Niger - Forestry Project

Document of The World Bank FOR OFFICIAL USE ONLY Report No. 4569 PROJECT PERFORMANCE AUDIT REPORT NIGER FIRST FORESTRY PROJECT (CREDIT 800-NIR) June 21, 1983 Operations Evaluation Department 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. ABBREVIATIONS CILSS - Conite Inter-Etats de Lutte Contre la Secheresse au Sahel CP - Cooperative Program CTFT - Centre Technique Forestier Tropical A DEF - Direction des Eaux et Forets ESA - Ecole Sup6rieure d'Agronomie FAO - Food and Agriculture Organization FNI - Fonds National d-Investissement ha - hectare IBRD - International Bank for Reconstruction and Development IDA - International Development Association INRAN - Institut National de la Recherche Agronomique au Niger IPOR - Institut Pratique de Developpement Rural MDR - MinistZre du D'veloppement Rural NGO - Non-Governmental Organization NLC - Northern Limit of Cultivation ONAA - Office National des Amenagements Hydro- Agricoles PCR - Project Completion Report PMU - Project Management Unit PR - President-s Report UNCC - Union Nigerienne de Credit et Cooperation NSO - United Nations Sudano-Sahelian Office USAID - United States Agency for International Develop ment WEIGHTS AND MEASURES (Metric System) 1 stere = 1 m3 of stacked wood 1 m3 (natural forest) = 1,875 steres = 450 kg. 1 m3 (plantation wood) 1.6 steres = 720 kg. 24 plantation poles 1 m3 FOR OFFICIAL USE ONLY PROJECT PERFORMANCE AUDIT REPORT NIGER FIRST FORESTRY PROJECT (CREDIT 800-NIR) TABLE OF CONTENTS Page No. Preface ............................................................. Basic Data Sheet ...................................................... ii Highlights ............................................................. iii PROJECT PERFORMANCE AUDIT MEMORANDUM I. SUMMARY .................................................. 1 II. ISSUES ................................................... 3 A. Some Reasons for the Success of the Project .......... 3 B. Timing and Structure of Follow-on Project ............ 5 C. Relationship of Project to Agricultural and General Development Strategy ..................... 7 PROJECT COMPLETION REPORT I. Introduction ................................... ........ 11 II. Background - The Forestry Subsector .................... 13 III. Formulation .................................... ........ 18 IV. Implementation ....................................... 23 V. Forestry Impact ...................................... 30 VI. Institutional Performance and Development ................. 32 VII. Special Issues ............................................... 34 VIII. Lessons from the Project ..................................... 36 IX. Bank Performance ........................................ . 37 X. Conclusions .............................................. 39 Tables: 1. Main Notes, Reports and Documents Issued under the Project 2. Project Cost and Financing per Component 3. Project Cost per Category of Expenditure 4. Project Organization and Objectives 5. Key Indicators 6. Prices 7. Project Incremental Wood Production 8. Irrigated Tree Plantations - Economic Analysis 9. State-managed Rainfed Tree Plantations - Economic Analysis Map - IBRD 16839 (PCR) 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.  PROJECT PERFORMANCE AUDIT REPORT NIGER FIRST FORESTRY PROJECT (CREDIT 800-NIR) PREFACE This is a performance audit of the Niger First Forestry Project, for which Credit 800-NIR in the amount of US$4.5 million was approved in June 1978. The Credit was closed on June 30, 1982, after a delay of six months. The Credit was fully disbursed with the final disbursement being made on October 19, 1982. This audit consists of a memorandum prepared by the Operations Evaluation Department (OED) and a Project Completion Report (PCR) dated December 22, 1982. The PCR was prepared by the Western Africa Regional Office and is based on a mission to Niger in March 1981 together' with a final progress report which was prepared by the Project Unit. The audit memorandum is based on a review of the President's Report (P-2218) dated May 4, 1978 (no appraisal report was prepared) and the Credit Agreement of June 7, 1978 and the PCR together with information obtained from a review of project issues as contained in relevant Bank files and interviews with Bank staff who -have been associated with the project. On the basis of this review process the audit finds that the PCR presents an excellent account of the project's implementation experience and accomplishments. The memorandum elaborates on the reasons for success of this pilot and technical assistance project and compares it with the experi- ence of other similar projects in the region in order to derive any lessons to be learned. It also comments on timing and structure of the follow-on forestry project, Credit 1226-NIR, and on the relevance of the First Forestry Project to sectoral policy. A copy of the draft report was sent to the Borrower on April 13, 1983 for comments; however, none have been received.  - ii - PROJECT PERFORMANCE AUDIT REPORT NIGER FIRST FORESTRY PROJECT (CREDIT 800-NIR) BASIC DATA SHEET KEY PROJECT DATA Appraisal Actual or Actual as % of Item Estimate Estimated Actual Appraisal Estimate Total Project Costs (US$ million) 5.3 5.3 100 Credit Amount (US$ million) 4.5 4.5 100 Date Board Approval 06/07/78 -* Date Effectiveness 09/15/78 02/07/79 Date Physical Components Completed 06/30/81 12/31/81 Proportion then completed (%) 100 Closing Date 12/31/81 06/30/82 Economic Rate of Return (%) 12 6 Institutional Performance - Good Forestry Performance Good CUMULATIVE DISBURSEMENTS FY79 FY80 FY81 FY82 FY83 Appraisal estimate (US$ million) 1.3 3.3 4.5 4.5 4.5 Actual (US$ million) 0.5 2.0 3.5 4.48 4.5 Actual as Z of estimate 39 62 79 99 100 Date of final disbursement 10/19/82 MISSION DATA Date No. of Mandays Specializations Performance Types of Mission (mo./Yr.) Persons in Field Represented./a R .b Trend/c Problems&/d Identification 03/77 2 14 a,f - - - Preparation 10/77 4 60 a,f,i - - - President's ReporLe 05/78 2 - - - - - Subtotal 8 74 Supervision 1 04/79 1 4 f 1 - - Supervision 2 11/79 2 7 f 1 1 - Supervision 3 02/80 1 5 f 1 1 - Supervision 4 12/80 1 5.f f 2 1 T Supervision 5 05/81 1 5.2/A f 2 1 T Supervision 6/ Completion 03/81 2 4/8L!/ f,i - - - IDA Technical Back-up/i 1 15 1 - - - Subtotal 7 41 Total 15 115 OTHER PROJECT DATA Borrower Republic of Niger Executing Agency Niger Forestry Department/Project Monitoring Unit Fiscal Year October 1 - September 30 Name of Currency (abbreviation) CFAF Currency Exchange Rate: Appraisal Year Average 3.2/77, 1978 US$ 1.00 - CFAF 245 Intervening Years Average 1979-1981 US$ 1.00 - CFAF 236 Completion Year Average 1981 US$ 1.00 - CFAF 300 Follow-on Project: Name Second Forestry Project Credit Number 1226-NIR Credit Amount (US$ million) 10.1 Date Board Approval 04/13/82 /a a - agriculturist; f - forestry specialist; i - irrigation specialist. Tb 1 - problem-free or minor problems; 2 - moderate problems. Tc 1 - improving. /d T - technical. Te No appraisal--technical assistance project. Tf About 5 days out of 10 days on preparation mission of Second Forestry Project. /g About 5 days out of 20 days on appraisal mission of Second Forestry Project. Th About 4 days out of 8 days on supervision mission of Second Forestry Project. 71 Technical back-up provided by the Western Africa Projects Department Agricultural Division 3 irrigation specialist in conjunction with his regular mission in West Africa.  - iii - PROJECT PERFORMANCE AUDIT REPORT NIGER FIRST FORESTRY PROJECT (CREDIT 800-NIR) HIGHLIGHTS The objectives of the First Forestry Project were (i) to increase fuelwood and building pole supplies for urban areas and (ii) to prevent further environmental deterioration around townships due to progressive destruction of natural forest. It was viewed as a pilot project whose ob- jectives would be achieved through establishing experimental rainfed and irrigated forest plantations, providing vehicles for the Forestry Department, refresher courses for its staff, and special studies to improve forest species and ways of efficiently using rural populations in forestry development. The estimated cost of the project was US$5.3 million, of which Credit 800-NIR would finance US$4.5 million. The remainder would be financed by the Government of Niger, which represented 50 percent of local cost. The project was implemented, with a short delay of six months, by the Forestry Department of Niger in which a Project Unit was established and headed by a newly recruited Project Director. The Project Unit's staff included con- sultant advisors who contributed significantly to the project's implementa- tion. There was no cost overrun. The reestimated rate of return for the pilot irrigated and rainfed forest plantations, the productive components of this project, average 6% compared with 12% estimated at appraisal. The present low rate of return (4.5%) of the irrigated forest improvement is primarily due to implementation difficulties and consequent changes in final design of this component. The project provided information that was used in the design of the follow-on Second Forestry Project (Credit 1226-NIR), which was approved in April 1982. However, there is reason to believe that this follow-on project is now being undertaken before sufficient information is available for effi- cient and successful implementation. Other special points of interest are: - the project was successfully implemented because it was guided by a highly qualified, motivated and experienced director (he had been involved in another IDA-supported project) and the project received full support from the Government and other related agencies (PPAM, paras. 9-15); - the project supported the agricultural sector policy of Niger (PPAM, paras. 20 and 21); - the project did not provide expected information on the viability and economic benefits of technical packages (PCR, para. 5.03); - iv - - studies indicate that rural forestry development should be based on individual families rather than communities (PCR, para. 7.03); and - lessons learned from the project were taken into account in the design of the follow-on project (PCR, para. 8.01). A lesson to be learned from this project is that it might be best (full information is not yet available) to wait, due to the risks involved, for completion of pilot schemes before full-scale replications are attempted, despite the need to address an immediate problem. - 1 - PROJECT PERFORMANCE AUDIT MEMORANDUM NIGER FIRST FORESTRY PROJECT (CREDIT 800-NIR) I. SUMMARY 1. The First Forestry Project supported a three-year pilot program designed to (i) increase fuelwood and building pole supplies for urban areas and (ii) to prevent further environmental deterioration around townships due to progressive destruction of natural forest. It also provided technical assistance and equipment to strengthen the Forestry Department with the objective of building up a more effective forestry extension service and improving the Department's capacity for planning, management, and monitoring of projects and programs. 2. The project was prepared by a Bank/FAO-CP mission that visited Niger in October 1977. This mission followed the preparation of a Bank/ Sahelian Countries report on the role of forestry rehabilitation in the Sahelian countries that had been stricken by severe droughts in the latter sixties and early seventies and a reconnaissance/identification mission of February 1977. This latter mission identified a three-year pilot and tech- nical assistance project for possible Bank support which would increase fuelwood and building pole supplies while preventing further environmental deterioration. The preparation mission proposed a project, with the agreement of the Government, that was not significantly different from the initial proposal of the identification mission except that the irrigated forestry component was scaled down from 1,000 ha to 400 ha. 3. Because of the nature of the project, it was presented to the Board on the basis of the President's Report and was approved on June 7, 1978. Total cost of the project was estimated at US$5.3 million of which Credit 800-NIR would finance US$4.5 million and the Government the remainder of US$0.8 million. Government financing represented 50 percent of local cost. In brief, project components were: (a) the development of 400 ha of experi- mental irrigated Eucalyptus plantations in the area of Niamey, (b) development of 700 ha of rainfed tree (mainly with Neem, Azadiradita Indica) plantations around the main urban areas, (c) equipment, vehicles, fencing, and nursery supplies for improving the implementation of on-going activities of the Forestry Department, (d) refresher courses for about 50 field staff on rural reafforestation techniques, (e) studies of possible approaches to encouraging rural population participation in rural forestry development, (f) establish- ment of a maintenance unit for machinery and equipment in the Department of Forestry, and (g) funds for materials and operating costs to support investi- gations of new species, more efficient wood usage for construction and heating, possible substitutes for fuelwood, and alternative systems for irrigated and rainfed tree plantations. 