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EXPERIENCE, IJ~CORPORA TED MINNE,T>.,POLIS Con·t ract NUf1ber ~r:;J S25-0191-C-OO-1019-00 Project Nu. 525-0191 Project Title: Technjcal Assistan~e to REPARE PANA~m WATERSHED MANAGEMENT PROJECT FINAL REPORT August 17, 1981 - August 16, 1983 USAID 525-T-049 Experience, Incorporated 1393 Edward J. Finegan ~atershed Management Advisor EXPERIENCE, IJ~CORPORA TED MINNE,t>.,POLIS. MINNESOTA 55402 TABLE OF CONTENTS Page 1. Introduction 1 2. Integrated Watershed Management 2 2.1 A base for future activities 3 2.2 Centralized ad~inistration 4 3. Project Design and Implementation 7 4. Problems and Recommendations from the local level 10 4.1A Policy/Planning problems 11 4.1B Policy/planning recommE:ndations 13 4 •. 2A Project implementation problems 16 '-t.2B Project implementation recommendations 18 4.3A Community relations problems 19 4.3B Community relations recommendations 21 5 . A Base for Land Use Management 23 5.1 Ecological guidelines fo~ planning 23. 5.2 Results for the Panama Canal watershed 26 5.3 Conflicts existing between land capacity - land use 29 5.4 RecommendFttions related to land capacity/land use conflicts 32 6. Conclusion 37 1. IntroQuction For two years I have participated as a member of the technical assistance team contracted through Experience, Incorporated to work with the RENARE - USAID Watershed Man­ agement Project. During this period, I have had the oppor­ tunity to work within RENARE and to directly experience the aspirations and frustrations that have existed in attempting to implement an ambitious and complex group of programs under constraining circumstances. Over this period of time, RENARE has grown considerably aD a professional natural resources agency. The experiences gained by RENARE during the project have greatly increased its abilities to deal with many of the natural resources management problems facing Panama today, and will greatly help in successfully implementing future projects. This u:b'inal Report U analyzes some aspects of the watershed project which have caused difficulties during these first years and provides recommendations based on experiences of RENARE personnel and on my own impressions from my 2 years at the agency. In presenting this information, it is hoped that both the successes and problems from the watershed project can pro­ vide guidance for future courses of action. In the final sections of this paper, the land's capacity to support various uses is discussed, and the problems of conflict between capacity and actual land use within the Panama Canal Watershed are presented. This information can serve as a guide in future project design and can help in ~o~centrating efforts in those areas most critical for preventing environmental de­ gradation. \ 2ft Integrated Watershed Management The need for an integrated approach to natural resources management in many tropical areas has required new emphasis in international assistance efforts. The rapid destruction of the world's tropical fo=est resource is well documented and has beco~e the focus of numerous international projects. Becauee of the complicated socio-economic and cultural facto~s involved in the land use changes occurring in many tropical forest areas, multidisciplinary strategies must be built into project designs to produce viable solutions which protect valuable natural resources while helping to solve the problems of econo­ mic development. The RENARE - AID Watershed project (525-T-049) was envi­ sioned to eventually have a multidisciplinary approach to solving the resource management problems in the Panama Canal watershed (plus the La Villa and Caldera watersheds). This has been partially limited during the first phase of the project (1979-1983) because of the time required to expand RENARE's capabilities in management, administration and local level project implementation. Like most developing natural resources institutions, RENARE has a forestry backgr0und and remains most active in this field. Almost all field activities have been oriented to re­ forestation ard forest protection, with slowEr advancement in other aspects o~iginally envisicn~d as integral parts of the overall project. The community develop~ent programs, soil con­ servation, pasture improvement activiti~s - all important to all integrated approach in watershed management - have yet to emerge as significant segments of the project. Agro-industrial and marketing studies related to the forestry and agroforestry components of the project have not kept pace with the agency's 2 planting schedule, resulting in discouragement of local partic­ ipants and few outlets for products produced. Advancements have been made in defining and implementing a system of nation­ al parks and forest reserves, but forest cover continues to disappear at an alarming rate. 2.1 A Base for Future Activities Despite the limita~ions present in the first phase of the project, major advances have been made by RENARE in prepar­ ing the base needed for