Interim evaluation

Introduction - the project

The Nampula Artisanal Fisheries Project (NAFP) was formulated during 1991-92, whilst Mozambique was still in the throes of civil war, appraised in February 1993 and project Loan Agreement signed in January 1994. Total project costs were USD 11.3 million, funded by the International Fund for Agricultural Development (IFAD) (USD 6.0 million), the Government of Mozambique (GOM) (USD 3.3 million) and the Organisation of the Petroleum Exporting Countries Fund for International Development (OPEC Fund) (USD 2.0 million). Project effectiveness date was 4 November 1994, and expected closing date 30 June 2001. The co-operating institution (CI) is the United Nations Office for Project Services (UNOPS).

The overall project objectives were to: (i) improve the level of income; (ii) contribute to employment generation; and (iii) improve food security of about 9 300 artisanal fishermen families in the districts of Angoche and Moma. Since the Mid-Term Review (MTR) of the project in 1998, Mongincual has been included in the project area, as well as Pebane in Zambezia as a further outreach area.

The project objectives were to be achieved through: (i) assisting artisanal fisheries development by: providing production inputs for fisheries activities; experimentation and providing extension services in the field of fishing technology; promoting improved methods for processing and commercialisation of fish; and monitoring and evaluation of accessible fish resources to artisanal fishery activities (research); (ii) establishing and rehabilitating rural infrastructure by: rehabilitation of tertiary roads; provision of wells; and building of health clinics; (iii) provision of financial services by: providing micro-credit and assisting in savings activities; assisting in short-term loans for the development of micro-enterprises; and (iv) Institutional Development. Following the MTR, a Community Development Fund (CDF) (identifying and implementing micro-projects) was introduced as a new component of the Project.

The Interim Evaluation (IE) Process

As a primary objective, the IE mission o assess project impact and sustainability, and to develop a series of recommendations and lessons was t learned. After a one-day briefing in IFAD Headquarters on 2 May 2000, the Mission travelled to Mozambique on 3-4 May 2000. Before travelling to Nampula Province on 6 May, the Mission was briefed by: (i) the Director and senior staff of the Institute for the Development of Small-Scale Fisheries (IDPPE); (ii) the Director and Senior staff of the Fisheries Research Institute (IIP); (iii) Campaign for American Relief Everywhere (CARE) staff; and (iv) Executive Director of the Development Fund for Small-Scale Industries (FFPI).

Accompanied by two senior officials of IDPPE, the Mission visited project areas from 6 to 16 May 2000, holding discussions and visiting project sites in: (i) Moma District (Mucoroge, M'puitine, Pilvili and Larde); (ii) Angoche (KwiriKwidje, Sangage, Quelelene, Murrua) Mongicual (Liúpo, Namige, and Quinga). Discussions were held with Provincial Director of Agriculture, Nampula Province, District Administrators, District Directors of Health and Education, members of Fishermen Associations, Members of Co-management Committees, Credit Associations, Water Committees, Health Committees, and Education; some wholesale traders. In addition to holding discussions, the Mission visited water supply (boreholes), health centres, schools and rehabilitated roads – all of which have been supported by the project. The field mission undertook some diagnostic analysis in order to identify the economic, socio-cultural and technical determinants responsible for project efficiency, effectiveness and impact, and overall performance. Before returning to Maputo on 17 May 2000, the Mission participated in a stakeholder workshop held on 16 May 2000, at Angoche District Headquarters, designed to learn about stakeholders' perceptions and understanding of project objectives, their relevance and usefulness. Around 70 people took part in the workshop. A wrap up meeting was held with a range of project partners in Maputo on 24 May, where the mission discussed its initial findings and conclusions.

Project performance

Artisanal fishery development

Provision of fisheries equipment and materials. Supply of fishing gear and spare parts for boat rehabilitation has been historically very low in Nampula Province until the mid-90s. This scarce input supply was compounded by high prices during the times it was available. Assisted by pressure from the project, import duties that were earlier pegged at more than 18% were reduced in November 1996 to between 6% and 14% of Cost Insurance and Freight (CIF) prices. The Project's first attempt to import fishing equipment through a private trader in 1996 collapsed but it gradually established linkages including exchange of information with commercial firms that comprise excellent prospects for sustainability. Presently, a commercial trader has established in the project area, and a further two distributors are expected to open shops in Moma and Angoche. The resulting competition had a positive impact on both prices and availability of fishing inputs within the project area.

Adaptive research and extension services. Data is collected regularly on fisheries technology (equipment), fisheries resources (catch/environment), and postharvest technology and marketing and is inserted into the IIP database. Analysis of the fish survey data revealed that a total of 250 aquatic species have been encountered in the catches. Three of these species, namely prawns and two species of the commonly caught anchovies have been selected and individual stock assessment studies have been commenced to monitor migratory patterns and provide knowledge that would in future benefit artisanal fishery activities. The knowledge of the characteristics of the resource is needed to guide development actions and resource management measures that would safeguard the long-term sustainability of the country fishery resources.