4. The Niger Forestry Department was to be the executing agency, and a Project Unit, headed by a Project Director, was to be established within this Department to assist in coordinating and monitoring the various project - 2 - activities, planning rural forestry programs, preparing project progress reports, collecting economic data and results (of experiments), and preparing a larger second phase forestry project suitable for Bank support. The Project Unit staff would include consultant/advisers on tropical forestry and agri- cultural engineering. Other consultants to be employed under the project for short terms were a sociologist, a livestock specialist and an economist. 5. Effectiveness of the project was delayed by seven months due to the unusual problems of meeting the conditions of effectiveness. Two months of the delay were due to failure of the Government to publish the ratified agreement in the Official Gazette. The project was completed without major changes with a delay of just six months. There was no cost overrun for a modestly scaled-down project. However, if the irrigated plantations component had been implemented on the scale envisaged, the cost overrun would have been about 30 percent, due to higher than expected unit costs. A number of technical difficulties were encountered in implementing the irrigated tree plantation component. As a result, only 240 ha of the 400 ha of the planned forests have been established. However, 779 ha of rainfed trees, compared with 700 ha planned initially, have been planted and are thriving relatively well in a harsh climate. Equipment, vehicles, supplies and operating funds were provided by the Forestry Department as planned and assisted the Depart- ment, inter alia, in implementing a medium-scale state-managed rural tree nursery and in carrying out socio-economic studies which recommended a new approach to rural forestry development (this approach has been incorporated in the Second Forestry Project). Compared with the original estimate of 50, 41 field staff received first or refresher training in one or more of the following: desertification control, reafforestation, natural forest manage- ment, improvement of inland fisheries and the use of field levelling equipment and instruments. Support of forestry research was not especially productive due to a management conflict between the Centre Technique Forestier Tropical (CTFT) and the Institut National de la Recherche Agronomique au Niger (INRAN). However, the provision of a vehicle, some materials, and operating costs did assist the forestry division of INRAN in investigating rainfed and localized irrigation techniques involving Neem and Eucalyptus species and forestry practices such as spacing, cutting cycle, coppicing, and pollarding. The vehicle maintenance shop was established in the Department of Forestry, as planned; however, a capable manager is still needed. 6. There were no procurement problems as the Project Management Unit (PMU) was able to follow the Bank's procurement guidelines without difficulty, even though it was necessary to change the type of heavy duty equipment and the irrigation system purchased as the project progressed. All IDA funds were disbursed as of October 1982. 7. All covenants were complied with; but, as noted above, compliance was not on time in some cases. Furthermore, all consultants hired under the project performed satisfactorily. Accounting and reporting were also satis- factory. A new cost accounting system was set up by the forestry adviser. However, detailed unit cost estimates have been lacking due to time and staff constraints. - 3 - 8. The reestimated economic rate of return (ERR) for the pilot irri- gated and rainfed forest plantation components are 4.5 and 9 percent, re- spectively. The average ERR for the two components is 6 percent. These rates compare with initial estimates of 12 percent for irrigated plantations and 10.6 percent for rainfed plantations, with an average of 11.7 percent. II. ISSUES A. Some Reasons for the Success of the Project 9. The project's objectives were to support: a three-year program of pilot activities aimed at (i) improving fuelwood and building pole supplies, especially for urban areas; (ii) preventing further environmental degradation around townships due to progressive destruction of natural forest cover; and (iii) strengthening the Forestry Department through technical assistance and equipment with a view to build up a more effective extension service in rural areas, and studies to investigate ways and means of securing support of people at the village level for an expanded national program of rural reaffores- tation. By all accounts the project has achieved most of these objectives. Pilot forest projects have been established, forestry staff have received further training in desertification control, reafforestation and national forest management, and studies have been done to find ways for encouraging participation of rural people in forestry development. An effective project cost accounting system was established. However, a forestry research com- ponent was only partially successful due to conflicts between participating agencies, CTFT and INRAN. All of these objectives have been achieved with a minor delay of just six months, no cost overrun, and no significant problems in procurement, disbursements, or in hiring of consultants. 10. Because of the project's achievements it should be useful to investigate possible reasons for its success, an issue that has not been attempted in the PCR, but could provide a useful lesson for other similar IDA projects in Niger and elsewhere. Bank staff associated with the project feel that the main reasons for the project's successful implementation are the dynamism and capability of the project director and the commitment and dedi- cation of forestry professionals who were involved in the project. As a matter of confirming or denying this conclusion the audit investigated other possible reasons such as (i) the project was easy to implement because it was a relatively small pilot and technical assistance project (total cost, US$5.3 million), or (ii) Niger has good project implementation capacity in terms of management, technical staff and infrastructural support. 11. With respect to the ease of implementing pilot and technical as- sistance projects, the audit reviewed other technical assistance projects and projects that contain technical assistance components in Western Africa that have been implemented in recent years. The success experience of such proj- ects or components has been mixed. In Cameroon, the Plaine des M'Bo Rural Development Project!/ failed because of conflicting views between the Govern- ment and the Bank on the main objectives of the project. The Office du Niger Technical Assistance Project in Mali2/ failed because the executing agency did not support the project's objectives and refused to cooperate with consultants who were employed under the project. In Mauritania, the Gorgol Engineering ProjectY' was only partially successful because dam designs were based on inadequate geological investigation. The final dam designs had to be financed under a subsequent technical assistance project, SONADER Technical Assistance.4/ This latter project was successful in greatly increasing SONADER's ability to prepare and execute projects, but financial management of the agency still needs improvement. However, the design of the dam for the Gorgol Irrigation Project5/ was completed successfully. The technical assistance component of the Terres Neuves II and Technical Assistance Project in Senegal was only partially successful in providing a long-term development strategy for the Eastern region. It identified project ideas which could be implemented; however, it was concluded that the same ideas could have been generated through the normal identification and preparation processes. 12. On the basis of this brief survey limited to one region, it seems evident that technical assistance projects face many of the same obstacles as other full-blown, complex projects, even though they usually are relatively small and include a larger input of highly trained expatriate staff. Such projects, inter alia, need goals that are shared by the government, by the executing agency and by the Bank/IDA. Expatriate staff hired must have requisite expertise and the objective of the project must be singular and relevant. 13. Looking at the other possible reason for project success, the project implementation capacity of Niger, the results are again mixed. Three agricultural projects had been completed prior to the Forestry Project.6/ The first of these, the Agricultural Credit Project, is considered a failure because its objectives were unrealistic, the Government's pricing poli- cies were inappropriate, and institutions did not perform as expected. An 1/ Credit 672-CM, OED report in process. 2/ Credit 854-MLI, OED report in process. 3/ Credit S-16-MAU, OED Report No. 3134, dated September 18, 1980. 4/ Credit 694-MAU, OED Report No. 3995, dated June 23, 1982. 5/ Credit 1068-MAU, Appraisal Report, Report No. 2517a-MAU, dated August 21, 1980. 6/ The Agricultural Credit Project, Credit 207-NIR, OED Report No. 2055, dated May 10, 1978, the Drought Relief Fund Project, Credit 441-NIR, OED Report No. 2588, dated June 29, 1979, and the Maradi Rural Development Project, Credit 608-NIR, OED Report No. 3992, dated June 21, 1982. - 5 - exceptionally severe drought in the early 1970s also contributed to its failure. The special Drought Relief Fund Project was partially successful; a gum arabic sub-project was eminently successful, but some other components had to be scaled down due to inadequate preparation, management and supervision, to escalation in cost, and to shifts in natural development priorities. On the other hand, the Maradi Rural Development Project has been quite successful in meeting its agricultural and rural development objectives. The reasons given are: (i) an effective Project Management Unit was established, (ii) this unit worked in close coordination with expatriate advisers, and (iii) these advisers trained their counterparts to take over their duties. 14. It may be concluded that Niger does not have an exceptional capacity to implement projects. The common elements of success hold in Niger just as in other countries -- realistic goals, good preparation, correct policies, adequate institutional or management structure, good design and effective project management itself. 15. The audit concludes that the project was highly successful, similar to the conclusion of Bank operational staff, because the project unit was under the control of a highly qualified, motivated and experienced director (he had been in charge of the highly successful gum arabic component of the Drought Relief Fund Project which was noted above) and because the forestry personnel who were associated with the project were committed and dedicated. But it also concludes that the project had the full support of the Government (the Borrower) and received considerable assistance from related, cooperating agencies -- regional and district forestry services, Genie Rural Department, Institut National de la Recherche Agronomique au Niger, and Office National des Amenagements Hydro-Agricoles (PCR, paras. 4.11 and 6.02). Further, the project design was realistic given the environment in which it was imple- mented. B. Timing and Structure of Follow-on Project 16. The follow-oft, Second Forestry Project was approved by the Board on April 4, 1982 and continues and builds on the work and sub-projects initiated under the first project based on the experience of that project. However, on the basis of statements made in the PCR, there is reason to believe that the Second Forestry Project is proceeding too rapidly on too grand a scale. At the time of preparation and appraisal, the age of the oldest rainfed tree plantings was just three years and that for the irrigated plantings was two years. These periods do not appear to be long enough to provide adequate development information for proceeding with further sub- project expansion on a large scale. The rainfed forests are expected to reach the cutting stage in seven years, and the irrigated forest in five years. A number of problems beset the implementation of the irrigated tree plantation pilot project. The planned traditional gravity system did not work well due to the relief and soil characteristics of the area selected for irrigation. It was then decided to try a low pressure, underground pipe system on 100 ha. This trial ran into technical and soil problems. The 1980/81 tree plantings were not effectively irrigated and the seedlings suffered from drought and had to be replanted in 1981/82. Because of these difficulties it was decided to experiment with a localized irrigation system, which INRAN had experimented - 6 - with in another area, in order to compare the two systems. Thirty-five ha were then established under localized irrigation. Problems developed with the filter pump but were eventually corrected, the system has been operating normally, and the trees established are in good shape. In the following year, an additional 12 ha were established under irrigation without any diffi- culties, and trees are growing normally. 