Burkina Faso - National Environmental Management Project

Document of The World Bank FOR OFFICIAL USE ONLY Report No. 19534 IMPLEMENTATION COMPLETION REPORT BURKINA FASO NATIONAL ENVIRONMENTAL MANAGEMENT PROJECT (CREDIT 2229-BUR) June 30, 1999 Rural Development Sector Unit 3 Country Department 15 Africa Region This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.  CURRENCY EQUIVALENTS Currency Unit: CFA Franc (CFAF) Exchange rate (CFAF per dollar) 1990 = 319 1991 = 282 1992 = 264 1993 = 283 1994 = 5471 1995 = 500 1996 = 511 1997 = 583 1998 = 590 WEIGHTS AND MEASURES Metric System FISCAL YEAR January 1 - December 31 ABREVIATIONS AND ACRONYMS CFAF Franc issued by the Central Bank of the West African Nations ICR Implementation Completion Report INERA National Agricultural Research Institute M&E Monitoring and Evaluation MMT Mobile Multidisciplinary Team MTR Mid-Term Review NGO Nongovernmental Organization OMU Operational Management Unit PNGT National Environmental Management Project POMU Provincial Operational Management Unit SAR Staff Appraisal Report Vice-President: Jean-Louis Sarbib, AFRVP Director of Operations: Hasan Tuluy, AFC15 Sector Manager : Jean-Paul Chausse, AFTR3 Project Team Leader : Emmanuel Nikiema, AFMBF In January 1994, the exchange rate between the CFA franc and the French franc was adjusted from 50 CFA francs = 1 FF to 100 CFA francs = 1 FF.  FOR OFFICIAL USE ONLY IMPLEMENTATION COMPLETION REPORT BURKINA FASO NATIONAL ENVIRONMENTAL MANAGEMENT PROJECT (CREDIT 2229-BUR) TABLE OF CONTENTS Page PREFACE.i EVALUATION SUMMARY.i PART I. REVIEW OF PROJECT EXECUTION.1 A. Introduction.1 B. Project Objectives ..................................................... 1 C. Achievement of Objectives .....................................................3 D. Major Factors Affecting the Project ...............7.....................................7 E. Project Sustainability .....................................................9 F. Performance of the Bank. 9 G. Performance of the Borrower and the Executing Agency ............................................... 9 H. Assessment of Outcome .................................................... 10 I. Future Operations of the Project .................................................... 10 J. Key Lessons Learned .................................................... 11 PART II: STATISTICAL ANNEXES .................................................... 12 Table 1: Summary of Assessments .................................................... 12 Table 2: Related IDA Credits .................................................... 13 Table 3: Project Timetable .................................................... 14 Table 4: Credit Disbursements: Cumulative Estimated and Actual ...................................... 14 Table 5: Key Indicators for Project Implementation .................................................... 15 Table 5.A: General Data .................................................... 15 Table 5.B: Main Types of Investments .................................................... 15 Table 5.C: Summary of Project Physical Achievements (1993-1998) ................... ............. 17 Table 5.D: Environmental Monitoring .................................................... 21 Table 6: Key Indicators for Project Operations ............................ ........................ 22 Table 7: Studies Included in the Project .................................................... 22 Table 8.A: Project Costs .................................................... 24 Table 8.B: Project Financing .................................................... 24 Table 9: Economic Costs and Benefits .................................................... 24 Table 10: Status of Legal Covenants .................................................... 29 Table 11: Compliance with Operational Manual Statements ................................................ 31 Table 12: Bank Resources: Staff Inputs .................................................... 31 Table 13: Bank Resources: Missions .................................................... 32 Annex 1: Aide-Mmoire of ICR Mission .................................................... 34 Annex 2: Borrower Comments on the Implementation Completion Report .............................. 35 MAPS: IBRD) Nos. 22598, 22599, 22600 This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.   IMPLEMENTATION COMPLETION REPORT BURKINA FASO NATIONAL ENVIRONMENTAL MANAGEMENT PROJECT (CREDIT 2229-BUR) PREFACE This document is the Implementation Completion Report (ICR) for the National Environmental Management Project, for which Credit 2229-BUR in the amount of SDR 11.5 million (US$16.5 million equivalent) was approved on April 25, 1991 and became effective on February 11, 1992. The credit was closed on December 31, 1998. The proceeds were used in their entirety, the final disbursement taking place on April 22, 1999. The Governments of Germany, France and Norway, as well as UNDP, provided cofinancing for the project. The ICR was prepared by a Bank team headed by Dirk Prevoo (Rural Development Sector Unit 3, Africa Region)2 and by a team from the executing agency headed by Mr. Albert Djigma, and was reviewed by Messrs. Jean-Paul Chausse (Sector Manager) and Hasan Tuluy (Director of Operations). The views of the Borrower and the cofinanciers were solicited. The Borrower's comments on the ICR are attached to the report. No comments were received from the cofinanciers. The report is based on the conclusions of a project completion mission conducted in February 1999 as well as on data contained in the project files. 2Other team members included Isabelle Girardot-Berg (AFTR3) and Emmanuel Nikiema (AFMBF).   