Local communities should be made to realize that they are responsible not only for the present state but also for the future state of mangrove areas entrusted to them. If this to happen realistically and practically communities must have the access to control of such mangrove resources through a collective decision making process.

This approach requires a ‘joint’ or ‘shared’ or a ‘co-management’ strategy, where the respective mangrove user communities, relevant government authorities and other lagoon /mangrove related stakeholders (research institutions, universities, fisheries societies, guesthouse owners etc.) have to develop a ‘truly’ participatory institutional mechanism to make collective decisions on the present and the future of the mangrove resources in a particular area. This requires sufficient education and management capacity building of local communities, and a candidness of the relevant government institutions to share their decision making authority at least to some extent.

All other strategies and actions have to fall in line with this CO-MANAGEMENT STRATEGY and the proposed mangrove management planning process will help to evolve and establish the co-management strategy. The key strategic steps to involve the stakeholder communities in a co-management strategy are:

(i) Education and awareness building on rationale and approaches for mangrove is the basic strategy to enhance community participation in mangrove management.

(ii) Involving the user /stakeholder communities in a participatory situation analysis where they identify and quantify the available mangroves, assess the level of utilization, degradation, degree of dependence and causes of degradation. They will also review and assess the government policies, capacity of government and community institutions and the socio-economic status of communities who are dependent on the mangroves.

(iii) Facilitating partnership development is an important strategy to motivate and strengthen the stakeholder communities to participate in long term mangrove conservation. Knowing about external stakeholder agencies (government, universities, research institutions, NGOs international development agencies etc.) and to be familiar with their experiences, what they do now and what they intend to do in the future on mangrove conservation and management will be very helpful for local communities closely participate in mangrove conservation work.

(iv) Facilitating a participatory visioning and goal setting process, where the user /stakeholder communities in consultation with the government agencies, research institutions and academics figure out a development vision, development objective and medium term goals that they should have in the context of the identified causes for mangrove degradation.



(v) Involvement in participatory micro-panning for mangrove management makes the stakeholder communities more target-oriented by developing actions plans, getting familiar with achievement measuring indicators and sharing responsibilities among different groups and organizations.

(vi) Promoting interagency coordinating committees and networks among stakeholder communities and external stakeholder agencies will be helpful to share knowledge and experience and also to build trust.

(vii) Promoting community groups and partnerships across all levels of user communities enabling constant interaction and dialogue on mangrove management.

(viii) Establishing participatory monitoring and evaluation mechanisms will be helpful for stakeholder communities to assess success and failures of their mangrove conservation activities. Based on these assessments and in consultation with external resource agencies stakeholder communities could make necessary improvements to their mangrove management plans.

(ix) Involvement of stakeholder communities / their representative organizations and committees in policy development on mangrove conservation and management by government institutions will also build trust and confidence of stakeholder communities to further their support to mangrove development initiatives.

(x) Promoting and introducing alternate technologies and livelihood strategies, such as non-timber based construction, firewood saving cooking stoves, mangrove nurseries and crab fattening will motivate the communities to protect the mangrove forests.

(xi) Wherever possible utilize local knowledge and technologies for mangrove management and conservation efforts.

(xii) Introducing a community code of practice to be followed by community members in using the mangrove resources.

(xiii) Sharing of property rights of mangroves with user communities will motivate them to manage the mangroves in the most sustainable manner.

(xiv) Decentralization of mangrove management functions from the national government to the local government level that brings local communities closer to the management process.

(xv) Involvement of mangrove user communities in the law enforcement efforts related to mangrove conservation and management. User community members of mangrove management coordinating committee could work together with government agency conservation guards/officers during law enforcement.



i) Approach and methodology of the mangrove management process

The Logical Framework Analysis (LFA) in conjunction with the principles of the eco-system approach is suggested to prepare the proposed mangrove management plan for the selected lagoons. LFA is a participatory strategic planning process of involving primary (direct mangrove users), secondary (remote or indirect mangrove users) and tertiary (policy making regulatory and other interested individuals and institutions) stakeholders.