17. It is concluded in the PCR (para. 4.10) that, due to the initial implementation difficulties and the short period of this pilot project, it is difficult to assess the economic and technical potential of the full scale irrigated tree plantations though preliminary indications are that yields from the plantations would be quite high if properly managed. Furthermore, the PCR states (para. 5.01), "...it is not yet possible to assess the produc- tion potential of the tree plantation established under the project... For some of the pilot tree plantations, the actual production could be much less than foreseen at appraisal because lands used were marginal and very much depleted. Thus, the Second Forestry Project would carefully choose planting sites (preliminary soil surveys) and investigate technical packages better adapted to marginal lands in arid and semi-arid zones." Further uncertainties about the proper technical packages are evidenced in PCR para. 5.02. On the basis of this information, it is doubtful that viable technical packages have yet been determined for either large-scale rainfed or irrigated forestry enterprises in Niger. 18. The Second Forestry Project includes, inter alia: establishment of 1,500 rural mini-nurseries that are expected to supply plants for about 6,200 ha equivalent of rural tree plantations which would be grown by farmers, establishment of 1,500 ha of state-managed rainfed tree plantations and the establishment of 200 ha equivalent of tree plantations in existing agri- cultural irrigated perimeters. It is the audit's view that the project may be proceeding with such components too rapidly. There does not appear to have been any experimentation to determine if and how well farmers will participate in tree growing, an enterprise that produces benefits only after a delay of four to five years (see Appraisal Report, para. 6.02). Fifteen hundred ha of state-managed forests seems a risky undertaking given the problems and urr- certainties cited above from the PCR. Further experimentation on a much smaller scale seems desirable. Also, note the low reestimated rate of return given in paragraph 8. In the same vein, more study is needed to ascertain if irrigated forestry is economically competitive with foodcrops in a country like Niger, a country with scarce arable land. Some analyses indicate that it is, but this result, as always, depends on the prices used. Further, market or economic prices do not adequately reflect the social benefits of food and wood products to the poor. However, there is a complementarity between food and wood when the latter is used to prepare food. 19. In light of the dire situation that exists with respect to the growing demand for fuelwood and the depletion of forest and subsequent environmental destruction (despite the above reservation about the efficacy of including the noted components at the scale planned in the Second Forestry Project), some action needs to be taken to meet these problems. That action - 7 - may involve considerable uncertainty and risk. The strategy in such an environment might best be a broadly diversified program that would yield only a modest payoff in the short run but ensure a large payoff in the future. C. Relationship of Project to Agricultural and General Development Strategy 20. Since the great droughts that hit the Sahelian zone in the late 1960s and the first half of the 1970s, the Government of Niger has been paying increasing attention to the role of the forestry sector in economic develop- ment. The forestry sector currently accounts for five to seven percent of the Gross Domestic Product (CDP). More importantly, the growing population and their need for fuelwood led to the denudation of areas around population centers resulting in wind erosion and environmental deterioration. Recog- nizing this undesirable development, the Government established a forestry sector development strategy with three main objectives: (a) to protect the remaining natural forest cover from encroachment and overgrazing by livestock, (b) to establish windbreaks and to stabilize sand dunes in order to prevent encroachment of the desert further south, and (c) to develop a sustained supply of fuelwood, building poles, lumber, shade, fruit- and fodder-providing trees for both rural and urban populations. 21. The First Forestry Project obviously was consistent with and con- tributed to the third and last of these objectives by attempting to find ways of efficiently increasing the supply of fuelwood and building poles.  -9- PROJECT COMPLETION REPORT NIGER PILOT & TECHNICAL ASSISTANCE FORESTRY PROJECT (First Forestry Project) December 22, 1982 Western Africa Regional Office Projects Department Agriculture Divsion 3  - 11 - I. INTRODUCTION General 1.01 The Pilot and Technical Assistance Forestry Project (Credit 800-NIR) was designed to implement a three-year (1979/81) pilot forestry program with the aim of: (a) improving supplies of fuelwood and building poles in the urban area; (b) strengthening the Forestry Department; (c) preparing an ex- panded national program of rural reafforestation; and (d) creating a capacity for planning and monitoring within the Forestry Department. Total cost amounted to US $5.3 million of which US $4.5 million as IDA credit and US $0.3 million as government counterpart funding. 1.02 Activities under the project were to be concentrated along the narrow rainfed strip of the southern part of the country. The project, which was identified/appraised late in 1977, became effective in February 1979. The project should have been completed in February 1982, but since most of the physical components had been completed by the end of 1981 and a follow-up project had already been appraised, the project completion date was advanced to December 1981. 1.03 There were no major revisions of the project during implementation except in the pilot irrigated tree plantation. Due to price increases brought on by the second energy crisis and technical difficulties (arising from the particular nature of the site) in implementing this relatively sophisticated component, it was decided to redesign the project component and reduce the area to be planted under irrigation from 400 to 240 ha. In addition, the project implemented 770 ha of pilot rainfed tree plantations compared with the appraisal estimate of 700 ha. Special Issues 1.04 The most important issues that arose during the implementation were: (a) future of "industrial" irrigated tree plantations. The implementa- tion of a full scale irrigated tree plantation system showed the economic and technical difficulties that could arise with such pro- jects. Consequently there is a necessity to closely monitor these plantations during the next few years to assess what modifications are necessary in such irrigation schemes. (b) future of state-managed rainfed tree plantations. Good soil condi- tions and better adapted technical packages are crucial to successful plantation growth. (c) future of rural forestry. Given the disappointing achievements in rural forestry a redefinition of strategy is needed. This redefi- nition would include family based rural forestry as well as a compre- hensive approach to integrate forestry, agriculture and pastoralism. - 12 - Benefits 1.05 One of the project's main objectives, creating a capacity for plan- ning, management and monitoring within the forestry department was virtually achieved. Moreover the project was quickly able to get the forestry districts actively involved in the reafforestation process. Simultaneousy, government and the people became more and more involved in forestry activities because of this pilot and technical assistance project which paved the way for an ex- panded second forestry project. The Second Forestry Project 1.06 The special issues raised by the first project have suggested a need for more in depth surveys combined with activities of a still pilot and exper- imental nature. Thus the second project expands on the activities of the first project and try new ones to improve forestry methods and techniques available to drought prone Niger. - 13 - II. BACKGROUND - THE FORESTRY SUB-SECTOR Natural Forest Cover (see Map in Annex) 2.01 The distribution of the natural forest cover (estimated at about 4 million ha including the wooded "sylvopastoral" and "sylvo-agricultural" for- mations) is heavily dependent on rainfall. The forest cover increases in density from north to south, and vegetation zones in Niger include: a) the Saharian Zone (annual rainfall 25-200mm, 55% of the country's area); b)the Saharian Zone made up of: (i) the Sahelo-Saharian Sector (annual rainfall 200- 400 mm, 20% of the country's area), and (ii) the Sahelo-Sudanian Sector (annual rainfall 400-600mm, 15% of the country's area); and (c) the Sudanian Sector (annual rainfall 600-800mm, 10% of the country's area). 2.02 Forests in Niger are not dense compact areas of trees but are rather made up of dispersed tree formations with an average growth rate ranging from 0.1 m3/ha/year in the Sahelian zone to 0.5 m3/ha/year in the Sudanian sec- tor. Moreover, most of these forests belong' to "agropastoral" or "sylvo- pastoral" formations and produce not much fuelwood or building poles. National Forest Estates and Tree Plantations 2.03 The forest and farm reserves, parks and controlled forestry areas cover only about 1 million ha. (forest reserves -20%; fauna reserves-80%). Due to the current population growth, many of these reserves are largely encroached upon and thus are in poor shape. Forest plantations cover some 20,000 equivalent ha planted mainly with Neem (Azadarichta indica), Eucalyptus camaldulensis, Prosopis juliflora and Acacia albida, most of them for fuelwood and building poles. Numerous woodlots have been planted by villagers, schools, youth organizations and other groups but many of them are in poor shape due to lack of maintenance and poor soil conditions. Role of Forestry in the Economy 2.04 The official statistics, which impute 4% of GDP to the forestry sub- sector, do not adequately reflect the important role that the natural forest savanna and bush play in consumption and protection of the soil. Fuelwood accounts for a high proportion of both rural and urban energy resources (about 85% in 1978) supplying basic needs for cooking and heating. Poles are also used for house construction, farm buildings, and animal drawn carts. The forest areas are a significant dry weather grazing reserve and supply an im- portant part of the fodder required for sustaining transhumant populations. Subsidiary forestry products such as gums, various fruits and nuts, as well as thatching and weaving materials, are widely used by the rural population. The forests have pronounced climatic effects, mainly through the provision of shade that helps to reduce the range of daily temperature variations. Tree and shrub roots fix the soil and protect it against wind and rain erosion, and in some areas, improve soil fertility. Traditionally, the forests have also provided the basis for shifting cultivation, and part of Niger's agricultural economy continues to depend on this system of farming. - 14 - Demand for Forest Products and Environmental Disruption 2.05 It is estimated that average fuelwood consumption was about 0.7 m3/capita/year in the rural areas and about 0.9 m3/capita/year in the urban centers in 1980. Total fuelwood consumption for the year was therefore some 3.9 million m3 (1.8 million tons). 1/ This figure exceeds by about 95% the average annual increment of the exploitable natural forest cover, equivalent to about 2.0 million m3/year/, 2/ leading to an over exploitation of existing forests. The rapidly increasing demand is now being met almost entirely from natural forest and bush supplies which, in many urban areas, have been com- pletely cut out. The resulting wind erosion of top soil has led to declining soil fertility and degradation of large areas of potential agricultural land. 2.06 Building poles are also in high demand and amount to some 5-10% of total fuelwood consumption. Most of industrial wood (e.g. construction grade lumber) is imported from the coastal countries. The Task Ahead 2.07 Niger's population in the year 2000 is projected to be about 8.8 mil- lion. Assuming conservatively that each urban resident consumes 0.8 m3/year and each rural resident 0.6 m3/year after taking into account substitutes and more efficient wood usage, Niger would need about 6.2 million m3 of fuelwood and building poles to meet domestic demand in the year 2000. Given the dis- appointing mean annual increment of the natural forest cover and the ever in- creasing demand for wood products, this would imply the establishment of extremely ambitious tree plantation and natural forest management programs that cannot be achieved under present conditions. 