Document of The World Bank FOR OFFICIAL USE ONLY Report No: 24900 IMPLEMENTATION COMPLETION REPORT (TF-26389; CPL-35060; SCL-3506A; SCPD-3506S) ON A LOAN IN THE AMOUNT OF US$ 22.5 MILLION TO THE REPUBLIC OF GABON FOR A FORESTRY AND ENVIRONMENT PROJECT December II, 2002 'ti:_l^t>t8 \7 Environment and Social Development Unitt AFC07 Africa Region This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization. CURRENCY EQUIVALENTS (Exchange Rate Effective September 23, 1993 - March 20, 200 1) Currency Urdt = CFA Francs BEAC (XAF) XAF 1.00 = USS 0.00343 (before devaluation, Jan. 12, 1994) USS 0.00171 (afterdevaluation,Jan. 12,1994) USS 1.00 = XAF 291.206 (before devaluation, Jan. 12,1994) XAF 584.655 (after devaluation, Jan. 12. 1994) FISCAL YEAR January I -December 31 ABBREVIATIONS AND ACRONYMS' ADIE: Association pour le Developpement de l'Infommation Environnementale (Association for the Development of Environmental Information) AFD: Agence Frangaise de D6veloppement (French Development Bank) CCP: Cellule de Coordination du Projet CENAREST: Centre National de Recherchc Scientifique et Technologique (National Center for Scientific and Technological Research) CFAD: Concession Forestibre snus Amenagement Durable (Forest Concession under Sustainable Management) CPSE: Cellule de Planification, Suivi et Evaluabon du Ministere (Planning, Monitoring and Evaluation Unit) DAO: Dossier d'Appel d'Offres (Procurement document) DFC: Direction de la Faune et de la Chasse (Department of Fauna and Hunting) DGE: Direction G6n6rale de l'Environnement (Department of Environment) DGEF: Direction G6n6rale des Eaux et Forets (Department of Forests and Water) DGENEF: Direction G6nerale de l'&ole Natonale des Eaux et Forets (National School for Forests and Water Department) DGPA: Direction Generale de la Peche et de I'Aquaculture (Department of Fishing and Aquaculture) DIARF: Direction des Inventaires, des Amenagements et de la Regen6ration des Forets (Department of Forest Inventories, Management Plans and Regeneration) EA: Evaluation environnementale (Environmental Assessment) EEC: European Economic Commission EIE: Etude d'irnpact environnemental (Environmental Impact Assessment) ENEF: Ecole Nationale des Eaux et Forets (National School for Forests and Water) GOG: Govemment of Gabon GTZ: Gemman Technical Cooperation INC: Institut National de Cartographic (National Institute of Cartography) 1RAF: Institut de Recherche Agronomique et Forestibre (Research Institute in Forestry and Agronomy) IRET: Institut de Recherche en Ecologie Tropicale (Research Institute in Tropical Ecology) ITTO: Intemational Tropical Timber Organization OIBT: Organisation Intemationale du Bois Tropical (Intemational Organization for Tropical Wood) ONG: Organisation non gouvemementale (Non Goveimnental Organization) PAFN: Plan d'action forestier national (National Forestry Action Plan) PFA: Permis Forestier Associe (Associated Forest Permit) PFE: Projet Forets et Environnement (Forestry and Enviromment Project) NEAP: National Environmental Action Plan (Plan National d'Action Environnementale (PNAE) QER: Quality Enhancement Review QSR: Quality Supervision of Risky Projects REIMP: Regional Environmental Inforrnation Management Project (Projet Regional de Gestion de l'information Environnementale (REIMP) SEPBG: Soci6tt d'Exploitation des Pares a Bois du Gabon (Company for the Management of Timber Depots) SIGEF: Systeme d'lnformation et de Gestion Forestier (Forestry Information and Management System) SNBG: Societe Nationale des Bois du Gabon (National Company for Gabonese Timber) SNPA_BD: Strat6gie Nationale et Plan d'Action pour la Conservation de la Diversit6 Biologique (National Strategy and Action Plan for Biological Biodiversity) SPSE: Systeme de, Planification et de Suivi-Evaluation (Planning, Monitoring and Evaluation System) SYNFOGA: - Syndicat des Forestiers du Gabon (Union of the forestry sector's private operators) UNDP: United Nations Development Program WWF: World Wildlife Fund Vice President: Callisto Madavo Country Manager/Director Ali Khadr Sector Manager/Director: Richard Scobey Task Team Leader/Task Manager: FranVois Rantrua GABON Projet Foret et Envlronnement CONTENTS Page No. 1. Project Data I 2. Principal Performance Ratings I 3. Assessment of Development Objective and Design, and of Quality at Entry 2 4. Achievement of Objective and Outputs 7 5. Major Factors Affecting Implementation and Outcome I1 6. Sustainability 14 7. Bank and Borrower Performance 16 8. Lessons Learned 19 9. Partner Comments 21 10. Additional Information 22 Annex 1. Key Performance Indicators/Log Frame Matrix 23 Annex 2. Project Costs and Financing 27 Annex 3. Economic Costs and Benefits 29 Annex 4. Bank Inputs 30 Annex 5. Ratings for Achievement of Objectives/Outputs of Components 33 Annex 6. Ratings of Bank and Borrower Performance 34 Annex 7. List of Supporting Documents 35 MAP NO. IBRD 23575 I Project ID: P000786 Project Name: Projet Foret et Environnement Team Leader: Francois Rantrua TL Unit: AFTES ICR Type: Core ICR Report Date: December 11, 2002 1. Project Data Name: Projet Foret et Environnement LIC/TFNumber: TF-26389; CPL-35060; SCL-3506A; SCPD-3506S Country/Department: GABON Region: Africa Regional Office Sector/subsector: Central govermnent adminristration (63%); Forestry (30%); Agricultural extension and research (7%) KEY DATES Original Revised/Actual PCD: 03/30/1988 Effective: 09/23/1993 09/23/1993 Appraisal: 11/18/1991 MTR: 07/26/1996 03/01/1997 Approval: 07/02/1992 Closing: 06/30/1998 06/30/2002 Borrower/lImplementing Agency: GOVERNMENT/ MINISTRY OF FOREST AND ENVIRONMENT; GOVERNMENT/PROJECT COORDINATION UNIT AND INVOLVED DEPARTMENTS OF THE MINISTRY Other Partners: STAFF Current At Appraisal Vice President: Callisto Madavo Edward V. K. Jaycox Country Manager: Ali Khadr Michael J. Gillette Sector Manager: Richard G. Scobey Theodore Nkodo Team Leader at ICR: Francois Rantrua Madani M. Tall ICR Primary Author: Jean-Christophe Carret 2. Principal Performance Ratings (HS=Highly Satisfactory, S-Satisfactory, U=Unsatisfactory, HL=Highy Likely, L=Likely, UN=Unlikely, HUN=Highly Unlikely, HU=Highly Unsatisfactory, H=High, SU=Substantial, M=Modest, N=Negligible) Outcome: S Sustainability: UN institutional Development Impact: M Bank Performance: S Borrower Performance: S QAG (if available) ICR Quality at Entry: S Project at Risk at Any Time: Yes 3. Assessment of Development Objective and Design, and of Quality at Entry 3.1 Original Objective: Context: The Forestry and Environment Project (PFE in French for "Projet Foret Environnement") was prepared in 1989 as part of the Structural Adjustment Program (SAP) by the Government of Gabon (GOG) with assistance from the World Bank. Concerned with the decline in the oil sector revenue and its impact on national economy, GOG proposed to strengthen its Forestry sector to enable it to play its preeminent role in promoting national economic development. The Staff Appraisal Report (Report # 10503-GA of June 10th, 1992, paragraph 3.04) proposed that the PFE should pursue the main objective of strengthening, the institutional capacities of the Ministry of Waters and Forestry to enable it to implement its forest policy, particularly the sustainable management of forest resources. More specifically, the project was to: * contribute to a better exploitation of forestry resources by implementing, on a pilot basis, a forestry management plan in the exploited first logging zone; * build monitoring and operating capacities of forestry sector governmental institutions by strengthening the Ministries of Waters and Forestry (MEF) and of Environment, Tourism and National Parks (METPN); * support research in the forestry and environment sectors; * ensure training matching the needs of private sector and conservation objectives; * prevent further degradation of the environment; and * assist the Government in creating protected areas and maintaining their fauna and flora. These objectives reflected essential priorities for forestry development in Gabon at that time, as identified both by the Government and by the Structural Adjustment Program supported by the World Bank.They were consistent with the Government strategy for diversifying the declining oil rent economy, through furthering renewable natural resources sector development. They also reflected the priorities identified in the Structural Adjustment Program, which called for "a redirecting of sector policies toward non oil sectors while protecting environment". To achieve this goal, the GOG launched a USD 38.5 millions Forestry and Environment Project, in partnership with the International Bank for Reconstruction and Development (IBRD), French Cooperation, United Nations Development Program (UNDP), Worldwide fund for Nature (WWF), European Economic Community (EEC) and German Technical Cooperation (GTZ). The UNDP supported the preparation of the National Environment Action Plan (NEAP) in 1991. The PFE was to implement this action plan. Participating agencies (IBRD, French Cooperation, AFD, UNDP, WWF, EEC and GTZ) agreed to support the project and to promote future environment and forest sector investments concordant with Gabon's NEAP (Table 1). -2 - Table 1: Contribution of the participating agencies to the project investment Agencies contributing to the Project Amount In USD Mitlon IBRD 22.5 Govemment of Gabon 6.2 European Economic Community 4.3 French Cooperation 3.5 WWF 1.7 AFD and GTZ 0.3 Total 38.5 The implementation of the PFE lasted nine years from 1993 to 2002. Its original closing date was extended to June 30, 2002 (the first two extensions added 18 months to the project, whilst the third added a further 12 months). The project has gone through three phases, phase I (1988-93): preparation; phase 11 (1994-98): initial implementation; and phase III (1999-2002): after 1998 review implementation. 3.2 Revised Objective: The project objectives were considered appropriate. Consequently there was no revision of objectives. However, modifications to some activities of project objectives components (cf. § 3.3 and 3.4) were considered during the 1998 review, which was required considering the contextual evolution. 