The usual steps of a strategic planning process are followed with participatory planning tools. The key steps are:

(i) Scanning of the situation (secondary data collection, baseline survey, studying existing studies, policy & legal frameworks)

(ii) Situation analysis (institutional analysis, stakeholder analysis, socio-economic /livelihood analysis, time line & trend analysis)

(iii) Justification of the strategy (analysis of cause and effect relationship of mangrove conservation related problems, gender analysis, SWOT analysis of partners/stakeholders)

(iv) Strategy planning (Action planning- vision and objective setting, identifying and prioritizing alternative actions to address identified problems, indicator setting for monitoring and evaluation, risk analysis)

This indicator based participatory LFA planning exercise will result in a mangrove management plan that clearly outlines the overall objective, purpose of the plan, medium term goals (approximately 3-5 years), activities and short term outputs, time frame and monitoring and evaluation indicators.

The prospective mangrove management plan will have a clear and simply understandable (by the stakeholder community organizations) logical framework with realistic outputs and outcomes/goals, with in an agreed time frame (may be 3 years).

During this planning process constant attention will be paid to ensure that the principles of the ecosystem approach are adhered as much as possible.These principles are: 1. The objectives of management of land, water and living resources are a matter of societal choice.2. Management should be decentralized to the lowest appropriate level.3. Managers should consider the effects of their activities on adjacent and other ecosystems.4. Potential gains from management should be recognized; there is usually a need to understand and manage the ecosystem in an economic context.



5. Ecosystem structure and functioning should be conserved in order to maintain ecosystem services. This should be a priority target.6. Ecosystems must be managed within the limits of their functioning.7. Action should be undertaken at the appropriate spatial and temporal scales.8. Objectives for ecosystem management should be set for the long term.9. Management must recognize that change is inevitable.10. Action should seek the appropriate balance between, and integration of, conservation and use of biological diversity.11. Action should consider all forms of relevant information, including scientific and indigenous and local knowledge, innovations and practices.12. The approach should involve all relevant stakeholders of society and scientific disciplines

The momentum of the collective social process built during the participatory mangrove management planning process is expected to continue through successful implementation of the plan. Therefore, it is necessary to initiate a well-organized education and awareness creation campaign to mobilize and enroll more and more community members to the mangrove management community process.

The mangrove management plans are expected to motivate the stakeholder communities to develop a collective mission “to make the respective mangrove system the best sustainably-managed mangrove area in the country”.

The overall objective of the management plans could be “to sensitize stakeholder communities of mangrove system towards the need to conserve and sustainably manage mangrove resources while sustainably improving their livelihoods”.

The purpose of the plans could be: “develop a collective community commitment and collective community behavior towards conservation and sustainable management of mangrove resources among local communities.

Although several important research studies are done and lagoon conservation and management plans have being established, these plans and research findings have not reached the stakeholder communities in a practical sense. Therefore it is essential that the stakeholder communities not are actively engaged in the mangrove management plan preparation, but also they will have opportunities, space and the capacity to participate in the implementation and monitoring of the plan.

Before designing the mangrove management plans it is necessary to establish the specific geographical area that becomes applicable to the proposed plan. Consultation of key government institutions such as the Urban Development Authority (UDA), National Aquatic Resources Research and Development Agency (NARA) Coast Conservation Department (CCD), Ministry of Fisheries (MoF), Department of Fisheries and Aquaculture (DFAR), Central Environmental Authority (CEA), Forestry Department, and Lagoon Management Authority (I.e. NLMA), and other scientific institutions and researchers, communities/ community



organizations will be helpful to establish the effective geographical area to be taken up and declared for the proposed mangrove management plan.

In view of the diversity of users and various groups of people and communities whose way of lives and livelihoods have an adverse impact on mangroves and the related ecosystem, an effective mangrove management plans will depend on the participation all groups of people who directly and indirectly impacts the mangroves. Therefore such a management plan may have to incorporate elements of waste management, land management, fisheries management and livelihood management and ecosystem management models. If the mangrove management plan affects the lives and livelihoods people and especially if they are poor and vulnerable, then alternatives have to be searched, developed and supported under the management plan. For example if the mangrove management plan affects the traditional ‘brush pile fishery’ that extensively use mangrove trees, then alternatives have to be explored.

Key steps of the proposed participatory mangrove management planning process are:

(i) Collection of secondary /baseline data (demographic, social, economic, mangrove / natural resource system) of selected lagoons

Management plans cannot be formulated without reliable data and information. We depend on designing of. During planning exercises we depend on two.

