PART IV POST-IMPLEMENTATION13. 'Turnover' or Post-implementation: Centre de recherches pour le développement international

Coastal Resources Institute, Prince of Songkla University, Hat Yai.

The co-management programme is never completed. That is not to say that plans and objectives are never achieved. Rather, as described earlier, co-management is an iterative process of revisiting and revising plans and activities, determining whether objectives have been achieved, adapting to new conditions, and setting new objectives. It is not getting stuck in an endless loop, but rather learning and adapting and moving forward. It is addressing new changes and challenges.

Thus, as used here, 'turnover' or post-implementation does not mean completing the co-management programme, but rather it means completing a plan or activity. It means moving between a 'funded' programme and a self-sustaining community effort. It means evaluating the impacts of the plan or activity. It means making new plans. It means having the external agent and community organizer leave and turn over the co-management programme to the community. It means replication and extension of the co-management programme. It means 'scaling-up' the co-management programme to a larger geographic area or more issues. It means sustaining the programme. It means changing roles and responsibilities for the partners and stakeholders.

13.1. Turnover and Phase-out

External agents are often critical to facilitate the co-management programme. However, the external agent and the community should not view this as a permanent arrangement. Eventually, the co-management programme needs to be turned over to the community. The external agent should have a temporary relationship with the co-management programme, which may last several years, serving their particular function and then phasing out. This does not mean that the external agent should permanently leave the community. A bond has been established between the external agent and the community organizer. The community should be made aware that the external agent is there to provide assistance upon request. The external agent should have a phase-out plan that is well-understood by the community to eliminate any surprises and to minimize problems (Box 13.1). During this turnover and phase-out process, there will be changing roles and responsibilities of the stakeholders. Any agreements in effect should reflect these changes.

13.2. Post-evaluation

Every co-management programme should undertake a post-evaluation to determine how well it has achieved its goal and objectives. As mentioned in Chapter 10, Section 10.10, a summative or post-evaluation is undertaken after the programme's implementation where the focus is on a deeper analysis of results and outcomes and for determining the level of achievement of objectives and the impact of the programme. The results can be used for future planning and for drafting new or modifying agreements. This can be a link between the programme and the self-sustained community effort.

The post-evaluation effort should involve all stakeholders in meetings to discuss project results, hold general evaluation sessions, evaluate results against objectives, and plan for the next phase.

13.3. Scaling up

As previously discussed, the scale for co-management will vary a great deal depending on the community and the priority issues. In general, initially a limited scale (in terms of stakeholders, issues, jurisdiction) will support greater chances for success. Expansion of scale is often easier once initial activities succeed and are sustained. The issue of scaling up refers to the transferability of concepts, methods, and organizational and governance structures from one level to another in the dimensions of space and time. For example, scaling up from a single community to several communities to manage a bay-wide area through a co-management organization such as a bay-wide council which represents the different communities. Scaling up may also be undertaken to address issues of ecosystem-based management and broader social and economic links in the area. Questions related to scaling up include whether the same principles that guided the community-level co-management programme hold at the larger scale and what are the costs and benefits involved in scaling up and on community participation.

Box 13.1. Preparing for the Phase-out of a CBCRM Programme in Cabangan, Zambales, Philippines.

SIKAT is a Filipino NGO supporting CBCRM work in the province of Zambales in the Philippines. Specifically, they have been working closely with fisher organizations in implementing the Fisheries Development and Management Programme (FDMP). Over the past few years, it has assisted in the formation of municipality and provincial-wide federations of fisher organizations, implemented livelihood support activities, advocated changes in local and national policies, and provided overall support for capacity building for fishermen and women in Zambales.

Before SIKAT eventually phased out in the municipality of Cabangan in Zambales in 1999, it launched a mentoring project that included a series of capacity-building activities for selected community members. Called POGI in Filipino, meaning 'Pampamayanang Organisador para sa Gawaing Ikauunlad' (Local Community Organizers for Development Work), the mentoring project was premised on the belief that SIKAT and other external groups are merely facilitators of change, and that the communities should be able to act on their own in solving their own problems. SIKAT also believes that community organizations should be given opportunities to become independent of their partner NGO through a clear programme on mentoring and 'learning by doing' activities. In its phase-out, SIKAT did not sever its ties with community groups but re-invented its role as facilitators of change in the area.

