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# **USAID**

***Bangladesh***

United States Agency

for International Development

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# IMPROVED MANAGEMENT OF OPEN WATER AND TROPICAL FOREST RESOURCES

1.  BACKGROUND

    1.  Introduction

This document sets the strategy for USAID/Bangladesh to assist
Bangladesh in its environmental management efforts. The strategy paper
discusses the environmental setting of Bangladesh in the national
context as well as the sectoral context where USAID/Bangladesh intends
to concentrate its efforts. This also includes discussions on past
experiences and on-going efforts in the thrust areas and provides a
rationale for embarking on this strategy. A summary of the programmatic
approach including program goals, areas of concentration and the
implementation approach is also provided.

This environmental strategy is planned in the context of
USAID/Bangladesh's Strategic Plan (2000-2005) which focuses on
sustainable economic growth and includes the ongoing bilateral programs
and agreements between the Government of Bangladesh (GoB) and the United
States Government (USG) in general and USAID/Bangladesh in particular.

2.  USAID\'s Strategic Focus

The critical environmental problems currently facing Bangladesh include:

-   Surface water distribution and related degradation of aquatic
    habitats, ecosystems and biodiversity;

-   Historically occurring deforestation and associated degradation of
    terrestrial habitats, ecosystems and biodiversity;

-   Soil degradation caused by nutrient depletion, salinity, and an
    imbalanced use of fertilizers;

-   Water quality degradation, especially of surface water due to poor
    sanitation, industrial effluents, and pesticide runoff;

-   Drinking water quality deterioration because of arsenic
    contamination of groundwater and poor surface water quality;

-   Degradation of the urban environment, including water and
    sanitation, solid waste, and worsening transport-related air
    pollution caused in great part by two-stroke engines; and

-   Energy related pollution, including commercial and biomass use.

As apparent from the above list, there exists a host of environmental
problems confronting Bangladesh. USAID's focus, however, as suggested by
the title of the strategy, will be concentrated on the community-based
management of natural resources in both terrestrial and aquatic
ecosystems and the associated buffer zones. USAID will not address other
environmental issues, such as water supply and sanitation, surface water
management, environmental pollution in general, and air quality, under
this SO since these are being addressed by other donors and by USAID
under other SOs (e.g., energy related pollution and GHG issues are being
addressed under the Energy SO). For example, the World Bank, ADB, World
Health Organization (WHO), United Nations Children's Fund (UNICEF) and
British Department for International Development (DfID) are or have been
implementing massive programs in the water and sanitation sector,
including the arsenic contamination of groundwater. The Canadian
International Development Agency (CIDA) and a number of US government
and academic agencies are also involved in programs contributing to the
scientific understanding of arsenic contamination and to developing
cost-effective and sound mitigation measures. The larger issue of
surface water management, including the development of the National
Water Management Plan, is being addressed by a number of donors. While
the World Bank and DfID are assisting in the fisheries sector as lead
donors, ADB and World Bank have substantial programs in the mainstream
forestry sector development projects that includes the Sundarbans
Biodiversity Conservation Project. The United Nations Development
Program (UNDP), CIDA, World Bank and ADB are also implementing
large-scale programs in industrial and urban environmental management
programs including abatement of air pollution.

1.  Program Context

##### *The Water Sector and Aquatic Biodiversity*

Bangladesh is endowed with an enormous network of aquatic ecosystems
because of its location in the delta of three major rivers. The four
million hectares of inland waters support an exceptional diversity of
freshwater fish. There are an estimated 260 species of fin fish, as well
as shrimps, turtles, snails, and other wetland resources. The Bangladesh
fishery is the 3^rd^ largest freshwater fishery in the world and the
people of Bangladesh have a historical dependency on the floodplain
system for their livelihood security.

Per capita fish consumption, according to BBS statistics, peaked in 1985
at 13.2 kgs/person and has declined to 9.0 kgs/person by 1996 (DoF).
Price increases of fish in real terms have occurred at the rate of 2.8%
per year and some sources have stated that open water fish that used to
supply 80% of the animal protein consumed supply less than 60%.

Over the past twenty years open water fish production and wetlands
biodiversity have drastically declined. Deterioration of the fisheries
has been attributed to a number of factors that can be separated as
follows:

> ***Anthropogenic***

-   Obstructions to fish migration including flood control and
    irrigation structures, roads, settlements, dams, and aquatic fences;

-   Over-fishing from burgeoning populations and the use of destructive
    fishing practices including total enclosure nets and draining;

-   Conversion of wetlands into croplands;

-   Extraction of water in the dry season for irrigation and general
    reduction in wetland habitats;

-   Alteration of channels and natural linkages between main rivers,
    tertiary rivers and floodplain/*beels*;

-   Water pollution

> ***Natural***

-   Degradation of wetland habitat (river, canals and *beels*) through
    siltation that reduces fish breeding and nursery areas;

-   Morphological changes and diversion/alteration of wetlands and loss
    of connections among habitat diversity within a larger ecosystem.

