AtacamesSpecialAreaManagement Plan Atacames-Sfa:Muisne StephenOlsen . DonaldD.Robadue, Jr. . LuisArriaga --- ---- ffsl.Dt olncrcr{E. - GoastalResourcesCenter Universityof Rhodelsland Narragansett, Rhodelsland Intemational CoastalResourcesManagement Proiect Bureaufor ResearchandDevelopment UnitedStatesAgencyfor Intemational Development €H
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Atacames Special Area Management Plan: …Atacames-Srta-Muisne According to employment estimates,approxi-mately MVo of the ZEM economy dependson activities relatedto coastalresources,while
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Foreword
TheAtacamesSpecialAreaManagementPlan is oneoffive suchplanspreparedfor theEcuadorCoastalResourcesManagementPrograrnbetween1990and |gg2. h tt * i**rpte of the work of the
USAIDruRIInternationalCoastalResourcesManagementProjectin developi)gspecialareaplansin Ecuador,Thailandand Sril^antu. TheAtncarnesplan containsa consensusviewof theproblemsand opporrunitiesfacing the residentsof thisrurat ind underdevelopedregionof Esmerafdasprov-
ince,andputsforward an integratedvisionof thepolicies andactionsthat shouldbecarried out overthenextftve yearsto movetowardsustainablewe of thearea'scoastalresources,andimproved
qualityof ltfefor coastalresidents.
Thefield staffin theAtacantesspecialarea mlnagementzone,led by coordinatorRomuloJurado,and the technicaltearn,directedby Dr. LuisArriaga" workedhard'to build public awarenessand
involvementin all stagesofplanformulation. Theadvisorycommiaeepiayedan qcfiverole inidentiftcationof issues,framing ofprobtems,formulationofpolicy,ani testingoffeasibilityof
solutions'During theplanningprocess,thegovemmentof Eciidor wasactively"seekingto deter-minewhetherparticipatorymethodswerefeasible,andwhetherpracticalmcasurestoprovidestewardshipfor coastalresourceusecould beidentifiedand tested.Implementationof a large
proportion of theactionsrecommendedin theplan are now incorporatedin aproject n befinancidby theInteramericanDevelopmentBanlgbeginningin 1994. Oinerdonorsiorirrg in Esmeraldasprovincehavealsousedtheplan andthelocalfietd officeto helpguideandcoordinate
theEcuadorcoastalprogrwn hasoverallresponsibiliry7orcarrytngoui theplan, thepermanentlocalspecial%reamanagementcommilteeestablishedbyExecutivebrrrr" SSggis expectedtoplay an
imponantrole in shapingandwerseeingtocalimplementationefforts,as well assirving o, i Torrmfor opendebateand resolutionof coastalarea useconflictsin Atacames-Stia-Muisne.ThenationalSovernmentcannotcarry outproiectsin thespecialareazonewithoutprior reviewandacceptance
by thelocal committee.
Thesuccessfuladoptionandfinancingof theAtacatnesspecialareamanagementplan andoffourothersiteslocatedin Manabi,Guayas,andEt oro proviices,offer thehopi thatsimilarconsensusdocumentscanbepreparedfor othercriticatarias of theEcuadoriancoast.However,themost
importantchallengefor thenextfive yearswitt beputting the vision,ideas,andpoliciesof thespecialareaplans into action in order to createlocal/nationalpartnershipsto achievesustainableiseso7
coastalresources-Coastalmanagersin all tropicatdevilopingcoastalnationswilt beableto learnfrom Ecuadoras itsnewexperimentin plan implementationunfolds.
Theplansreceivedfinalapprovalfromthe NationalCoastalResourcesManagementCommissionin May 1992.
Thehighlyparticipatorymannerin whichthe planshavebeenprepareddenpnstratesthat itis indeedpossibleto achieveconsensuson theproper useof coastalresources. The
planningprocesshasseruedas a meansof localself-development,andas an aid in findingsustainableusesof coastalresourcesto supportqualityof lifein coastalcommunities.
Thepresentationof thispublicationis an auspiciousmomentin thehistoryof theCoastalResourcesManagementProgram(CRMP). Thefoundationof thisnew effort has beenthe
activeparticipationof communitiesand usergroupsand interagencycoordination. This mustcontinueto be the emphasisof the CRMPin the futureto assurethe sustainabilityof thispiloteffortundeftakenby thegovernmentin itssearchfor sustainab/eusesof Ecuador's
1987 PhaseI of the CRMP. Gatheringandanalysisof existinginformationaboutcoastalresourcesin Ecuador.Extensiveconsultativeworkshops.Result:Ecuador:Prolile of its CoastalResources.
1988 Phase2 of the CRMP. Designandextensiveconsultationconcerningthestructueandobjectivesofcoastalmanagementin Ecuador.Manifestoof supportfromtheauthorities,managers,andrepresentativesof thecoastalcommunities,andrequestto thepresidentandvice-presidentto establisha governmentalprogramfor therationalmanagementof coastalresources.Result:Structureand Objectivesfor theCoastalResourceManagementProgram in Ecuador,July 1988.
1993 Phase4 of the CRMP. Publicationof ExecutiveDecree3399,strengtheningthestructureof theCRMP.Issuanceof internalregulationsgoverningtheoperationsof theSpecialAreaManagementZonesandthe
ThezonebetweenTonchigueandGalerahasadry tropicalctmate,with anaveragetemperatureot23 to 25 degreescentigradeandanannualaverageprecipitationof between1,000and1,500mm. Therainyseasonis from Decemberto May, andthedry seasonis from JunetoNovember,with precipitationonly in theform ofa verylight drizde.
TheZEM populationis approximately27,000inhabitants(1990),who live within thefollowingvillages:
Chapbr IBvolution of the ZEM ProcessinAtacames-Srta-Muisne
According to employment estimates,approxi-mately MVo of the ZEM economy dependsonactivities relatedto coastalresources,while 36Vois a combination of short-term agriculture,pennanentplantations,and extensivecattleraising.(Figure 1.2-2).
ration amongresourceusersregardingmanage-mentnorms. For example,the annualbansonshrimp fishing lack effective enforcement,andthe fishermen who are expectedto comply arenot provided with an explanationof what thehardshipof a ban is expectedto accomplish.The larvae fishermen continue to captureyoungshrimp,and laboratoriescontinueto purchaseimpregnatedfemales during closed seasons.Asimilar pattern occurswith lobster-and crab-fishing bans. Industrial vesselsalso frequentlyoperatein areasreservedfor artisanalfishing.
As in the control of developmentin urban areas,the rules governing usesof recreationalareasarenot well developed. In the caseof control ofbeachuseandconflict resolutionbetweensec-tors, only very simple guidelinesexist, and theyare enforced only sporadically, without the
support of educationalawarenesscampaigns.
There are notablevariations among theZEMcommunities regarding the extent of local par-ticipation in the construction of potablewatersources. The variations have greatly affectedthe
successof thesevital projects. In Atacames,Tonsupa,and Sfa, the structureand managementof a committee promoting water supply improve-mentsresultedin the constructionof an emer-gency systemuntil the regional potablewatersupply project is implemented. The estuariesofPldtano,Quingue, and Cabo SanFranciscohavewater sourcesbuilt by EcuadorianInstitute forSanitaryWorks with community participation.Boards of PotableWater, formed by residentsofeachcommunity, are in chargeof the manage-ment of the systems.In contrastwith theseprojects,which have worked relatively well, is
one in Muisne: This project, servedby a sourcebuilt by IEOS without community participation,is not performing properly and hasan inadequatemanagementsystem.
ChaptorIEvolution of the ZEM ProcessinAtacames-Sia-Muisne
1.4 Developmentof the ZEM Processin Atacames-Sfia-Muisne
The initial activities of the CRMP in theAtacames-Sfa-Muisnezonefacedsomeresis-tanceand distrust due to a history of unfulfilledpromisesof assistanceprogramsand actionsthatwould benefit the area. The processof preparingthe ZEM plan included the organizationofmeetingsand workshopsto analyzninformation,determineproblemsandconflictsin the useofresources,and selectalternativesand priorities.This time-intensive processgenerateda partici-patory work systemand a greaterawarenessofthe managementand rational useof resources.Italso createdmore credibility and supportfor theCRMP, which will facilitate the implementationof the activities of the ZEM's ManasementandDevelopmentPlan.
The stepsfollowed in the Atacames-Sfa-MuisneZEM processcan be summarizedasfollows:
a) Selectionof the Atacames-Sfa-Muisneareaas a Special Managementzone (ZEM) basedon the "Profile of CoastalResourcesofEsmeraldasProvince" analysis
b) Formation of the ZEM Advisory Committee,which included 23 distinguishedresidentsofthe community and representativesof impor-tantZEM activities. The organizationof thecommittee(January1990)includeddefiningresponsibilitiesand guidelinesfor its opera-tion
c) The organization of the ZEM ExecutiveCommittee, under the managementof thegovernor of Esmeraldas,integratedwith thefollowing provincial authorities:PrefectofEsmeraldas;Chief of ForestryDistricqProvincial Delegateof the national tourism
An intensiveeffort of disseminationandpubliceducationwascarriedoutin conjunc-tion with thetechnicaldiscussionsandfocusedonenvironmentalproblems,conser-vationof resources,andpromotionof theZEM developmentprocess.Teachertrainingandschoolactivitiesattheprimaryandsecondarylevelswerealsoincluded
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Clupbr 1Evolutian of the ZEM ProcessinAtacames-Srta.Muisne
An importantactivityin theZEM processwastheimplementationof the"PracticalExercisesin IntegratedManagement".Theseincludedlow costprojectsor activitiesdesignedto addresspriority problemsin thecommunities.The selectionof "exercises,"controlof theirexecution,evaluationof theresults,andnecessaryfollow-upweredoneby theAdvisoryCommittee,with personnelsupportandconsultantsfrom theCRMP.The objectiveof theseexerciseswastrainingof theAdvisoryCommitteeandthecommu-nitiesfor carryingoutmorecomplextasksthatwill takeplacewith theimplementationof the ZEM developmentplan.Someof theseexerciseswere:
- Organizationof a "commissary"for thesaleof fuel, lubricants,andmaterialsfortheTonchigueartisanalfishermen
Organizationof a "Folkloric Music andDanceGroup"with theparticipationoftheSchoolof Tourism,"EstrelladeMaf," of Atacames
Organizationof a groupof "touristguides"for thewalksin the mangrove
Useof themangrovefor energyrc-sources.Thisexerciseinvolvestheuseof20ha of mangroveforestperyearin arotatingcycleof 10yearsfor theproduc-tion of charcoalandfirewood.The cycleincludesthereforestationof exploitedlotsandtheproductionof charcoalinmetallicovens,which aremoreefficientthanthetraditionaldirt ovens.Theparticipantsin this exercisearetheproducersof charcoalandfirewood in theMuisneRivermangroveestuary,whohadbeenindiscriminatelydestroyingthemangrove.
Clnpbr IEvolution of tlu ZEM hocess inAtacames-Sta-Maisne
To date,the"ZEM Process"hasgeneratedpositivebenefitsin theconstructionof a newcoastalplanningsystem,in whichthecommuni-ties,governmentauthorities,andresourceusershaveparticipatedandshareimplementationresponsibility.As theexercisefor theprotectionof theAtacamesRivermangrovedemonstrates,aneworientationis emergingin theZEM favoringtheachievementof importantgoalsfor theconservationof theecosystems,whichmeanstheattainmentof continuedproductivityfor theenvironmentandlocaleconomy.
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lrChapter 2
This plan is an important tool to strengthenthelocal capacity to achievethe developmentobjec-tives of theZBM. It is a framework createdwiththe help of user groupsand coastalcommunitiesto guide their joint efforts to implement thespecific resourceprotection,rcstoration,andappropriateuseprojectsincluded in the plan.
