India - West Bengal Social Forestry Project

Document of The World Bank FOR OMCLAL USE ONLY Repot No. 11838 PROJECT COMPLETION REPORT INDIA WEST BENGAL SOCIAL FORESTRY PROJECT (CREDIT 1178-IN) APRIL 30, 1993 Agriculture Operations Division Country Department II South Asia Regional Office This document bas 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 EOUIVALENT Name of Currency: Rupee (Rs.) Rate of Exchange: Appraisal Year (1981) US$1.0 = Rs.8.0 Intervening Years (1982/83-1989/9() US$1.0 = Rs.12.6 Completion Year (1990/91) US$ 1.0 = Rs. 18.0 Fiscal Year of Borrower: April 1 - March 31 Weights and Measures: Metric System ABBREVIATIONS ERR - Economic Rate of Return FAO/CP - Food and Agiiculture Organization of the United Nations Cooperative Program FRR - Financial Rate of Return FWE - Fuelwood Equivalent GOI - Government of India GOWB - Government of West Bengal NGOs - Non-Govemmental Organizations PCR - Project Completion Report SFW - Social Forestiy Wing VFPCs - Village Forest Protection Committees  FOR Om1CIAL USE ONLY THE WORLD BANK Washington, D.C. 20433 U.S.A. Office of Director-General Operations Evaluation April 30, 1993 MEMORANDUM TO THE EXECUTIVE DIRECTORS AND THE PRESIDENT SUBJECT: Project Completion Report on INDIA West Bengal Social Forestry Project (Credit 1178-IN) Attached is a copy of the report entitled "Project Completion Report on INDIA - West Bengal Social Forestry Project (Credit 1178-IN)" prepared by the South Asia Regional Office, with Part II contributed by the Borrower. The production impact of this satisfactory project will be significant as the tree-planting targets set at appraisal were exceeded. However, project components that are directly linked to forestry or natural resource management activities (e.g., soil conservation, nursery management, forestry research, silvicultural practice) failed to yield the expected results. Institutional development was only partial and transfer to community management had hardly begun. Poor performance is not uncommon in this area, and sustainability appears uncertain. The completion report provides an adequate account of project implementation. The project may be audited along with other social forestry projects in India. Attachment 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.  I  FOR OFFICIAL USE ONLY INDIA WEST BENGAL SOCIAL FORESTRY PROJECT (Cr. 1 178-IN) PROJECT COMPLETION REPORT CONTENTS PREFACE . EVALUATION SUMMARY .iii PART I PROJECT REVIEW FROM BANK'S PERSPECIIVE .1 1. Project Identity. 1 2. Introduction. 1 3. Background. 2 4. Project Objectives and Description. 3 5. Project Design and Organization. 3 6. Implementation. 4 7. Project Results .10 8. Project Sustainability .12 9. Project Performance .12 10. Borrower Perforrance .12 1 1. Project Relationship .............................................. 13 12. Consultant Services ........ ...................................... 14 13. Project Documentation .14 PART II PROJECT REVIEW FROM BORROWER'S PERSPECTIVE ................ 15 1. Evaluation of Bank's Performance and Lessons Learned ........................ 15 2. Evaluation of Borrower's Own Performance and Lessons Learned ................. 15 3. Comments on Part I .............................................. 19 4. Comments on Part III ............................................. 24 PART m STATISTICAL TABLES 1. Related Bank Loans and Credits ....................................... 25 2. Project Timetable . ............................................... 26 3. Credit Disbursements . ............................................ 27 4. Project Implementation . ............................................ 28 5. Project Cost and Financing .......................................... 31 6. Project Results . ................................................ 32 7. Status of Covenants ............................................... 34 8. Mission Data and Staff Inputs . ........................................ 35 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.  ATFACHMENT 1 1. Per Ha - Financial Costs and Benefits of Strip and Rehabilitated Degraded Forests .... . 37 2. Per Ha - Financial Costs and Benefits of Rehabilitated Degraded Forests Coppicing .... 38 3. Per Ha - Financial Costs and Benefits of Farm Forestry .... . .......... . . . . . . 39 4. Per Ha - Financial Costs and Benefits of Village Woodlots ................ . . . 40 5 Wholesale Price Index and Exchange Rates .................. . 41 6. Economic Analysis - West Bengal Social ForestryProject ..... ........... . . . . 42  i PROJECT COMPLETION REPORT INDIA WEST BENGAL SOCIAL FORESTRY PROJECT (Credit 1178-IN) PREFACE This is the Project Completion Report (PCR) for the West Bengal Social Forestiy Project (Cr. No. 1178-IN) for which a credit in the amount of SDR 25.8 million (US$ 29.0 million) was approved on October 6, 1981. The Credit was closed on Marclh 31, 1991, three years behind schedule. The final disbursement from the credit was made in July 1991 and the undisbursed balance of SDR 0.17 million was cancelled. Parts I and III of this report were prepared by an FAO/CP project completion mission which visited India in June/July 1991 (Preface, Evaluationi Summary, Parts I and III). Part II was prepared by the Government of West Bengal. The preparation of this PCR was based inter alia on the Staff Appraisal Report, the legal documents, supervision reports, corresponidence between the Bank and the Borrower, internal Bank memoranda, and discussions with Bank project staff in the New Delhi Office.   iii PROJECT COMPLETION REPORT INDIA WEST BENGAL SOCIAL FORESTRY PROJECT (Cr. I1 78-IN) EVALUATION SUMMARY Objectives 1. The project's primary objective was to increase supplies of fuelwood to ruLal areas through the establishment of about 93,000 ha of plantations in all the 16 distr icts O1 the State. Secondary objectives were to provide poles, bamboo, small timber, fodder grass, fruits, oilseeds and other minor products for the irLral population. Other objectives included financial and staff support for forestry support services such as research, exteinsion, publicity, training, and monitoring and evaluation, and construction of smokeless stoves (paras. 7 and 8). Implementation Expeiience 2. Due to significant unutilized balance at the end of the original closing date in March 1987, adjustments were made duiing closing date extensions between 1987/88 and 199I/91 to allow for expansion of the plantation programs, completion of construction of infrastructure, procurement of vehicles and equipment, and strengthening of the forestry support component. More attention was also given to institutionalizing people's participationi through the Village Forest Protection Committees (para. 14). Overall physical planting targets were exceeded. Technical peiformance and survival rates of all plantations were satisfactory, but could benefit fiom some improvement. Nursery operation remains poor due to low seedling quality and nursery techniques. Construction of staff quarters and vehicle and equipment procurement were below required levels. Teriitorial Division staff was more involved in participatory forestiy than staff from the Social Forestly Wing (SFW), as had been intended. Forest extension workers' and motivators' work was hampered due to lack of training, and linkage with the Agricultural Department's Training and Visit network was not established. Progress on research was unsatisfactory and appropriate silvicultural and management systems under the new forestiy environiment were not completed. (paras. 15-18). 3. Under the farm forestry componenit, about 40% of farmers and 60% of total planting area under the project benefitted from the different seedling distribution schemes which provided cash incentives to farmers. The cash incentive was changed during the project period to incentives in- kind under which crops seeds and fertilizers were provided. However, seedling production remains a government subsidized undertaking and low survival rates are driving costs up and benefits down (paras. 21 and 22). The group farm forestry introduced by the SFW in 1985, whereby private and state-owned wastelands were leased to landless farm laborers for 99 years, proved to be socially and economically justified in terms of generating employment and incomes, and increasing supplies of forest produce to the rural poor. However, this component, as well as the other plantation components, suffered from lack of management plans for silvicultural treatments, stock information for estimation of wood supply and stumpage valuation, and marketing information (para. 23). 4. The concept of people's participation in forestry planning, protection and management was improved through the introduction of the Village Forestry Protection Committees (VFPCs). Government's recognition of these VFPCs and its introduction of benefit-sharing, whereby 25% of benefits under the project would go to the local population, provided an incentive for the rapid growth of the numbers of VFPCs. However, no major harvest has as yet been carried out and  iv most village panchayats have not yet designiated villagers' responisihility lor planitation protection and benefit distribution (paras. 34-36). 5. Some 10,200 improved smokeless stoves, just ovei. the appraisal target, were installed. However, there was not much evidence of the positive demonstration effect of this component. It was decided at the project level that other departments and NGOs were more appropriately equipped to implement this activity. As a result, no follow-up was unidertakeni, and little attention was given to management and maintenance (para. 37). Project Results 6. Overall, the project achieved its main objectives. Plantations were established in seven divisions, sixteen distiicts and thlee agro-climatic zones. The project created skilled manpower in social forestry development, improved forest cover age in the State, stimulated people's awareness of the economic and ecological importance of trees, lielped reduce fuLrther damage to the already degraded environment, and generated employment in rural areas. It also fostered forestry staffs awareness of the value of people's participationi in sustainiable lorestry activities (paras. 38 and 41, 42). 7. Production of fuelwood, poles, timber and fodder exceeded appraisal estimates (Table 6). Financial rates of return for all the plantation models raniged hetween 20% to 30% (Attachment 1, Tables 1-4). Re-estimated economic rate of returnl (ERR) is 24%7c, 3.5% lower than the appraisal estimate of 27.5%. The lower ERR is due to tlle lower Surivival riates and yields, delayed benefits, and cost overrun (para. 40). Proiect Sustainability 8. Plantation benefits are likely to be maintained. People's awareness of the importance of forests is likely to help reduce ecological degradation. The positive relationship fostered by the project between the rural community and forestry personnel will help sustainahility. SFW had demonstrated its capability to implement large plantation programs. There is considerable scope to improve the benefits from the project. To attain this, forestiy support services in the areas of research and extension should be improved. Forest managemenit plans should be completed and intensive training in forest management and protectioni should be provided to village panchayats and VFPCs. The recently approved West Bengal Forestry Project (Credit 2341-IN), which had taken into account lessons learned from past lorestry intervenitions, would be an added boost to the sustainability of gains earnled from the project. Findings and Lessons Leamned 9. Through the project, the Bank made significant contributions to the physical, institutional, economic and social development of the forestry sector. The experience suggests a number of lessons leamned. During implementation more recognitioni should have been given to the technical aspects of the plantation program; adequate attention should have been paid to forestry management, planning, and community involvement, coupled with intensive training of village panchayats and VFPCs in plantation managemenit and protectioni; cost-benefit sharing should have been worked out in advance; the plantation components should have been narrowed down to just a few for more effective implementation; and the henelits gained from cash incentives and free seedling distribution should have been weighed more carefully against the costs of such programs. Lessons learned from this project had been taken into account in the formulation of the recently approved West Bengal Forestry Project.  