3.3 Orginal Components: As per the Staff Appraisal Report (June 10th, 1992) and loan agreement between the Government of Gabon and the IBRD (January 15th, 1993), the project comprised five components. The design of the five components was clearly linked to the objectives described above. A. Institutional Support (cost: $17,20 Million) 1. Restructuring of the Ministry of Water and Forestry by rationalizing and redefining the functions of units; promoting improvements in planning, organization, and operational capacities. This restructuring includes the construction and renovation of central offices of the Ministry and its field offices; acquisition of vehicles; office supplies; and consultant services; 2. Strengthening of the General Direction of Environment, Ministry of Environment, Tourism and National Parks through improvements in planning and monitoring capacities; consultant services; vehicle and office supplies acquisition; 3. Training of the agents of the Ministries of Waters and Forestry; Ministry of Environment, Tourism and Natural Parks; 4. Support to local efforts for promoting environmental awareness; organizing seminars and workshops; and publishing information on local environmental concerns; - 3- 5. Implementation of feasibility studies pertaining to the protection of ecological areas and to the state of Gabon's environment. B. Forestry and Environment Training (cost: $2,30 Million) 1. Revision of the training program of National School of Water and Forests (ENEF), in order to match it more closely to the needs of the private sector; 2. Capacity development through consulting services; fellowships and trainings grants; 3. Implementation of the Mondah forest management plan; acquisition of vehicles and supplies; and construction of a saw milling workshop. C. Forestry and Environment Research (cost: $2,10 Million) 1. Genetic improvement of the Okoume species; 2. Silvicultural operations on natural forest and plantations to promote sustainable management of forest resources; 3. Adoption of improved agronomic practices and agro-forestry techniques in plantation areas; 4. Preparation of a dendrology manual and of measures to support plant species conservation at the National Arboretum. D. Natural Forests and Plantations rebabilitation (cost: $5,80 Million) 1. Implementation of a management plan for 40,000 hectares of natural Okoume in the 275,000 ha of forest massif in the vicinity of Foulenzem village. The management plan includes a faunal and floral inventory of 6% of the forest area; the execution of silvicultural operations; consultant services; the construction of offices and housing for agents and trainees at Foulenzem village; and acquisition of vehicles and supplies. 2. Silvicultural operations to rehabilitate 5,000 hectares of Okoume plantations in the neighborhood of Bokou6, Mvoum, Mbin6 and Haut-Como villages; improvements of access roads; consultant services; and acquisition of vehicles and supplies. E. Protected Areas (cost: $2,60 Million) Creation and maintenance of Moukalaba and Sette-Cama reserves in 800,000 hectares of forest area, including mapping; provision of infrastructure; roads and delimitation patterns; construction/rehabilitation of offices and houses for agents; consultant services; and acquisition of vehicles and supplies. 3.4 Revised Components: The original project objectives were found to be realistic and attainable. Nevertheless, two modifications were proposed to project components in the 3506 loan request submitted by the Ministry of Planning, Environment and Tourism, Government of Gabon to the World Bank in 1998 in order to reach these objectives: the first concerned the Natural forest and plantations management component (component name was also modified), the second related to the Environmental Protected areas component (Component name was also modified). -4 - Additions to Natural Forest and Plantation Management component (new title) * Implementation of the management plan for the Second Forest Zone in a 80,000 to 100,000 hectares concession involving an economic operator. * Maps and databases production for the environmental management and stratification of the Second Forest Zone, including the provision of aerial/satellite photographs, forestry inventory at the sampling rate of 0.1% and cartography. * Implementation of activities relating to community forest management on four pilot sites. Modifications to the Environment and Protected Area component (new title) Creation and maintenance of (i) seven reserves (Moukalaba, Sett6-Cama, Igu6la, Monts Doudou, Ngove, Ndogo, Petit Loango) constituting the Gamba complex in a 1,060,000 hectares area, and (ii) the 500,000 hectares Minkebe reserve. The activities proposed included floral and faunal inventories, map preparation, infrastructure development (roads and delimitation patterns), construction/rehabilitation of offices and houses for agents, consultant services; and acquisition of supplies. The additional activities in the natural forest and plantation management component were a practical response to changes in the project environment, in particular discussions about a new forest law, and the implementation of the REIMP. The PFE built very closed linkages with a multi donor project also funded by the Bank through a GEF Grant, the Regional Environmental Information Management Project (REIMP). First, the REIMP provided the PFE with technical support on Information Management Systems. In particular, the PFE commissioned the following studies which were conducted by the ADIE (the REIMP executing agency): (i) design of the Monitoring and Evaluation System of the PFE, (ii) design of the Monitoring and Evaluation System of the Ministry and, (iii) design of the Forestry Information Management System aimed at monitoring the Gabonese forest sector. Secondly, the PFE supported the implementation of a sub-regional training program on Environmental Information Management Techniques set up by the REIMP in collaboration with ENEF, Omar Bongo University of Libreville and two French universities. By funding originally unplanned activities which aimed to provide the administration with tools to monitor and control the sustainable management plans introduced by the new forestry code, produced and implemented by the logging operators (geographic information system of the Waters and Forestry Ministry, topographic map and statification of half of the second forest zone), these activities were consistent with the contextual evolution. The meaning of the additional activities in the protected area component is surprising because almost nothing was done in that component during the initial phase of implementation (1994-1998). The consistence of the revision for that component is by the way more arguable than the revision for the Natural Forest and Plantation Management component. -5 - Table 2: Initial and revised component contents (revised contents are in italic) Project objectives Component contents (revised content in italic) * Build monitoring and I. Restructuring of the Ministry of Water and Forestry by rationalizing and redefining operating capacities of the fimctions of units; promoting imnprovements in planning, organization, and forestry sector operational capacities. This restructuring includes the construction and renovation governmental of central offices of the Ministry and its field offices; acquisition of vehicles; office institutions by supplies; and consultant services; strengthening the 2. Strengthening of the General Direction of Environment, Ministry of Environment, Ministries of Waters Tourism and National Parks through imnprovements in planning and monitoring and Forestry (MEF) and capacities; consultant services; vehicle and office supplies acquisition; of Environment, 3. Training of the agents of the Ministries of Waters and Forestry; Ministry of Tourism and National Environment, Tourism and Natural Parks; Parks (METPN) 4. Support to local efforts for promoting environmental awareness; organizing seminars and workshops; and publishing information on local environmental concerns; 5. Implementation of feasibility studies pertaining to the protection of ecological areas and to the state of Gabon's environment. * Ensure training 1. Revision of the training program of National School of Water and Forests (ENEF), matching the needs of in order to match it more closely to the needs of the private sector, private sector and 2. Capacity development through consulting services; fellowships and trainings grants; conservation objectives 3. Implementation of the Mondah forest management plan; acquisition of vehicles and supplies; and construction of a saw milling workshop. * Support research in the I. Genetic improvement of the Okoume species; forestry and 2. Silvicultural operations on natural forest and plantations to promote sustainable environment sectors management of forest resources; 3. Adoption of improved agronomic practices and agro-forestry techniques in plantation areas; 4. Preparation of a dendrology manual and of measures to support plant species conservation at the National Arboretum. * Contribute to a better I . Implementation of a management plan for 40,000 hectares of natural Okoume in the exploitation of forestry 275,000 ha of forest massif in the vicinity of Foulenzem village. The management resources by plan includes a faunal and floral inventory of 6% of the forest area; the execution of implementing, on a silvicultural operations; consultant services; the construction of offices and housing pilot basis, a forestry for agents and trainees at Foulenzemn village; and acquisition of vehicles and management plan in the supplies. exploited first logging 2. Silvicultural operations to rehabilitate 5,000 hectares of Okoume plantations in the zone neighborhood of Bokoue, Mvoum, Mbin6 and Haut-Como villages; improvemnents of access roads; consultant services; and acquisition of vehicles and supplies. 3. Implementation of the management plan for the Second Forest Zone in a 80, 000 to 100,000 hectares concession involving an economic operator. 4. Maps and databases productionfor the environmental management and stratification of the Second Forest Zone, including the provision of aerial/satellite photographs, forestry inventory at the sampling rate of 0.14% and cartography. 5. Implementation of activities relating to communityforest management onfour pilot sites. * Assist the Govemment I. Creation and maintenance of (i) seven reserves (Moukalaba, Setti-Cama. Iguela, in creating protected Monts Doudou, Ngove, Ndogo. Petit Loango) constituting the Gamba complex in a areas and maintaining 1,060.000 hectares area, and fii) the 500,000 hectares Mfnkebe reserve. The their fauna and flora activities proposed includedfloral andfaunal inventories, map preparation, Infrastructure development (roads and delimitation patterns), construction/rehabilitation of offices and housesfor agents, consultant services; and acquisition of supplies. -6- 3.5 Quality at Entry: The Quality Assurance Group did not exist at the time of the project preparation, and no evaluation of the "quality at entry" was performed for the project. The Project design was rather appropriate to what was needed at the time. However, the design lacked targets that could be monitored, and there was no logical framework prepared to guide project execution (both were introduced in 1999, during the third implementation phase). As a result, the Staff Appraisal Report (SAR) provided little detail on how the project objectives would be reached. In retrospect, the appraisal team may have been overoptimistic about the time required for planning and implementing the project coQmponents, since the activities were only completed four years later, after three closing date extensions (see also QSR). It is also appropriate to highlight the fact that the 1994 devaluation increased the available FCFA funding for the project, and also that the 1998 review included new components objectives. 