COMPONENTS OF TIIEATACAMES ZE|MPLAN
2.LObjectivesof the ManagementPlan
a) To formulateandimplementthroughahighlyparticipatoryprocesssite-specificresourcemanagementstrategiesthatinte-grateconservationanddevelopmentasmutuallyreinforcingactions
b) To initiateandstrengthencommunity-levelformsof governmentcapableof implement-ing suchintegratedmanagementstrategies
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2.2 Preconditionsfor Implementation
In order to ensurethat conditions for the success-ful implementation of any actionsare present,the following preconditionsmust be met:
a) Participation of the community in planningthe action and community commitments toits implementation and maintenance.Evi-denceof suchparticipation may includeformal commitmentsof labor,cost-sharing,and formal agreementsto abide by manage-ment strategies
b) Demonstrationof acceptanceof any agree-mentswith municipal authoritiesand theRangerCorps necessaryto the successof theproject
c) Demonstrationthat needsfor training re-quired to carry out and sustainthe activity orfacility have beenidentified and provided for
Theplanfor theZEM givespriority to thefollowing issues,takinginto accountthecharac-teristicsof eachpartof theZEM, its communi-ties.andtheconditionof its coastalresources:
a) Managingshoreuses
b) Managingandpromotingtourism
c) Improvingwaterqualityandcommunitysanitaryconditions
d) Managingfisheriesresources
e) Managingmariculture
0 Managingsmallcoastalwatersheds
g) Developinglocalinstitutionalcapacity
Six aspectsof eachissuearetreatedin theplan:
a) Importanceandmanagementoptions
b) Characteristicsof thesector
c) Principalmanagementproblems
d) Objectives
e) Policiesandspecificactions
0 Expectedresultsfrom implementation
This chaptersetsforth theoptionsfor managingcoastalresources,andtheresourcemanagementpolicesandspecificactionsacceptedby localcommunities,resourceusers,andauthorities.Thefocusof theproposedactionsis on stepsthatcanbetakenin thenext four yearsandthatcan
Cruptur2Componen&of theAtaconesZEMPlan
contributeto maintainingor improvingthecapacityof coastalenvironmentsto provideeconomicdevelopmentandqualityof life for theresidentsof theZEM.
a) Zone-wideprojectswhichwill provideabenefitto theentireZEM; for example,actionswhichstrengthentheinstitutionalstructure,publiceducation,andoutreach
b) Communityprojectsaimedat resolvingspecificlocalproblems;for example,buitd-ing latrines,collectingsolidwastein smallvillages
c) Integratedmanagementprojecs for a coastalwatershed,suchashillsidereforestation,family gardens,agriculturedevelopment.Theseinitial effortswill permitworkingprogressivelytowardlanduseplanningand
2) projectsaimed at directly solving a fundamen-tal problem in the ZEM.
This plan is a meansfor working out new tech-niquesand planning policies that can be appliedto other coastalareasand eventually to thenational developmentProcess.
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Chapter2Componmtsof theAtacancs ZEM PIan
Fig.2-la Main featuresof thecoastof theAtacames- Sta - MuisneZEM,Atacamesarea.
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Chapter2ComponenEof theAtrcones ZEM Pbn
Fig. 2-lb Main featuresof the coastof the Atacames- Sua- Muisne ZEM, Galeraarea.
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Crrapter2Components of the Atacames ZEM PIan
Fig.2-lc Main feanrresof thecoastof theAtacames- Sua- MuisneZEM, Muisnearea.
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Chapter3
3.1 Management of the Coastline
A. Importance and OPtions
Thecoastlineis theresourcethatcreatedtouristactivityin the ZEM andmaintainsthetraditionalfishingactivity. Thebeaches,landscape,estuar-ies,cliffs, andmangrovesform ttrebaseonwhichtourismandestuaryfisheriesdepend.
If thedevelopmentof thecoastlineis notwell-managed,economiccostsandsocialconflictswill increasesignificantly,andthepotentialtosupporttouristactivitycanbedestroyed.Specifi-cally,improperdevelopmentof thecoastlinehascausedor couldcausein theZEM:
- Lossof lives of swimmersandriskstorecreationalusers
B. Characteristicsof the Sector
Fromnorttrto south,thecoasthaselevatedandlowercliffs borderedby sandybeaches.A seriesof streamsfed by smallbasinshascreatedplains
KEYMANAGEMBNTISST]ES,POLICIES,AND PROJECTS
of fertileland.Thesedimentsof theserivers,andthenaturalerosionof thecliffs andtheirrockyplateaus,feedthebeaches.Thecliffs areun-stableandinappropriatefor anykind of con-struction.
mately 840 ha of mangroveswere reduced(from3,282hato 2,446ha) in the Muisne River estu-ary-
The destructionof mangrovesin Muisne hascontinuedsince 1987. Additionally, traditionalmangroveusefor charcoalproductionstillpersists.The productionof charcoalfrom man-grove wood in the Muisne zoneis approximately1,200,000poundsper year.Anothertraditionalactivity in Tonsupaand Atacamesis the extrac-tion of "blue crab". An abundanceof crabsandshellshasexistedin the BuncheandMuisnemangroves.
C. Important Management Problems
The diversity of coastlinefeaturesof theAtacames-Sf a-Muisne ZEM reflectsthe varietyof problems found along the entire Ecuadoriancoast.Thesecan be summarizedasfollows:
- Constructionof touristresidencesincoastalsanddepositsformed by the stormsurgesof "El Niflo". Constructionover ornear eroding beaches.Constructioninactive unstablebarrier spits adjacentto tideentrance.Extractionofbeach sandorbermsthat absorbwaves,causingerosion.
- Developmentof shrimppondsandcon-struction of flooded zones.Disturbanceofthe natural drainage,causingflooding ofresidential,construction,and agriculturalareas.Filling of small coastallakes and softgrounds,including mangroveareas.
Certain ZEM areashave beachesof black sandrich in minerals of substantialeconomicvalue.Someof thesebeacheshave beencompletelydestroyed,causing severeimpacts on fishingactivities and the scenicvalue of the zone. This
Chapter3KeyManagementIssues,Policies,and Projects
exploitation continueswithout a managementstrategy.
By far the most dramatic changeto the estuariesof the ZEM andthe traditional way of life israpid and continuousdestructionof mangrovewetlands,causedprimarily by the construction ofshrimpponds. This destructionhasbroughtthevirtual disappearanceof once important fisheriesfor mangrovecrab, conch, and oyster, and thetimber that supportedcharcoalproduction. Asrecently asthe 1970s,mangrovefisheries andcharcoalproductionwere a major sourceofincome for residents.In Muisne, and to a lesserdegreein Atacames,the shrimp ponds haveproducednegligible employment.Both the pondownersand their employeesare almost allnewcomersto the area.
The destructionof the mangrovesalso resultsina large reduction of habitat for the wild shrimpthat arethe basisof the shrimp maricultureindustry. Mangrovesplay a major role as anaturalfilter, absorbingand treating nutrientsand other potential pollutants. Yet, this watertreatmentcapacityis being lost at a time whenpopulation and human wasteare increasingrapidly. The destructionof mangrovesalsobrings major deteriorationof scenicvalues andthe tourism potential of the area.
The Atacames-Sria-Samearea,whose roadsarethe oldestin the ZEIN|,is threatenedby majordamagedue to improper infrastructureconstruc-tion and the effects of the natural erosion andflooding.
When the seasonalroad that borderstheTonchigue- Bunchecoastis paved,the intensityand characterof the zone's developmentwillchangenoticeably, and control and managementof land usewill be more difficult.
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A commonproblemthroughoutthe ZEM is
continuous deforestation.This will have a great
impact on the coastalstrip, causing:
- loss of scenicvalue
- advanceof desertification
- loss of possibilities for tourist diversifica-tion
The specific problems of the Atacames-Sria-
Clupter 3KeyManagementIssues,Polbies, and Proiects
Muisne coastinclude:
instability of cliffs and other slopes
changesin the rivers' mouths,causing
restrictionson navigation
habitat destructionof estuaryspecies,causedby fast sedimentationand changesin the flow of clean water.
and a reduction of freaticos levels
(a) Impact of the poor siting of roadsand urban development
Castelnuovo Constructionof touristresidencesin overwashareasduring "El Niflo"
Atacarnes Constructionin flooding areasduring "El Niflo"; lack of building regulations;constructionon unstablebarrierspis; filling of smallcoastallagoons;destructionof
Reducedquality andquantityof fish of highercommercialvalue(snapper,porgy)
Scarcityof shellfish
Conflicts in theuseof areasfor crabandshellcollectionamongshrimpgrowersandshellfishcollectors
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inappropriatelocationof roads,buildings and shorelineprotectionstructures
3. Preserveand restore(wherepossible)important natural habitatsand coastalfeaturesthat are prerequisitesforsustainabletourism
4. Assurepublic accessto (andalong)the shore
E. Specific Policies and Actions
Although the Atacames-Sria-MuisneZEM stillmaintains most of its rural character,the exploi-tation of its beachesduring the last ten yearshasseverelydeterioratedsmall estuariesand man-groves-the natural resourcesupon which thelocal economydepends.Hence,theZEM needsstrong policies to protect what is left of coastalresources,and to start the long andexpensiverecuperationprocessof severelyaffectedareas.
The loss of mangroveshasbecomea criticalmanagementissuefor the ZE::M.The new ap-proach developedby Ing. Alejandro Bodero andthe Mangrove Work Team of the CRMP pro-posesfour elements:recuperation,protection,public education,and rational use.The activitiesto promote awarenessand supportfor mangrovemanagementstartedin 1990with the designofspecific plans for the Atacamesand Muisnemangroves.
The AtacamesRiver Mangrove Plan was initi-atedin 1990 through a "practical exerciseofintegratedmanagement"that included: reforesta-tion; recreationand environmentaleducationthrough field rips to the mangrove,the river'sestuary,and shrimp ponds; protection of the 50ha of mangroveremaining in the estuary;clean-
Chaptcr iKey Management Issues, Policies, and Projects
upcampaignsandsystematiccollectionofgarbagedumpedon theriver'sshore.Theseinnovationsareconductedby local peopleandinstitutions.
TheMuisneRiverMangrovePlanincludes:organizationof mangrovecharcoalproducers;improvementof technologyby usingmetallicovensthatincreaseoutput;limitationof man-grovewoodextractingarea;establishmentofreforestationcyclesto maintaindesignatedareasfor theattainmentof raw materialfor charcoalproduction.
Policy3.1.1Constructionof buildings,roads,hotels,restaurants,houses,andparking areasmustnot beallowedin hazardouscoastalareaswheredamageor lossof hfe is highlyprob-able,includingerosionzones,or in thezonefloodedby theEl Nifiostormsof 1982-1983,asdeterminedby theoverwashline. Wher-everpossible,setbaclcsandalternatesites,ratherthanseawalls,brealsrtaters,andriprap,shouldbeemployedtoprovideprotectionfor water-dependentfacilitiesfromwavesandcunents.
Thespecificactionsto implementthispolicyinclude:
3.rJ(r)hning and designationof coastal use
Zoning of the ZEM coaststrip to assigngrounduseand marine spaceadjacentto the shore.
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Establishmentof rules (includingmunicipalregulations)aimedat: strict enforcementofdesignatedlimits; restrictionsfor future urban-ization andfilling of estuaryandmangroveareas;and establishmentof limits for urbandevelopment.The urbandevelopmentandregulationfor the coastalstrip will be basedonbalancingwatertransportationneeds,accesstofishing, balancingcommercialactivities,and,especially,the environmentalquality of theMuisne, Sria,and Atacamesriver estuaries.
Developmentof mapsshowingthe zoningofpresentterritorial use and marking risk areasandintensiveprocessesof the coastline,suchas:lines of maximum flooding of "El Niflo;" nar-rows andother sitesof increase:erosion;un-stablecliffs; physiographicelementswith risk oferosionandcollapse.Presentationof this plan tothe appropriateauthoritiesfor approval andexecution,including training programs,publiceducation,and the necessarysupportfor itsimplementation. (SeeSection4).
3.1.1(2)Normsfor constructionin thecoastline
Developing norrnsfor constructionof bridges,water transportationservicesand economicactivities that require direct accessto the coast-line. The purposeof this is to minimize theimpact on coastalecosystems.Determining theminimal distancesfor constructionin relation tothe annualrate of erosion in the critical zonesofthe coastline.