PROJECT COMPLETION REPORT INDIA WEST BENGAL SOCIAL FORESTRY PROJECT (Cr. 1178-IN) PART I. PROJECT REVIEW FROM BANK'S PERSPECTIVE Project Identity Project Name : West Bengal Social Forestry Project Credit No. : 1178-IN RVP Unit : South Asia Region Countiy : India Sector : AgiicLulture Sub-Sector : ForesLiry Introduction 1. Forestry in India. The pressure on the India's forest resources has been critical, and the concept of social forestiy was instrumental in changing past trends. Population growth and the corresponding demand for fuelwood and food, the increasingly excessive numbers of cattle in non- agricultural lands, and the continuous conflicts over property rights were identified as the most significant factors leading to the rapid depletion of forest resou.ces. As in neighboring countries, India has been facing an environmental crisis where the rates of soil erosion and sedimentation were increasing, and the risks from floods and otlhe climatic changes were clearly visible. The environmental crisis was compounded by a higlh demand lor fue]lwood by rut-al and urban households, and encroachment of the landless into the lorest lor subsistence needs. In areas where forest resources were already depleted, the envii-onmental and fuClwood crisis was directly linked to farmers' use of cow dung, agricultulal residues and waste, which were all being used as fuel rather than as organic fertilizer, causing significant changes in land productivity and food supplies. 2. Forest Policy. The National Forest Policy of 1952 envisaged that balance and complementarity in land use were importanit, and claims of communities living in and around forests should avoid conflict with these obJectives. The policy also recognized the need for establishing tree plantinig programs that involved local people's participation, not only to sustain the supply of timher, buLt also to promiiote the required supplies olf uielwood and fodder. Trees were raised in farm lands, village an(d community wastelands, and natuLal forest areas. In accordance with the national forest policy, the managemenit and ulilizationi of village forests or fuel forests was to be ellllusted to village panclhayats. 3. The 1988 National Forest Policy became an extension ol tlhe previous policy and aims to ensure environmental stability, ecological balance, efficient utilizationi of forest produce, and to meet the fuelwood, fodder, forest produce and small timber needs of the rural and tribal populations. The stated national goal is to have a minimum of one-third olf the total land area of the country under forest cover. The policy also e nvisages that all village and community lands not  2 required for other productive purposes should be brought under tree crops and fodder cultivation. The policy outlines ownership rights over trees for individuals, particularly the weaker sections of the community. 4. The Bank's Role in Social Forestry. The Bank's first intervention in the forestry sector, the Madhya Pradesh Forestry Technical Assistance Project (Cr. 609-IN, December 1975), was directed primarily towards the development of plantations for the pulp and paper industry. Since then, the main thrust of the Bank's operations in this sector has been on social forestry development, with five projects covering nine states. Each of these projects had the objectives of increasing the supply of fuelwood and providing poles, small timber, fodder and other minor forest products to those living in rural areas, with special focus on increasing employment and fuelwood supplies for landless farm laborers, and marginal and small farmers, production of wood products from government and village wastelands and strengthening the social forestry organization within the State Forestry Departments to carry out the plantation activities. The first two social forestry projects were in Uttar Pradesh (Cr. 925-IN) and Gujarat (Cr. 961-IN) which started in 1979 and 1980, respectively, and were closed five years later. The West Bengal (Cr. 1178-IN) and Jammu and Kashmir and Haryana (Cr. 1286-IN) Social Forestry Projects were the third and fourth projects in the sector which started in March and December 1982, respectively. After a three-year delay in execution, both Credits were closed in March 1991. On-going social forestry projects are: Karnataka (Cr. 1432-IN), Kerala (Cr. 1514-IN) and the National Social Forestry Project (Cr. 1611-IN) covering the states of Himachal Pradesh, Rajasthan and follow-up activities in Uttar Pradesh and Gujarat. Background 5. The State of West Bengal, with an area of 88,752 km2, has a population of about 68 million in 1991, of which 75% reside in rural areas spread over nearly 42,000 villages. Scheduled castes and tribes account for nearly 30% of the total population. Up to the end of the 1960s, the State had the highest level of industrial development, but it lost this position in the 1970s. The State, nevertheless, still has the second largest industrial base in India. Despite this industrial concentration, agriculture plays a predominant role in the State's economy, accounting for 35% of the total State's income and 60% of its total employment. Farms in general are small with 80% of all holdings being less than 2 ha. The total forest area of the State is 1.18 M ha, or 13.5% of the total geographical area. In addition, about 0.9 M ha, or 70% of the State's 1.3 M ha of waste and eroded agricultural lands, is estimated to be suitable for afforestation. However, seven of the State's 16 districts have less than 1% of forest area. In the traditionally forest rich districts, the distribution is very skewed and large tracts are now devoid of any natural vegetation. Productivity of more than half the forest estate is low, either because of aridity and low soil fertility or because of past degradation through illegal felling, overgrazing and burning. 6. The contribution of the forestry sector to the State's income in 1988 was less than 1% (Rs. 118 million). The annual wood production extracted from the State forests was 152,000 m3 of timber and 277,000 m3 of fuelwood. This, however, does not include fuelwood, small timber and a wide variety of other minor forest products such as gums, dried leaves, edible flowers, fruits and oilseeds collected by villagers, as well as illicit felling. Total annual energy consumption of the State in 1979 was estimated at about 10 million tons of fuelwood equivalent (FWE) based on the 0.28 m3 fuelwood per capita (0.2 tons FWE). The annual production of fuelwood from the State forests was about one million tons including illegal removals. West Bengal has a relatively good supply of commercial energy (coal, electricity, oil) and this accounted for about 20% (two million tons FWE) of total demand. The remaining eight million tons FWE (80%) were non-commercial energy comprising of 44% fuelwood, 16% crop wastes and 20% dung cake.  3 Project Objectives and Description 7. Project Objectives. The project's primary objective was to increase supplies of fuelwood to rural areas through the establishment of 93,000 ha of plantations in all the 16 districts of the State. Secondary objectives were to provide poles, bamboo, small timber, fodder grass, fruits, oilseeds and other minor products. To carry out this program, the project provided for training facilities, vehicles, housing, equipment and additional staff for research and extension activities. Moreover, the project was to introduce improved stoves as a fuelwood conservation measure. 8. Prject Descripion. During a six-year period the project was to: (i) establish 6,000 ha of village woodlots; (ii) rehabilitate and reforest 15,000 ha of degraded forests; (iii) establish 20,000 ha of strip plantings along roads, canals and railroads; (iv) establish 52,000 ha of farm forestry on private lands; (v) develop nurseries to provide planting stocks; (vi) construct a Forest Guard School; (vii) expand the existing West Bengal Forest School; (viii) provide forestry staff at the operational and extension levels financial and staff support for publicity, research, training, improvement of stove technology and monitoring activities; (ix) strengthen research activities, and construct seed storage godowns; (x) develop training of project staff including provision of fellowships; and, (xi) construct about 10,000 smokeless stoves. Prime responsibility for implementation was to be with the Social Forestry Wing (SFW) of the Forestry Department. Total project cost was estimated at US$43.5 million (Rs.348.7 million), of which US$2.3 million was in foreign exchange costs. The IDA Credit of SDR25.8 million (US$29 million) was to finance 100% of the foreign exchange costs and 65% of the local costs, or 67% of the total project costs; 33% was to be financed by the Government of India (GOI) and the State Government of West Bengal (GOWB). Pject Design and Organization 9. Prject Design. In view of the environmental degradation and scarce natural forest resource, the project was designed to provide forest products for basic human needs, generate employment in rural areas, and preserve the environment. The project concept was well founded and consistent with the national forest policy of promoting tree plantings through private and community participation. It also aimed to transfer responsibilities for plantation management, protection and utilization to local communities through the panchayat system. 10. The project was formulated by the Forestry Department in 1980 and appraised by the Bank in early 1981. The design of the project was developed from experiences gained in implementing social forestry programs within the State since 1975 and from the other States (Uttar Pradesh and Gujarat), particularly their experience with institutional plantation and various levels of community participation and financing. The project emphasized target groups as major beneficiaries and the transfer of responsibility for management of village woodlots and strip plantations to village panchayats after recovery by government of direct plantation costs. The project also provided for the strengthening of forestry supportive activities such as: nursery, research, public relations, monitoring and evaluation, training and fellowships, including expansion of the West Bengal Forest School, and technical assistance. 11. Problems and risks foreseen at appraisal were: (a) inadequate State funding of the program; (b) wasteful free seedling distribution necessitating close field monitoring of survival rate; (c) lack of leadership and interest in the village panchayats, and socio-economic inequalities among villagers leading to low community participation; (d) inadequately organized village  4 panchayats resulting in their inability to take responsibility for plantation management, protection and utilization; and (e) low adoption rate of improved stoves due to differences in socio-economic and climatic conditions. However, later in the project, active village institutions with strong community spirit emerged. The project was reformulated to strengthen beneficiary participation, particularly in the expanded degraded forest areas, in forestry management and protection. 12. Organization. Overall, the proposed organizational structure was satisfactory. There were, however, a few deficiencies: (a) although the research program was identified, research methodology was not prescribed resulting in poor performance; b) the project focused mainly on plantation establishment and not enough attention was paid to technical aspects of plantation management; (c) growth performance of strip and block plantations was the responsibility of the research unit; however, it was not clear who was responsible for preparation of stand-and-stock information, forest management planning, and harvesting. 