4. Achievement of Objective and Outputs 4.1 Outcome/achievement of objective: Achievement of objectives and outputs was satisfactory. One can globally consider the project to have reached its original objectives, although the situation at the outset (first IBRD-supported project in the rural sector undertaken at the end of five year recession, country and institutions not ready to implement project actions) did not necessarily allow such an optimistic outcome to be forecasted (see QSRP summary assessment sheet and guidance questionnaire) . The main project objective was indeed to strengthen the institutional capacities of the Ministry of Waters and Forestry to enable it to implement its forest policy, particularly the sustainable management of forest resources. In general terms, one may consider that this objective has been reached, most specially with regards to the external services (provincial inspections offices), the National School of Waters and Forests (ENEF), the Head Office of Inventories, Management and Reforestation (DIARF). In these three cases, the project has indeed led to a significant strengthening of the existing structures, or to the creation of new ones (i.e. external services), and more arguably to the improvement of the human resources of these institutions. One of the secondary project objectives was to carry out a sustainable management pilot project in the first forest area and to rehabilitate Okoume plantations in order to assist the Ministry in promoting forest resources sustainable management. The management plan in the first logging zone was produced (but not in the second one as forecasted during the 1998 review) and the plantations were restored. However, the project was slow in starting up these two activities, and meanwhile some logging operators began implementing some sustainable management plans without the benefit of the experience gained through the PFE-funded pilot sustainable management project. In addition, the administration was not able to effectively protect the restored plantations against shifting agriculture. Consequently, the impact of these two pilot projects in promoting forest resources sustainable management in Gabon has been slightly less important than expected at the outset of project assessment, albeit for different reasons in each -7 - case. Nevertheless, the management plan produced by the PFE in the first zone was sold to a forest operator in 2000 by the forest administration, and therefore has not been produced in vain. On the other hand, two secondary objectives: support research in the forestry and environment sectors and assist the Government in creating protected areas and maintaining their fauna and flora have not been reached. In the first case, the extent of resources available for the strengthening of research structures proved quite inadequate to sufficiently strengthen structures which had been growing considerably weaker over the years. In the second case, the project did not meet its secondary objective either, due to the defection of its two financial partners, the European Union and the WWF. Both initially meant to become involved in this part of the project, but finally decided to work independently from the project. However, progress achieved in the field of protected area management over the past ten years has been quite significant, even if it cannot entirely be credited to the PFE's achievements. 4.2 Outputs by components: Annex 1 provides a detailed presentation of the activities planned at the time of appraisal versus the activities implemented. A. Institutional capacity ($17,20 Million SAR, $23,27 Million actual) This component is rated satisfactory. The achievements of the 'institutional capacity' component-of the PFE have been in line with the activities selected at the time of project appraisal. The intensified presence of the Ministry staff in the field is the main commitment concretely manifested: 60% of the 320-strong Ministry staff have been redeployed in the 9 provinces, equipped with buildings (120 renovated or new buildings), computer materials and vehicles (a hundred). The relatively fragmentary and unplanned training of some staff members (50 people attended short or medium-duration training sessions) has produced some rather good results: most of the people trained, especially those under medium-duration training sessions in foreign countries such as France and Canada play now or can be expected to play a key role in the Ministry and its institutions like ENEF. However, several studies have been carried out to reorganize the ministry, but none has yet been implemented: a review of institutional capacities is currently in progress to prepare for a probable future operation. In addition, the PFE has drafted a planning, monitoring and evaluation system, but this has not yet been implemented. B. Forestry and Environment training ($2,3 Million SAR, $0,18 Million actual) This component is rated satisfactory. The PFE funding has enabled additional buildings to be constructed and equipped with computer materials, significantly increasing the school's capacity (the ENEF is now able to welcome 150 students instead of 100 previously). It has also allowed the introduction of an environmental component into the curriculum, the training of professors abroad, and the creation a regional DESS (M.Sc.) of Environmental Information Management Techniques and Methods (TMGIE). Finally, it has enabled the design and implementation of the management plan of the forest of Mondah, half of which was finally given over to the town of Libreville. In addition to these activities that match the original objectives more or less closely (it is indeed unclear whether the training is now more geared to the private - 8- sector than in the past) the PFE funded a strategic study" on training at the ENEF (after the 1998 review). The main value of this study is to offer a genuine institutional reform assisting the ENEF in adapting to the new challenges of natural resources utilization and conservation and of environmental enhancement. This reform aims to redefine the tasks of the ENEF, to improve its accessibility, to entirely review its administrative system, to renovate and enhance its infrastructures and equipment, to modernize its training programs by adapting them to the employment market, and finally to improve teacher status and qualification. The strategic study estimated the cost of this reform to 6,8 Billion FCFAs over 5" years. This budget is greatly superior to the PFE's funding levels over the past ten years. C. Forestry and Environment research ($2,1 Mifiion SAR, $0,90 Million actual) This component is rated unsatisfactory. Although initially planned, the genetic improvement of the Okoume, the agro-forestry research and the production of a dendrology manual were eventually abandoned. Instead, the PFE funded the scientific monitoring of the Ekouk Okoume plantations, and the purchase of conservation cabinets for the national herbarium. Consequently, the project falls quite short of achieving its original goals of supporting research. The PFE nonetheless funded a study on research results and strategy in 1997 to provide a framework for future funding. D. Natural forest and plantation management ($5,8 Million SAR, $4,06 Million actual) This component is rated satisfactory. The achievements of the PFE's 'forest management' component were quite different from the activities selected at the time of the project appraisal, hence the change from the original name of 'Forest inventory and restoration'. Indeed, 250,000 hectares of forest management plan in the south estuary were developed in 1999 (the management plan produced by the PFE was sold to a private company. However, its selling price is not officially known) and 30,000 hectares of plantations were rehabilitated in the communes of Bokou6, Mvoum, Mbine and Haut Como villages. The PFE also funded the production of the cartographic base-map of Gabon, the stratification of 50% of the second forest zone, and a study of the costs and benefits of Gabon's Okoume plantations. Indeed, ten years after the start of the PFE, 6 Million hectares of forest permits are currently being managed in Gabon 21, mostly in the second forest zone, under the initiative of the major logging operators. Indeed these operators have anticipated the obligation to produce and implement a sustainable management plan according to the December 31, 2001 law 16/01 of the Gabon's forestry code. Therefore the PFE adapted to the new situation by funding originally unplanned activities, and which aimed to provide tools to monitor and control the sustainable management plans produced and implemented by the logging operators (geographic information system of the Waters and Forestry Ministry, topographic map and stratification of half of the second forest zone). 1Etude strat6gique sur la formation a 1'ENEF. TECSULT, 2001. 152 pages. Idem. k Etude pour l'int6gration des petites et moyennes entreprises forestieres dans le processus damenagement forestier. Ets et frm, novembre 2001. 74 pages hors annexes. -9- E. Protected areas ($2,6 Million SAR, $0,41 Million actual) This component is rated unsatisfactory. Nine years after the start of the PFE, the DFC manages three protected areas covering approximately 2,2 million hectares. It is however impossible to ascertain a causal relation effect between the project and this result. Indeed, the Lop6 Reserve has been funded by the European Union since 1992 through the ECOFAC project; the Gamba complex and the Minkeb6 reserve have been funded by the WWF since 1992 and 1997 respectively, for an unknown overall amount. The PFE merely funded the establishment of two anti-poaching units at Iguela and Sette-Gamba (Gamba complex), and one in Mink6be. On the other hand, the PFE adapted in a way to this new situation by funding in 2001 an initially unplanned activity: the DFC strategic study -. This study suggests a reform of this office and its possible transformation into an Office Gabonais de Conservation de la Nature (OGCN; Gabonese Office for the Conservation of Nature), in order to be in a position to manage a 4 Million hectares protected area network (currently under evaluation) in accordance with the government's objective. This means to ensure the long-term protection of Gabon's biodiversity. 4.3 Net Present Value/Economic rate of return: Due to the diversity of the project's components, the economic rate of return (ERR) and the Net Present Value (NPV) of the whole project were not calculated at appraisal because such an economic valuation was not appropriate for the type of investments envisaged. The NPV and the ERR were only calculated for the activities where advantages were most easily quantified, in particular for two sub-components: the natural Okoume populations, and the contrived Okoume plantations. They represent approximately 20% of the project's costs. For the plantations, restoration works were expected to bring in profits in year 34 of the project, during the harvest of the plantations. These benefits would stem from the productivity increase brought in by the restoration works (from 50 to 360 m3/ha). An economic rate of return was calculated at the time of appraisal and deemed satisfactory whatever the scenario selected by the so-called sensitivity analysis (10% increase of costs and/or 10% decrease of profits). That said, without state funding, the plantations and buildings were no longer guarded (for the past three years), and it seems that the plantations are under heavy pressure from the surrounding populations. It is therefore not definite that profits will indeed come about in year 34. Moreover, a PFE-commissioned study of Okoum6 plantations costs and benefits came out in July 2000. Its conclusions are unequivocal: "The classic biometric and economic analysis show that the plantations [...J are not profitable, whatever the exploitation scenarios considered". Consequently, the economic analysis made at the time of the PFE appraisal encouraged the State to pursue an activity that, in fine, is not profitable, and which certainly won't show the profits expected at the time of that assessment. In other words, this economic analysis was not robust. s Etude independante des aires protegees au Gabon. Rapport prelirninaire. Puente Fernandez, Tutin, 2002. 