Project Appraisal Document

193 Pages·2010·2.04 MB·English

Document of
The World Bank

FOR OFFICIAL USE ONLY

Report No: 54612-IN

PROJECT APPRAISAL DOCUMENT

ON A

PROPOSED CREDIT

IN THE AMOUNT OF SDR 146.9 MILLION
(US$ 221.96 MILLION EQUIVALENT)

TO THE

REPUBLIC OF INDIA

FOR AN

INTEGRATED COASTAL ZONE MANAGEMENT PROJECT

May 14, 2010

Sustainable Development Department
Environment, Water Resources & Climate Change
South Asia Region

This document has a restricted distribution and may be used by recipients only in the
performance of their official duties. Its contents may not otherwise be disclosed without World
Bank authorization.
CURRENCY EQUIVALENTS

(Exchange Rate Effective April 30, 2010)
Currency Unit = Indian Rupee (Rs.)
Rs. 44.37 = US$1
US$ 1.5111 = SDR 1(30 April 2010)

FISCAL YEAR
April 01 - March 31

ABBREVIATIONS AND ACRONYMS
AAP Annual Action Plan
BISAG Bhaskaracharya Institute of Space Application & Geo-Informatics
CAAA Controller of Aid Accounts and Audit
CBO Community Based Organization
CDA Chilika Development Authority
CMZ Coastal Management Zone
CRZ Coastal Regulation Zone
DGS&D Directorate General of Supply and Disposal
DoFE Forest and Environment Department (in Gujarat), Department of Forests
and Environment (in Orissa), or Department of Environment (in West
Bengal)
DPR Detailed Project Report
DSDA Digha-Shankarpur Development Authority
E&SA Environmental and Social Assessment
ESA Ecologically Sensitive Area(s)
ESMP Environment and Social Management Plan
GAAP Governance and Accountability Action Plan
GEC Gujarat Ecology Commission
GEER Gujarat Ecological and Education Research Foundation
GFR General Financial Rules
GP Gram Panchayat (Village Local Self-Government)
GPCB Gujarat State Pollution Control Board
GoI Government of India
GoG Government of Gujarat
GoO Government of Orissa
GoWB Government of West Bengal
ICB International Competitive Bidding
ICR Implementation Completion Report
ICZM Integrated Coastal Zone Management [A process to promote security of
life and livelihood of the coastal communities, and to protect the
ecosystems that sustain productivity of the coastal areas while
promoting sustainable development.]
IDA International Development Association
IEC Information, Education and Communication
IESWM Institute of Environmental Studies and Wetland Management
IOC Incremental Operating Cost
IPCC Inter-Governmental Panel on Climate Change
IUFR Interim Unaudited Financial Report
JMC Jamnagar Municipal Corporation
LIB Limited International Bidding
ME&L Monitoring, Evaluation and Learning
MoEF Ministry of Environment and Forests
MoU Memorandum of Understanding
MNP Marine National Park, Jamnagar, Gujarat
NCB National Competitive Bidding
NCZMA National Coastal Zone Management Authority
NCSCM National Center of Sustainable Coastal Zone Management
NPMU National Project Management Unit
NGO Non Governmental Organization
OP/BP World Bank: Operational Policy / Bank Procedure
OSPCB Orissa State Pollution Control Board
OSDMA Orissa State Disaster Management Authority
O&M Operation and Maintenance
PAD Project Appraisal Document
PEA Pilot Investment Execution Agency
PIP Project Implementation Plan
PHED Public Health Engineering Department
PPF (PPA) Project Preparation Facility (Advance)
PMO Prime Minister’s Office
RBI Reserve Bank of India
RIW Risk Identification Worksheet
RPF Resettlement Policy Framework
RTI Right to Information (Act)
SC Steering Committee
SICOM Society for Integrated Coastal Management
SOI Survey of India
SPMU State Project Management Unit
ToR Terms of Reference
WBSEDCL West Bengal State Electricity Distribution Company Limited
WRD Orissa Water Resources Department

Vice President: Isabel M. Guerrero
Country Director: N. Roberto Zagha
Sector Director: John H. Stein
Sector Manager: Gajanand Pathmanathan
Task Team Leader: Tapas Paul
INDIA
Integrated Coastal Zone Management Project