Improved fishing Techniques. Several trials on different types of fishing gear and practices have been conducted at various fishing centres in the three districts in partnership with fishermen and under the control and collaboration of IDPPE and IIP staff. Gill nets are the only technology that has reached the final step of the trial; the results from 2'' to 4'' mesh size were not satisfactory. Long-line fishing has shown promising results and the trammel net experimentation, used for selective prawn catch, is showing extraordinary results. Early this year, 2 IDDPE staff and 3 fishermen visited Zanzibar to study use of light tracked purse seines, which will be soon tested by the Project.

Extension. The NAFP's project extension system consists of 12 extensionists, who either work with fishing centres based in the field or are subject matter specialists based centrally at the project office with frequent field visits. Field extensionists are responsible for the collection of fish catch and other data and the provision of advisory services to the coastal communities. The extensionists constitute the communication link between the communities and the project. The Project recognises the need for further development and improvement of extension services in the area of marketing and technical extension messages to provide specialised advise to the fishermen including information on markets and prices, methods of conservation etc. so as to access high paying markets for quality fish.

Improved methods for fish processing and commercialisation. The project tested and demonstrated at various fishing sites a number of approaches in fish processing and preservation such as rack drying, salting and drying in the rainy season and smoking. Drying racks and salting tanks for small pelagic have not been taken up because the effort and cost for putting them up in most cases exceeds their utilisation level by the mobile beach seine fishermen. The major success has been the upgraded smoking kiln, as modified by the project based on the ‘chorkor' method, which is a low cost smoker, with higher production capacity, better efficiency in wood consumption and easier working conditions. This innovation has been moderately taken up and fish processors installed 43 smoking kilns, in addition to the 6 pilot plants that have been installed and rented out by the project. Eight more smoking kilns were installed, 5 pilot by the project and 3 by private processors, in conjunction with salting tanks.

A fish price information system has been implemented in the market of Nampula City and main inland markets whereby prices are collected weekly, however this has not been carried out consistently and little information has been analysed and disseminated to fishermen. The project has renewed the contacts with the Agricultural Marketing Information System (SIMA), to restart the co-operation on price monitoring of fish.

Fisheries management

Regulation. In June 1999, the project achieved legal dispensation of Law 3/90 on fisheries, renewable on a yearly basis, to use only 0.5" (12mm) mesh for beach seines as opposed to using the 38mm mesh beach seine in the project area. The 12mm mesh size limitation seems acceptable to the fishermen, and appears to be a suitable replacement for mosquito nets since it reduces the capture of larvae and juveniles and still allows to catch small pelagic with a ready market. The project also sought and achieved legal dispensation to extend the trawler exclusion zone from 1 to 3 nautical miles clear of the coast in order to reduce competition between semi-industrial, industrial trawlers and artisanal fishermen. Enforcement of these regulations has commenced and started giving positive results on the reduction in the use of mosquito nets and encroachment and an increase in the fishing area available to artisanal fishermen.

Co-management of Marine Natural Resources. The project promoted the formation of local Resource Management Committees and Co-management Committees with the aim to develop fisheries management mechanisms to be implemented in close collaboration between the fishermen and the Maritime Administration. Fourteen local Resource Management Committees of net owners have so far been elected in grand community meetings in the three districts of Moma, Angoche and Mogincual.

Rural infrastructure rehabilitation

Feeder roads. Rehabilitation works of approximately 138 km of feeder roads is nearing completion. Construction contracts stipulate a guarantee-period of one year to allow for the contractor to rectify probable technical faults following the rainy season. After assessment of the quality of works, the completed road is handed over to the Provincial Directorate for Public Works and Housing (DPOPH).

Water supply. The water supply contractor has completed the construction and rehabilitation of 122 water points in 42 communities, equivalent to 81.3 percent targeted by the project. Siting of the new boreholes was decided in close consultation with the communities concerned. Although some 18 water points have problems such as red and saline water, only 2 out of 122 are not functioning. Each water point is being managed and maintained by a committee elected by the community concerned, usually consisting of five members. Each family benefiting from the water supply contributes Mt 1,000 per month to the maintenance fund. Beneficiaries actively participate in the management committee deliberations and contribute to the pump maintenance expenses readily and willingly.

Health posts and schools. Improvement of health facilities included the rehabilitation of 20 health posts and centres. These project activities are presently being undertaken through the CDF component, which promotes community infrastructure and services through micro projects based on a 25% contribution from the communities, mainly in the form of labour and local materials. Participatory Rural Appraisals (PRAs) were used to identify eight micro projects (5 schools and 3 health posts). Two Health Centres have been completed in Mucoroge and Inguri under the Rural Infrastructure Rehabilitation component. However, they were constructed without toilets and water installations and are not yet in function. No other micro project has been completed.