2.08 Besides, with almost all the country having less than 800 mm of erra- tic rainfall, the technical constraints to forestry development in Niger are formidable. A major problem is the lack of productive technical packages adapted to these semi-arid conditions, for trials under rainfed conditions through ongoing projects have had variable and sometimes disappointing re- sults. There exists however the possibility of producing wood under irri- gation (20m3/ha/year) which, if feasible, could play a significant role in taking the pressure off continued devastation of the natural savannah wood- land; but pilot irrigated tree plantations, are too young to assess the tech- nical and economic viability of this relatively sophisticated type of planta- tion. It is increasingly evident then that, in addition to wood conservation and state - managed tree plantations, the natural forest cover would need to be protected against over-cutting, over-grazing, over-clearing and uncon- trolled bush fires and that the effective participation of the rural popu- lation is a prerequisite to a long-term strategy for forestry development in Niger. It would also be necessary for the country to look into better uses of wood and possible substitutes for wood. 1/ 1m3 = 450 kg (natural forest). 2/ 0.4 m3/ha/year x 5.0 million ha. - 15 - Substitutes and Better Uses of Wood 2.09 Substitutes. The price of firewood has been increasing at the rate of about 5%/year in real terms over the last decade. Despite these increases in price, demand and consumption of firewood remain high and are even on the rise. Traditional cooking methods continue to use wood inefficiently but not much has been done to find suitable substitutes for firewood. Since 1972, there has been a sustained increase in imports of butane gas but the total volume remains small and a large part of this is used for commercial purposes, with only limited family use. It is expected that commercial butane gas use would continue to increase and possibly some urban families may switch to the use of gas for some type:3 of cooking. However, the social and cost con- straints against a full-scale adoption of gas are tremendous and hence gas may not become a major substitute for firewood in Niger in the foreseeable future. Other fuels, like kerosene and electricity are even less widely used for cooking in Niger and their substitute ability for firewood would be subject to the same social and cost constraints. 2.10 In recent years experiments have been made to introduce solar heaters and cookers. The water heaters have been more successful than the cookers in terms of practicability and acceptability by households. While the heaters perform satisfactorily the cookers are not well adapted to Nigerien cooking. 2.11 In the rural areas, the large part of the people have not found any acceptable substitutes for wood and still travel large distances to fetch firewood. In some areas, especially north west of Niamey, the scarcity of wood now forces most people to use crop residues and animal dung. Thus, households can be expected to turn to these substitutes if continued defores- tation further reduces the available fuelwood supplies. Increasing deforesta- tion is also causing rural people to cut down and mutilate Gao trees (Acacia albida) well known to increase the nitrogen and other organic matter content of soils to obtain fodder for their animals and firewood. The long term effect of burning crop residues and dung as well as cutting down the Gao trees would be to cause further declines in soil fertility and a significant reduc- tion in food crop yields, a matter of critical concern in a country where land suitable for cropping represents only about 10% of the total land area. 2.12 Woodstoves. To reduce firewood demand, Niger has been encouraging the introduction of improved woodstoves. This is being done through projects financed mainly by bilateral sources and non-gouvernmental organizations (NGOs). Several improved woodstoves projects are also in the preparation or planning stages and are expected to begin in the next few years. Thus, there is no lack of organizations or experts anxious to promote woodstoves in Niger, but the serious danger to avoid is the promotion of inappropriate and unproven stove models as well as stoves not acceptable to the population. Resources for Forestry Department 2.13 Given the magnitude of the forestry problems, the Forestry Depart- ment, in spite of recent improvements in staffing, is still understaffed and thus unable to fulfill a large part of its responsibilities. The situation is considerably worsened by an inadequate allocation from the Government budget - 16 - of funds, materials and operating supplies. As a result, the Forestry Depart- ment is unable to provide the necessary surveillance and protection of the forest cover against poaching, overgrazing, overclearing and fires and to carry out necessary reafforestation or erosion control programs on a signifi- cant scale. Sector Objectives and Strategies 2.14 Since the most recent drought (1972), increasing attention has been given to the role of forestry in economic development leading to an evolving definition of forestry development programs. These programs have three main objectives: (i) to protect the remaining natural forest cover from overex- ploitation, encroachment, over-grazing and bush fires; (ii) to develop a sus- tained supply of fuelwood, building poles, fruit, fodder, gum and minor forest products for both rural and urban populations through efficient management of the natural forest cover and establishment of tree plantations; and (iii) to promote better uses of wood and use of substitutes. 2.15 The main strategy to achieve these objectives are to: (i) build up forestry institutions through training: research, studies and provision of operating means; (ii) establish fast-growing tree plantations and improve management of natural forests; (iii) encourage the participation of the rural population in reafforestation; and (iv) support research into methods of im- proving forestry technical packages and efficient wood uses. Rural Participation in Forestry Programs 2.16 Several rural forestry programs began in Niger from the early 1970's. Most of these were financed from external sources and from their conception did not foresee any substantial participation of the rural population. Thus they were conceived as village woodlots ("bois de villages") where in most cases the land was purchased from farmers and plantation works done by either the projects or by the forestry services with hired labor. These woodlots then were considered as "official property" by most villagers and hence their participation remained limited. In certain instances district authorities ("sous-prefets") have taken the initiative to establish communal woodlots from district budgets, but again using hired labor with limited local partici- pation. 2.17 Recently, several socio-economic studies have been undertaken in Niger to evaluate existing rural forestry programs, analyze the problems, and propose means of encouraging the participation of the rural population. The main problem found by these studies is that the projects were designed without making provision for individual participation of the rural population and hence did not have the support of villagers. This reliance on a community woodlot system has therefore been ill-suited in the local socio-political context to serve as a vehicle for reafforestation efforts powered and sus- tained by local people. 2.18 Recent activities in Niger suggest that the rural population is already conscious of the need for reafforestation. Good results from wind- breaks have aroused the interest of farmers in such tree plantations. Farmers - 17 - are also aware that trees have traditionally played a fertilizing role for millet land and they have expressed interest in learning more about selective protection of natural regeneration for local trees species. Rigid interpre- tation of the national forestry code by some local forestry staff discourages establishment of firm individual or family property rights in all trees. Bank's Role in Forestry 2.19 Prior to the first forestry project; the Bank group has financed forestry activities within the framework of two previous credits: First, the Drought Relief Fund Project (Credit 441-NIR) provided financial aid for the improvement of gum arabic stands in the Manga area (Goure, Maine and Diffa). This was a successful operation that helped stabilize and increase the incomes of some 5,000 people badly affected by drought. A total of 6,250 ha of natural gum arabic stands, instead of 2000 ha as foreseen at appraisal, were protected and harvested (see PPAR of July 2, 1979). Second, the Maradi Rural Development Project (Cr. 608-NIR) provided financing for the establishment and maintenance of rural woodlots. This rural forestry program ran into a number of difficulties due to (i) farmers reluctance to establish tree plantations; (ii) problems relating to land/labor competition between farming and tree planting; (iii) problems of protecting trees from browsing animals; and (iv) the low priority given to such activities both by the extension services and by farmers. - 18 - III. FORMULATION Origin 3.01 In 1974/1975, the Bank carried out a West Africa Regional Forestry Sector Study which covered most of the timber rich West African countries 1/. Since the study was confined to the timber rich Western African countries, it was decided in early 1976 to complement the forestry sector study by producing a short Bank report on the role of forestry in rehabilitation of the Sahelian countries stricken by severe drought early in the seventies. The report which was prepared by a consultant 2/ assisted by Bank forestry staff, dealt with the major policy issues and constraints in the arid and semi-arid zones of West Africa and identified a number of areas in which Bank assistance could play a useful role. The report was largely based on documentation and con- clusions of a CILSS/UNSO/FAO conference in Dakar, Senegal between April 26 and May 1. At the conference the eight countries 3/ attending the meeting submitted a summary of their forestry development programs and indicated spe- cific projects for which they were seeking external financial assistance. Following this conference, the Bank sent a FAO/IBRD/CP forestry reconnais- sance/identification mission to Mali, Upper Volta and Niger in February/March 1977 to identify projects suitable for Bank support. Reconnaissance/Identification 3.02 The mission, which visited Niger in late February 1977, identified a three year pilot and technical assistance forestry project of possible Bank interest. This project was to improve fuelwood and building pole supplies while preventing further environmental degradation mainly through: (a) initiation of a program of rainfed and irrigated state-managed tree plantations; (b) sand dune stabilization along the northern limit of cultivation (NLC); (c) initiation of programs to strengthen rural forestry. 1/ Cameroon, Congo, Ghana, Ivory Coast, Central African Republic, Gabon, Liberia and Nigeria. 2/ Dr. C. W. Holloway. 3/ Chad, Cape Verde Islands, Mali, Mauritania, Niger, Sudan and Upper Volta. - 19 - One of the major objectives of the project was also to improve the capability of forestry institutions, to prepare and manage forestry projects and programs. 3.03 The main issues to be addressed during project preparation were: (a) further review of technical aspects with particular reference to rainfed tree plantations and sand dune stabilization; (b) availability of land and water for irrigated tree plantations as well as economic justification of such plantations; (c) population participation and committment; (d) protection of plantations from wandering domestic animals; and (e) securing accurate data for economic justification. Preparation/Appraisal 3.04 Following the reconnaissance/identification mission, a project brief was issued in June 1977 and sent to Niger early in July 1977. Late in August 1977 the Government requested the Bank to prepare and appraise the proposed project. Given the pilot and technical assistance nature of the activities to be undertaken under the proposed project it was decided that a separate staff appraisal report will not be prepared. 3.05 A FAO/IBRD/CP preparation mission 1/ visited Niger in October 1977. Following their visit to Niger the mission proposed, in agreement with the Government, a three year pilot and technical assistance project with no signi- ficant changes from the main proposals contained in the initial project brief, except for the area to be planted under irrigation, which was scaled down to 400 ha instead of 1000 ha as suggested during identification. 3.06 The main forestry operations of the proposed project were to be carried out in the narrow rainfed strip of the southern part of the country below the northern limit of cultivation (NLC) approximately around the 14* latitude and stretching from the West of the country to the East. 3.07 The proposed project, to be implemented within the Forestry Depart- ment, would require two expatriates ("G6nie Rural"/Irrigation Specialist and Forestry Specialist able to deal with forestry economics and short term con- sultants as well as Nigerian counterparts to the two expatriates and comple- mentary staff. 