Document of

The World Bank

FOR OFFICIAL USE ONLY

MICROFICHE COPY

Report No. 10370-MLI Type: (SAR)HALL, J. / X34999 / J9 135/ AF5AG

STAFF APPRAISAL REPORT

MALI

NATURAL RESOURCE MANAGEMENT PROJECT

MAY 1, 1992

Africa RegionSahelian DepartmentAgriculture Department

lbis document has a restricted distribution and may be used by recipients only in the performance oftheir official duties. Its contents may not otherwise be disclosed without World Bank authorization.

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CURRENCY EQUIVALENTS

Currency Unit i CFA Franc (CFAF)USS 1.00 - CFAF 272

WEIGHTS i MEASURES

Metric System

GOVERNMENT FISCAL YEAR

Janubry 1 - December 31

ABBREVIATIONS AND ACRONYMS

AV Village Association(Association VillagsoiLe)

AVV Extension Agent(Anim1teur-VulguLrissteur V&llageois)

CCA-ONG Non Government Organization Action Coordinating Comnittee(Comite de Coordination des Actions des Organisations nonGouvernementales)

CILSS Sahelian Inter-State Comnittee of Drought Control(Comite Inter-Etat de Lutte Contre la Secheresse dans Is Sahel)

CCCE French Central Economic Cooperation Fund(Caikes Centrals de Cooperation Economique)

cIMU Central Implementing and Monitoring Unit(Unit# de Mise en Oeuvre et de Suivi)

CLD Local Development Committee(Comitl Local de Developpement)

CHDT Malian Cotton Company(Compagnie Malianne pour le Developpement du Textile)

CRD Regional Development Coanittes(Comitd Regional de Ddveloppement)

DAF Administrative and Financial Department of MAZE(Direction Administrative et Financiore du MAZE)

DNA National Directorate of Agriculture(Direction Nationale de l Agriculture)

DNACOP National Directorate of Cooperatives(Direction Nationale de 1 Action CoopErative)

DNE National Directorate of Livestock Production(Direction Nationale de 1 Elevage)

DNEF National Directorate of Water and Forestry(Direction Nationale des Eaux et Forets)

DNGR National Directorate of Rural Infrastructure(Direction Nationale du Genie Rural)

EIS Environmental Information System(Systeme dlInformation our I'Environnement)

ESHAP Energy Sector Management Assistance Program(Programme de Gestion du Secteur Energdtique)

FAO Food and Agriculture Organization(Organisation des Nations Unies pour 1'Agriculture at1 Alimentation)

GIS Geographic Information System(Syeteme dlInformation Gdographique)

GTV Village Land Management(Gestion du Terroir Villageosa)

GTZ German Technical Cooperation(Cooperation Technique Allemande)

IDA International Development Agency(Agence du Developpement International)

IER Rural Economy Institute(Institut d Economie Rurale)

INSAN Sahelian Institute (CILSS)(Institut du Sahel (CILSS))

MAEE Ministry of Agriculture. Livestock and Environment(MinistEre de l'Agriculture. lElevage et 1PEnvironnement)

NRM Natural Resource Management(Gestion des Resources Naturelles)

OAPF Forestry Management Operation(Operation d'Amdnagament et Production Foreastiere)

OPNBB BaoulE National Park Authority(Office du Parc National de la ioucle du Uaould)

PDRH Mopti Area Development Project(Projet de Dveloppement de la Region de Mopti)

PNCC Project National Coordinating Comnittee(ComitE National de Coordination)

PNLCD National Program of Desertification Control(Programse National de Lutte Contre le Desertification)

TST Technical Support Teams(Equip. d'Appui Technique)

UNDP United Nations Development Program(Programme de Diveloppement des Nations Unies)

UNESCO United Nations Educational, Scientific, and Cultural Organization(Organisation des Nations Unies pour la Culture)

UNSO United Nations Sudanno Sahelian Office(Organisation dea Nations Unies pour 1. Sahel Occidental)

FOR OFFICIAL USE ONLY

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REPUBLIC OF MALI

NATURAL RESOtRCE MANAGEMENT PROJECT

STAFF APPRAISAL REPORT

TABLE OF CONTENTS

Pate No.

ABBREVIATIONS AND ACRONYMS ...................................i

CREDIT AND PROJECT SUMMARY.................................................. vi

1. BACKGROUNDs . *.o.*o9ooe .os.9oa9ooo#a9* .1

S. Introduction c.m....................................................lB. The Malian Economy ..............C. The Agricultural Sector ............................D. Natural Resource Management .......... t ... 3E. Government Objectives and Strategy for Natural Resource Management.... 5F. IDA Strategy ............................... 60. ExperiencewithPastLending ......................................... 7

This report is based on the findings of an appraisal mission carried out in Malifrom November 18 to December 14, 1991. The mission included World Bank staff:J. Hall (Mission leader), Mo. C. Dejou (Agro-economist), J. Lewis (Ecologist),W. Lusigi (Environmentalist), Q. Doan (Extension), GTZ staffs C. Ehrich (Teamleader), Ms. V. Koite (Training), E. Dudeck (Land planner), G. Daraspe(Monitoring and evaluation); Malian Counterpartst S. Bouare (Team leader), M.Diarra (Institutions), Y. Berthe (Environment), D. Sylla (Training), Ag Hamaty(Forestry), Ms. M. Diarra (WID) and Consultants from UNSO: J. Bonnemayer(Environmental information); UNDP: P. Dejace (Bio diversity); and IDA: D. Wall(Adult Training), J. Sabet (Technologies), and Ms. N. Lansry (Gender issue). Themission was accompanied by donor representativest H. Hertel (G72) and V.Papazian (CCCE). Peer reviewers are Messrs F. Falloux (AFTEN), S. Rietberger(APTAG) and J. Silverman (AFTIM). Ms. J. Masterson was responsible for cost,financing, disbursement and procurement aspects and supervised the COSTAB inputwhich was processed by Mrs. Guillemette Rohan-Schieferstein and Ms. Marie-ClaireTsang. Ms. K. Marshall and S. Darghouth are the Department Director and theManaging Division Chief respectively for the operations.

This document has a restricted distribution and may be used by recipients only In the performanceof their omcial duties. Its contents may not otherwie be disclosed without World Bank authorization.

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Table of Contents (continued)Pages

II. PROJECT BACKGROUNG ................ 10

A. Institutional Set-up ............... ,,, 1B. Ongoing Natural Resource Mar.ag8 wnt Projects .........llC. The Community Natural Ressource Management Approach..13D. Status of Projact Preparation ... ..... 14

III. THE PROJECT..,...... ,............16

A. Rationale and Objectives............. .. ... .. ....... . . .16B. Summary Description .................. . * * ** -**.16C. Detailed Features 1 7...... ................. 17

1. Community Resource Management ..................... 172. Baoule National Park and Biosphere Reserve ........193. Institutional Support for Government Services .....194. Skills Development and Public Awareness ...........215. Technical Assistance and Research...........o.s.21

F. Procurement ....................................... 24

G. Disbursements .......................................28

IV. PROJECT IMPLEMENTATION ........... .. .. . .... ....... .30

A. Project Organization ............... ......... . , . 30B. Implementation of Project Components ................32C. Coordination with Other Projects and Programs.......37D. Monitoring and Evaluation ....................... 39E. Financial Management, Accounting, and Audits ........40F. Supervision and Mid-term Review .....................42G. Environmental Impact ................. . 43

V. PROJECT BENEFITS. RISKS. AND SUSTAINABILITY ............. 45

A. Benefits ............................................ 45B. Ri skees. . . . .. . . . . . . . . . * . * . . . .9 9 9 9 9 9 9 . .. . . . . . .. 0 * . . 46C. Project Sustainability .............................. 47

V. AGREEMENTS TO BE REACHED AND RECOMMENDATIONS .... 48

ANNEXES1. Natural Resource Management2. List of Pilot Operations3. Menu of Appropriate Technologies4. Project Area5. Project Cost Tables

- Table 1s Summary Accounts Cost Summary- Table 2: Project Cost Summary- Table 3S Summary Accounts by Project Component- Table 4: Summary Accounts by Year

6. Schedule of Disbursement.7. Project Implementation Schedule8. Project Supervisiont Schedule9. Project Key Indicators10. Organisation Chart

11. Proposed Technical Assistance12. Content of the Project Implementation Volume

MU

IDED No. 23503 I4aliP Sois and RainfallIBID No. 23502 The Project Area

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MALI

NATURAL RESOURCE MANAGEIENT PROJECT

CREDIT AND PROJECT SUMMARY

Borrower Republic of Mali

Beneficiaries s Farmers and herders (approximately 95,000persons in 150 villages located in 3 regions ofMali

Amount : SDR 15.0 million (US$20.4 million)

Terms : Standard, with 40 years maturity

Project Descri2tion : The Project is the first five-year timeslice ofa long-term national program to provide thenecessary support to village communities toenable them to establish, implement, and monitorvillage management plans covering the naturalresources in their communities. The maincomponents of the Project are: (a) village-level investments to stop the degradation ofsoil, water, and natural vegetation and toestablish infrastructure, and productivefacilities with immediate, direct impact on thecommunities' quality of life, in about 150villages within three of Mali's eightadministrative regions; (b) modification of theboundaries of the Baoule National Park andimplementation of a long-term management plan;(c) support to Government services at regionaland local levels to assist villagers to set up,implement, and monitor community naturalresource management plans; (d) support to thenewly created Planning, Monitoring andEvaluation Department within the Ministry ofAgriculture, Livestock and Environment, inestablishing an environmental informationsystem; (e) implementation of a training andpublic awareness program; and (f) technicalassistance, consultant services, appliedresearch and technical studies.

