GEF Transboundary Diagnostic Analysis/Strategic Action

Programme Manual

Volume 1
Introduction to the TDA/SAP Process

21st March 2013

i
Acknowledgements
With this page, the GEF IW:LEARN project would like to acknowledge the contribution of key project
stakeholders to the successful completion of this manual and its companion Project Management
manual. Both would not have been a success without this important support from key people, for
which the project is eternally grateful.

Both the TDA/SAP Manual and the Project Management Manual evolved in close synergy between
their respective lead consultants, Martin Bloxham (TDA-SAP Methodology and Course Revision) and
Peter Whalley (PM Manual) who both worked in close partnership with the GEF IW:LEARN PCU, on
the content side with Patrick Weiler and on the technical side with rest of the entire IW:LEARN project
coordination unit (Mish Hamid, Khristine Custodio, Taya Santives, Christian Ledermann and Damaris
Waigwa).

Inputs were received from a variety of stakeholders through various means. Chief among these means
were face-to-face meetings and of course, various virtual collaboration. We would like to acknowledge
the participants (both GEF IW project managers and GEF agency staff) who provided inputs to both
manuals in Dubronvik, Croatia in October 2011. Most of the portfolio’s active project managers
attended sessions prior to the launch of the 6th GEF Biennial International Waters Conference.

We would also like to thank the project managers who attended a confirmation session in Copenhagen,
at the premises of the UN Office for Project Services in July 2012. Project managers including, Michael
Akester of the Humboldt Current, Patrick Debels of the Caribbean Sea LME, David Vousden of the
Agulhas Somali Current LME, Rudolph Hermes of the Bay of Bengal LME, Nico Willemse of the
Benguela Current LME, Novak Cajdenovic & Agim Shimaj from Lake Skadar-Shkodra, Hubert Onibon
from the Volta River, Mary Matthes from the Kura-Aras River…as well as attendees, Vladimir Mamaev
of the UN Development Programme, John Joyce of the Stockholm International Water Institute and
Kirsten Helsgaun of UNOPS, who provided key inputs as well as documents from their projects.

We would also like to acknowledge the support of the IW:LEARN Technical Advisory Group, which had
over twenty participants, mostly including GEF IW project managers but also other GEF IW
stakeholders. We would really like to acknowledge the active contributions from members like
Rudolph Hermes, Max Donkor, Michael Akester, Hubert Onibon, Birane Sambe, Gedion Asfaw, David
Vousden and finally last but not least, Mary Matthews, who also provided major support in Dubrovnik
and also content to both manuals.

Finally, we would thank the various agencies, GEF, UNDP, UNEP, UNOPS, the World Bank among many
others, who have provided inputs through various means.

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Contents

Summary 1

1. International Waters 2
1.1 What are International Waters and why are they important? 2
1.2 Threats to International Waters 2
1.3 The GEF and its interest in International Waters 3

2. The TDA/SAP 6
2.1 TDA/SAP - A planning tool for IW 6
2.2 TDA/SAP – A history 7
2.3 Examples of TDA/SAP processes 8
Black Sea (BSERP) 8
Kura-Aras River Basin 9
Lake Chad 10
Rio de la Plata (FREPLATA) 11
Nubian Aquifer (NSAS) 11
Dnipro River Basin 12
Caribbean LME 13
2.4 TDA/SAP – A GEF Approved Tool 14

References 15

Annex: Key Principles of the TDA/SAP Approach 16

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List of Figures and Tables
Figure 1: Examples of transboundary water systems 3

Figure 2: TDA/SAP adaptive management cycle 17

Table 1: Completion dates for TDAs and SAPs between 1996 and 2013 8

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Summary
This is the first of three volumes that makes up the GEF Transboundary Diagnostic Analysis/Strategic
Action Programme (TDA/SAP) Manual. It presents an introduction to International Waters and the
TDA/SAP process. It describes what International Waters are and why are they important, and why
the GEF is interested in them. It then outlines the TDA/SAP process as a tool for IW management,
presents a brief history of the TDA/SAP process, gives examples of TDA/SAP processes in action and
finally describes the current GEF approved version of the TDA/SAP process.

The two following volumes delve deeper into the TDA/SAP Process. Volume 2 presents a ‘How to’
Guide to TDA/SAP development – a simple, non prescriptive stepwise approach that many projects
have followed over the last 10 years, including references and links to best practices and experiences
from a wealth of completed and on-going projects. Volume 3 focuses in on planning the TDA/SAP
Process. In particular, it looks at the key steps in managing the TDA and the SAP and
meeting/workshop design to ensure the TDA and the SAP processes are as collaborative as possible.

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1. International Waters

1.1 What are International Waters and why are they important?

In the context of this manual, International Waters are transboundary water systems which include:
river basins where water flows from one country to another; multi-country lake basins; groundwater
resources shared by several countries; or large marine ecosystems (LMEs) bounded by more than one
nation. These large International Water systems, which cover most of our planet, do not respect
political borders. They are often managed in a national and fragmented way that impacts on
environmental goods and services, endangers the food supply and affects the livelihoods of billions of
people. By exploiting these shared resources in unsustainable ways, humanity faces a potentially
difficult future characterized by the depletion of water and marine resources, increased poverty, and
greater conflict.

International waters are important because nearly half of the world’s population is located within one
or more of the 263 international drainage basins shared by two or more states. Even more striking
than the absolute number of international drainage basins, is a breakdown of each nation’s land
surface that fall within these watersheds1.

 At least 145 nations include territory within international basins.