13. Despite the emphasis on target groups and community responsibilities for plantation management and protection of village woodlots, the project failed to prescribe the mechanism for distribution of benefits. This has undermined people's and village panchayats' participation due to lack of assurance on the share of the expected benefits resulting in serious delays and difficulties in the implementation and the termination in 1988 of the village woodlot component. Implementafion 14. Chanzes in Proiect Design. Due to the significant unutilized balance at the end of the original project closing date in March 1987, several adjustments were made during the extensions of closing date between 1987/88 and 1990/91. During these extensions the project was restructured to allow for expansion of the plantation program, complete and construct infrastructure, procure more vehicles and equipment, and strengthen the forestry support components. With the exception of the village woodlot component, planting targets were increased from 93,000 ha to 210,000 ha as follows: strip plantation, from 20,000 ha to 23,000 ha; rehabilitation of degraded forests, from 15,000 ha to 70,000 ha, including mainly the sal coppice management; and farm forestry, from 52,000 ha to 111,100 ha. A number of experiments on agro-forestry were carried out, and the village micro-planning, to involve people's participation in project planning, was extensively used. More attention was also given to institutionalize the Village Forest Protection Committee (VFPC) for the protection, management and utilization of strip plantations and rehabilitated degraded forests. 15. General. Despite budget restrictions, serious shortage of staff, and problems of mobility, the project exceeded the overall physical targets set at appraisal. Total plantations of about 242,000 ha, including 150,000 ha of farm forestry, were achieved, or 260% of the appraisal target. Except for the strip plantation and farm forestry components during the earlier years, the technical performance and survival rates of all plantations were satisfactory. The 1991 project evaluation indicated satisfactory survival rates for the strip plantation and farm forestry components. The village woodlots component was terminated in 1988 and responsibility for plantations in rehabilitated degraded forests was transferred to the territorial divisions of the Forestry Department. The SFW concentrated its work on the strip plantations, farm forestry, the organization of VFPCs for management of sal coppice, and the handing over of strip plantations to village panchayats. 16. Notwithstanding the substantial physical achievement, the project fell short in several areas. Construction of staff quarters and vehicle and equipment procurement were substantially below the required level. Although about 50% of SFW staff positions remain unfilled there was  5 more involvement by the Territorial Division staff in participatory forestry than SFW incremental staff. Progress on research was unsatisfactory and little is known about the appropriate silvicultural and management systems under the new environment. Forest extension workers and part-time motivators were hired but their work was hampered due to lack of adequate training. Community participation in initial periods of project implementation was limited which later improved with the introduction of the village micro-planning and SFW's handing over of established plantations to village panchayats and rehabilitated degraded forests coppice to VFPCs for protection, management, and utilization. In 1988 a manual on village micro-planning and plantation and extension technology was introduced. 17. Nursery. SFW established one permanent nursery in one administrative block and a number of subsidiary and temporary nurseries at village levels. In addition, during implementation kissan nurseries were also established at selected villages by farmers with assistance from SFW. Under this scheme, farmers were provided with technical advice, seeds, bags and fertilizers, and a subsidy of Rs.0.30 per seedling. Seedlings produced were distributed free of charge to poor farmers selected by village panchayats and sold to other farmers. A total of 360 million seedlings were produced, of which about 15% were produced by kissan nurseries. Overall, the nursery operation was and still remains poor due to low seedling quality and nursery techniques. 18. Plantations. Four plantation components with twelve plantation models were to be established with different levels of community participation and financing. A total of 241,754 ha of plantations was established, or 260% of the appraisal target of 93,000 ha. The details of each component are presented below. 19. Village Woodlots: A total of 6,000 ha of plantations was to be established with three different levels of community participation and financing: 2,500 ha were to be established under the demonstration scheme; 1,750 ha each under the loan and the supervised scheme. Under the demonstration scheme, SFW was to establish one ha of plantation in each village panchayat and cover all the establishment and maintenance costs excluding the cost of seedlings, and village panchayats were to protect and manage the plantation for two years. If village panchayats successfully protected the plantations, they could opt for either a loan or supervised scheme. Under the loan scheme, SFW was to provide an interest-free loan to village panchayats to cover the costs of planting, maintenance and protection, and recover the loan from sales of harvestable produce, while under the supervised scheme SFW was to establish, maintain and protect the plantations and recover these costs after the sales of harvestable produce. A total of 2,405 ha of plantations and only the demonstration scheme was established, or 60% below the appraisal target. The shortfall was due mainly to the non-availability of panchayat wastelands, lack of local leadership and interest, and the financial capability in the village panchayats. Spacings ranged from 2m x 2m to 2m x 2.5m using Eucalyptus as the main species. The survival rate was good at 80%. Since 1989, the soil and water conservation techniques, such as V-ditch with Vetiveria and V-ditch with vitex were also carried out in about 40% of the total plantations established in SFW's southern circle. 20. Strip Plantations: SFW was to establish, protect and maintain 20,000 ha of plantations along roads, canals and railways. Villagers who reside adjacent to strip plantations were to be allowed to collect grass, fodder, fallen wood and other minor produce free of charge, and 25% of harvestable produce in exchange for their cooperation in the protection of the plantations. SFW established a total of 23,784 ha of plantations, or 119% of the appraisal target. Survival rate was low at about 53% during the initial years but rose substantially to about 74% in 1990. Cassia spp. and Leucaena leucocephala with spacing of 2m x 2m were planted in strips. Although the plantations were mature for felling, no major harvest was done as they were perceived to be managed not only for production but also for environmental preservation and aesthetics. The  6 Forestry Department was also reluctant to do any felling as they were concerned that such actions would be interpreted as a signal to fell strip plantations freely. There is a need to finalize a management plan which prescribes the cutting intensity to maintain the desired stocking. SFW should also increase species diversity to achieve the above objectives. 21. Farm Forestry. About 78 million seedlings were to be distributed to farmers for tree planting in 52,000 ha of private wastelands and Government's wastelands leased to landless farm laborers. Three different schemes of the distribution of seedlings were to be carried out: (a) distribution of free seedlings with cash incentive to poor farmers up to the limit of 750 seedlings per family. A cash payment of Rs.0.40 per seedling was to be paid to farmer in three yearly installments for trees that have survived; (b) distribution of free seedlings with cash incentive to landless farm laborers who were to be allotted with a small parcel of state-owned wastelands for 99-year lease -- a real innovation under the project; and (c) distribution of free seedlings to farmers other than those specified in (a) and (b). A total of 266.5 million seedlings were distributed to about 460,000 farmers for planting on about 150,554 ha, or nearly triple the appraisal target. Of the total farmers who had benefitted, more than two-thirds were landless farm laborers, and marginal and small farmers. About 40% of total farmers and 60% of total planting areas benefitted under this scheme. 22. The cash incentive was recently changed to incentives in-kind under which crop seeds and fertilizers were provided to farmers. In June 1988, GOWB issued an Order for seedling pricing at Rs. 0.20 per seedling up to a limit of 750 seedlings, and at Rs.0.45 per seedling beyond the limit to the lesser disadvantaged farmers. However, before the Order was issued, about 40% of seedlings were already distributed free of charge to farmers. This created confusion among farmers as the uniform policy was not followed from the beginning of the season. GOWB recognized this problem and subsequently abolished the Order. Since then SFW had adopted the policy of free seedling distribution at the limit of 750 to poor farmers and for sale to other farmers at Rs.0.65 per seedling. Seedling production is largely a government subsidized undertaking and low survival rates are driving the costs up and benefits down. Farm forestry accounted for 60% of all plantations in the project and were mostly planted in the laterite districts of Midnapore, Bankura, Purulia, Burdwan and Birbhum where fuelwood and small timber species such as Eucalyptus Tereticornis and Akashmoni (Acacia auriculifonnis), were planted forming pure stands. Spacing ranged from Im x Im to 2m x 2m where plantation's performance was better with wider spacing. The survival rate was low, about 46%, due to inadequate maintenance and protection resulting from inadequate technical advice from SFW. 23. In 1985, group farm forestry was introduced by the SFW for tree plantings on both private wastelands and state-owned wastelands leased to landless farm laborers for 99 years. SFW organized a group of farmers who had private wastelands or leased wastelands in contiguous stretch for tree planting. Plantings attained survival rates between 85% and 90%. These lands were idle for decades and SFW was able to demonstrate the profitability of tree plantations. Cash crops consisting of pigeon peas (Cajanus cajan), squash (Cucuberta maxima) and others were planted in between trees with spacing of 4m by 1.5m. Group farm forestry proved to be socially and economically justified in terns of generating employment and incomes as well as increasing supplies of forest produce to the rural poor. Wood products have been extracted from these plantations in considerable quantity. However, in spite of the increased demand for poles and small timbers no harvesting were done. There was no management plan on cutting volume, timing, and location, so that felling of poles and similar products were based on estimates rather than on silvicultural measures. Management plans for all the plantations are required for scheduling silvicultural treatments and regeneration for succeeding cycles, stock information for the estimation of future wood supply and stumpage valuation. Some stand tables that were  7 prepared were hardly used for forecast estimation and there was a lack of marketing information as a whole. 