CONTENTS

Page

I.  STRATEGIC CONTEXT AND RATIONALE ................................................................. 1 
A.  Country and sector issues.................................................................................................... 1 
B.  Rationale for Bank involvement ......................................................................................... 3 
C.  Higher level objectives to which the project contributes .................................................... 4 
II.  PROJECT DESCRIPTION ................................................................................................. 4 
A.  Lending instrument ............................................................................................................. 4 
B.  Program objective and Phases ............................................................................................ 5 
C.  Project development objective and key indicators .............................................................. 5 
D.  Project components ............................................................................................................. 5 
E.  Lessons learned and reflected in the project design .......................................................... 10 
F.  Alternatives considered and reasons for rejection ............................................................ 12 
III.  IMPLEMENTATION .................................................................................................... 13 
A.  Institutional and implementation arrangements ................................................................ 13 
B.  Monitoring and evaluation of outcomes/results ................................................................ 14 
C.  Sustainability..................................................................................................................... 15 
D.  Critical risks and possible controversial aspects ............................................................... 16 
E.  Loan/credit conditions and covenants ............................................................................... 18 
IV.  APPRAISAL SUMMARY ............................................................................................. 19 
A.  Economic and financial analyses ...................................................................................... 19 
B.  Technical ........................................................................................................................... 20 
C.  Fiduciary ........................................................................................................................... 21 
D.  Social................................................................................................................................. 24 
E.  Environment ...................................................................................................................... 25 
F.  Safeguard policies ............................................................................................................. 26 
G.  Policy Exceptions and Readiness...................................................................................... 27
Annex 1: Country and Sector or Program Background ......................................................... 28 
Annex 2: Major Related Projects Financed by the Bank and/or other Agencies ................. 40 
Annex 3: Results Framework and Monitoring ........................................................................ 41 
Annex 4: Detailed Project Description ...................................................................................... 53 
Annex 5: Project Costs ............................................................................................................... 69 
Annex 6: Implementation Arrangements ................................................................................. 71 
Annex 7: Financial Management and Disbursement Arrangements ..................................... 85 
Annex 8: Procurement Arrangements ...................................................................................... 95 
Annex 9: Economic and Financial Analysis ........................................................................... 108 
Annex 10: Safeguard Policy Issues .......................................................................................... 126 
Annex 11: Governance and Accountability Action Plan ....................................................... 141 
Annex 12: Poverty and Gender Analyses ............................................................................... 150 
Annex 13: Communication Strategy and Action Plan ........................................................... 165 
Annex 14: Project Preparation and Supervision ................................................................... 171 
Annex 15: Documents in the Project File ............................................................................... 177 
Annex 16: Statement of Loans and Credits ............................................................................ 180 
Annex 17: Country at a Glance ............................................................................................... 184
INDIA
INTEGRATED COASTAL ZONE MANAGEMENT PROJECT
PROJECT APPRAISAL DOCUMENT

SOUTH ASIA
_____

Date: May 14, 2010 Team Leader: Tapas Paul
Country Director: Roberto N. Zhaga Sectors: General water, sanitation and flood
Sector Director/Manager: John Henry Stein / protection sector (30 percent); General agriculture,
Gajanand Pathmanathan fishing and forestry sector (25 percent); Solid waste
management (25 percent); General public
Project ID: P097985 administration sector (10 percent); Ports,
waterways and shipping (10 percent)
Lending Instrument: Specific Investment Loan Themes: Other environment and natural resources
management (33 percent); Environmental policies
and institutions (17 percent); Other urban
development (17 percent); Biodiversity (17
percent); Pollution management and environmental
health (16 percent)
Environmental Screening Category: Full
Assessment
Safeguard Screening Category: Limited Impact

Project Financing Data

Financing Plan (US$m)
Source Local Foreign Total
BORROWER/RECIPIENT 63.71 0.00 63.71
INTERNATIONAL DEVELOPMENT ASSOCIATION 186.37 34.53 220.90
PROJECT PREPARATION FACILITY ADVANCE 1.06 0.00 1.06
Total 251.14 34.53 285.67

Borrower:
Government of India
Responsible Agencies:
Government of India, Ministry of Environment and Forests, New Delhi