1/ Preparation mission consisting of an irrigation specialist, a tropi- cal forestry specialist, a forestry economist from FAO/IBRD/CP and a forestry agronomist from IBRD. - 20 - 3.08 Following the appraisal mission three main issues were identified: (a) land availability for irrigated tree plantations; (b) protection of plantations from browsing animals; and (c) availability of personnel. A decision meeting to consider the issues raised by the appraisal mission decided that the only real issue was the availability of land for ir- rigated tree plantations and therefore proposed that a condition of board pre- sentation would be Government's allocation of two 250 ha sites on the lower terrains of the Niger River to the Forestry Department. Negotiation and Approval 3.09 Negotiations were held in April 1978 and the following principal amendments were made to the draft credit agreement during negotiations: (a) the irrigated tree plantations would be established on several sites if there is difficulty in identifying two 250 ha sites and the rain- fed tree plantations would be established near the main urban centers (at least half near Niamey); (b) the chief of the planning, management and monitoring unit (or project director) would be a Nigerien and the forestry specialist would serve as adviser to the project director. During negotiations draft terms of reference of the expatriates staff were agreed upon. It was decided that the terms of reference for consultants would be jointly reviewed and agreed upon at the time of their selection. 3.10 By letter dated April 5, 1978, the Government officially informed the Bank that three sites had been selected on the lower terraces of the Niger River for the pilot irrigated tree plantations to be established under the Project, thus fulfilling the condition of Board presentation, the project was approved by the Board on May 16, 1978. Targets and Goals 3.11 The project was a three year program of pilot activities and technical assistance with the aim of: (a) improving fuelwood and building pole supplies especially for the urban areas, preventing further degradation and environmental disruption around townships due to progressive destruction of the natural forest cover; (b) strengthening of the Forestry Department through provision of tech- nical assistance and equipment with a view to building up a more effective extension service in the rural areas; - 21 - (c) carrying out complementary studies to investigate ways and means of interesting the rural population in an expanded national program of rural reafforestation; and (d) creating a capacity for planning, management and monitoring within the Forestry Department. 3.12 In particular, the project aimed at assisting Government in carrying out pilot schemes to test the feasibility of various reafforestation techniques by gathering the basic and socio-economic data required for the formulation of long term programs and in strengthening the capacity of the Forestry Depart- ment to implement full scale reafforestation and forest management projects. Project Description 3.13 As approved by the Board, the project included: (a) establishment and management of 400 ha of pilot, state-managed irri- gated tree plantations mainly with Eucalyptus Cammaldulensis on lower part of the Niger River in the Niamey area; (b) establishment and management of 700 ha of pilot state-managed rain- fed tree plantations around the main urban areas (half around Niamey and the remainder around Tahoua, Maradi and Zinder) mainly with Neem (Azadarichta Indica); (c) assistance to rural forestry in providing equipment, vehicles, fenc- ing and nursery supplies in order to improve the implementation of the on-going rural forestry activities of the Forestry Department (management of natural forests, establishment of community/family woodlots, shelters, windbreaks, live fencing and sand dune stabili- zation); (d) training in forestry extension services in providing about 50 level field staff with refresher courses at the FAC/FAO/UNDP-assisted training center of Kolo (IPDR) on rural reafforestation techniques and possible approaches to encouraging rural population partici- pation; (e) assistance to research in financing materials and operating costs for complementary forestry research to be carried out by INRAN within the framework of the proposed project. (f) establishment and operation of a workshop maintenance unit for machinery of the Forestry Department's vehicles because of the lack of maintenance facilities available to this department and in the light of its expanding field forestry activities. 3.14 Total project costs, net of duties and taxes, were estimated at US$5.3 million including contingencies. IDA would finance 85% of the total costs, that is US$4.5 million (100% civil works, machinery and vehicles, equipment, supplies and inputs, expatriate staff and consultant's salaries and - 22 - 92% of machinery and operating costs). Government would finance 15% of total costs, that is US $ 0.8 million (100% of Nigerian civil servants and support staff and supervisory/headquarter operating costs as well as 8% of machinery and vehicles operating costs). 3.15 The principal quantifiable benefits would be fuelwood and building poles, resulting from the establishment of pilot, state-managed and rainfed tree plantations (75% of the total project costs). Assuming an annual in- crease of 5% in real terms in fuelwood prices and soil conservation benefits in terms of the cereal production from the land that would be destroyed with- out the project, economic rates of return for the irrigated plantations was 12% and nearly 11% for the rainfed tree plantations, giving an average project rate of return of 12%. 3.16 Given the special conditions prevailing in carrying out such a forestry project IDA was to disburse immediately after credit effectiveness a US $ 0.2 milion special (working/revolving) fund into a special account. - 23 - IV. IMPLEMENTATION Effectiveness and Start-Up 4.01 The project was approved on May 16, 1978 but did not become official- ly effective until February 07, 1979, seven months behind appraisal expecta- tions (July 1, 1978). The additional conditions of effectiveness had been set as follows: (a) opening of a special account; (b) appointment of a Nigerien Project Director; (c) appointment of a technical forestry specialist; and (d) appointment of a "G6nie Rural" specialist. 4.02 These conditions had been fulfilled by mid-December 1978 but delays in publishing the ratified agreement in the Official Gazette pushed the effec- tiveness date to February 7, 1979. Nevertheless the Government financed the initial implementation of the project (under a special CFAF 2.5 million emer- gency FNI allocation) starting on December 15, 1978. It should be underlined that, in spite of administrative delays in getting the project effective, the Government and Forestry Department, in particular the newly appointed project director, were deeply committed to the project. Indeed, the project was able to become immediately operational after credit effectiveness, without waiting for the disbursement of the special fund (see para 3.16), because of the ini- tial government allocation. Revisions 4.03 There were no major revisions of the project during implementation except for the pilot irrigated tree plantation. Due to price increases and technical difficulties in implementing the irrigated tree plantations component as scheduled at preparation it was decided to redesign the project and reduce the area to be planted under irrigation from 400 ha to 240 ha which corresponded to the total area that could usefully be irrigated in the Namarde Goungou area (see paras 4.07 & 4.09). 4.04 As a three year project, the project should have been completed on February 16, 1982 and closed on August 16, 1982. However since most of the physical components had been implemented by the end of 1981, and a follow-up project had already been appraised, Government and IDA decided to advance the project completion date to December 31, 1981 (closing date June 30, 1982). Implementation Schedule (see Table 5 in Annex) (i) State Managed Irrigated tree Plantations 4.05 The irrigated tree plantations are all located in the Namarde Goungou area on the first lower terraces of the left bank of the Niger River, between - 24 - the bottom lands of Namarde Goungou and the chain of dunes 35 kilometers North West of Niamey. The 240 ha of plantations were implemented as follows: 135 ha in 1980 (of which 100 ha under gravity 1/ and 35 ha under localized irrigation 2/) and 105 ha in 1981 under localized irrigation. 4.06 Prior to project implementation, the entire Namarde Goungou area had been mapped out by the "Genie Rural" Department and soils surveyed by the soils division of INRAN. Thus initial preparation works (cleaning, road construction, levelling and land preparation, establishment of nurseries, and house/garage construction) were carried out satisfactorily by a force account unit within the project. 4.07 Following the topographical and pedological studies however, it was found that the relief and the soil characteristics of the gently rolling Namarde Goungou terraces would not easily permit irrigation by the traditional gravity system as proposed during project preparation. In consultation with IDA and ONAHA ("Office National des Aminagements Hydro Agricoles") therefore it was decided to try the californian system of irrigation and to establish a first portion of 100 ha under such a system. However the force account unit responsible for civil works on the site encountered many difficulties in con- structing the earth channel network due mainly to: (a) lack of expertise in handling heavy duty equipment by this newly created unit; (b) micro-relief of the site that had numerous backslopes; and (c) heterogeneity of the soil with numerous sand pockets. Because of these difficulties and given the promising results of the INRAN tree plantation trials under localized irrigation in Lossa, it was decided to establish concurrently 35 ha of tree plantation under localized irrigation so as to be able to compare the two systems. 4.08 Unfortunately due to difficulties in receiving equipment on time (trucks delivering the irrigation equipment broke down in the Sahara...) and especially due to problems in connecting the floating pumping system (raft) to the irrigation network, the gravity irrigated area 3/ was not satisfactorily implemented. The 1980-81 tree plantations were therefore not effectively irrigated. The seedlings suffered from drought and 50% of the area had to be replanted in 1981/82. In spite of some readjustments in the pumping system, it again did not perform well in 1981/82 and part of the tree plantations would have to be replaced in 1982/82. Because of these "quasi-permanent" difficulties in connecting the raft to the irrigation network, the project, taking advantage of the extremely low flow of the Niger River in 1982, decided to fix the pumping system on the bed rock of the river. It is now expected that the system would perform satisfactorily for the next seasons. 1/ California system - low pressure gravity irrigation through under- ground plastic pipes for the main irrigation network. 2/ SETI/Bas-Rhone Languedoc localized irrigation system - Nimes, France. 3/ California system. - 25 - 4.09 On the other hand, the first 35 ha under localized irrigation faced some difficulties at the beginning, with the filter of the pumping system, but after the problem was corrected it has been operating normally and the plants are in good shape. Because localized irrigation was better adapted to the terrain of the Niger Valley, more manageable, and the related investment costs were not much higher than the Californian gravity system, the second 1981 por- tion of 105 ha including 12 ha of brackish soils that are planted with (Mela- leuca Leucadendron instead of Eucalyptus Camaldulensis) was established under localized irrigation. The implementation of the second portion did not face any difficulties and the plants are growing normally. 4.10 Due to these initial implementation difficulties with the irrigated tree plantation component and the short period of this pilot project, it is difficult to assess the economic and technical potential of the full scale irrigated tree plantations though preliminary indications are that the yields from the plantations would be quite high if properly managed. Besides, this component of irrigated tree plantations is of a fairly wide regional interest and would serve as a model for the whole of the Sahel, if successful, since it is the first of its kind in the region. Thus, in order to be able to fully assess the economic and technical benefits and costs of a technical package that potentially could be of considerable value to the Sahel 1/ the pilot irrigated tree plantations component set up under the project are to be managed and closely monitored under the follow up project, the Second Niger Forestry Project. (ii) State managed rainfed tree plantations 4.11 The project implemented 779 ha of pilot rainfed tree plantations (29% with Eucalyptus Camaldulensis and 71% with Neem, Azadarich Indica: see details in Table 5 in Annex) compared with the appraisal estimate of 700 ha. The rainfed tree plantations have remained in good shape and progress has, in general, followed expectations. A large part of the success has been due to the cooperation of the regional and district forestry services. Among the main problems have been the difficulty in finding good soils in the forest reserves on which to plant and thus growth of rainfed tree plantations in some depleted locations could be lower than expected. The main lesson from the rainfed plantations therefore is that proper soil conditions are crucial to successful plantation growth and the Second Forestry Project is therefore putting emphasis on selection of sites. It should be noted that all the rain- fed tree plantations have been fenced in order to avoid any browsing from wandering cattle and camels (fencing material can be reused later). 