Each micro project is planned and implemented in a participatory way with a locally elected committee, whose main objective is to organise, collect and manage the local contribution and ensure that the community actively participates in the implementation of the micro-project. At present, 4 committees with around 50 members are functioning.

Financial services

Rural micro-credit. An initial 2-year contract, which was renewed in April 1999 for another 2 years, was signed between IDPPE and CARE, an international NGO, to implement the scheme. Credit operations started in Angoche in January 1997 and over time used the following methodologies:

Credit associations comprising up to 30 members per group, who would form sub-groups of five people. They would receive loans of up to USD 80 per member, this mainly targeted small based vendors. Five associations received credit, however, as they could not take the responsibility of the loans and the credit recovery was poor, the operation was discontinued in July 1997;

Solidarity or confidence groups of 3- 5 people with loans of up to USD 400 per member, this mainly targeted fishermen/traders and itinerant traders. This programme actually started in 1998 with CARE component being part of the bi-funded CRER (Rural Enterprise Credit) programme with the Dutch Government. The first loans were in the range of US $ 20-120 for small operators and US $200-300 for larger operators. A total of 126 groups were formed but only 59 are operational with 184 members of whom less than 5% are women. In May 1999, there were 125 loans outstanding in Angoche and Moma to the total value of USD 16 000. Most clients were urban traders with no loans issued for the procurement of fishing gear. CARE concluded that the very limited progress made was the result of the low economic activity in the project area, social instability and no tradition in participation in credit schemes;

Savings clubs were introduced to the programme in 1998 based on the Zimbabwean "stamp" model operating through the post offices and banks. Clubs consisted in most cases of 5-15 urban women. The main motivation for participation has been the need to have a safe place for money and an opportunity to build reserves against future hardships. The system allows deposits of any size, which are recorded in saving books using stamps denominated by amounts of Mt 5,000 or 10,000. Withdrawals are permitted once a page (10 stamps) has been filled. To date 55 groups have been established involving 484 members of whom 75% are women;

Rotating savings and Credit groups (PCRs) that has proved successful in isolated communities in Niger. This method does not require the services of the bank system, as savings are either immediately lent within the groups or after 26 weeks of collection, the money is shared and a new round of collection is then started. The PCR's operate on low minimum requirement as low as Mt 1,000. Money is borrowed for a variety of social and economic reasons including establishment of income generating activities. A total of 12 PCRs was formed, in Larde and Quelelene districts;

CRER was also expected to deliver credit to small groups (3-5) of gill net owners for individual values of Mt 4-6 million. According to CRER field workers the principle reason for not dispensing any loans was the inability to get the members of each group at the same time for the required training.

Formal credit line. Formal credit to small or micro enterprises that play a role in the fisheries economy was channelled through the FFPI, a state-controlled business development organisation, on the basis of a subsidiary loan agreement signed with the Ministry of Finance. FFPI staff operates a mobile service in NAFP districts with a vehicle provided by the project. There is a consistent high demand for credit operated through FFPI. Some 189 applications have been made but only 30 loans so far have been disbursed of a total value of about USD 125 000. Only two clients are considered problematic and a portfolio at risk of 23% has been achieved.

Institutional framework, project management and co-ordination

Project management has been entrusted to IDPPE, the main operational fisheries institution with major activities falling within the broad areas of applied fish research, training and extension, fish policy and project analysis. The IIP is responsible for estimating fish resources in the country and for fisheries research. A Project Co-ordination Unit (PCU) has been established within the IDPPE Delegation at Angoche but falling under the administrative supervision of the National Director of IDPPE. The PCU is headed by the Project Co-ordinator, who is charged with the responsibility of the day-to-day management of project activities.

The Project contributed to considerable improvement of IDPPE through staff training and technical assistance and created an environment conducive to planning and policy formulation for the development of small-scale fisheries. In particular, staff strengthening of the Project/IDPPE Offices in Angoche and Moma has considerably improved and holds promise for sustaining the field operation when the externally supported project expires. Extensionists have been trained in management, extension techniques and other subjects to enable them to gain competence and autonomy in the dissemination of project activities in their area of responsibility.

Community organisations

The NAFP is promoting the formation of various community organisations in order to facilitate a participatory implementation of the different components of the project. Today, due to the efforts of the Project, a total of 142 community organisations (14 Resource/Co-management Committees, 2 Fishermen Associations, 122 Water Committees and 4 Micro-project Committees) with an estimated 950 members actively participate in project activities aiming at improving the living conditions of the communities in the project areas. In a society traditionally dominated by men, the participation of women together with men in water committees is considered a very important project achievement.