It is important to collect and analyze already available secondary data and information on geographic, demographic, natural resource, social, economic and institutional factors in and around the respective lagoon and mangrove ecosystems. It is suggested to develop a suitable format/questionnaire for this purpose and utilize the services of a team of enumerators to collect these data and information. Analysis of this data/information in a categorical manner would give valuable understanding about many sectors and related issues such as:

population size, number of households, poverty and vulnerability status and other socio-economic conditions (health, education etc.) of primary stakeholder communities

Land/boat and other asset ownership, land/lagoon/mangrove use patterns, levels of exploitation and potential of fish and mangrove productivity/carrying capacity,

Livelihood types, different types of fishing activities, levels of income and employment generation from different types of livelihood activities, gender segregated data on livelihood sectors

Number of formal and informal business operating in and around mangroves such as hotels, guest houses etc.

type, number and membership strength of community based organizations in the area

Such data and information will be helpful to understand the magnitude of potential constraints and threats related mangrove conservation, and such information will also be further helpful to identify possible opportunities and resources required to address those problems and threats.



Most importantly, information generated through secondary data will become a good base to compare the information generated through participatory (PRA) appraisals.

The secondary data so collected will also form a baseline against which future changes /impacts could be monitored, measured and evaluated.

(ii) Collection and compiling a summary of studies/research and conservation initiatives carried out on mangrove & natural resource management in the selected lagoons

Already numerous development and conservation interventions, studies and research work is dome on the respective lagoon systems and associated mangroves. Most of such work is documented and there are many plans, reports, books, publications, case studies, research papers, policy notes etc. available with relevant institutions. These development literatures highlight successful experiences, best practices, failures, problems, constraints and recommendations related to lagoon/mangrove ecosystem. Already available and documented work can shed light on and contribute to the proposed mangrove management planning exercise. Therefore it is suggested to list and summarize the key findings of past research and studies, which could be helpful the formulation the proposed mangrove management plan.

(iii) Participatory situational assessment (random household interviews, focus group meetings, stakeholder interviews etc.)

Participatory rural analysis (PRA) technique will be applied to understand how communities access, use, share, view and treat mangroves as a common property that affects their lives and livelihoods. In addition to the PRA, it is proposed to facilitate several focus group discussions (with fisheries societies, diverse fishing groups, boat owners, women groups, livelihood/ producer/trader groups, youth clubs, environment societies, residents.) to understand how diverse groups react to problems and issues of mangroves and to the proposed mangrove conservation and management initiative.

Conducting of an institution analysis of community based organizations in the context of mangrove and natural resource management is also necessary. Some community organizations may not have the mandate to be involved in this type of an initiative. In such cases it is necessary to bring in by-laws to their constitutions. Some CBOs may not have the adequate capacity, but what is necessary is find out whether their capacity could be gradually evolved and enhanced during the initiatives of the programme. Therefore it is always good to work with existing CBOs and networks rather than setting up new structure for the proposed programme.

After identifying the various community groups and associations that have the potential to participate in the designing and implementation of the proposed management plan conduct participatory exercises (meetings and focus group discussions ) to sketch out the relationships between these groups and between community groups and with external stakeholder agencies. A Venn matrix (or a Venn diagram) could be drawn that shows the level of interaction understanding among these institutions as far as the mangrove management is considered.



After the institutional analysis it is very important to conduct a stakeholder analysis identify and explore different perspectives, aspirations, interests, mandates, resources and experiences that different stakeholders have on mangroves and mangrove conservation management. Stakeholders those interested or/and dependent on mangroves. They may be local mangrove user communities who are primary stakeholders living around mangroves and directly using mangroves for dwelling, food, firewood and timber. Then there are secondary local stakeholders who are local communities who do not use the mangroves directly but are indirectly benefitted. Finally there are non-community external stakeholders such as government agencies, NGOs, environmental groups, universities and research institutions that have policy setting, regulatory, conservation and development stake over the mangroves. It is suggested to conduct small group meetings, focus group discussions, individual interviews and in-depth discussions with few stakeholders to identify characteristics (profiles), the level of influence each stakeholder category has over mangrove conservation and management, how each category will be affected by the proposed management process and the potential conflicts that might emerge during that process.

After the stakeholder analysis it will be possible to identify strategically important user groups, institutions, individuals and networks that could positively influence the proposed mangrove management process.

Few village/mangrove walks (transects) with community groups will help to sketch out the problems and issues related to mangrove conservation and management. Facilitating participatory mapping exercises with several community groups will further complement and consolidate the findings of the village transect. Village transects and participatory mapping exercises not only enhance the interaction and dialogue within respective stakeholder communities but are also helpful to realize the existing problems as well as opportunities to address these problems,

It is also suggested to conduct few focus group meetings with selected stakeholder communities to understand the livelihood options, livelihood outcomes, and poverty and vulnerability levels of these communities. Such a livelihood analysis is very important since livelihood of many fisher communities have a direct relationship with mangroves systems.