24. Rehabilitation and Reforestation of Degraded Forest: A total of 15,000 ha of degraded forest reserves was to be carried out either by coppicing the existing sal stumps or by replanting of gaps with fuelwood and other species. Casual laborers were to be employed by SFW to establish and maintain the plantations. Local villagers were to be allowed to collect 25% of the produce free of cost. The collection of free fodder and fuelwood was to be organized by SFW. Planting activities included replanting of gaps in the completely degraded forests using mainly Eucalyptus Tereticomis and coppicing of sal stumps. A total of 11,926 ha of plantations were established with a survival rate of 72%, and 53,085 ha of sal were being managed through coppicing. The achievement was more than quadruple the appraisal target. About 40% of plantations were carried out with soil and water conservation measures. Improvement cuttings in sal coppice stands were undertaken. An average of 500 coppices per ha was being maintained for the production of fuelwood, pulpwood and poles. 25. Recommendations for Replanting in Sal Degraded Forest: Enrichment planting of species compatible with and promotive of the growth of Shorea robusta should be considered and the use of Eucalyptus should be minimized. Several species belonging to the families of Leguminos. Sapindaceae. Moraceae. Anonace. Rubiaceae. Meliaceae. Sapotaceae. Cumbretaceae. Arallacea, Ulmacea. and Simarubaceae are associated with the Dipterocarpaceae forests. Investigating the right species mixture to promote the development of sal is important. 26. Coppicing. Although the improvement cuttings in sal stumps provided substantial fuelwood, pulpwood and poles in the relative short rotational period, the current coppicing system is more of an extractive activity. In order to sustain better regeneration growth of sal stumps, coppicing should be done as a forest stand improvement measure. 27. Forestrv Education. Expansion of the existing West Bengal Forest School was to be undertaken by constructing a hostel for an additional 40 students and quarters for teaching staff. Project funds were also provided for the construction of a Forest Guard School with capacity for 60 students and for equipment and running costs for four years. Construction targets were substantially achieved. Although it was expected that 360 Forest Extension Workers and 1,000 motivators were to be trained at the existing divisional training centers, no data were available to indicate the numbers actually trained. Of 360 forest extension workers targeted for recruitment during the project period, only 140 were recruited. Motivators were recruited in earlier years and by 1986 200 were in place. At the end of 1986 only 22 forest extension workers received training for eight weeks at the Jhargram Training Center, while Motivators were given only a two-day training on extension at the divisional training centers. The quality of training during earlier years suffered due to lack of adequate instructors and teaching materials. Moreover, no consultant was employed as proposed. 28. Training considerably improved after the syllabus for 8-week training course for forest extension workers was finalized in 1987-88. Thereafter, 138 forest extension workers were trained and 51 more attended a 5-day refresher course. The syllabus for training forest extension workers covered elementary monitoring and evaluation techniques and included a section on extension and communication.The revised syllabus for foresters at the Forest School covered the same topics as those for forest extension workers. The one-year training course for foresters included 50% of field work. The six-month training course for forest guards devoted 60% to practical applications and 40% to classroom lectures. There was also a three-month course for forest guards whose educational levels were below Class 8, consisting of 50% practical application  8 and 50% classroom lectures, including fifteen hours of social forestry and extension, and thirty hours of field practice. The training courses were generally satisfactory in providing knowledge and skills needed for social forestry. This was facilitated by hiring professional staff for the forest schools. However, inspite of these improvements, the training benefits were constrained by the low recruitment of forest extension workers and motivators responsible for delivering the forestry extension message to the local communities. This was exacerbated by the absence of linkage between the Forestry Department and the Agriculture Department's Training and Visit Network. 29. Local/Overseas Fellowships and Training. The project was to provide funds for 14 eight-week overseas fellowships for senior staff in management and forestry extension. A total of 24 staff were sent overseas for 10-12 weeks duration, and most of them attended the course on social and community forestry held at the Forestry Institute in the United Kingdom. All except two staff who benefitted from the course were of Divisional Forestry Officer rank. The fellowships were used not only for senior officers of SFW but also for some staff of the Forestry Department in wildlife and forest corporation who might be transferred into SFW. One instructor from the Forest School was sent on a study tour to the Philippines. In addition, one trainer was sent on an overseas training course in 1985. 30. Research. Under the project, funds were provided for strengthening of the Research Unit of the Forestry Department. Due to budgetary constraints and shortage of staff, research remained weak throughout the project implementation period. At appraisal the following areas of research were identified: (a) nursery, silvicultural, growth and yields, and socio-economic studies; (b) seed storage (handling and germination); (c) intercropping, species introduction and provenance trials; and (d) studies on minor forest products. Only the intercropping studies had been carried out. Few silvicultural and nursery studies were undertaken and some growth measurements were conducted. All the others were still in the planning stages. 31. Extension and Publicity. The Publicity and Extension Unit was to be established in Calcutta under a Chief Publicity Officer. Each of the nine divisions was to have a Divisional Publicity Officer to coordinate all the public relation activities. The Publicity and Extension Unit was more involved in publicity rather than extension or teaching materials. The materials were used for training forest extension workers, motivators, leaders of panchayats, and farmers. The Unit conducted 21 seminars/workshops covering 1,825 participants, 56 exhibitions reaching about 150,000 people and 1,036 cinemas/slide shows reaching about 100,000 people. Many of the activities of the unit were centered on schools and colleges. Little attention to training in the earlier years of project implementation meant that motivators and forest extension workers had a poor understanding of their roles and had inadequate communication skills. In order to strengthen the extension services, considering the shortage of forest extension workers and motivators in SFW, the Bank recommended that GOWB establish a linkage with the Agricultural Department's Training and Visit network. However, no effective linkage was established. 32. Monitoring and Evaluation Unit. Funds were to be provided for establishing a Monitoring and Evaluation Unit headed by a forester and supported by statisticians and enumerators, to monitor and assess villagers' acceptance of social forestry activities, plantation survival rates, and undertake a mid-term evaluation of the project. Funds were also to be provided for a local consultant to assist in survey designing and setting up systems for project monitoring. Initially, the Monitoring and Evaluation Unit was responsible for non-survey monitoring including collection of regular field reports and carried out field assessments on the four plantation components and some special studies. The annual monitoring forms were of high quality. The forms provided useful information on project achievements, problems encountered and results. However, since 1987 this monitoring system was discontinued and replaced by the government-  9 prescribed "Operational Guide to the Monitoring and Evaluation of Social Forestry in India". The annual monitoring forms were revised to conform to the format of the National Wasteland Development Board. Delays occurred in collecting and processing data due mainly to shortage of staff. Moreover, the Unit had frequent changes of leadership. It was headed by five persons over a ten year period. The Unit, however, was fortunate to have a couple of dedicated and competent staff working throughout the project implementation period who contributed to sustained monitoring and evaluation activity. The Unit also produced three good evaluation reports using the methodology prescribed the "Operational Guide". 33. Studies. Funds were to be provided for socio-economic studies under the research component (para. 30). At the Bank's suggestion, a wood balance study was also conducted. The study was carried out in 1984 by the Planning and Statistical Cell of the Forestry Department and published in 1987. It attempted to develop a profile on energy consumption in the State. An additional study on the Marketing of Social Forestry Produce in West Bengal was also carried out in three districts to identify and assess the current marketing mechanism of wood produced from private plantations. One study on extension and communication systems and two studies on farm forestry were also financed under the project. The former study assessed the extension and communication systems, particularly the evaluation of the communication materials, which was useful and of good quality. However, the valuable suggestions about communication materials were only partially taken into account in the development of new materials. The latter studies provided valuable information on participation, distribution of benefits and beneficiaries, and difficulties encountered. 34. Participation of Villagers and Community. The SFW was to establish village woodlots, strip plantations, and plantations on rehabilitated degraded forests, and manage sal coppicing, with different levels of community participation and financing (paras. 19-20 and 24). Community participation in initial periods of project implementation was limited when very little attention was given to involving the intended beneficiaries in the planning process. To some extent this was improved through the introduction of the village micro-planning in early 1986 which involved discussions with representatives of different socio-economic classes so that the plan reflected their perceptions and needs. It was advanced as a method to promote people's participation. As of June 1991 a total of 1,139 microplans were prepared. In the rush to get these plans completed, fuelwood and fodder balances had not been worked out in some of the plans nor were the plantation activities related to fuel and fodder in the deficit villages. Moreover, the microplans have neither been translated into the local language nor copies made available to village panchayats. 35. In early 1985 the adjoining villages to sal forests in Midnapore, Bankura and Purulia Districts voluntarily formed informal committees to protect the forests from further damaging exploitation. The idea of such committees emanated from beat (sub-district) level and range (block) level foresters stationed in those areas who were faced by organized opposition from forest smugglers when attempting to protect and manage the sal forest. Further, GOWB issued an Order in 1989 which allowed 25% of benefits from rehabilitated degraded forests under the Social Forestry Project to go to local population. This acted as an incentive for the voluntary organization of the VFPCs. To date some 1,738 VFPCs have been functioning in five districts protecting nearly 238,000 ha of rehabilitated degraded sal coppice forests and plantations. The State Government was slow in formally recognizing VFPCs. In 1989 a policy directive was issued formally recognizing VFPCs; this was modified in 1990. These committees were to be partners of the Forest Department in managing rehabilitated degraded forests. As of June 1991, a total of 865 VFPCs were registered with about 179,500 members. According to the Order, the Forestry Department would manage the sal forests through coppicing but VFPCs would bear all the  10 management costs, protect and, in return, be entitled to 25% of the usufruct to rotational thinning of sal forests. VFPCs would distribute benefits free of cost to the economically disadvantaged sections of the community to satisfy their subsistence needs and the balance would be sold at nominal prices to other villagers. Many VFPCs have undertaken the rotational thinning of sal forests and benefits were distributed free of cost to poor farmers and sold at Rs.26 per cartload to other villagers. The system worked well and no major problems were encountered. 