4.12 On the whole, initial plant growth is encouraging, given the harsh conditions prevailing in Niger, but it is too early to assess the final yields that would be obtained from these plantations. Therefore, as for the irri- gated tree plantations the Second Forestry Project will manage and closely monitor the rainfed tree plantations set up under the pilot project to assess 1/ Estimated production 15-20 m3 of dried wood/ha/year of which 70-80% firewood and 20-30% building poles. - 26 - the full potential (economic and technical) of this type of plantation. Nevertheless, given the relatively disappointing achievements of the technical packages currently available, a critical review of existing technical packages for arid and semi-arid zone forestry is needed in the near future. The Second Forestry Project would, inter alia, focus on this, in its research component. (iii) Assistance to Rural Forestry 4.13 The project provided equipment, vehicles fencing and nursery supplies (poles, barbed wire, tools, plastic bags ...) as well as part of the vehicle operating costs for forestry districts within the framework of their rural forestry activities (establishment of village/family based tree plantations, shelter belts, wind breaks, live fencing and sand dune stabilization). Addi- tionally, the project participated in the implementation of a medium scale state-managed rural nursery in Tahoua in buying the bottom land where the nursery was established. Through socio-economic studies and the efforts of the project in establishing these rural nurseries, a new appoach to rural afforestation has emerged, whereby tree growing efforts should be directed towards family or individual woodlot instead of the community woodlot system that has been done up the now (see para 2.16). (iv) Training in Forestry Extension Services 4.14 The project provided practical training courses for field staff at IPDR ("Institut Practique de D6veloppement Rural"/Practical Institute of Rural Development) at Kolo near Niamey. A total of 41 field staff attended the refresher courses (21 in April/May 1980 and 20 in April/May 1981) compared with an initial estimate of 50 trainees. The courses were intended to provide field staff in charge of rural forestry operations with basic technical infor- mation on forestry. Thus, the courses were largely based on field exercises and on the use of field level equipment and instruments. Additionally, train- ing focused on desertification control, reafforestation, national forest man- agement and improvement of inland fisheries to make the trainees more familiar with forestry and inland fisheries as part of rural development. Most of the trainees had never really been trained in forestry and fishery techniques before, and the training program provided them useful background technical information on forestry operations. This training will continue under the Second Forestry Project. (v) Assistance to Research 4.15 The project provided one vehicle some materials and operating costs to the forestry research division of INRAN. In 1980, the chief forestry re- searcher, appointed from CTFT through a FAC grant, had to leave for medical reasons and was not replaced due to difficulties between CTFT and INRAN man- agement. Consequently, the forestry research division of INRAN has had dif- ficulties following its program. Recent changes in INRAN's management have improved its performance and the French Government, through a FAC grant under the Second Forestry Project, would provide a new chief researcher to work under the project. - 27 - 4.16 Nevertheless, the forestry division of INRAN investigated,especially in rainfed tree plantation techniques, new species and provenances, spacing, cutting cycle, coppicing techniques, pollarding of Neem, and growth of Eucalyptus and other tree plantations under localized irrigation (see para. 4.07). (vi) Workshop Maintenance Unit 4.17 The project established and operated a machinery and vehicle workshop maintenance unit. The performance of the mechanic was modest given that it was difficult to appoint a capable one due to competition with private mining and civil work's firms. Under the second forestry project, the workshop unit will be strengthened and an internationally recruited workshop manager will be provided by FAC in the light of expanding project activities. Procurement 4.18 The PMU, which is particularly efficient in purchasing equipment and constructing offices, houses and workshops, did not have any difficulty in following the Bank's guidelines on procurement. The project unit asked for changes in the type of heavy duty equipment purchased (one bulldozer instead of one motorgrader) and irrigation equipment (equipment for localized irri- gation instead of gravity irrigation), but these did not affect project efficiency. Costs 4.19 Actual total costs in dollars amounted to US $ 5.3 million, that is 100% of the preparation estimates, but, due to the lower intervening years exchange rate for US$ and the lack of counterpart financing (see para. 4.24), actual costs in CFAF were, 4% lower than scheduled at appraisal, CFAF 1,241 million instead of CFAF 1,291 million. On the whole, this minor lack of funding did not affect the project too much. Given the physical achievements of the project, the actual costs - except for the irrigated tree plantations - were in line with the appraisal estimates. 4.20 Taking into account the reduction and the redesign of the irrigated tree plantation program (see para 4.07) the total actual costs, for the irri- gated tree plantation would have exceeded by 30% the appraisal estimates, if all the 400 ha planned had. been implemented. This cost overrun is due to the price increases brought on by the second energy crisis and difficulties in im- plementing the irrigation network (para 4.07). The actual investment costs per ha of irrigated tree plantations (including the first plantation works but excluding depreciation and supervisory costs averaged CFAF 1.7 million (CFAF 1.4 million under gravity; CFAF 1.9 million under localized irrigation com- pared with a preparation estimate of CFAF 1.3 million (including contingen- cies). Since the irrigated tree plantations are so young and are experimental in character, it is still difficult to get a clear picture of the maintenance costs. Nevertheless, given the first achievements, the direct maintenance costs per hectare of irrigated tree plantations (excluding depreciation and supervisory costs) would average more than CFAF 100,000, double the amount - 28 - estimated at appraisal (CFAF 50,000 including contingencies). This cost over- run is mainly due to excessive price increases for fuel and consequently pumping costs. To avoid any competition with rice and other bottom-land cul- tivation, the plantation sites were also selected on the lower terraces of the Niger Valley and therefore, the project has to pump over 15 meters to irrigate the plantations. Maintenance will be closely monitored with a view to reduc- ing these costs during the second forestry project. 4.21 The actual investment costs (excluding depreciation and supervisory costs) per ha for the rainfed tree plantations averaged CFAF 175,000 (ranging from 180,000 in the Niamey area to 130,000 in the Maradi area) compared with a preparation estimate of CFAF 172,000 (including contingencies). In 1981, in- vestment costs per ha were roughly distributed as follows, in percentages: Per Task Per Category of Expenditure Fencing 25 Inputs 25 Land Preparation 25 Labor 50 Seedlings 20 Vehicle & Machinery Operating Costs 25 Plantation 20 Weeding 10 100 100 Disbursement and Financial Sources 4.22 All the project funds financed by IDA (4.5 million US $) were dis- bursed as of June, 1982. Taking into account the 7 month delay in getting the project effective, IDA disbursements were satisfactory in comparison to the PR's estimates (see details in Basic Data Sheet). 4.23 The disbursement applications were correctly and timely issued and thus the revolving fund was replenished regularly. Moreover, in using the procedure 3 system (direct payments) as much as possible, the revolving fund worked very smoothly. 4.24 For counterpart funding, the project faced difficulties in getting funds on time and in full from the Government as scheduled at preparation (CFAF 189 million). Indeed, funds were not earmarked for PY1 (1979) apart from the initial emergency funding (Para 4.02) and so the project suffered from a permanent one year lag in Government funding and was never able to get all the counterpart FNI funds scheduled at appraisal. The rapid deterioration of the Nigerian economy and finance during the last 2 years of the project (falling uranium prices) was partly to blame for this situation. Nevertheless this lack of funding did not hamper the implementation of the project except - 29 - for the assistance to rural forestry component, whose implementation pace was slowed down in PY3. Actual counterpart funding through FNI and the national budget amounted to about CFAF 178 million, that is 94% of the appraisal esti- mate of CFAF 189 million (see details in tables 2 and 3 in Annex). Performance of Expatriates, Consultants, Contractors, Suppliers and Borrowers 4.25 Performance of the two expatriates (forestry specialist from CTFT and "G nie Rural" specialist from BELGROMA) who stayed three years with the pro- ject was satisfactory. The forestry specialist, who was the technical adviser to the project director was especially useful in setting up and monitoring the cost accounting system, although he was not a specialist in this matter. The "G nie Rural" specialist also performed very well in setting up and managing the pilot irrigated tree plantations component and was innovative in estab- lishing such a new way of tree planting. In addition to the two expatriates foreseen at appraisal, a Dutch volunteer was appointed in May 1982 as a field irrigation specialist. 4.26 There were no problems with consultants appointed by the project for (a) the inventory and evaluation of forestry works in Niger (1980); (b) the feasibility study of a possible second phase project (1981); and (c) rural forestry mini-nurseries - socio-economic aspects (1981). 4.27 There were no major problems with contractors and suppliers except with (a) the firm, in charge of providing equipment for the irrigation tree plantations (trucks delivering the irrigation equipment broken down in the Sahara) and (b) the firm, in charge of installing the pumping station of the 100 ha under gravity irrigation (see para 4.08). 