3.1.1(3)Protection of the coastline
Development of necessaryregulationsand othernonns to: avoid dumping residualwatersand
ChapteriKeyManagementIssues,Policics,and Projects
untfeatedwasteon the beaches;ensurethat pipesare buried to avoid exposure;ensurethat dump-ing and seawaterintake are locatedoutside thebreakwaterzone.The regulationswill attempt toprohibit modifications of natural drainagepat-ternsof the rivers in the estuariesand in thecoastline.Whereverpossible,andespeciallyinflooding areaswhere shrimp pondshave beenbuilt, specific projectswill be designedto restorenatural drainagechannels.
3. Preserveand restore(wherepossible)important natural habitatsand coastalfeaturesthat are prerequisitesforsustainabletourism
4. Assurepublic accessto (andalong)the shore
E. Specific Policies and Actions
Although the Atacames-Sria-MuisneZEM stillmaintainsmost of its rural character,the exploi-tation of its beachesduring the last ten yearshasseverelydeterioratedsmall estuariesand man-groves-the natural resourcesupon which thelocal economydepends.Hence,theZEMneedsstrong policies to protect what is left of coastalresources,and to start the long and expensiverecuperationprocessof severelyaffectedareas.
The loss of mangroveshasbecomea criticalmanagementissuefor the 7EM. The new ap-proach developedby Ing. Alejandro Bodero andthe Mangrove Work Team of the CRMP pro-posesfour elements:recuperation,protection,public education,and rational use.The activitiesto promote awarenessand supportfor mangrovemanagementstartedin 1990with the designofspecific plans for the Atacamesand Muisnemangroves.
The AtacamesRiver Mangrove Plan was initi-ated in 1990 through a "practical exerciseofintegratedmanagement"that included: reforesta-tion; recreationand environmentaleducationthrough field trips to the mangrove,the river'sestuary,and shrimp ponds; protection of the 50ha of mangroveremaining in the estuary;clean-
Chaptor iKey Management Issues, Policies, and Proiects
upcampaignsandsystematiccollectionofgarbagedumpedon theriver'sshore.Theseinnovationsareconductedby local peopleandinstitutions.
TheMuisneRiverMangrovePlanincludes:organizationof mangrovecharcoalproducers;improvementof technologyby usingmetallicovensthatincreaseoutput;limitationof man-grovewoodextractingarea;establishmentofreforestationcyclesto maintaindesignatedareasfor theattainmentof raw materialfor charcoalproduction.
Policy 3.1.1Construction of buildings, roads, hotels,restaurants,houses,and parking areas mustnot be allowed in hazardouscoastal areaswhere dnmageor lossof hfe is highly prob-able, including erosion zones,or in the zonefloodedby the El Nifio stormsof 1982-1983,as determinedby the overwashline. Wher-everpossible,setbacl<sand alternate sites,rather than seawalls,brealcwaters,andriprap, should be employed to provideprotectionfo r water-dep endentfac i.lities
from waves and currents.
The specific actionsto implement this policyinclude:
3.1J(r)hning anddesignationof coastaluse
Zonng of theZEM coaststripto assigngrounduseandmarinespaceadjacentto theshore.
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Establishmentof rules (including municipalregulations)aimedat: strict enforcementofdesignatedlimits; restrictionsfor future urban-ization andfilling of estuaryandmangroveareasland establishmentof limits for urbandevelopment.The urbandevelopmentandregulation for the coastalstrip will be basedonbalancingwater transportationneeds,accesstofishing, balancing commercial activities, and,especially,the environmentalquality of theMuisne, Sria,and Atacamesriver estuaries.
Developmentof maps showing the zoning ofpresentterritorial use and marking risk areasandintensiveprocessesof the coastline,suchas:lines of maximum flooding of "El Niffo;" nar-rows and other sitesof increase:erosion:un-stablecliffs; physiographicelementswith risk oferosion and collapse.Presentationof this plan tothe appropriateauthoritiesfor approval andexecution,including training programs,publiceducation,and the necessarysuppoft for itsimplementation.(SeeSection4).
3.1.1(2)Normsfor construction in the coastline
Developingnorrnsfor constructionof bridges,water transportationservicesand economicactivities that require direct accessto the coast-line. The purposeof this is to minimize theimpact on coastalecosystems.Determiningtheminimal distancesfor constructionin relation tothe annualrate of erosion in the critical zonesofthe coastline.
i.t.t(3)Protection of the coastline
Development of necessaryregulationsand othernorms to: avoid dumping residualwaters and
Chapter 3Key Management Issues,Policics, and Projects
untreatedwaste on the beaches;ensurethat pipesare buried to avoid exposure;ensurethat dump-ing and seawaterintake are located outside thebreakwaterzone.The regulationswill attempt toprohibit modifications of natural drainagepat-ternsof the rivers in the estuariesand in thecoastline. Wherever possible,and especially inflooding areaswhere shrimp ponds have beenbuilt, specific projects will be designedto restorenatural drainagechannels.
Improvement of the Same-Tonchigue-Galera-Bunche-El Relleno de Muisne coastalroad whilerespectingthe zone's coastalprocessand touristpotential,with particular attentionto the remain-ing primary forestsand scenicbeauty of thecoastline.
Sincethe presentdesignonly reachesBunche, itshould be extendedto El Relleno de Muisne. Theentire road should be permanentand paved.
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Policy3.1.2AII mangroveforestsandfringeswill beprotectedandconservedin orderto sustainandenhancetheir role in theestuarineecosystemsof theZEM asfisheriesandwildlifu habitat,theirvalueasa renewableenergysource,andtheir contributionto theattractivenessof theZEMfor tourism.
Programfor the developmentof tourism throughwalks in the mangroveand estuary.There areassociatedcampaignsand actionsfor the clean-up of the estuary,garbagecollection,andelimi-nation of wastedisposalto restoreand maintainwater quality in the estuary.Development ofcultural actions,such as the disseminationoflocal folklore (marimba) and mangrovewalksfor students.This involves follow-up actionstothe "exercise" initiated in 1990.
Continuousawarenessand educationalprogramsregardingthe ecological role, economic value,and appropriatetechnology for sustainablemangroveusedirectedatZEM residents,schooland college students,and mangroveusersinadjacentareas.
The program should include the establishmentoflibraries inZEM communities, training of localpersonnelin library management,and promotionof the permanentuseof the libraries to reinforceknowledgeof mangroveresourcemanagement.
3.1.2(10)Reforestationof the Muisne River mangrove
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Reforestationof 200 ha of mangrovein differentplacesof the Muisne River estuarybetweenBuncheand El Firme estuary.
A secondphaseof reforestationwill be carriedout in the El Firme-SanGregorio area,where thedestructionhasintensifiedin recentyearsduetothe constructionof shrimp ponds.Reforestationwill alsotakeplacein abandonedshrimpponds.
3.1.2(11)Protection of the Muisne River mnngroves
Developmentof a managementplan for theconservationof naturalresourcesof the ecosys-tem of the Muisne River estuary,including:enforcingpresentlegal normsand new regula-tions from the Muisne municipality to protectmangroveand mangrovestrips adjacenttoshrimpponds;conflict resolutionamongusersofecosystemresources(larvae,shrimpgrowers,artisanalfishermen,charcoalproducers);trainingand negotiation on the shareduseof resourcesthroughworkshopswith thoseinterestedinconservationand resourcesutilization.
3.1.2(12)Useof mangrovefor energycreatingpurposes
Promoteefficient techniquesin the productionofmangrovecharcoalin Muisne throughforestrymanagementof 200 ha of mangrove(rotatingcyclesof cutting and replantingmangroveusingsmall lots of about20 ha per year).This actionisdesignatedfor local families that traditionallyproducemangrovecharcoal.
Chapter3KeyManagementIssues,Policies,and Projects
Policy 3.1.3Public accessto the shorefor tourism,recreation,fishing, and boating must beprotectedthroughoutthe shoreline.Therightof lateral passageup to the high tide linemustbe guaranteed.Specificaccesspoints tothe high tide zonemust be identified andprotected.
The specificactionsto implementthis policy are:
s.1.3(13)Public accesszoneto the coastline
Preparationof a policy to proposea public zoneadjacentto the coastlinethat will guaranteeaccessandprohibit construction.The conditionsand proceduresto authorizeconstructionin thiszonewill be determinedand limited to excep-tional cases.
i.1.3(14)Policy of accessto the coastline
Creationof an inventoryof traditionalcoastalaccesspoints;preparationof mapsmarking thesepointsandtheir establishedlegal condition. TheZoneCommitteeof the CRMP will carry out aconsultativeprocessandmediationto establishagreementswhen thereis conflict betweengroupsthat require coastalaccessand owners ofadjacentland, for example. Designswill beestablishedto meetdemandsfor placesthatrequirespecialpublic accessfacilities, suchasbeachesof high tourist demand,intensetishingactivity, or commercialpiers.
F. ExpectedResults
The aboveactionsarecloselyinterrelatedandonceimplementedshouldproducethe following
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Chopter3KeyManagementIssues,Policios,and Projects
major improvementsin the useand managementof the shoreline:
Implementationof detailedproce-duresandstandardsfor shorefrontmanagementof the entireZBM
Assuranceof continuedpublicaccessto theshore
3.
4.
5.
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The Atacames-Sria-MuisneZEM has27 km ofbeaches,and its resortshave amongthe highesttourist demand. Atacamesand Sria,in particu-lar, areresortsofnational and internationaldemand.with visitorsfrom the Fruadoriansierra and the coast aswell as Colombiansfromcities adjacentto Ecuador.No lessthan one-fourth of the economically active population (anestimated1,700inhabitantsin 1989)is directlyinvolved with the tourist sectorof the ZEM.
The impact of tourism on the local economyisreflectedin the high cost of living. This is aresult of the constantincreasein the transientpopulation, which in turn increasesthe demandfor goodsand servicesand producesenviron-mentalproblems.
Besidesthe quality of the beaches,tourists areattractedby the exuberantnature and richnessof black folklore with its diversity in music,dance,and handicrafts.
Local businesspeople feel that the growth intourism will continue in the next decade,in-creasingemployment and developmentofhousing and hotel establishmentsin PlayaAncha,Tonsupa,andCastelnuovo.This willincreasethe demandfor medium- and high-quality tourism, internal and foreign tourism,and for high-volume recreationin Atacamesand Sfa.
Sameis a specialcase. This areahasa concen-tration of strong private investmentin high-incometourism.However,the location of fiveshrimp larvae laboratoriescould affect the futuredirection of tourism on this beach.
The Muisne island at the southend of theZEMhaspotential for recreationand tourism. How-ever, the characteristically beautiful naturalsceneryof the ideal tropical beach,with its sand,palm trees,and tranquillity, is accompaniedbythe lack of basicservicesand policies to controlenvironmentaldegradation;the latter is begin-ning to appeardue to vacation facilities and theunregulatedsaleof food.
The needto plan Muisne's tourist and urbandevelopmentis evident. This island has a uniqueatmospherethat harmonizesthe natural scenerywith the restorationof surroundingsof particulararchitecturaland cultural value. Muisne shouldhave its own identity, associatedwith the imageof a peacefulandrestful corner connectedwithnature,where pedestriansare privileged andautomobile accessis limited.
An immediate problem is the saturationin useofAtacamesand Sriabeaches.This is why thereisa needto diversify recreationaloptions in theZBitd. Options might include seatravel fromSfa to Muisne, the use of the Atacamesman-grove for tourism, visits to areasthat still haveprimary forests,excursionsto the caves,familytourism in Muisne, expandedaccessto handi-crafts, etc.
The introduction of tourism to small communi-ties will require that they be provided with basicservicesand equipment,including fire preven-tion andcontrol.
3.2 Managementof the BasisofNatural Resourcesfor TouristDevelopment
A. Importance and Options
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B. Characteristicsof Tourism
1. Tourist FacilitiesandActivities
The developmentof tourism in Tonsupa-Atacames-Sfa was initiated in the 1960s.Theconstruction of the first hotels and restaurantsstartedin the mid-seventies.During the eightiestourist promotions and facilities grew signifi-cantly, especially real estateand hotel invest-ment. Presently,urbanizationand building ofvacation homeshave increasedthroughoutthecoastalzone.
The ZEM's total capacity for visitors in 1989was 89 establishments;1,561roomsand 5,934beds(Parraand Landivar, 1989).The distribu-tion was asfollows:
The Atacames-Sriaareahasalso developedtheso called "vacational complexes" operatedbybank entities and private and public institutions.There are also vacation sitesand family resi-dencesmanagedby organizationssuchastheCatholic University and National Army.