Economic Rate of Return a Not applicable

Benefits and Risks The Project will help improve the quality oflife of about 95,000 rural people living in theproject area by (a) improving agriculture,

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forestry, and livestock production performance;(b) strengthening local management capabilitiesand empowering villagers to manage their owndevelopment; and (c) restoring ecologicalstability and introducing a sustainable land-usesystem which would seek to balance productionagainst resource consumption. Environment andresource management experiences would beavailable for extension to other parts of Malinot covered by the Project. Mali's capacity toimprove the use of natural resources and tomonitor changes over the short and long-termwould be strengthened. The preservation ofMali's biodiversity for future generations wouldbe tided through the sound management of theBaoule National Park with the participation oflocal population. The Project would lay anexcellent foundation for the development of aNational Environmental Action Plan for Mali.

RISKS: The risks are: (a) a possible falloff in thedegree of political commitment shown by theGovernment; (b) insufficient understanding andpoor implementation of the community naturalresource management approach, since it requiresskills very different from those involved inconventional top-down practices; and (c)insufficient authority of the CentralImplementation and Monitoring Unit, which mightundermine its efforts to build up a nationalcapacity to coordinate natural resourcemanagement activities. To minimize these risks,the following actions will be taken: (a)together with other donors, IDA will encouragereforms likely to contribute to effectiveadm:nistrative aecentralization; (b) projectimplementation will be supported by wellfocussed supervision; and (c) futuredevelopments aiming at addressing environmentalissues comprehensively will be closely monitoredand encouraged.

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Estimated Costs and Financins Plan

Estimated Costs !/ Local Foreiat _ Total

Village Level Investments 6.1 9.5 16.6Baoul* National Park 0.8 1.1 1.9Field Technical Support 2.2 0.8 3.0Central Implementation andMonitoring Unit 0.6 0.2 0.7Skills Development and PublicAwarones. 2.0 - 2.0TA, Research and Studies 0.6 2.8 2.9National Environmental MonitoringUnit 0.2 0.6 0.7Refinancing of PPF 0.2 0 0.2

Total Base Costs 12.6 14.4 27.0

Physical ContingenciesPric- Contingencies 0.8 1.8 2.1Total Project Costs 1.2 1.8 3.0

146 I 17-. 32.1

I/ Not of identifiable taxes and duties

(US$ m) _____

Financing Plan- Local Foreign Total

Beneficiaries 4.0 - 4.0IDA 5.4 15.0 20.4Norway 3.3 1.7 5.0Germany 1.0 0.2 1.2UNDP 0.9 0.6 1.6TOTAL ii7§ 17 6-1

(USS m)

IDA FISCAL YEAR

Estimated IDA Disbursements b/ 99 94 96 98 97 98

Annual 0.6 | 8.1 4 4 | 6.5 | 8.3 | 1.6 | 0.4

Cumulative 0.6 8.7 8.8 15.1 18.4 20.0 20.4

hi Projections are identical to the standard disbursement profile for agriculture projects inMail with the exception of FY96 where one semester is compr-ssed and the percentage becomes62% instead of 54%.

REPUBLIC OF MALI

NATURAL RESOURCE MANAGEMENT PROJECS

STAFF APPRAUISAL REPORT

I. BACKGROUND

A. Introduction

1.01 The proposed project would start a process under which the currenttrend of natural resource degradation, which is threatening the livelihood ofMali's rural and urban populations, would be progressively slowed, stopped,and reversed. This would be achieved through the design and implementation,by village communities, of their own community-based Natural ResourceManagement (NRM) Plans. These NRM plans would be designed to ensure thesustainable use of land, water, natural vegetation and wildlife resourcesthrough an innovative participatory and inter-sectoral approach (para. 2.13).Similar approaches have already been tested and developed in many pilotoperations in Mali (para. 2.05) &nd in other Sahelian countries. The Projectwould not address other environmental protection issues such as urban growthand pollution, since these would be dealt with by a National EnvironmentalAction Plan to be implsaiented in the future, based partially upon the resultsof the proposed project (para. 1.16).

3. The Malian Economy

1.02 With a per capita income of US$270 (1990), Mali is one of theworld's poorest countries. A landlocked country covering 1,241,000 km', Malihad a population of 8.5 million in 1990 and an annual population growth rateof 2.5 percent. Eighty percent of the population lives in rural areas;population density ranges from 22 inhabitants per km2 in Segou to 1 inhabitantper km2 in the Tombouctou and Gao regions. A large area in the south (140,000km2) previously affected by onchocerciasis (river blindness) has beenpartially freed of the disease by a campaign launched in 1974, and is nowbeing intensively developed fe: cotton production. Obstacles to economicdevelopment include the meager resource base, the poor infrastructure, and ahighly variable climate. The Malian economy is extremely dependent uponagriculture and, in particular, on cotton and cereals. Growth in theagricultural sector is constrained by low rainfall, fragile soils, and the lowproductivity of traditional technologies. A literacy rate of only 17 percentand one of the world's lowest primary school enrollment rates are additionalobstacles to long-term development.

1.03 The Malian Government has pursued adjustment and stabilizationefforts since 1982, and the country has shown strong adjustment performanceover the past four years. In mid-1988, it started implementing a medium-termadjustment program as defined in a first Policy Framework Paper (PFP) for1988-90. A second PFP for the 1990-92 period was approved in early 1990.

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After a temporary disruption of economic activity in the wake of the March1991 events, the transition Government quickly agreed with the Bank and theIMF on a revised macroeconomic framework for 1991, which was implementedsatisfactorily. A third PFP is currently being considered. Structuralmeasures implemented since 1988 have included the price liberalization for allproducts except petroleum, the easing of regulatory procedures, the abolitionof quantitative trade restrictions, and tax reform. A public enterprisesector adjustment program has been implemented. Three adjustment operationsare currently in progress: Education, Structural Adjustment, and Agriculture.In the agricultural sector, the Government's reform program focuses on (a)restructuring the cotton subsector and implementing a performance contractbetween the Government and CMDT, the national cotton company: (b) liberalizingthe cereals subsector and implementing a performance contract between theGovernment and OPAM, the cereals marketing agency; (c) selected institutionalreforms for the rural development agencies; and (d) natural resourcemanagement and land tenure studies.

1.04 The policies implemented since 1988, combined with relativelyfavorable weather, have spurred average real GDP growth of 3.4 percent perannum. Macroeconomic performance was weaker in 1991 as a result of poorerweather and the social unrest in early 1991. Fiscal management has improvedgreatly in recent years, with the overall Government budget deficit beforegrants falling steadily from a peak of 15.3 percent of GDP in 1985 to 7.7percent of GDP in 1990, although it rose again to 11.3 percent in 1991 due tothe aforementioned disruptions. Mali's external accounts have also improvedsignificantly since the mid-1980s: the balance of payments has recordedsurpluses since 1988 after more than a decade of consecutive deficits.

C. The Agricultural Sector

1.05 Mali's agroclimatic zones range from Saharan to Guinean (see Map1). Climatic factors account for the extreme diversity of the country'svegetation and agricultural potential. The northern Saharan zone covers about50 percent of the country; it receives less than 150 mm of rainfall andsupplies less than 10 percent of the total grazing biomass. The Sahelian zonecovers about 20 percent of Malian territory and receives 200 - 600 mm ofrainfall; outside of the Niger Inner Delta, rainfed crop production here isconcentrated on coarse grains (i.e., sorghum and millet). The Sudaniansavannah covers 25 percent of the country and receives good rainfall (600-1,200 mm), while the Sudano-Guinean zone (5 percent of total area) has thehighest agricultural potential as well as the highest population density.

1.06 Agriculture in Mali is primarily rainfed, although majorirrigation schemes exist for rice cultivation. Cereals, mostly sorghum/milletand maize, are the most important food crops. They are grown by 90 percent offarmers and contribute about 25 percent of GDP. Cereals are primarilycultivated for home consumption; only about 20 percent of total production ismarketed. Rice is also a major consumption item, but mostly in urban areas.It is grown in large-scale irrigation schemes (mainly the Office du Niger,Operation Riz Mopti and Operation Riz Segou) and in lowland plantations(particularly in the Mali-Sud Region). Cotton, the most important cash crop,is also Mali's major export crop, representing 45 percent of foreign exchangeearnings. Livestock is the second most important agricultural export,accounting for about 30 percent of total exports, but it is actually the

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country's most important agricultural activity, occupying an important placein all agricultural production systems. The Touareg and some Peul tribesmenin the north of the country are pure pastoralists, deriving all of theirlivelihood from herding. Farmers in the central and southern part of thecountry use livestock (mainly oxen) for plowing and as sources of manure forfertilizer. The animals produce milk, mainly for home consumption, and meat,both for market and home consumption. Animals are used for transport in bothpastoral and sedentary productian systems. Livestock production in Mali isbasically a low-input/low-output system, primarily depending on extensivegrazing of natural pastures. There are only a few large-scale, intensivecommercial dairy and poultry farms, and these are located outside Bamako andother urban centers.