The Nampula project employed two strategies to promote the formation of community committees and organisations: (i) it focused on the creation of enabling conditions, such as access to credit and savings facilities, linking their fishing and other economic activities with markets through private traders and micro-enterprises, etc. that enhanced the capacity of beneficiaries to improve their household income. (ii) it created conditions for the satisfaction of the communities basic needs: water supply, primary health and sanitary care and education, in compliance with the ideals of sustainable human development.

Overall the committees are well established and have performed with considerable success. Only the Micro-project Committees under the Community Development Fund have functioned with many difficulties. This is partly due to the complex set-up, the large populations involved and the lack of tradition for this kind of collaboration.

Analysis and impact

Targeting

In the Appraisal Report the principal target group was defined as 9 300 skippers and crewmembers and their families. Given an average family size of 6.7 individuals, it implies a target group of around 62 000 persons. In addition, some 2 000 women were envisaged to be engaged in fish processing and trading activities.

The 1998 MTR considered it unrealistic to expect that more than a very small number of the crewmembers would progress into being net and boat owners themselves or that women were to become involved in fish processing and trading and recommended that the best way to assist these two groups was through increasing the overall productivity of the fishing units, which would yield higher returns to the ordinary fisherman who receives 50% of the value of the catch as payment i.e. a strategic shift towards targeting the net and boat owners instead of the crew members and the women. The MTR recommendation was adopted by the Project, however it entailed a shift from targeting the poorest members of the communities towards targeting a small group of relatively well off and influential persons. This strategic change was justifiable in view of: (i) the investment needed to engage in fishing and the demands for collateral from credit institutions would preclude the poor crew members and skippers and (ii) under the socio-economic conditions of Mozambique, it provided the most practical way to help the original target group. Targeting functioned through the provision of technical inputs and formal credit to net owners to improve their beach seines and credit to large-scale traders to ensure the availability of fishing materials in the project area.

It is estimated that the project has reached some 22 000 persons or 36 % of the target population under the artisanal development component, some 27 000 persons or 44% under the road rehabilitation scheme, up to 175 000 persons or 276 % of the total target group under the water supply scheme and some 900 persons, many of them being women, under the various credit and savings groups. No schools or health centres have yet functioned and, therefore, no project beneficiaries have been reached. The project has also targeted through formal credit small- and large-scale traders to improve marketing and the accessibility of fishing equipment and other inputs in the area.

Artisanal fishery development

Provision of fisheries equipment and materials. The NAFP has facilitated availability of fishing gear to local communities as a result of influencing the tariff levels and an effective dialogue and information exchange with commercial companies, which attracted the retail business for fishnets to Moma and Angoche. The linking of the private sector marketing networks with the fishing communities has not only improved but also guaranteed the supply of fishing inputs and equipment, as well as the marketing of fish and fish products This is a positive attribute to the project, however there is a lack of corresponding economic access to the same inputs. Non-access to credit compelled fishermen to either make their own nets in their backyards or continue to use mosquito nets, to the detriment of the marine resource environment. Additional work is needed to improve the macro-economic conditions for input supply including further tariff reductions and development of an adequate credit delivery system.

Adaptive research and extension. The Project in partnership with fishermen has tested different types of fishing gear and various approaches to fish processing and preservation in order encourage fishermen to adopt sustainable fishing practices and promote efficiency in fish production. The use of trammel nets for shrimp harvesting in the experimentation exercises was successful and many fishermen adopted the technology. Likewise, a number of fishermen took up gill nets, long-lines and trammel nets as appropriate to best suit their fishing effort. These nets do not catch the same type of fish nor the same size and amount of pelagic as the beach seines. However, the development of fisheries technologies and diversification of fishing practices although essential to secure a more sustainable use of the resource, it was found that their successful introduction is dependent on many factors beyond the technology itself, including access to inputs and financial services, the market opportunities for new products, processing and storage techniques.

The integration of local fishing communities into research and technology development has validated both the relevance of adaptive experimentation approach and the fast dissemination and adoption of generated technological innovation. The participatory adaptive trials benefited from fishermen's knowledge and needs and contributed to increased awareness of artisanal fishery development potential and constraints. Before the end of the participatory trial, participating fishermen knew the results/benefits and spread the word amongst their community fellow men several of whom absorbed positive experience. Thus, participating fishermen, in addition to contributing to a more efficient and cost effective research, relieved strain from the extension workers and contributed to the dissemination of research results. However, the process of dissemination and the strengthening of the extension service as a whole including the development of technical extension messages in the project area still requires further attention.