 At least 21 nations lie in their entirety within international basins
 33 countries have greater than 95% of their territory within these basins
 19 international drainage basins are shared by 5 or more riparian countries
 The Danube alone has 17 riparian nations
 The Congo, Niger, Nile, Rhine and Zambezi are shared by between 9 and 11 countries
 The remaining 13 basins have between 5 and 8 riparian countries
 The 64 LMEs produce 95 % of the world's fish catch

Groundwater resources, which account for more than one hundred times the amount of surface water,
and cross under at least 273 international borders are even more challenging and it is critical to co-
manage such water systems sustainably. Furthermore, all LMEs are ultimately affected by both surface
water and groundwater systems.

1.2 Threats to International Waters

The threats placed on International Waters are considerable. Demands for freshwater continue to rise,
resulting in competition among key sectors and ultimately between countries that share
transboundary freshwater systems. In parallel, the human demand for protein from marine waters
and pollution releases place stress on both coastal and ocean systems.

The environmental, social and economic impacts are all too apparent—depleted and degraded surface
waters, aquifers, and marine ecosystems that have adverse impacts on human and ecosystem health,
food security, and social stability. In addition, changes in global hydrologic cycles driven by changes in
climate and climatic variability deepen poverty, reduce food supplies, damage health and further
threaten political and social stability.

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1.3 The GEF and its interest in International Waters

As described above, freshwater, groundwater and marine systems together with their living resources
know no borders. With 70 % of the Earth being ocean and 60 % of the land lying in cross-border
surface and groundwater basins2, most water systems on Earth are transboundary – and thus are at
the heart of the GEF International Waters mandate†.

Transboundary waters cover “boundary” water resources where the boundary between two or more
sovereign states is formed by an LME, an international lake or river, and “successive” water resources
where an international river (or underground aquifer) flows from one sovereign state to another.

Figure 1: Examples of transboundary water systems

The GEF International Waters Focal Area was established to enable countries to collectively manage
their transboundary surface water basins, groundwater basins, and coastal and marine systems
through the implementation of policy, legal, and institutional reforms and investments contributing to
sustainable use and the maintenance of ecosystem services. To achieve this the GEF is currently
working toward the following objectives during its current funding cycle (GEF5‡):

† The GEF use of the term “international waters” is at variance with its use under the United Nations Convention on
the Law of the Sea (UNCLOS) where the term ‘High Seas’ (equivalent to the “international waters” of previous
maritime conventions) is restricted to marine waters beyond those within national jurisdiction and the exclusive
economic zones of states.
‡ GEF5 extends from July 1, 2010 through June 30 2014.

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1. Catalyze multi-state cooperation to balance conflicting water uses in transboundary surface
and groundwater basins while considering climatic variability and change
Patterns of intensive and conflicting uses of water resources in transboundary surface and
groundwater basins are resulting in significant ecological and economic damage, reduced livelihoods
for the poor, and increased political tensions among downstream States. These impacts become
exacerbated with increasing climatic variability.

The use of Integrated Water Resources Management (IWRM) plans/policies at the basin level has been
identified as an answer to balancing conflicting uses of water resources. Benefits of collaboration on
transboundary basins and adoption by cooperating States of reforms in IWRM policies contribute to
improved community livelihoods, increased crop yields, sustainable irrigation, improved
environmental flows, and reduced health risks where pollutants create risk.

Under this objective, GEF supports further development and implementation of regional policies and
measures identified in agreed Strategic Action Programmes (SAPs), which through collaborative action
would promote sustainable functioning of already existing joint legal and institutional frameworks or
help establish new ones. GEF assistance to States includes development and enforcement of national
policy, legislative and institutional reforms as well as demonstrating innovative measures/
approaches to water quantity and quality concerns. The projected impact will enable States to
negotiate treaties and better balance conflicting uses of surface and ground water for hydropower,
irrigation-food security, drinking water, and support of fisheries for protein in the face of multiple
stresses, including climatic variability and change.

2. Catalyze multi-state cooperation to rebuild marine fisheries and reduce pollution of coasts and
Large Marine Ecosystems while considering climatic variability and change
Coasts and oceans are experiencing increasing threats to their functioning. Especially serious are
reductions in the ability to provide protein for food security, livelihoods, and foreign exchange as well
as diminished capacity to absorb carbon as part of the ocean’s role in sequestering carbon dioxide.

Under this objective, GEF project support focuses on the implementation of SAPs with reforms and
investments that produce results. Policy, legal, institutional reforms and multi-agency strategic
partnerships that contribute to the World Summit on Sustainable Development (WSSD) targets for
recovering and sustaining fish stocks are a priority, including regional and national-level reforms in
legal frameworks and governance, access rights, and enforcement in LMEs.

GEF also supports investments in sustainable alternative livelihoods (such as sustainable mariculture),
habitat restoration and limited use designations such as fish refugia, technical assistance, promotion of
less destructive gear to reduce stress on wild fish stocks, and support for implementation of the 1995
International Code of Conduct for Responsible Fisheries in Integrated Coastal Management (ICM) and
in LMEs.

3. Support foundational capacity building, portfolio learning, and targeted research needs for
ecosystem-based, joint management of transboundary water systems
Experience has shown that multiple country projects are more cost-effective than individual country
IW projects in catalyzing commitments to collective action. Where capacity and agreement among
States is not yet built for collectively addressing transboundary concerns or where climatic variability
and change are not yet incorporated into adaptive management frameworks, an enabling environment
for action can be created through GEF supported foundational processes.

These processes include: establishment of national inter-ministry committees for project participation,
development of Transboundary Diagnostic Analyses (TDAs), third-party facilitation, stakeholder
participation, and formulation of Strategic Action Programs (SAPs) with shared visions and agreed
reforms and investments. These enabling activities also focus on capacity building and technical
4
assistance for legal and institutional aspects of multi-level governance reforms for transboundary
water systems needed not only at the transboundary level but also at the sub-basin, national, and local
levels.

