Alleviating Poverty through Forest Development Alleviating Poverty through Forest Development

221 Pages·2000·0.72 MB·English

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OPERATIONS EVALUATION DEPARTMENT THE WORLD BANK OED EVALUATION
COUNTRY CASE STUDY SERIES
ENHANCING DEVELOPMENT EFFECTIVENESS
THROUGH EXCELLENCE AND INDEPENDENCE IN EVALUATION FORESTRY
The Operations Evaluation Department (OED) is an independent unit within the Brazil Forests in the Balance: Challenges of Conservation with Development
World Bank; it reports directly to the Bank’s Board of Executive Directors. OED China From Afforestation to Poverty Alleviation and Natural Forest Management
assesses what works, and what does not; how a borrower plans to run and maintain a Costa Rica Forest Strategy and the Evolution of Land Use
project; and the lasting contribution of the Bank to a country’s overall development. India Alleviating Poverty through Forest Development
The goals of evaluation are to learn from experience, to provide an objective basis for Indonesia The Challenges of World Bank Involvement in Forests
assessing the results of the Bank’s work, and to provide accountability in the
achievement of its objectives. It also improves Bank work by identifying and
disseminating the lessons learned from experience and by framing recommendations POST-CONFLICT RECONSTRUCTION
drawn from evaluation findings.
Bosnia and Herzegovina
El Salvador
Uganda
OPERATIONS EVALUATION DEPARTMENT THE WORLD BANK OED EVALUATION
COUNTRY CASE STUDY SERIES
ENHANCING DEVELOPMENT EFFECTIVENESS
THROUGH EXCELLENCE AND INDEPENDENCE IN EVALUATION FORESTRY
The Operations Evaluation Department (OED) is an independent unit within the Brazil Forests in the Balance: Challenges of Conservation with Development
World Bank; it reports directly to the Bank’s Board of Executive Directors. OED China From Afforestation to Poverty Alleviation and Natural Forest Management
assesses what works, and what does not; how a borrower plans to run and maintain a Costa Rica Forest Strategy and the Evolution of Land Use
project; and the lasting contribution of the Bank to a country’s overall development. India Alleviating Poverty through Forest Development
The goals of evaluation are to learn from experience, to provide an objective basis for Indonesia The Challenges of World Bank Involvement in Forests
assessing the results of the Bank’s work, and to provide accountability in the
achievement of its objectives. It also improves Bank work by identifying and
disseminating the lessons learned from experience and by framing recommendations POST-CONFLICT RECONSTRUCTION
drawn from evaluation findings.
Bosnia and Herzegovina
El Salvador
Uganda
W O R L D B A N K O P E R A T I O N S E V A L U A T I O N D E P A R T M E N T
India
Alleviating Poverty
through Forest
Development
Evaluation Country Case Study Series
Nalini Kumar
Naresh Saxena
Yoginder Alagh
Kinsuk Mitra
2000
The World Bank
www.worldbank.org/html/oed Washington, D.C.
Copyright © 2000
The International Bank for Reconstruction
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Table of Contents
Foreword vii
Acknowledgments xi
Acronyms xiii
Methodology xv
Summary xix
1.Introduction 1
PART I: FORESTS AND THE FOREST SECTOR IN INDIA
2.Changes in Forests and the Forest Sector Since 1991 7
How Much Forest Is There? 7
What Is the Value of the Forest? 9
What Are the Pressures on the Forest? 12
Who Controls the Forests? 16
What National and International Support Does the Forest
Sector Receive? 21
PART II: THE WORLD BANK AND INDIA
3.The World Bank and the Forests Since 1991 25
What Degree of Influence Does the Bank Have? 25
Analysis of the Bank Program: Post-1991 Lending 39
How Has the Bank Fared on Key Sectoral Issues? 51
How Has the Bank Performed? 77
Findings and Lessons 87
Annexes 95
A. The 1991 Forest Strategy 95
B. Forestry in India, A Time Line 97
C. Data Tables on Forest Resources in India 98
D.Projects in Agriculture, Environment, Infrastructure,
and Energy Sectors in the Period 1992–99 105
E. Summary Information on States with SLSW Projects 107
F. Alternative Positions on Policy Issues Concerning
Raw Material Needs of the Paper Industry in India 108
G.Factors that Supported Policy Reversal in 1988 121
H.Reforms in Post-1991 Projects: Madhya Pradesh
Forestry 123
I. Gender Issues in the Forest Sector 124
J. How Many People Are Economically Dependent
on Forests? 127
K. Jhabua (Madhya Pradesh)—A Success Story 131
L. World Bank Lending Portfolio for India 133
M.Summary Proceedings of New Delhi Workshop 154
Endnotes 167
Bibliography 181
Boxes
Box 1.1 Bank Forest Strategy: The 1991 Forest Paper
and the 1993 Operational Policy Directive 2
Box 1.2. The Operations Evaluation Department Review
of the 1991 Forest Strategy and Its Implementation 5
Box 2.1. Harvesting of Timber 11
Box 2.2. Marketing of NTFPs 13
Box 2.3. The Birth of Joint Forest Management 18
Box 2.4. Distribution of Power Between Center and State 19
Box 2.5. Categories of Protected Areas 21
Box 3.1. World Bank Safeguard Policies and India’s Forests 27
Box 3.2. Design Weaknesses of SF Projects 36
Box 3.3. Conflicts and Constraints in JFM 42
Box 3.4. The Bank Projects: Implementation Problems 43