56 pages. -10- 4.4 Financial rate of return: No financial rate of return calculation was calculated at appraisal. 4.5 Institutional development impact: The project's institutional development impact was modest. The PFE made a substantial contribution to the improvement of the institutional framework of Gabon's forest and environmental sector. Indeed, the creation of the Ministry's external services (the provincial inspection offices) and the modernization of the ENEF and the DIARF are major improvements to the initial situation. They are also consistent with the contextual changes stemming from the elaboration and enactment of a new forestry code. Furthermore, a significant short and medium-duration training program for the administration's officers accompanied this improvement of the institutional framework. In addition to these institutional improvements, the PFE commissioned several strategic studies and the development of information, monitoring and evaluation systems after its 1998 review. These studies may potentially contribute to a significant improvement of the institutional framework, should they be implemented. Nonetheless these studies represent a reflection and a know how base essential to the implementation of a new project. Overall, the PFE represented a small but important first step towards the improvement of the forestry institutional framework and during its third and final phase, it proposed new avenues to build upon and pursue these improvements, possibly with a new World Bank operation The PFE did make a small contribution to the regulatory framework, but it is rather more subject to discussion. Two reforms were included in the 1993 loan agreement: the enactment of a law on the environment, and a reform of forestry taxation. The law was indeed, enacted in 1993, but its first application decree only came in 2002 (see 5.2 factors generally subject to government control). The forest taxation reform was not implemented before the end of the project, even though it was included with the help of IMF in the corrected 2002 finance law, and is also to be included (as an improved version) in the 2003 finance law. Indeed, a QER meeting May 6, 2002, produced a Bank/IMF consensus on the approach to taxation of the forestry sectors in Gabon. The basis of the consensus was the last forestry sector taxation study financed by the project. Three principles were adopted: (i) simplification of taxation with only two taxes, (ii) introduction of a taxe de superficie at an initial rate between CFAF 500/ha (yield - equivalent to the sum of non "export" taxes) and CFAF 1000/ha), (iii) introduction of valeur mercuriales for bois divers. These three principles of immediate operational significance were introduced in the corrected 2002 finance law. On the other hand, the PFE actively contributed to the elaboration of the forestry code. This was in fact the driving force behind the 1998 project review. 5. Major Factors Affecting Implementation and Outcome 5.1 Factors outside the control of government or implementing agency: Three factors outside the control of the government or the executing agency affected the implementation and the results of the project: the defection of three financial partners (EU, WWF and UNDP), the devaluation of the CFA franc in 1994, and the frequent changes in World Bank project managers. At the time of appraisal, it was planned that the WWF and the EU would be responsible for funding the 'reserves set-up and upkeep' component, renamed 'environment and protected area management' in 1999, as well as for part of the 'institutional support' component. The UNDP was to fund the production of the National Environmental Action Plan (NEAP). Overall, the contribution of these three donors was expected to reach 5,5 Million US$, or approximately 25% of the project's initial budget. These donors financed these activities, but they did so outside the project, that is by dealing directly with the relevant administrations, and according to their own procedures. Consequently, the results of the project were below expectations, particularly in terms of protected areas management, even though for the country as a whole the result was more or less equivalent to what it would have been had these activities really been included in the project. The devaluation of the CFA franc occurred in February 1994, a year or so after the 22,5 Million US$ loan agreement was signed with the World Bank (Loan n°3506 GAB of January 15th, 1993). The devaluation increased the available financial FCFA budget (20 Billions FCFA were disbursed, including a 15 Billion loan, whilst the project was initially planned for 10,6 Billion FCFA with a 6 Billion loan). Two main consequences followed for the implementation of the project and its results. First, the devaluation certainly contributed to add four years to the project's life, in conjunction with disbursement problems in the first years. Secondly, it contributed to widen the external services strengthening activities to 9 provinces instead of the 4 originally planned in the project assessment report. The frequent changes in World Bank project managers (5 managers in 8 years, some of whom only stayed 6 months in project) probably added to difficulties with the project implementation, and possibly also affected the quality of some results, particularly for the institutional and regulatory reforms which are long-term endeavors requiring a continuous dialogue based on mutual confidence with the administration concerned with the project. 5.2 Factors generally subject to government control: It is conceivable that two factors subject to government control have slowed or affected project implementation and its results: the management of relationships with project coordination and its components, and delays in paying counterpart funds. The head of the Project Coordination body (CCP), appointed by the administration with the implicit approval of the World Bank, has not always possessed the necessary administrative authority to work smoothly with the various components' task managers (some held Director General positions in the administration). This ambiguity occasionally slowed the execution of some activities, particularly those dealing with institutional and regulatory framework reforms. Systematic delays from the government in paying counterpart funds may have slowed the execution of some activities, and may particularly have affected the performance of CCP staff, some of whom, under contract with the project, suffered delays in their monthly remuneration. - 12- A third factor subject to government control led to the 1998 project review, and to some difficulties in post-review project execution: the process of forest code reform initiated by the government in 1996 ended in 2001 with the enactment of a new forestry code. This process indeed stems from the decision to review and adjust the project in order to support the thinking on the forestry code reform through the production of new studies such as the DFC or ENEF strategies, or also on the feasibility of community forestry and on forest taxation. 5.3 Factors generally subject to implementing agency control: Two factors subject to the implementing agency's control may have slowed project execution and result quality: a lack of know-how concerning the World Bank's procedures, and difficulties in applying some of its recommendations. The first factor is one of the causes of delays in disbursements observed in the first years. It is due to a lack of training in World Bank procurement procedures. This deficiency was never truly redressed despite earnest efforts from the implementing agency's staff, especially after 1998, with help from the World Bank that played its counseling role: at the end of the project, the annual volume of disbursement had reached twice the level of disbursement during the initial years. The second factor is possibly one of the causes behind the low quality of some results, particularly the extreme slowness in modifying certain aspects of the regulatory framework included in the loan agreement, or also the average quality of the project's financial management. These difficulties in applying the World Bank's recommendations to improve the financial management of the project or to speed up some of the reforms necessary to the improved quality of the project obviously stem from a lack of training which was never truly redressed, but also from certain dysfunctions, as mentioned above, in the relations between the CCP and its components, or possibly also between the CCP and its parent Ministry. 5.4 Costs andfinancing: The total project cost as compared to the SAR cost estimate is currently estimated at US$ 28,82. This is about US$ 10 (-24%) Million less than the US$38,2 Million estimated in the SAR. Taking into consideration the physical and price contingencies of US$ 8,20 Million, the final US$ costs are very close to the SAR projected figures. But, at the time of appraisal, the estimated cost of the project in local currency was 10,6 Billions FCFA and at the end, 20 Billion FCFA were disbursed, an amount equivalent to a 89% local currency increase of the project costs for the GOG. Furthermore, the final duration of project implementation was 9 years whereas the planned duration at the time of appraisal was initially of 5 years. The increase in project costs and implementation time are essentially due to the devaluation of the FCFA, which occurred in February 1994, little less than a year or so after the actual start of the project. Amongst other factors, note should be made of the disbursement difficulties at the time of project start. These were due to the lack of training of the project coordinating office (CCP) management in World Bank procedures.It is also appropriate to point out the changes made to cost allocation per component (see annex 2). These changes are essentially due to the defection of the financial -13 - partners who were primarily expected to fund the 'Environment and Protected Areas Management' component. 