4. Promote effective management of marine areas beyond national jurisdiction

Despite covering 40 % of the planet, Areas Beyond National Jurisdiction (ABNJ) lack comprehensive
legal instruments and normal management options. ABNJ are threatened by: increasing pelagic fishing
for highly migratory species and bottom trawling for deep-sea species on seamounts, ridges, and other
features, maritime navigation, extraction of hydrocarbons and mineral exploration, and other
emerging activities such as ocean fertilization, which affects the marine environment.

ABNJ, deep seas, and open oceans are all eligible for GEF project support. Protection of deep-sea
species, marine biodiversity, and seamount habitat can be greatly improved through enhanced
capacity of regional fisheries organizations to manage according to ecosystem-based approaches and
application of conservation tools.

Pilot initiatives with resources and expertise from both the Biodiversity and International Waters
areas have the potential to holistically address sustainable fisheries and conservation with Marine
Protected Areas (MPAs), Benthic Protected Areas (BPAs), spatial management, cooperative
frameworks, and improved flag state fisheries compliance.

Use of existing legal instruments may be tested along with market and industry approaches. NGOs and
other stakeholders with capacity to contribute to the testing of measures and management options
would be supported to contribute to urgent need to reverse depletion and habitat degradation.

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2. The TDA/SAP
2.1 TDA/SAP - A planning tool for IW

The Transboundary Diagnostic Analysis/Strategic Action Programme (TDA/SAP) approach is a highly

collaborative process that has proven to be a major strategic planning tool for GEF International
Waters Projects over the last 16 years3.

The main technical role of a TDA is to identify, quantify, and set priorities for environmental problems
that are transboundary in nature. In particular, the TDA aims to:

 Identify & prioritise the transboundary problems

 Gather and interpret information on the environmental impacts and socio-economic
consequences of each problem
 Analyse the immediate, underlying, and root causes for each problem, and in particular
identify specific practices, sources, locations, and human activity sectors from which
environmental degradation arises or threatens to arise.

Ultimately, a TDA provides the factual basis for the formulation of an SAP but the TDA is also part of a
larger facilitative process of engagement and consultation with all the key stakeholders from the initial
TDA steps through to the subsequent development of alternative solutions during the formulation of
the Strategic Action Programme. The TDA is a mechanism to help the participating countries to 'agree
on the facts' - many conflicts are driven by perceptions and removing these can be an enormous step
in itself. Furthermore, the TDA should be seen as more than just an analysis of data and information. It
is a powerful process that can help create confidence among the partners involved.

The SAP is a negotiated policy document that should be endorsed at the highest level of all relevant
sectors of government. It establishes clear priorities for action (for example, policy, legal, institutional
reforms, or investments) to resolve the priority transboundary problems identified in the TDA. A key
element of the SAP is a well-defined baseline. This enables a clear distinction between actions with
purely national benefits and those addressing transboundary concerns with global benefits. Another
key element involves the development of institutional mechanisms at the regional and national levels
for implementing the SAP and monitoring and evaluation procedures to measure effectiveness of the
outcomes of the process.

The following are some of the key underlying principles incorporated into the TDA/SAP approach:

 Adaptive management
 The ecosystem approach
 Sustainable development
 Poverty reduction
 Gender mainstreaming
 Climate variability and change
 Collaboration
 Stakeholder consultation and participation
 Stepwise consensus building
 Transparency
 Accountability
 Inter-sectoral policy building
 Donor partnerships
 Government commitment

These key underlying principles are described in more detail in Annex 1 at the end of this Volume.

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2.2 TDA/SAP – A history

The first TDA to be developed under a GEF funded project was the 1996 Black Sea TDA. At the time it
was considered to be ground-breaking in its approach and was subsequently used as the template for
a number of other TDAs during the late 1990’s and early 2000’s. The subsequent Black Sea SAP,
endorsed by all the countries, was less successful – it was considered to be overly ambitious and
presented the region with an almost unobtainable vision for the Black Sea that resulted in poor
implementation of the SAP over the following decade.

From 1997 onwards, a number of other GEF IW projects developed TDAs and SAPs based on the Black
Sea approach. These included Lake Tanganyika, the Benguela Current LME, the Mediterranean Sea, the
Volta River, San Juan River, the Western Indian Ocean and the Yellow Sea LME, amongst others.

At this time, the GEF developed the first set of Operational Programs4 for International Waters which
made reference to the “conduct of a transboundary diagnostic analysis (TDA) to identify priority
environmental concerns” and the formulation of “a Strategic Action Program (SAP) of actions each
country needs to take to address priority transboundary concerns5.”

In 2001, the GEF commissioned a comprehensive programme study for its then Operational
Programmes 8 and 96. The Programme Study found that the emphasis on undertaking a science-based
TDA prior to the design of a SAP was appropriate for projects in these Operational Programs. In
addition, the Programme Study found that there were a variety of ways in which a TDA could be
conducted. Some were more resource-intensive than others, but usually offered advantages in
providing greater insight and specificity, thereby providing an improved information base for the
formulation of the SAP. However, it also concluded that there needed to be more GEF guidance
regarding the nature of TDAs and the manner in which they lead to, and are distinct from, the
development of SAPs.

From 2000, a number of projects had started to develop TDAs that were different from the Black Sea
model. These included the Bermejo River, the Caspian Sea and the Dnipro River Basin. The inspiration
for these was a simplified version of the methodology developed for the Global International Waters
Initiative (GIWA). GIWA attempted to use a generic TDA methodology as a means of identifying the
likely priority problems impacts and causes in transboundary marine and freshwater basins
throughout the globe.

As a consequence of the 2001 GEF Programme Study and the development of the GIWA methodology,
the GEF, together with UNDP, UNEP and the World Bank, contracted international experts to develop a
set of more formal guidelines to assist with the preparation of a TDA and formulation of a SAP. The
GEF IW TDA/SAP “best practice” approach7 was drafted in 2002 and although it was not an official
policy document of GEF, became the de facto GEF TDA/SAP Methodology3.