These impacts continue to have a serious and direct impact on the food
security, nutrition and income of the poor people of Bangladesh. On top
of this physical shrinkage of floodplain habitats, poor people's right
to the open water and its resources has been gradually compromised by
tenure and policy issues such as restrictions of access. Poor fishermen,
who are the most dependent on open-capture fisheries, have lost access
to the open water wetland, as private leases have become more common.
Also, the increased commercial activity in the open water areas has led
the water-bodies to become degraded as more emphasis is put on
extracting high profits in short periods of time.

> ***The Forestry Sector and Terrestrial Biodiversity***

The last 10-year trend reveals a serious decline of "natural" forest
habitats. Outside the Sundarbans, only tiny patches of forests remain,
and these are under severe fragmentation pressure. These patches house
what remains of a biologically viable representative population of
Bangladesh's biodiversity, likely a total area less than 300km^2^.
Though a current natural forest inventory is unavailable, satellite
imagery indicates that forest cover has been reduced more than 50% since
the 1970s. Estimates in 1990 revealed that Bangladesh had less than 0.02
ha of forestland per person -- the lowest forest to population ratio in
the world. Presently less than 6% of the country is under forest cover,
primarily mangrove forests at about 4000 sq. km. Created under the
provisions of the Bangladesh Wildlife Act of 1974, there are 15
protected areas that occupy 1.5% of total land area. This is well below
the target of 5 percent established by the Wildlife Task Force in 1986
and the target of 12 percent recommended by the World Commission on
Environment and Development.

Four of the protected areas in Bangladesh are to some degree serving the
purposes for which they were created. These are the three Sundarbans
wildlife sanctuaries and Bhawal National Park, all of which have forest
guards stationed within them who provide limited protection.
Unfortunately, this situation is quickly changing as pressure mounts
from poaching, logging, and land conversion for shrimp farming.

The average annual destruction of forestland in the country was 8000 ha
in 1980 and subsequently it increased to 38000 ha in 1981-90 according
to FAO (1993). The major causes of deforestation are:

-   Land clearing for agriculture, principally through shifting
    cultivation in the hill forests,

-   Felling for the timber industry, perhaps related to the current
    building boom in Dhaka

-   Land use changes related to social forestry projects, forestland
    encroachments, grazing, fire, uncontrolled commercial logging,
    illegal felling, and fuel wood collection.

    1.  USAID Experiences and On-going Initiatives

Although this represents the first explicit strategic framework for
environmental programs in Bangladesh, USAID has nevertheless taken an
active role on environmental issues over the years. USAID as an Agency
has a stringent, all-encompassing environmental regulation, commonly
known as Reg 216, which is enforced to its fullest effect in all USAID
programs worldwide. USAID/Bangladesh administers a comprehensive Initial
Environmental Examination (IEE) prior to implementing any program that
is followed up as appropriate by more elaborate environmental
assessments to identify environmentally critical issues. If need be, the
IEE and related environmental assessments bind the programs with
conditions to comply with Reg 216. As a result, all USAID programs in
Bangladesh offer an environmentally friendly mode of implementation.

Programmatically, USAID\'s largest contribution has been its
longstanding support for disaster assistance. By training the rural
population how to cope with disasters, preparing shelters and
environmentally friendly rural infrastructure, and establishing feeding
procedures, the people of Bangladesh are now well prepared to minimize
the loss of life and assets associated with the regular environmental
disasters it will continue to face.

USAID supports the United States Geological Survey (USGS) work on the
geochemical and hydrological nature of the groundwater arsenic
contamination. A similar, more elaborate work by Columbia University --
in conjunction with the Institute of Public Health -- is being supported
by the U.S. Environmental Protection Agency (USEPA).

In Agriculture, USAID is also supporting a pilot activity on Integrated
Pest Management (IPM) focusing on low pesticide vegetable production for
domestic as well as competitive international markets.

In water management and road development, USAID has helped lead the
assessment and plans for mitigation arising from road construction and
irrigation works in floodplains and played a significant role under the
World Bank-coordinated Flood Action Plan (FAP) donor consortium. USAID
pioneered the introduction of environmental concepts for water
management planning, and supported four important FAP components --
flood response, environmental impact studies and training, geographic
information systems, and identification of appropriate flood proofing
measures.

Recognizing both the importance of conserving Bangladesh's biological
resources and the need for new approaches to floodplain, wetlands, and
forest conservation and management, USAID/Bangladesh, in conjunction
with the Ministry of Fisheries and Livestock (MoFL), is implementing the
Management of Aquatic Ecosystems through Community Husbandry (MACH)
activity, to help promote the conservation and sustainable management of
critical floodplain and wetland habitats.

While there have been some achievements in Bangladesh in improving
management and access of the poor to certain fishery resources, the
successes have been isolated and not easily replicable.
USAID/Bangladesh's MACH, therefore, has built itself upon the past
experiences and directing its interventions towards a holistic
management of the entire floodplain/wetland ecosystem.