IMPLEMENTATION COMPLETION REPORT BURKINA FASO NATIONAL ENVIRONMENTAL MANAGEMENT PROJECT (CREDIT 2229-BUR) EVALUATION SUIMMARY Introduction 1. The agricultural sector is essential to national food security and is the largest sector of Burkina Faso's economy and the main source of its exports. Ongoing growth of this sector is clearly a prerequisite for the country's balanced socioeconomic development. However, it is threatened by serious environmental problems. A new strategy was tested with donor support, namely the community-based land management approach to natural resource management. This approach is based on community participation, and uses as its primary tool a land management plan designed by the commnunity with the help of a multidisciplinary team. The tests culminated in this project. Project objectives 2. The project was the first five-year phase of a long-term program to last 15 to 20 years. The main objective of this program is "to halt and reverse the current process of degradation of natural resources in order to ensure lasting agricultural growth, restore biological diversity, and establish a long-term method of forest and wildlife management," with the underlying goal of reaching the majority of the country's rural communities within the program period. Specifically, the project aimed to: (i) apply the community land management approach on a larger scale by helping rural commnunities to design and carry out plans for the sustainable management of their land and natural resources; (ii) monitor natural resource management activities in order to disseminate best practices; and (iii) monitor changes 'm environmental conditions. The project included the following components: (i) definition, preparation and implementation of community land management plans in three provinces representing the country's distinct agricultural and ecological regions); (ii) preparation and implementation in two provinces of combined land management plans for reserve forests and surrounding land; (iii) provision of technical support for natural resource management operations already in progress in 18 provinces (supplementary and limited support in the areas of training, environmental monitoring, selective surveys or studies, and map making, targeting 1,000 communities); (iv) creation of a national environmental monitoring system and of a system for assessing impact at the project level; (v) human resources development; and (vi) project management and studies. A seventh component (communication, environmental education and documentation) was added in 1992 with German support and cooperation.  iii 3. Though the objectives were well defined and responsive to the country's needs and to Bank strategy, they were highly optimistic. The slow pace of the initial execution of the project had not been anticipated, though administrative delays had been anticipated while the community land management approach was still in the testing stage. The Bank's decision to exclude social and socioeconomic investment contributed to the slow pace, as did rigorous procurement procedures with very low ex ante review thresholds. Furthermore, no provision had been made for implementing a Monitoring and Evaluation (M&E) system. Implementation Experience and Results 4. The project's overall objectives were fully achieved. Substantial results were obtained in mobilizing communities for water and soil conservation, pasture management, and participatory management of reserve forests.3 More than 75 percent of the villages targeted built rock bunds and dug manure pits and are satisfied with the results. Close to 170,000 plants have been produced in village nurseries and planted in individual reforestation areas (200 hectares) or collective reforestation areas (200 hectares), with a survival rate of approximately 50 percent. In terms of pasture management and support for animal production, 30,153 ha were managed in five areas of pasture or mixed woods and pasture in or between villages in three provinces, 1 1 0 km of seasonal migration corridors were created, 1 10 km of livestock paths and watering areas were created, four vaccination centers were established, and many stock-fattening operations were supported (13,000 head of cattle and sheep). In addition, 6,000 inhabitants of villages (men and women) benefited from varied technical training, generally related to the investments made. The main weakness of the project was the environmental monitoring component, which failed to reach its objectives. A M&E unit was, however, added to the implementing agency, which has been able to increasingly take on the roles that were assigned to the environmental monitoring component 5. Implementation was initially slow, but this was corrected after the mid-term review, which recommended the use of contractors and NGOs for project implementation and in addition agreed to the eligibility of socio-economic microprojects. Procurement was slow during the implementation of the project due to the combined effect of cumbersome public procedures and slow Bank follow-up. 6. The overall results of the project are satisfactory, which is conform the F590/PSR ratings. No economic evaluation was presented in the Staff Appraisal Report. As the project did not maintain a regular follow-up on financial impact of productive investments, it is not possible to make an estimate of the impact of the microprojects on rural income. A participatory survey was carried out by the M&E unit in 1998 to measure project impact on the basis of four indicators (living conditions, local capacity development, status of natural resources and the institutional environment). The survey concluded that for each of these indicators, beneficiaries felt there was a positive change of between 10 to 35 as a result of the project. 3 The results presented in this paragraph cover only the 1992-1997 period, since the investments funded in 1998 were not included in the participatory study carried out in 1998. Almost half the village investments were made in 1998.  iv 7. The sustainability of the project in terms of institutional strengthening and investmnents is uncertain. Success in bolstering the capacity of village-based organizations to manage the investments made through the project is a long-term process that cannot be completed during the lifetime of a single project. The second phase of the PNGT takes this concern into consideration and will continue the process of strengthening beneficiary capability by employing an integrated development approach (literacy, management, organization, etc.). The second phase will also test for more effective means of intervention, so that implementation can take place on a larger scale and eventually cover the entire country. 