Document of The World Bank Report No: ICR2223 IMPLEMENTATION COMPLETION AND RESULTS REPORT (IDA-H2070 TF-56544) ON A GRANT IN THE AMOUNT OF SDR 17.30 MILLION ($25.00 MILLION EQUIVALENT) AND A GLOBAL ENVIRONMENTAL FACILITY GRANT IN THE AMOUNT OF $10.0 MILLION TO THE REPUBLIC OF CAMEROON FOR A FOREST AND ENVIRONMENT DEVELOPMENT PROGRAM Environment and Natural Resources Management Unit Sustainable Development Department Africa Region CURRENCY EQUIVALENTS (Exchange Rate Effective January 31, 2006) Currency Unit = CFA Franc 539 CFA francs = US$1 FISCAL YEAR January 1 – December 31 ABBREVIATIONS AND ACRONYMS ANAFOR National Forest Agency (formerly ONADEF) BEAC Banque des Etats d’Afrique Centrale (Central Bank of the Central African States) CAS country assistance strategy CIDA Canadian International Development Agency Comité chargé de la mise en œuvre de la revue institutionnelle, de la coordination et du COMREM pilotage du PSFE DFID Department for International Development (U.K.) DPL Development Program Loan DPO Development Program Operation EIA Environmental Impact Assessment EMP Environmental Impact Mitigation Plan EU European Union FEDPG Forest and Environment Development Policy Grant FEICOM Cameroon Fund for Community Development FESP Forest and Environment Sector Program FLEGT Forest Law Enforcement, Governance, and Trade (initiative) FMP forest management plan GEF Global Environment Facility GIZ Gesellschaft für Internationale Zusammenarbeit (German development agency) HIPC Heavily Indebted Poor Countries IDA International Development Association ISR Implementation Support and Results KfW German International Development Bank MES management effectiveness score MINATD Ministry of Territorial Administration and Decentralization MINEF Ministry of Environment and Forests MINFI Ministry of Economy and Finance MINEP Ministry of Environment and Nature Protection MINEPAT Ministry of the Economy, Planning, and Regional Government MINFOF Ministry of Forests and Wildlife MINIMIDT Ministry of Industry, Mines, and Technology Development OED Operations Evaluation Department (World Bank) ONADEF National Office for the Development of Forests (now ANAFOR) OPCS Operations Policy and Country Services PRSP Poverty Reduction Strategy Program QAG Quality Assessment Group (World Bank) RFA redevance forestière annuelle (annual area-based forest fee) SAC Structural Adjustment Credit SIGEFI systeme de gestion financiere (financial management system) SIL Specific Investment Loan TTL task team leader UFA unité forestière d’aménagement (forest management unit) unité technique opérationelle (technical operational unit comprising a forest concession and UTO adjacent park) WWF World Wide Fund for Nature ZIC zone d’intérêt cynégétique (private game reserves) ZICGC zone d’intérêt cynégétique à gestion communautaire (community-managed game reserves) Vice President: Makhtar Diop Country Director: Gregor Binkert Sector Manager: Idah Z. Pswarayi-Riddihough Project Team Leader: Ananie Cyrille Ekoumou ICR Team Leaders: Ananie Cyrille Ekoumou/Salimata D. Folléa Republic of Cameroon Forest and Environment Development Program CONTENTS Data Sheet A. Basic Information ........................................................................................................ i B. Key Dates .................................................................................................................... i C. Ratings Summary ........................................................................................................ i D. Sector and Theme Codes ............................................................................................ ii E. Bank Staff .................................................................................................................. iii F. Results Framework Analysis ..................................................................................... iii G. Ratings of Project Performance in ISRs .................................................................... vi H. Restructuring (If Any) ............................................................................................... vi 1. Project Context, Development and Environmental Objectives, and Design .............. 1 2. Key Factors Affecting Implementation and Outcomes ............................................... 