4.28 The borrower's technical and managerial competence was satisfac- tory. This was mainly due to the efficiency and capability of the project director. Also, most of the forestry district chiefs concerned with executing some of the project activities were very anxious to participate in the project and thus performed pretty well, given the harsh conditions prevailing in Niger. ONAHA also provided good review and back-up for the irrigated tree plantation component. - 30 - V. FORESTRY IMPACT Production (See Table 8 in Annex) 5.01 As underlined in paras, 4.12 and 4.13 it is not yet possible to assess the full production potential of the tree plantations established under the project. However, a summary of initial production estimates are in Table 8 in the annex. For some pilot rainfed tree plantations, the actual production could be less than foreseen at appraisal because soils used were marginal and very much depleted (see para. 4.11). Thus, the Second Forestry Project would carefully choose planting sites (preliminary soil surveys) and investigate technical packages better adapted to marginal lands in arid and semi-arid zones. Protection and Environment 5.02 The project was beneficial to the environment but, due to the scat- tered and limited size of the various activities (except in the Niamey and Namarde Goungou areas), it would be very difficult to quantify and assess its environmental impact. Nevertheless, through its activities the project played a significant catalytic role and has led to an increased awareness of Govern- ment and the people on the subject of forestry and consequently, environment. Technological Changes 5.03 The main technical themes involved PLANTING neem and Eucalyptus on a relatively large scale in both the irrigated and rainfed plantations. These themes were applied correctly with modifications in the Irrigation System (para 4.07). The results are still unknown but it is expected that reasonable yields would be obtained especially on the irrigated perimeters if they are well maintained. It should be pointed out however that technical packages for the rainfed tree plantations are still not well adapted to the harsh condi- tions prevailing in the Sahel (only one rainfall peak and a very long dry season). A critical review of existing technical packages for arid and semi- arid forestry is therefore needed in the near future. Besides, through the studies and surveys conducted under the project, it is now clear that even sophisticated packages implemented through state-managed tree plantations will not be enough to meet the reafforestation needs of a country like Niger. The approach should therefore be a better concentration on rural forestry, and an increased and sustained participation of the rural population in reafforesta- tion. Packages would need to be developed which would integrate forestry into the agrosylvopastoral system of the rural people. A modest start would be made in the second forestry projects but available technical packages would still need to be improved. Rates of Return 5.04 Without taking into account indirect benefits, the preliminary rates of return of the quantifiable components of the project are: - 31 - 4.5% for the "industrial" irrigated tree plantation component 9% for the state managed rainfed tree plantation component; with an average ERR of about 6% for the two. These rates of return were calculated taking into account all the actual costs, converted into 1982 constant prices, involved in establishing the plantations and projected maintenance costs. The costs for the irrigated component therefore included the extra costs resulting from the initial difficulties encountered in its design and implementation (see para 4.03). - 32 - VI. INSTITUTIONAL PERFORMANCE AND DEVELOPMENT Institutional Design and Growth 6.01 Project performance, in terms of institutional design and growth was satisfactory. The Project Management Unit (PMU), set up under the project, was fully operational at a very early stage and proceeded timely and effi- ciently, due largely to the dynamism and capability of the project director (see para 4.26). Except for delays in counterpart financing (see para 4.24), Government was generally supportive of the project and did provide it with initial funding prior to credit effectiveness. This allowed, inter alia, the early constitution of the management unit and in spite of the lack of exper- ienced forestry officers, the team was promptly and properly staffed, housed and equipped within a short time period. One of the project's main objec- tives, creating a capacity for planning, management and monitoring (including setting up a valuable cost accounting system) within the forestry department, was virtually achieved. Moreover, the project was quickly able to get the forestry districts actively involved in the reafforestation process (see para 4.11) and so paved the way for an expanded rural forestry component under the second forestry project. Support Services 6.02 The project maintained good relations with departments, services, and agencies dealing with forestry and rural development. Through these good relationships, the project benefited from such support services as: (a) mapping of the irrigated tree plantation area and technical support from the "Genie Rural" Department; (b) soil survey of the irrigated tree plantation and technical support from the soil division of INRAN; (c) back up services and technical support from ONAHA in designing and implementing the irrigation network; (d) part-time back up from the ONAHA Accounting Division Chief in establishing and monitoring the project cost accounting system. Staff and Training Issues 6.03 Besides its specific "training in forestry extension services" for field staff (see para 4.14), the project provided, through its scattered pilot activities, on job training to forestry officers both at headquarters and in the forestry districts. Nevertheless, the lack of experienced forestry officers in the field of progressive and innovative forestry activities is still an issue. Government, keenly aware of this problem, has sent several Nigerien forestry officers to the USA and Europe to attend top level forestry courses and the skill situation should ease considerably on their return. - 33 - Accounting and Reporting 6.04 With the assistance of the expatriate technical adviser (see para 4.25) and the back up of the ONAHA accountant chief (see para 6.02), PMU set up a valuable cost accounting system. But the project cost accounting system did not allow detailed assessment of all the unit costs due to time and staff constraints and the fact that such a system was completely new to the Forestry Department. Despite these shortcomings, the annual audits of the project accounts found them to be satisfactorily kept. 6.05 The PMU was particularly aware of the Bank's reporting requirements and/consistently fulfilled these requirements (budgets/programs, half yearly and yearly progress reports, preparation for a second phase project, as well as supporting technical, financial and administration documents ...) satisfac- torily and on time (see details in Table 1 of Annex). 6.06 PMU has proved to be effective under the first project and has been maintained in order to implement the second project. In agreement with the Forestry Department, the forestry district chiefs will continue to act as re- presentatives of the project in their districts. PMU's viability and capacity to service and to be considered as a valuable "operating agency" of the forestry department is one of the best achievements of the projects. - 34 - VII. SPECIAL ISSUES Future of "Industrial" Irrigated Tree Plantations 7.01 The implementations of a full scale irrigated tree plantation system has shown the economic and technical difficulties that could arise with such projects. Consequently, there is a necessity to closely monitor these planta- tions during the next few years to assess what modifications are necessary in such future irrigation schemes. Nevertheless, without prejudging the results of this monitoring, it is already possible to assess that given the ever in- creasing prices for fuel, such projects would require cheap energy and/or location on bottom lands instead of terraces to make for easy irrigation and reduce pumping costs (see para 4.20). The implementation of the future Kendaji dam, if it is carried out, would allow eventually a more profitable irrigation of lower terraces in the Niger Valley and hence open the way for more large scale irrigated tree plantations. Meanwhile, then, unless cheaper means of pumping are found large scale irrigated tree plantations would be ex- pensive undertakings, and hence in the context of the second project another approach is being tried whereby small irrigated tree plantations would be established along the boundaries and on non-agricultural soils of existing agricultural irrigation schemes. This approach would have the effect of reducing both investment and operating costs by using the water that would otherwise have been lost through drainage and percolation. The trees would also protect the irrigated perimeters from sandstorms and excessive evapo- transpiration. However, this approach is physically limited because only about 5% of the irrigated agricultural areas can be developed this way. Future of State-managed Rainfed Tree Plantations 7.02 As underlined in para 4.11, the main lesson from the rainfed tree plantations is that, given the current available technical packages (see para 2.09), proper soil conditions are crucial to successful plantation growth. The second project would focus on selection of sites but it is difficult find- ing good soils in the narrow rainfed strip of the southern part of the country without being in close competition with farming land requirements. This could prevent any large scale state-managed rainfed tree plantations projects in Niger, if parallel to this, forestry research in the drought prone Sahel is not drastically improved (see paras. 2.08 and 5.03). Future of Rural Forestry 7.03 Given the variable and sometimes disappointing achievements in rural forestry, critical review of technical themes as well as a redefinition of objectives are needed to improve the offtake of rural forestry projects. Results from the studies done in the project demonstrate that the approach should be based on individual families rather than communities since the latter approach has not worked in the past (see para. 2.21). The individual family approach presents more flexibility and appropriately captures indivi- dual farmers' needs and preferences. Therefore, under the second forestry project a relatively large rural tree plantation component based on an exten- sive network of mini/micro family nurseries will be implemented. Moreover, - 35 - future rural forestry should include a comprehensive approach to integrate forestry, agriculture and pastoralism (Agro-Sylvo-Pastoralism). Such a com- plex approach will require a lot of research and coordination among herders, farmers and various government agencies before any practical development in the field. - 36 - VIII. LESSONS FROM THE PROJECT 8.01 The second forestry project reflects, in large part, the lessons learnt from the project and this follow up project has been designed to avoid problems underlined above and to take advantage of opportunities revealed in the course of the first project. Based on the lessons of the first project, the following activities would be undertaken in the second project. (a) temporary stoppage of large scale ("industrial") irrigated tree plantations and monitoring of plantations established under the first project while waiting for complementary data (see para. 7.01); (b) establishment of small irrigated tree plantations within the existing agricultural irrigated perimeters (see para. 7.01); (c) no establishment of rainfed tree plantations prior to careful selection of sites as to soil characteristics (see para 7.02). (d) implementation of a pilot natural forest management program; (see para. 2.15). (e) development of a new rural forestry approach (see para 7.03); (f) implementation and management of a pilot bushfire control program; (g) implementation of a pilot erosion control program; (h) establishment and management of pilot state-managed gum arabic plantations and protection of natural gum arabic stands; (i) investigation of better means of organizing the exploitation of forest resources; (j) studies into better uses of wood and especially use of improved wood stoves (see para 2.12); (k) research into more profitable forestry techniques and methods (see para 4.15); (1) establishment of a permanent training center for field staff and provision for training fellowships for forestry officers (see para 4.14 and 6.03); (m) improvement of PMU and its cost accounting system. - 37 - IX. BANK PERFORMANCE Project Justification and Objectives 9.01 The Bank's interpretation of the forestry subsector priorities and problems, as well a the resultant pilot and technical assistance project and credit conditions were appropriate. Project Content and Scheduling 9.02 Except for the pilot irrigated tree plantations component, which was perhaps too ambitious and not well adapted to the selected site and thus was reduced and redesigned, the other components were appropriate. Project Implementation and Operating Outcomes (i) Borrower's implementation capacity 9.03 The Bank underestimated the borrower's implementation capacity. This was mainly due to the efficiency and the capacity of the project director and consequently the satisfactory performances of PKU, which was fully operational at a very early stage. (ii) Scheduling of implementation of consultants and procurement 9.04 Bank's procurement procedures did not adversely affect in any way the project, because of the efficiency and capacity of the borrower and PMU. Because of the difficulties in implementing the irrigation network (para 4.07) the scheduling of implementation of civil works was delayed by one year. (iii) Special covenants and supplementary conditions 9.05 The borrower complied with credit conditions on the time and without any problems. (iv) Bank supervision 9.06 The scope and the schedule of supervision missions were adequate in view of the borrower's managerial and technical competence. Due to the tech- nical difficulties faced by the project in implementing the irrigation net- work, and its innovative nature the Bank decided to have the irrigated tree plantation component reviewed and supervised periodically and thoroughly by an IDA irrigation specialist. The supervision missions did contribute signifi- cantly to resolving most of the major problems which arose during project im- plementation. (v) Working relationship 9.07 The working relationship between the Bank and the borrower was good, especially with PMU. The Bank was very effective in helping PMU and the - 38 - forestry department in its' dealings with the Government. The Bank's report- ing requirements seemed reasonable to PMU, which did not hesitate to provide numerous complementary and supporting documents. Implications 9.08 In terms of evolving Bank policy in regard to forestry in Niger the general issues raised by the project experience have suggested a need for more in depth surveys and studies combined with activities of a still pilot and experimental nature to test different technical packages and forestry pro- grams. Thus the follow-up project expands on the activities of this project and try new ones to improve these technical packages available to the country. - 39 - X. CONCLUSIONS 10.01 On the whole, given the status of the forestry subsector before the project, the achievements of the First Forestry Project are promising. In- deed, Government and the people are more and more involved in forestry acti- vities because of this pilot and technical assistance project. Emphasis was put on improvement of the training, planning, managerial and operational capa- bilities of the forestry institutions and this has been successful. Further- more, the project prepared Niger for a better development of its forestry activities. Nevertheless, it should not be forgotten that, as a result of the exponential population growth, the expansion of wood consumption as well as farming and grazing areas, the disruption of the fragile Niger forest cover remains formidable. So it is crucial for the country to focus on the protec- tion and development of the forest cover through new and innovative forestry methods and techniques as well as new approaches in forestry development (in- cluding interalia better uses of wood, and uses of substitutes). - 40 - Table 1 Main Notes, Reports and Documents Issued Under the Project 1. Minutes of the project meetings (No. 1-15) 2. 