In conjunction with this formalised GEF IW TDA/SAP “best practice” approach, a training course was
funded by GEF/UNDP under the UN/TRAIN-SEA-COAST Programme and developed by the Marine and
Coastal Policy Research Group based at the University of Plymouth, UK during 20038.

Since 2005, a considerable number or projects have used the GEF TDA/SAP best practice approach.
These include: the Dnipro River Basin, the Mediterranean Sea (MAP), the Kura Aras River Basin, the
Gulf of Mexico LME, the Black Sea (BSERP), Lake Chad, the Rio de la Plata (FREPLATA), the Nubian
Aquifer (NSAS), Yellow Sea LME, the Orange-Sengu River Basin, the Caribbean LME, and the Bay of
Bengal LME, amongst others3. Table 1 lists completion dates for TDAs and SAPs from a number of
water systems over the period 1996 to 2013.

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Table 1: Completion dates for TDAs and SAPs between 1996 and 2013

Water System TDA SAP

Black Sea 1996 1996
Mediterranean Sea 1997 1998
Western Indian Ocean 1998 2002
Lake Tanganyika 1999 2000
Benguela Current LME 1999 1999
1
Yellow Sea 2000 −
Bermejo River 2000 2000
1
San Juan River Basin 2000 −
South China Sea 2000 2000
1
Niger River Basin 2001 −
Caspian Sea 2002 2003
Volta River 2002 2002
1
Gulf of Honduras 2003 −
Dnipro River Basin 2003 2004
Guinea Current LME 2005 2007
Mediterranean Sea 2005 −
Lake Peipsi/Chudskoe 2005 −
1 3
Kura Aras River Basin 2006 2007
Danube River 2006 −
Lake Shkoder 2006 2007
Iullemeden Aquifer 2007 −
1 2
Gulf of Mexico LME 2007 −
Black Sea 2007 2009
Lake Chad 2007 2008
Rio de la Plata (Freplata) 2006 2007
Guarani Aquifer 2007 2009
Yellow Sea LME 2007 2009
2
Lake Baikal 2008 −
1 2
Orange-Sengu River Basin 2008 −
Tisza River − 2011
Niger River Basin 2009 2010
2
Lake Prespa 2009 −
Nubian Aquifer 2010 2012
2
Bay of Bengal LME 2010 −
Gulf of Honduras 2011 2011
2
Cubango-Okavango River Basin 2011 −
Caribbean LME 2011 2013
2
Gulf of Mexico LME 2011 −
2
Kura River Basin 2012 −

1 PDF funded
2 Not yet completed (as of January 2013)
3 Technical (draft) SAP

2.3 Examples of the TDA/SAP process in action

Black Sea Rehabilitation Project (BSERP)

This 2007 Black Sea TDA was developed in order to update the 1996/1999 Black Sea Strategic Action
Programme. The original TDA was developed in 1996, the first of its kind for the GEF. The 1996 Black
Sea TDA was a technical document, which examined the root causes of Black Sea degradation and
options for actions that could be taken to address them.

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The 2007 Black Sea TDA was expected to build on the existing 1996 document and it was anticipated
that it wouldn’t adhere to the previous TDA development process (the general model used in 1st phase
International Waters projects). The final document followed the 2005 GEF IW TDA/SAP “best practice”
approach: identification and initial prioritisation of transboundary problems; gathering and
interpreting information on environmental impacts and socio-economic consequences of each
problem; causal chain analysis (including root causes); and completion of an analysis of institutions,
laws, policies and projected investments.

TDA development was carried out with the involvement of all stakeholders using scientific cruise data,
existing monitoring information at the national level, expert meetings, international expertise, and
local knowledge from different stakeholders. During the process of TDA development, a series of
thematic reports, including a hot spot analysis, governance and institutional analysis, stakeholder
analysis, and a Causal Chain Analysis (CCA) were drafted through an iterative and consultative
process, with several versions being developed after successive consultations with international
consultants and national experts.

The TDA document, although highly detailed, logically laid out and easy to navigate, was the result of a
very time consuming and resource depleting process. Consequently, there was not enough time
available within the project to complete and endorse the SAP – not an uncommon issue within IW
projects. A solution was found that involved the development of a ‘technical’ SAP, which consisted of
the key SAP components (Vision, Goals, Actions). This document did not undergo any national or
regional consultation by the closure of the project and was passed to the Black Sea Commission to
continue the process. The SAP for the Environmental Protection and Rehabilitation of the Black Sea
was finally adopted in Sofia, Bulgaria, in April 2009.

Conclusion:
 The Black Sea TDA was the product of a very collaborative process.
 It conformed to the 2005 best practice approach.
 It was very logical, highly detailed and the data and information was quality controlled.
 The TDA was adopted by the steering committee and the participating countries.
 However, too much time was spent on the TDA (22 months) and consequently the SAP was not
completed or endorsed within the timescale of the GEF IW project.

Kura-Aras River Basin

The 2006 Kura-Aras River Basin TDA was developed during the project development phase using PDF
funding (Project Development Fund). This project was challenging due to the countries involved
(Georgia, Armenia, Azerbaijan and Iran), as well as funding levels and the project design.

Again, the TDA followed the 2005 GEF IW TDA/SAP “best practice” approach: identification and initial
prioritisation of transboundary problems; gathering and interpreting information on environmental
impacts and socio-economic consequences of each problem; causal chain analysis (including root
causes); and completion of an analysis of institutions, laws, policies and projected investments.

During the TDA development, 4 country specific reports (termed national TDAs) and a number of
thematic reports were drafted through an iterative and consultative process involving the TDA
‘technical task team’, the Project Management Unit and hired consultants (both regional and
international).

