Interest group engagement

The project core team approached two municipal governments, the regional hotel associations, almost 40 hotel owners and managers, technical institute faculty and architects, and engineers’ associations to assess their interests in participating in the project. Partners organized panels and meetings to present the project, its importance and forms of participation. This phase was critical to fully involve interest groups - not only to provide information, but more importantly, to increase their willingness to use the results. Stakeholders participated in the kick off process, provided information, reviewed results, revised each identified practice, and are currently involved in catalog dissemination.

Several hurricanes hit the region in the last 13 years, making people aware of their vulnerability and the urgency to address climate change impacts and events. Members of the core team have a long and recognized experience in the state.

Early involvement of stakeholders and interests groups is important to obtain buy-in in the process and acceptance of the results.

Strategic project alliance

Development of the best practices catalog was facilitated by a core team of experienced partners, each one with a distinct role and niche. A team charter details each partner’s role and responsibilities. The core partners were: The state environmental agency, which aims to reduce risks to coastal communities and the tourism industry. The agency was key to align partners’ interests but did not participate in the core team. A regional tourism initiative, which has worked for 10 years in the area to reduce tourism impacts on the environment. The initiative has developed catalogs of best practices, provided training and technical assistance, and serves on technical committees to review municipal land use zoning. The local architecture school trains both students and professionals, and works with municipalities to improve urban conditions, land use zoning and building codes. The school involved faculty and students from ocean management, biology, and engineering sectors, and provided faculty time and facilities. A global NGO partner developed tools to assess coastal climate change risks and to promote the use of natural defenses. The organization helped form alliances and partnerships, and provided funding to conduct the process.

  • The existence of partnerships with the right capacities that complemented each other needs and abilities.
  • Availability of resources and funding.
  • Alignment of interests and willingness to collaborate.

People and entrepreneurs are willing to collaborate given the right conditions: transparency, an organized process and clear goals. A core team (3 partners) that leads and convenes a wide range of allies (professional associations, hotels, governments) is an efficient approach. The core team maintains the focus, eases communication and allows other stakeholders to participate.

Pluralistic governance board

A pluralistic governance board is typically composed of representatives from local authorities, government departments and agencies, local communities and sometimes business organisations and is established during a negotiation process. The board is responsible for making joint decisions about issues raised regarding natural resource conservation. Its role is steering the implementation of the co-management agreement and review of the co-management results and impacts based on monitoring. The pluralistic governance board is an essential element to turn the idea of "sharing power" from theory into practice. This distinguishes it from centralized or private management where only one partner assumes the responsibility for making decisions.

  • The authorities should be committed to co-management partnerships.
  • Communities should have the capacity for making joint decisions. It could be done through practices of participatory action researches with different community groups.
  • The political system of the country should allow shared governance or allow grassroot discussions of issues related to natural resource management.

In order for the pluralistic governance board to effectively make joint decisions, it is important for all stakeholders involved to understand the need for a co-management partnership. For example, authorities should treat communities as equal and strategic partners and vice versa. Co-management will normally yield best results if the involvement of all in the partnership is voluntarily. However, in some situations where power also means money, political supports from higher levels or national policies promoting the practice of sharing power among different stakeholders can be helpful. Members of the board also need to understand and get used to the learning by doing practice. As a whole, they should aim for achieving better results but also learn to accept failures and how to constructively criticize mistakes.

Co-management agreement

The co-management agreement is a document consisting of everything agreed to during the negotiation process including management and governance elements. It can be seen as written evidence of the partnership among local actors. The management part specifies the six ‘W’: who can do what, where, when, how and how much. It provides general conditions; specifies natural resource management rules and regulations in each zone, rewards, penalties, the reporting schedule and implementation terms and monitoring. The governance part specifies key actors for decision making and their responsibilities.

Stakeholders need to understand the purposes of the co-management agreement. They should also see the need to adapt it to better reflect the changing situation of resource conservation. The co-management agreement should be developed through negotiation among organised partners. Therefore, community development to turn passive groups of individuals into a true community should be given attention throughout the establishment of co-management agreement and its subsequent adaptation.