6 3. Assessment of Outcomes .......................................................................................... 16 4. Assessment of Risk to Development Outcomes ....................................................... 25 5. Assessment of Bank and Borrower Performance...................................................... 26 6. Lessons Learned ........................................................................................................ 31 7. Comments on Issues Raised by Borrower/Implementing Agencies/Partners ........... 34 Annex 1. Bank Lending and Implementation Support/Supervision Processes ............. 35 Annex 2. Beneficiary/Stakeholders Survey Results...................................................... 36 Annex 3. Summary of Borrower’s ICR and/or Comments on Draft ICR ..................... 38 Annex 4. Comments of Cofinanciers and Other Partners/Stakeholders ....................... 40 Annex 5. List of Supporting Documents....................................................................... 41 MAP .............................................................................................................................. 43 A. Basic Information Forest and Environment Country: Cameroon Project Name: Development Program Project ID: P070656, P073020 L/C/TF Number(s): IDA-H2070,TF-56544 ICR Date: 02/08/2012 ICR Type: Core ICR Lending Instrument: DPL, SAD Borrower: GOV’T OF CAMEROON Original Total Commitment: XDR 17.3M, $10.0M Disbursed Amount: XDR 6.77M, $3.8M Environmental Category: B Focal Area: B Implementing Agencies: Ministry of Environment & Nature Protection Ministry of Economy and Finance Cofinanciers and Other External Partners: B. Key Dates Forest and Environment Development Program - P070656 Process Date Process Original Date Revised / Actual Date(s) Concept Review: 02/24/2000 Effectiveness: 08/30/2006 09/18/2006 Appraisal: 05/10/2004 Restructuring(s): Mid-term Approval: 02/28/2006 07/13/2009 10/14/2008 Review: Closing: 12/31/2009 10/11/2011 Cameroon Forest and Environment Sector Program (FESP) - P073020 Process Date Process Original Date Revised / Actual Date(s) Concept Review: 02/24/2000 Effectiveness: 08/30/2006 09/18/2006 Appraisal: 05/10/2004 Restructuring(s): Mid-term Approval: 02/28/2006 07/13/2009 10/14/2008 Review: Closing: 12/31/2009 10/11/2011 C. Ratings Summary C.1 Performance Rating by ICR Outcomes Unsatisfactory GEO Outcomes Unsatisfactory Risk to Development Outcome Substantial Risk to GEO Outcome Substantial Bank Performance Moderately Unsatisfactory Borrower Performance Moderately Unsatisfactory C.2 Detailed Ratings of Bank and Borrower Performance (by ICR) Bank Ratings Borrower Ratings Quality at Entry Unsatisfactory Government: Moderately Unsatisfactory Quality of Supervision: Moderately Implementing Moderately Unsatisfactory i Unsatisfactory Agency/Agencies: Moderately Overall Borrower Overall Bank Performance Moderately Unsatisfactory Unsatisfactory Performance C.3 Quality at Entry and Implementation Performance Indicators Forest and Environment Development Program - P070656 QAG Assessments Implementation Performance Indicators Rating: (if any) Potential Problem Project at Quality at Entry Yes None any time (Yes/No): (QEA) Problem Project at any time Quality of Yes None (Yes/No): Supervision (QSA) DO Rating before Unsatisfactory Closing/Inactive status Cameroon Forest and Environment Sector Program (FESP) - P073020 QAG Assessments Implementation Performance Indicators Rating: (if any) Potential Problem Project at Quality at Entry Yes None Any Time (Yes/No): (QEA) Problem Project at Any Time Quality of Yes None (Yes/No): Supervision (QSA) GEO Rating before Unsatisfactory Closing/Inactive Status D. Sector and Theme Codes Forest and Environment Development Program - P070656 Original Actual Sector Code (as % of total Bank financing) Central government administration 25 25 Forestry 36 36 General agriculture, fishing and forestry sector 32 32 Law and justice 2 2 Subnational government administration 5 5 Theme Code (as % of total Bank financing) Administrative and civil service reform 14 14 Biodiversity 14 14 Environmental policies and institutions 29 29 Other environment and natural resources management 29 29 Other rural development 14 14 Cameroon