Conducting community group meetings involving elders of the stakeholder/user communities will assist in developing timelines that depicts the social, economic and physical (of the lagoon and mangroves) changes that occurred in their villages and surroundings during the last 3-4 decades. Discussing and understanding of the underlying social, economic and political factors that led to these changes would help to develop a trend analysis, very helpful during cause-and-effect (problem) analysis at a later stage.

(iv) Gender analysis framework (focus group meetings with women to assess degree of access and control women have over mangrove/lagoon resources)



Mangroves are already linked to livelihoods of women in many fisher communities as a source of firewood supply and a location for small scale (hand net) fishing. When conservation based control measures come to operate many mangrove user households have to shift to alternate forms of livelihoods. It is at this point that the involvement of women becomes essential since many small scale income generating activities in fisher communities are ideally suited for women.

In the context of social equity it is also important to equally involve women in community management roles – and in this case, in the sustainable management of mangroves.

Therefore, it is suggested to identify the concerns and needs of women in the proposed mangrove management initiatives. Facilitating women focus group meetings several locations is suggested for this purpose. Participatory mapping exercises will be conducted to identify and analyze their reproductive (household based), productive (livelihood based) and community management (society based) functions, needs/assets and the control and access women have over the assets they need to perform these functions. During these analysis differences of roles, relationships, experience, capacities, priorities, constraints and issues facing women when compared to men in the context of mangroves and mangrove conservation will be discussed. Such analysis will help to understand the reasons for these differences and to identify the strategies required to effectively involve women in the designing and implementation of the proposed mangrove management plan.

(v) Conduct participatory identification and prioritization of problems related to mangrove conservation and management

This is a very important step in the formulation of the mangrove management plan, since the problems that have to be addressed by the plan have to be precisely identified. It is proposed to conduct 1-day community workshops in several locations in the respective lagoon areas. Primary stakeholder communities and secondary stakeholder communities will be represented in these community workshops, and about 40 community members will participate in each workshop. These workshops will be facilitated by experienced community development specialists with the assistance of a team comprising of few social mobilizers, mangrove eco-system specialist and gender specialist.

Using ZOPP cards and pin boards discussion will be initiated in each community workshop to identify and list out the problems and issues confronting mangrove conservation and related environmental issues. At the next step discussions will be further facilitated using participatory ranking tools to prioritize the problems and eliminate the trivial problems that should not be considered during the planning exercise. The assistance and guidance of the mangrove eco-system specialist will be very helpful at this stage.

Through further discussion a central problem, which could be considered as the key issue will be then identified. Using ZOPP cards, the prioritized problems will be arranged in a logical ‘cause and effect’ sequence so that the linkage of other problems to the central problems could



be visualized. By going one step further the tangible impacts of the central problem felt by the community as well by the environment will be identified. This whole exercise will lead to the construction of a ‘problem tree’ with causal problems (as roots) leading to the central problem (as trunk) and the impacts (as branches).Since separate community workshops are conducted in different locations of the same lagoon system, the central problem identified and the problem sequence (tree) in these different locations may be different from each other. Therefore, it is essential to conduct a plenary workshop represented by about 10 participants who took part in community workshops build consensus on a central theme (problem) on which the management plan has to be formulated.

(vi) Community awareness and education on identified problems and best practices elsewhere on mangrove conservation management

At this stage, the facilitation team and the community groups/members so far involved in the data collection, gender analysis and problem identification have lot of information regarding the mangrove ecosystem in respective lagoons. It is now essential to share this information with the entire community in order to mobilize and enroll their support and commitment towards the mangrove management planning exercise, and towards the implementation of that plan. Therefore it is proposed to prepare educational and awareness building material such as leaflets and posters, and also conduct few community meetings to promote the need and objective the ongoing planning exercise. The educational and awareness building material will primarily highlight the problems confronting the mangrove ecosystem and role of stakeholder communities in addressing these problems. If few videos are available on community participation in mangrove management and conservation, such material could be used during campaign meetings. School children and youth organizations involved in environmental activities would be a very important target group for this campaign.