1.07 The Malian economy is based to a considerable, but decl- igextent on the primary sector, whose share of GDP dropped from 58 percent in1981 to 49 percent in 1989. Since this falling-off was larger than thedecrease in the active population employed in agriculture, the result '-as beena drop in agricultural income for the rural population as a whole. Whilearable land totals 11.4 million ha, the area actually under cultivation in1989 was 2.8 million ha. The recent increase in sorghum and millet production(from 654,000 tons in 1980-81 to 1.9 million tons in 1988-89) appears to bedue, in addition to increases in cultivated area (from 1.4 million ha in 198n-81 to 1.97 million ha in 1988-89), to the temporarily higher fertility of newlands. Traditional transhumant grazing systems are encountering majordifficulties due to shrinking rangelands and competition with crops. This hascaused a drift of herds from the Sahelian to the Sudanian zone, the transferof stock ownership from herders to farmers and traders, and the progressivecollapse of traditional transhumant production systems.

D. Natural Resource Management

1.08 Degradation of Natural Resources. The major constraints affectingthe management of soil, water, vegetation and biodiversity in Mali are: (a)population growth, which has put unsustainable pressure on agricultural andnon-agricultural lands (forest, rangeland, bush fallow), overtaxed soilfertility, polluted water supplies, and caused a loss of biodiversity; (b) theoverlap of traditional land tenure arrangements and of Government regulationsthat have jeopardized time-tested traditional practices without replacing themwith viable modern alternatives; (c) a slow cattle market which has caused anaccumulation of unproductive animals; and (d) certain production practices,such as slash-and-burn agriculture a-a herd expansion, which may have beenrelevant in the past but have proven so be inefficient and highly destructiveof the resource base. It should be kept in mind, however, that overgrazing,however extreme, is never as destructive as the cultivation of marginal land.

1.09 Over the past 30 years, rainfall in the entire Sahelian region,including Mali, has declined considerably, resulting in a southward shift ofisohyets of about 110 km, and a corresponding southward change in vegetationand climatic conditions suitable for various types of agriculture. Thepattern of degradation of Malian agriculture is characterized by: (a) missivesoil erosion by wind and water in volumes reaching 6.5 tons per ha per annum

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In the Guinean sones (b) loss of soil fertility leading to a progressivedecline In cotton yields in the south; (c) accelerated forest degradation dueto excessive fuelvood use within a 50 km radius of Bamako and a shorter radiusof maller ci.ieol td) overall degradation of rangeland due to overgrazing, asevidenced by the disappearance of palatable perennial species, which have beenreplaced by annual species; (e) lowering of the groundwater table by 6 to 12meters in some parts of the country over the past ten years; (f) a decline infish catches in the Niger from 120,000 tons to about 50,000 tons per annum inrecent years; and (g) accelerated loss of biodiversity, evidenced by thedisappearance of major big game species in the Baoule and Gourma areas. Thetrue extent of this trend and its permanence are open to debates researchershave found amazing resilie&ce in. the Northern Sahel, where good rains cancause good pasturas to spring up in places that have seen no vegetation for 20years.

1.10 A study of land degradation in Mali' est!mated losses from soilerosion in the country's most productive areas at 6.5 tons/ha/year, implyingthat, vith a 10-year horizon and a 10 discount rate, for example, the meanpresent value of net farm income forgone for each year of soil loss wouldrange between US$12 and US$43 per ha (1988 prlces). At the national level,gross losses from erosion were estimated at US$30 million to US$106 millionannually (15-5.3 percent of estimated 1988 GDP). The major practicalccnclusion of this study is that, even based on relatively conservativeassumptions, economic losses due to soil erosion in Mali are probably highenough in certain areas to justify snbstantial investments in farm-level soilconservation.

1.11 Thhe Baoule National Park and Biosuhere Reserve is the largestconservation area in Mali, with the broadest range of flora and fauna still tobe found in this part of West Africa (Map 2). The Baoule reserve complexconsists of the Baoule National Park (3,500 km2), and the Kougossambougou (950kW2), Badinko (1,930 km2) and Jina (1,630 km2) fauna reserves. The resourcesof the complex were documented in a Dutch-financed study in 1981. Managementof the park and reserves has been complicated by the presence in theconservation area of several villages that have grown over the years, bytranshumant herders' use of the area, and by rampant burning of vegetationboth by pastoralists and settlers. Poaching also occurs in the park, sincepark authorl_ies lack resources to enforce conservation laws.

1.12 Women in Natural Resource Management. Women are both victims andperpetrators of the rapid natural resource degradation in Malis they supplytheir households with water and fuelwood, participate in cropping activities,and often herd, feed and milk farm animals. Thus, women should be the maintarget of any program of improved natural resource management. However, as isthe case of most traditional ethnic communities, women are excluded fromdecisions affecting the community. They have little control over the natureand location of activities to be performed at the village level; they havelittle access to land ownership, formal credit, or schooling; and female

Josh Bishop *The On-site Costs of Soil Erosion in Mali%, WorldBank, 1989.

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extension agents. 'iho would be natural candidates to assist women's groups,are rare. Finally, those who develop and disseminate new technologies seldomconsider the possibility that those technologies will be implemented by women.There is growing concern about this situation in Mali. As a result, WIDspecialists are being hired by increasing numbers of NGOs and governmentdevelopment institutions.

1.13 Land Tenure. Existing .egislation has failed to promote effectiveland tenure practices and protect natural resources. Clashes among religious,traditional and modern laws governing land tenure have contributed toinsecurity of land ownership and consequently to overuse of lands and soils.A new strategy would define the lands to which religious/traditional rules areto apply and those that are to come under the modern laws of individual landownership. At the same time, studies should be carried out to determine thereasons for the unsatisfactory implementation,enforcement of existing naturalresource legislation, which may need revision in collaboration with localpopulations. According to studies carried out under the ongoing IDA-supportedAgricultural Sector Adjustment/Investment operatione, the problems arisingfrom existing land tenure practices and the possible solutions, vary widelydepending on the nature of the area, so that water (in the Niger Delta),rangeland (in the Sahelian zone), gazetted forest (close to Bamako), andagricultural land (CMDT 3rd Region) should all be treated differently.

1.14 En Mali, it is clear that the major land tenure issue is theforest code, which was legally enacted in 1986. It incorporates specialprovisions for trees and forests in the Sahelian zone. The area fallingwithin the general jurisdiction of the Forest Code la the 'forest domain",defined as all land not cultivated or planted to orchards, land in cities andtowns, and non-wooded parcels of land to which individuals have title underthe Code Domanial et Foncier (that is, surveyed and registered land, a minimalpercentage of the country's total area). About 90 percent of the Malianterritory is considered forest domain under the terms of the code. Cultivatedland which has been left fallow for more thea five years is considered part ofthe forest domain. All protected species listed in the code are protectedwherever they grow in the country, including in cultivated fields. Within theforest domain, territorial units are further classified as 'protectedforests', 'forest zeservesn, or 'p4rimbtres restauration". Cultivation andgrazing are forbidden in reserves, except in special circumstances and undercontrolled conditions. Subsistence farming is permitted in protected forests,as is grazing.

E. Government Obiectives and Strateav for Natural Resource Mananement

1.15 Land degradation is regarded by the Malian government as thecountry's single most serious environmental problem. The National Plan forDesertification Control (PNLCD), issued in 1985 and updated in 1987, manifestsa serious commitment to the issue. This comprehensive document includes eight

2 C. Coulibaly and G. Hesseling, 'Note sur la Problematique fonciere etla decentralisation au Mali', 1991.

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priority programs, most of which have begun and are at different stages ofimplementation: (a) a national land use planning program: many community NRMprojects have been implemented (see list in Annex 2), such as the three TestZones implemented by the PNLCD Monitoring Unit (para. 2.06); (b) "green belt'protection against desertificationt settlement protection against sand duneinvasion has been carried out in the 6th and 7th regions; Ic) coordination andmonitoring of the PNLCD program: national conferences have been held,including one workshop in November 1990, at which the community naturalresource management approach (para. 2.13) was acknowledged as the approach tobe applied under the PNLCD; (d) a national program of training and publicawarenesss NRM education programs promoted by the Permanent Inter-StateCommittee for Drought Control in the Sahel (CILSS) have been implemented atprimary-school, secondary-school and University levels; (e) an appropriateresearch program on desertification issues: A comprehensive AgriculturalResearch Project currently being prepared with the assistance of IDA; (f)strengthening and, when required, adjustment of ongoing NRH projects andprograms; the identification of .. wing projects for inclusion in amonitoring program was started by the PNLCD Monitoring Unit in 1991; (g)household energy-saving measures to save fuelwood: following a nationalimproved stoves extension program, the Energy Sector Management AssistanceProgram (ESMAP) strategy is being finalized; and (h) the enactment oflegislative, institutional and financial supporting measures: crucial policyissues have started to be addressed, one of these being land tenure, which wasdiscussed at a seminar held in November 1991.

1.16 In addition to the foregoing, the establishment of the PNLCD hascreated considerable environmental awaren.ess among technical staff and, to alesser extent, among the public. It has shown that a problem of suchdimensions cannot be tackled piecemeal, but that its solution requires acomprehensive and inter-sectoral program. Although the above initiatives havebeen targeted to the major constraints identified as affecting naturalresource management (para.1.08), they have fallen short of curbing thedegradation described in para 1.09. The Malian Government is aware of theseproblems and is actively pursuing solutions. One of the main responses is theuse of the innovative participatory approach (para. 2.13), already part of awide range of government interventions in the field of natural resourcemanagement. The Government is aware that the successful implementation ofthis new strategy will require lengthy testing and development, adaptation tolocal conditions, significant training and re-training, and an extensivepublic awareness program. The Government recently expressed its interest innatural resource development in the context of a comprehensive approach to allenvironmental issues, in the form of a National Environmental Action Plan(NEAP), to be prepared with the support of IDA and other donors. The databaseto be established under the proposed project will contribute to meeting theobjectives of the future NEAP.