8. Performance by the Borrower and the implementing agency was satisfactory at all stages of the project cycle. The Bank's performance was satisfactory at the design stage, unsatisfactory at the appraisal stage, and marginally satisfactory during project supervision. Summary of Findings, Future Operation, and Key Lessons Learned 9. A second phase is under preparation. While drawing lessons from the first phase (see below), the new project will be designed as an Adaptable Program Loan over a 15-year period, to address the need for sustained intervention in order to ensure the lasting impact at village level, both in regard to human and organizational capabilities and in terms of maintaining physical investments. The new project will apply more cost-effective approaches to assisting villages and support the Government's recently promulgated decentralization law. 10. The principal lessons to be drawn from the first phase are the following: (i) Attention must be given to ensuring that the community land management plan leads quickly to the assumption of responsibility by villages/communities. This produces a more lasting and further- reaching impact. Operationally, this requires strengthening the community's technical, financial, and organizational capabilities; (ii) Community organizations should be given greater responsibility and strengthened so that communities can establish their priorities not only by type of investment/activity, but also in relation to a budget determined at the outset. This approach will make it possible to prevent too high a priority being given to large investments with limited benefits. In this respect, it is imperative for such a project to help beneficiaries put together the necessary information that will guarantee equal access to project-related benefits; (iii) It is important to incorporate the fimancial dimension into the natural resource management approach, especially for those activities that generate revenue, and to strengthen the capabilities of target communities in this respect (preparation of budgets, cash management, etc.) in order to create the conditions conducive to the long-term sustainability of project investments; and (iv) Project activities must be planned in a realistic way. Many of the delays affecting first-phase activities were traceable to cumbersome procedures. It is clearly necessary to institute multi-year planning and start the preparation of bidding and pre-qualification documentation well before the effectiveness date.   IMPLEMENTATION COMPLETION REPORT BURKINA FASO NATIONAL ENVIRONMENTAL MANAGEMENT PROJECT (CREDIT 2229-BUR) PART I. REVIEW OF PROJECT EXECUTION A. Introduction 1. The agricultural sector is essential to national food security and is the largest sector of Burkina Faso's economy and the main source of its exports. Ongoing growth of this sector is clearly a prerequisite for the country's balanced socioeconomic development. However, it is threatened by serious problems: (a) an approximately 200-km isohyetal shift southward over the past 40 years increases the risks to agricultural production associated with random variation in precipitation; and (b) reduced ground cover caused by use of land for domestic energy production and for planting of new crops to satisfy the needs of a growing population. The Burkina Faso authorities have adopted a number of important measures over the years to improve natural resource management and deal with demographic, agricultural and environmental problems. Between 1986 and 1990, a series of pilot projects was conducted in various parts of the country with the support of donors (Germany, France, Norway and IDA) and NGOs in order to test a new strategy for intervention in the rural environment, namely the community-based land management approach to natural resource management. This approach is based on community participation, and uses as its primary tool a land management plan designed by the community with the help of a multidisciplinary team. This plan lays down the rules that are to govern access to and exploitation of the community's collective assets, and defines projects for improving both collectively and individually owned land. 2. The preliminary results of these pilot projects were promising enough to produce a consensus between the Government and donors on the fact that the community-based land management approach was an effective and lasting way of improving natural resource management. In addition, it was recognized that even though more experience with this approach was necessary, launching of the National Environmental Management Project (PNGT) was justified. B. Project Objectives 3. The project was the first five-year phase of a long-term program to last 15 to 20 years. The main objective of this program is "to halt and reverse the current process of degradation of natural resources in order to ensure lasting agricultural growth, restore biological diversity, and establish a long-term method of forest and wildlife management," with the underlying goal of reaching the majority of the country's rural communities within the program period.  2 Specifically, the project aimed to: (i) Apply the community land management approach on a larger scale. As a corollary to this, the project also aimed to help rural communities design and carry out plans for the sustainable management of their land and natural resources. The content of the project was to depend largely on the needs of the beneficiary communities, which meant that it would need to have built-in flexibility. (ii) Monitor natural resource management activities in order to disseminate best practices. (iii) Monitor changes in environmental conditions. The project incorporated the following components: (a) Definition, preparation and implementation of complete community land management plans in three provinces representing the country's distinct agricultural and ecological regions (a total of 120 communities in the provinces of Gnagna, Kenedougou and Kouritenga); (b) Preparation and implementation in two provinces of combined land management plans for reserve forests and surrounding land (47 communities in the provinces of Houet and Bougouriba); (c) Provision of technical support for natural resource management operations already in progress in 18 provinces (supplementary and limited support in the areas of training, environmental monitoring, selective surveys or studies, and map making, targeting 1,000 communities); (d) Creation of a national environmental monitoring system and of a system for assessing impact at the project level; (e) Human resources development; (f) Project management and conduct of studies. A seventh component - that of communication, environmental education and documentation - was added in 1992 with Gernan support and cooperation. 