36. Since most of village woodlot plantations were established on private lands, there would be no distribution of benefits to the community. Under the strip plantations, there was no clear policy for the distribution of benefits until GOWB issued an Order in 1986 to hand over the three year old plantations to village panchayats for protection, management and utilization. According to the Order, 25% of the sale revenues after deducting SFW's direct plantation and maintenance costs, would be distributed by village panchayats free of cost or sold to villagers. GOI issued orders to other states to follow GOWB's example in this regard. Although about 9,500 ha of plantation (about 40% of the total strip plantations) were already handed over to village panchayats and most plantations were mature, no major harvest has so far been carried out. Moreover, most village panchayats have not yet designated villager beneficiaries with the responsibility for plantation protection, and for distribution of benefits. 37. Improved Stoves. With the objective of conserving energy, the project provided funds for the construction and installation of 10,000 improved smokeless stoves in a demonstration scheme. Provision was also made for a Stove Unit with a Unit Chief and six promoters, as well as a local consultant. Neither the stove unit was established nor a consultant employed, but construction and installation of improved stoves began in 1985 by SFW. Some motivators were recruited and training was provided to them as well as to SFW staff on stove construction by the Relief and Welfare Department. A total of 10,200 stoves were distributed and installed, about five stoves in each village. The village panchayats were involved in the selection of people for the installation of stoves, and in some cases undertook recruitment at schools and health stations. The result of the stove component was, however, uneven. There was no follow-up and little attention was given to management and maintenance. There was not much evidence on the positive demonstration effect. Due to risk of fire the stoves were not suitable for the poor villagers living under thatched roof. After the achievement of the target, SFW did not have any follow-up activity stating that other departments and non-government agencies (NGOs) are more appropriately equipped to implement this activity. Project Results 38. Overall, the project achieved its main objectives. SFW has successfully implemented the plantation programs in seven divisions and sixteen districts. Plantations were established in three different agro-climatic zones: one percent in the coastal zone, 24% in the alluvial zone and 75% in the laterite zone. The project created skilled manpower in social forestry development, improved the coverage of forests in the State, stimulated people's awareness of the economic and ecological importance of trees, and generated substantial employment in the rural areas. Many forestry officials became people-oriented and developed the skill of involving people in forestry activities. Changes in the attitude of people is the basic and important starting point for the increase in forest production, environmental rehabilitation and protection. About 25 million man-days of employment were generated during the project implementation period compared with the appraisal estimate of 15 million man-days. Most of the people benefitting from employment were landless farm laborers, scheduled castes and tribes. About 3,215 villages were involved in SFW's plantations, 865 registered VFPCs with about 180,000 members in the rehabilitated degraded sal coppice forests and 460,000 farmers in farm forestry.  11 39. In terms of production, despite the overall low survival rates, growth and yields due to poor technology, the expected forest produce resulting from the substantial increases in the planting areas by 260%, is estimated to be significantly higher than the appraisal estimate. There would be about 10.6 million tons of fuelwood, 120,000 m3 of timber, 15.7 million tons of fodder and 15.9 million tons of poles and pulpwood. At appraisal, these were estimated to be 6.8 million tons of fuelwood, 3.9 million m3 of timber, 2.7 million tons of fodder, 1.8 million tons of fruits, 1,900 tons of Eucalyptus oil, 231 million pieces of poles and 233 million pieces of bamboo. The overall survival rate of 54% was low. The survival rates of the individual plantation were: 80% for village woodlots; 53% for strip plantations; 46% for farm forestry; and 72% for rehabilitated degraded forest plantations. The estimated annual production at harvest are 2.2 t/ha for poles, 1.5 t/ha for fuelwood, 1.7 m3/ha for small timber, and 2.2 t/ha for fodder which are about 50%-80% lower than the appraisal estimates of 70-150 pieces for poles/ha, 3-10 t/ha for fuelwood and timber, 150 pieces/ha for bamboo, 3-5 m3/ha for timber, 1-2 t/ha for fodder, and 1-2 t/ha for fruits. There was no production of bamboo due to non-availability of seedlings, while fruit production would be insignificant. To date, the most common benefits accruing to farmers from strip plantations, village woodlots, farm forestry and rehabilitated degraded forests are fodder and grass, fuelwood, poles and pulpwood. Farners engaged in farm forestry plantations have already harvested and sold poles and pulpwood. 40. The financial and economic analysis were undertaken in 1990 constant prices. The financial cost and benefit streams are presented in Attachment 1, Tables 1-4. Survival rates and yields of plantations are based on some actual harvests and estimates of SFW. The establishment and maintenance costs are based on SFW's actual costs incurred in 1990. The financial value of forest products were calculated using the average financial stumpage prices prevailing in the project areas. The results of financial analyses calculated over a period of 25 years, show the estimated financial rates of return (FRR) of 23.5% for the farm forestry, 20% for the strip and rehabilitated degraded forest plantations, 30% for rehabilitated degraded coppice forest plantations and 26.5% for village woodlots. FRR of all plantation models are favorable. The economic re-evaluation was carried out over a period of 30 years. All project costs incurred during project implementation were included in the analysis and adjusted to 1990 constant prices by using the wholesale price index as shown in Attachment 1, Table 5. Local costs and unskilled labor were further converted into border price by applying the Standard Conversion Factor of 0.80 and Specific Conversion Factor of 0.60 respectively. Recurrent costs after project completion, excluding fellowships and Monitoring and Evaluation and studies, have been assumed at 25% of its 1990 actual costs. The economic benefits of forest produce were valued at the financial stumpage prices adjusted by the Standard Conversion Factor of 0.80. The benefits from the improved stoves were excluded. The economic cost and benefit streams of the project are presented in Attachment 1, Table 6. The result of the analysis show a re-estimated economic rate of return (ERR) of 24%, which is 4% lower than the appraisal estimate of 28%. The lower ERR is due to the lower survival rates and yields, delayed benefits, and cost overrun. 41. Impact. The project has generated significant positive impact. SFW has developed sufficient skilled manpower for the social forestry development program and achieved the project objectives of increasing employment and forest production in the rural areas, as well as public awareness of the economic and ecological importance of trees. Increased forest production and employment generation helped in reducing further damage to the already degraded environment. Community participation in planning, management and benefit-sharing has considerably increased. Established plantations and management of sal coppice were handed over to village panchayats and VFPCs respectively for protection, management and utilization, which resulted in the creation of joint management and protection of common property. Distribution of seedlings under the farm  12 forestry component also benefitted a large number of landless farm laborers, and marginal and small farmers. 42. The project had a positive environmental impact. Plantations in the laterite and degraded forest areas helped to improve water conservation, micro-climatic stabilization, and soil fertility restoration. Protection of plantations from grazing and browsing, the cut-and-carry method of fodder, and grass harvest and use, helped to improve the soil and increase water infiltration. Strip plantations also helped in controlling gulley erosion. However, the monoculture of plantations using Eucalyptus and Acacia as pure stands on private and public wastelands and degraded forest areas resulted in removal of vegetative material which caused depletion of soil nutrients. Project Sustainability 43. Although supportive services remained weak, SFW has shown its capability in implementing a large plantation program. After plantation establishment, maintenance and harvesting are crucial for the sustainability of the plantations. Because SFW focused mainly on plantation establishment, forest management aspects have been neglected. Moreover, the village panchayats and VFPCs which were given the responsibilities for plantation management and utilization, have not been trained to carry out the given responsibilities. Since the plantations were mature for harvesting and more would become so, there is an urgent need for SFW to prepare forest management plans including information on stand-and-stock. Forest management plans should be prepared for all the plantations in each agro-climatic zone. Moreover, to ensure that village panchayats and VFPCs properly carry out plantation maintenance and harvesting, intensive training on forest management should be provided. Bank Performance 44. The Bank undertook 14 supervision missions which were appropriately staffed and fielded at appropriate intervals. Overall, there was staff continuity and coordination and the Borrower benefitted from the missions' recommendations. Overall, the Bank's assistance to the State from project appraisal to its completion had been beneficial. Recognizing the urgency and importance of the project, the Bank remained flexible and when the Borrower needed time for project completion, it granted the requests for extension. Similarly, when the Borrower needed to adjust the magnitude of project components and to implement a new innovation in the project, the Bank extended full support to the Borrower. Valuable recommendations and innovations introduced by the Bank during project implementation were: (a) insistence on adequate budget allocation and staff recruitment to achieve project objectives and planting targets; (b) more attention to the development of the supportive components including research, publicity and extension, monitoring and evaluation and community participation; (c) introduction of soil and water conservation techniques, decentralized nursery through kissan, fast growing species, village micro-planning and guidelines on project monitoring and evaluation; and (d) acceleration in handing over from SFW of established plantations to VFPCs for management and benefit utilization. 