F. IDA Strategy

1.17 IDA has recommended that the Halian Government's priorities in theagricultural sector should lie in the following five areas: (a) activeparticipation of villagers in the design and implementation of agriculturalpolicies, and providing them with maximum incentives (Agricultural Sector

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Adjustment/Investment operation); (b) improved technical support enablingvillagers to increase and diversify production (essentially by implementingthe ongoing Agricultural Services Program) (para. 4.23); (c) rehabilitation ofexisting irrigation schemes rather than building new ones (Office du Niger);(d) a comprehensive natural resource management program, and the establishmentof a new legal and institutional framework giving local communities moreauthority and accountability in its implementation; and (e) reforms aimed atstreamlining demand-driven services, intensifying production throughappropriate land use policies and extension, and improving the internationalcompetitiveness of Halian exports.

1.18 According to a recent review by the Bank of environmentalstrategies relevant to Mali, the causes of environmental degradation should beaddressed by:

(a) viewing the demographic problem as one component of a complexissue embracing population, agriculture and the environment;

(b) seeking economic and technological alternatives, relevant to bothmen and women, to ease pressure on resources, particularly throughthe intensification of agriculture and stockraising, provided thisis compatible with the preservation of basic resources;

(c) developing public awareness and intensifying all types of trainingrelative to the use and protection of natural resources;

(d) developing practical and acceptable solutions to problems oflegislation and land tenure;

(e) establishing planning procedures for land operations, starting atthe grassroots level and proceeding upward to the regional andnational levels;

(f) adapting macroeconomic policy to sustainable development; and

(g) encouraging the establishment and/or strengthening of institutionsand programs involved in the production and dissemination ofenvironmental information.

G. Experience With Past Lendint

1.19 IDA's Portfolio. The Bank's program in Mali has focusedincreasingly on the environment. The now-mandatory pre-appraisalenvironmental assessment of all projects is of special importance inagriculture and forestry, and water supply. In addition, environmentalconcerns are addressed to some extent in the urban and energy projects, aswell as indirectly in the education project. With respect to the agriculturaland forestry sectors, three ongoing projects should be mentioned. The MoptiArea Development Project (Cr. 1597-MLI), initially geared to agriculture andanimal health, has encouraged the creation of pastoral associations that willbe essential to the successful introduction of sustainable rangelandmanagement practices in the Sahelian part of the country. The Forestry II

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Project (Cr. 1654-MLI) was designed to address the increasing threat ofdeforestation, the diminishing supply of fuelvood, and biodiversityconservation. The Office du Niger Consolidation Project (Cr. 1906-MLI) aimsat rehabilitating and maintaining existing irrigation structures and improvingthe institution's management.

1.20 More recently, an Agricultural Services project (Cr. 2235-MLI) wasapproved that specifically provides for the dissemination by individual agentsof messages relevant to agricultural, livestock, and natural resourcemanagement. The Agricultural Sector Adjustment/Investment Loan (Cr. 2163-MLI), approved in 1990, addresses environmental concerns in two ways. First,in the context of preparation of the Mali Sud investment program, it providedfor a special environmental reconnaissance mission to identify, in theBougouni region, the measures needed to minimize potential adverse impacts ofthe development program. This mission mode a number of recommendations, onthe basis of which the project executing agency (CMDT) pledged tot (a)prepare a wildland management plan by March 1992, and a natural resourceinventory of the Bougouni region with numerous soil maps (completed); (b)monitor, on a regular basis, the impact of pesticide/fertilizer use on thewater quality of the Bani River; and (c) protect the region's cultural,historic and archaeological sites. Second, the adjustment component of thecredit supports certain natural resource management measures to be taken incoordination with preparation of the proposed Natural Resource ManagementProject, namely: (a) the full and appropriate staffing of the nationalcoordination unit; (b) the presentation of a national resource managementstrategy by July 1991; and (c) the completion of a study on traditional andmodern land use rights in different regions. A first set of studies on testoperations and legal issues in the area of land tenure in Mali has alreadybeen launched with CILSS and USAID financing. Based on the results of thosestudies. a second set of studies of local land tenure problems and solutionsshould be launched later this year.

1.21 The ongoing Health, Population and Rural Water Supply Project (Cr.2217-MLI) deals with several of the causes of environmental degradationdescribed above: the health component aims at increasing the coverage andquality of health care, focusing on decentralization and communityparticipation; the population component is designed both to strengthen theinstitutions in charge of disseminating and implementing the nationalpopulation policy and of planning, managing and evaluating family planningprograms, and to improve family planning services; the rural water supplycomponent aims to improve the supply of safe drinking water in rural areas.

1.22 Performance Assessment. Of the past agricultural projects, thetwo Mali'Sud operations (Cr. 669-MLI and Cr. 1415-MLI) were remarkablesuccesses as they have resulted in increasing cotton output by 40 percent overthe targets set at appraisal. The functional literacy programs included inthese operations have also made a particularly useful contribution to theestablishment and self-management of villagers' and herders' associations. Onthe other hand, a performance analysis of the free-standing livestock andforestry projects indicates that these projects were not as effective asinitially planned. While there were many different reasons for this, four keyproblems kept reappearing:

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(a) the projects ignored the crucial inte:-sectoral linkagesthat are essential in any rural environment. The proposedNRM Project would deal simultaneously with all subsectoralaspects (pastoral, agricultural, forestry) of villagers'production systems (para. 2.13);

(b) the local communities were insufficiently involved inproject planning and implementation and, therefore, hadlittle incentive to participate (Mali Livestock Project (Cr.538-MLI)). In the proposed project, Community NRM Plans areestablished by the villagers themselv_s (paras. 2.12-2.13);

(c) centralized project management units were poorly placed toreact to complex ane highly specific local conditions. Inthe proposed project, decisions would be made at the fieldlevel by villagers with the support from regional TSTs andlocal authorities (para. 1.10); and

(d) the establishment of fixed, long-term physical targets wasnot only unrealistic but also often detrimental to projectimplementation (Mali Forestry I Project, Cr. 883-MLI). Underthis system, managers were unable to react to' lessonslearned during implementation and to dynamic changes in thenatural environment. In the proposed project, in additionto key indicators determined at appraisal, village specificindicators would be established gradually as each villagedesigns its own community NRM Plan (para. 3.07).

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II. PROJECT BACKGROUND

A. Institutional Set-uM

2.01 The Ministries of Agriculture and of Livestock and the Environmentmerged in 1991 into the Ministry of Agriculture, Livestock and Environment(MAEE) for the purpose of better coordination of their activities. They havemaintained strict individual chains of command from capital to field, withminimal intersectoral linkages. To overcome such shortcomings, the Governmentis sponsoring studies and national consultations which will certainly resultin additional institutional adjustments aimed essentially at implementing theGovernment's decentralization policy (para 2.03).

2.02 The MAEE and the Ministry of Interior and Regional Development arein charge of rural development, although two other ministries -- Health andSocial Affairs and Planning -- are indirectly involved. MAEE includes fourDepartments directly concerned with the management of natural resources: theNational Department of Agriculture (DNA), the National Department of Water andForests (DNEF), the National Department of Rural Infrastructure (DNGR), andthe National Department of Animal Husbat.dry (DNE). In addition, the MAEEincludes institutions such as the Institate for Rural Economy (IER), dealingwith agricultural research, and a small unit under the MAEE Cabinet dealingwith environmental issues, the Monitoring Unit of the National DesertificationControl Program (PNLCD) (para. 2.04).

2.03 Decentralization in the rural sector is handled at two levels. Atthe administrative level, the relevant bodies are the Development Committees,which operate within the regional, district (cercle) and subdistrict(arrondissement) contexts. At the community level, responsibility resides inDevelopment Councils consisting of popularly elected delegates. The LocalDevelopment Committees (Comitds Locaux de D6veloppement-CLD), consist ofrepresentatives of the technical departments of the MAEE and are chaired bythe local administrative leader. These leaders are the *chef d'arrondissementat the subdistrict (arrondissement) level, the "commandant de cercles at thedistrict level, and the "gouverneurm at the regional level. Local DevelopmentCommittees prepare the rural development budgets which must be approved by theLocal Development Councils. The people's elected representatives on theDevelopment Councils were previously political appointees from the state partyand played virtually no role in the programming and budgeting process.Consequently, most local power has remained in the hands of the localadministrative authorities, at the expense of the effective popularparticipation that is the ultimate goal of the policy of decentralization. Asa result, tax receipts earmarked for local rural development expenditures,which have always been small and are declining, have been mostly controlled bythe local administrative authorities and often used for things other thanrural development. The Government is aware of this problem, which is thesubject of several ongoing studies, and has been an issue in such grassrootsconsultations as the 'Etats Generaux du Monde Rural* held in November 1991.