Estimated Disbursements (Bank FY/US$m)
FY 2011 2012 2013 2014 2015 2016
Annual 25.75 40.40 47.50 45.50 45.50 17.31
Cumulative 25.75 66.15 113.65 159.15 204.65 221.96
Project Implementation period: Start July 2010
Expected Effectiveness date: September 01, 2010
Expected Closing Date: December 31, 2015

Does the project depart from the CS in content or other significant respects? [ ] Yes [ X ] No
Ref. PAD I.C.
Does the project require any exceptions from Bank policies? [ ] Yes [ X ] No
Ref. PAD IV.G.
Have these been approved by bank management? [ ] Yes [ ] No
Is approval for any policy exception sought from the Board? [ ] Yes [ X ] No
Does the project include any critical risks rated “Substantial” or “High”? [ X ] Yes [ ] No
Ref. PAD III.E.
Does the project meet the Regional criteria for readiness for implementation? [ X ] Yes [ ] No
Ref. PAD IV.G.

Project development objective: Ref. PAD II.C., Technical Annex 3
The project development objective is to assist GoI in building national capacity for implementation of
comprehensive coastal management approach in the country, and piloting the integrated coastal zone
management approach in states of Gujarat, Orissa and West Bengal.
Project description: Ref. PAD II.C., Technical Annex 4.
There are 4 components as follows:
Component One. National ICZM Capacity Building, with the objective to establish and support an
appropriate national institutional structure for guiding and coordinating coastal zone management. Its
sub-components include: (a) hazard line and coastal sediment cell mapping; (b) mapping of ecologically
sensitive areas; (c) establishing a new national institute for sustainable coastal zone management; and
(d) national level capacity building.
Component Two, Three and Four. Development and Implementation of State Level approaches to ICZM
(in the three States of Gujarat, Orissa and West Bengal), with the objective to develop and empower state
level authorities to adopt appropriate ICZM approaches consistent with national strategies. The sub-
components include: (a) institutional strengthening of state level coastal zone authorities; and, (b) pilot
investments consistent with local ICZM priorities around three themes of coastal resource conservation/
protection; pollution management; and community livelihood enhancement and adaptation to threats from
sea-level rise.
Which safeguard policies are triggered, if any? Ref. PAD IV.F., Technical Annex 10
The following safeguard policies are triggered:
Environmental Assessment (OP/BP/GP 4.01)
Natural Habitats (OP/BP 4.04)
Cultural Property (OPN 11.03, being revised as OP 4.11)
Involuntary Resettlement (OP/BP 4.12)
Indigenous Peoples (OP/BP 4.10)
The Borrower has prepared an Environmental and Social Assessment which has been reviewed, approved
and disclosed in country on November 27, 2009 and at the World Bank Info Shop on November 28,
2009.
Significant, non-standard conditions, if any, for: Ref PAD III.F.

Board Presentation: Nil

Negotiations: Submission of The 18 month Procurement Plan, Project Implementation Plan, All
Regulatory clearances (Environmental clearance and Coastal Regulation Zone clearance as applicable,
Expenditure Finance Committee clearance), Formal commitments on share of financing and provision of
all required resources by the states of Gujarat, Orissa and West Bengal and submitted to MoEF; MoU
signed between the Survey of India and MoEF; and between the Priority Investment Execution Agencies
and the respective State Project Management Unit (SPMU); National Project Management Unit (NPMU)
registered; Key Staff of NPMU and SPMUs as agreed in place. All conditions met.

Credit Effectiveness: Nil.
Retroactive financing up to a ceiling of US$10 million effective from July15, 2009.