4. Though the objectives were well defined and responsive to the country's needs and to Bank strategy, they were highly optimistic. The slow pace of the initial execution of the project had not been anticipated, though administrative delays had been anticipated while the community land management approach was still in the testing stage. The Bank's decision to exclude social and socioeconomic investment contributed to the slow pace, as did rigorous procurement procedures with very low ex ante review thresholds. Furthermore, no provision had been made for implementing a Monitoring and Evaluation (M&E) system.  3 C. Achievement of Objectives 5. Overall, the first phase of the PNGT achieved its objectives. A detailed evaluation of each of the components is provided below. C.1 Community land management in three provinces 6. The specific objectives for this component were fully achieved. Expectations for this component were far exceeded in terms of number of villages directly supported by the PNGT. The project was able to compensate for the initial delays after the mid-term review. At the end of 1998, village investments were in progress in 202 villages (compared to 120 planned). During the preparatory phase, basic data were collected in three provinces (Gnagna, Kouritenga and Kenedougou). This information was used during the execution of the project to preselect villages based on criteria defined before the project was launched. A Mobile Multidisciplinary Team was created in each province to execute the project at the village level. Participatory assessments were conducted in the preselected villages in order to identify the availability of village resources, the main constraints on developing them, and the actions needed to overcome these constraints. This information served as a starting point for measuring the impact of the project. During the 1992-1996 period, assessments were made in 45 villages only - far fewer than the 120 planned. The Mid-Term Review (MTR) recommended the use of NGOs and private contractors for carrying out the assessments and during 1996-1997, 157 participatory assessments were conducted. 7. Investments were to be defined during project implementation together with the communities through participatory assessments. Selection criteria were, however, defined at the start of the project to guide selection. Socioeconomic investments were initially excluded, though the villages expressed a need for such investments. After the MTR, these types of investments were included in order to respond better to the needs of the beneficiaries. Microprojects included soil fertility/erosion control (rock bunds, soil fertility restoration, manure pits, wind breaks, protection of river banks and bottomland development), pastoral (identification and demarcation of pastoral areas and corridors, and restoration and creation of grazing areas), support for vegetable production (supply of seeds, small vegetable gardens, and larger commercial gardens), support for animal production (dairy production, animal shelters, marketing, pisciculture, beehives, fodder production, etc.), water supply (both for human and animal consumption), roads (maintenance, repair and construction), social infrastructure (rural maternities, literacy centers, schools, etc.), and economic infrastructure (vaccination centers for cattle, solar drying, mills and presses, storage sheds, savings and loans, etc.) Most of the investments were small-scale microprojects that were carried out by the beneficiaries themselves, wvith the project supplying the materials. For large investments (e.g. bottomland development), the project acted as project manager with the assistance of private contractors. In 1997-1998, the project piloted the implementation of medium-sized projects by the beneficiary communities. Eight medium-sized projects (under US$12,000 each) were thus executed. These tests showed the advantages of this approach: greater assumption of responsibility on the part of the beneficiaries and more rapid execution, since public procurement procedures did not apply. The communities showed a great deal of enthusiasm and willingness to assume responsibility.  4 8. A large number of microprojects were identified with the beneficiaries and executed in the context of the project. An average of 12 microprojects was executed in each community/village. The type of microproject varied greatly among the three provinces (see a detailed list in Part II, Tables 5.B and 5.C). The Staff Appraisal Report (SAR) estimated the average level of investment per village at US$50,000. This level was not achieved, the cumulative value of the microprojects carried out by the project, excluding the contribution of the beneficiaries, is estimated at US$4.5 million to US$5.0 million, or US$20,000 per village. The discrepancy between the planned and actual levels is explained by the devaluation of the CFA franc (CFAF) in January 1994, which reduced the costs of the microprojects, and the delays in project execution until 1996. It is clear that the pace of execution improved after the MTR. In 1998, the average level of investment per village for the project reached US$10,000. C.2 Combined land and forest management plans 9. This component was located in the province of Houet (the reserve forest of Maro and the 18 neighboring villages, as well as the reserve forest of Mare aux Hippopotames and the six neighboring villages) and the province of Bougouriba (around the reserve forest of Nabere and the provisional wildlife reserve of Nabere and the 23 neighboring villages). This component employed a method of management that included comprehensive management and conservation plans for the reserve or protected forests and community land management plans for the nearby areas. The initial objectives of the project were surpassed with the inclusion of the reserve forests of Tuy and Dan, and the increased number of villages that benefited from project actions. 