(vii) Facilitate the formation of an inter community/agency planning committees in 4 locations to design the proposed management plan

The public education and awareness campaign will be followed by facilitating the formation of an interagency planning coordinating committee to steer the mangrove management planning process in each lagoon system. Representatives of primary and secondary stakeholder communities and community based organizations, relevant government institutions, universities and research institutions will be represented in each interagency planning coordinating committee.

The team (hired) to facilitate the mangrove management planning process will work very closely with the interagency planning coordinating committee during the proper planning stage.

(viii) Facilitate participatory Community Action Planning (CAP) workshops to identify necessary interventions to address the identified & prioritized problems. (Visioning and objective setting, analyzing alternatives, action planning, indicator setting and allocating stakeholder responsibilities)



This step is the proper planning stage, and by now there are basic background resources (socioeconomic and environmental profile, situational analysis, gender analysis, problem analysis and the interagency planning coordinating committee for each lagoon system) helpful to start the planning process.

Like during the problem analysis stage here too, it is suggested to conduct 2-day community workshops in few selected locations in each lagoon system. Approximately 20-25 community members representing diverse groups would take part in each workshop. ZOPP cards and pin boards will be utilized to facilitate these community workshops. The basis of discussion will be the problem tree finalized for each lagoon system. Participants will be facilitated to identify intended non-problem situation (or the objective) for the central and other causal problems. This will lead to the construction of an objective tree – the exact opposite of the problem tree. The objective that is exactly opposite of the central problem will become the long term overall objective of the proposed management plan. Although simply written, lots of interactive discussions have to be facilitated by experienced Community Action Planning (CAP) facilitators to identify objectives of the mangrove management plan. The participants will continue to identify the medium term objectives of the mangrove management plan.

Community workshop participants will be further facilitated to identify and prioritize activities required to achieve the medium term objectives. An approximate time frame for these activities, available resources to implement these activities, constraints and risks in implementing these activities will also be discussed in the community workshops. As the final outcome each community workshop will generate an elementary mangrove management framework.

In the next step, a 2-day plenary workshop will be facilitated where the elementary mangrove management frameworks developed at community level workshops will be subjected to intense discussion. Representatives from community workshop participants, community based organizations, interagency planning coordination committee and provincial level key government agencies will participate in the plenary workshop. The outcome of the plenary workshop in each lagoon system is a draft mangrove management plan with the vision, overall objectives, objectives, activities, time frame for activities and indicators for monitoring and evaluation.

(ix) Assessment of capacity , strengths, weaknesses / gaps of stakeholders to effectively participate in the implementation and monitoring of management plan

After establishing the key elements of the mangrove management plan, it is necessary to assess the capacity and the adequacy of stakeholder communities, community institutions, regulatory and supportive institutions, research and technical institutions and of the policies and laws related to mangrove protection and management. The assessment will be based on different activities entrusted to different stakeholders in the management plan (such as enforcement of



laws, mangrove nursery management, developing alternate livelihoods, community mobilization and bio-monitoring of mangrove forest)

This SWOT analysis approach is proposed for this exercise, and it may be necessary to develop a questionnaire to suit each stakeholder category and to conduct semi structured interviews for the assessment purpose.

(x) Facilitate the presentation of Mangrove Management Plans to key government agencies, policy makers, universities, research institutions, NGOs etc. by the inter-agency planning committee

The draft mangrove management plan generated through the participatory planning process will be presented in a one day workshop represented by stakeholder communities, CBOs, national and provincial government agencies, universities, research institutions, NGOs and international development agencies such as FAO, IUCN and UNDP. An experience mangrove eco-system specialist will moderate the workshop discussions.

The objective of this exercise is to provide space for interaction and dialogue among all stakeholders of mangrove conservation and management on the management plan generated through a participatory community based process. There will be comments, criticism, new ideas and alternate proposals emerging during this workshop. If required the draft mangrove management plan for each lagoon system could be circulated among stakeholder agencies and invite their comments and suggestions. But this would take a relatively longer time.

