From Afforestation to Poverty Alleviation and Natural Forest

216 Pages·2000·0.76 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
China
From Afforestation to
Poverty Alleviation
and Natural Forest
Management
Evaluation Country Case Study Series
Scott Rozelle
Jikun Huang
Syed Arif Husain
Aaron Zazueta
2000
The World Bank
www.worldbank.org/html/oed Washington, D.C.
Copyright © 2000
The International Bank for Reconstruction
and Development/THE WORLD BANK
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Table of Contents
Foreword vii
Acknowledgments xi
Acronyms xv
Summary xvii
1.Introduction 1
PART I: THE STATE OF CHINA’S FORESTS
2.Role of the Forest Sector in China’s Economy 5
3.Forest Resource Management 9
4.Forest Resource Status and Trends 13
Timber 14
Shelterbelts and Commercial Plantations 17
Accounting for Forest Cover Changes 18
China’s Forest Volume 19
5.Land Degradation and Other Rural Environmental Problems 23
The State of China’s Rural Environment and Resource Base 25
6.Policy Reforms in China’s State and Collective Forest Regions 29
Reforming the State-Run Sector 30
Reforming the Collective Sector 30
Reforms in the Rest of the Economy 31
7.Rural Environment Protection Policy 33
Laws 33
Institutions 35
Environmental Policy Implementation Problems in China 37
Fiscal Environment 39
8.Land Tenure and Forests—Evidence from China’s Villages 41
General Findings 42
Changes in Forest Land Tenure 42
Population Growth and Changes in Agricultural Production 43
Shifting the Structure of Forest Land Use 44
Land Tenure and Afforestation 44
Results of Multivariate Analysis 44
PART II: INFLUENCE AND IMPACT OF THE WORLD BANK
9.The Bank Portfolio in China 47
Portfolio Analysis 47
Forest and Forest Component Projects in China 49
Quality Assurance Group Ratings for China Projects 49
Operations Evaluation Department Ratings for China Projects 50
Non-Lending Activities 52
Forest Sector Projects Before 1991 53
Forest Sector Projects Since 1991 57
Pending Project 61
Projects with Forest Sector Components 61
Projects that Impact Forests 63
Global Environment Facility Grants to China 66
10. An Evaluation of the Bank’s Forest Sector Work in China 69
Relevance 73
Efficacy 80
Efficiency 83
Sustainability and Institutional Capacity Building 86
Impact on Poverty 88
Summary Ratings 89
11. Conclusions and Future Directions 91
Success Factors in China 92
Success Factors in the Bank 94
Implications for the Future 95
Annexes
A. Supplemental Tables 99
B. The 1991 Forest Strategy 140
C. Data 142
D. Types of Forests 143
E. Methodology for Analysis of Projects with Impact
on Forests 144
F. Analysis of Change in the 1980s 146
G. Changes in the 1990s: Economic Forces, Policy,
and Other Factors 149
H. Multivariate Analysis: Village Level Analysis of
Tenure and Policy Impacts on Forest Resources 159
I. Criteria for Selecting Impact Projects 161
J. China/World Bank GEF Pipeline Discussions 162
K. Report on Case Study Workshop 173
Endnotes 185
Bibliography 189
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 3
Box 2.1. Socioeconomic Impact of the Logging Ban 6
Box 5.1. Giant Pandas and China’s Forests 27
Box 8.1. Methodology of the Village Land Tenure Study 42
Box 9.1. Treatment of Forests in Staff Appraisal Reports 64
Box 9.2. Treatment of Forests in Environmental Impact
Assessments 65
Box 9.3. Safeguarding the Environment through Forest
Strategy Implementation 66
Box 9.4. Reserve Management Progresses under GEF Project 67
Box 10.1. The Lingering Policy Opportunity in Wood
Processing 72
Box 10.2. Estimating Rates of Return for Forestry Projects 84
Tables
Table 3.1. Forest Cover and Forest Volume in China,
Late 1970s to Late 1980s 11
Table 4.1. Change in Forest Cover and Forest Volume in China,
1980–93 14
Table 4.2. Accounting for Changes in Total Forest Areas,
1980–93 18
Table 4.3. Timber Resources and Production in China,
1980–93 20
Table 7.1. National Investment in Environmental Protection,
1991–95 40
Table 9.1. Agriculture and the Forest Sector in the World
Bank’s China Portfolio, 1980–98 48
Table 10.1. Imports of Wood Products, Pulp, and Paper
into China, 1993–98 77
Table 10.2. Balance Sheet for Forest Product Supply and
Demand 78
Table 10.3. Summary of OED Reviews for Forest Sector
Credits in China, 1985–98 81
Table 10.4. Summary of QAG Reviews for Forest Sector
Credits in China, 1985–98 83
Table 10.5. Summary Evaluation of the Implementation
of the 1991 Forest Strategy in China 90
Figures
Figure 4.1. Cumulative Area of New Afforestation and
Reforestation on Engineered Plantations, 1980–93 15
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, Costa Rica, India, 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