Although there was limited data and information and a lack of comparability between data sets from
upstream and downstream countries (particularly relating to flow rates and pollution loads), the TDA
document was clear, logical and easy to navigate. In addition, it was completed in approximately 12
months, partly due to good project management and partly due to a highly motivated team.

9
Due to the limited time available during the PDF phase, a preliminary SAP document was developed in
2006 (Vision, EcoQOS, Targets), which it was hoped would help bridge between the PDF phase and
subsequent Full Project implementation.

In 2012, a Full Project for the Kura-Aras River (Georgia, Armenia, Azerbaijan) commenced and an
early outcome of the project has been the revision of the 2005 TDA, using the same basic format but
with more recent, and better quality controlled data and information.

Conclusion:
 The Kura Aras River Basin TDA was the product of a well-managed, collaborative process.
 It was clear and well laid out and conformed to the 2005 best practice approach.
 The TDA was adopted by the steering committee and the countries.
 It provided a good foundation for the Full Project.
 Limited funds meant there was not enough time to fully QC data and information.
 A forceful management style resulted in delivery of the TDA but with some collateral damage
amongst the stakeholders.

Lake Chad
The objective of the Full-Sized Lake Chad project was to build capacity within the Lake Chad Basin
Commission (LCBC) and its national committees, so that it could better achieve its mandate of
managing land and water resources in the greater Conventional Basin of Lake Chad. The Project
initially ran into difficulties due to poor project management, successive project managers and a
general lack of strategic direction, particularly with reference to the TDA.

After a difficult and poorly planned start, the TDA Technical Task Team participated in TDA/SAP
training using the 2005 GEF IW TDA/SAP “best practice” approach and redesigned the TDA
accordingly. During the process of TDA development, country specific reports (termed national TDAs)
were drafted and information from these was used to develop the regional Lake Chad TDA.

There were significant issues around availability and quality of data and information (particularly
from CAR, Chad and Niger). In addition, a single consultant from Nigeria, aided by an international
consultant, drafted the TDA and there was little collaboration with the countries, beyond an initial
TDA meeting. However, the final TDA was presented in a very clear, logical and manner, within 18
months.

Based on the findings of the TDA, the SAP was completed as a regional policy framework for the Lake
Chad Basin in 2007. The SAP was a well defined, aspirational but reasonably achievable document and
as a consequence was endorsed by the Council of Ministers in June 2008. However, the Investment
Plan for SAP implementation was not developed within the duration of the project.

Conclusion:
 The final Lake Chad TDA was an acceptable document that conformed to the 2005 best
practice approach.
 The TDA was adopted by the steering committee and the countries.
 It provided a good foundation for SAP development.
 Despite many challenges, a fully endorsed SAP was produced within the timeframe of the
project.
 However, the TDA and SAP process were driven by external consultants rather than the
Project Coordination Unit (PCU) and the countries, which resulted in a lack of collaboration
and consultation.

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Rio de la Plata Maritime Front (FREPLATA)
The FREPLATA program was a bi-national initiative that culminated in the endorsement of a SAP by a
comprehensive range of 37 key stakeholders including 9 ministries, the navy, coast guards, provincial
and local authorities, and private sector representatives. This constituted the broadest SAP
endorsement in UNDP’s IW history and was a significant achievement for the GEF IW portfolio.

During the first phase of the full project, the PCU and a team of national experts developed an initial
TDA document in Spanish. This document was long (approx 300 pages), not particularly well
structured and was considered to be unacceptable for decision makers.

As a result, a TDA for policy makers was produced in 2006 that presented a non-technical summary of
the main points of the more extensive TDA published in the Spanish language. It was designed to
inform policymakers and other interested groups and to facilitate their participation in the second
stage of FREPLATA, the design of a SAP that includes specific measures to address the problems
identified in the TDA. This document conformed to the 2005 best practice approach, was reasonably
short and concise, although rather academic in places. A key to the success of this TDA was the use of
GIS maps to describe the both the transboundary problems, and their causes and impacts – something
that has not been replicated since.

Conclusions:
 The original FREPLATA TDA was overly long and difficult to navigate.
 The clever use of resources to develop a TDA for policy makers resulted in a highly effective
TDA document.
 The TDA for policy makers provided a good foundation for SAP development, which resulted in
the SAP being endorsed by a wide range of stakeholders from both countries.

Nubian Sandstone Aquifer System (NSAS)

The Nubian Aquifer Sandstone Project was launched in July 2006 with four key objectives, three of
which included: (1) The preparation and agreement on a Shared Aquifer Diagnostic Analysis (SADA) to
jointly identify and understand threats to the NSAS and their root causes; (2) The preparation of a SAP
to outline the necessary legal, policy and institutional reforms needed to address the priority threats
and their root causes as identified in the SADA; and (3) The development of an enhanced framework
for developing an agreed legal and institutional mechanism towards joint management of the shared
NSAS.

The NSAS TDA, titled as a Shared Aquifer Diagnostic Analysis in recognition that the water related
environmental problems facing the aquifer were shared or common rather than transboundary, was
developed using the 2005 GEF Best Practice approach as a starting point. The project encountered a
number of difficulties, including a lack of a PCU in any of the participating countries (the project
manager was based at the IAEA in Vienna), poor project management and a general lack of strategic
direction, particularly with reference to the SADA and SAP.

A short and rather limited TDA was produced that lacked data due to the nature of the system and the
lack of available data from the participating countries. However, it was reasonably logical, gave
direction for the SAP process that was to follow, and importantly helped the four participating
countries develop a sense of participation and collaboration during the process.

The SAP produced was a framework document that presented a vision, Water Resource/Ecosystem
Quality Objectives (WR/EcoQOs) and high-level management targets/actions associated with each
Quality Objective. The SAP process proved to be challenging but the four participating countries
endorsed the resulting SAP in 2012.