USAID/Bangladesh and the GoB are also working together to implement the
bilateral agreements signed by the USG and the GoB under the auspices of
the Tropical Forest Conservation Act (TFCA) of 1998. The TFCA provides
eligible countries the opportunity to reduce concessional debts owed to
the United States, and at the same time generate funds to conserve or
restore their tropical forests.

Bangladesh has been the first country to benefit from programs under the
TFCA that was signed by the President in July 1998, after overwhelming
bipartisan support in the U.S. Congress. The signing of the Debt
Exchange Agreement and the Tropical Forest Conservation Agreement
between the GoB and the USG set the first example to effect TFCA
worldwide. USAID is now working together with the GoB, particularly the
Ministry of Environment and Forest (MOEF), to establish an independent
organization named the Arannayk Foundation (Bangladesh Tropical Forest
Conservation Foundation \-- BTFCF).

Finally, USAID has supported the Bangladesh Climate Change Country Study
through the US Climate Change Country Studies Program, and is currently
supporting development of the Bangladesh Climate Change National Action
Plan in conjunction with Global Environment Facility (GEF). USAID is
implementing, in conjunction with the Ministry of Energy and Mineral
Resources, a strategic objective agreement to improve the performance of
the energy sector and thereby reduce the greenhouse gas emissions from
the energy sector activities. The initiative includes the well-known
*Rural Power for Poverty Reduction (RPPR)* program, which augments
efficient use of power, including reduction of systems loss, at the
downstream distribution side. The initiative puts a major emphasis on
promotion of clean fuel such as natural gas and aims at capacity
building in the energy sector for promoting development and use of
cleaner energy sources and technologies. USAID also is supporting the
Grameen Shakti -- a subsidiary of the Grameen Bank -- to develop
environmentally friendly photovoltaic (solar) energy for remote rural
areas of Bangladesh where conventional grid electricity will not reach
in the foreseeable future.

2.  Rationale for the Program

Although the Bangladesh context poses many challenges to environmentally
sound and sustainable management of natural resources, there is not much
room for error, nor can Bangladesh wait until it reaches some degree of
economic growth and development before it addresses environmental
concerns, particularly arresting further degradation of its critical
ecosystems and invaluable natural resources base. Although Bangladesh so
far has made considerable progress in the policy formulation and in
implementation of some initiatives towards biodiversity conservation and
natural resources management, there remains much to be done. The
following paragraphs explain why Bangladesh needs to take a new look
into its implementation strategy.

***Biodiversity Conservation Emergency***

Bangladesh possesses rich biodiversity, almost all of it residing in
remaining forested and wetland areas. Besides a few "protected" areas,
however, a serious biological simplification has taken place in both the
terrestrial and aquatic habitats of the country. According to local
experts, the rate of forest destruction is far more severe than the
official statistics suggest. There is a consensus among experts in
Bangladesh that all remaining forest patches will be destroyed within
10-15 years assuming current trends. This constitutes a biodiversity
emergency in the country.

The people and Government of Bangladesh (GOB) have increasingly
recognized that the wetlands and the forest tracts are in decline.
Alarmingly, despite more than a decade of GOB and donor interventions,
the inland fisheries and floodplain catch, as well as the overall plant
and animal biodiversity within the floodplains as well as the riparian
and upland habitats, continue to decline.

##### *Citizens Depend on the Natural Ecosystems for Their Livelihood*

Poor people of Bangladesh have historical intricate linkages with the
natural resources base. Estimated total forestry employment today is 5
million, including wood collectors.

The Bangladesh fishery is the 3^rd^ largest freshwater fishery in the
world. Close to 13 million people (over 10% of the population) are
directly or indirectly engaged in fishing and fisheries related
activities. According to some studies, over 80% of the people living in
the floodplain area are engaged in subsistence fishing, at least part of
the year, for family consumption. The 1,000,000-1,400,000 metric tons of
fish harvested annually makes up 8% of Bangladesh\'s export earnings.
With the livelihood and indeed survival of such a large population so
indelibly linked to the floodplain ecosystem, it is vital that the
system be saved from further degradation and managed for sustainable
use.

Along with the forested land for production forestry, administration of
the existing protected areas in Bangladesh is under the administrative
jurisdiction of the Forest Department. At the field level, forest guards
are employed full time in "protecting" the forest from encroachment and
illicit cutting. The common definition of encroachers and illegal
extractors of forest resources is the poorest segment of the community
people who traverse through the forests for hours for collecting a thin
bunch of firewood or medicinal plants or fodder. The real problems with
forestry, experts opine, do not lie with the extraction of forest
products by the poor. Massive exploitation is actually caused by the
illegal loggers and poachers who are usually extremely influential
people. The other side of the coin is the fact that the Government
itself depends heavily on the revenue generated by the forestry sector.
They, therefore, look into the forest merely as a source of easy
revenue, not as a habitat for biological resources of numerous kinds. In
some areas the narrow focus on protection management has incurred the
animosity of local people and will make the job of real protection more
difficult in the future. There has hardly been any attempt made to
bringing people, the expected real protectors as well as the users of
this production system, into the picture. The FD has limited experience
with social forestry, but the equation of involving people in protected
area management or forest biodiversity conservation under a systematic
approach is far from reality.