10. The tools to carry out the management plans were developed by the Technical Forestry Team with support from the Forest Management Unit. The tools used for the reserve forests were inventories of plant resources, maps, aerial photographs, defining and demarcation of boundaries, etc. Between 1992 and 1996, 46 assessments were performed in the 46 regions adjoining the reserve forests. After the MTR, the number of assessments grew appreciably through the use of contractual services and the area of intervention was enlarged. With the inclusion of the two reserve forests of Tuy and Dan and the creation of larger contiguous zones around the reserve forests, 187 supplementary assessments were conducted. This approach made it possible to include the creation of corridors for the migration of elephants, transhumance corridors, demarcation of grazing areas, reforestation, etc. Other micro projects were in general similar to the ones described in paragraph 7. 11. The investment plans in these two provinces clearly showed the different constraints and priorities between villages in forest areas and villages in the other provinces. More microprojects were executed, but with an average cost greater than for the microprojects funded under the first component, partly because of their scale (reforestation, access roads, fire gaps, etc.). In addition, the types of microproject were more varied. On average, 30 microprojects with an average value of CFAF 16.6 million (about US$31,000 equivalent) were carried out by villages in the areas targeted by the project, reflecting different priorities and a slightly higher implementation capacity. 12. The project attempted to support voluntary migration from the reserve forest areas to other regions. Rather than waiting for support from the project, some families settled outside the "welcome zones." A review was conducted by the Bank to make sure that the rights of the  5 families were respected. The review concluded that there had been administrative delays, but that all rights had been respected. Approximately 627 families moved voluntarily. C.3 Technical support in 18 provinces (coordination) 13. The specific objective for this component was to provide additional technical support to other projects that are in progress in the 18 provinces, with funding from other lenders. The report estimated that approximately 1,000 villages would benefit from such support. Generally speaking, this component has achieved its objectives. A great many coordination and support activities were initiated by the PNGT or have received support from the project - such activities as: participation in evaluation committees; planning other community land management projects; technical support to projects; coordination meetings at the subregional, national, provincial and inter-village level; national and international conferences and workshops; training of partners; etc. Seventeen training sessions were organized at the request of partners between 1992 and 1997. It was not possible for the ICR mission to estimate the number of projects or villages that have benefited from this support, or to determine from the accounting records the amount spent on these activities (US$1.4 million, according to the estimate in the staff appraisal report). C.4 Environmental monitoring 14. The specific objective of this component was to make a systematic study of changes in land use over the last 40 years. Initially, it also included impact monitoring on a sample of land areas in partnership with the National Agricultural Research Institute (INERA). The objective of the component was not met. The activities executed in environmental monitoring related principally to the production of cartographic materials (see Part II, Table 5.D). For this purpose, it was necessary to acquire the technology that would make it possible to digitize existing maps, mobilize institutional partners and negotiate protocols for collaboration. Institutional reforms among the partners were to be carried out before the initiation of activities, which took longer than planned. In addition, the slow pace at which procurement procedures for the acquisition of satellite images and computer material resulted in delays in training staff and producing maps. In addition, the ability to interpret maps is still little more than minimal. 15. Monitoring and Evaluation. An M&E system had not been provided for in the initial plans (paragraph 4). In 1993, M&E was introduced, but the initial focus was on arrangements for documenting activities. Only in 1995 did the M&E system receive support from the Institute of Applied Research on Development Methods, and a number of technical tools were introduced (project brief, performance chart for monitoring physical output, status indicator matrix). Between 1995 and the end of the first phase of the project, a number of improvements were made in the system, such as impact assessment, coordination of codes and nomenclature between the monitoring and assessment system and project records, and the determination of precisely what data environmental monitoring should provide for the monitoring and assessment program. Monitoring and assessment is now recognized as an internal decision-making tool. A unified database combining M&E and financial data is planned for the next phase of the project. 16. In 1996, the M&E unit organized a self-evaluation of the physical activities carried out by the project between 1992 and 1995, and in 1997 for the 1992-1997. The data were independently verified and judged reliable. The results are shown in Part II, Table 5. In  6 addition, a participatory evaluation was carried out in 1998, based on a sample of 15 villages in the five provinces. The sample made it possible to cover 42 village organizations (of 17 different types, in terms of their principal activities), 41 training subjects (of the 50 present in the entire project) and 42 microprojects (out of a total of 83 for the entire project). In the 15 villages as a whole, the inhabitants indicated that there had been positive changes in improving food security, soil fertility, increased knowledge as a result of training and field trips, creation of new village-based organizations, increased agricultural production and increased income. The project identified four indicators to measure impact: living conditions, local capacity development, status of natural resources and the institutional environment. The survey concluded that for each of these indicators, beneficiaries felt there was a positive change of between 10 to 35 percent as a result of the project. C.5 Human resource development 17. The project was to be executed by existing institutions, which meant that training of staff in the community land management approach was an important factor. This component achieved its objective both from a quantitative and a qualitative perspective. Training activities are summarized below: * Project personnel: 23 mobile multidisciplinary team members received basic training in the community land management approach, and 27 were trained in the accelerated method of participatory research and project planning by objectives. * Technical partners: Approximately 300 agents received at least one training session in one of a number of areas. . Producers: Nine to ten thousand producers were trained in all areas combined (approximately 2,000 per province, or 20 per village). * 1995-1996: 42 students and interns, including 20 from professional schools, 4 from the university and 21 nonemployed university graduates. * 1997-1998: 50 interns of all types. * The OMU and the project's administrative entities, together with their sub-units, benefited from appropriate and well-managed training. This consisted essentially of basic training, augmented at times by field trips and short-term seminars. 