Opportunities for water recreationin the ZEMare very limited. There are no installationsforsailing,suchas marinasor clubs.Sportssuchassurfing, wind surfing, fishing, or diving havenotbeenpromoted.
The Tonsupa-Castelnuovosectorshowsa notice-able increaseof land subdivisions.Six subdivi-sions have beenidentified that occupy about 16
ha with a total of 320 vacation lots. Vacationfacilities in Samearecharacterizedby largersiteswith extensivebeachfronts.
The increaseof shrimp exploitation competeswith tourism becauseit occupieslarge areasofbeachfrontfor the installation of post-larvaelaboratoriesand grow-out facilities as well asinterior land for pond construction.
Installation of shrimp laboratoriesandwater intake and dischargepipes on touristbeaches
Deterioration of tourist image of theAtacames-Sriazonedue to socialproblems,mainly drug addiction, delinquency,andbeggingchildren;in addition,excessivenoise from night entertainment,whichdisturbstranquillity
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Chaptcr 3Key Management Issues, Policios, and Projects
2. Characteristicsof the ZEM's tourist beaches
Beach Surrounding Form sand water NegativeCharacteristics
Playancha Pastures,estuarywith palms, open Light gray semituxbid Rocksflatlandatbeachlevel
Tonsupa Pastures,estuary,embankmenl Open Light gray Turbid Logs.hashrustichouses,pipes,labs
Castelnuovo High palms,mouthof Atacames Open Darkgray Semiturbid Logs,trashriver,dunes,villages,hotel,urban atea
Atacames Palms,contaminatedestuary, Open 4 km Dark gray Turbid Logs, hashsborefront sheets,constuctionwithout rules
Sfa High and low bluffs, contaminated Closed Dark gray Turbid Logs, debris,estuary, shorefront streets,consffuction hashwithout rules
Same Palms, dunes,mangrove estuary, Open Light sepia Semitubid L,ogs,stonerockscliffs, rock, cabafras,hotel,dischargepipes, shrimp labs
Tonchigue High and low bluffs, shoreline open Dark sepia Turbid Logs, stonefilling, shorefront steets, rustic debris. hashhouses,vessels.abandonedwharf
Muisne Palms over dunes,low vegetation, open Light gray Semitubid Logs, hasbcabafras,rustic kiosks, concreteseawall
Lack of basicinfrastructure,especiallypotable water, sewagetreatment,garbagecollection, and telephoneservice
Speculationand increaseof land value inthe coastalstrip, pafticularly in theTonsupe-Samearea
Conflict betweenshrimp larvaefishers andtourists over the useof SriaBeach
D, Objectives
l. Reanangetourist-recreationalloca-tionsandactivitiesto reestablishattractivenessandenvironmentalconditionsof theAtacames-Sriazone
Tourism is the most important sectorof thecoastaleconomyof the Atacames-Sfa-MuisneZEM, secondonly to agriculture. The successoftourism hasdependedon severalfactors, suchasthe proximity of the areato Quito and Colombia,and the physical beauty and culture of the region.Thesefactors have generateda rapid increaseinvacation homes,developmentof coastalprop-erty, and land speculation.This growth did notmotivate the preparationof a solid program fortourismplanning.
Someimportant stepshave alreadybeentakenthrough theZEM processto addresstourismdevelopmentissues. A characterizationoftourism in the ZEMs was preparedjointly withthe EcuadorTourism Corporation and NationalPlanning Agency, followed by a detailedmarketstudy of the Atacames-Sria-Muisnearea.At thesametime, local initiatives havebegunto ad-dressthe problems of environmentalcontamina-tion and protection of the tourist resourcebase.Theseinclude the mangroveboardwalk inAtacames,which involves creatinga tour of theremaining mangrovesand tidal estuaryin the RioAtacames;an educationalcampaignled by theHotel Association to remove sewagedischargesand garbagedumps along the river, a beachclean-upand monitoring program led by the'taipirinheros" - managersof beachkiosksselling local specialty drinks, especiallyduringCamival and Holy Week; and improvementofpublic bathroomsin two important beaches.
The policies and specific actionson tourism areaimed at protecting the natural resourcebasethatvisitors seekto enjoy, improving and diversify-ing the quality of servicesfor and amountof
Chapter 3Key Management Issues,Policies, and Projects
Policy 3.2.1Tourism in theAtacames-Sfia-MuisneZEMmust bepromoted in an integrated monne4both to the external market area and withinthe ZEM to residentsand the businesscommuniry.The emphasisof this promotionshould include environmentalquality anddiversity of attractions, high leveI of service,Iocal culture, music, and crafts. Creatingand maintaining this identity will serveas apowerful economicrationalefor coastalresourcesmnnagement.
Specific actionsto implemenr this policy includethe following:
3.2.1(1s)Updating the tourist inventory
With an updatedZEM tourist inventory, thelocation of attractions,facilities, services,roads,etc. will be identified, classified, and arrangedinthe national information systemthat CETURmaintains.
3.2.r(16)Touristguidein theZEM
Preparationof a bilingualmap-guideof theZEMwith exactinformationabouttouristaffractions,locationof basicandcomplimentarytouristservices,roads,accesses,etc.Carefulconsulta-
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tion with experiencedpeoplefrom eachcommu-nity will becarriedoutin orderto avoidleavingoutimportanttouristor traditionalattractions.
Establishmentof two information booths throughan agreementwith CETUR and with the partici-pation of studentsfrom Colegio Estrella de Marde Atacamesspecializingin tourism and hotelmanagement.The booths would function as partof the "El Manglar" complex of small restaurantsnear.theRio Atacames.
Developmentof landusecontrolplansforAtacames,Sria,Muisne,andothercommunitiesof the ZEM thatrequireurgentattentiontozoninglandusein orderto solveconflictscre-atedby thecompetitionof usesandto protectimportantscenicvaluesandnaturalhabitats.
3.2.3(2s)Newtouristdevelopmentoptionsin theZEM
Optionsfor diversifyingtourismrecreationin theZEM shouldbe studiedanddesigned;for ex-ample,a scenicoverlookattheentranceofAtacames:accessto thePefl6ndel SuicidaandtheTonchiguecliff; walksthroughoutthecavesandfarmsandtheprimaryforestof Galera-SanFrancisco;family excursionsto Muisne;andafacility to exhibit the greatdiversityof wildlifeandvegetation(for examplethrougha diorama).
Water is central to family life, communityhealth, environmental quality, and the economyof the Atacames-Sria-MuisneZEM. Adequatesuppliesof cleanwatersimply do not exist.It isimperative that watershedsare managedforsurfaceand ground fresh water supply and thatcareful attention is given to protecting the qualityof sources.Distribution systemsmust be prop-
erly designedand maintained,and water bodiesmust not be usedfor wastedisposal. Yet thesebasic stepshave not beentaken.
The health indicators of the ZEM populationshow that, of the threecausesof mortality, twocorrespondto water-originateddiseases:para-sites(28.97o)and gastroenteritis(17.57o).Thisdatarevealsthe poor sanitaryconditions of thevillages and the close interrelationshipbetweenthe environment and the residents'quality oflife.
The ZEM's economydependsgreatlyon envi-ronmentalquality and basic servicessuchaspotable water and appropriatedomesticandindustrial waste disposal. For example,researchregarding tourist demandcarried out in August1990revealedthat two-thirds of the visitors feltthat the water supply was bad or mediocre;nearly one-fifth indicated that the garbage,sanitation,and potable water were bad and thatthey did not wish to return to the zone.Similarly,the generalopinion of the ZEM residentsis thatthe potablewater supply, sewagedisposal,andgarbagecollection should have higher priority inorder to improve quality of life in the ZEM. Animportant objective of the ZEMpIanis to dem-
Chaptcr3KeyManagementIssues,Policies,and Projec$
onstratethat the maintenanceof environmentalquality, through active leadership,is vital for theeconomyas well as for the well-being of theZEM residents.
Characteristicsof water supplyand sanitary situation
In Atacames.Sria,andMuisne,thereis anexistingsystemof potablewater,but thesupplyis deficientin termsof quantityandquality.Insomecasestherearestudiesor worksin progressto improveor extendthis service.For example,thefirst studiesonpotablewaterfor thevillagesof Atacames-Sriaweredonein 1968.Thesystemwasdesignedfor a 30-yearperiodfor apopulationof 7,300inhabitantsof Atacames,Sfa, andTonsupa.It wasbuilt by theMunicipalWaterCompanyof Esmeraldas.Presently,therearcseriousintemrptionsof theservicedueto
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flaws in the water distribution from Esmeraldas,as well as operatingproblems in the pumpingstation.This explains why cisternsremain themain sourceof water.
Water for human consumptionis presentlyprovided from a variety of sources,including:
It is not surprisingthathealthstatisticsanddatafrom touristsurveysclearlyshowthattherearefew villageswith wastedisposalandsewagesystems.Theuseof septictanksis verylimited.Many tourist hotelsandfacilities arebuilt withinternalpotablewaterdistributionsystemswhichgeneratewastewaterthatis dischargedinto anearbywaterbody.TheAtacames-Sfa-MuisneZEM is a rural zone,andmostresidentsireconcentratedin a few villageslocatedat theedge
Clupter 3KeyManagemcntIssues,Policies,and Projecb
of a river or coastline.Stormwaterin urbanizedareas,whencollectedby drains,is oftenmixedwith domesticsewagebeforebeingdischargedtoa river.
3. Disposalof solid waste
Thecollection,transportation,andfinal disposalof solidwastearenothandledadequately.Service,in everycommunity,is poor.Wherecollectionsystemsdo notexist,residentsdisposeof theirgarbageby burningor simplyleavingitin emptysitesor nearwaterchannels.Trashalsoaccumulatesonbeaches,andtidal andriverareas,whereit is rappedon piling, fences,andestuaryvegetation,andpresentsvisualandsanitationproblems.In Sfa thesanitationprob-lemis complicatedby thedisposalof wastewaterandaccumulationof garbageat theriver andshoreedges.Whentherainfallis intensein thehighpartof thebasin,theriver overflowsandcarriestheaccumulatedwasteto the Sriabeach.Thereis a proposalthatwouldchangethecourseof theriver soit woulddischargein anotherlocation;however,beforeanyactionis taken,studiesshouldbedoneto determinetheeffectsthiscouldhaveon theenvironmentandon theflow of theSriaRiverandtidal estuary.
Thepresentstateof theservicesis thefollowing:
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Problemsand Obstaclesfor theImprovement of the Sanitary andPotableWater Situation in theZE]V.I
ZEM residentshave always beenfrustratedbyinadequatedesign and execution or operationofpotablewater and sewagesystems.There aremore examplesof failures than successes.Com-
munityparticipationhasbeenlimited or non-existentin mostcases;only in thelastfive yearshastherebeencommunityparticipationin theimplementationandmaintenanceof services.
4. Chronologyof Environmental SanitationServicesin the ZBM
Year hoJect Descrlptlon Rezult Observatlon
1965 Potable water in Muisne Poor Poor managementof system
1970 Potable water in Sria, Atacanes Poor Poor operation of hea0nent plant in Esmeraldasand of distribution svstem
1977 Sewagein Muisne Regular
1982 Potable water in Pl6tanoEstuary Poor Abandoned systemwith no community participationPotable water in Quingue PoorPotable water in San Francisco Poor
1983 Potable waterin Tonchigue Poor Abandoned
1987 Potable waterin Galera Poor Poordesign
1988 Potable water in Quingue Good With community participation
Quingue Latrinization Good 75Vocovenge
1989 Piped water in Atacames-Sfa Sadsfactory With community participationSan Fco. Latrinization Satisfactory 5OVocovetagePldtano Estuary Latrinization Poor Lack of community support
1990 Potable water in Pl6tanoEstuary GoodPotable water in San Francisco Good
Providingtheopportunityfor greaterlocalinvolvementis not sufficient.Communitiesandotherswho financeandconstructneededfacili-tiesandsystemsmustbestronglymotivatedbythecommitmentto solvethequalityof life issueswhich areposedby watersupplydeficienciesandcontamination.Theinabilityof a smallcommunityto obtaincleanwaterandproperlydisposeof sewageandtrashis notjust anincon-veniencefor residents,butrepresentsa publichealthissuefor theentireZEM. Waterbornegastrointestinaldiseasesdo notrespectvillageboundaries;touristsarejustasproneto sicknessaslocal residents;andthepollutiongeneratedinonecommunitydegradesfisheries,habitats,andresourcesusedby all.