The situation is slightly better in the fisheries sector, although the
scale of adoption of people-based, participatory, implementation is far
from being what is needed. Community-based fisheries projects commonly
aim at production of commercially important fish species only, ignoring
the need for biodiversity conservation. Actively involving the user
community in future interactions is essential to the restoration, as
people are the critical component of the ecosystem.

> ***Destruction of the Terrestrial and Aquatic Ecosystem Continuum***

Degradation of both aquatic and forest ecosystems has actually led to a
situation that may be termed as the destruction of the
terrestrial/aquatic ecosystem continuum. The terrestrial or upland
ecosystem is not an independent island -- it is part of a whole, an
integrated ecosystem. This is the system that controls the water that
would ultimately flow down to the basin. The forest and other
vegetation, the forest floor and the mineral soil, enhance the residence
time of water in the system through uptake, percolation and
evapo-transpiration, and thus control runoff and reduce soil erosion. A
degraded terrestrial upland cannot hold water at a level expected of a
healthy ecosystem. Accelerated soil erosion is the obvious outcome. And
accelerated soil erosion and runoff of water cause siltation of the
wetland basin at a much faster rate. Degradation of terrestrial
ecosystems thus is the prime cause of destruction of the aquatic
ecosystems in a continuum.

In general, in Bangladesh the concepts of production, protection and
conservation have not been clearly separated. In the case of the
forestry sector, this is a function of weak forest area management. The
other weakness is that of current operational mandates. The Forest
Department works under the traditional mandate to work towards managing
production forestry. Although the Forestry Master Plan is quite open to
the need for managing integrated ecosystems or watersheds,
implementation of this approach is restricted by lack of access to work
with an extended mandate. For example, the FD -- except for the
Sundarbans -- does not have the mandate to work in the wetland areas.
The wetlands and waterbodies, which constitute an integral part of the
watershed, are under the jurisdiction of other ministries or agencies.
The linkage between the two -- the buffer zone or the riparian habitat
-- is usually excluded from of any management plan. Similarly, other
important environmental issues that are strongly related to the
ecosystems' health such as water supply and sanitation, water pollution
and water quality, surface water management, industrial effluents, fall
under the purview of separate administrative jurisdictions that have
little or no interest in natural resources management. This has
resulted, historically, in an unwise land use pattern.

## Global Climate Change 

As mentioned earlier, Bangladesh will be hard hit in the event of
climate change and associated sea level rise. This will pose a
tremendous threat to the biodiversity and, in turn, to the economy and
sustainable livelihood of the people.

While changes in precipitation levels may benefit some areas, developing
countries are most likely to feel the negative effect of global warming.
Increased floods and droughts are among the predicted impacts of climate
change in the coming century, both of which will alter the availability
of freshwater resources. Lakes, streams and groundwater would all be
affected, potentially compromising the ability of these resources to
provide adequate water for domestic needs, industry, navigation,
hydropower, agriculture and biological communities. Freshwater wetlands,
such as flood plains, are extraordinarily valuable ecosystems because of
their role in flood control, water storage, water purification and
natural habitat. Wetlands will generally shrink in a warmer climate
because of increased evapotranspiration. Global Climate Change will
almost certainly affect biological diversity over the next century. Many
species will have to migrate or shift their ranges in response to
changes in climate. Species will shift either toward the poles or to
higher elevation to avoid increasing temperatures. If the entire range
occupied by a species becomes unsuitable habitat, local extinction will
result.

Bangladesh, having a negligible per capita GHG emission, is one of a few
countries most vulnerable to Global Climate Change impacts. Probable
shifts in the coastline, the water and temperature regimes and loss of
the low-lying landmass can be a major blow to the food basket of this
excessively populated country. A careful planning is required to adjust
to the changes, particularly in light of the agricultural economy and
change in cropping pattern that inevitably occur.

# USAID's Strategic Response

USAID/Bangladesh intends to help Bangladesh meet the emergencies
delineated above through the implementation of activities under its
ongoing Strategic Objective (SO) for Environment, SO6, namely, *Improved
Management of Open Water and Tropical Forest Resources*. USAID's
strategy is to build on its on-going interventions in the conservation
of the aquatic ecosystems in order, eventually, to widen the scope to
implement similar programs in improving the terrestrial ecosystems,
particularly, the protected upland forest areas. We are focusing on
these issues because of both the protective and productive importance of
these systems. As explained earlier, protection of the wetland systems
can not be successfully done unless the associated riparian and upland
habitats are protected and managed. The overall rationale for the new
SO, therefore, is to protect and enhance the terrestrial and aquatic
resources base of the country. We will maintain a particular focus,
where appropriate from the geographic and physiographic considerations,
on the integrated management of aquatic and terrestrial ecosystems.