18. Training has had a positive impact on project irnplementation and significantly strengthened the capacity of the implementing institutions. In the future, special emphasis should be placed on increased awareness that beneficiaries need to train non-beneficiaries. Emphasis also needs to be placed on increasing literacy to enhance greater assumption of responsibility at the village level in implementing the community land management approach. An in-depth study of the training offered during the first phase of the project will be funded through the PPF for the second phase.  7 C.6 Project management and studies 19. The specific objective of the management sub-component was the creation of an operational management unit (OMU) and provincial operational management units (POMUs) in each province targeted by the project. The OMU and POMUs were created as planned. The principal objectives of the POMUs were to coordinate activities and ensure that the resources for carrying out the work were available. Two Forest Management Units were also created in the provinces of Houet and Bougouriba for executing specific activities associated with combined land and forest management. A Technical Forestry Team was also formed to provide technical support to the Forest Management Units. In each province where the project is present, the technical personnel of the Forest Management Units and/or POMUs constitute a Mobile Multidisciplinary Teams. The objectives were fully achieved. 20. Studies. Five major studies were outlined in the staff appraisal report. During execution, a hundred studies were carried out, excluding the village assessments. The total expenditure on studies was in excess of CFAF 1.5 billion (approximately US$3 million) as compared with an anticipated CFAF 800 million (adjusted to take the 1994 devaluation into account). A partial list of the studies is given in Part II, Table 7. 21. However, the way study findings are organized does not make it possible to take full advantage of the information. The documentation center's database does not take into account that 30 percent of the studies cited in the annual reports, as well as certain other documents, are difficult to locate (at the provincial or national level). In addition, the studies were not always designed to serve as sources of information for communication, training or coordination activities. The objectives of the studies sub-component were thus only partially achieved. C.7 Communication, environmental education and documentation 22. This component was developed with German support and cooperation after the project began. Among the activities carried out in the framework of the communication sub-component were radio and television broadcasts, articles in specialized journals, marketing support, theatrical pieces, booths at exhibitions, and community land management glossaries in local languages. This sub-component contributed to disseminating the community land management concept. The environmental education sub-component produced teaching materials adapted for school children and for the training 434 teachers and educational counselors. Altogether, 8,544 school children and 434 teachers and counselors, belonging to 274 primary schools in 18 provinces, as well as four professional institutes and 294 interns, benefited from the program. D. Major Factors Affecting the Project D.1 Factors beyond the Government's control 23. The only factor beyond the Government's control was the poor rainfall in 1997-1998, but this affected project activities only slightly.  8 D.2 Factors dependent on the Government 24. The main factors that affected the project adversely were the delays in makiing counterpart funds available and the low thresholds for approval of procurement procedures. The comparatively rigorous national procedures are used only for procurement of goods and services in amounts above CFAF 1 million (US$2,000). D.3 Others 25. Mid-Term Review. The MTR was held in November 1994. It was well executed with appropriate expertise (except for procurement). The main recommendations of the MTR mission were to make socioeconomic investments eligible for project funding and to use contractual services to implement the project, rather than to solely rely on the MMTs. These recommendations had a very positive impact on project implementation. In addition, it properly established the M&E unit and laid the framework for its mandate. 26. Procurement. One of the major reasons for the initial delay in project execution was the procurement procedures required by the Bank,4 combined with low national thresholds for public contracts approval mentioned above, and this meant that the project had to follow onerous procedures for relatively small amounts. The problem was compounded by an inexplicable and inexcusable delay on the Bank's part in responding to the project's requests for non-objection (months in some cases). In addition, the Bank had not amended the procurement procedures after the MTR, when it could have applied the new, more flexible procedures, better adapted to this type of project. 27. Financial/administrative management. The project's financial/administrative management was satisfactory, and audit reports were submitted within the term set in the Development Credit Agreement. In addition, the auditors' opinions were favorable throughout, and their recommendations were implemented by the project. A general computerized accounting and budget system was put in place in 1992, but because of the shortcomings of the software another program was installed in 1994. However, this second program does not allow cost accounting, a disadvantage which should be corrected before the PNGT second phase begins. 