6. Sustainability 6.1 Rationale for sustainability rating: The project sustainability is rated unlikely, if a new project is not implemented. The most financially significant investments made by the PFE were physical ones (see annex 2). Their sustainability will not exceed the economic lifespan of the materials in question. On the other hand, some of the post-1998 review investments, particularly those concerning the strategic studies or the development of information management tools for the Ministry of Waters and Forests, have a much greater sustainability provided, however, that their effective implementation is allowed by a new investment project. The PFE ought therefore to be viewed as the first phase of an in-depth reform of the forestry administration, aimed at strengthening its institutional capacity, and at modifying the regulatory framework of its intervention in order to improve the sustainable management of its forest, halieutic and environmental resources. Indeed, during the PFE appraisal, it was considered that this project (PFE), initially planned for 5 years, was only the first phase of a wider and longer program. In this context, the sustainability of the investments made by the PFE is deemed likely if a new investment project is implemented. Therefore, sustainability of activities funded by the PFE is examined for each component, by considering what would happen if a new GOG investment in the sector, which has been in preparation for one year was finally not implemented. Institutional Capacities Strengthening The investments made in strengthening institutional capacities were essentially structural ones, and their sustainability is unlikely to exceed their economic life. It is therefore almost certain that the PFE-funded material strengthening of the administration (particularly that of the external services) will not continue without a new project. Moreover, it is likely that the former project review's improvement in activities coordination and recommendations on institutional capacities will not be implemented. Forest Management The investments in sustainable forest management are sustainable for natural forests, since a company is implementing the project-produced management plan. On the other hand, the investments are not sustainable for forest plantations, since these have not been monitored and guarded for the past three years. However, the objective of this component has changed since the 1998 project review. It may now be considered as supporting the elaboration and enforcement of the new forestry code. Since the code was enacted (11/16/2001), it now remains to see to its proper enforcement. Without any new project, and particularly without the application of the forest taxation reform which could allow the return of unmanaged logging concessions to State forest status, there should be no further extension of production forests management (from the permanent forest domain) beyond the 6 Million hectares already committed by the logging operators. Furthermore, the administration does not possess at present all the tools required to - 14 - norm, monitor and control the implementation of the management plans by the logging operators. Without these, the sustainable management plans underway could lack the desired quality and/or may not subsequently be correctly applied. Furthermore, according to the new forestry code, the community forests, which are part of the non-permanent or rural forest estate, should be sustainably managed through a simple management plan. The returns from the management of these community forests should be entirely paid back to the community. However, a PFE-funded study IL has shown "the initial lack of a local management model matching the community forest concept. This leads one to assert the exogenous character of the community forest concept and to subject its application to a series ofpreliminary tests before attempting a widespread utilization in Gabon". It is therefore unlikely that, community forests should be set up accordingly with the forestry code's sub-section 5 of chapter 2 without a new project. Protected Areas Following the defection of the partners approached at the time of project appraisal the PFE did not create any new reserves in the end, but merely equipped the anti-poaching units. The sustainability of these investments will therefore not exceed their economic lifespan. It is likely that the three existing protected areas will remain funded by their current donors without any new project. Furthermore, it is quite probable, after the Johannesburg Summit, that Gabon will find the additional funding to reach its goal of creating and managing the additional protected areas required to create a 4 Million hectares network. It is also likely to create the Gabonese Bureau of Nature Conservation (OGCN in French). That said, it is worth pointing out that the situation without any new project as presented here is contrived, since the funds necessary to pursue the development management, and enhancement of the three existing protected areas for eco-tourism and for additional protected areas are included in the new project preparation. Environmental and Forestry Training and Research The sustainability of PFE-investments in the environmental and forestry training at the ENEF is correct as these investments were not'only material ones, but also included investments in professors and the introduction of an environmental module into the curriculum. Moreover, students have already benefited from a training program improved by the PFE's investments.On the other hand, the ENEF will be unable to fund the reform proposed in the PFE-commissioned strategic study without a new project. In other words, this last investment is only sustainable if another project implements the proposed reform. The PFE made few investments in the fields of forestry and environmental research. The insufficient and fragmentary nature of the investments made obviously limits the effectiveness of the efforts made to energize the forestry and environmental research sector. Furthermore, an improvement in forestry and environmental research in Gabon is highly unlikely without funding from a new project. In all probability, these current investments are therefore unsustainable. One should nonetheless note that this situation is contrived, since the funding planned to reform the ENEF and to energize environmental and forestry research are included in the new project preparation. Etude de faisabilite des forets communautaires au Gabon, luto, cirad, 2000. 75 pages. -15 - 6.2 Transition arrangement to regular operations. Most of the project activities were already integrated into the regular operation of respective institutions (e.g. SIGEF by DGEF, SPSE by CPSE), which has minimized the need for special transition arrangement. However, the project was envisaged as the first phase of a longer-term investment program, and the relatively abrupt and unexpected reduction in financing has affected momentum (the preparation of a new operation is still in discussion). Additional financing would be required to realize the full potential of the new frameworks and skills which the project has created and to fund strategic studies recommendations. 7. Bank and Borrower Performance Bank 7. 1 Lending: Bank performance during project identification and preparation was satisfactory. The PFE was the first project funded by the IBRD in Gabon following a relatively long interruption of relationships between Gabon and the World Bank (resulting from a disagreement over the Trans-Gabonese Project). Although the preparation team lacked a specific Country Assistance Strategy for Gabon, they succeeded in highlighting the importance of the forestry sector for the country's economic and ecological future, given the uncertainties linked to the oil revenues. The project concept was identified as priority investment in the context of a strategy elaborated during the 1988 World Bank and Gabonese Government's assessment of the Gabonese agriculture/forestry sectcrs. The project, prepared by the FAO in 1989, reflected the concern to protect and manage rationally the utilization of a rich natural resource base, and to fight the over exploitation of local forests and the degradation of the Gabonese environment. The PFE thus perfectly matched the government's priorities and the then known answers to address such objectives. This vision of the forestry and environmental sector remains current and, as mentioned earlier, the PFE played a central role in endowing the country with human and technical capacities. Adding the fact that the preparation team succeeded in creating a multi-donor platform, the role of the Bank during the project's preparation phase was satisfactory and must indeed be positively highlighted. However, it must be noted that funding from the other donors failed to materialize, and that, in the end, the project was solely funded by the Bank and the Government. The Bank's performance at appraisal was satisfactory, and the appraisal team had a skill mix that was adequate for the task at end, including a forestry economist, two forestry specialists, two environmental specialists, an institutional and legal specialist, a specialist in environmental education, in addition to the mission leader who was an economist. There was adequate coverage of most of the key appraisal areas. With hindsight, it seems that much more attention should have been paid to the training of the team responsible for managing the project's implementing agency, as well as to the best way of measuring implementation progress and project impact. Finally, the appraisal team was overoptimistic about the time needed to implement the project. The PFE lasted 4 years longer than expected, even though part of that delay was undoubtedly due to the devaluation of the FCFA, which significantly increased the project's available FCFA budget. -16- 7.2 Supervision: The supervision of the project has been globally satisfactory. More specifically, project supervision had three phases (93-94; 95-98 and 99-2002) and Bank performance was satisfactory during the first and last phases but there were some shortcomings during the second supervision phase. The World Bank carried out the totality of its supervision missions. It did consistently endeavor to identify those problems affecting the proper project implementation, and to offer solutions to address the issues, or indeed to suggest a review when it seemed appropriate or necessary to do so. This can be verified in the memoranda spanning the 8 years of project implementation. In addition to visits from the Bank headquarters, a senior Bank staff member in the Country Office followed the project.'The level of technical input was substantial and appreciated by the implementing agency. Unfortunately, the teams changed once the loan agreements were signed. This rapid staff turnover (five task managers in nine years) broke continuity at a crucial point in the project' implementation, and therefore degraded both service performance and the original project vision, especially during the second implementation phase (95-98), where the number of tasks managers (three) was found inadequate by the implementing agency and the borrower. On the Gabonese side, the project was perceived more as an important funding source than as an opportunity to enable necessary changes in an administration rather reluctant to evolve. In practice, the PFE generated more rivalries than synergies, and somewhat allowed'the project executive agency to be marginalized within the Ministry. The World Bank failed to sustain the original project vision, and failed also to assist the establishment of an effective fund management system. The level of disbursements remained quite inferior to previsions, and the project attracted numerous criticisms from the Government, partners