Improved methods for fish processing and commercialisation. Fish processors in Moma and Angoche have shown a positive appreciation of the smoking kilns introduced by the NAFP. Though not quantifiable at present, consumption of fuel wood and post-harvest losses from the adoption of these methods have been reduced. The project by providing support to improvement of commercial infrastructure (processing, drying, etc.) has enhanced prospects and opportunities for village industry. Increased use of these technologies is dependent on effective credit support and market information systems otherwise, it is unlikely that more small-scale processors will adopt them.

Financial services

Formal Credit Line, FFPI Financing Operations. Both the number of loans (only 30) and the amount of funds (only USD 125 000) issued by FFPI were very small and, therefore, the credit could hardly make any noticeable impact on the artisanal fishermen, however significant it might have been for the individual recipients. Almost all fish operators that met with the evaluation team expressed a want for credit to purchase raw material inputs. The technologies on improved fishing and processing promoted by the Project link the extension directly to a credit package tailor-made to suit the needs and capacity of fishermen and processors in the area.

Micro-credit. The provision of the CARE/CRER financial services has contributed towards day-to-day credit needs of the communities through introduction of credit and savings groups, savings groups and confidence group lending. Members of the groups, particularly women, have been able to save and borrow in order to buy food commodities for trade within the communities. Confidence groups were successful in delivering credit for small traders whereas the stamp based scheme has been better at targeting women and in establishing savings and a more easily understood system. Future designs should lay emphasis on savings in a broader perspective allowing for the methodology to move towards the mobilisation of savings for credit and investments.

Fisheries management and environmental sustainability

The project has helped IIP to establish a successful monitoring system for the collection of data from the many artisanal fishery centres in the area. The studies being carried out and those to be undertaken will play an important role in guiding the future long-term judicious use of marine resources and optimising the sustainable benefits for the artisanal sub-sector. The establishment and successful development of the fisheries data collection system is now being replicated in other parts of the country through a programme supported by French Corporation.

By facilitating the formation of 14 co-management committees and two Fishermen's Associations in Moma and Angoche, the NAFP has helped in reducing the undesirable fishing practices that have primarily used mosquito nets and "quinia" for fishing. In addition, the project's strategy is to provide incentives to borrowers i.e. credit to purchase trammel nets, purse seines, drift nets/gill nets and long-lines for open sea fishing and thus improve the marine environment. The established institutional dialogue and the creation of a favourable environment for artisanal fisheries constitute a very sound activity in the process of regulation through empowerment of both the fishermen and fisher organisations and the marine institutions such as IDPPE and IIP.

Community development fund and rural infrastructure development

Co-ordination with local health authorities has proved problematic, reflecting limited capacity in the health services and health care. An effective project strategy would be to look and provide basic support to the communities such as midwives, social/health workers, etc. Community development on a participatory basis in Nampula Province has proven to be more difficult than originally envisaged, because of the underlying conflicts that exist between the community governing structures. Although no micro projects have yet been completed, it is an encouraging sign that functioning commissions have been established and the community members generally seem to accept to contribute 25% of the costs of the micro project. This indicates that the concepts of sharing and ownership have been generally accepted by the communities in the project area.

Wells. Wells must be considered a very successful component. At present, only 2 out of 122 wells rehabilitated or constructed by the project are not functioning. There is no doubt that this component has brought a significant improvement of the standard of living for the target group as a whole and for women in particular. Their daily tasks have been alleviated and they and their children are now less exposed to waterborne diseases.

Roads. The positive impact of the road component is already showing visible signs in the targeted communities. Fishing societies have been physically connected to the surrounding world, which has most importantly meant access to markets both in terms of selling products and buying commodities. One of the main objectives of the project has thus been achieved. In addition, many more benefit from the road rehabilitation, including the inland communities along the roads, which are not fishermen's communities.

Empowerment of communities

The greatest socio-economic impact of the Project is probably its contribution to the empowerment of fisheries communities. The Project has been able to create conditions, which enable the fishing communities to be aware of development potentials, and to start converting latent labour and other resources into real productive resources. Empowering the communities by promoting the formation of groups and social organisations, building capacities and developing skills, the Project is bringing desirable changes especially improving participation in decision-making processes in policy planning and implementation.

Gender. An acute problem in the fishing area is the sexual division of labour. Virtually, women have no role in the fishery industry and their economic activities are almost exclusively restricted to agriculture and selling small surpluses at local markets. Very few women are engaged in informal sector commercial activities. Through women empowerment and gradual participation in committees and organisations, the marginalisation of females is being progressively reduced.