future activities~ The ngency's infra= structure and overall professional capability has progressed considerably, and the experience gained through its field acti­ vities during this period has provided insights needed for the agency's development and for the planning and implementation of fu~ure programs. The first phase of the project has at least set the foundation for meeting the overall objectives of the watershed project, which iGclude the following: -Protection of the water supply for the Panama Canal and other industrial and urban usas through land-use management; -Incorporation of the local population into project activities to provide for local and regional needs while meet­ ing land use management Objectives; -Protection of native flora and t~una at levels needed to maintain the diversity of the tropical environment, to pro­ vide needed protection, and to provide for economic de~!lopmAnt. 3 The actual implementation of activities to meet these land management objectives has faced many difficulties at both local and national levels. Shifting cultivution and the expan­ sion of cattle activities have been the major forces behind la­ nd use change within the Canal Watershed and other areas of the country. Programs have been organized within the watershed to address the unguided e~pansion of these land uses and to pro­ tect selected forest areas. Many of these efforts are begin­ ning to have significcnt effects in the watershed, but these works would best be described as "pilot" activitles that can serve as a base for planning the long-term programs needed for the watershed. 2.2 Centralized Administration The rapid growth of the agency over this period w'as accompanied by administrative problems that can be expected in RENARE's transition to a large institution. One result is that the use of loan funds by RENARE has not been well distributed across the different project categories, and total fund dis­ bursements are approximately one year behind the original sche­ dule (See Table 1). More serious results include uneven dis­ tribution of resources to the different levels of the agency, planiling and purchase schedules which are not coordinated with field work needs and purchases which do not meet the needs of the agency. The administrative problems that have effected inte­ grated management during the first phase of the p~oject can be generally grouped as follows: - Internal communication - both horizontally between departments and programs, and vertically from the local levels to the national headquarters. One of the primary systems for 4 Table 1. .AID LOAN FUNDS FOR THE I!. 5 YEAR PERIOD ASSIGNED TO THE AID/BENARE WATERSHED PROJECT AND ACTUAL AMOUNTS UTILIZED AT THE END OF 4.0 YEARS (XiS $000) 'I'otal USAID Funds actually Percentage of Funds Programmed uti} ized at funds used for 4.5 year periad end of 4.0 years by cs.tegory I. l~~titutional Development 1,665 67.5 1. Personnel 500 500 100.0 2. Technical Assistance 1,120 635 56.7 3. Training 230 171 76.9 4. Construction 185 60 32.4 5. Equipment and materials 380 336 88.4 6. Evaluation 50 0.0 II. Education and Inyestigatio~ 535 61 Information Center and 535 61 11. i. Wood Techn01ogy. Center III. Watershed Management 1. Canal Watershed 5 2 750 11 ,919 85.5 47.6 a. Parks and r~SGrves 800 381 117.3 b. Reforestation 3,575 4,194 Soil conservation 29.7 c . 1,100 327 6.2 d. Improved Pastures 275 17 2. La Villa and Ca11era ' , Watersheds 1,250 111 .1. • .1. 'rO'I1AL $ 1°2°00 $ 6,659 66.6 Total Funds used 88.9 Project time passed communication had been through the yearly workshop for organiz­ ing the annual operative plano The potentials for communi­ cation and effective planning between national and local levels through this method were not fully reached. - External Communication - the Community Relations De­ partment has been a low priority in the distribution of re­ sources during this phase of the project. As a ~esult, com­ munity opinion related to local level projects has not been sufficiently incorporated into the programs of the agency, and agency programs are not adequately presented to potential par­ ticipants and benefactors. The social promotion program has net yet received the type of attention needed for the scope of project envisioned for the Canal Watershed in which widespread participation of private farmers will be necessary. - Centralized authority - the increased size of the agency is requiring greater dispersing of decision making to the departments and administrative areaSA This has been a slow process partially due to frequent changes in the administra­ tion. Funds directly available to the different sub-divisions of the agency ",ould help remove many of the small decision pro­ blems that currently flood the national level. - Clerical capacity - this has improved during the first phase of the project. However, the demands placed on this part of the agency have grO'.<1n at a faster pace than the agency's abilities to deal with them.
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