45. In focusing attention on the various activities of this complex project, the following areas were not given closer attention and required some conditionalities for Credit extension: (a) hiring of consultants to provide guidance in planning and execution of the programs for nursery, research, publicity and extension, and monitoring and evaluation, which could have helped SFW in initial years in improving technical performance of plantations, producing more suitable tree species, developing extension messages, better communication, and monitoring and evaluation  13 systems; (b) while seedling production, including non-timber, was emphasized at the design stage, specifications of quality standards for nursery operation and plantation establishment were not prescribed; and (c) the need to prepare forest management plans for different plantations in each agro-climatic zone. Borrower Performance 46. Overall performance of the Borrower was satisfactory. Despite budget constraints and shortage of staff, SFW accomplished a much larger plantation program and achieved project objectives of generating employment, and increasing fuelwood, timber and fodder in the rural areas. The project increased people's awareness of the importance of trees and environmental conservation. The initiation of the management of sal coppicing was beneficial to a large number of the economically-disadvantaged sections of the community. Similarly, plantations on laterite wastelands through the strip plantation and farm forestry components created additional assets to mostly landless farm laborers. Adoption of soil and water conservation measures in plantations to improve site productivity was cost-effective. Because of the emphasis on plantations, not enough attention was paid to the development of the supportive components. Development in research, publicity and extension remain weak. Major problems encountered were budget constraints, shortage of staff, inadequate staff training, staff housing and problems of mobility. Only 50% of the required staff were in place and 60% of staff housing were completed. Following the Bank's recommendations during the latter part of project implementation, SFW gave increasing attention to the implementation of supportive components and the involvement of people in the planning and execution of project activities. Micro-planning has been used more extensively in project planning. Recognizing the need for community involvement in plantation management and utilization, GOWB issued orders to hand over strip plantations and sal coppice to village panchayats and VFPCs for management and utilization. Although many plantations and the sal forests were already handed over to village panchayats and VFPCs for management, the much needed plantation management plan was not given priority which is a requirement in scheduling silvicultural treatment and harvesting regimes. Moreover, the stand-and-stock information on SFW's plantations has not yet become available, which is important in future stumpage valuation. The Borrower substantially complied with the Credit covenants and most of the Bank's recommendations. However, many of the required staff positions remained unfilled resulting in ineffective operations, weak supervision and insufficient support services to farmers. GOWB failed to employ consultants to help in designing and developing programs for research, publicity and extension, and monitoring. Although GOWB partially complied with the provision of staff housing, housing rental was only provided in the latter periods of project implementation. Project Relationship 47. The Bank maintained good relationship with GOI and GOWB through its Resident Mission. This was particularly significant when the Borrower was unable to utilize 50% of the IDA Credit by the end of the original Credit closing date in December 1987. The Bank responded quickly to Government's request to extend the project implementation period by four years and to increase disbursement rates. The Bank's recommendations on soil and water conservation measures and decentralized nursery were beneficial, and its efforts in helping SFW to involve community in project planning, plantation management, and monitoring and evaluation, and to link SFW's extension with the Agriculture Department's existing Training and Visit network, were highly appreciated by the Borrower.  14 Consultant Services 48. 72 man-months of local consultancy were provided for stove technology, monitoring and evaluation, and communication and extension. Local consultants were employed for a wood balance and eucalyptus marketing study, not originally identified at appraisal, and a communications and publicity study. The recommendations of the communication and publicity consultant remained unimplemented. No difficulties were encountered with GOU/GOWB procedures for local competitive bidding in respect of building construction and vehicle and equipment procurement. Project Documentation and Data 49. The main documents governing project implementation were the Staff Appraisal Report and its project files, the Development Credit Agreement, and the Project Agreement. The documents were generally well prepared and provided a useful framework for the Bank and the Borrower to implement the project and monitor its progress. However, the Staff Appraisal Report did not provide sufficient operational guidelines on: (a) implementation of the research program; (b) identification of beneficiaries and the role of community; (c) nursery and plantation management; and (d) monitoring and evaluation of project progress and impact. Initial annual reports produced by Monitoring and Evaluation Unit and special studies undertaken by consultants were useful to project planning and implementation.  15 PART II. PROJECT REVIEW FROM BORROWER'S PERSPECTIVE 1. Evaluation of Bank's Performance and Lessons Learned Bank personnel are recognized as highly qualified professional experts and experienced in their own field. Many new practices were adopted in implementing the project such as V-ditch afforestation techniques, decentralization of farm forestry nurseries through the kissans and farmers to reach the people more effectively and quickly, planting of trees on agricultural field bunds, group farm forestry, agroforestry, introduction of quick growing-species like Subabul etc. We were greatly benefitted by the view of the various supervision and appraisal missions of the Bank who came here from time to time during the project implementation. Large scale usage of vetiveria grass as a live contour hedge is a very useful outcome of the mission's visit. We were also greatly benefitted by the Bank's guidance about the methodology to be adopted for monitoring and evaluation of such a huge project. The monitoring and evaluation techniques are neither too cumbersome nor too complicated and at the same time cover almost all our requirements. The Bank was very sympathetic and considerate in extending the project for four years. Though the appraisal report total planting target was exceeded by about 8 percent at the end of the first phase of the project in March 87, a considerable amount of SDR balance was available at that time on account of the devaluation of the rupee. The Bank had agreed to our proposal for extension of the project period upto 1990-91 to enable us to utilize the balance SDR. Different missions of the Bank were conducted by different personnel and in most cases Bank changed the experts. Irrespective of a given guideline or objective, the views and suggestions differ from person to person and at times it became difficult to pay attention to varying opinions. So we feel that the Bank should, as far as possible, not change the personnel during the various supervision and appraisal mission of a particular project. In the staff sector the achievement is only about 48% of the appraisal target. Bank has rightly observed that though the project planting target has been achieved, the lack of staff in the long term may seriously affect our capacity, not only to continue the social forestry programme, but also the other territorial responsibilities. The Bank has suggested to recruit the staff as provided in the appraisal report in order to continue the momentum in the development of social forestry in the state. We are greatly benefitted by the advise of the Bank regarding the method of communication and extension system with the rural mass. The society as a whole has adopted the practices of forestry. Farmers are adopting forestry practices in a group, in other words known as group farm forestry. 2. Evaluation of Borrower's Own Performance and Lessons Learned The project started in the year 1981 and has come to an end in March 1991. Initially the project was launched for a period of 6 years at an estimated outlay of Rs.348 million corresponding to US$43.5 million or SDR equivalent of 25.8 million. The planting target over the period of 6 years was 93,000 ha. Though the targets were reached for most of the components by the end of the project period, unutilized credit funds were available due to sharp appreciation of the US$ over the Indian Rupee. The project was thus extended with due approval of the Bank for full  16 utilization of the balance available credit. The revised physical targets for various components are as follows: Strip Plantation 23,000 ha Village Woodlot 6,000 ha Farm Forestry 111,100 ha Degraded Forest Rehab (by coppicing) 60,000 ha Degraded Forest Rehab (by planting) 10,000 ha Improved Chulla 10,000 ha At the end of the project the total expenditure was Rs.639.95 million out of which reimbursement has been claimed for Rs.426.116 million which completely utilized the credit fund of SDR 25.8 million. The achievement of the planting activities has been exceed by about 19.5% over the revised physical target. The achievement is tremendous and could be made possible mainly due the efforts of the forestry personnel and also due to the proper participation of the people. Strip Plantation The revised target of strip plantation has been fully achieved and at the end of the project 23,765 ha of strip plantations has been created. The technical quality of planting and the species mix were generally excellent. The Government decided to handover the management and protection of strip plantations to the villages through local bodies, namely panchayats, in the third year of planting. A Government order was also issued specifying the conditions about distribution of benefits on the transfer of management control. But the extension message of community management of common property has not percolated very much to the beneficiaries. So later on it has been decided to link the beneficiaries right from the beginning of plantation activities, i.e. the work of actual planting, nursery raising, its maintenance etc., would be done by the beneficiaries themselves, so that they immediately get the benefit of wage and subsequently the usufructs. If the beneficiaries are involved during the implementation stage, better participation is obtained from them. Also we are thinking of projecting the various produce that would be obtained from the plantation in subsequent years. In that case the beneficiaries would also know what kind of assets they are handling with and a sense of better resposibility would grow amongst them. Already 40% of the strip plantations have been handed over to the Panchayats. But panchayats' performance in this respect is far from satisfactory. Due to lack of initiative, they are not able to identify the beneficiaries and link them with the actual management of the common property. Village Woodlot The village woodlot component, however, has not developed as envisaged. The achievement is far short of the target. Only 2405 ha of village woodlot plantations have been created during the project period. The main reason for non-fulfillment of target is non-availability of community land and little enthusiasm for establishing plantations on community land. Another important reason is that panchayats themselves are taking up such lands for plantation under various rural development schemes. Farm Foresa This is one component in which the achievement is excellent. 150,554 ha has been achieved which is 35.5% above the revised target. Active participation by the people and panchayats were received. Nurseries have been decentralized by breaking them into smaller units  17 and spreading all over through the kissans. Kissan nursery has progressed very well in this State. it has become very popular because it provides economic support to the poor section of the society and at the same time the intended users get the seedlings at their doorsteps. 