Forest and Environment Sector Program (FESP) - P073020 Original Actual Sector Code (as % of total Bank financing) Forestry 35 35 General agriculture, fishing and forestry sector 32 32 ii General public administration sector 33 33 Theme Code (as % of total Bank financing) Biodiversity 100 100 E. Bank Staff Forest and Environment Development Program - P070656 Positions At ICR At Approval Vice President: Makhtar Diop Gobind T. Nankani Country Director: Gregor Binkert Ali Mahmoud Khadr Sector Manager: Idah Z. Pswarayi-Riddihough Joseph Baah-Dwomoh Ananie Cyrille Ekoumou Project Team Leader: Giuseppe Topa Abanda Ananie Cyrille Ekoumou ICR Team Leaders: Abanda/Salimata Diallo Folléa Salimata Diallo Folléa/Francois ICR Primary Authors: Wencelius/Julien Vallet (FAO) Cameroon Forest and Environment Sector Program (FESP) - P073020 Positions At ICR At Approval Vice President: Makhtar Diop Gobind T. Nankani Country Director: Gregor Binkert Ali Mahmoud Khadr Sector Manager: Idah Z. Pswarayi-Riddihough Joseph Baah-Dwomoh Ananie Cyrille Ekoumou Project Team Leader: Giuseppe Topa Abanda Ananie Cyrille Ekoumou ICR Team Leaders: Abanda/Salimata Diallo Folléa Salimata Diallo Folléa/Francois ICR Primary Author: Wencelius/Julien Vallet (FAO) F. Results Framework Analysis Project Development Objectives (PDOs) and Global Environment Objectives (GEOs), from Project Appraisal Document The Development Objective and Global Environment Objective of the proposed Forest and Environment Policy Development Grant (FEDPG) are to strengthen public and private efforts to achieve socially-, economically-, and ecologically-sustainable use of national forest and wildlife resources. Revised PDOs/GEOs (as approved by original approving authority): n/a iii (a) PDO Indicator(s) Original Formally Target Values Revised Actual Value Achieved at Indicator Baseline Value (from Target Completion or Target Years Approval Values Documents) Indicator 1: Increase percentage of production forests under a forest management plan. Value (quantitative or 66 100 90 qualitative) Date achieved 03/01/2005 12/31/2009 12/31/2011 Comments Largely achieved. 83 of 92 assigned long-term forest management units (UFAs) (incl. % achievement) have a management plan. Prevent additional kilometers of illegal roads built in all parks and forest Indicator 2: management units. Value (quantitative or 1,024 km 1,024 km 1,024km N/A qualitative) Date achieved 12/30/2004 09/30/2011 Comments Not possible to determine. Not possible to quantify the level of achievement (incl. % achievement) because the value achieved could not be documented at the time of the ICR Indicator 3: Forest management units (UFAs) with reviewed management plan (%) Value (quantitative or 66 100 100 100 qualitative) Date achieved 12/31/2005 12/31/2011 Comments Fully achieved. All UFAs have reviewed their management plans. (incl. % achievement) Indicator 4: Forest management units (UFAs) with signed final concession agreements (%) Value (quantitative or 0 100 33 qualitative) Date achieved 01/31/2005 12/31/2011 12/31/2011 Comments Partially achieved. 20 UFAs out of 65 have final concession agreements. Indicator 5: Communal forest with reviewed management plan and gazette decree (%) Value (quantitative or 0 100 26 qualitative) Date achieved 01/31/2005 12/31/2011 12/31/2011 Comments Achieved 26% (incl. % achievement) Indicator 6: Communal forest with gazette decree 12 communal forests with Value (quantitative or 0 10 12 gazette decree already signed, qualitative) and another 28 in preparation. Date achieved 05/01/2005 12/31/2011 12/27/2011 (incl. % achievement) Target exceeded (120%) iv Indicator 7: Communal forest with approved management plan 6 council forests with approved Value (quantitative or management plans. 7 with 0 10 6 qualitative) management plans in preparation. Date achieved 05/01/2005 12/31/2011 12/31/2011 Comments Partially achieved (60%). (incl. % achievement) (b) GEO Indicator(s) Original Formally Target Values Revised Actual Value Achieved at Indicator Baseline Value (from Target Completion or Target Years Approval Values Documents) Increase of average protected area management effectiveness score (MES) from 28 to Indicator 1: 50+ for 8 key protected areas existing in 2005. 2 UTO: MES <20 2 UTO: 2055 qualitative) 3 UTO: 0