Covenants applicable to project implementation: In addition to the standard loan covenants, the
following covenants incorporated into the legal documents (unless otherwise covered by standard loan
covenants):
(1) MoEF shall ensure that the MoEF and the participating States of Gujarat, Orissa and West Bengal
shall maintain NPMU and SPMU, respectively with suitably qualified personnel with resources sufficient
to carry out project management including technical and fiduciary supervisions, monitoring and
evaluation, and public communication to achieve the Project Development Objectives in a timely and
effective manner.
(2) MoEF shall ensure that each participating Project States will maintain dedicated, multi-disciplinary
team of suitably qualified personnel in each Pilot Investment Execution Agency (PEA) with resources
sufficient to carry out their respective part of the Project under Components two, three and four.
(3) MOEF, through NPMU, will cause each Project State to: (a) make such annual budgetary allocations
as shall be required to pay for ten percent (10%) of the estimated cost of implementing its Respective Part
of the Project, and transfer such budgeted amount to the respective SPMU at the beginning of each Fiscal
Year; (b) establish and maintain, throughout the period of the Project implementation, a State Level
Steering Committee to provide guidance and approval to the SPMUs, as necessary; and (c) provide, in a
timely manner, all other funds, facilities and services required for its Respective Part of the Project.
(4) NPMU and SPMUs shall maintain specific dedicated units as per agreed staffing plan; and will
engage full-time procurement specialists and finance professionals with qualification acceptable to the
Bank for entire project implementation period.
(5) The NPMU will submit quarterly consolidated IUFRs within 60 days from the close of the quarter.
(6) The NPMU and SPMUs will, within six months from effectiveness, place in position suitable external
and internal auditors pursuant to terms of reference acceptable to the Bank, and the NPMU will submit
annual audit reports for the entire project within six months from the close of each financial year.
(7) Within three months from effectiveness, the NPMU and the SPMUs will establish and operationalize
computerized accounting system and maintain throughout the implementation period.
(8) MoEF shall take all necessary measures, or cause others to take such measures, to ensure
implementation of the Project is in accordance with the provisions of the National Project Report, which
includes, among others, Financial Management Manual, Procurement Manual, Governance and
Accountability Acton Plan (GAAP), Environmental and Social Management Plan (ESMP).
I. STRATEGIC CONTEXT AND RATIONALE
A. Country and sector issues
1. India has a coastline of about 7,500km1, which is less than 0.25 percent of the world coastline,
but home to 63 million people, or approximately 11 percent of global population living in low
elevation coastal areas. The 73 coastal districts (out of a total of 593) have a share of 17 percent of the
national population, and nearly 250 million people live within 50km of the coastline. The coast also
includes 77 cities and towns, including some of the largest and most dense urban agglomerations -
Mumbai, Kolkata, Chennai, Kochi and Visakhapatnam.
2. Sustainable management of coastal and marine resources is essential to India’s economic
growth. India’s coastal zone is endowed with a wide range of mangroves, coral reefs, sea grasses, salt
marshes, sand dunes, estuaries, lagoons, and a unique marine and coastal flora and fauna. The
abundant coastal and offshore marine ecosystems include some 6,740km2 of mangroves, including
part of the Sundarbans and the Bhitarkanika, which are among the largest mangroves in the world.
There are major stocks of corals, fish, marine mammals, reptiles and turtles, sea grass meadows, and
abundant sea weeds. Most of the oil and gas reserves in India lie in the coastal and shallow offshore
areas. Thirty-five per cent of the coastal stretch is laden with substantial placer mineral and heavy
metal deposits. Offshore wind, tidal, wave and future ocean thermal energy potential is huge. Cultural
and archaeological sites, some with national and international significance dot the coasts. A
significant share of India’s economic infrastructure, including maritime facilities, petroleum
industries, and import-based industries is located on the coasts, as are 197 major or minor ports and
308 large-scale industrial units. Coastal fishing employs a million people full time, and the post-
harvest fisheries sector employs another 1.2 million people in 3,638 fishing villages and 2,251 fish
landing centers.
3. Despite their ecological richness and the contribution to national economy, the coastal and
marine areas have not received adequate protection, and are under stress. Rapid urban-
industrialization, maritime transport, marine fishing, tourism, coastal and sea bed mining, offshore oil
and natural gas production, aquaculture, and the recent establishment of special economic zones have
led to a significant increase in demand for infrastructure, resulting in the over-exploitation of natural
resources. About 34 percent of mangroves of India were destroyed in last five decades (although
substantial restoration and conservation have taken place in last 10 years); almost all coral areas are
threatened; marine fish stocks are declining; and several species of ornamental fish, sea cucumbers,
etc., are fast disappearing. Such rapid depletion and degradation, unless arrested, will impact the
livelihood, health and well being of the coastal population; affecting in turn prospects for India’s
sustained economic growth.
4. Threat of coastal hazards on economic and livelihood security is increasing. The Indian
coast is subject to severe weather events, such as cyclones and super-cyclones (at an average of nine
cyclones per year) inflicting great loss of lives and property, especially among the rural coastal
communities that always had low resilience to extreme weather variability, mostly due to
impoverishment. In recent years, accelerated erosion of coastal land has affected coastal agriculture
and built habitats. The returns from traditional fishing are also diminishing due to environmental
degradation and over-exploitation. Climate change aggravates the risks to coastal communities and
infrastructure. Studies already reveal a significant rise in sea level, increase in the frequency and
intensity of extreme weather events, and changes in mean climate variables. A one-meter sea level