D. Objectives
1. To promote awarenessthrough educationand monitoring of the vital link betweencontamination of water and land fromwaste disposaland deteriorationin qualityof life
To gain the commitment of ZEM commu-nities to develop and maintain adequatesuppliesof clean water and to adopt wastedisposalpracticesthat will protect commu-nity health and cleanliness
To provide training and technical support
Chapter3KeyManagemcntIssues,Policies,and Projects
for locallymanagedwatersupplyandwastecollectionfacilitiesandservices
E. Management Policies and Plan ofAction
Theimprovementof watersupply,adequatedisposalof usedwater,andcollectionandfinaldisposalof garbagearemattersthataffectthehealthandqualityof life of all ZEM residents.Thesemattersalsoatfecteconomicactivities.mainlytourism.Goodwaterqualityandgoodpracticesfor wastedisposalareessentialformaintainingthequalityof estuaryhabitatandtheZEM environment.
Thespecificpoliciesandactionsregardingenvironmentalsanitationemphasizetheimple-mentationof well-conceivedsmallprojects,manyof whichhavealreadybeendesignedand,in somecases,partiallyimplemented.In addi-tion,technicalevaluationsof theneedto reha-bilitatesomeexistingserviceshavebeencarriedout. In all cases,the key to successwill betheparticipationandresponsibilityof thecommu-nity andlocalgroups.In addition,helpfromentitieslike IEOSandmunicipalitiesin construc-tion,operation,andservicemaintenanceis a keyfactor.Consequently,theZEM planconsidersthefirst phaseto includeboththerehabilitationof deficientservicesandcommunitytraining.
Policy 3.3.1Adequatesuppliesof cleanfresh water mustbe mndeavailable throughout the ZEM usinga mixture of sourcesand distibution systemsthat can be operatedand maintained to thegreatestextentpossible by local communi-ties.Projects must be accompaniedby publiceducationcampaignsin the treatmentofdrinking water,food handling, and in train-
local oersonnel-
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Specific actions to implement this policy in-clude:
Carry out door-to-doorcampaignsthroughouttheZEM concerningappropriatetechniquesofwater purification and food handling to preventcontaminationand the spreadof diseases.
3.3.r(28)Trainingfor operation of water supply systens
Provide training and supportto groups involvedin the managementof potablewater supplysystemsto ensureappropriateoperation andmaintenance.
Specific actionsto implement this policy includethe following:
3.s.2(29)Protection of coastal water qualiry in Atacames
Study and preparepolicies and regulationsforcoastalwastedischargeand disposalfacilities inAtacames-PuertoGaviota. The activities willinvolve: analysisof geomorphologicstudies;
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selectionof basic rules; control, surveillance,and inspection; and determinationof basicrequirementsfor proper septic tanks and latrineconstruction.
Theactivitiesin Muisneinvolvethefollowing:improvementof publicrestroomslocatednearthepier;preparationof a manualof operationsandmaintenancefor thewastewaterpumpingstation;cleanupof thesanitarysewagesystem;andpreparationof a studyon effectivenessofoffshoredischargeandtheneedfor improve-mentsin dispersion.
s.3.2(ir)Centralized tr eatmentof wastewater
Investigatethe feasibility of establishingcentral-ized treatmenttechniquesof wastewater,suchasoxidation lagoons.Selectionof appropriateareasand sites for pilot projectsof wastewatertreat-ment through slow dischargeinto wetlands.
Policy 3.3.3Solid waste disposal on beaches,coastlines,and rivers must be halted, and degradedareas restored.Incally mnnagedcollectionsystemsneed to beput in place, along withthe identification and proper operation oflandftll sitesfor Atacames,Srta,and Mui,sne.Recycling and compostingtechniquesshouldbe introduced, al.ongwith a sustainedpubliceducation campaign---aimed at r esidents,businesses,and nurists--4n theproperdisposal of solid waste.
Collection and disposalof solid waste in theAtacames-PuertoGaviota areaare neededthrough an emergencyproject made up of sev-eral elements:inspection of the area;determina-tion of basicneedsfor garbagecollection, andoption selection;designof collection and finaldisposalroutes;selectionof practical operationmeans;and campaignsto obtain communitysupportand serviceimplementation.
Collection and disposalof solid waste in Sria,Tonchigue,and small ZEM communities.
Increasecoverageof solid wastecollection inMuisne. This requiresthat the garbagetruck berehabilitatedand that somestreetsbe improvedso that the truck may enter districts presentlynotserved.Furthermore,the open air dumps must bechangedto buried forms to createa sanitarylandfill system. Until the truck is rehabilitated,alow cost operatingsystemshould be designedtocollect and disposeof garbageon the island.
Policy 3.3.4Routine monitoring and reporting on thewater quality, beachcleanliness,and habitatconditions should be conductedwith theinvolvementof local groaps and technicalexperts. Specific enviranmentalqualitycriteria should be establishedto measuretheseriousnessof degra.dationtrends and the
ffi ctiveness of sp ecifi c environmentalsanitation improvementactions.
3.s.4(s3)Monitoring of water quality and environmentalsanitation
Selectionof areaswith contaminationproblems(disposalof wastewater,poor water quality inshrimp ponds,intensive useof pesticides).Design of a plan for monitoring water quality inestuariesand important recreationalareasforproductivity of bioaquaticresources.Wheneverpossible,local personnelwill be usedto supportsampletaking, identify contaminationsources,and evaluateresultsof the analysis.
Develop facilities to carry out sampling andbasic analysisof the water quality in the ZEM.This will require coordination with institutionsand laboratorieslocatedin the province.
Monitor beachesand shoresfor garbagedis-posal,land filling, sandextraction, and otherdestructivepractices. Prepareperiodic reportsregarding the condition of areaswherecleanupand maintenanceare carried out, aswell asplacesthat have not beencleaned.
Installation and maintenanceof sewagedisposalfacilities adequateto protect waterquality and human health
Implementation of environmentally soundsolid waste disposalpractices
Chaptcr3KeyManagementIssaes,Policies,and Projects
4. Publicawarenesscampaigns,monitoringandtrainingto ensurecontinuedfunction-ing of installedsystems,andadoptionofsanitarypracticesin communitiesandbusinessesto protectpublichealth
3.
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3.4Managementof FishingResources
A. Importanceand Options
Artisanal fishing is one of the main economicactivitiesof the ZEM.It is in third placeafteragriculture and tourism. It is leastdevelopedinterms of technology employed by fishermen.Shrimp mariculture, which, for the most part, issmall scale,is rapidly growing.
Artisanal fishermen areconcentratedin thevillages of Tonchigue, Galera,SanFrancisco,Atacames,Sria,and Muisne.
Although artisanalfishing of the ZEM producesa low volume of product, it hasa great impact,especially on the exploitation of black coral andcaptureof gravid female shrimp usedin shrimplarvae laboratoriesthroughout the Ecuadoriancoast.
There hasbeena loss of ecosystemquality and adecreasein the productivity of certain fishspecies,but overall, there is no indication ofirreversible damagein the coastalhabitat andfisheriesresourcesof the ZEM, exceptperhapsin severalsmall mangroveareasin Atacames.There still remainsthe opportunity to initiateintegratedfisheries managementin order toincreasebenefits provided by the sectorto thelocal economy and improve the quality of life forfishermen and their families.
groundsandhabitat.Unfortunately,suchinfor-mationis simplynot availableexceptthroughtheobservationsof thelocalfishermenthemselves.A studyof thevitally importantshrimppost-larvaefisheryhasonly recentlybeencarriedoutby theNationalFisheriesInstitute. As a result,informationandissuesregardingfisheriesin theZEMtendto focuson theneedsandproblemsoffishermenratherthanfish stocks.
White Fish: In 1987therewerenearly230artisanalvesselsandabout7fi) fishermenin theZEM.Thebiggestconcentration,about140people,is in Tonchigue-In 1992 thereweremorethan300smallvesselsoperatinginTonchigue;morethan60 in Galera;andabout40in SanFrancisco.Fishingis of lessimportanceintouristareaslike Atacames.
Themostwidelyutilizedfishingtechniquesare:trammelnetsfor lobsterandshrimp;netsof upto 700metersin length;3fi)-600-hooklonglines;dragnetsfor shrimp;andhandlines. Most of thevesselsarebuilt with trunksfrom trees,enlargedwith boards.andreinforcedwith frames.Aboutonedozenfiberglassvesselswereobserved.
Two or threebuyersfrequentthis ZEM, andeachonehasconsiderablepower.Most of thecatchistransportedby intermediariesto thecity ofEsmeraldas.Becausefishermendo not alwayshavethespecies,quantities,andrequiredsizestomeetlocaldemand,partof thecatchin theZEMdoesrcturnto beresoldto restaurantsandhotels.
ThisZEM hasno wharves,ice plants,facilitiesfor holdingfish,fishingsupplies,or spareenginepans.UsuallytheenginesaresentoutsidetheZEM for repair. Fishinggearis not alwaysavailablelocallyandis usuallymoreexpensivein othercoastalareas.
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Capture of post-larvaeand gravid femaleshrimp: Thereareno reliabledataon thenum-berof peoplewhodependon post-larvaeshrimpfishing,butin someplaces,it is a veryimportantactivity.Forexample,mostof theBunchepopulationis dedicatedto this activityasameansof livelihood.It is verycommonthrough-outtheZEMfor fishermento keeppost-larvaeinsmallpondsor hatcheriesuntil theyreachayoungsizeandcanbesoldathigherprices.Gravidfemaleshrimpareavailablethroughouttheyearin this zoneandtheEsmeraldasProv-ince.
Black coral harvest: ThisZEM is oneof thetwo centersin thecountrywhercblackcoralisexploited,theotherbeingtheGal6pagosIslands.Thetotalproductionwasattributedto two diverswhousea "hookah"to harvestblackcoralindepthsof 30 to 40 meters.Eachdiverextractsnearly70 poundsper day,divingcloseto 20dayspermonth. In 1989thesellingpricein thevesselwas 1,000sucresperpound;themonthlyincomeof this harvestwascloseto 2,800,0(X)sucres.However,therealvalueis in theprocess-ing andmarketingsectors.Atacamesis theonlycenterin which20 commerciallocalespolishthecoralandmakenecklaces,braceletsandfigu-rines.
Other fishing activities:Thereareapproxi-mately30 peoplein theZEM who fish for thebluecrabthatlive in hightide zones.Approxi-mately25 yearsago,therewasexcellentstripedmulletfishingat themouthof AtacamesandMuisnerivers.Similarly,goodquantitiesof"CaliforniawalkeC'arecaughtwhencoastallagoonsform. Therearecollectionsof oystersandblackcocklein theestuaries,althoughtheiravailabilityis diminishing.
Chopbr 3Key Management Issues,Policies, and Projects
C. Problemsin the FisheriesSectorofthe ZEM
1. Fisheriespotential
Presentlythereis noinformationaboutor moni-toringof thevolume,species,sizes,andvaria-tionsof thecatch.Fishermenhaveexpressedconcernthattheircatchis diminishing,andtheyhaveaskedfor informationregardingthepoten-tial of otherfisheriesresources.Likely causesofthis decreaseareoverfishing,lossofestuaryhabitatdueto mangrovedestruction,construc-tion of shrimpponds,andwaterpollution.
Thefishingsectorof theZEM is poorlydevel-oped.Therearenounloadingfacilitiesto prop-erly processandhandlethefish.Therearenostoresor shopsthatsellpartsandbasicvesselequipmentor thatrepairandmaintainengines.
Socialcohesionirmongfishermenis not strongbutshouldbestrengthenedif anycoastaldevel-opmentandmanagementeffort is to succeed.For example,Tonchiguedoeshavea cooperativeandsomepre-cooperatives,butthesedo notoperateadequately.
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5.
2.
3.
4. Black Coral
There is no regulation to control the exploitationof black coral. The extent and potential of thishigh-valuebut slow-growingresourceis un-known.