28. Legal covenants. All Development Credit Agreement covenants were observed. 29. Consulting services. The project used a large number of consultants and contractors for assistance in executing the project, implementing the M&E system, conducting studies, organizing training modules, etc. The services were generally of satisfactory quality. 30. Project costs andf/unding sources. At the appraisal stage, the total cost of the project was estimated at US$25.2 million. The real cost of the project is estimated today at US$19.6 million, including funding of US$15.0 million from IDA. The difference between the anticipated and actual costs can be explained by the devaluation of the CFA franc in 1994 and the initial 4These initial delays were the basis for the Bank's decision to move the Credit closure date from June 30, 1997 to December31, 1998.  9 implementation delays. The data and details related to project cost and funding appear in Tables 8.A to 8.B. The project appraisal report did not include an economic analysis, and thus the project did not collect data for such an analysis. As a result, it is not possible to calculate the rate of economic return for the project overall or of the microprojects. E. Project Sustainability 31. The sustainability of the project in terms of institutional strengthening and investments is uncertain. Success in bolstering the capacity of village-based organizations to manage the investments made through the project is a long-term process that cannot be completed during the lifetime of a single project. The second phase of the PNGT takes this concem into consideration and will continue the process of strengthening beneficiary capability by employing an integrated development approach (literacy, management, organization, etc.). The second phase will also test for more effective means of intervention, so that implementation can take place on a larger scale and eventually cover the entire country. F. Performance of the Bank 32. The Bank's performance during design conception and preparation of the project was satisfactory, notably with respect to coordination with the other donors and piloting of the community land management approach. The Bank's performance during project appraisal, however, was not satisfactory. The omission of socioeconomic investments and an M&E system were project design weaknesses. 33. The Bank's performance during supervision was marginally satisfactory over all. The distribution of specialties was appropriate, with the exception of procurement, and sufficient time was devoted to on-site visits, in particular during the first, crucial years of execution. The amendment of the Development Credit Agreement following the mid-term review corrected the weakness in project design related to socio-economic investments. Other weaknesses related to the assistance in procurement, delays in establishing the M&E system and operationalizing the recommendation of studies. G. Performance of the Borrower and the Executing Agency G.1 Performance of the Borrower 34. The performance of the Borrower in the preparation and execution of the project was satisfactory over all. The Government participated regularly in project preparation, appraisal, and supervision missions. The project management committee held regular meetings to examine and approve planning documents and financial statements. The Government also ensured that sufficient human resources were placed at the disposal of the project and that supervision mission recommendations were implemented. The three weak points in the Government's performance were: delays in making national counterpart funds available; failure on the part of INERA and the Burkinabe Geographic Institute to respect the agreements on environmental monitoring; and application of national procurement procedures to relatively low-value contracts.  10 G.2 Performance of the Executing Agency 35. The performance of the project OMU was satisfactory. Execution of the components under the control of the OMU was effective. The results of the community land management and combined land and forest management components exceeded the objectives. The OMU now has an M&U unit that is closely monitoring the impact of village investment activities. Financial management was satisfactory. The delays in execution of the environmental monitoring component were beyond the control of the OMU. The OMU's main weakness was operationalizing recommendations of some studies. H. Assessment of Outcome 36. The overall results of the project are satisfactory in that the project generally achieved its objectives. Substantial results were obtained in mobilizing communities for water and soil conservation, pasture management, and participatory management of reserve forests.5 More than 75 percent of the villages targeted built rock bunds and dug manure pits and are satisfied with the results. Close to 170,000 plants have been produced in village nurseries and planted in individual reforestation areas (200 hectares) or collective reforestation areas (200 hectares), with a survival rate of approximately 50%. In terms of pasture management and support for animal production, 30,153 ha were managed in five areas of pasture or mixed woods and pasture in or between villages in three provinces, 110 km of seasonal migration corridors were created, 110 km of livestock paths and watering areas were created, four vaccination centers were established, and many stock-fattening operations were supported (13,000 head of cattle and sheep). In addition, 6,000 inhabitants of villages (men and women) benefited from varied technical training, generally related to the investments made. 37. The project had no component specifically designed to support women. However, women were involved in all project activities, as the community land management approach requires participation by all stakeholders (men, women, and young people). Women individually, or organized into women's groups, participated actively in the fight against erosion, in forest management (including reforestation activities and exploitation of fuelwood), introduction of improved cooking stoves, and creation of socioeconomic infrastructure. 