60% of the annual seedlings production are raised by the kissan nursery beneficiaries. Involving the State Agriculture Department Extension Service and particularly their village level workers for wide and quick dissemination of social forestry message recommended from time to time to tackle the shortage of Forest Department extension staff. This possibility had been explored in a few districts. This effort did not succeed. Farm Forestry was mostly accepted by the small and marginal farmers which is the target group. Possession of land between 0 to 2 ha falls in this group. Initially, the farmers having land between 1 to 2 ha adopted the farm forestry. But gradually farmers having less amount of land started planting trees. Presently most of the farm forestry beneficiaries have less than .5 ha of land. One of the major objectives of farmn forestry was to meet the local demand of fuelwood. This was aimed at by planting trees on the private wastelands locally available. But gradually the involvement in social forestwy was dictated by commercial considerations and fuelwood for home consumption became a relatively secondary role. Farmers became more and more interested to produce saleable commodities such as poles, pulpwood and fuelwood for urban markets. That is why farmers adopted monoculture of Eucalyptus and Acacias. These are fast growing species and are relatively hardy and are not browsed by cattle. These give the farmers a ready-made cash crop. But the practice of monoculture resulted in suppression of ground cover. Moreover, combined with the sweeping of all fallen leaves for domestic fuel, the ground is left bare and recycling of soil nutrient is hindered. Extension effort could not do much to ameliorate the situation. Farm forestry has brough a new change amongst the farmers. Some farmers are trying to obtain bank finance for farm forestry component. This trend should be encouraged because this would lead to the development of self-sustaining social forestry in the long run. At the current trend of market price of wood produce, social forestry has become a profitable investment. Initially, when the objective was to grow fuelwood to meet the local demand, cash/input subsidy were given to the participants. But when commercial considerations got priority over the fuelwood production for home consumption, the cash/input subsidy were withdrawn in a phased manner. Now the farmers grow trees primarily for cash income in lieu of or in addition to products for domestic consumption. Fuelwood is considered as a by-product and not the principal product. Another, and the most important target group, was the landless class, whom we could reach and identify successfully. The Government of West Bengal has given tree patta (lease) of vested land to the landless people who afterwards have taken up farm forestry on those lands. Another interesting point is to note the success of group farm forestry which was closely tied to individual ownership of such lands. This ensures the community cooperation. The main objectives of extension activities were: to reach maximum number of small and marginal farmers, landless agricultural labourers, economically backward section of the society; to ensure active participation of the identified groups in implementing and sharing of benefits of the project; creating of village level forest protection committees; to build individual and community motivation and to bring about attitudinal change amongst staff. The target groups were properly identified. A properly trained and equipped team of extension workers were created. Though only 42% of total number of extension workers proposed at appraisal was recruited, but they were given sufficient training regarding various aspects of extension activities. The extension strategy was based on the common human behavior like change in their attitude, lifestyle, social needs, etc.  18 A general awareness of the need for tree planting could be grown amongst the various local bodies, such as panchayats, youth clubs, NGOs. Then the specific messages on forestry was disseminated to the villagers, like the nursery techniques, planting techniques, land preparation, choice of species, tending operation techniques, etc. Extension calendar was also devised. The help of NGOs were taken in extension activities for quick dissemination of social forestry message because they had an established contact with the target groups through various activities of their own. We were able to build up a bridge between the foresters and the villagers. Widespread publicity was given through radio, television, cinema slides, boardings, leaflets, posters, audio- casettes, meetings in villages with panchayat members, seminars to schools, colleges and clubs, exhibition and observance of forestry week every year. Extension and other workers including motivators periodically visited the villages to arrange essential inputs like timely supply of seedlings, supervision of soil works, application of fertilizer, insecticides, protection from cattle grazing, etc. Rehabilitation of Degraded Forests In this component the achievement is 6.3% of excess of the revised target of the project. The success has been achieved through proper participation by the people in implementation, management and sharing of subsequent benefits. Forest protection committees were formed by properly identifying the beneficiaries from amongst the inhabitants in and around the forests. This is totally a new concept of bringing the people in the management of Government forests. West Bengal has made a pioneering effort in people's participation which is now being adopted in other parts of the country. Simultaneously, microplanning exercises have also been taken up extensively to take planning process at the grassroot level to assure the needs of the people after thorough interaction between the people and the agencies. So the forest protection committees are associated from the planning stage. All the works were done through the identified beneficiaries of the forest protection committees. These committees would protect the forests and plantations and in return Government is committed to give 25% of the net return from the final harvest in addition to facility of collection of nonwood forest produce free of cost, which would provide substantial income return to the selected beneficiaries. During the project period, 1769 Forest Protection Committees have been formed involving 171,000 rural families and they are protecting 233,000 ha of degraded forests, including 674,415 ha achievement under this project. The forest fringe dwellings are identified as priority group in forest management. Improved Chulla (Stove) In this component also we have exceeded the revised target by 17.6% which is an excellent performance. The improved smokeless chulla is very effective as it saves 35% of energy as compared to the conventional chulla. We have stopped distribution of improved smokeless chulla since the Relief Department has taken on the same. But research should be carried out to further improve the design and effectiveness of the chulla so that it can be easily obtained and installed under village conditions. After the social forestry project has been launched, the forestry has gained considerable momentum and importance. Government of India has made it compulsory to spend 20% of the rural development scheme allocations on afforestation works. As a policy decision, rural development schemes such as NREP, RLEGP, DPAP, JRY, etc. are implemented by local self governing bodies, i.e. panchayats. So the panchayats have also gained experience and momentum in afforestation works.  19 Comments on Part I Paras 1-14 The Interim Evaluation Report published by the SF Wing in Janu- ary 1991 indicates that the survival rate of strip and farm forestry components as 74Z and 53Z respectively. The strip plantations have not only a high survival rate but also have brought a significant change in the environment, drawing appreciation from different corners. The survival rate in case of farm forestry, i.e., 53Z also may not be deemed low for the fact that the ultimate crop that would be available to the farmers would be of adequate density. Consider- ing the various constraints this may not also be deemed unsatisfac- tory. It is the territorial Divisions who are looking after the organiza- tion of the VFPCs for the management of sal coppice forests and not the SF Divisions. 16 Operational guidelines as such were not provided in the SAR. Despite this, a technology manual has been prepared in which details of micro-planning, Farm Forestry, RDF, choice of species, spacing, anil working, operational plan for extension, etc. have been incorporated. A copy of the above manual has also been supplied to the Project Completion team of the World Bank. Both FEWs and motivators have been trained from time to time at the Forestry Training Centres set up for the purpose. Such training has also been extended to higher levels including foresters, forest rangers and gazetted officers also. There was no provision for community participation and micro-plan (i.e., involving the participants and beneficiaries in the planning process) in the SAR. However, these two aspects were given adequate importance and were extensively used during the later part of the project. This has also been mentioned in para. 5.1 of the PCR itself. 17 The nursery management, the quality of seedlings, etc. underwent a qualitative change over the project period. This is only natural in a situation like this. It was a learning process and during the later periods the technology registered a qualitative improvement. the beneficiaries now are not only conscious about the species they are going to take, they are also conscious about the quality of the seedlings supplied to them. The nursery management has accordingly been geared up. 18-19 No comments.  20 20 The last Evaluation Report of the SF Wing shows a survival rate of 74% with a minimum of 53% and a maximum of 89%. It is not therefore understood how the figure 53% has been arrived at. Although there is no specific mention about preparation of a formal management plan for the strip plantations in the SAR, a management plan for the strip plantations has been prepared showing all operations to be carried out year-wise during one felling cycle (Reference - Bon-O-Panchayat at published in 1989). In the strips, as would be evidenced from the last published Evaluation Report, that depending on the agro-climatic zones adequate, diversity in the species mix is being maintained. 21 No comments. 22 As already mentioned in the foregoing, the survival rate is 53% and not 462. Inadequate maintenance in a few cases has been primarily due to two things: (a) poor economic condition of the farmers, since more than two-thirds of the beneficiaries were landless farm labourers (see para. 5.11); (b) a sense of insecurity which has motivated them to adopt closer spacing. This is despite sound technical advice given by the supervising staff. But such occurrence is not significant and at a later stage the situation has been largely corrected. 23 Some volume tables have already been prepared by the SF Wing to have an estimation of the future wood supply from farm forestry. It would not be perhaps practical to attempt to prepare management plans for all F.F. areas However, the information regarding growth, volume, etc. may be disseminated. 24-25 No comments. 26 Under the project only degraded sal forests have been coppiced to ensure better regeneration of sal coppice. It is basically a silvicultural operation and fuel wood and coppiced poles, if any, have been produced as a by-product. All silvicultural practices have been followed in the matter of coppicing. 27-28 No comments. 