The co-management agreement is subject to modification during the learning-by-doing process. Key actors involved in shared governance should understand the need to modify the agreement based on lessons learned during implementation. The co-management agreement provides the basic principles for the co-management partnership among key actors but does not limit their collaboration in making joint decisions to specific terms and problems mentioned in the agreement. Partners, such as authorities and communities, should continue to discuss and deal with any issue raised during their partnership. The co-management agreement is not the same as a fixed form of a benefit sharing mechanism even though it consists of sections specifying what resources can be collected by people and their responsibilities in forest protection. Instead, a co-management agreement is the result of negotiations and has a lot to do with adaptive management and governance issues.

A negotiation process

The negotiation process consists of three key aspects:

  • Organizing for partnership: this starts with consultation with all stakeholders about the co-management concept. When they understand and see the need to create the co-management partnership among actors, they should be organised to be ready for the negotiation of the agreement. The organisation aspect is essential to turn passive individuals in the community into an organised group with a common vision and to ensure high level of participation.
  • Negotiating the co-management agreement and shared governance institution: This is the practice of power sharing among actors. Through negotiation, different actors express their concerns and contribute their ideas on how natural resources should be managed and conserved. Governance issues such as who can make decisions and what responsibilities and accountabilities are for each actors are also negotiated.
  • Learning by doing: the negotiation process is not a linear process but spiral loops of implementing the agreement, sustaining the functioning of the shared governance institution, continuing the monitoring and reviewing of their results and impacts through time and providing inputs for renewal of the agreement.
  • Full political support from all levels, and agreement and support from all stakeholders for shared governance and adaptive management.
  • The traditional customs and local culture should allow different groups in the communities to organize themselves, and discuss and voice their ideas. In some cultures, women are allowed to discuss public topics.
  • In countries where centralized management has been practiced for years, communities often consist of passive individuals living next to each other. Putting them into the position for joint decision-making with authorities without realizing this fact is a mistake to be avoid. These communities need support to get organised, to learn and strengthen their sense of identity and relation with the area. Delegating the tasks of leading the passive community to local leaders (after trainings for these leaders) is a common practice but will create problems later.
  • External support should only focus on facilitating the negotiation process. The common issues identified and discussed in the negotiation process should be the results of actors' self-analysis.
  • The negotiation among key actors should continue even after the agreement has been signed. Sharing power should not stop with the first co-management agreement. Actors need to continue to re-negotiate and enhance the agreement.
Innovative ideas to scale across a region

The MAR Leadership programme seeks to incubate new project ideas into projects with the potential for replication (scaling-up) along the Mesoamerican Reef Ecoregion. These projects are developed to show clear and measurable conservation impacts within a 3 - 5 year time horizon. Each cohort has a thematic focus linked to the conservation needs of the region. For example, in 2010 the fellows´ projects focused on coastal development and tourism; in 2011 on sustainable fisheries and establishment of Marine Protected Areas (MPAs); in 2012 on the establishment of a network of multifunctional marine reserves; in 2014 on integrated solid waste management and 2015 on conservation and economical valuation of mangrove ecosystem services.

  • Fellows commitment to implement their projects
  • Fellows’ organization support
  • Tapping the expertise of fellows and encouraging them to self-organize around learning and action projects (seeded with resources) help them develop their leadership skills.
  • Fellows’ projects are more likely to succeed if they are part of the work plan of their organization.
  • Seed funding is needed to launch projects.
Development of national policy frameworks

The existence of robust policy frameworks facilitates the design and implementation of local and national blue carbon initiatives. These policies promote official government support and the foundation for institutional roles, and offer links with other national and international policies, mechanisms and strategies (such as NDCs, REDD+ and NAMAs). The policy building process starts with informal consultations with national authorities to map actors, gauge their interest and obtain their support. As these are national-scale constructs, strategic advice and facilitation of the process is important.

Of utmost importance is to garner the interest and support of national authorities in decision-making positions, as policy development is a government role and must not be imposed onto a country. The existence of other environmental, coastal-marine or climate change policies enables the alignment or incorporation of blue carbon policy notions within pre-existing policies. The availability and communication of sound science for the public is also important during policy development.

Our experience has been that an initial ‘socialization’ (supply, introduction and communication) of basic blue carbon information and principles is needed through formal and informal meetings with country officials at multiple levels of decision-making. Then, a clear understanding of current country needs and priorities, and how they can be met through blue carbon actions, should be considered to ensure the process is compatible with on-going national processes and international climate change and conservation commitments. The role of the people facilitating the policy process is key to deliver sound information, to understand country needs, to ensure that the interests of different actors are met, to negotiate complex matters and to mediate conflicts that may arise. The pace at which governments respond to specific processes is not necessarily compatible with the short-term goals of local project development and implementation or international cooperation.