The SO will direct its activities in five major areas: *Implementation
of Effective Community Based Resources Management Mechanisms,
Restoration of Select Habitats and Ecosystems, Implementation of Select
Policies, Increasing Public Awareness of Key Issues,* and *Improving
Institutional Capacity.*

The favorable bilateral relations between the USG and the GoB and the
existing cooperation in improving the management of aquatic ecosystems,
which already is showing considerable promise, has set the stage for
furthering the efforts. The recent joint effort towards establishing the
Arannayk Foundation (Bangladesh Tropical Forest Conservation Foundation)
under the TFCA provides additional opportunity for both Governments to
indirectly address wetlands protection issues through biodiversity
conservation and management.

Bangladesh's favorable policy framework provides a foundation for
addressing the biodiversity emergency issues by re-linking people in
resources management, looking into terrestrial and aquatic habitats as
integrated systems, and, above all, preparing the nation to face the
inevitable global climate change. The following paragraphs outline
USAID/Bangladesh\'s strategic response in addressing the issues.

> ***Biodiversity Conservation Emergency***

The biodiversity emergency engulfing the country requires an immediate,
coordinated, well-funded and very strategic response both from the
protection and production perspectives. It is of vital national interest
that Bangladesh maintains its biodiversity assets so it has the genetic
"pool" needed for its future development.

Considering the underlying importance of the floodplain fisheries and
other aquatic resources, it is also imperative that an improved
management system based on ecological approach be the priority option
for sustenance of the floodplain and wetland resource systems. In
addition, rehabilitation of the riparian habitat in the upstream
watershed is warranted to maintain the ecosystem health of the
downstream wetland ecosystems.

> ***Re-linking Citizens with Natural Ecosystems***

Overall, a large and growing population, a heavily exploited natural
resource base, and poverty are integrally related and fully linked to
sustainable development and environmental enhancement. The poor,
although the most vulnerable and least able to cope with environmental
changes and the impact of natural disasters, need to address their
urgent short-term needs for food and fuel. But, many of their actions
contribute to the long term depletion and degradation of the resources
on which they must rely. This is not a question of a general lack of
awareness about the fragility of their environment and its link to their
physical and economic wellbeing. Acute poverty presses the poor people
to overuse resources. Poor people must be empowered and given a stake
and economic incentive -- through resources-sharing or alternate income
generating avenues -- for conserving and better managing natural
resources in their neighborhoods. This integral parameter, linkages of
people -- especially the poorest section -- is often missing in the
natural resources management planning. Therefore, even though conserving
the gene pool or capital may technically appear to be the prime
rationale for protecting aquatic and terrestrial biodiversity, the
people and productive and economic use of community connections to these
resources must claim higher priority in the national political calculus.
The challenge for the down users must be to address both.

> ***Re-linking the Terrestrial/Aquatic Ecosystems Continuum***

As is apparent from the preceding section, the whole "mandate question"
or "domain culture" \-- particularly of the GOB agencies and
institutions \-- are utterly subversive to critical habitats. The
conservation approach should be a coordinated one, directed towards
conservation and improved management -- for both protection and
production -- of the terrestrial ecosystems, the buffer zone or the
riparian ecosystems, and the aquatic, aiming specifically at
re-establishing the terrestrial/aquatic ecosystem continuum. This is
exactly what USAID/Bangladesh, through the implementation of the current
strategy, would like to help Bangladesh achieve. We understand that
achieving this will require major efforts in implementing already
existing GOB policies and, more importantly, augmenting cooperation and
coordination among a number of GOB ministries and agencies. We will keep
a focus on this issue while implementing programs under the strategy.

One of the practical problems facing Bangladesh in re-establishing the
terrestrial/aquatic ecosystem continuum is the fact that most of the
terrestrial command areas affecting aquatic ecosystems in Bangladesh lie
outside the political borders. While this may constitute an agenda for
future action on a regional basis, experimental, small-scale initiatives
are urgently needed for conserving the sites that are within Bangladesh.
USAID/Bangladesh will coordinate with other USAID\'s as well as other
donors\' regional initiatives in natural resources management in
implementing the strategy.

> ***Global Climate Change***

Since both GCC and population growth are rapidly increasing the
vulnerability of the country to extreme climate impacts, strategically,
Bangladesh must prepare for inevitable changes, encouraging GHG
reductions both globally and locally, and trying to make the most of its
potential to benefit from GHG emissions trading. Preparedness for
climate change should be a top priority for this highly vulnerable
country.

The whole issue of GHG emission and GCC is related to enormous
opportunities for vulnerable countries like Bangladesh, including
emissions trading. The forestry sector, as well as habitat restoration
in the floodplain, riparian zone and wetland ecosystems, which will lead
to re-vegetation of wetlands, may provide this opportunity.

2.  USAID\'S STRATEGIC APPROACH

Our strategic approach will be that of integrated management of
ecosystems where the geographic and conceptual opportunities present
themselves. The SO will:

-   View ecosystems in an integrated, comprehensive way that includes
    human use, living patterns, and population pressure. Avoiding single
    species or ecosystem preservation activities and viewing
    biodiversity conservation as inherent to ecosystem management.