(xi) Facilitate incorporation of feedback from external agencies to the NLMMP, and prepare the final draft of the Lagoon Mangrove Management Plan

The feedback emerged from the stakeholder workshop, and comments / suggestions received form stakeholder agencies will be further discussed with community stakeholders and a final draft of the management plan for each lagoon/mangrove system will be prepared and submitted.

j) Key outputs of the proposed mangrove management planning process

Key steps Output/s1. Secondary data collection /Baseline survey

Social, economic and environmental profile of the mangrove system and of primary stakeholder communities

2. Compiling of studies, research, interventions previously conducted

Summary of previously identified issues and recommendations

3. Participatory situational analysis Institutional matrix, Venn diagram, stakeholder analysis report, mangrove transect, mangrove/community map, livelihood analysis,



poverty/vulnerability profile, timeline/trend analysis

4. Gender analysis framework Gender analysis report5. Participatory problem analysis Listed/prioritized problems, problem tree6. Community awareness and education Educatory and campaign material, Feed reports

of campaign meetings7. Inter-community /stakeholder committee formation

Profile of committee members

8. Participatory Community Action Planning process

Draft mangrove management plan

9. Stakeholder capacity/need assessment Need assessment report10. Presentation of the draft mangrove management plan to stakeholders

Workshop report with feedback received

11. Preparation and submission of final draft of the mangrove management plan

Finalized mangrove management plan after incorporating stakeholder feed back

k) Time frame to facilitate the Mangrove Management Planning process in one location / lagoon system

Month 1 Month 2 Month 3 Month 4 Month 51. Secondary data collection /Baseline survey2. Compiling of studies, research, interventions previously conducted3. Participatory situational analysis4. Gender analysis framework5. Participatory problem analysis6. Community awareness and education7. Inter-community /stakeholder committee formation8. Participatory Community Action Planning process9. Stakeholder capacity/need assessment10. Presentation of the draft mangrove management plan to stakeholders11. Preparation and submission of final draft of the mangrove management plan

l) Total cost to facilitate the Mangrove Management Planning in 3 lagoon systems



Activity

Cost

Negombo Puttalam Chilaw

1. Collection of secondary /baseline data (demographic, social, economic, mangrove / natural resource system) of the lagoon

384,500 384,500 369,500

2. Collection and compiling a summary of studies/research and conservation initiatives carried out on mangrove & natural resource management in the lagoon

255,000 255,000 255,000

3. Participatory situational assessment (random household interviews, focus group meetings, stakeholder interviews etc.)

1,140,000 1,140,000 950,000

4. Gender analysis framework(focus group meetings with women to assess degree of access and control women have over mangrove/lagoon resources)

335,000 335,000 335,000

5. Conduct participatory identification and prioritization of problems related to mangrove conservation and management

1,083,500 1,083,500 1,013,500

6. Community awareness and education on identified problems and best practices elsewhere on mangrove conservation management

590,000 590,000 570,000

7. Facilitate the formation of an inter community/agency planning committees in 4 locations to design the proposed management plan

140,000 140,000 140,000

8. Facilitate participatory Community Action Planning (CAP) workshops to identify necessary interventions to address the identified & prioritized problems. (Visioning and objective setting, analyzing alternatives, action planning, indicator setting and allocating stakeholder responsibilities)

1,493,000 1,493,000 1,493,000

9. Assessment of capacity , strengths, weaknesses / gaps of stakeholders to effectively participate in the implementation and monitoring of management plan

440,000 440,000 425,000

10. Facilitate the presentation of draft Mangrove Management Plans to key government agencies, policy makers, universities, research institutions, NGOs etc. by the inter-agency planning committee

525,000 525,000 525,000

11. Facilitate incorporation of feedback from external agencies to the draft Mangrove Management Plans, and prepare the final draft of the Lagoon Mangrove Management Plan

190,000 190,000 190,000

Total 19418000 6576000 190000

Notes to Cost Estimations

1. Cost estimations are based on the field based intense participative approach proposed. 2. Detail costing is separately provided as an attachment



m) Project Personnel

Project Coordinator Sewalanka Foundation Maheeni Samarakoon (M. Phill, M.Sc., B.Sc)

Livelihood Specialist Sewalanka Foundation Mahinda de Silva (MBA., B.Sc)

Gender Specialist Sewalanka Foundation Kaushalya Navarathne (M.A)

Data Analyzing & Report Writing Sewalanka Foundation Dr. Amanda Kiessel (Ph.D, M.A., B.A.)

Ecosystem Specialist University of Ruhuna Prof. S. Hettiarchchi (Ph.D, M.Sc., B.Sc.)

CAP facilitator Freelance Consultant W.L.C. Lekamge (B.DS)

CAP facilitator Freelance Consultant S. Vishvalingam (B.A)

Technical Adviser – Tourism Freelance Consultant Upali Ratnayake (B.A, MBA)

Technical Adviser-Coastal R. Man. Freelance Consultant B. H. J. Premathilake (B.Sc)

(Individual CVs are attached)


mangrove management planning proposal (final 2)

Documents