Sustainability

Marine resource

The maximum sustainable yield (MSY) for the Moma and Angoche marine ecosystem was estimated to be approximately 14 000 metric tonnes. Presently, the landings in the region already stand at about 15 000 mt, indicating a high pressure on fish resources in the region threatening long-term sustainability. The proper utilisation of the IIP fishery data and research results by the authorities in formulating appropriate fishery policies and strategies including management action and administrative measures, such as the legal dispensation of mosquito nets and extension of the trawler exclusion zone 3 nautical miles from the coast, provides hope that gradually there will put in place a comprehensive and dynamic regulatory frame that will safeguard long-term judicious use of marine resources and optimal sustainable benefits for the artisanal sub-sector. The resource management issue involves development of strategies for fisheries resources research, improvement of fisheries statistics, monitoring and surveillance activities and the development of institutional arrangements to translate the resource management information into operational management action.

Management of the fish resources will be one of the most important tasks of the new Ministry of Fisheries and would necessitate the development of a modest capability for surveillance and monitoring of the fishing effort, initially focussing on the stocks most acutely threatened. It is, furthermore, the responsibility of Administracao Marítima (ADMAR) to co-ordinate with and make good use of the co-management committees in order to create awareness of fisheries management issues and acceptance of the need for the imposition of discipline by and within the communities. Thus, the integration of community organisations into the embryonic co-management system, even though in a consultative capacity, positively contributes to fishery resource management.

Financial services

The rationale of success for the credit systems lies ultimately in ensuring that the financing lent to the borrower will in the long run contribute towards the borrower's activity being self-sustaining, while at the same time being a good business venture for both FFPI and CARE/CRER. Credit issued to proponents on the basis of growth of businesses based on the viability of the venture is also a desirable indicator of sustainability and economic growth among the communities. It is also an important intervention mechanism contributing to judicious management of marine natural resources. Given the poor economic conditions of Mozambique, the development of the micro-finance system would require time, at least ten years or more, to achieve satisfactory results. Availability of credit to fishermen and processors to, inter alia, purchase inputs and maintain/substitute fishing gear would have a positive effect on sustainability and employment prospects of crewmen, whose families rely on the income derived from fishing. Support for the strengthening and further expansion of the CARE/PCR savings groups could eventually lead to a sustainable source of credit for the poorer segments of the communities through the mobilisation of savings. The consequence of not meeting the credit needs of eligible applicants and the absence of an adequate financial delivery system to support technical diversification may, in the long term, place a principle source of livelihood for fishermen and their families at risk.

Community development fund and rural infrastructure development

Inability to maintain the network of tertiary roads, will cut off the inland urban market, which is the principal fish market and prejudice the realisation of increased income levels, employment generation and food security. Lack of road maintenance would also affect provision of health services linked to medical centres, inaccessibility to centres of education and an overall reduction of the exchange economy's performance due to reduced access of traded food commodities to fishing communities. The Project should open a dialogue with the Government to address the road maintenance issue. Although no health posts and schools micro-projects have yet been completed, the establishment of functioning commissions and the willingness to contribute 25% of the costs indicate that the concept of sharing and ownership of community development initiatives have been developed in the project area.

Project management and co-ordination

Over the years, the institutional capacity of the implementing agencies has been strengthened and project management has demonstrated improvement in performance typified by growing professionalism and strong strategic vision for future development.

In recent years, the IDPPE has made substantial contribution to the fishery legal and management reforms. Nevertheless, the institutional capacity of the Institute still requires further strengthening and consolidation at all levels of staff training, including institutional dialogue and communication. Likewise, the institutional capability of IIP requires upgrading and strengthening through training and provision of appropriate equipment. It also needs assistance to expand its work on monitoring and stock assessment for fisheries management in the project area as well as improved statistics to correlate fish stocks against effort and catch. In light of the Project's achievements, IFAD

Management and GOM are considering to implement a second intervention in the fisheries sector in Mozambique. Thus, the opportunities for longer term sustainability and development of activities and results promoted under the project are likely to be further strengthened.

Lessons learned

Input supplies

The Project has been successful in facilitating and influencing positively the availability of fishing gear in the project area not through its direct importation but through influencing the duties and tariff levels and through linking the private sector marketing networks with the fishing communities. The important lesson to be drawn is that the creation of a suitable economic framework and the encouragement of the private sector companies through effective linkages and dialogue are a more effective mechanism for socio-economic growth and poverty alleviation than any direct project or Government commercial intervention.

Adaptive research, extension and participatory client-driven technology development

The integration of local fishing communities into research and technology development has validated both the relevance of adaptive experimentation approach and the fast dissemination and adoption of generated technological innovation and research results. Participatory adaptive research benefits from fishermen's knowledge and creative diagnosis and provides vital feedback in technology design and stimulates further research in response to fishermen needs. Before the end of the participatory trial, participating fishermen know the results/benefits and spread the word amongst their community fellow men. Thus, participatory adaptive research, in addition to contributing to a more efficient and cost effective research, relieves strain from the extension workers and contributes to a more cost-effective extension system. However, the process of the dissemination of the research results in the project area and the strengthening of the extension service as a whole including the development of technical extension messages still requires further attention.