-   Focus on long-term uses and management of natural resources,
    sensitive to the possible discrepancies between immediate increases
    in yield or income and long-term management of ecosystems both for
    its biodiversity values and sustainable production.

-   Build on the Mission's current program on floodplain ecosystem
    management and the working relationship with the NGOs and the local
    communities.

-   Proactively establish a niche for itself that will strengthen or
    complement other donor and GoB initiatives and will ensure the
    greatest degree of effectiveness in environmental activities
    particularly managing ecosystems for biodiversity conservation and
    sustainable ecosystem production.

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-   Support community-based ecosystems and natural resources management
    and working with the whole community and all the stakeholders, not a
    particular group. Owing to its ongoing, successful experience in
    implementing MACH, USAID will adapt the "Co-Management Approach" in
    implementation of the biodiversity programs under this new SO.
    Co-management is:

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-   a pluralist approach to managing natural resources (NRs),
    incorporating a variety of partners in a variety of roles, generally
    to the end goals of environmental conservation, sustainable use of
    NRs and the equitable sharing of resource-related benefits and
    responsibilities

-   a political and cultural process *par excellence*: seeking social
    justice and "democracy" in the management of natural resource a
    process that needs some basic conditions to develop, among which
    are: full access to information on relevant issues and options,
    freedom and capacity to organize, freedom to express needs and
    concerns, a non-discriminatory social environment, the will of
    partners to negotiate, confidence in the respect of agreements, etc.

-   a complex, often lengthy and sometimes confusing process, involving
    frequent changes, surprises, sometimes contradictory information,
    and the need to retrace one's own steps

-   the expression of a mature society, which understands that there is
    no "unique and objective" solution for managing natural resources
    but, rather, a multiplicity of different options which are
    compatible with both indigenous knowledge and scientific evidence
    and capable of meeting the needs of conservation and development
    (and that there also exists a multitude of negative or disastrous
    options for the environment and development)

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-   Strengthen local capacity to effectively manage and conserve natural
    resources and biodiversity.

-   Strengthen Bangladesh's capacity to address climate change issues.

3.  THE USAID PROGRAM

    1.  Strategic Objective

USAID/Bangladesh is implementing its environmental programs under a
distinct Strategic Objective (SO). The name of the SO is:

> IMPROVED MANAGEMENT OF OPEN WATER AND TROPICAL FOREST RESOURCES

A schematic diagram of the strategic objective and associated
intermediate results and indicators is provided in the last page of this
document.

2.  Goals

The overall goal of the SO is to strengthen the efforts of the GOB and
the NGOs in environmental and natural resources management sectors. The
specific goal of this SO is to demonstrate to government and communities
improved management of aquatic and tropical forest resources. The SO
aims to create a model for conservation through community management of
natural resources that is environmentally sustainable. The adaptive
model is based on the need to restore or maintain ecosystem function of
aquatic and forest habitats through a participatory approach. That
approach will include all resource users and will promote interventions
that help nature do its job in providing diversity and yield.

3.  Strategic Objective Indicators

Indicators for this SO tentatively comprise:

-   The number of occasions where best practices from a USAID activity
    are used by other donors or the GOB,

> \[This indicator shows the extent to which models/best practices
> developed in targeted areas are replicated on a broader level. Some
> specific examples of *Best Practices* are: co-management approach in
> natural resources management, sanctuary establishment, alternate
> income generating activities for natural resources dependent
> population, and afforestation, reforestation of upland and buffer zone
> management in protected areas. USAID believes that replication of best
> practices will lead to national level impacts over the longer term.
> This indicator is highly dependent on providing complementary analysis
> on the extent to which best practices are adopted and the extent to
> which those practices are likely to have broader impacts. During the
> first phase of this strategy (2002 to 2010) the emphasis will be on
> developing sound models, however, it is anticipated that the
> replication process will begin.\]

-   Increased production of natural resources in targeted areas (forest
    and wetland), and

-   Increased biodiversity in targeted areas.

> \[This is the highest-level impact indicator. Progress will be seen
> over the longer term.\]

In implementing this SO, USAID/Bangladesh will view environment as a
program strategy as well as a crosscutting strategy.

1.  Intermediate Results

Intermediate Results (IR) of this SO tentatively comprise:

-   *Effective Community-based Resource Management Mechanisms
    Implemented*

-   *Select Habitats and Ecosystems Restored*

-   *Select Policies Implemented that Support IR1 and IR2*

-   *Public Awareness of Key Issues Increased,* and

-   *Improved Institutional Capacity.*

While the first three are key intermediate results, the latter two are
of crosscutting nature, which complement the achievement of the key
intermediate results.

