From Afforestation to Poverty Alleviation and Natural Forest Management From Afforestation to ... PDF
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WW OO RR LL DD BB AA NN KK OO PP EE RR AA TT II OO NN SS EE VV AA LL UU AA TT II OO NN DD EE PP AA RR TT MM EE NN TT CC hh inin aa : F: F roro CChhiinnaa mm T H E W O R L D B A N K A A ffoffo rr ee 1818 H Street, N.W. ss Washington, D.C. 20433, U.S.A. tatiotatio FFrroomm AAffffoorreessttaattiioonn nn Telephone: 202-477-1234 to to P P Facsimile: 202-477-6391 oo vv ttoo PPoovveerrttyy AAlllleevviiaattiioonn ee Telex: MCI 64145 WORLDBANK rr tyty MCI 248423 WORLDBANK A A llelle Internet: www.worldbank.org viavia aanndd NNaattuurraall FFoorreesstt Email: [email protected] tiotio nn a a nn dd N N MMaannaaggeemmeenntt aa tutu rr aa l Fl F oo rr ee st Mst M EEvvaalluuaattiioonn CCoouunnttrryy CCaassee SSttuuddyy SSeerriieess aa nn aa gg ee mm ee nn tt TT hh ee WW oo rldrld BB aa nn kk IISSBBNN 00--88221133--44775599--44 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 1818 H Street, N.W. Washington, D.C. 20433, U.S.A. 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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
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