2.04 PNLCD Monitorina Unit. In October 1989, the Government establisheda unit charged with implementing the PNLCD. Known as the PNLCD MonitoringUnit, it was placed under the Office of the Minister of Agriculture, Livestockand Environment, and was funded by a US$2.5 million Norwegian grant

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administered by IDA. The unit also received technical assistance from UNSO andGermany (GTZ), which have provided, since late 1990, respectively one and fourexpatriate specialists. The first set of activities carried out by the unitincluded the monitoring and evaluation of ongoing programs and projects, theexchange of information on community natural resource management, and theorganization of seminars and workshops and preparation of NRM operations withthe Government and donors. The second set of activities of the Unit consistedof implementing the natural resource management approach in Test Zones, asdiscussed below (para. 2.06).

B. OnRoing Natural Resource ManaRement Proiects

2.05 A 1990 survey inventoried as many as 130 projects directlyrelated to the management of natural resources, of which 110 were implementedby NGOs (see details in Annex 2). They include: (a) in addition to the TestZones (para. 2.06), efforts at integrated development by the Canadian agencyCIDA (Terroir Management of the Bani, Niger Area, ATD2), UNSO (Tonka WetlandArea Project), and the French CCCE (CMDT Terroir Management Program); (b) someland and water conservation operations in agricultural areas, such as CMDT'sMali Sud Erosion Control Project (PLAE) and the bia Agro-Ecological Projectfinanced by Germany's GTZ; (c) pastoral organizatior and rangeland managementunder development by IDA, CCCE and Norway (Mopti Area Development Project,MADP), Saudi funds (Pastoral Development in the Occidental Sahel, PRODESO),the CCCE (Agro-pastoral Project in Sikasso, PAAP), a.nd others (KaartaIntegrated Development Operation, ODIK); (d) forestry management under IDA andCCCE projects (Forestry Production Management Operation, OAPF), Switzerland(PADREF and OARS in Sikasso), the Netherlands (Seg;ou Rural Forestry, FORS),USAID (Mopti Vi.llage Forestry Project, PRV and Nisfounke Project), and FAO(Koulikouro Forestry Project); (e) biodiversity ar.d wildlife conservationoperations by IDA (Baoule National Park, financed under Forestry II), Norway(Gourma Area Project) and IUCN (Youvaro Project).

2.06 Three districts (cercles) were chosen as Test Zones for theproposed project, with Norwegian funding administered by IDA. These districtswere Djenne in the Delta (5th Region) and Koutiala and Kadiolo in the Southerncotton area (3rd Region). These pilot operations have been carried out in atotal of 31 villages since late 1990, and should be completed by the end ofthe Norwegian grant period (December 1992), but they will continue to besupported and monitored under the proposed project (para. 4.26).

2.07 Lessons Learned. These numerous operations reflect a massivedonor commitment to natural resource conservation. They touch on diverseaspects af natural resource management and represent a comprehensive range ofexperience in this area. Although often poorly coordinated and sometimesoverlapping, these operations have generated a large number of technologiesthat have been thoroughly tested and can be applied in agricultural, pastureand forestry operations on different types of soils and slopes. Costs givenin Annex 3 are only indicative, since they can vary according to the soiltype, distance from raw materials, degree of mechanization, etc. Among thetechniques available, those intended for water harvesting and erosion control(e.g., different types of bunds) have proved to be of special interest inagricultural lands (see Annex 3).

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2.08 The primary benefit of these techniques is to maintain the long-term productivity of the land base, although field studies increasinglyindicate that significant short-term yield gains are also possible. In threeagroclimatic zones of Burkina Faso similar to those of the project area2, athree-year evaluation of impermeable earthen bund anti-erosion systems builtduring the previous five years showed an average grain yield increase of 30percent (170 kg/ha) on sorghum fields and 43 percent (90 kg/ha) on milletfields. Permeable rock bund water-harvesting systems show even higher short-term productivity results. A four-year evaluation of such systems constructedby farmers in the highly degraded Yatenga region of Burkina Faso demonstratedyield gains of nearly 55 per cent. Because bunding systems require little orno cash outlay, and construction is done during the dry season when theopportunity c,)st of labor is low, these techniques are well suited to smallfarmers' resources. Economic analyses of the package tested by ICRISAT haveshown that. a break-even annual sorghum yield increment of only 155 kg wouldassure a return of 15 percent on the labor and cash investment. Thisincrement was exceeded by 67 percent of farmer participants in the Sahelo-Sudanian zone, but by fewer than 20 percent in the Sudano-Guinean zone.

2.09 One can conclude from these diverse preliminary experiments that:(a) although pilot operations have not always been wall implemented, theoverall approach is welcomed by communities; (b) communities have respondedparticularly well whenever traditional leaders have been associated with theprocess; (c) given the interdisciplinary nature of production systems and thecontinuous adjustments they require, technical support must be providedsimultaneously by all technical departments through a single channel ofcommunication; (d) the definition of a management unit must take intoconsideration all the component groups of a given community (agriculturists,herders, fishermen, etc.), and (e) when a resource is to be shared with othervillages or social groups, the management unit needs to include all the users.Pilot operations have also highlighted some difficulties and constraints: (a)a variable, but lengthy, period of time is required for the whole process; (b)full empowerment and involvement of local administration and villagers isrequired; (c) training of all parties involved is a prerequisite; and (d)addressing crucial policy issues, such as land tenure, is essential.

2.10 The experience gained from this profusion of pilot operationsshows that a national capacity for coordination, monitoring and evaluation isneeded to avoid duplication of research and to encourage the dissemination ofresults. This process, already initiated by the PNLCD Monitoring Unit, hasshown how closely NGOs are associated with NRM activities in Mali: a survey bythe CCA-NGO iri Bamako has identified 90 NGOs dealing with natural resourcemanagement and requiring training in this field. Any program aimed atimproving resource management in Mali will clearly need to take advantage ofthe considerable experience of NGOs in this area, either by calling upon themas consultants or by sub-contracting certain village-level project componentsto them, or both.

2 Peter J. Matlon "Prospects for Improving Productivity in Sorghumand Millet in West Africa", ICRISAT 1989.

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C. The Comunuitv Natural Resource Management ApDroach

2.11 Based on the experience gained under the above-mentioned NRMprojects and elsewhere in the Sahel, the Government has developed a newapproach to NRM operations in Mali (see Annex 1). The French term "terroir'designates an expanse of land and water from which a giver. community (settledvillagers or nomadic herders) makes its living, individually or together withother communities, permanently, seasonally, or occasionally (in the case ofdrought). For practical reasons, this concept has been rendered as theuCommunity Natural Resource Management Approach", since it is not intended toapply only to settled villagers, and is not restricted to the areas aroundvillages.

2.12 The main aim of the approach is to develop a system to improvethe effectiveness and sustainability of land, water and natural vegetationmanagement by rural communities, taking into account the important role ofwomen in natural resource management. There are four elements to theapproach: (a) increased local participation in the identification andimplementation of rural development and natural resource managemkentactivities; (b) the development of incentives and skills to enable the localcommunity to exercise greater responsibility in land management and localdevelopment; (c) the establishment of clear, openly negotiated agreementsbetween administrative and technical authorities and local communities; andtd) the development of multi-sectoral community NRM plans (dealingsimultaneously with agriculture, livestock and forestry activities) that willresult in demand-driven. rather than supply-driven, services.

2.13 The approach is flexible and can be adjusted to local conditions.It should be stressed that, because it is a 'process" rather than a'blueprint' for rural development, it is relevant to any production system orcombination of production systems found in Mali: multi-sectoral (fishing,irrigated crops and livestock) in the Delta, pastoral in the Sahelian Zone,sylvo-pastoral in the Sudanian Zone, and agro-sylvo-pastoral elsewhere. Theapproach is implemented in seven essential steps:

(a) identification and support of relevant local institutions: LocalDevelopment Committees (para. 2.03) on the side of the authoritiesand community NRM groups (para. 4.02) on the villagers' side;there should be a sensitization and training phase to prepare themfor the tasks ahead;

(b) identification of the agendas of the different groups constitutingthe local village community (including occasional resource userssuch as transhumant herders). These agendas includet

(i) quality of life (social structure and values, security,equity, social service priorities);

(ii) production and income generation; and

(iii) a vision of the landscape best suited to achievement ofthe production and quality-of- life goals defined above;

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(c) a pre'im':,ary survey, carried out with the community involved, oflocal resources and constraints, and covering all private,communal and public (domanial) land of relevance to the community(defined as the community's Oterroir"); the survey aims atidentifying possible tools (whether currently used or not)available to help achieve the community's objectives;

(d) the establishment of a simple community NRM plan, including long-term land use projections, choice of technologies most likely toresult in achieving the goals, and the necessary resources(financial, labor) required,

(e) negotiation between the villagers and local administrativerepresentatives concerning the community NRM plan and fundingrequirements, leading to a common understanding of the respectiveroles, responsibilities and contributions (in both cash and kind)required from the authorities and the community;

(f) implementation of the community NRM plan: inputs, funding andother resources would be provided according to the agreedschedule; the plan should have sufficient incentives and positiveadvantages to encourage all parties to abide by the schedule;

(g) an annual qualitative and quantitative review by both parties ofachievements under the Plan and associated agreements; based onthe results of a close monitoring of operations, they willidentify any constraints and adjust the community NRM plan tochanging circumstances.