Fisheries technology and marketing

The use of trammel nets for shrimp harvesting in the experimentation exercises was successful and fishermen adopted the technology. The development of fisheries technologies and diversification of fishing practices are essential to secure a more sustainable use of the resource but their successful introduction has been found to be dependent on many factors beyond the technology itself, including access to inputs and financial services, the market opportunities for new products, processing and storage techniques. The NAFP has shown that such programmes can be used as effective fora for the exchange of technical experience between fishermen. The establishment and maintenance of a market information system to support associated project activities (especially fisheries technology and processing) has been proven to be relevant and useful. Sustainable methods for information collection have still to be perfected. In addition, diversification of fishing practices could be encouraged by policy related incentives and disincentives such as increasing levels of licence fees for beach seines (higher costs) versus lowering those of gill nets or purse seines, which would encourage fishermen to shift of fishing practices. It is, therefore, recommended that (i) future project designs incorporate more active policy and planning roles for articulation with the Government, and (ii) the Project provides support to market development initiatives including the establishment of shore infrastructure, landing facilities, auction halls, ice making, cold storage and market information.

Fish processing and income generating activities

The development and dissemination of improved processing methods has proven difficult, due in part to the dynamic and migratory nature of fishers and poor technical institutional capacity. In addition to fish processing, there is a large number of skilled labour in the project area with the capability of weaving nets and piecing inputs for fishing. It is recommended that Project explores the possibility of providing support, mainly through the supply of credit, for the development of income generating activities to utilise available skills, create local employment and improve household incomes. Extension techniques and messages in this field require further adaptation to suit both production and market access. The effective delivery of financial services is absolutely essential.

The NAFP (IDPPE) and IIP

Over time, the constructive collaboration between IDPPE and IIP has been strengthened and the research activities intensified with very beneficial results on the quality and quantity of the output of both institutions. The development and establishment of a fisheries data collection system was successful and the model is now being applied in other parts of the country though a programme supported by French Co-operation. Likewise, the successful dialogue and experience of the joint IDPPE/IIP Delegation in Angoche has had positive impact. Anchorage of the project in the IDPPE remains highly relevant and the PCU has achieved notable successes in management and co-ordination and in the improvement of the wider conditions for the artisanal fisheries. It is advisable that the two institutions resolve internally whatever problems and disagreements they may have and avoid changes to the overall administrative framework of the NAFP. For reasons of efficient use of limited manpower and financial resources, and for the sustainability of project services in the post project era, the use of in-line Government institutions for project implementation is sound and it is recommended that NAFP continues to act as catalyst in strengthening the capacity of co-operating institutions.

Financial services

The Project has made important advances in the delivery of financial services at community level. The 4-year micro-finance pilot scheme has tested the feasibility of the approach and has set up an operating delivery system. Notwithstanding weaknesses, an important lesson learnt is that the rural fishing communities were able to overcome the barriers of working jointly in-groups of trust for mutual financial benefit. In conjunction with this, a second lesson learnt is that, under the socio-economic conditions of the project area, where the culture of borrowing through rural credit was near absent among the population and no money-delivery system of this kind existed, the widespread acceptance of the savings and credit concepts by the fishing communities would require a longer time-frame than originally envisaged in the project design. Experience shows that each of the four methodologies tested has its strengths and weaknesses but savings were seen as the most valued and appreciated of the financial services offered. Further development and consolidation of the micro-finance network with project support, particularly the savings groups methodology, should include strengthening and extension to other areas, not only other fisher communities, and the creation of Credit Unions to service the financial inter-mediation needs of the poorer income groups.

Strengthening of these institutions should involve accompanying measures in the field of training, institution building and development of the appropriate legislative and regulatory framework. It is highly recommended that the project continues to work towards the development and consolidation of a long term sustainable micro-finance system, capable of extending financial services to the poorest target group including loan capital from the mobilisation of savings for non-fishing activities to the female-head and other members of fishing families. Emphasis should be given to savings in a broader perspective allowing for the methodology to move towards credit.

Concurrently, efforts should be made with FFPI to improve its lending programme to small fishermen, processing and marketing. In line with NAFP's achievements in the area of co-management of the marine natural resources in collaboration with the 14 resource co-management committees, the Project could explore the possibility of implementing in collaboration with the Fishermen's Associations a co-management credit delivery framework that promotes sustainable resource utilisation and conservation. Such a co-management credit delivery framework has been successfully implemented by IFAD in Palestine-Gaza Strip under the Relief and Development Programme in partnership with CARE, the Arab Bank and the artisanal fishermen co-operative, the Al-Tawfik Fishermen Co-operative. Selection of investments should include the potential to increase employment and generate income for poor households, either by directly increasing their assets and incomes or indirectly by improving marketing modalities for their output. The technologies on improved fishing and processing promoted by the Project for implementation link the extension directly to a credit package tailor-made to suit the needs and capacity of fishermen and processors in the area.