Box 3.5. Andhra Pradesh: A Success Story 44
Box 3.6. Fundamental Issues in Research 48
Box 3.7. Controversial Issues in Biodiversity Conservation 50
Box 3.8. An Evaluative Framework on Participation 64
Box 3.9. Forests and Poverty 68
Box 3.10. Silvicultural Practices for Bamboo 70
Box 3.11. Tribal Development Strategy in Post-1992 Projects 72
Box 3.12. Gender in Bank-financed Forest Sector Projects 75
Box 3.13. Some Elements of a Possible Strategy for
Wasteland Development and Afforestation 78
Tables
Table A. Some Major Issues in the Forest Sector xvii
Table 2.1. FAO Estimated Forest Cover, 1980–95 8
Table 2.2. FSI Estimated Forest Cover, 1987–97 8
Table 2.3. Alternative Estimates of Demand and Projections
for Industrial Wood (m3 thousands) 10
Table 2.4. Forest Area Diverted to Non-Forest Use, 1951–80 14
Table 3.1. World Bank Lending in the Forest Sector in India 26
Table 3.2. World Bank Lending to India by Sector, 1984–99 30
Table 3.3. Management Objectives for Area under
Different Kinds of Tree Cover 40
Table 3.4. Policy Issues with Implications for the Forest Sector 54
Table 3.5. Summary Evaluation of the Implementation
of the 1991 Forest Strategy in India 86
Figures
Figure 2.1. Actual Forest Cover, 1997 Assessment 8
Foreword
This case study is one of six evaluations of the implementation of the
World Bank’s 1991 Forest Strategy. This and the other cases (Brazil,
Cameroon, China, Costa Rica, and Indonesia) complement a review of
the entire set of lending and nonlending activities of the World Bank
Group (IBRD, IDA, IFC, and MIGA) and the Global Environment Fa-
cility (GEF) that are pertinent to the Bank Group’s implementation of
the forest strategy. Together these constitute inputs into a World Bank
Operations Evaluation Department (OED) synthesis report entitled The
World Bank’s 1991 Forest Strategy and Its Implementation. This forest
strategy evaluation was carried out under the overall direction of Uma
Lele.
The purpose of each of the six country studies has been to under-
stand the implementation of the 1991 Forest Strategy in Bank opera-
tions and to obtain the views of the various stakeholders in the country
about the involvement of the Bank. In doing so, the study team has not
only examined the Bank’s forest program but also endeavored to place
the Bank’s activities in the broader context of what the country and
other donors have been doing in the forest sector. Therefore, each coun-
try study examined the overall development of the country’s forest sec-
tor. While this naturally includes environmental impacts on forests, such
as degradation, biodiversity loss, and deforestation, it also encompasses
the economic uses of forests, including the management of forest re-
sources for production, the role of forest development in poverty alle-
viation, and the impacts of forest research and development.
vii
India: Alleviating Poverty through Forest Development
The evaluation of the Bank’s performance in these studies, as always
in OED studies, seeks to judge whether the Bank has “done the right
things” and “done things right.” Here, OED also seeks to judge whether
the Bank has lived up to the commitments made in its 1991 Forest Strat-
egy. The case studies do this by examining how the Bank, using the
various lending and nonlending instruments at its command, has inter-
acted with the sector’s development processes, with other donors, and
with the broader government objectives of economic growth, poverty
alleviation, and environmental sustainability. Thus, the studies focus
on policy in the post-1991 period, but they also recognize that the Bank
does not operate in isolation from its historical interactions with a coun-
try and its needs. These interactions include the Country Assistance
Strategies or their predecessors, Economic and Sector Work, as well as
all investments in all sectors and all policy dialogue that is pertinent to
the Bank’s actions and their outcomes in the forest sector. Together,
these activities constitute the Bank’s implementation of its forest strat-
egy in a country.
The important questions these country studies address are as follows:
• How have the forces of development effected change in the
country’s forest sector?
• Did the Bank’s 1991 Forest Strategy make a difference to its forest
strategy in the country, or was this strategy largely a result of the
Bank’s historical relationship with the country, the needs articu-
lated by the government, or a combination of both?
• Regardless of how the Bank’s forest sector strategy evolved, how
consistent was it with the Bank’s 1991 Forest Strategy?
• How consistent was the country’s own forest policy/strategy with
the Bank’s 1991 Forest Strategy?
• Was the Bank’s overall and forest sector strategy in the country
relevant to the country’s needs in the forest sector, as identified by
the country?
• Were the Bank’s overall and forest sector activities effective from
the viewpoint of the intentions of its 1991 Forest Strategy?
• Were the Bank’s activities efficient?
• Did the Bank’s activities achieve policy and institutional develop-
ment pertinent to forest sector management?
• Are the Bank’s impacts likely to be sustainable?
viii