and the Bank's Management through several communication errors. The mid-term review and the two subsequent missions were an opportunity to proceed to an in-depth re-evaluation of the project. The wisdom of extending the duration of a low-performance project was then called into question (since the PFE would obviously be unable to disburse the totality of the loan at the planned deadline). But the cost of dropping the project was high: without any further support (financial and technical) from the World Bank, critical instruments (i.e. national strategies, consistent legal and institutional frameworks, information tools) essential for the sustainable and sound development of the sector - which at that time were still lacking - would probably not have been implemented. In addition, the substantial progress had been made following the midterm review (eg. launch of the NEAP, drafting of the new forestry law, adoption of Gamba complex master plan and decision to create a new reserve at Minkeb6, publication of the proceeds of the 1994 workshop on poaching) and it was risky to cut support to this dynamic. Thus, the project was extended with the objective of using the project as a tool for defining a new forestry code, a new forestry taxation, reorganizing the whole Ministry, monitoring all its activities, implementing a forestry information system and increase dialogue with private sector. The decision was also based on the assessment that these objectives were achievable. The risk taken by the GOG and the Bank to extend the project's duration was justified a posteriori by the satisfactory results of the project's final three year-extension.The project supervision team also reacted adequately and promptly to the request of the Borrower to modify -17 - activities in 1998. It supported the technical guidelines for the preparation of the new framework, and reallocated the project funds to meet the need for these new activities. By 1998-1999, the World Bank team was stabilized and able to communicate energy and to assist the implementation of the tools necessary for the management of a project of this scale. The project succeeded in taking the required direction and speed by reworking both the vision and strategies of each of its components and the operational management tools such as monitoring, evaluation and accounting. It is clear that the prospect of the PFE's continuity played a unifying role for technicians. They no longer simply disbursed funds, but felt in fact that they were contributing to the future of their country, and of their economic sector. The climate of trust developed during the preparation stage was restored with a much-improved communication with the partners, who were all involved in the preparation of the following program. This confidence also enabled the Bank to play a counseling role on several key cases such as the elaboration of the forestry code. The World Bank also promoted teamwork and greater transparency - which is often lacking in the forestry sector-, by supporting the development of information systems (SIGEF, SPSE). 7.3 Overall Bankperformance: Based on this, the overall bank performance is considered satisfactory. Borrower 7.4 Preparation: The borrower's performance during the preparation of the project was satisfactory. The quality of the government's performance in project preparation is partly due to an excellent strategic vision and a good economic understanding of the challenges of the forestry sector by the Planning Ministry, and to a strong political will of the Waters and Forestry Ministry to commit such a project. 7.5 Government implementation performance: The overall performance of the government was satisfactory, although there were some problems with substantial delays in enacting legislation (environment law decree and forest fiscal reform). However, one should also mention the recurrent delays in disbursing the Gabonese counterpart funding throughout the project, and the difficulties in assimilating many technical and strategic studies funded by the project. 7.6 Implementing Agency: The overall performance of the implementing agency is satisfactory. The dedication and enthusiasm of the CCP staff is impressive and certainly contributed to the implementation results. On the other hand, the performance of the implementing agency has been impeded throughout by two recurring problems: (i) the lack of training of the task team in project management, particularly in World Bank funded projects, and (ii) the lack of tools to guide pilot activities implementation, particularly during the first two phases of implementation (92-98). -18- 7.7 Overall Borrower performance: Based on the reasons given above, the Borrower's overall performance was satisfactory. 8. Lessons Learned Four major lessons stem from the implementation of the PFE in the context of preparing a new investment project. These four lessons concern project management, the effectiveness of institutional capacity strengthening, the economic and fiscal impact of the project and the way to turn from a problem project to a successful project. 8.1 Project Management: A satisfactory project management is an intrinsic element of its success. It requires human resources and management procedures adapted to the sort of exercise to which an administration, whatever its skills, cannot be prepared for. Yet, from the start, the PFE has suffered deficiencies in both of these areas. Indeed, despite goodwill and personal involvement of the managers, supported at first by an international technical assistance, the project management was painstaking, as much for activities implementation as for relationships with components or also with the World Bank. These difficulties are firstly due to a lack of training of the managers in World Bank funded projects management, and secondly to the initial lack of a logical framework and of tools such as an activities monitoring matrix, or also of performance and impact indicators for the implementation of activities funded by the project. These management tools were introduced after the 1998 review, on behalf of the last supervision team (1999-2002). Consequently, it is appropriate in the context of the preparation of a new investment project, to plan training for the future managers of the project's implementing agency to the management of projects funded by the World Bank, and to elaborate tools which will allow them to effectively implement the project. 8.2 Effectiveness of Institutional support: The objective of the PFE was to strengthen the institutional capacities of the Ministry of Waters and Forestry. This objective was and remains valid, for it is an essential condition for improving sustainable forest and environmental resources utilization in Gabon or, in other words, for implementing the government's forest policy. That said, if the PFE has succeeded in creating structures (external services of the Ministry) or in strengthening existing structures in collaboration with other projects (EU, GTZ, ITTO), it has often omitted to improve the basic training of the agents working in these structures. Admittedly, some professors from the ENEF have benefited from short training sessions. Some engineers from the DIARF have also been able to complete their initial training by a geographical information system training session. However, the staff redeployed in the field of Gabon's nine provinces have been given offices, accommodation and cars without any training aimed at improving a monitoring and control action on forest exploitation made possible by these very equipments. Yet, such training is necessary to translate this institutional support into a better application of the forestry law, which is the ultimate aim of institutional support. In other words, physical or material strengthening is a -19 - necessary but insufficient condition for the improvement of forest resources and environmental management. Consequently, it is appropriate, in the context of preparing a new investment operation, to supplement the institutional support activities with basic training aimed at the administrative agents equipped with material acquired by the project, so as to improve in fine the application of the forestry law. 8.3 Economic and Tax Impact of the Project: At the time of project appraisal, a positive economic and tax impact was expected from these institutional capacities strengthening investment. In other words, the PFE aimed to increase the contribution of the forestry sector to the GDP and to the State's tax revenues through institutional strengthening. The means utilized to reach an increase in GDP were not explicitly stated. An administration institutional support project is indeed a problem for 'classic' economic analysis. Technically speaking, a dual uncertainty expresses these difficulties: an uncertainty on the scenarios without the project, and an uncertainty on the project's direct consequences.In this case, many assessments conclude to the impossibility of producing a classic economic analysis. In the case of the PFE project where the chosen activities did not include the direct intervention of the administration onto the natural resources - except for the management/development of a natural forests and of a few plantations, the assessment report concluded that an overall economic analysis of the project was impossible.The assessment report did however suggest means to increase the tax revenues: they consisted of reforming the forest taxation. This reform, with the passing of the law on the environment, was actually included in the clauses of the 1993 PFE loan agreement (No. 3506 GAB), without nonetheless mentioning explicitly the goal of increasing tax revenues. Ten years later, four successive PFE funded studies have examined this reform, which still is not implemented, even though the latest study has provided a reasonable negotiating basis, and even though it is highly likely that a forest taxation reform will be included with IMF help in the 2003 finance law. The Gabonese government does not wish to engage into a new project without a prior understanding of its overall tax and economic benefits. This objective is indeed of the foremost importance to the Planning and Finance Ministries, which does not wish to bring the country further into debt with a new forest administration institutional support project that would have no impact on the GDP of the relevant economic sectors and on the tax revenues taken by the State. This is due to the current situation - a predicted decrease in oil tax returns. Consequently, the new investment operation must be subjected to an economic and fiscal impact study that quantifies the overall expected economic and tax benefits. 