4.  ILLUSTRATIVE PROGRAM DESCRIPTION

The SO will subsume USAID/Bangladesh's existing environment sector
programs, such as the *Management of Aquatic Ecosystems Through
Community Husbandry (MACH)*, currently being implemented by the Ministry
of Fisheries and Livestock (MOFL). The MACH activities already have
established broad linkages with the five strategic areas described in
the preceding sections. However, the new strategy will provide for scope
for more far-reaching and rigorous interventions, encompassing the whole
environment sector, including forestry, natural resources and watershed
management, and global climate change. In addition to MACH and our
initial support toward establishing the Arannyak Foundation, a set of
new activities will be initiated within this strategic framework, in
order to complement existing USG efforts in the sector. Moreover, strong
coordination will be maintained with other bilateral and multilateral
donor agencies to avoid duplication of efforts.

**Intermediate Result 6.1:**

**Effective Community-based Resource Management Mechanisms Implemented**

This IR is critical to the success of any sustainable biodiversity and
natural resources management activity in Bangladesh. An essential
requirement for managing ecosystems for sustainable biodiversity
vis-à-vis production is to understand the concept of ecosystem health
and the factors affecting it. Most of the ecosystems in Bangladesh, as
described in the previous sections, have been overexploited and degraded
due to natural and anthropogenic causes, and conserving the remaining
natural resources for future sustainability will require meticulous
technical interventions designed for specific situations. For example,
to maintain productivity of the wetlands, there must be a moratorium on
fishing during the breeding season. Similarly, for the uplands, people
must keep themselves away from using the resources during the early
stage of, for instance, plantation establishment. The impact, therefore,
is directly on the poor resources users. Activities under this program
area will be aimed at bringing all resources users into the
decision-making process as well as into the management of these
resources. If poor people depending on these natural resources are
provided with alternate sources and incentives for income, the
conservation effort is likely to achieve a great success. Providing them
with credit or support to access credit, the right set of technologies,
and the required training to use them, so that instead of further
degradation the habitats are gradually improved can do this.

**Proposed Indicators**:

-   Area of floodplain where sustainable management is implemented.

> \[*Sustainable management* is defined by meeting the following
> criteria:

-   Participatory mechanisms for decision making is used (e.g. community
    management committee, local government management committee). These
    committees must include representatives both from the local
    government and the community.

-   Planning of activities are coordinated to identify priorities,
    needs, and resources for implementation

-   Environmentally sound resource use procedures are established\]

**Key Activities**: USAID's experience through the on-going MACH
activities reveals the fact that there is a dire need for technological
intervention to enhance ecosystem health, increase biodiversity and
production on a sustainable basis. Activities under MACH will continue
in this end. New activities under the SO will enhance the scope of MACH
and include interventions aiming at improved buffer zone management at
the aquatic/terrestrial interface. A new fully-fledged activity in the
area of tropical forest conservation and management is also envisioned.
Key activities will include, but not be limited to, alternate income
generating activities, fish sanctuary establishment, establishment of
protected riparian area, co-management of tropical forest areas,
inventory and monitoring of aquatic and terrestrial biodiversity,
monitoring of production of natural resources, technology dissemination
for vegetable production, aquaculture, tree nursery development, and
improved cropping pattern.

**Intermediate Result 6.2:**

**Select Habitats and Ecosystems Restored**

This IR will be an essential part of the sustainable biodiversity
conservation and natural resources management. It is evident that both
the terrestrial and aquatic habitats that are remaining in the country
have been drastically fragmented resulting in a serious degradation. For
example, as for the aquatic ecosystems, the perennial water-bodies have
lost connections with the floodplains, canals and rivers. Similarly,
once densely forested, terrestrial ecosystems have been deforested or
inhabited resulting in fragmentation of the natural ecosystems. Unless
attempts are made to restore the habitats, all other biodiversity
conservation efforts are bound to fail.

**Proposed Indicators**:

-   Aquatic habitat converted from seasonal to perennial in targeted
    areas (ha)

-   Upland forest habitat restored in targeted areas (ha)

-   Riparian habitat restored in targeted areas (ha)

**Key Activities**: USAID's on-going MACH activity conceptualized that
the restoration of habitats is extremely important to ensure ecosystem
health and productivity. MACH is, therefore, directing a major effort in
this connection. Key activities will complement the activities under IR
6.1 and will be, but not be limited to, restoration of habitat
connectivity of the wetlands, physical improvement of the riparian
habitat, restoration of habitat connectivity along the
aquatic/terrestrial continuum, and rehabilitation of upland forest
areas. Activities under IR 6.2 will be undertaken using local currency
funds as and when available.

**Intermediate Result 6.3:**

**Select Policies Implemented that Support IR 6.1 and IR 6.2**

This IR will help achieve results at the local level in the above two
areas. This is crucial for conserving the existing dwindling natural
resources base of the country. More importantly, policy implementation
must take a faster and a more direct approach. Under the new SO, USAID
will focus on making the community groups at the target areas aware of
the policies and help implementing policies and compliance with
regulations at the local level aiming at setting the stage for national
level implementations.