1. Future Operations of the Project 38. A second phase is under preparation. While drawing lessons from the first phase (see below), the new project will be designed as an Adaptable Program Loan over a 15-year period, to address the need for sustained intervention in order to ensure the lasting PNGT impact at village level, both in regard to human and organizational capabilities and in terms of maintaining physical investments. The new project will apply more cost-effective approaches to assisting villages and support the Government's recently promulgated decentralization law. 5 The results presented in this paragraph cover only the 1992-1997 period, since the investments funded in 1998 were not included in the participatory study carried out in 1998. Almost half the village investments were made in 1998.  11 J. Key Lessons Learned 39. The principal lessons to be drawn from the first phase are the following: (i) Attention must be given to ensuring that the community land management plan leads quickly to the assumption of responsibility by villages/communities. This produces a more lasting and further-reaching impact. Operationally, this requires strengthening the community's technical, financial, and organizational capabilities that are associated with village investments. (ii) Community organizations should be given greater responsibility and strengthened so that communities can establish their priorities not only by type of investment/activity, but also in relation to a budget determined at the outset. This approach will make it possible to prevent too high a priority being given to large investments with limited benefits. In this respect, it is imperative for such a project to help beneficiaries put together the necessary information that will guarantee equal access to project-related benefits. (iii) It is important to incorporate the financial dimension into the natural resource management approach, especially for those activities that generate revenue, and to strengthen the capabilities of target communities in this respect (preparation of budgets, cash management, etc.) in order to create the conditions conducive to the long-term sustainability of project investments. (iv) Project activities must be planned in a realistic way. Many of the delays affecting first- phase activities were traceable to cumbersome procedures. It is clearly necessary to institute multi-year planning and start the preparation of bidding and pre-qualification documentation well before the effectiveness date.  12 IMPLEMENTATION COMPLETION REPORT BURKINA FASO NATIONAL ENVIRONMENTAL MANAGEMENT PROJECT (CREDIT 2229-BUR) PART II: STATISTICAL ANNEXES Table 1: Summary of Assessments A. Achievement of Objectives Substantial Partial Negligible Not applicable Macro Policies E IlE Sector Policies ] [LI Financial Objectives L 11 LiiE Institutional Development Physical Objectives [ L3 LI] Poverty Reduction [I [I]C Gender Issues LE] Other Social Objectives [ [ EI- Environmental Objectives [| [I | I] Public Sector Management [ | LI] Private Sector Management [ ] [7] Other (specify) [ ] KE B. Project Sustainability Likely Unlikely Uncertain O F E C. Bank Performance Highly Satisfactory Deficient Satisfactory Identification [O FO Preparation Assistance [] m] Appraisal [I [] Supervision D] EC ]  13 D. Borrower Performance Highl Satisfactory Deficient Satisfactory Preparation [1 [7 Implementation 7] [Z] Covenant Compliance F [ Operation (if applicable) III E. Assessment of Outcome H Satisfactory Unsatis- Highly Unsatis- Satisfactory factory factory Li] E] l]L Table 2: Related IDA Credits Loan title and Purpose Year approved Status number Previous Operations Credit 1979-BUR Strengthening of national outreach services 1989 closed Agricultural Services Project Credit 1896-BUR Support for the National Research Institute 1988 closed Agricultural Research Project Subsequent Operations Credit 2381-BUR Support for Strengthening the juridical and institutional 1992 closed Sectoral Adjustment environment Credit Credit 2414-BUR Support for village activities connected to increasing food 1993 ongoing Food Security Project security Loan 2974-BUR Strengthening of national outreach services and support for 1998 ongoing PNDSA rural organizations Credit 3161-BUR Support for development of small-scale private irrigation 1999 ongoing Project to promote private irrigation  14 Table 3: Project Timetable Steps in Project Cycle Date Planned Date Actual/Latest Estimate Identification (Analytical summary of the January 14, 1987 project) I Preparation 1987-1990 Appraisal June 1990 Negotiations February 1991 Development policy statement (if appropriate) I Board Presentation April 25, 1991 Signing May 15, 1991 Effectiveness August 15, 1991 February 11, 1991 Project Completion June 30, 1997 December 31, 1998 Loan Closing December 31, 1998 December 31, 1998 Table 4: Credit Disbursements: Cumulative Estimated and Actual (US$ million) FY92 FY93 FY94 FY95 FY96 FY97 FY98 FY99 Appraisal Estimate 2.00 3.80 6.00 9.00 12.00 15.00 16.50 16.50 Revised Estimate 0.83 1.76 3.22 4.71 7.15 9.90 13.90 16.50 Actual 0.83 1.76 3.23 4.73 7.68 10.44 13.06 14.58 I Actual as % of 41.5 46.3 53.7 52.3 64.0 69.6 79.2 88.4 estimate Actual as % of revised 100.0 100.0 100.0 100.0 107.4 105.5 94.0 88.4 estimate Date of fmal disbursement: April 22, 1999  15 Table 5: Key Indicators for Project Implementation Table 5.A: General Data Objectives Achieved end, Achieved end ._______________________________ December 1996 December 1996 Community land 120 villages (December 31, 1996) management in 3 provinces - Gnagna 15 81 - Kouritenga 16 52 - Houet 14 70 Combined land and forest 47 villages (December 31, 1996) management plans - Houet - Bougouriba 19 78 27 155 Technical support for 1.000 villages not available not available projects in progress in other provinces Table 5.B: Main Types of Investments Category Number of villages Reforestation (individual) 135 Manure pits 80 Reforestation (collective) 64 Rock bunds 62 Beehives 33 Support for marketing of wood products 32 Identification of pasture areas 29 Feed crop production 27 Plant production 26 Centers for monitoring and marketing of wood products 26 Demarcation of pasture areas 26 Opening/maintenance of reserve forests 26 Vegetable gardens 25 Grazing 23   17 Table 5.C: Summary of Project Physical Achievements (1993-1998) ACTIVITIES ACTIONS 1993/1994 1994/1995 1995/1996 1996/1997 1997/1998 1998