1 Of this 5,400km belong to peninsular India and the remaining to the Andaman, Nicobar and Lakshadweep Islands.
1
rise would flood nearly 6,000 km2 in India, potentially triggering significant population movements
among the 63 million people living in low elevation areas, the poorer among them being the most
vulnerable. Climate change will also impact the large infrastructure investments in the port, industrial
and urban areas. The recent tsunami (2004) also indicates that the Indian coast and marine areas are
also prone to seismic related disasters.
5. Diverse stakes increasingly compete for coastal and marine resources. Rapid economic
growth in recent years has propelled newer and larger investments in coastal zones, with more ports
set up to act as gateways to the hinterland economy. Together with real estate growth in larger urban
areas and unplanned tourism activities, these have contributed to a sharp increase in the demand for
basic infrastructure to support the fast-growing rural, semi-urban and urban populations in the coastal
zones. Numerous unplanned but competitive economic activities have resulted in conflicts among
stakeholders; misuse, abuse and overuse of resources; and degradation of ecosystems with some
pockets of coastal landscapes entirely destroyed by commercial aquaculture. The key challenge in
coastal zone and marine management is how to accommodate such needs in a sustainable manner.
6. A plethora of fragmented and sectoral policies and a weak institutional framework had been
unable to ensure balanced development. The management regime for coastal and marine areas of the
country had suffered from the lack of an integrated and coordinated decision-making process. This is
evidenced by a multiplicity of institutional, legal, economic and planning frameworks that exist, all
narrow and sector driven. Consequently, sectoral activities and interventions in coastal and marine
areas work in isolation from each other, at times with conflicting objectives and outputs. At the same
time stakeholder interests are diverse and competitive, partly due to a lack of participatory planning
and management processes. Investments in large and small economic infrastructure - all critical
components of national goals for growth and poverty reduction take place without systematic analysis
of long term implications. The overall policy and plan responses are further crippled by lack of
knowledge of coastal resources, processes, impact analyses and management options.
7. Up to now, the approach to managing India’s coastal zone has been a purely regulatory one,
as per the Coastal Regulation Zone (CRZ) Notification of 1991, promulgated under the Environment
(Protection) Act of 1986. This approach does not provide adequate room to promote coastal zone
conservation and the needs of improved livelihood of coastal communities or to seek convergence
with other development activities. The 1991 notification prevents, restricts and regulates development
activities within a landward distance of up to 500m from the high tide line along the coasts. In the last
decade, as development pressures grew, there were large-scale reported violations of the regulations,
along with demands from the various stakeholders for suitable modifications in the Notification.
8. The reform agenda for sustaining coastal and marine areas in India is to support
participatory, integrated but decentralized planning and management. In July 2004, the Ministry
of Environment and Forests (MoEF) constituted an Expert Committee, chaired by Prof. M. S.
Swaminathan, to carry out a comprehensive review of the CRZ Notification, taking into account the
findings and recommendations of previous committees, judicial pronouncements, and representations
of various stakeholders, and to suggest suitable amendments. The Committee also had the mandate to
recommend regulatory framework consistent with well-established scientific principles of coastal
zone management that would reflect the local characteristics of the coastal zone stretches to be
protected. The Committee submitted its report in February 2005. A major recommendation was to
adopt an integrated coastal zone management (ICZM) approach that would, with people’s
participation, promote the livelihood security of the coastal communities, and protect the
ecosystems while promoting sustainable development. The GoI accepted the Report in 2006, and
mandated the MoEF to implement its recommendations, including initiating the process of improving
2