Another important lesson that may be drawn in relation to the implementation of the micro-credit scheme is that the coalition in project activities with suitable local and/or international NGO's such as CARE, with hands-on experience in mobilising and empowering rural communities and in particular women specifically, could generate added value in a cost-effective manner, for the benefit of rural poor. Experienced NGOs could provide a sustainable link between the private sector and the fishing communities in terms of inputs and marketing opportunities, facilitate the use of modern technologies and supply technical support and extension, with the view to optimising costs, promoting sustainability of such services and ultimately relieving the Government of the burden of a big and costly extension service.

Empowerment of communities

Although Mozambique had little experience with or no tradition in community participation and a political culture that originally discouraged it, the NAFD has demonstrated that it is possible to successfully promote empowerment of the local communities to enable them to identify, plan and manage their resources, interact with members and influence policy and take over the management of their affairs. The Project has been instrumental for the formation of 142 community committees and organisations that have been actively participating in implementing project activities corresponding to the needs of the communities. The established institutional dialogue and linkages between committees and fishermen associations and formal management bodies, including the Fisheries Administration has been an important part of the empowerment of stakeholders. The successful experience of NAFP in empowering the stakeholders provides a model to be replicated in other communities and geographical areas of the country.

However, the practical experience and lesson learnt from some community development projects such as the M'puitine primary school is that community development is a slow and complex process and emphasis need to be given to understanding the complex socio-political fabric of the communities in the project area. In other instances, such as the Quinga road and invariably FFPI credit, the NAFP failed to instigate effective communication with communities that hindered implementation and at times raised false expectations that undermined project credibility. New associations and organisation require a significant amount of assistance with the bureaucratic process of formalisation and registration. Institutional support and training to such bodies is perceived important to not only the development of capacity but also the establishment of realistic aims and objectives.

A serious attempt has been made by the Project to empower women by integration into community committees and other project activities. Women were able to join credit and savings associations but have been active particularly in savings and in water supply committees. However, their integration into the development process proceeds at a very slow pace.

The empowerment process still requires formalisation, legal status and recognition by the authorities. There is need to improve the institutional and legal framework for the establishment of community committees and co-management organisations, including definition of competence and authority and establishment of the institutional structure for dialogue and decision making with the Fisheries Administration.

Rural infrastructure

The rehabilitation of tertiary roads has been shown to be as valid aspect of both commercial and community development. However, insufficient attention has been paid to the issue of longer term road maintenance and that this deficiency will make the realisation of the project objectives (i.e. increasing income levels, employment generation and food security) difficult. A lack of maintenance of the project roads would also affect provision of health services linked to medical centres, inaccessibility of communities to centres of education and an overall reduction of the exchange economy's performance due to reduced access of fishing communities to traded commodities. The beneficiary communities feel that the feeder roads are public goods and their maintenance should be the responsibility of the government, and there is clearly further work to be done to secure any long term benefit from these investments should the State be unable to fulfil this expectation.

Artisanal fisheries from project to sub-sector investment programme

The NAFP has validated the effectiveness of the integrated cross sectoral methodology by targeting concurrently technical, commercial, social and institutional components. The institutional targeting was directed towards strengthening the capacity and promotion of the formation of community-based organisations as a medium for self-mobilisation for development purposes. The functional targeting was directed towards removing single or multiple critical constraints to artisanal fisheries development namely the supply of inputs, provision of credit and the development of infrastructure. The third ingredient is the primacy of market linkages between the fishermen and the private sector in input distribution and marketing fish and fish products. The lesson to be drawn is that development investments would have a far more reaching effect and impact, if the strategies shift from a narrow project area focus to a wider sectoral integrated programme approach. Such a shift of the artisanal sub-sector investment programme would be consistent with current concerns in IFAD with a shift in development planning towards a wider programme approach. Individual projects would address specific objectives within the larger programme.

Linking agricultural and fishing sectors

In addition to fishing, coastal communities in Nampula are engaged in agricultural production and other non-fishing activities such as itinerant trade. While men undertake fishing activities, women are responsible for food production. Notwithstanding difficulties, as development interventions should lead to an overall improvement of household incomes and livelihoods, future IFAD interventions msy explore the possibility of linking fishery development with agricultural production in an integrated rural development fashion. Such a linkage of the fishery and agricultural sectors has many benefits. The linking of the agricultural and fishery sectors would, also, contribute to the empowerment of women by improving their entrepreneurial capacity and integrate them in the process of development.