Conflicts between fishermen and otherusers of the marine coastal zone
The weak enforcementof fishing laws hasled tocommercial-scalefishing nearthe beach,whichdirectly competesfor stocksthat have beentraditionally caught by artisanalfishermen.Shrimp growers from other locationshavesettledin the ZEM, increasingthe destructionofmangroveand other habitatsof important specieslike crabs,shellfish, and finfish. Artisanal fisher-men complain that the shrimp farmersdo notallow them to captureblue crab and other estua-rine speciesas they have traditionally done.Artisanal fishermencontinue to usebeachsectorsto clean fish and dock their vessels.ofteninterfering wittr tourist uses.
D. Objectives
1. Establisha fisheries stock information basein the ZEM andpromote the participationof artisanalfishermenin complementingspecific fisheriesmanagementpolicies
Identify and promote local stock manage-ment, especially for estuarine-dependentspecies,as well as habitat protection
Promote better organizationof fishermenthrough self-help projects,including thosethat can reduceconflicts with tourism
The challengefor artisanalfisheries managementand developmentin the ZEMis to find thebalancebetweenimproving the efficiency ofartisanalfishing and placing appropriaterestric-tions on fishing cercainspeciesor groundsduringspecific times to protect stocks. The problems offisheriesmanagementin Atacames-Sda-MuisneZEM arecompoundedby the lack of informationaboutthe life cycles of important speciesand theabsenceof stock assessments.The tradition ofpoor enforcementof fisheries laws and regula-tions further aggravatesthe situation.
Successfulcompletion of small projects andlocal initiatives to increasefishing efficiency andprofitability will be essentialfor building thecapacity of fishing communities to participateinmorecomplexendeavors.Suchendeavorsinclude habitat protection, stock assessment,andfishing activity and fishing groundsmanage-ment.TheZEM programin Atacames-Sda-Muisne hasalreadymade important progressthrough the active participation of fishermen inthe technicalassessmentand design of small-scalepractical exercises.One project, a storageand distribution centerfor suppliesin Tonchigue,was funded during the first round of smallprojectsapprovedby the ZEM Advisory Com-mittee. Another project, aimed at developing atour of the mangrovesin Rio Atacames,includesa componentto protect and restorethe estuarinehabitat of the river, larvae collection center,andlarvaegrow-outponds.
Establishenforceableagreementsto setpreciseboundariesbetweenthe designatedzonesforartisanaland commercial fishing. Develop azoning plan for estuarineand coastalareastodesignateallowable shellfish and artisanalfishing harvestsin the ZEM.
3.4.1(ss)Collection of basicfisheries data
Establishand maintain a systemof basicstatis-tics on the artisanalcatch,and utilize this infor-mation to experiment with local fisheriesman-agementregulations.
3.4.1(36)Managementof important estuarineand coastalresources
Develop and implement a systemfor the man-grove fisheries of blue crab, shellfish, and oysterin the ZEM through coordinatedaction amongfishermen and local fishing authorities.Specificplanswill be includedfor the managementoflobster stocksin the Quingue-Galeraarea;thesestocksare showing signs of overexploitation.
3.4.1(37)Rational exploitation of black coral
Study black coral resourcesand developaconservationplan to include extraction andefficient usesystems;identify alternativerawmaterial for the artisansthat processblack coral.
3.4.2(s9)Studyand contol of petroleum contamination
Verify whether petroleumdischargesfrom oiltanker loading and transportin the terminal atBalao are affecting fisheriesresources.Recom-mend monitoring strategies.
Include the impact on fisheries and the safety offish harvestingasconsiderationsin the designand implementationof wastewatercollection,treatment,and dischargeproposals.
46
tItIttt
IIttIItIIt
3.
4.
5.
a)
b)
c)
d)
T
T
Pohcy3.4.3Primnryemphasisin thedevelopmentofartisanalfisheriesin theZEM mustbeplacedon increasingfishermen'sincomesthroughbetterquality,variety,andmarket-ing offish, aswell as loweringcostsandimprovingsaferyandconvenienceoffishingeffort.
3.4.3(4r)Infrastructure and servicesfor artisanal fishing
Promotefishermen'sparticipation in self-devel-opment activities, with emphasison improvingsafety and resolving conflicts with other beachusers.Severalactivities will be included:
Establisha commissaryfor fishingandvesselsuppliesin Tonchigue;It will beassociatedwith a processingandmarketingfishingcenter.Establisha similarcommis-saryon a smallerscalein Galera,operatingeitherasanextensionof theoneinTonchigueor independently.
Implementationof specific measurestoprotectremaining habitat for estuarinespecies
Constructionand maintenanceof facilities,suchas landing piers and fish-cleaning andmarketing areas,to eliminate conflicts overuseand cleanlinessofbeach areas
Strengtheningthe organizationof localfishermenso they can be active partnersinthe implementationand refinement of plans
47
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3.5 ManagementofMariculture
A. Importance and Options
Shrimp harvestingis the main maricultureactivity in the ZEM. There is a temporaryharvestof "chame" (Dormitator latifrons) duringthe winter when lagoonsform near AtacamesandTonchigue. It is estimatedthat approxi-mately 50 people are dedicatedto this activityand that the natural harvestareasreachabout 30ha. However, this activity remainsvery limited.
Shrimp harvestingis a relatively new activity in
theZEM, although its growth hasbeenquite
fast. It contributessignificantly to the income ofa large number of inhabitantsof the zone,andthere are entire communities, suchasBunche,which dependon shrimp mariculture.
A wide range of activities associatedwith shrimpmariculture can be found in the ZENI. Theseinclude post-larvaeand gravid female shrimpharvesting;production of post-larvaeshrimp inlaboratoriesand spawning stations;growth oflarvae (for saleand for harvestof young onesinponds);growth and fatteningof shrimpin ponds.
There is greatpotential to improve the produc-
tion by harvestwithout having to expandthepresentinfrastructure of the zone or increasethepressureover the natural stock. The shrimp stockin the zoneis unknown; however, there is specu-lation that the expansionof shrimp pondsand/oran increasein the fishing pressureswould resultin a drastic reduction of the resource.This is dueto the pressureson fishing sources(catchesoflarvae, gravid females,and adults) and the trendof decreasedstock productivity (decreasing
abundanceof adult shrimp, larvae, and gravidfemales).
Choptcr 3Key Management Issaes,Policics, and Proiects
In the small covesof El Roto, Ostional, andTortuga, and in the estuaryof the Muisne River,
the practiceof growing and fattening fish likemullet and "pargo" through artisanalmethodsoffencing hasbeenestablished. Technical assis-tancefor this activity is neededby fishermen in
organization,handling, and marketing.
B. Characteristics
Shrimplarvaeandgravidfemalefisheries,productionof larvaein laboratories,andshrimpproductionin pondsareall foundin the ZEM-
It is estimatedthatEsmeraldashas13laborato-riesandapproximately20 spawningcentersforlarvaeproductionin theTonsupa-Atacames-Sria-Same-Tonchiguearea.Most of thelaboratoriesarelocatedin Tonsupa.Thelarvaeproducedin
Theproductionof shrimpin pondsin theEsmeraldasprovinceis characterizedby theuseof pre-nurseriesbecausethepondsfor fatteningaresmall,generallyaboutl0 ha.
Therearea numberof familiesin theZEMthathavesmalllarvaenurseries(usuallyneartheirhomes)to growlarvaefor saleat a betterpricethanthepost-larvaecaughtwild.
TheZEM shrimpgrowersaremostlysmallproducers.Most of theshrimppondsandnurser-iesarelocatedin Muisne.It is estimatedthatabout1,300haof pondsexistin MuisneRiverandits systems.Additionally,it is estimatedthatthereareabout150haof pondsin AtacamesRiver.
C. Problems and Conflicts in theSector
TheAtacames-Sria-MuisneZEM is themainsourceof gravidfemalesfor theentireEcuador-ian shrimpmaricultureindustry;however,thereis no basicinformationaboutthisfishery,anditis not regulated.Theneedto capturethese"wild"post-larvaeis highdueto thegreatlossthatoccursduringcaptureandhandling.
Most of theproblemsof shrimpfarmsresultfrom thelack of knowledgeof appropriatetechnologyandlack of capital.However,therearealsoenvironmentalproblemsthatresultfromtheimpactof thegrowthof shrimpharvestin theZEM duringthe 1980s.It is estimatedthatcuttingandotherusesof mangrovehavereducedthehabitatof speciesthatin oneway or anotherdependon theestuary.Thelossof forestcoverintheupperportionsof coastalwatershedshasalsohada negativeeffectin theestuaries.
Chapter3KeyManagementIssues,Policies,and Projects
The principal problems are the following:
1. Supply and production of shrimp larvae
a) Unavailability of shrimp larvae; excessivepressureover the stock
b) Lack of knowledge of proper handlingtechniques,resulting in unnecessaryloss ofshrimp larvae
c) Impact on the environment; in theEsmeraldasZE]fu.{thelarvae fishermen donot return the rest of the speciesto theocean(as other larvae fishermen already doin other partsof the coast,such as Bahia deCaraquez)after separatingout the larvae ofPenaeusvannamei.There is unnecessaryloss due to the captureof larvae of otherspecieslike crustaceansand fish
d) Lower survival ratesof laboratory-raisedlarvae
e) Observeddecline in the availability ofgravid femalesaswell asin the percent-agesofeclosion. Therearealsoregionaldifferencesin the quality of females.Thebestfemalesare capturedto the south ofthe city of Esmeraldas
2. Management of shrimp ponds
a) Purchaseoflarvae: The purchaseoflarvaein the zoneis donein a very rudimentarymanner.The buyer doesnot know thenumber of larvae he receivesor the per-centageof Penaeusvannameilarvae; hereceivesall the other larvae that come withthe desirableshrimp larvae. This explains,in part, the role of larvae grow-out pondsasselectionunits. Under primitive condi-tions, larvae are subjectedto high stress,
49
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b)
andonly sturdierspecies,suchasp.vannamei,survive.Noneof thelarvaefishermenandveryfew shrimpgrowersofthezoneknow how to determinethepercentageof thisspeciesor thequalityofthelarvae.
Generaldesign:Thedesignof theZEMshrimppondsandgrow-outpondsistypicallyirregular.Mostof theinfrastruc-turehasbeenbuilt by hand.Themainproblemsinclude:
e) HarvestandMarketing:Most of theshrimpproducersdo notknow how to estimatethecompositionof their harvestanddependentirelyontheshrimppackers.Manyshrimpgrowersproducebetweenfour andninecategoriesof shrimpsizeperharvest.
3. Investmentcapital
Thefinancingcapacityof theproducersof thiszoneis verylimited.It wasestimatedthatin theZEM thereareabout1,500haof shrimpponds;however,only 20percentof thistotal is operar-ing dueto a lackof capital.Fewshrimpgrowersof thezonepossessoperatingpermitsthatwouldenablethemto becandidatesfor credit.
Mostof theshrimpproducersfeelit is necessaryto implementclosedseasonsto protectstocksofwild larvaeandgravidfemales.However,thercis doubtthatthesebanswill havemucheffect,dueto thelack of enforcement.Accordingtoproducers,bansarenot observed.Thereisdiscontentaboutthechoiceof closedperiods(December,January,andAugu.st)andtheevalu-ationprocedurefor determiningtheresultsof theclosures.
D. Objectives
1. Establishan information baseandspecific required policies for sustain-able managementof shrimp stock.Createinterestand participationamong local fishermenin the designand implementationof fisheriespolicies
2. Significantly reducethe loss of post-larvae and gravid female shrimp;improve captureand handling tech-niquesthrough demonstrations,training, and technical assistance
3. Halt the constructionof new shrimp pondsand thereby preventthe relatedenviron-mental degradationand useconflicts that
Chapter 3Key Management Issues,Policies, and Projects
The future of the shrimp industry, at leastshort-term, seemsto be linked to the supply of gravidfemale shrimp, which, for the most part, arecapturedin the Atacames-Srfa-MuisneZEM.Mariculture is an important sectorof the ZEM'seconomy.