8.4 From a problem project to a successful project: The PFE is a good example of a problem project turned into a successful project The PFE suffered numerous weaknesses up until 1997-98. Firstly, the project was widely considered as a source of funding to equip the Ministry, in the absence of a shared strategic vision. Secondly, even at the practical level, many operational shortcomings impeded effective management. Low disbursement levels materialized these shortcomings. These weaknesses also reflected negatively on the project's image, and on the morale of the project's managers who were criticized by many partners. The Gabonese officers and the Bank both decided upon effectively managing change. As lessons learned, here are stages, that were followed, in this particular case to make this happen: -20 - * First, a feeling of urgency had to be instilled: if things didn't change, the project would have to be closed in a context where oil revenue decrease drew nearer. * Second, a team had to be created which was aware of the necessity for change and capable of carrying the rest of the partners along. Motivated and competent young professionals joined the management team and contributed to bring in a new impulse. Confidence between the Bank and the team was rebuilt, with for example the long- term consultancy of a young Gabonese executive to Washington for several months. * Third, the project had to be given a vision underlain by the economic, ecological and social significance of the forest and environment sector. This vision, materialized in a general policy letter, was been woven into each component and sub-sector connected with the PFE. The reform of the ENEF is an appropriate example of the PFE's strategic contribution. * Fourth, the PFE effectively communicated this vision beyond the Ministry, into the entire country and sub-region, by establishing and implementing a communication plan, and by utilizing available media such as the REIMP. * In parallel and in order to materialize this evolution, the project implemented tangible activities (for example the Planning, Monitoring and Evaluation System-SPSE, forest stratification and mapping). This increased team confidence and further improved its credibility with decision-makers. * In addition, to allow change to occur, it was necessary to equip the project with financial and technical management tools to steer and measure progress. These tools included project impact and performance indicators. The PFE was able to lead other developments beyond its own domain of intervention, by weaving close links between its own activities and other initiatives, particularly with a possible new Bank operation in Gabon, currently in preparation. 9. Partner Comments (a) Borrower/implementing agency: The borrower was satisfied with the project, which has been a significant element in raising awareness in the country of the importance of the forest and environment sector. The main regret of the borrower concerns the autonomy of the project implementation unit with regards to the forest administration. A posteriori, this latter considers that it did not have enough influence on the choice of activities funded by the PFE, particularly since the project restructuring in 1998. This choice was strongly influenced by the World Bank. It is nonetheless worth pointing out that during the project appraisal, a project coordination committee - chaired by the Minister of Waters and Forests, had been suggested to direct inter-ministerial coordination and the periodic assessment of activities. This committee was never convened. Consequently, the forest administration had at its disposal a tool to control the choice of activities, which it could not or would not utilize. This point deserves serious discussion during the initial preparatory phase of a new investment operation. Another regret of the borrower concerns the quality of financial management achieved by the executing agency. This management was not rigorous enough for the World Bank, and this despite recurring remarks made during the supervision missions it carried out. The PFE audit of procurement procedures carried out from January to May 2002 confirms the opinion of the borrower: it points out that none of the analyzed contracts entirely respects the World Bank's -21 - procurement procedures. On the other hand, concluding to a significant risk of misappropriation of project funds seems hasty and could possibly hide a lack of rigor in the audit. The executing agency, in other words the project coordination unit, also considers that the implementation of the project was satisfactory. It does however consider that some of the World Bank's management procedures, particularly the obligation to obtain a non-objection for each disbursement, are partly responsible for slowing project implementation. (b) Cofinanciers: Following the early defection of the European Union, the UNDP and the WWF, no co-financiers were involved in the PFE. (c) Other partners (NGOs/private sector): The private sector (represented by the SYNFOGA, the Gabonese loggers Union) has highlighted two main grounds for satisfaction with regards to the PFE: * The private sector appreciated the quality of the officers working in the PFE and of those trained by the PFE and working within the Ministry of Waters and Forestry. The quality of the staff does improve the dialogue between the administration and the private sector, and does enable work in partnership, whether on the forest management theme, on industrialization, or on forest taxation. * The private sector was satisfied with the participatory manner in which the forest taxation reform was discussed during the third study funded by the PFE. The private sector does indeed consider that the reform proposals have taken into account the funding efforts made by the private companies to engage with the administration into sustainable management and increasing industrialization of a logging sector traditionally oriented towards Okoume selective cuts and whole log exportation without transformation. 10. Additional Information No additional information is available. -22 - Annex 1. Key Performance Indicators/Log Frame Matrix Outcome I Impact Indicators: .- IndlcatorM/ardlx | Preosd in as PSR AcduaMLabd Estimate Number of back-t-field agents (A-1) 150 150 Number of components having an e-mall 616 6/6 connection (A-2) Possession of an Environmental Yes No Management Board (A-6) Adopton of a new Forestry Code (A-7) Yes Yes Part of the Forestry sector In the GDP of 100 billion CFA francs (2001) 100 bNlion CFA francs (2001) Gabon (A-9) Number of applicatons decrees adopted 10 1 conrnming the Environment law 16193 (A-1) Number of candidates applrng for a 1500 1500 scholarship at ENEF (B-1) Number of specilzatIons In the training 10 8 provided by ENEF (B-2) Number of graduates of ENEF hired by the 8 8 private sector (B-3) Number of Foreign students (B-7) 6 6 Number of private partners hI research 10 8 actMhities (C-3) Number of researchers and technidans 6 animating the research activities (C-4) Output Indlcators: Inicaartlwatrix Prejetd In lat PSR AetuallLatest Esmale Components parUdpaton rate to the 100 % 100% projecUs meetings (A-3) Number of offices and accommodatlons bullt 85 137 or restored (A-4) Staffs of the Ministry of Water and Forestry 325 325 Number of executive staff trained (A-8) 15 29 Rate of inspection missions In the fields once a month 3 a month (A-l0) Number of students at ENEF (1-4) 130 130 Total amnount of students accommodation at 130 ENEF (8-5)1310 Number of regular teachers at ENEF (8-6) 15 12 Number of thesis and research publications 15 12 written about Forestry hI Gabon (C-1) Surface of plantations folowed-up by 1116 ha 1116ha research actvities (C-2) 3 500 ha 3 500 ha Surface of Inventoried plantations (D-1) 350 000 ha 268 000 ha Surface of Inventorled natural forest (D-2) 13 600 ha 13 600 ha Surface of plantations covered by a forest management plan (D-3) Surface of natural forest covered by a 268 00 ha 268 000 ha forestry management plan (D-4) Surface of the territory covered by the 17 000 000 Km2 17 000 000 Km2 topographical database (D-5) Surface of monitored protected areas (E-1) 500 000 ha 500 000 ha Expanse of protected areas (0-2) 34 020 Km2 34 02Q1 Km2 End of project -23 - Component 1: Reinforcement of the capacities of the Ministry Objective and Output expected Output chieved Impac expeted Impacts achreved Description *Constitution of Ministry oCentral depatments *Improved managerment *The PFE aclion has been * Build monitoring and of water, forest, fisheries have been mred of netural resoure achieved operating capacities and environment *lncreased number of interventions of forestry sector *Move top level agents dispatched on the *Over half of Ministry 9129 (2000) agents deplyed govemmental executives in field from 80 (1993) to 129 agents redeployed in the in the field (from 80 in 1993) institutions by decentralized units (2000) field strengening the Administrative offices *More agents dispatched eAgents dispatched to the Minisbes of Waters *ConstructTon of and residences were bult to the field field and Fomrstry (MEF), adminraon offices and in the entire country and oresry (EF), houses and the Environment, *Acquisition of computers *The ministry is *Improve work quarity Tounism and National and worktools computerized eMinistry departments Parks (METPN) *Acquisition of vehicles *Vehicles and boats have *Restore managerment computerized & connected nd boats been acquired for the field cpacity and control of the to Internet units administration *More present and effective *Promotion of the *Enironmentel law and *Restore the rights and field units adoption of environment forest law have been duties of the eMore financial resources low and set up new adopted. New forestry administration in natural forestry low and taxation taxation has been set up resources management Component 2: Environmental and forestry formation Objecive and Output expected Outpput achieved Impacts expected Impacts achieved Description _ *More executives for *Almost 30 top executives *lIprove the quaeity of *The quality of Ministry * Ensure training natural resources have been trained Ministry agents agents has been ceqty matching the needs management improved of private sector and *Development of *ENEF trainees received *ENEF trainees to *ENEF trainees improved conservation environmental curricuhlm training in environmental improve their technical their technical skills .objectives 1 subjects capacity 'o v mproved management .Development of FCM *FCM Management plan of FCM management plan *Sustainable developed & irplemented management of FCM *ENEF Strategy at .ENEF strategic study *ENEF strategy regional and sub regional has been produced *ENEF development at completed levels regional and sub regional levels -24 - Component 3: Environmental and forestry research Objective and Output expected Output achieved Impacts expected Impacb achieved Descripton _ Proposu a national A national pgram has *Mobization of natonal *Not accomplished * Support research in program on Okouwm been proposed and intemational funds for the forestry and 'nprvament program Implementaton environment sectors *Publication of results *Set up a database on the *A database on the *Preservation of the local *The results of the grwth of plantation growth rates has been culture Inventory were published aPreserve the itinerant developed *improved productivity of *Not eccormplihed culture *The plan was not Andok Implemented *Propagation of Andok *Appropriation of *The initidal results of through artiicial Cerlain arffRcal techniques by farmers aetificial regeneration regeneration regeneraton techniques techniques ae promising *Promote perticiation of were successful the local communities in forest management *Colltion of the information