**Proposed Indicators**:

-   Ministry agrees to devolve authority for leasing to the local level
    in target areas. (yes/no)

-   Number of communities adopting the following key regulations in
    target areas

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-   Restrictions on the use of inappropriate fishing gear

-   Restrictions on the size of fish

-   Restrictions on the fishing season

-   Restrictions on the area for fishing

**Key Activities**: Activities under this IR will focus is on
regulations and licensing at the local level. Models and best practices
of improved natural resources management will be developed at the local
level to demonstrate to decision-makers, but that is not the focus of
the SO. Under this IR, USAID will promote implementation of GOB policies
at the local level to ensure the empowerment of poor people in accessing
natural resources areas legitimately. MACH, through the local Resources
Management Committees, is working towards gaining legal access to the
water-bodies. The process will continue and new activities will be
added, especially to include the riparian zone and forested uplands. Key
activities will include, but not be limited to, leasing of water-bodies
and upland areas to the community groups, implementing co-management
approaches in forested areas, and arresting over-fishing of wetlands and
over-exploitation of upland resources.

**Intermediate Result 6.4:**

**Public Awareness of Key Issues Increased**

This IR is important both for motivating people \-- ranging from the
grassroots level users to the topmost level policy-makers \-- towards
the urgency of conservation of natural resources in a sustainable
fashion. Awareness brings about the enabling environment for enforcing
laws and compliance of regulations and, at the same time, prepares
people to adapt innovative technologies for sustainable management of
the resources. In this area, USAID will put a serious emphasis with the
aim of creating awareness on the three areas mentioned above.

**Proposed Indicators**:

-   Numbers of individuals reached by public awareness activities

**Key Activities**: This is a crosscutting IR, contributing to achieve
the results under the first three IRs. Public awareness of people,
including from grassroots community users of resources to top-level
policy makers, is a key to the success of the program. The MACH activity
is seriously pursuing awareness campaigns at the grassroots level
through community meetings, rallies, and campaigns as well as at the
highest policy level through the steering committee meetings. New, and
more proactive, attempts will be taken up in this end through addition
of new activities.

**Intermediate Result 6.5:**

**Institutional Capacity Building**

This IR is also an essential element to the success of the initiatives
in the natural resources sector of Bangladesh. At the community level,
institutional capacity building will entail the formation of resources
users groups, *Resources Management Committees* (RMC \-- composed of the
resources user community, the local government, local elite), and *Local
Government Committees* (LGC \-- composed of the local level
representatives of government agencies), and beneficiary groups for
alternate income generating activities. The local level groups will be
provided with technologies and training, and, if need be, credit
support.

The recent efforts towards establishing the Arannayk Foundation will
entail a serious national level institutional capacity building process,
in the public, private and the NGO sectors. Technical assistance will be
provided for capacity building in Arannayk Foundation and for training
the GOB agencies as well as the participating NGOs in biodiversity and
tropical forest management. Moreover, USAID/Bangladesh envisions
implementing activities to build capacity of the GOB and NGOs in
protected areas management, particularly of the forested areas.

**Proposed Indicators**: TBD

**Key Activities**: This is also a crosscutting IR to support the
achievement of the IRs 6.1-6.3. Institutional capacity building will
constitute a major area of intervention under the new SO. The on-going
MACH activity has been involved in local level institutional capacity
building activities for improved management of the aquatic ecosystems in
the floodplain. While this effort will continue, a number of new
activities will be initiated under this IR. Key activities will include,
but not be limited to, establishment of resource management committees
at the local level, community level awareness raising, conduct
participatory community planning workshops, establishment of BTFCF,
capacity building training for BTFCF personnel and the Board, and NGO
capacity building for tropical forest conservation activities.

5.  PROGRAM IMPLEMENTATION

    1.  Program Management

The overall management of the programs under the SO will be overseen by
two steering committees.

[Aquatic Ecosystems Management]{.underline}: A Steering Committee --
composed of representatives of USAID/Bangladesh, Bangladesh Ministry of
Fisheries and Livestock, (MOFL), Ministry of Land (MOL) and Economic
Relations Division (ERD) of the Ministry of Finance (MOF) -- will meet
once every six months to review project implementation and progress. A
senior GOB official will chair the Steering Committee while the Chief,
Office of Economic Growth, Food and Environment (EGFE) of
USAID/Bangladesh, or his designee, will serve as the Secretary of the
Steering Committee and convene the meetings.

[Terrestrial Ecosystems and Tropical Forest Conservation and
Management]{.underline}: A Steering Committee -- composed of
representatives of USAID/Bangladesh, Bangladesh Ministry of Environment
and Forest (MOEF) and Economic Relations Division (ERD) of the Ministry
of Finance (MOF) -- will meet once every six months to review project
implementation and progress. A senior GOB official will chair the
Steering Committee while the Chief, Office of Economic Growth, Food and
Environment (EGFE) of USAID/Bangladesh, or his designee, will serve as
the Secretary of the Steering Committee and convene the meetings.

USAID/Bangladesh will manage the overall program. All activities under
this new SO will be implemented by USAID/Bangladesh and other
implementing partners (contractors/grantees).

2.  Duration of Strategy

This proposed strategy would begin in FY 02 and end FY 08. Pending GOB
and USAID/Washington approval a financial plan will be elaborated.

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