D. Status of Project Prevaration

2.14 Without waiting for the three Test Zone operations implemented bythe PNLCD Monitoring Unit to reach full development, the Malian Governmentdecided to set up a national program of natural resource management based onthe following observations: (a) the seriousness of the observed resourcedegradation (para. 1.09); (b) the experience of earlier projects, which wassufficient to allow the rural communities to start full-scale implementationof the approach; and (c) the obvious inability of isolated test operations totackle such issues such as land tenure, decentralization, effective access toresources by rural communities, and skills development, all of which must beaddressed at the national level. At the request of the Malian Government, theproposed project was identified by the Norway-funded PNLCD Monitoring Unit andits German GTZ and UNSO technical assistance together with an FAO/CP missionin April 1990, followed by two preparation missions in November 1990 and June1991 (also from FAO/CP). These missions produced the project documentsubmitted for appraisal by the IDA mission in December 1991. Projectpreparation was entirely participatory, with three action planning workshopsorganized in November 1990 and April and November 1991 with the relevantinstitutions and donors.

2.15 Proiect Preparation Facility (PPF). Several actions, which havecost implications, should be carried out before project implementation. Theseare: (a) recruitment of four contractual staff before project effectiveness;(b) establishment of a computerized accounting system, production of a manual

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and training of future accountantos (c) carrying out of several pre-implementation workshops; (d) preparation of bidding documents for procurementunder the training component; (e) obtention by IDA of evidence, verified by aconsultant, that the proposed land tenure arrangements are possible; (f)preparation of a "manuel de procedures' by a consultant, and (g) recruitmentof an auditing firm. In order to finance these operations prior toeffectiveness, it was agreed during negotiations that a PPF in the amount ofUS$200,000 would be requested.

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III. THE PROJECT

A. Rationale and Obiectives

3.01 Rationale for IDA Involvement. The proposed projectsupports the strategies of both the Government and IDA in terms ofensuring efficient and sustainable use of natural resources in Mali(paras. 1.15-1.17). The Project's participatory approach corresponds toIDA's strategy of enhancing local governance. The proposed projectwould: (a) build upon natural resource management experience gainedunder recent projects funded by IDA and other donors, such as the MoptiArea Development Project, the Forestry II Project (para. 4.24), and theIDA-administered Norwegian grant supporting the Government's PNLCDprogram (para. 2.04); (b) reinforce IDA's leading role in such key areasas agricultural extension services by building on the recentAgricultural Services Project (FY91); and (c) contribute to thecontinued improvement of donor coordination.

3.02 Obiectives. The primary objective of the Project is tointroduce a rational land use system which will stop and reverse theprocess of degradation of the natural resource base, which is currentlythe greatest threat to sustainable agricultural growth. The specificobjective of the Project is two-fold: (a) to build up the capacity oflocal communities to manage their own natural resources, and buildinstitutional capacity within the MAEE to enable it to advise villagerson these matters; and (b) to build an environmental information systemfor coordinating and guiding the diverse initiatives underway throughoutthe country, and incorporate the lessons of those field experiences intoa national NRM strategy.

B. Summary Description

3.03 The proposed project is regarded as the initial five-yearexperimental phase of a 15-20 year national program. The core of theProject will consist in helping rural communities design and implementsustainable management plans for their lands and natural resources.Since the content of the Project will depend to a great extent on thedemands expressed by the rural communities, project design must beflexible. The Project will enable the Government to provide technicaland financial support to community land management design andimplementation, and includes provisions to strengthen the legal andinstitutional framework necessary for the success of the operation.

3.04 The Project will support the following:

(a) identification, design and implementation of CommunityNatural Resource Management Plans involving about 150villages within three administrative regions of Mali anddistributed among representative agro-ecological zones ofthe country;

(b) design and implementation of a management and monitoringplan for the Baoule National Park, in addition to theestablishment and execution of Community NRM Plans in the 10

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villages (of the 150 villages to be covered by the Project)currently located inside the park that will be outside itsboundaries when these have been redrawn;

(c) institutional support for central and local govermnentauthorities (i) to help with project management and assistrural communities in implementing their Community NRM Plans,and (ii) to provide the Government with basic environmentalmonitoring facilities which could be further developed;

(d) a comprehensive training and public information/awarenessprogram on natural resource management; and

(e) financial support for the provision of technical assistance,consultant services, audits, applied research and studiesrequired for project implementation.

C. Detailed Features

Communitv Natural Resource Management

3.05 The Project would finance two types of investments atvillage level: (a) actions designed to stop the degradation of soil,water and vegetation, whose production impact can vary from short-term(e.g., earth bunds in agricultural land in mixed farming systems) tovery long-term (e.g., rehabilitation of natural forests and restorationof degraded rangeland); and (b) limited social services/infrastructureand productive investments with direct and immediate impact on thecommunities' quality of life. These investments would involve roughly150 villages covering 15,000 km2 and comprising around 95,000 villagers(roughly 1.5 percent of Mali's total area and population).

3.06 These villages are distributed within 11 of Mali's 46districts (cercles) (Map 2) located within three of the country's eightadministrative regions (lst, 2nd and 5th). They exemplify the country'smajor agroecological and production systems (Annex 4). Theseinvestments would be part of Community NRM Plans based on the villagers'expressed long-term objectives and resources (cash and labor) and wouldbe carried out in step with the progressive development of the workingrelationships between the project field staff and the villagers. Theaverage capital cost per village over the project period would be aboutCFAF 29.0 million (US$104,000), i.e. an average cost per beneficiary ofCFAF 46,000 (US$165), of which at least 25 percent would be financed incash and labor by beneficiaries (para. 3.20).

3.07 Investments in Natural Resources. In accordance with thecommunity NRM approach (para. 2.13), the final choice of technologies ismade based on the existing ecological constraints and the community'sobjectives. Therefore, the following list of investments is tentativeand should not be viewed as quantitative project objectives orsubsequently as indicators of project achievements. The long-termproject implementation indicators (Annex 9) would reflect thesocioeconomic and ecological impact of the community NRM approach.

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Short-term implementation would be monitored according to the specificinvestment objectives included in the project's annual work plan, basedon the Community NRM Plans after they have been negotiated and agreedupon with project Technical Support Teams (TSTs) and the DistrictCoordinator (para. 4.32).

3.08 In addition to labor, to be supplied mostly bybeneficiaries, the land and water conservation techniques to be usedinvolve the following inputs to be financed under the Project: (a)transportation (stones, earth, water, building materials); (b) plantmaterial (trees, seeds); (c) mechanization (earth-moving, boring,firebreaks, harrowing, pitting); (d) building materials (concrete, beamsand wire netting); (e) fencing material (posts, barbed wire); (f) sanddune fixation devices (weaving, plastic); (g) pumping equipment; (h)small implements (shovels, picks, wheel barrows); (i) small supplies(paint, fertilizers).

3.09 The cost tables have been prepared based upon the followingassumptions concerning possible investments ir- the village land andwater conservation component:

(a) water harvesting techniques over about 10,000 ha, includingearth, stone and vegetation contour bunds, and the deepeningof 90 natural ponds;

(b) erosion control, including different watershed correctiontechniques (stones, plantings) over 1,500 ha, and plantingof 7,500 ha of watershed areas threatened by erosion;

(c) soil fertility rehabilitation and dune control, withagroforestry plantations over 1,500 ha and fixation of 600ha of dunes using biological (planting) and physicaltechniques;

(d) protection and rehabilitation of natural vegetation throughthe establishment of 1,500 km of firebreaks, 3,500 ha offorest plantations, and 3,200 km of grazing area boundarymarking to facilitate proper grazing practices;establishment of 90 village tree nurseries.

3.10 Social Infrastructure and Productive Investments. Toencourage villagers to invest in natural resource rehabilitation, theProject would use the proceeds of a Norwegian grant as a matching fundto finance social and productive investments up to a maximum of 30percent of the cost of a given community NRM plan. Taking pastexperience into account, such investments will only be funded under thecommunity NRM package when (a) a community expresses strong demand andshows serious commitment to its further operation and maintenance; (b)there is no other source (credit, other program) likely to deliver theinvestment; and (c) a specialized entity, NGO or other project (para4.22) is able to provide back-stopping for the sustainability of theinvestment. In areas where drinking water would not be provided by theSecond Health, Population and Water Supply Project and the Mopti AreaDevelopment Project, investments to be financed under this component

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would include about 12 boreholes, 10 wells, 10 earth dams, in additionto the improvement of about 60 km of rural roads, the construction of 12village grain stores, 375 carts for animal traction, F' grain mills, and22 oil extraction machines.

Baoule National Park and Biosphere Reserve

3.11 Support would be provided for the conservation of BaouleNational Park (para. 1.11) through the following activities:

(a) realignment of park boundaries to exclude villagesettlements and the establishment of livestock corridorswhich would not interfere with the conservation area; thisredemarcation would take into account the results of thesocioeconomic survey now underway under the IDA Forestry IIProject (Cr. 1654-MLI);

(b) support, with the UNDP parallel financing, to the ParkAuthority (Office du Parc National de la Boucle du Baoule)(para. 4.08) in the form of 11 vehicles, equipment, andtemporary technical support, as well as 10 staff-months ofoverseas training, technical assistance and operating andmaintenance costs, aimed at strengthening the ParkAuthority's capacity to establish, implement and monitor themanagement plan for the Park;

(c) physIcal delimitation, under IDA financing, of the new parkboundaries (trail grading and stone markers), rehabilitationof internal trails, and rehabilitation and upgrading of someexisting buildings, in addition to the investment costs ofCommunity NRM Plans for 10 of the villages included in the150 villages covered by the Project;

(d) Possible later support by UNDP for this component throughthe Global rnvironment Fund (GEF), to be assessed during theProject's mid-term review (para. 4.37).