In its initial phase-out stage, SIKAT facilitated the process of choosing local community organizers for this mentoring project. A total of 15 people, representing all community organizations, were chosen. The criteria used include the following:

• Active in organizational work;

• Respected and trusted by the organization;

• Open attitude in organizing and development work;

• Good health and physical condition;

• Committed to do the work related to the POGI project.

In its selection, the different community groups decided that there should be equal representation among women and men in the community.

The local community organizers were assigned to monitor and evaluate organizational activities, clarify processes and plan future activities. They also had successive trainings on:

• Training for trainers;

• Community organizing;

• Gender;

• Community microfinance;

• Community enterprise;

• Resource management;

• Issue advocacy;

• Participatory monitoring and evaluation;

• Financial management.

The trainings lasted about 15 months – the first 9 months were devoted to holding formal trainings and close mentoring and the last 6 months before phase-out was a 'trial' period for self-autonomy. During this time, SIKAT staff support were limited to monthly meetings with the community organizations.

During the initial months of the POGI programme, SIKAT staff were assigned as mentors of the local community organizers to closely sort out and apply learnings. Individually, the mentors monitored and assessed the activities of the local organizers. They got specific feedback on work assignments, assessed the difficult areas and got suggestions on how to overcome the difficulties. Monthly collective meetings were held where all the local organizers monitored activities, reflected on their experience and planned next steps.

POGI was implemented for 2 years. The first year involved capacity-building activities related to organizational strengthening. This included activities on project development and organizational systems, e.g. financial. The second year was devoted to launching more community-led activities. Only this year, the fisher organization did a research project on fisheries settlement problems, with minimal support from SIKAT.

Source: Balderrama and other SIKAT Mentors (1999).

A number of factors constrain expansion including funding, resources, authority, management structure, voluntary basis of participation and others. Scaling up may be undertaken to include more stakeholder groups, manage a larger jurisdiction or management unit, and/or address new or a greater range of issues. In scaling up, a new plan and agreements will need to be developed. More information will need to collected and analysed. New groups may need to be organized. More funding will need to be sought. If the new scale involves multiple political jurisdictions, new legal support may be needed.

13.4. Replication and Extension

Every co-management programme has the potential to stimulate the start of co-management in other locations. Co-management in one community can contribute to the replication of the approach in other communities in a number of ways (Claridge, 1998):

• Providing an example which can be evaluated by members of other communities and government.

• Creating a group of community members who are experienced in the various aspects of process and methods and who can relate easily to members of other communities.

• Creating a precedent for involvement of government.

• Establishing new legislation and policies in support of co-management.

• Training people from other communities can create credibility for the original community and its efforts and ensure sustainability.

• Strengthen ties with local government and other concerned organizations, local, national and international.

Replication and extension does not necessarily have to wait until the post-implementation stage. As community members and project staff develop methodologies and solutions their confidence and capability improve. Once this stage is reached, these individuals can become advocates and trainers for the methodology or solution to other groups. Fisher-to-fisher training can be initiated. Members of other communities or government can be invited for a site visit to see what is being achieved. The external agent and its staff can initiate activities in other communities. Local government officials and staff can share their knowledge and experience with other local governments and with national government agencies.

It is clear that adopting replication and extension strategies can significantly multiply the benefits of an investment in co-management. Success often breeds success.

13.5. Sustainability

A number of factors have been identified as being critical for sustaining the co-management programme over time. These include, but are not limited to:

• Supportive policies and legislation are in place;

• Community organizations exist and are functioning;

• Community members have been empowered with skills and knowledge;

• Widespread public awareness and participation;

• There is widespread acceptance of the plan and agreements;

• Adequate financial resources and budget;

• Continual monitoring, evaluation and adaptation of the plan;

• Supportive local government;

• High level of compliance with management measures;

• Economic benefits are being received by the community.