on Gabon's *Promotion of the plant timber species eNot echieved colection *Development of the collection and display of plants *The plant collction has *Publication to help *40 shelves of plant expended researchers implant coglections were species identilication developed *Development of the *Not achieved review of the research management *Research strategic study Ihas been produced Component 4: Sustainable management of forest Objective and Output expected Output achieved Impacts expected Impacts achieved Description *Development of a *Management plan has *Pilot management *improved management * Contribute to a better management plan for a been developed plan to be implemented of natual fbrest exploitation of 200 000 ha natural by fbrestry farmer foresty resources by forest implementing, on a *Implementation of *Directives to pilot basis, a forestry forest management implement forestry management plan in directives farmer's management the exploited first ePromotion of the *Silvicultural plan logging zone development of forest operations implemented plantations to improve forest *To prepare a *A plantation's cost and *Improve plantation management plan for benefit study has been growth and forest plantations produced development -25 - Component 5: Environment and protected areas Objective and Output expected Output achieved Impacts expected Impacts achieved Description *Equipment of field unit See component 1 * Assistthe Govemment in eCreate the Ganba * The Garba conmIexe creatng protected coniplex and Minkebe and the Minjkbe resere areas and reseve has been created .... but maintaining ter not by the proect fauna and flora. Organkaton of * Produced posters cri carpatn aganst out infondon, educatin poaching and communvnion in 9 . ~~~~provrince * Statgy was wriUen in *Define a DFC strategy October 2000 -26 - Annex 2. Project Costs and Financing Project Cost by Component (in US$ million equivalent) Appraial- AotuaULatest Per.entage of Estimate Estimate Appaisal Project Cost By Component US$ miHlion US$ million A. Institutional reinforcement of the Ministry 17.20 23.27 135 B. Forestry and enviromnent training 2.30. 0.18 7.8 C. Forestry and environment research . 2.10 .0.90 4.3 D. Forests sustainable management 5.80 4.06 70 E. Management of protected areas 2.60 0.41 15.7 Total Baseline Cost 30.00 28.82 Physical Contingencies 1.80 Price Contingencies 6.40 97.6 Total Project Costs 38.20 28.82 Interest during construction Total Financing Required 38.20 28.82 Project Costs by Procurement Arrangements (Appraisal Estimate) (US$ million equivalent) Expenditure Category lCB Procurement Method N.B.F. Total Cost 1. Works 0.00 2.10 0.00 1.10 3.20 (0.00) (2.10) (0.00) (0.00) (2.10) 2. Goods 5.90 0.20 0.20 5.10 11.40 (5.90) (0.20) (0.20) (0.00) (6.30) 3. Services 0.00 10.20 2.80 13.00 0 (0.00) (10.20) (0.00) (10.20) 4. Fellowships and 0.00 0.00 2.00 0.10 2.10 Training (0.00) (0.00) (2.00) (0.00) (2.00) 5. Operating Costs 0.00 0.00 1.60 6.60 8.20 ______________________ (0.00) (0.00) (1.60) (0.00) (1.60) 6. Reimbursement of PPF 0.00 0.00 0.30 0.00 0.30 (0.00) (0.00) (0.30) (0.00) (0.30) Total 5.90 2.30 14.30 15.70 38.20 (5.90) (2.30) (14.30) (0.00) (22.50) -27 - Project Costs by Procurement Arrangements (Actual/Latest Estimate) (US$ million equivalent) Procurement Method' Expenditure Category ICB NCB Other N.B.F. Total Cost 1. Works 0.22 7.20 0.00 7.42 (0.20) (6.48) (0.00) (0.00) (6.68) 2. Goods 0.28 3.33 0.07 0.00 3.68 (0.25) (3.00) (0.06) (0.00) (3.31) 3. Services 3.57 0.49 1.02 0.00 5.08 (3.21) (0.44) (0.89) (0.00) (4.54) 4. Fellowships and 0.00 0.00 0.09 0.00 0.09 Tralning (0.00) (0.00) (0.09) (0.00) (0.09) 5. Operating Costs 0.00 0.00 4.64 0.00 4.64 (0.00) (0.00) (0.46) (0.00) (0.46) 6. Reimbursement of PPF 0.00 0.00 0.00 0.00 0.00 (0.00) (0.00) (0.00) (0.00) (0.00) Total 4.07 11.02 5.82 0.00 20.91 (3.66) (9.92) (1.50) (0.00) (15.08) Total based on a partial evaluation. " Figures in parenthesis are the amounts to be financed by the Bank Loan. All costs include contingencies. 2 Includes civil works and goods to be procured through national shopping, consulting services, services of contracted staff of the project management office, training, technical assistance services, and incremental operating costs related to (i) managing the project, and (ii) re-lending project funds to local government units. Project Financing by C mponent (in USS million equivalent) ........ . : > ;. - .: : ................ :::; .; :: : - :: ;: :: . :::::: . : ef ^~~~~~~~~~~. ...... ..... ..mpon .. - ... . , .:. . r .. at : sia; . . ... ~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~T , ......;;...... . - -........ ............ ,-,,...... :B _. nk ::- : -ov- Ban- ( oP. Bink .:. CoF. A. Institutional 10.20 7.00 17.50 4.73 171.6 67.6 reinforcement of the Ministry B. Forestry and 1.60 0.70 0.13 0.05 8.1 7.1 environment training C. Forestry and 1.20 0.90 0.68 0.22 56.7 24.4 environment research D. Forests sustainable 1.40 4.40 3.05 1.01 217.9 23.0 management E. Management of 1.70 0.90 0.31 0.10 18.2 11.1 protected areas Physical contingencies 1.10 0.07 0.0 0.0 Price contingencies 4.90 1.50 0.0 0.0 -28 - Annex 3. Economic Costs and Benefits Not applicable (There is no mention of a global Net Present Value/Economic Rate of Return, or economic costs and benefits projections, in the SAR of the project). -29 - Annex 4. Bank InpuIts a) Missions: Stngeof P*qject Cycle No. of Persons anid Specialty . Performiance Ratin g (e.g 2 Economists, IjFMS, etc.) .lplementation Development::: . :Mont/Year Count. SpecialtProgs :O-tive Identificatlon/Preparation 12/1991 8 TASK MANAGER (I); S S FORESTRY ECONOMIST (1); (FORESTRY SPECIALIST (I); ENVIRONMENT LAW SPECIALIST (I); ENVIRONMENTAL SPECIALIST (I); FORESTRY SPECIALIST; ENVIRONMENTAL EDUCATION SPECIALIST (I); ENVIRONMENTAL SPECIALIST (1) Appraisal/Negotiation 12/1991 7 TASK MANAGER (1); S S FORESTRY ECONOMIST (2) ENVIRON. SPECIALIST (3); FORESTRY SPECIALIST (1); Supervlsion 11/23/1992 4 ENVIRONMENTAL SPEC. HS HS (1); AGR. ECONOMIST (1); SR FORESTRY SPEC. (1); FORESTRY SPECIALIST (1) 04/09/1993 1 AGR ECONOMIST (I) HS HS 01/26/1994 3 FORESTRY SPEC. (1); AGRIC. HS HS ECONOMIST (1); ENVIRONMENT SPECIALIST (I) 07/30/1994 3 AGRI. ECONOMIST (2); S S ENVIRONMENT SPECIALIST (1) 03/10/1995 4 ENVIRONMENT SPECIALIST S U (1); PROJECT OFFICER (I); ECONOMY (1); FORESTRY SPECIALIST (1) 10/13/1995 4 PROJECT OFFICER (1); U U FORESTRY SPECIALIST (1); AGRICULTURIST (1); PRINCIPAL ECONOMIST(I) -30- Mid-Tern Review 4 TASK MANAGER (1); S S July 1996 FORESTRY SPEClALIST (1); ECONOMIST (1); MAPPING SPECIALIST (1) 10/25/1997 2 FORESTRY SPECIALIST (1); S S TASK MANAGER (I) 03/1411998 2 PROJECT MANAGER (1); S S INFORMATION MGT SPECIALIST (1) 09/29/1998 2 PROJECT MANAGER (1); S S INFO MGMT SPECIALIST (I) 04/06/1999 3 ENV. INFO SPECIALIST (1); S S FORESTRY LEAD SPEClALIST (1); COUNTRY ECONOMIST S S 12/08/1999 3 TASK TEAM LEADER (1); INFORMATION SPECIALIST (1); FORESTRY SPEClALIST (1) 05/25/2000 3 TASK TEAM LEADER (1); S S INFORMATION SYSTEM SP. (1); PROJECT ASSISTANT (1) ) 11/13/2000 2 MISSION LEADER (1); S S INFORMATION SPEClALIST (1) 05/27/2001 3 MISSION LEADER (1); S S PROJECT ASSISTANT (1); FORESTER (1) 12/13/2001 1 MISSION LEADER (1) S S 05/20/2002 3 TASK TEAM LEADER (I); S S PROJECT ASSISTANT (2) ICR September 2002 1 NATURAL RESOURCES S S ECONOMIST -31 - (b) Staff. . S.$tatof Project cle . : .: . AituaVLatest Estifnate.: No. Staft weeks:: US ('000) Identification/Preparation 136.2 292 Appraisal/Negotiation 186.5 146.6 Supervision 73.8 693.30 ICR 20.0 Total 396.5 1151.9 -32 - Annex 5. Ratings for Achievement of Objectives/Outputs of Components (H=High, SU=Substantial, M=Modest, N=Negligible, NA=Not Applicable) Rating O Macro policies O H OSUOM ON * NA O] Sector Policies O H OSU*M O N O NA I Physical 0H * SUOM ON O NA Ol Financial O H O SU O M O N * NA Ol Institutional Development 0 H O SUO M 0 N 0 NA Ol Environmental O.H O SU * M O N O NA Social O Poverty Reduction O.H OSUOM ON * NA Ol Gender O H OSUOM O N * NA O Other (Please specify) O H OSUOM ON * NA O Private sector development 0 H O SU O M 0 N * NA El Public sector management OH OSU*M O N O NA M Other (Please specify) O H OSUOM O N *NA -33 - Annex 6. Ratings of Bank and Borrower Performance (HS=i3ighly Satisfictory, S-Satisfactory, U=Unsatisfactory, HU=Highly Unsatisfactory) 6.1 Bank performance Rating O Lending O HSOS OU OiHU O Supervision OHS OS OU OHU ID Overall OHS OS OU O HU 6.2 Borrowerperformance Rating L Preparation OHS OS OU OHU G Government implementation performance O HS * S 0 U 0 HU I lmplementation agency performance OIHS OS 0 U 0 HU Li Overall OHS OS OU 0 HU -34 - Annex 7. List of Supporting Documents * "Gabon, Forestry and Environment Project" - Staff Appraisal report, June 10, 1992, WB report No 10503-GAB 0 "Projet Forets et Environnement - Revue a mi-parcours" - Evaluation report, Julyl996, Comit6 de Supervision et de Suivi du PFE * "Etude des acquis du PFE et de leur p6rennisation" - Final report of the study, TECSULT, February 2002. * "Audit des proc6dures de passations de march6 du PFE" - Final report of the study, Pricewaterhouse/Coopers, April 2002. * Supervision and monitoring reports, procurement documents and missions aide-memoires in project files * "Rapport de fin de projet". PFE, June 2002. * "Accord de pret (Projet Foret Environnement) entre la R6publique Gabonaise et la BIRD". January 1993. Quality of Supervision of Risky Projects (FYOO-01), summary assesment sheet and guidance questionnaire. -35 - I MAP SECTION 50' I C l l4 C A M E R 0 0 N / ~ 0 rO Ebw.ke JOO To Songsoo Ebeyi Eb t - 7' ( , '~~~Bison - Ebmo.ns 2- 01 Ej/ 2 f E Q U A T O R I A L ssokNgo 1 , G U I -N E A T 5 Coboac(IO MUNI) ) an Co.p kserios,,:/ /M t' Mdioo 7 0 - CpS_ran Ataah_ D 0 2 To Atko- LIBREVILLE L.og- A T o . r~~~~~~~~~~~ Mean Kg)amkyang / - Cq x e.,r? *et ci G 0 0 u,f i \- &aN Pou~~~~~~~~~~P , ,0. f/kO,~~ O UYfadrebiV N / f ' \ / > ; r (O bi Ete'k'0~~~~~Rots ricpoe 2- bW R / 3k/ M 7etg S W ( epou \.,~~~~~~~~~~~~~~~~~~~no nceWunb Ok., ila Mbigo. thr oas anans setr6 Camor;NjuSo.R tOr,& 8 \ L9t GABRoutes Gom J E \ / \g- \ rFORESTRY AND cn hibrun~~Inaa g. ENVIRONMENT PROJECT C.en Per, ieu. ru nd Gas ATZA S /w I'/ C amsUonium SesnallyI nudtd ra >_Zzoon .i \ t V ~~~~~~~~~~~~~~~~Zijnc 15 A /L^/ < / <'~~~~~~~~~~~~~~~~~ 2 ~~Primory Roads 3 "rO' t t \ Sb ~~~~~~Route, Principoles Other Rords Mengonnde Autres Routes t F <} y CENT~~~~~~~~~~~~~~~~~~~~~~Ra -. Rilrords, Completed "Brt J sCENTRAL/ Ch Anirsf Reserves DorenierdAE P s Na R P I C . Oil Terminoly Region Capitals \rQ rio^^ter e z Jp. C3 8 100 }4o i*3 Iit t- Terminal Petraoher ia pNoonles to 01t0o555655 up -. up ny iqo ija 49 60 Natitioal A~pot onal apto / A rS AnLE~~Msot o Lb 80b' s ideb Copitole Notinobe T_ _ _ his ap hos b.n prepard by Tha worlfdaoks eiefaoloei riA pr,r,al SRegias Boundories A _ - uOCf.41Vnce of roleaef drs and s osti Lneh'.tyord. ures us.atte WeOd Air pronierens Regionales E o CONP tFo tR e estan tsd TNathe dionlsPo n 3 nrd and ike i,dorka sers ad - . \ n rop doriol iviP ply rh ~porl oftah WorldSankGr vtop, er.ir dpemeei - _ lesereaioval Boundaries E - i \ V - rm tILrn seba a f any oier7 or any erednmev or Tucpino of CFraptoie Ntieonles L-k G .: drtr vrh b-dd. nd-d*4 'S_ CATALOGUERSIFILE T- -e 1- Rennrt N.n 24900 Tr-. .,, R I Type: ICR