The CRMP hasinitiated someactivities directedtoward the establishmentof a sustainablemari-culture in the ZEIN{.During 1990 a PeaceCorpsvolunteercontributed to the design of a technicalassistanceproject for the larvae grow-out pondsof Bunche,with implementationin 1991. Also,many meetingshave takenplace with shrimpgrowers,community members,and publicofficials in Muisne in relation to the loss ofaccessto traditional fishing sites in mangroveareasdue to the constructionof shrimp ponds.
improvementsin nets and fishing techniques;selectionof larvae;handlingmethodsduringsaleson the beach;and beachsale,transporta-tion, and placementin the larvae grow-out pondsto obtain more advantageoussizesfor marketing.
3.s.1(44)Sndyof distributionandabundanceofshrimp
Conduct studiesto define the stock (geographicdistribution, size, composition) that is utilized byshrimp growers of the ZEM. and outline man-agementstrategiesto regulatecaptureof post-larvae, gravid females,and adults to obtainsustainablestocklevels.
Developorganizationalandoperationalcapacityfor efficientenforcementof fishingadministra-tive lawsandnorms,usingtheUnit of Conserva-tion andMonitoring(UCV) of Esmeraldasandlocalmethodsof self-management.
Specific actionsto implement this policy in-clude:
Chapter3KeyManagementIssues,Polbies, and Projects
s.s.2(46)Control of shrimppond concessions
Reviseall concessionsand permits given for theoperationof shrimp pondsin the ZEM; identifyconditions and renewal dates;preparemaps;comparcactualextensionwith authorizeddevel-opment.Identify possibleinconsistencieswithimplementationof the permits.
l. Developandimplementa programoftechnicalassistanceto improvetheopera-tion of theshrimpsecrorof theZEM(larvaegrow-outponds,laboratories,spawningstations,productionponds)andincreasetheirproduction,beginningwiththeexistinginfrastructureandt€sources.
2. Designandimplementprogramsfor mari-culturediversificationusinglocalspecieslike cockles,oysters,'thame".Eachprojectwill includeselectionof a site,infrastructure,managementtechniques,marketing,andnecessaryinvestments.
Technicalassistancewill beprovidedtoimprovethequalityof waterthatthelarvaegrow-outpondsusein Buncheandotherareasof theZEM. Work will bedonewithlaboratoriesthatproducepost-larvae,toreducecontaminationandwaterqualityimpactsfrom theirdischarges.
Chopter3KeyManagementIssues,Policies,and Projects
n ExpectedResults
l. Evaluationof abundance,distribution,andbiologicalcyclesof theshrimpstocks,andestablishmentof specificpoliciesthatassuresustainableharvests
Unfortunately,few technicalresourcesareavailablein the ZEMto put into placetheplant-ing, livestockmanagement,andlanduseprac-ticesthatcouldmakethezonemoreproductiveoverthelongterm,bothat thefamily andthecommerciallevels.Instead,poorlandmanage-mentandharvestihgpracticeshavedegradedthispotentialin a numberof thewatersheds.Defor-
Forthemostpart,pastureshavereplacedtheforestcoverof theregion.Themostimportantremainingforestedareasarelocatedon theslopesof thecliffs of Galera-Quingue.
Livestockin theseareasrangesfreelyat a lowdensityof oneheadperhectare.Cattlearefromlocalstockandarenot managed.Animal prod-uctsaremarketedmainlyat thelocallevel,withtheirfinal destinationthecity of Esmeraldasandtouristcentersof Atacames,Sfa, andMuisne.The productionof pigsandchickensis primarilyfor family consumption.
IIIII
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T
Coffee,cacao,citrus,andfruit aregrownin thefertile lowlandsof smallcoastalrivers.Somecoffeeis producedfor export,butthevolumeisnot of greatimportancecomparedwith nationalproduction.Fruitsandcitrusarealsogrownmainlyfor family consumption,with anysurplussentto theprovincialmarket.Cornis harvestedin therainyseason.Theaverageproductionfluctuatesbetween25-30qq/haandis destinedfor localconsumption.Coconutsaregrownalonga numberof beaches;theestimatedpro-ductionis between1,500and2,000unitsperhaperyear,soldlocallyasdry or youngcoconuts.
Thepatternsof landtenurecontributeto thestagnationof agriculture.One-fifthof theownerscontrolsmorethanhalf of theZEM land.
The way land possessiontakesplace is as fol-lows: The peasantsinvade the forest and cutexisting vegetation.They then proceedto plantpasturesas required by the EcuadorianInstituteof Agricultural Reform and Colonization(IERAC) in order to establishproperry limits.Later the property is sold to large investorsforcattle ranching. In the final step,IERAC legal-izesthe initial occupation.
C. Problemsand Optionsin SmatlWatersheds
Thebasicproblemscanbesummarizedasfollows (seeannexII for moredetailson eachbasin):
Chapter3KeyManagementIssues,Policies,and Projects
Intensedeforestation,in somebasinsup to50 percent,in order to establishpasturesfor (extensive)livestock production (lessthan one headper ha)
Intermittent water flows: most rivers aredry during the summerand have peakflows, or any water at all, only during therainy season
Elevateddischargeof sedimentationinrivers
Great loss of agricultural potential incoastalvalleys due to urban expansion,tourist development,and construction ofshrimpponds
Poor accessto agricultural steepslopes,very humid weatherin many areas,andlack of a strong local agricultural tradition.The low density of population in the highpartsof the basinsexplains why somehighlandshave not beenconverted. Thishasmeantthat there is still the strongpossibilityof increasingfood and woodproduction, water supply, and importantscenicattactions in the ZEM
Inadequateproduction of vegetablesandfruit in theZEM for local needs,resultingin a dependenceon sourcesoutsidethearea. However, there are good sites forraising thesecrops in the river flood basinsof the Atacames(La Uni6n, Salima,Cumba),Sfa (Guachal),SanFrancisco,and Muisne (PuertoNuevo,El Sucio,LaColoradaand Tortugita) rivers.
Agriculture and logging are the mostimportant economic activities in the upper
Size of Farm Owners Voof Area(tla) Vo ofTotal
0-50 50-6050-100 20-30
Morethan100 20
304030
50-60
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basinsandcontinueto bethemainsourceof employmentin theZEM.However,thereareno specific effortsto developandtry techniquesfor betteruseof thehigh-lands.Thereareno effortsto modifydestructivepracticesof clearcutting,or toestablishforestmanagementin ordertoconserveresources,or to protectthequalityandquantityof waterresources.
No agriculturalextensionprogramsfor theproperuseandconservationof land,farmmanagementpracticesandproductivity,orthedevelopmentof family gardens.
Theremainderof theprimaryforestin theareaof CaboSanFrancisco(Galera-SanFrancisco)maintainshabitatfor indigenousanimalspecies(deer,squirrels,monkeys,wild turkey,grayfox, etc.).However,thedestructionof this tropicalhumidforestcontinues.Thedrivingforcesobservedinvolve:
throughouttheZEM watersheds.But theseresultsare not so severethat theyjustify pessi-mism about improving productivity, reclaimingdegradedareas,and preservingtropical forestsand the best agricultural soils that still exist inthe ZEM.
During the initial ZEM planningprocess,lessattentionhad beengiven to understandingtheissues,economic potential, and most usefultechniquesfor watershedmanagement.The needfor greateremphasisnow in theseareasis two-fold: First, continued degradationin the water-shedswill place even more stresson coastalenvironments,which are alreadyexperiencingconsiderabledegradationand lost productivity.Second,a lack of expansionof economicactivityin the coastalresourcesectorin the face ofrapidly increasingpopulationmeansthat theZEM will have to look more carefully at agricul-tural developmentas a sourceof both food andemployment in the nearfuture.
The managementof river basins'inthe ZEM stilldoesnot have a sufficient information basetoenablethe designing of plans that will encom-passthe entire inland extent of the watersheds.The immediate strategy-which includesprotec-tion of the humid tropical forest, evaluationofthe real agricultural potential in order to designprojects,developmentof appropriatenorms andtechniquesfor a sustainableforest and agricul-tural use----comprisesonly the first steptowardsthe managementof river basins.
Chapbr 3Key Management Issues, Policbs, and Proiects
Policy 3.6.2Thepotential for sustainableagriculture willbe analyzedin every watershedin termsofconsumptionand commercial mnrketing. Thetypesof assistanceneededto promote, andimprove theproductivity of,family gardensand small- and large-scaleagriculturewill beassessed,including techniquesto reducetheimpact offarming on soilsand water quality.
3.6.2(s4)Pilot ManagementPlanfor a small watershedbasin
Develop a managementplan for a small basin intheZEM.In orderto preparethe pilot plan,itwill be necessaryto devel.opmaps,a detailedland use zoning schemeand principal ordi-nances,and organize the businessside of groupsinvolved in farming andlogging.
3.6.2(ss)AgriculturaI p otential and technicaI assistance
Form a technical teamcomposedof agriculturaland forestry local and national experts.The teamwill preparea preliminary analysisof the basins'main resources,patternsof grounduse,andproblems concerningfamily gardens,farms, andpermanentplantations. The perspectivesoffarmers, land owners, and local families will betaken into considerationin the designof projectssuch as forest harvesting,reforestation,andagricultural development.ZEM areaswill beselectedto carry out test projectsof new tech-niqueson thesetopics.
Fruit trees,mainly for commerce,in PuertoNuevo,El Sucio,La Colorada,andTonuguita in the estuaryof River Muisne
Pohcy 3.6.3A long-term extensionprogram should becreatedto test,demonstrate,promote, andevaluateappropriate agriculture and log-ging techniquesin the ZEM watersheds.
3.6.3(s7)Public educationcampaignsand user agree-ments
Educationalcampaignswill be organizedtosupportprogramssuchas family orchards,agricultural development,logging, reforestation,erosioncontrol practices,etc.
Agreementswill be establishedamong resourceusers(wood concessionaires,peasants,authori-ties) to protect areasof primary forest that act asgeneticreservesfor the ecosystems.Only tradi-tional low-impact harvestingpracticeswill bepermitted.
In order to implement the agreements,theIERAC will have to modify the regulation that
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2.
3.
4.
Chaptor3KeyManagementIssues,Polbbs, and Projects
requiresdeforestationfor propertydistribution.TheUCV will haveto activelyparticipatein thecontrolof forestdestructionin theZEM.
For successfulundertakingof a newphaseof thecoastalprogram,theCRMPimplementationwasattachedto thepresident'sofficeandadministra-tively decentralizedwith a pennanentofficeinGuayaquil.
At theZEM level,theadvisoryandexecutivecommitteeswerecombinedinto a singleunitcalledtheZoneCommittee.At present,theresponsibilityfor implementingandadminister-ing thecoastalprogrirmis assignedto theexecu-tive director,nominatedby theNationalCoastalResourcesManagementCommission,aswell astheExecutiveoffice in GuayaquilandtheZEMcoordinationoffices.
Designatethe CRMP executivedirectorfrom a list of three candidatespresentedbythe presidentof the National CommissionofCoastal ResourceManagement;terminatethe executive director when necessary
Determine the responsibilitiesand operatingrules for contracting committees
Establish administrative meansto enablepublic officials to coordinatemanagementactions
Chapter4Institutional Developmentof the CRMP and theAtacames-Sfia-M uisne ZEM
Thepresidentandvice-presidentof thecommittee,alongwith coordinatorsofworkinggroups,will serveasa coordinatorandfollow-upgroupto overseeZEM planactivities.Thisgroupdoesnot haveauthor-ity to makedecisions,andmustmakereportsto theZoneCommitteein its regularmeet-ing.
G.
F.
H.
a)
b)
c)
IIIIIIIIIIIIIIIIIII
d)
e)
s)
h)
i)
With the exceptionin Article 5 of the ZoneCommittee regulations,all membersof thecommittee have voice and vote. (Membersmust belongto a legally constitutedorgani-zation.)
All user groups have the right to be repre-sentedon the committee,alongwith com-munity associations.Thesegroupscouldrepresenta community,parish,or canton.The baseof the group must be from withintheZEM.
When assigningtasks,the committeewillidentify the responsiblepersonand thedeadlinefor accomplishment. If the task isassignedto an institution, theZEM commit-tee member representingthe organizationwill be responsible.
An openfile will be maintainedcontainingcopiesof agreementsmadeat full committeemeetings,as well as the work of the groupsand subgroups.