Ecosystem services valuation

Quantifying the value of ecosystem services provided by mangroves to the local communities is a required component of blue carbon projects. This informs the design of Payment for Ecosystem Services (PES) schemes. As a full valuation is challenging and costly, priority services are chosen through a participatory consultation process with local communities. Raw data are collected locally and mined through bibliographic searches and interviews. Results emphasize the importance of coastal-marine ecosystems with decision makers, as mangrove losses can be explained as capital losses.

The availability of local and national data is a determining factor for an adequate valuation of ecosystem services. Even when those data are not available relationships with local officials may provide useful expert criteria and inputs. Also, the participation of the communities in the diagnostics to identify and later quantify priority services is important to guarantee their buy-in into the process. A clear understanding of local livelihoods is also necessary.

Local perceptions of what constitutes a “priority” ecosystem service for valuation may differ from that of project developers and researchers. In addition, data constraints may limit the extent of the valuation study. It may thus be necessary to negotiate with locals during the preliminary diagnostics phase what services meet their needs and those of the project, and which can be valued. The wide range of services provided by mangroves and surrounding coastal-marine ecosystems make a full valuation exercise very challenging. Thus, most valuation studies are partial and depend on a set of assumptions and a variety of different methods. Good working relationships with government representatives in charge of data processing and archiving, as well as a solid understanding of the details of the local livelihoods and business models is highly advantageous, which is why a livelihoods study should be conducted in parallel.

Geospatial and emissions modeling
The assessment of historical land use dynamics of coastal areas relies on geospatial analysis of a sequence of satellite images. It classifies land use categories and how their area changes over time. Using these dynamics, the quantification of carbon emissions associated with the conversion of mangrove forests to other land uses can be estimated through modeling. This provides both an assessment of carbon stocks lost as well as an identification of areas suitable for restoration. This can also be tied to estimates of natural capital lost over time.
The main requirement is the availability of a consistent series of satellite images that is free of cloud cover and offers enough spatial resolution to differentiate mangrove stands (and types), surrounding agriculture and other human uses of the landscape. Local or national capacities for remote sensing processing and advanced GIS analyses of coastal features is also important. Emissions modeling is a challenge, which needs to be resolved through enhanced capacities.
Although GIS facilities and trained personnel are readily available, capacities to properly classify different types of mangroves within a stand are still lacking in the GIS/remote sensing field, especially when higher resolution images are used. We have been exploring the application of innovative image processing and classification techniques with good results. However, the process cannot be fully automated and the analyses require time and expert judgement to complete. Access to a consistently cloud-free series of images across different dates is a challenge. This is coupled with the malfunctioning of a well-known satellite, which further limits the availability of images suitable for analyses. Scaling-up analyses from local to subnational to regional scales presents additional challenges of spatial resolution, data volume for analyses and time required.
Social and ecological vulnerability assessments
To construct a robust blue carbon project, a clear understanding of local livelihoods and how they are tied in with the surrounding mangrove ecosystems is obtained through a livelihoods assessment. This includes an analysis of the social vulnerability to the effects of climate change. The social and ecological elements of the assessment provide information that helps conceptualize targeted blue carbon projects with interventions that benefit local communities by increasing their resilience, diversifying their production base, and enhancing their governance and human capital.
Previous contacts with local authorities, NGOs and local leaders is required. The project needs to be explained in a non-technical manner so that locals with varying degrees of education and interest can at least be aware of the project components and the potential benefits for the community. Well trained professionals and experts in community diagnostics, group facilitation, and conflict resolution are required to navigate social nuances that a casual observer may miss.
The priorities and perceptions of local communities and organizations may differ frequently and significantly. Local interest in a project may be minimal or non-existent, and expectations of project designers can differ from those of the communities. Outside observers may not fully understand local dynamics, conflicts, challenges and needs so it is important to have people trained in social science tools involved at all stages. Having a local leader buy into the idea of a blue carbon project helps build confidence among the community, increases their participation, and opens the door for more transparent dialogues with the community. Being open to local needs and wishes, and taking time to know the people and become immersed in their day-to-day lives can yield useful information for project development. Climate change effects may be minor priorities in comparison with far more urgent health, education and infrastructure needs of the community.