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Conclusions:
 The NSAS SADA was a short document conforming loosely to the 2005 best practice approach.
 Although limited in data and information, it provided a suitable foundation for SAP
development.
 The SAP was a high level document, again with limited detail but it was endorsed by the
participating countries.
 The TDA and SAP process needed to be driven by external consultants due to poor project
management, which resulted in poor engagement with the participating countries.

Dnipro River Basin

The Dnipro Basin Environment Programme (DBEP) project was established by the three riparian
countries to develop a TDA for the Basin and to achieve agreement on a SAP for protection and
recovery of the river and its tributaries. The DBEP project was implemented during a time of
considerable change in the region. In particular, the political and economic relationships between the
three former Soviet republics changed dramatically. A decision was reached prior to project launch
that the effort should proceed despite there being no legal basis in place for joint development and
implementation of a Dnipro SAP. Even without a formal legal basis, the DBEP created and maintained
strong country buy-in and ownership, in part due to good project management by the PCU at the time.

During the process of TDA development, nine initial chapters/reports were produced by Regional
Thematic Centres and constituted the bulk of the information for the TDA. The TDA process was
informed by the GIWA methodology as it was produced before the GEF TDA/SAP best practice
approach had been drafted. The development phase was highly participatory - all three countries were
fully involved, and there was a strong lead from the project management unit, the TDA ‘technical task
team’, and hired consultants (both regional and international). The final document, published in 2003,
was overly long (180 pages) but was very logically laid out and relatively easy to navigate, although
there has been some criticism of the overly technical causal chains.

During 2003, the ‘Kyiv Declaration on Cooperation in the Dnipro Basin’ was signed at the 5th Pan-
European meeting of European Environment Ministers in Kyiv. The Kyiv declaration signalled a
“readiness” to prepare an international agreement to serve as the main organisational mechanism for
ensuring “stable international cooperation” amongst the Dnipro Basin countries, and to define
“general principles, goals, objectives and commitments of the signatories in the sphere of Dnipro basin
environmental rehabilitation”.

SAP development commenced accordingly and due in part to the ‘esprit de corps’ developed during
the TDA phase, a full SAP document was produced which was considered aspirational, ambitious, yet
attainable. However four years later, and two years beyond project completion, the Dnipro countries
were still discussing how to proceed with the international agreement. Initially, Russia indicated its
interest to delay the agreement pending further consideration of the financial implications. Then,
during June 2007, the three environmental ministers from Russia, Belarus and Ukraine planned to sign
a “Ministerial Declaration on Further Development of Cooperation on the Protection of the Dnipro
River Basin”, including joint Ministerial approval of the Dnipro SAP. Unfortunately, the signing of the
Declaration was refused by the Russian government, resulting in a new Declaration being signed on 17
July 2007 by Ministers on environmental protection of Ukraine and Belarus. This event couldn’t be
overestimated: Ukraine and Belarus officially adopted the SAP and confirmed their joint course on
establishment of Dnipro basin international institutional management mechanisms.

Conclusions:
 The Dnipro River Basin TDA was the product of a well-managed, collaborative process.
 It was clear and well laid out and informed the 2005 GEF best practice approach.
 The TDA was adopted by the steering committee and the countries.
 It provided a good foundation for the SAP – not only technically but also due to the good
relationships that developed during its formulation.

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  The SAP document was well constructed but took a number of years to endorse and ten by
only 2 out of the 3 riparian countries involved.

Caribbean LME
The CLME Project, launched in 2009, aims to assist the participating countries from the Wider
Caribbean Region (WCR) to improve the management of their shared living marine resources - most of
which are considered to be fully or overexploited - through an ecosystem-based management (EBM)
approach. In particular, the CLME Project aims to facilitate the strengthening of the governance of key
fishery ecosystems in the WCR, at the regional, sub-regional and national levels.

During the project preparation phase (2007), a preliminary TDA was prepared which followed the
2005 GEF IW TDA/SAP “best practice” approach. However, upon commencement of the Full Project,
the TDA Technical Task Team (TTT) and the Stakeholder Advisory Group (STAG) modified the
methodology to focus the CLME TDA on specific fishery ecosystems rather than geographical sub-
regions. Three specific ecosystems (continental shelf, pelagic and reef ecosystems) were agreed as the
focus of three ecosystem based TDAs. In addition, draft casual chain analyses for the three systems
were prepared, reviewed, validated and prioritized using the Global International Waters Assessment
(GIWA) methodology.

Due to significant staff changes in the Project Management Unit during the development of the TDA,
together with the geopolitical complexity of the region (27 independent States and more than 10
dependent territories border or are located within the marine area covered by the project), the
regional TDA was delivered later than anticipated. As a consequence there was limited time available
for the development of the SAP, which was approved as a ‘high level’ document by the project steering
committee in early 2013. Country endorsement is unlikely to occur during the current project.

Conclusion:
 The CLME Regional TDA and 3 ecosystem TDAs were the product of a very collaborative
process.
 They conformed to the 2005 best practice approach but the methodology was modified to
focus the CLME TDA on specific fishery ecosystems rather than geographical sub-regions – a
unique approach.
 All documents produced were clear and well laid out.
 The TDA was adopted by the steering committee and the participating countries.
 The SAP, currently being developed, is a high level document with limited detail.
 However, too much time was spent on the TDA (24 months) and consequently it is unlikely the
SAP will be endorsed within the timescale of the GEF IW project.