When there is a conflict among user groups,the Zone Committee will usethe followingprocedures:
When necessary,the committee will requestthe technical assistanceof CRMP and willmake a quick analysisof the natureof theconflicts, key actors,and alternativesolu-tions. A commissionor working groupmayalso be formed to carry out this study.
The report of the CRMP or the workinggroup will be analyzedby the committee,along with the actorsinvolved in the con-
Chapter4Institutional Developmentof the CRMP and theAtacames-Sfia-M uisne ZEM
flict. A consensusprocesswill be usedtoreachthe required agreementsto solve theproblem.
Once it is convened,the Zone Committee willdeterminethe designationof new members.
No project can be included in the ZEM plan if itis not first brought to the aftention of the ZoneCommittee.
The CRMP will only implement or financeprojectsthat the Zone Committee hasapproved.
I. Relationship with the Ranger Corps
The Zone Committee will establisha relation-ship with the RangerCorps in order to carry outits responsibilitiesand to coordinatethe activi-ties of the Corps that pertain to ZEM plan imple-mentation,aswell as the enforcementof laws,rules, and regulationsgoverning the useofcoastalresourcesin the ZEM, including:
a) Establishingagreementsamong coastalresourceuser groups
b) Resolvingcoastalresourceuseconflicts
Helping in patrols and control activitiescarried out in theZEM by the Corps
Preparingjoint reportsto promote awarenessand compliancewith conservation,protec-tion, and useregulations
c)
d)
e)j )
65
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J. Relationship to the ZEM olfice
TheZEM office is a part of the permanentstructureof the CRMP, and its mission is tocarry out the daily operationsof the program intheZEM. The Zone Committee will receivethehelp of the office primarily for:
a) Preparingand implementing the annualoperatingplan
b) Contactingand coordinationwith communi-ties, user groups,and institutions relatedtothe committee and RangerCorps
c) Providing administrative and technicalsupport to the committee and RangerCorps
d) Relations with other partsof the CRMP; and
e) Carrying out the assignedfunctions of thecommittee
K. Z,E]N{Coordinator
Preparethe annual operatingplan andbudgetfor the ZEM
Coordinate the work requiredto implementthe programsand activities of theZEM
Supply the technical assistancein planningand implementation required for the ZEMcommittee
Maintain permanentcontactwith the com-munities and people in the ZEM
Coordinate and collaboratewith regionalgroupsin the ZEM
Chaptzr 4Institutional Develipment of the CRMP and theAtacames -Srta-M uisne ZEM
Preparea monthly report for the ExecutiveDirectorateregardingprogressin completingtasksand other issuesin the ZEM whennecessary
Participatein the internal meetings,work-shops,and other activities of the CRMP
Provide assistanceto the executive directorand ZEM Committee in identifying, select-ing, and preparingprojects.
Carry out tasksassignedby the executivedirector aswell astasksneededto imple-ment mandatesand resolutionsof the na-tional commission
Help organizeZone Committee meetingsand RangerCorps meetingsand advise onpublic educationactivities
Representthe executive director of theCRMP in the ZEM
Participatein CRMP meetings
Promote and assistin the formation ofresourceuser groups
Analyze projectsselectedby the ZoneCommittee prior to their approval by thenationalcommission
Carry out any additionalassignmentsgivenby the executivedirector in order to carryout the resolutionsof the nationalcommis-sion.
i)
j )
s)
h)
k)
r)
m)
n)
o)
a)
b)
c)
d)
e)
66
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c)
d)
e)
L. Office of the Coordinator
The focus of future planning, technical assis-tance,and monitoring of ZEM plans andZoneCommittee implementationis in the ZEM office,under the supervisionof the CRMP ExecutiveDirector.
TheZEM coordinator will make availabletheresourcesnecessaryto for the successfulfunc-tioning of the Zone Committeeandexpertandtechnical teams,and will assistwith committeemeetings,conferences,and training and educa-tion programscarried out within theZEM
The ZEM office needsto include supportstafffor secretarialand accountingservice,aswell asa local technical team.
The office personnelwill be trained by theCRMC and will help in field projectsand in thecommunities involved in ZEM plan implementa-tion.
Clnpter 4Institutionol Developmentof the CRMP and theAtacames -Sfia-M uisne ZEM
4.3 ZEMAnnual Work Plan
The drafting and implementation of the specialareamanagementplans must be carried out withpublic participation through the Zone Committeeor subcommittees.The aim of the special areamanagementplan is to achievesustainableuseofcoastalresourcesand improve the quality of lifeof the ZEM population.
Preparationand approval of the annual operatingplan for theZEM will be accomplishedasfollows:
a) The executivedirector of the CRMP willnotify theZnne Committee of the proceduresfor preparingthe work plan in accordancewith the approachand schedulein theCRMP budget as approvedby the nationalcommission
b) The chief of the ZEM office and the workinggroup which theZone Committee assignstopreparethe work plan will examine the prioryear'swork in light of the available budgetand schedule
A national workshop will be held, includingthe Zone Committee president,to evaluateCRMP progress,set guidelines and prioritiesfor the next year's work, and ensurearegional perspectivein the work plan
With the help of the CRMP technical team,the chief of the 7-EM office and the desig-natedoperatingplan committee will preparea draft of the annualplan in light of nationalpriorities and annualreview results
The chief of the ZEM office, the workinggroup, and the staff of the CRMP will assess
Include an inventory of availablehuman andfinancial resourcesfor carrying out the workplan
Assign roles and responsibilitiesfor CRMPpersonnel,technicalconsultants,ZoneCommitteemembers,andexecutingandcollaborating institutions
The scheduleof initial activities that will berevised quarterly by the Zone Committee
Chapter4Institutional Develapmentof the CRMP and theAtacames-Sfia-Muisne ZEM
The executivedirector of the CRMP is respon-sible for implementing the ZEM plan. Theexecutivedirector may contract directly withgovernmentinstitutions and municipalities in theZEM, the Provincial Council, and legally consti-tuted community organizationsand user groupsin accordancewith the annualwork plan. Inaddition. contractscan be made with founda-tions, consultants,independentcontractors,andother nongovernmentaI or ganizations.
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4.4 Community Work Plans
Many of the specific actionsof the ZEM plan aredirected towards strengtheningcapabilitiesofeachcoastalcommunity to plan and managetheresourcesupon which it dependsfor food,income, and quality of life. Each communitywill be strongly urged to participatein the ZoneCommittee to selectpriorities and carry out localprojects with the technical supportof the ZEMand CRMP Coordinator.
An essentialtopic for discussionat the ZEM andcommunity level should be how to focus on thetasksthat can be accomplishedsuccessfullywithlocal resources. Additionally, communitiesshould actively explore new ways to increaseenthusiasm,effort, and local capacity for manag-ing coastalresources.The experienceof theZEM pr acticalexercisesin communities between1990and 1991showsthe importanceof carefuldesign,technicalsupport,andfollow-up forprojectsuccess.
Each community should identify the activities oftheZEM plan to be carried out in its locality aswell as other agreementswhich have beenmadethrough theZEM process.Communitiesshouldtake stepsto preparethemselvesto participateinZEM plan implementation.
The community work plan will include thefollowing:
a) Presentationof community goalsfor theentire year
b) List of activities to be directly accomplishedwith the community
Chaptcr4Institutional Developmentof the CRMP anil theAtacames -Sfia-M uisne ZEM
List of activitiesin theZEM programthatbenefitthecommunityandwherelocalcommunityparticipationis expected
Thework planof eachprojectwill include:identificationof financial.technicalandotherresourceneedsandtheirsources;majorsteps,completiondatesanddesigna-tion of peopleor groupsresponsiblefor theimplementationandfollow-upof theprojects.
To strengthenlocal capacity,the executivedirector can contract directly with governmentinstitutions, ZEIN{municipalities, provincialcouncil, and community and legally formed userorganizations. It can also contractwith founda-tions, consultants,independentcontractors,andother nongovernmental or ganizations.
Small projects,which, dueto cost andtechnol-ogy, do not require specialists,will be carriedout by organizationsor people from the commu-nity.
The establishmentof coastalresourcemanage-ment basedin the communities requiresthatthesegroupsbe ableto:
1 . ImplementtheseZEM plan policiesandactionswhich will benefittheir communityor usergroup
Presentthe Zone Committee with proiectideasrelated to coastalresourcemanage-ment
Undertakecontractsto carrv out someof theZEM plan actions
Participate inZone Committee meetingsandbring issuesto the attentionof the nationalcommission, through its representative(thepresidentof the community organization)
Chaptcr 4Instihrtional Development of the CRMP and theAtac ames -Srta-M uisne ZE M
5. Nominate delegatesto follow up implemen-tation of ZEM projectsin their communitiesor for sectorsthat usecoastalresources
In general,the Executive Directorate will per-form the evaluation,follow-up, and control ofthe plan and perform the inspection and technicalsupervisionof tasksand equipment.
ANNEX 2 DESCRIPTIONAND USBOF THEWATERSHEDSIN THE ZE]N,{
Rio Atacameswatershed
The 300 km2 watershedis drainedby the main branchof the Rio Atacamesand two other
streamsthat join togetherin the town of Atacames. This zone of confluencehad 578 hectaresof
mangrovein 1969,but the constructionof shrimp pondsalong the rivers reducedthis to 52
hectaresby 1987. The narrow floodplains of the river systemhave high quality soils, but rainfall
in the watershedis only about 900 mm annually,making the Rio Sriawatershedthe driest in the
ZEM. The upper portion of the Rio Atacamesis cultivated in a variety of fruit trees,while the
lower portion is pasture,with various short-cyclecrops aswell. Shrimp pondsoccupy much of
the good soils in the lowest part of the riverbed. The other branchesof the river areasare also
pasturemixed with crops,suchascorn andyucca.
Rio Sfa watershed
This is one of the smallest(47 lrrrp) and driest watershedsin the ZF,N.4,receiving an estimated
700 mm of rainfall per.year. Populationdensity is high for the ZEVr,37 personsper km2, but
concentratedin the coastalvillage of Sria,which dependson tourism and fishing. Someman-
grove loss has been experienced here in the tidal portion of the river behind the beach. Like the
Rio Atacames,the narrow floodplain hasvery good soils, but the hills of the lower watershedare
suitableonly for pasture,and the upper half of the watershedhasthe poorestquality agricultural
soils. The lower one-third of the river is usedfor a mixture of pastureand short-cyclecrops,
while the upper two-thirds in various fruit trees.
Rio Tonchigue
This watershedis amongthe smallestin the ZEl/r,57 k$2,but hasby far the highest population
density,(61 personsper km2 in 1980). The road from Tonchigueto Muisne,constructedin 1980,
follows the courseof the Rio Tonchiguethrough the narrow bandof very high quality agricul-
tural soil. which is associatedwith the floodplain of the river and its small tributaries. In the
coastalpart of the watershed,the fishing village of Tonchigueand shrimp ponds are occupying
the best soils. In the middle and upper portions of the watershed,agricultural land is usedto
produce fruits, cocoa,coffee andcorn.
Smal settlementsfollow the road, which hasa slope of lessthan one percent. Most of the rest of
the watershedhasrelatively little agricultural potential. The lower watershedis usedfor pasture-
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landandsomeagriculture.Cattleranchingis low density,aboutoneanimalperhectare.Thereareno goodpasturemanagementsystemsin use. Thehighqualityriver floodplainis plantedwith a varietyof fruit trees,corn,andvegetables.Thesoilson thehillsidesof theupperwater-shedareof relativelylow suitabilityfor farming,amongthepoorestin theentireZEMr.A smallforestedarearemainsat thetop of thewatershed.
Thewatershedreceivesaboutonemeterof rainfallannually,whichproducesa usabledischargeof .9 m3 persecond.However,theriver is not a goodsourcefor potablewater,sincetheflow islow duringthedry period.
3. Membersof theNationalCommissionwhoapprovedtheplanonApril 2,1992' Dr.AntonioIglesiasCaamaflo,VicePresidentof theCommission' GPFG-EM-Napole6nVillacis,Representativeof theMinistry of Defense' Ing.Lino Delgado,Representativeof theMinistry of AgricultureandLivestock' Lcdo.FabidnYdnez,Representativeof theMinistry of EnergyandMines' Fc. Rub6nMoreno,Representativeof theMinistry of Industry,Commerce,