29 It appears that the observations made against this para. are not entirely based on facts. In the MEU, a Deputy Conservator who was earlier trained in the UK worked as DCF for a number of years. Another officer of the level of EACF who received training at the CFI, Oxford, is still working as additional DFO in the MEU. Amongst two silviculturists (Research Officers) one has undergone a specialist forestry training course at the CFI having been sponsored by the British Council for 11 weeks. This course incorporated research methods, management, extension, rural sociology, etc.  21 30 No comments. 31 Many extension and teaching materials have been published by the SF Wing from time to time and most of it has been in the vernacular so as to reach the target groups easily. In many instances the extension and teaching materials overlap. Such publications include posters, pamphlets, booklets, quarterly journal and video cassettes etc. The subject covered the correct planting method, choice of species, control of pests and disease, use of improved chullah, agro-forestry, propagation of bamboo, fodder cultivation, etc. 32-34 No comments. 35 Strip plantations raised during the project period will take a minimum of 8 to 20 years to become mature. In many instances especially those raise din North Bengal the gestation period will be higher. Therefore, a small percentage only needs harvesting and replanting immediately and for this necessary action has already been initiated. 36 No comments. 37 It is a fact that introduction of improved stoves could not make a big impact among the rural poor. Out target groups being landless farm labourers, small and marginal farmers, firewood is a demonetised item for them. Fuel saving is no incentive for them as they did not have to pay for the fuel. Perhaps this could be more successfully introduced among the people who have to pay for the fuel and are economically slightly better-of. It was not possible for the SF Wing with limited resources to go in for introduction of improved stoves on a large scale and organise extensive training and maintenance as are essential requirements in such a bid. 38-42 No comments. 43 No comments. 44 Soil and water conservation techniques have been adopted in the state more or less since inception of forestry. Some specific measures suggested by the Bank have been adopted, amending the existing practices in some cases. The idea of protecting the forests through VFPCs has been mooted in the state since 1970s. The VFPCs are gradually being institutionalised to cover the entire state and for some periods fund support for the purpose was obtained from SF project.  22 Comments on Part III 1/ Tables: 1,2,3 No comments. 4 A Actual number of VFPC is 1738 and not 865. B Staff: Actual number of Statisticians nil A.D.F.O. 4 F.E.W. 140 Total 491 C Actual number of Forest Ranger's Quarter 22 Forester's Quarter 39 Staff Quarter 96 W.B. for School Hostel 1 For. School Staff Qr. 5 FG School Hostel 2 Women's Hostel 2 Other Constn. 2 Non-residential 40 Total 209 D Actual number of vehicles Car 1 Jeeps 6 Motor Cycles 120 Publicity van 1 Minibus 1 Total 129 1/ Tables in Part III have been revised to reflect the above changes.  23 Part HI. STATISTICAL INFORMATION Table 1. Related Bank Loans and Credits Credit No./ Year of Project Name Purpose Approval Status Cr. 925-IN To increase supply of fuelwood in rural 1978 Completed Uttar Pradesh areas, provide poles, bamboo, small tim- Social Forestry ber, fodder grass and minor forestry pro- ducts and strengthen the social forestry organization to carry out project works. Cr. 961-IN " 1979 Completed Gujarat Social Forestry Cr. 1178-IN 1982 Completed West Bengal Social Forestry Cr. 1286-IN " 1982 Completed Jammu and Kashmir and Haryana Social Forestry Cr. 1514-IN " 1984 Ongoing Kerala Social Forestry Cr. 1432-IN " 1984 Ongoing Karnataka Social Forestry Cr. 1611-IN To assist the States of Gujarat, Uttar 1985 Ongoing National Social Pradesh, Himachal Pradesh, and Rajasthan Forestry to expand and improve their social forestry activities.  24 Table 2. Project Timetable Item Date Planned Revised Date Actual Date Preparation 1980 Appraisal Jan./Feb. 1981 Negotiations Jul-81 Aug-81 Board Approval Sep-81 Oct-81 Credit Signing Feb-82 Credit Effectiveness Apr-82 Completion Mar-87 Dec-87 Dec-88 Dec-89 Dec-90 Closing Dec-87 Dec-88 Dec-89 Mar-91 Mar-91  25 Table 3. Credit Disbursements (Cumulative in SDR millions) Actuals as % IDA Fiscal Appraisal of Appraisal Years Estimate Actuals Estimate 82 1.3 0.7 3 83 4 1.9 7 84 7 4.7 18 85 10.6 7.7 30 86 15 10.1 39 87 20.7 13.1 51 88 25.8 15.9 62 89 18.1 70 90 21.2 82 91 25.6 a/ 99 a/ Final Disbursement was in July 1991.  26 Table 4. Project Implementation Key Indicators Actual as % Appraisal Revised Actuals of Appraisal A. Plantations Estimate Estimate Achieved Estimate (in ha) Strip Plantation 20000 23000 23784 119% Village Woodlots 6000 6000 2405 40% Rehabilitation of Degraded Forests 15000 70000 65011 1/ 433% Farm Forestry 52000 111100 150554 290% Total 93000 210100 241754 260% No. of VFPCs - - 1738 No. of Stoves Distributed 10000 10260 103% 1/ Including 11926 ha of plantations, 53085 ha of sal coppice management.  27 INDIA WEST BENGAL SOCIAL FORESTRY PROJECT (Credit 1178-IN) Table 4. Project Implementation (continued) Key Indicators Actuals as Appraisal % of B. Staffing Estimate Actuals Apprl.Est. (Nos.) Add. Chief Conserv.-Forest 1 1 100% Cons. of Forest 2 2 100% Deputy Cons. of Forest 10 7 70% Chief Public Relations Officer (PRO) 1 1 100% Division PRO (Extension) 9 6 67% Statistician 1 0 0% Computor 1 1 100% ADFO 9 4 44% Forest Ranger 47 30 64% Deputy Ranger/Forests 184 109 59% Forest Extension Workers 360 140 39% Other Staff 365 190 52% Total 990 491 50%  28 INDIA WEST BENGAL SOCIAL FORESTRY PROJECT (Credit 1178-IN) Table 4. Project Implementation (continued) Key Indicators Actual as Appraisal Actual % of C. Vehicle Procurement Estimate Procured Apprl.Est. (Nos.) Car 2 1 50% 4-Wheel Drive 10 6 60% Motorcycle 120 120 100% Diesel Station Wagon 1 - 0% Mobile Publicity Van 3 1 33% Bus 1 - 0% Mini-Bus 24 1 4% Total 161 129 80% D. Civil Works (Nos.) Residential Quarters: Forest Rangers' Quarters 20 22 110% Foresters' Quarters 50 39 78% Staff Quarters 96 96 100% WB Forest School Hostel 1 1 100% Forest School Staff Qrtrs. 2 5 250% Forest Guard School Hostels 2 2 100% Women's Hostel 1 2 200% Other - 2 0 Non-Residential Quarters: Seed Godown, Training Center, Forest Guards School, Research Lab 13 40 308% Total 185 209 113%  29 Table 5. Project Cost and Financing L Project Cost a/Appraisal Estimate Actuals Project Components Rs. million US$ million Rs. million US$ million Plantations 242.20 30.10 387.51 28.85 Research 0.70 0.17 3.51 0.26 Stove Unit 0.60 0.10 0.97 0.07 Monitoring and Evaluation 1.30 0.20 4.11 0.31 Training and Fellowships 7.60 1.00 6.23 0.46 Project Organization 96.30 12.00 237.67 17.70 Total 348.70 43.57 640.00 47.65 a/ Including physical and price contingencies. HI. Project Financing Planned a/Actual US$ million % of Total US$ million % of Total IDA 29.00 67% 32.40 68% GOI/GOWB 14.50 33% 15.30 32% Total 43.50 100% 47.70 100% a/ Disbursement levels were raised in two stages in October and November 1990.  30 Table 6. Project Results Appraisal Actual/PCR Estimate 1991 Estimate (Jan. 1981) Production Production A. Direct Benefits Unit (000 tons) (000 tons) Indicators: Village Woodlots ha 6000 2405 Strip Plantations ha 20000 23784 Farm Forestry ha 52000 150554 Rehabilitation of Degraded Forests ha 15000 65011 Production: Fuelwood mt 6840 10600 Poles pieces 230620 15900 a/ Bamboo pieces 233000 Timber m3 3930 120 Fodder mt 2665 15700 Fruits mt 1820 Eucalyptus Oil mt 2 No. of Beneficiaries million 1.6 b/ 0.64 c/ Employment generated mandays 15 million 25 million Footnotes: a/'OOO mt b/ Number of people who were expected to benefit from the incremental fuelwood plantation. c/ 460,000 farmers in farm forestry and 1800,000 farmers in rehabilitated degraded forests. SAR Estimate PCR Estimate B. Price of Outputs Financial Economic Financial Economic (Stumpage Value) Unit Rupees per unit Rupees per unit Fuelwood mt 150 120 250 200 Poles piece 5 4 600 a/ 480 Bamboo piece 4 3 - Timber m3 400 320 - - Fodder mt 15 15 20 18 Fruit mt 200 160 - Eucalyptus Oil t 100 80 Footnote: a/ Poles, pulpwood and timber (Rs. per ton)  31 Table 6. Project Results (continued) C. Economic Impact Appraisal Actual (PCR) Estimate Estimate Economic Rate of Return(%) 28 24 a/ Assumptions: Project Life (Years) 30 30 Full Development (Years) 12 19 Standard Conversion Factor (SCF) 0.8 0.8 Conversion factor for unskilled labor 0.8 0.6 a/ See Attachment I Table 6 D. Financial Impact Financial Rate of Return (%): b/ Farm Forestry a/ 23.5 Strip Plantations aJ 20 Rehabilitated Degraded Forests: Plantations a/ 20 Coppice a/ 30 Village Woodlots at 26.5 a/ Not calculated at appraisal. b/ See Attachment I Table 1-5 E. Studies Purpose Status Wood Balance Study a/ To collect data on wood consumption and Completed in 1987 demand projection. Communications and Publicity a/ To assess the extension and communications Completed in 1986 impacL Marketing of Eucalyptus a/ To identify marketing mechanism. Completed in 1989 a/ Not identified at appraisal.  32 Table 7. Status of Covenants Project (PA) Original Agreement Compliance Level ora/ Section Summary Description Type Date Compliance Remarks PA 2.04 (c) West Bengal to funish to IDA mid- term evaluation report of progress RPT 3/31/84 1 PA 2.07 Appointment of Chief Publicity Officer and Deputy Conservator of Forests ORG 6/30/82 1 PA 2.08 (i) Appointment of stove technology consultant ORG 6/30/82 1 PA 2.08 (ii) Appointment of communication, extension, and training consultants ORG 6/30/82 3 PA 2.08 (iii) Appointmenl of monitoring and evaluation consultants ORG 6/30/82 5 FAO/Bank produced an operational guide PA 2.09 Establishment of one social forestry circle each for the north and south 6/30/82 with the Social Forestry Wing ORG 12/31/83 1 PA 2.10 West Bengal to ensure that field staff live near assigned areas and provide adequate rent/allowances. ORG I PA 2.11 (i) West Bengal to establish a State Policy Committee to ensure coordination/set policy ORG 6/30/82 1 PA 2.11 (ii) West Bengal to establish district committees to ensure interdepart- mental coordination ORG 6130/82 1 PA 3.01 (ii) Furnish certified accounts and financial statements for each fiscal year nine months after end of such year ADT I a/ Level of Compliance I - Fully complied 2 - Partially complied-not affecting implementation 3 - Non-compliance 4 - Not yet due 5 - Covenant no longer applicable-should be deleted/modified 6 - Compliance date requires revision Al- Audit 1 year overdue A2 - Audit 2 or more years overdue  Table 8. Mission Data and Staff Inputs Type of of Date No. of Mandays Special- Performance Type of d/ Mission (MoJYr.) By Persons In Field lzation a/ Rating b/ Trend c/ Problems Preparation GOWB Appraisal IDA Supervisions: IDA 1 12/0/82 2 9 D, E 1 I none 2 6/0/83 1 3 A 1 2 F 3 5/0/84 2 12 LF 1 1 F 4 11/0/84 2 12 I,F 1 2 F 5 3/0/85 1 10 F 1 2 F 6 310/86 1 11 F 2 2 F 7 910/86 4 20 A,F,F,S 2 2 F 8 10/0/87 2 10 A,F 2 2 F 9 410188 1 11 F 2 2 F 10 12/0/88 1 6 F 2 2 M i 1 710/89 1 9 F 2 2 F,M 12 11/0/89 2 8 F,S 2 2 M,F 13 710/90 3 18 A,F,F 2 2 M 14 110/91 2 12 F,F 1 2 M Completion 6-7/91 FAO/CP 3 21 E, F, S 2 2 M a/ A=Agriculture; D=Rural Development; E=Economist; F=Forestry; I=lnstitution; P=Project Advisor, S=Sociology b/ Performance Rating: I=problem free or minor problems; 2=moderate problems; 3=major problems. c/Trend: I=improving; 2=stationary; 3=deteriorating. d/ Type of problems: F=Financial; M=Management; T=Technical.  Table 8. Mission Data and Staff Inputs (continued) Staff Inputs (sws) Stage of Project FY80 FY82 FY82 FY83 FY84 FY85 FY86 FY87 FY88 FY89 FY90 FY91 FY92 Total Cyde Identification/Prepation 10.6 28.9 39.50 Appraisal 47.8 2.30 50.10 Negoiaions 2.10 2.10 Lending Operations 5.30 5.30 Supervision 7.20 6.00 6.30 10.70 10.90 7.40 4.10 4.70 4.30 6.50 68.10 Project Completion 7.70 7.70 Project Adinisttion 0.10 0.30 0.40 0.00 Totals 10.60 76.70 17.00 6.30 6.30 10.70 10.90 7.40 4.10 4.70 4.30 6.50 7.70 173.20  60$! K0h SOCAL FORS305 PWMCI pMMci CtP3IlFu MOO3( 0 3 11I) At.C .a 3.b3. 13 N. OM IIg.cgI .01 CO 0Sa 11.3 Of SI1BIP -aMW 03413A3301 V-5 - I. 3 tV-r7 tea V..,a a- S ,,-,. I -i.?. v.'r. lrr yar 3 t-Il .r3 e. 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