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2.4 TDA/SAP – A GEF Approved Tool

“…. the GEF Transboundary Diagnostic Analysis (TDA)/Strategic Action Programme (SAP) process is
an appropriate tool for ensuring robust science-based transboundary water body assessment and
management, offering a sound methodology for linking science to policy……”

Conference Statement
GEF IW Science Conference, Bangkok, 2012

In 2011, a consultation paper was prepared during the initial phase of the IW:LEARN Full Sized Project
titled "Strengthening IW Portfolio Delivery and Impact”3. The consultation paper aimed to review the
current best practice approach and training course and provide a critical analysis of their strengths
and weaknesses prior to the revision of the TDA/SAP methodology and training course.

The findings of the paper indicated that although the current TDA/SAP approach has its limitations, it
was simple and easy to understand and relatively straightforward to apply. It also stated that although
there were areas of the methodology that required substantial changes, the overall approach was
sound and would make a good platform for a revised methodology that was fit for practice and met the
requirements of GEF, the Agencies and IW projects. It was also proposed that the revised TDA/SAP
Methodology would be drafted into a single substantive handbook or manual, which would describe all
stages of the TDA/SAP process in detail.

This manual, developed during the current IW:LEARN Full Sized Project titled "Strengthening IW
Portfolio Delivery and Impact”, presents a stepwise method for undertaking the GEF TDA/SAP
approach. It is aimed at:

 New project staff (e.g. Project Management Unit staff)

 Those tasked with developing the TDA and the subsequent SAP
 Key stakeholders, including:
o Implementing and executing agency staff
o Government officials and civil society representatives – including those who may have
to implement the SAP

It aims to be ‘non-prescriptive’ - there is no ‘standard’ approach to the TDA/SAP process: each water
system and each IW Project is unique and the resultant TDA and SAP will also be unique. However, the
manual provides a simple stepwise approach that many projects have followed over the last 10 years
and includes references and links to best practices and experiences from a wealth of completed and
on-going projects.

The manual has been developed with input from many sources: experienced project managers,
international experts, common requests from existing GEF IW project staff, requests and
recommendations from Implementing Agencies (IAs), Executing Agencies (EAs) and the GEF
Secretariat. As such, it tries to address the many demands placed on such a guide from such a wide
range of potential end-users.

It is hoped that this manual and associated training materials are: fit for purpose; simple to
understand and use; stepwise in their delivery; global in their applicability; flexible in use; relevant to
both scientists, stakeholders and policy makers; and ultimately produce good outcomes for
international water systems

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References

1. Beach H.L. et al. (2000), Transboundary Freshwater Dispute Resolution: Theory, Practice, and
Annotated References, United Nations University Press, New York.
2. Gross M.G. (1972), Oceanography, A View of the Earth. Prentice-Hall, Englewood Cliffs
3. Bloxham M.J. (2011), Consultation Paper on the TDA/SAP Methodology and Training Course,
IW:Learn
4. GEF (1997), GEF Operational Programs. GEF, Washington, 98 pp.
5. Pernetta J.C. and Bewers M. (2012) Transboundary Diagnostic Analysis in International Waters
Interventions Funded by the Global Environment Facility, Ocean & Coastal Management, 55, 1 -12.
6. GEF (2001), Program Study on International Waters, 86 Evaluation report No. 1-01, GEF M&E Unit,
Washington, D.C.
7. Mee L.D. and Bloxham M.J. (2002) The GEF IW TDA/SAP Process: Notes on a proposed best
practice approach, UNDP.
8. Bloxham M.J., Richards J.P., Glegg G.A., Cooper P., Caballero P., Mee L.D., (2005), Training Course
on the TDA/SAP Approach in the GEF International Waters Programme, First ed. University of
Plymouth, Training materials in 6 modules.

15
Annex 1: Key Principles of the TDA/SAP
Approach

16
Key Principles
The following are some of the key underlying principles incorporated into the TDA/SAP approach.

Adaptive management
Adaptive management can be defined as a systematic, rigorous approach for deliberately learning
from management actions with the intent to improve subsequent management policy or practice. For
the purposes of the TDA/SAP Approach, adaptive management can be described in 4-steps, shown in
Figure 2.

Figure 2: TDA/SAP adaptive management cycle

Simply put, the TDA/SAP adaptive management cycle involves assessing the problem (through the
TDA), formulating a strategic plan with robust indicators (through the SAP), implementing the actions
identified in the SAP and finally monitoring the outcomes, both short-term and long-term and adapting
the plan accordingly.

The Ecosystem Approach

The ecosystem approach is a strategy for the integrated management of land, water and living
resources that promotes conservation and sustainable use in an equitable way, and which recognises
that people with their cultural and varied social needs, are an integral part of ecosystems.

It is the primary framework for action under the Convention on Biological Diversity (CBD) and
comprises 12 Principles. The 12 principles have been organised by IUCN into five implementation
steps, each step involving a range of actions, all of which are fully consistent with GEF IW Projects and
the TDA/SAP Approach:

1. Determining the main stakeholders, defining the ecosystem area, and developing the
relationship between them.
2. Characterizing the structure and function of the ecosystem, and setting in place mechanisms to
manage and monitor it.
3. Identifying the important economic issues that will affect the ecosystem and its inhabitants.
4. Determining the likely impact of the ecosystem on adjacent ecosystems.
5. Deciding on long-term goals, and flexible ways of reaching them.

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Sustainable Development
Sustainable development underpins all GEF IW Projects. The goal of the International Waters focal
area is the promotion of collective management for transboundary water systems and subsequent
implementation of the full range of policy, legal, and institutional reforms and investments
contributing to sustainable use and maintenance of ecosystem services. Furthermore, sustainable
development is embedded in all 4 objectives of the IW focal area and thus the TDA/SAP Approach.

Poverty Reduction
Fundamentally, poverty is a denial of choices and opportunities, and a violation of human dignity. It
means lack of basic capacity to participate effectively in society. It means not having enough to feed
and clothe a family, not having a school or health clinic to go to, not having the land on which to grow
food or a job to earn a living, and not having access to credit. It means insecurity, powerlessness and
exclusion of individuals, households and communities. It means susceptibility to violence, and it often
implies living in marginal or fragile environments, without access to clean water or sanitation.