Institutional Support for Government Services

3.12 In addition to providing the Government with environmentaland institutional monitoring facilities, the proposed project wouldfinance the additional technical support required to set up, implementand monitor the Community NRM Plans:

(a) At the village level, the Project would be implemented byextension agents operating simultaneously under the proposedproject and the Agricultural Services Project (para. 4.23);their tasks are described in para. 4.03. In order toprovide a higher agent/villager ratio, the AgriculturalServices Project would supply 21 extension agents, while 24agents would be recruited on a contractual basis by theproposed project. To ensure adequate extension services towomen, half of the 24 new agents would be female. Overall,the average ratio would be one extension agent (Animateur

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Vulgarisateur Villageois, AVV) to two to three villages, or1/200-300 households;

(b) the Project's Regional (3) and Local (10) Coordinators, atthe regional and district levels (para. 4.05), would beprovided by the MAEE Directorates of Agriculture, Livestockand Forestry and would therefore not have to be recruited.However, the three accountants in charge of the project'sregional second generation special account would be financedunder the proposed project on a contractual basis;

(c) five technical support teams (TSTs, para. 4.04), based inKayes, Diema, Koulikoro, Kolokani and Mopti, would also berecruited on a contractual basis and financed under theproposed project for its duration, together with fivesecretaries to work in the offices of the project's LocalCoordinators in the above mentioned cities. Each TST wouldbe staffed with three specialists: one sociologist, oneecologist and one administrator;

*d) three of the six members of the Central Implementing andMonitoring Unit (CIMU) established in Bamako under the MAEE(para. 4.06) would be recruited on a contractual basis; and

Ce) at the central level, a National Environmental MonitoringFacility would be established within the Planning,Monitoring and Evaluation Department of the MAEE. Inaddition to financing one professional, one secretary andone driver, the credit would supply for 20 staff-months ofconsultants, 12 staff-months of studies, map productionequipment and would supply aerial photography and satelliteimagery, one four-wheel drive car, and one geographicinformation system (GIS) eoftware package.

3.13 In addition to incremental salaries for additionalcontractual staff, the proposed project would also cover investment andoperating costs, including the rehabilitation of existing offices,office equipment (photocopying machines, personal computers whenrequired), five four-wheel drive vehicles for the technical supportteams, and medium-sized cars for the 13 coordinators; 102 smallmotorcycles for the additional extension agents and their coordinators(staff of the Agricultural Services Project). As in the case of theAgricultural Services Project, these motorcycles would be sold to agentson credit, with monthly payments withheld from their salaries.

3.14 The CIMU would receive three four-wheel drive vehicles andtwo medium-sized cars. In addition to some rehabilitation of officespace, the Project would finance needed office equipment (computers, aphotocopying machine and a fax machine). It would provide funding forthe operating and maintenance costs of the vehicles and equipment andthe field allowances of the technical staff and drivers.

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Skills Development and Public Awareness

3.15 In order to provide villagers, technical and administrativestaff and the general public with the awareness and skills necessary tothe success of the Program, the proposed project would, according to themethodology described in para. 4.12, finance the following:

(a) the creation of customized training modules by privatetraining firms, according to target group, skills required,and training resources available; these firms will be paidbased on an overhead cost amounting to 30 percent of thebase-line training costs (4.12c);

(b) the cost of implementing the training program (facilitators,resource persons, transportation and per diem) based onservices rendered. The training would tentatively take theform of 1,500 village sensitization days, 2,000 inter-village meeting days, 1,200 staff-days of start-upworkshops, 2,100 staff-days of periodic team planningmeetings, and 6,200 staff-days of training of trainers forextension agents and the technical support teams (4.12d);and

(c) public information and awareness campaigns on the issues ofnatural resource management and environmental protection,would be subcontracted to local or foreign firms, andfinanced annually from the second to the fifth year ofproject implementation.

Technical Assistance and Research

3.16 Technical Assistance (TA). The component would beimplemented bearing in mind that technical assistance is more cost-effective when carried out by short-term experts rather than bygeneralists on long-term assignments, and that, qualifications beingequal, locallv recruited staff perform better than expatriates. Termsof reference drafted at appraisal, discussed during negotiations andincorporated into the Project Implementation Volume, would explicitlyrequire consultants to transfer their knowledge and responsibilities totheir locaL counterparts, and would specify that the success of thistransfer will be a major factor in the evaluation of the consultants'performance. The Project would provide technical assistance as follows:

(a) medium-term TA for a period of two and a half years to theCIMU in the form of three specialists (land-use planning,adult training, monitoring/evaluation) under the supervisionof a mission leader. This assistance, already provided byGermany (GTZ) to the PNLCD Monitoring Unit (para. 2.04),will be transferred to the CIMU when this entity becomesoperational;

(b) medium-term TA for skills gap analysis and the design ofhighly participatory training modules (para. 4.12), forwhich expertise is unavailable in Mali. The project would

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recruit one specialist in the design of participatory adulttraining programs, one specialist in the inter-sectoralplanning of community natural resource management, and onesocio-anthropologist experienced in interculturalcommunication in African societies. Norway has expressedinterest in financing this component, which would amount to100 staff-months distributed over the five years of projectimplementation;

(c) under UNDP financing, six staff-months of a senior parkmanagement specialist and 54 staff-months of a UnitedNations volunteer in the same field, for management of theBaoule National Park which will require skills not availablein Mali;

(d) an additional 70 staff-months (sm) provided by the Projectfor its duration, as required and on a short-term basis.Consultants would be nationals, recruits from other Saheliancountries, or expatriates. Twenty-five staff-months wouldbe allocated to the land tenure component (resourcepersons), 15 sm to 'Women in Development, 10 sm to technicalexpertise in the agriculture, forestry and livestock sub-sectors, 10 sm to the computerized processing of theproject's financial management, and 5 sm each to thepreparation of the project's mid-term review (para. 4.37)and the external audits (para. 4.35). It can be anticipatedthat, given the extent of NGO involvement in village-levelnatural resource management (para. 2.10), many of these 70staff-months will be supplied by NGOs operating in theproject area, especially in the fields of land tenure, Womenin Development, and extension of appropriate technologies.

3.17 Ap1plied Research. In order to secure access to appliedresearch when required, US$300,000 would be provided under the proposedproject. Potential research requirements have already been identifiedfor tested technologies (details are available in Working Paper No. 8,Menu of Technical Interventions, included in the Project ImplementationVolume). Given the project's bottom-up approach, the subjects to beinvestigated can be identified only during project implementation.Applied research would be subcontracted, not necessarily to Mali'sleading research institution, the Rural Development Institute (IER), butto any Government agency, private institution or NGO submitting a cost-competitive proposal. Required action-oriented research would beincluded in the project's annual work plan to be reviewed with andapproved by IDA. Such research would include, for instance, (a) designof cost-effective earth bunds (size, material, spacing); (b) assessmentof animal impact (by animal species, soil type, vegetation); (c)sustainable watershed revegetalisation (vegetation to be used,establishment, management); (d) design of cost-effective torrentcorrection work (using stones, wood, cement); (e) selection of speciesrelevant to agro-forestry; (f) reliable techniques for rehabilitatingdegraded rangeland (pitting, harrowing, animal impact); (g) introductionof North African covered cisterns for drinking water; and (h) together

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with the Agricultural Services Project, research on relevantagricultural tillage and fertilization techniques.

D. Prolect Costs

3.18 The total base cost of the proposed project (Annex 5) net oftaxes is estimated at US$27.1 million (CFAF 7.3 billion), based onNovember 1991 prices. Physical contingencies, amounting to US$2.1million, are estimated at 10 percent of civil works, equipment,consultants and studies. These physical contingencies represent about 8percent of base costs and about 7 percent of total costs. Pricecontingencies, amounting to about US$3.0 million, representing 11percent of base costs and about 9 percent of total costs, are based onaverage annual forecasts of international inflation for foreign suppliedgoods (3.7 percent per annum), on estimated annual inflation in Mali forlocal costs (3.0 percent per annum), and on an implementation period offive years. The foreign exchange portion of the total project cost is55 percent. The breakdown of the total project cost of US$32.1 millionis as follows:

Proiect Cost Summary /1/2

UTotal X Totel

Local Foreign Total Local Foreign Bass Foreign Bass__ __ (CFAF m) -------___- - (USS 1) _____ Exchange Costs

Village Level Investmnts 1659.2 2584. 0 4243.2 6.1 9.6 16.6 t1 68

Bnoul- National Park 217.6 299.2 516.8 .0g 1.1 1.9 68 7

Field Technical Support 696.4 217.6 816.0 2.2 0.8 3.0 27 11

Central Implementation 186.0 64.4 190.4 O.6 0.2 0.7 29 3and Monitoring Unit _

Skills DOvelopment and 644.0 6 644.0 2.0 6 2.0 6 7Public Awarenoss

TA, Research and Studies 168.2 626.6 788.8 6.6 2.3 2.9 79 11

National Environ. S4.4 186.0 190.4 0.2 06. 0.7 71 2Monitoring

Rofinancing of PPF 64.4 0 64.4 0.2 0 0.2 0 1

Total Base Costs 8427.2 8916.8 7844.0 12.6 14.4 27.0 58 100

Physicol Contingencles 217.6 863.6 671.2 0.8 1.8 2.1 62 8

Price Contingencies 826.4 489.6 616.0 1.2 1.8 8.0 66 11

Total Project Costs 8971.2 4760.0 6781.2 14.6 17.6 82.1 65 119

Li Net of identifiable taxes and duties./2 The above amounts in CFAF differ from those appearing in the summary cost tables

(Annex 5) and in the detailed cost tables in the Project Implementation File becauseof different exchange rates used at appraisal and at negotiations.