1979 budget/program (March 1979) 3. Project co-financing distribution (April 1979) 4. Progress report as of June 30, 1979 (August 1979) 5. Report on the 1979 plantation campaign (December 1979) 6. Analytic accounting system (December 1979) 7. 1980 budget/program (February 1980) 8. 1979 annual report (April 1980) 9. Soil survey of Namarde Goungou I (INRAN - May 1980) 10. 1979 soil accounts and main costs (June 1980) 11. Inventory and evaluation of forestry works in Niger (Tucker - June 1980) 12. 1979 audit (FIPEC/PAJOR - August 1980) 13. Comparative study of two systems of irrigation (ONAHA - November 1980) 14. Training in Kolo - first session of refresher courses (December 1980) 15. Report on the 1980 plantation campaign (December 1980) 16. 1981 budget/program (December 1980) 17. Preparation report on a possible second phase (4 volumes --FAO/IBRD/CP- CTFT, January 1981) 18. Trial on chemical treatment of Eucalyptus poles (January 1981) 19. Rural forestry mini-nurseries - socio-economic survey (Keita - April 1981) 20. 1980 annual report (June 1981) 21. Training in Kolo - second session of refresher courses (July 1981) 22. Soil survey of Namarde-Goungou II (INRAN July 1981) 23. 1980 audit (FIPEC/PAJOR - August 1981) 24. Investigation into growth of Eucalyptus camaldulensis in Niger (August 1981) 25. Report on the 1981 plantation campaign (December 1981) 26. 1981 progress and pre-completion report (March 1982) 27. 1981 audit (FEPEC/PAJOR - June 1982) 28. Maps of the Namarde-Goungou area (Topo GR - 1979/1980) 29. IDA Supervision & Review Reports 30. Specific IDA completion report on irrigated tree plantations (GILLY - March 1982) - 41 - Table 2 Project Cost and Financing Per Component (in million CFAF) (Source final FIPEC audit - June 1981) Appraisal Estimate Actual Actual Total Total Total as % of Apppraisal Component Estimate Total 1. Irrigated tree Plantations 764 59 594 48 78 2. Rainfed tree plantations 201 16 174 14 87 3. Assistance to Rural forestry 106 8 75 6 71 4. Workshop maintenance Unit 46 4 11 1 24 5. Training in extension services 18 1 11 1 61 6. Assistance to research 25 2 12 1 48 7. Planning management and monitoring unit 132 10 364 29 276 1,292 100 1,241 100 96 Financing IDA 1,103.L/ 1,063 2/ 96 3/ Niger 189 178 94 1/ Equivalent to US $4.5 million at preparation (US $1 = CFAF 245.00) 2/ US$ disbursed: 4.5 million (US$1 = CFAF 236 intervening years average). 3/ In regard to US$ disbursed % is 100% instead of 96%. - 42 - Table 3 Project Cost Per Category of Expenditure (in million CFAF) (Source Final FIPEC audit - June 1982) 04 23 82 Appraisal Estimate Actual Actual Total Total Total as % of Apppraisal Category Estimate Total 1. Civil Works 543 42 552 44 102 2. Machinery & vehicles 158 12 130 11 82 3. Inputs 107 8 116 9 108 4. Nigerien salaries 116 9 110 9 95 5. Expatriate salaries 166 13 148 12 89 6. Machinery & vehicle operating costs 157 12 127 10 81 7. Other Operating Costs 45 4 58 5 129 1,292 100 2,241 100 96 Financing IDA 1,103 1,063 96 Niger 189 178 94 100% Civil Servants Salaries 26 21 81 100% Support Staff Salaries 90 89 99 8% Vehicle and Machinery Operating Costs 12 10 83 100% Other Operating Costs 45 58 129 Unallocated 16 - - - 43 - Table 4 Page 1 Project Organization & Objectives Appraisal Actual Project Objectives or Focus -- Establishment and management of irrigated tree plantations (ha) 400 240 -- Establishment and management of rainfed tree plantations (ha) 700 779 -- Assistance to rural forestry Truck (unit) 3 1 FWD vehicle (unit) 4 7 Vehicle Operating costs and Nursery and fencing supplies ('000 US$) 290 235 -- Assistance to research Vehicle 1 1 Operating Costs ('000 US) 51 45 Training (number of trainees) 50 41 Workshop maintenance unit (garage) 1 1 (135 m 2) Project management and monitoring Unit Office (Niamey) 1 1 (271 m2) Housing (Niame3r) 1/ 1 1 (191 mi3) Consultant & Support Services (months) 12 12 1/ in addition a small home/warehouse/ garage was built at SIKYE close to the irrigated area of Namarde Goungou. - 44 - Table 4 Page 2 Project Organization and Performance Project Unit (establishment and Operation) good Liaison/coordination with the existing forestery department and districts excellent Liaison/coordination with the other departments and agencies concerned by the project ("Genie Rural, INRAN, ONAHA....) good Collection of data and setting up of a cost accounting system good Order and supply of inputs and equipment good Institution building Involvement of forestry districts excellent Assistance to rural forestry good Assistance to research adequate On-job training good Training in extension services adequate - 45 - Table 4 Page 3 Consultants Use and Performance Identification (FAO/IBRD/CP) good Preparation/appraisal (FAO/IBRD/CP - IDA) good Project director (Nigerien forestry officer) excellent Project executives (Nigerien forestry officers) good Project advisers (Expatriates) good Special studies Mapping of the irrigated tree plantation area (Namarde Goungou) Niger-G6nie Rural department good Soil surveys of the irrigated tree plantation area (Namarde Goungou) Niger-INRAN good Inventory and evaluation of forestry works in Niger (PMU and G. Tucker) good Mini-nurseries in Niger Socio-economic aspects (M. Keita) good Preparation of a possible second forestry project (PMU, FAO/IBRD/CP 8: CTFT) good Research Miscellaneous Notes and documents, especially on Eucalyptus. good Key Indicators (Tree Plantation Establishment) PYl PY2 PY3 Calendar Year 1979 1980 1981 Total Estimate Actual Estimate Actual Estimate Actual Estimate Actual Actual as % of esti- mate Irrigated tree plantation Total 200 - 200 135 - 105 400 240 60 Under gravity 200 - 200 100 - - 400 100 Under localized irrigation - - - 35 - 105 - 140 Rainfed tree plantation Total 300 264 400 359 - 156 700 779 111 Location Niamey (Niamey) 169 181 60 410 Maradi (Maradi) 45 55 36 136 Birni N-Konni (Tahoua) - 60 30 90 Matameye (Zinder) 50 63 - 113 Kantche (Zinder) - - 30 30 Species Eucalyptus 24% 33% 32% 29% Azadarichta (Neem) uk & Misc. 76% 67% 68% )71% - 47 - Table 6 Prices Financial Price (Wholesale price) Fuelwood 10 - 35 CFAF/kg Building poles 500 - 2750 CFAF/pole Economic Prices (Roadside price) Fuelwood 1982 CFAF 16 kg Building pole 1982 CFAF 1600/pole - 48 - Project Incremental Wood Production-1 Table 7 (in m--) State-Managed 2/ State-Managed Rainfed Tree Plantations - Irrigated Tree Plantations - 1 (264 ha) - - - - 2 - (359 ha) - (135 ha) - 3 - - (156 ha) - - 4 - - - - - 5 - - - 8,100 - 6 - - - - 6,300 7 3,960 - - - - 8 - 5,385 - 8,100 - 9 - - 2,340 - 6,300 10 - - - - - 11 - - - 8,100 - 12 - - - - 6,300 13 3,960 - - - - 14 - 5,385 - 8,100 - 15 - - 2,340 Replanting 6,300 16 - - - Replanting 17 - - - 18 - - - 19 3,960 - - 20 Replanting 5,385 - 21 Replanting 2,340 22 Replanting 11,880 16,155 7,020 32,400 25,200 35,055 57,600 92,655 1/ Estimated production per ha: Rainfed Y6/7-15 m3; Y12/13-15m3; Y18/19-15m3 Irrigated Y3/4-60m3; Y6/7-60m3; Y9/10-60m3; Y12/13-60m3 2/ Of which building poles 20%; fuelwood 80%. 3/ Of which building poles 30%; fuelwood 70%. NIGER Pilot and Technical Assistance Forestry Project (Cr. 800-NIR) Completion Report Irrigated Tree Plantations - Economic Analysis 1982 Prices (million CFAF) 1979 1960 1981 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 Benefits: Irrigated tree plantation area (245 ha) - 135 105 - - - - - Volume of production m3 /1 - - - - 8100 6300 - 8100 6300 - 8100 6300 - 8100 6300 CFAF/m3 /2 18878 19860 20892 21979 2512 24324 2m5; 26g9 28319 29792 31341 31341 Value of production million CFAF - - - - 160.9 131.6 - 187. 1b32 - 218.0 178.4 - 253.9 197_4 Salvage value (irrigated perimeter) - - - - - - - - - - - - - - 200.0 Costs: Buildings 5.0 - - - - - - - - - - - - - Machinery 50.0 - - - - - - - - - - - - - Heavy vehicles 15.0 - - - - - - - - - - - - - - Light vehicles 5.0 - - - - - - - - - - - - - Direct costs 30.0 210.0 210.0 28.0 28.0 26.0 101.2 107.3 28.0 28.0 42.6 28.0 28.0 12.0 - 6.8 5.3 - 6.8 5.3 - 6.6 5.3 - 6.8 5.3 Miscellaneous 1.0 2.0 2.0 - - - - - - - - - - - - Expatriate salary 20.0 20.0 20.0 - - - - - - - - - - - - 126.0 232.0 232.0 28.0 34.6 33.3 101.2 114.1 33.3 28.0 49.4 33.3 26.0 18.8 5.3 Indirect costs /5 35.0 35.0 35.0 2.8 3.5 3.3 10.1 11.4 3.3 2.8 4.9 3.3 2.8 1.9 0.5 TOTAL COSTS 161.0 T2 8 30.8 20.7 5.8 Inflation index 90.5 99.6 96.2 100 Cost 1982 prices 177.9 268.1 277.5 1/ 60 m3 per ha Y3/4; Y6/7, Y9/10; Y12/13. 2/ (Fuelwood: CFAF 16/kg x 720 kg x 0.70) + (Poles: CFAF 1,600/pole x 24 poles x 0.30) = CFAF 18,878 roadside in 1982 + 5.2% per year over 10 years as increase in real terms. 3/ Maintenance and replacement (see Gilly's report). 4/ Cutting CFAF 1,000 per M3. 5/ 30% of total indirect project costs from PY1 to PY3 (including all components); 10% of direct costs of the irrigated tree plantations component from PY4; PY1 to PY3 costs included part of salary of the expatriate technical assistant. NIGER Pilot and Technical Assistance Forestry Project (Credit 800-NR) State-managed tainted tree plantations - Economic Analysis 1982 Prices (million CFAF) 1979 1980 1981 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 l8 19 20 21 Bsenefits: Rainfed Tree Plantation Area (779 ha) 2b4 359 156 - - - - - - - - - - - - - - - . Volume of production m /1 - - - - - - 3960 5385 2340 - - - 3960 5385 2340 - - - 3960 5385 2340 CFAF/m /2 - - - 16896 17775 18699 19671 20694 21770 22902 24093 25346 26664 26061 28051 26051 28051 28051 28051 26051 28051 Value of production million CFAF - - - - - - 77 111.4 50.9 - - - 105.6 151.1 65.6 - - - 111.1 151.1 65 Salvage value (equipment) - - - pm - - - - . - - - . Costs: Buildings (see indirect costs) - - Machinery 15.0 - - Heavy vehicles 5.0 - - Light vehicles 5.0 - - Direct coac 35.0 60.0 55.0 5.2 2.2 0.8 0.8 0.8 0.8 0,8 0.6 0.8 0.8 0.8 0.8 0.8 0.8 0.8 5.1 1.6 - 4.0 5.4 2.3 - - - 4.0 5.4 2. - - 4.0 5.4 2.3 Miscellaneous pm pm pm - - - - - - Expatriate (see indirect costs) Ds - 60.03 60.0 55.0 5.2 2.2 0-9 4.8 732 3.1 0.6- 5.8 0.6 4.8 73 51 06 7 0. 91 70 23 indirect costs 5.. 0 0 . 2.0 2.0 1.0 1.0 1.0 1. 1.0 1,0 1.0 1.0 1.0 1.0 1.0 1.0 1.0 1.0 1.0 1.0 Total Costs Inflation Index 90.5 99.6 96.2 100 Cost 1982 Prices 1 5 93, 1/ 15 m per ha Y6/7, Y12/13, Y18/19. 2/ (Fueiwood: CFAF 16/kg x 720 kg x 0.80) + (Poles. CFAF l,600/pole x 24 poles x 0,20) - CFAF 16,896/roadside in 1982 + 5.2% per year over 10 years as increase in real terms. 3/ Maintenance CFAF 10,000 per ha Y2 and Y5; CFAF 1,000 per be Y3. 4/ Cutting CFAF 1,000 per m3. 5/ 30% of total indirect project costs from Pyl to PY3 (including all components). CFAF 2 million PY4 and PY5. CFAF 1 million from PY6. BRD 16839(PCR 2 4 DECEMBER 1982 N [ G E R L I B Y A FIRST FORESTRY PROJECT(Ciredit800NIR) COMPLETION REPORT (1979-1981) -22. P 22os d0sMenmorong Un Iomaed Tee Ploanaoons ' o AssssoneA to Rose Foresy -6 Tr-~9n Act-vtie As0 sistansce to Forsssy Reséosch Founa Reserves VEGETATION ZONES ACCORDING TO IUCN, 1979 20 Soharion Zone DESERT DUNE WITH3UT '.EGET-TEON DEERT DUNES W- VEGTATION R, VE TO O F REG0 , HAMADA5 AN7 00DIS SaeinZone ~1 . ~VI uwŸr >vs ~ s ~L G-~D____ (S( ~ - Sodos1an Zoneo \ | UNDFFERENTLATED 5UDAN~A W ~OAND -h yers, n m,l re per year @ Department Copisals - - Deparrsmentr Boundoses* - f-Inesrn,onaoL Boondar.es > KilME2R ()A DEZ _ _ 'oo 1/ ~LES A L I 2 CC -009[CO Gx <14 [f] A , O Z[DER RET cASSF MARADI U L\R Dov 4¯ 00TlC V O TAETA1TION U P P E R PsALGER , AUR-TNIA V C) L T Acc PARcC N I G E RNGE 12- G A ITo HAE R MAD' TO 11 E-.ECTU CHAD B E N N e ' os 5° 10° åtERvA oseo0.io ___ 04700 EDD 0008>0 01EP 0e5