It is an aim of the TDA/SAP Approach to actively encourage poverty reduction or alleviation practices
to be incorporated into the SAP development process to reduce the level of poverty in communities,
regions and countries.

Gender Mainstreaming
'Gender mainstreaming' was defined by the United Nations Economic and Social Council in 1997 as 'a
strategy for making women's as well as men’s concerns and experiences an integral dimension of...the
policies and programmes in all political, economic and societal spheres so that women and men
benefit equally and inequality is not perpetuated.'

The relative status of men and women - the interaction between gender and race, class and ethnicity
and questions of rights, control, ownership, power and voice - all have a critical impact on the success
and sustainability of every development intervention.

In practice, gender mainstreaming means identifying gaps in gender equality. The problem areas
include the development of accountability mechanisms; allocation of sufficient resources; attention to
gender equality; targeting not just 'soft' areas for gender mainstreaming (such as health and
education), but also supposedly 'gender-neutral' areas, such as infrastructure development and
economic policies; and strong political commitment and will.

It is the intention of the TDA/SAP Approach to actively encourage gender mainstreaming practices to
be incorporated into the SAP development process to ensure that all individuals, male and female,
have the opportunity to participate and benefit equally.

Climate Variability and Change

Climate change is now an inescapable reality. Human activity is leading to ever increasing levels of
greenhouse gas emissions and steadily compromising the natural resources needed to maintain the
health of the planet. Without a secure natural environment, sustainable human development is
impossible. The climate change crisis has the potential to reverse development gains already made
and block achievement of the Millennium Development Goals (MDGs) if it is not adequately addressed.

Climate change has been recognised as a significant driver (or root cause) of a number of
transboundary problems in international waters– changes in biodiversity, loss of ecosystems,
eutrophication, invasive species are all affected by climate change to a great or lesser extent both
currently and into the future. Consequently, the effects of climate change (in terms of cause and
impact) need to be well understood during the TDA/SAP process to ensure that future interventions in
GEF international waters projects are both resilient and adaptive.

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Collaboration With Other Approaches
In order to reduce the replication of effort; encourage more efficient use of resources (financial, time
and knowledge); and ensure there is no conflict between approaches, the TDA/SAP process should
fully collaborate and integrate with other national, regional and international approaches, processes,
initiatives or plans that have been, or are being developed for the water system. These could include,
amongst others:

 The Large Marine Ecosystem (LME) Approach

 Integrated Water Resource Management (IWRM)
 Integrated Lake Basin Management (ILBM)
 Integrated Coastal Management Processes
 River Basin Management Plans

The TDA/SAP process should also be fully congruent with international conventions and non-
mandatory standards such as:

 Convention on Biological Diversity (CBD)

 United Nations Framework Convention on Climate Change (UNFCCC)
 Stockholm Convention on Persistent Organic Pollutants (POPs)
 UN Convention to Combat Desertification (UNCCD)
 FAO Code of Conduct for Responsible Fisheries (CCRF)

This will encourage efficient, shared practices that impact positively on the water system at a national,
regional and international level.

Stakeholder Consultation and Participation

Stakeholders are any party who may - directly or indirectly, positively or negatively – affect or be
affected by the outcomes of projects or programs. Consequently, a wide range of stakeholders are
involved in the TDA/SAP process. They can range from the Government, regulatory agencies,
businesses, communities, civil society and NGOs.

Participation can be defined as the process through which people with an interest (stakeholders)
influence and share control over development initiatives and the decisions and resources that affect
them. In practice this involves employing measures to:
 Identify relevant stakeholders;
 Share information with them;
 Listen to their views;
 Involve them in processes of development planning and decision-making;
 Contribute to their capacity-building; and
 Empower them to initiate, manage and control their own self-development.

For the TDA to be objective and the SAP effective, the TDA/SAP process must develop a shared vision
between stakeholders. It has to be accepted that some solutions may not be acceptable to all parties,
but it is imperative that those that are eventually adopted should reflect a rigorous social assessment
and be subjected to open stakeholder consultation.

Stepwise consensus building

To ensure an effective TDA/SAP Process, there is a requirement to build consensus at every step. By
including clear stakeholder representation at all stages, consensus-building is more likely, increasing
the probability that the outcome will be “owned” by the stakeholders and sustainable in the long-term.

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Transparency
The TDA/SAP process will be in the public domain. Stakeholders should agree to freely share the
necessary information and information products, taking care that full recognition is given to
information sources.

Accountability
Parties committing themselves to implementing the SAP must be fully accountable for their actions.
Stakeholder groups, sectors and government agencies responsible for implementing the actions
proposed within the SAP must be clearly and unambiguously identified.

Inter-sectoral policy building

Responsibilities for water resources development and management are often fragmented over many
sectors. Solutions should be cross-cutting throughout the decision-making process in different sectors
and at different levels.

In order to develop a pragmatic SAP, direct participation of all key sectors involved in the
transboundary problems should be encouraged, to ensure inter-sectoral policies are developed when
necessary. This involvement will normally consist of all key government ministries in the participating
countries, as well as other relevant stakeholder representatives.

Donor partnerships
The TDA/SAP process is designed to build partnerships between development partners (donors) in
order to address the identified problems and, where necessary, to assist governments to cover the
costs of baseline actions. An effective donor partnership will act as an incentive for commitment to the
SAP and avoid duplication of efforts by the donor community.

Government commitment
Endorsement of the SAP as a binding agreement between governments should be an important
management objective of the process. If the process has been conducted in a stepwise manner, this
final step is achievable. A SAP that does not involve a high level of formal commitment is unlikely to be
taken seriously as a roadmap for policy development and implementation.

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