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S. Financing Plan

3.19 Project costs would be financed by an IDA credit of US$20.4million equivalent. Co-financing of about US$7.7 million was identifiedduring appraisal and will be finalized with the Governments of Germany,Norway, and with the UNDP. The Malian contribution would be US$4.0 millionequivalent. The tentative financing plan is detailed below.

Financina Plan

(in USS million) (2)

Beneficiaries 4.0 12IDA 20.4 64Germany 1.2 4Norway 5.0 15UNDP 1.5 5TOTAL 32.1 100

3.20 The IDA Credit would represent 64 percent of total project costs.The beneficiaries' contribution. in the form of labor and cash, represents 12percent of total project costs. Government would also pay the salaries-ofnon-contractual staff required by the Project, roughly half the total projectstaff, but this amount has not been included in cost estimates. The financingplan and project costs include valuation of the in-kind labor to be providedby the rural communities for execution of land improvement works. The totalcontribution of beneficiaries (labor and cash) would amount to 25 percent ofvillage investments, or CFAF 74,000 per household for the duration of theProject. Since 20 percent of the contribution would be in cash and 80 percentin labor, the total labor (US$ 1.80 or CFAF 500 a day) contribution would be120 days per household, or 30 days per household and per year of effectiveproject implementation. The cash contribution would cover part of the valueof productive equipment for which labor is not required. Detailed mechanismsfor the payment of these amounts would be included in Community NRM Plans tobe agreed upon.

F. Procurement

3.21 The table below summarizes the project elements and theirestimated costs and proposed methods of procurement.

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MCLI OF L

NAIURAL IESOURCE MAIAOiENT PROJECT

Tables Suummr of Proposed Procurement Arrangements(US*1 mi IIion equivalent)

Procuremnt Method

Pro-c1t Elements iCe LCE Other NIF Total Cost

1. WORKSl.l Bul ding Renovation - Boundary __ 6.8 _ 0.6

Dolimitatton (0.8) (0.8)

1.2 Land & Water 4.9 4.6 6.1 a/b/ 16.5Conservation Works __ (4.9) (4.6) f/ __ (9.4)

2. GOODS2.1 Construction Material __ 1. a 1.* 0. 6 * 2.9

__ ((.5) (1.0) aL (2.8)2.2 Equipmnt and Material __ 0.4 0.1 1.2 S/ 1.7

__ (0.4) (0.1) (0.5)2.8 Vehicle0 6.5 0.2 0.1 6.t S/ 1.1

(6.5) (0.2) (6.1) __ (0.8)2.4 Aerial Photographs 0.2 6.1 ; 0.0 6/ 6.8

and Satellite Imagory (0.2) (0.1) hI (6.8)

S. CONSULTANCIES8.1 Studies (Environmental Data 1.6 1.l

Procossing, Mapping, Gendor, (1.0) (1.0)Technical, Accounting) __ __

8.2 Technical Assistance __ __ 1.48.3 Skill Gcap Analysis/Training 0_4 1.4 c/d/ 1.7

(0.4) l.aT (0.4)4. TRAINING __ __ 1.7 2.0

(1.7) 0.3 Si (1. 7)5. MISCELLANEOUS

6.1 Incremental Operating Costs _ a 8.6 6.5 g/ 8.56.2 PPF Refinancing __ _ (8.0) (8.6)

0.2 0.2(0.2) (0.2)

TOTAL 0.7 7.6 12.1 11.7 82.1of which (IDA) (0.7) (7.6) (12.1) (20.4)

Note:Flguree In parentheaa are the respective amounts financed by the IDA credit. N.I.F.: Not IDA-financed.

*/Co- Inonc d jointly with Norway, ',rocurment would be In accordance with World Bank Guidelines: ProcuremntU DLoans and IDA Creditso (Wahington, D.C., May 1986). Includes land and water conserv-tion workcs US82.1

million; conotruction at i USUC.6 million; equipment and mterIal: US86.9 million; *kills gap analysis:usS8.8 million; operating costa: US80.1 million.yBeneficiary contribution of US184.0 million In the form of lobor and/or cash provided by beneficiaries.

_/Co-financad In parallol with UNOP; procured In accordance with UNDP regulations In conformity with pars. 1.4 ofWorld Dank Gulines Procurement under IBRD Loons and IDA Credits, Washington, D.C., May 1986. Includesequipment and mtericl: 11U0.2 million; vehicles: US10.8 million; technical assistance: USS0S. million; operatingcosta: US80.8 million.d/Co-finonced In parallel with Germany (QTZ); procured In accordance with GTZ regulations In conformity with pers.14 of World Bank Guidelines: Procuremnt Under ISBRO Loans and IDA Credits, Washington, D.C., Moy 1985). Includestechnical assistance: US 1.1 million; oporating costs: US4.0.lg/816,060 of aerial photography/satellite Imagery would be co-financed In parallel with UNDP and procured inaccordance with UNOP regulations as stated In footnote S/.VAdditional labor over and above the beneficiaries' contributlon of US1S4.0 million will be provided through laborcontracta on the basis of stndard unitary coats with procedures acceptable to IDA.g/Construction mterials such as concrete, steel rods, fencing to bo procured on tho baols of at least three prielquotation.k/Since only one company produces either spot or landsot satellite Imagery, *ole source procureent will beapplied.

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3.22 Civil works included in the Project are:

(a) renovation of existing office buildings, park delimitation,and road/trail rehabilitation, estimated to cost US$800,000;

(b) land and water conservation works located in 150 remotevillages with an average estimated value of US$16,000 percontract with about 2 contracts per village.

These works will be procured on the basis of LCB up to an aggregate amount of5.7 million because of the small value of individual contracts, their timing,and the scattered nature of the sites. The LCB procedures have been reviewedand found satisfactory to IDA. In cases where LCB procurement proceduresabove did not result in any bid, civil works estimated to cost less thanUS$30,000 per contract, up to an aggregate amount not to exceed the equivalentof US$300,000, may be procured under contracts awarded on the basis ofcomparison of price quotations solicited from a list of at least threesuppliers elivible under the Guidelines, in accordance with proceduressatisfactory to the Association. There are, however, additional civil worksrelating to bunds, tree planting, torrent correction and watershed managementand valued at US$4.5 million located in 150 remote villages. The nature ofthese works is such that they cannot be executed by competitive bidding.These works will be carried out and supervised by 5 Technical Support Teamsbased on criteria and standards which will be equally applied to all villages.A manual of procedures is being produced and will be submitted to the Bank asa condition of effectiveness (para. 6.02h) For each type of work to beexecuted, a standard unit cost would be established in consultation with IDA,and the IDA participation would be limited to about 47Z of the expenditure,based on the standard unit costs and up to a maximum amount of US$4.5 million.Beneficiaries will provide labor, and in some cases, cash valued at US$4.0million, as their contribution of 25Z of the total cost of the village levelinvestments.

3.23 Goodst Goods financed under the Project would include vehicles,office equipment, audio-visual equipment and materials, spare parts, andconstruction materials. Most of the vehicles would be procured in the firsttwo years of project, except for replacement vehicles, and could be groupedinto packages of at least US$100,000 each and procured by internationalcompetitive bidding (ICB) in accordance with Bank Guidelines for Procurementunder IBRD Loans and IDA Credits (May 1985). Contracts for vehicles procuredthrough ICB would total US$500,000. Aerial photographs of an estimated valueof US$200,000 would be purchased through ICB. Since only one company produceseither Spot or Landsat satellite imagery (estimated value US$100,000), solesource procurement will be applied. Goods procured under contracts estimatedto cost less than US$100,000 equivalent each, which in the aggregate would notexceed US$1.9 million equivalent, would be suitable for procurement throughLCB under procedures acceptable to IDA. The remaining goods, which cannot begrouped into bid packages of at least US$30,000 equivalent, would be procuredon the basis of price quotations from at least three suppliers, provided thatthe aggregate amount of such procurement does not exceed US$1.2 millionequivalent.

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3.24 Services: Consultants financed by IDA, totalling US$1.5 millionwould be contracted in accordance with the Bank's Guidelines on the Use ofConsultants by World Bank Borrowers and by the World Bank as Executing Agency(August 1981), and all such contracts would be subject to prior review.Consulting services financed would be for studies -- environmental dataprocessing, mapping, gender analysis, accounting, land tenure, agriculture,natural resource management, and livestock -- (estimated 90 staff-months),skills gap analysis and training (estimated 260 staff-months). A tabledetailing the nature and source of consultants is at Annex 11.

3.25 The Central Implementing and Monitoring Unit (CIMU) of theMinistry of Agriculture, Livestock and Environment is the principalimplementing agency responsible for carrying out the Project, including allprocurement. The submission of a detailed procurement plan, except forvillage local investments, with timetables satisfactory to IDA, would be acondition of effectiveness for the proposed credit (para. 6.02a).

3.26 A Country Procurement Assessment Report was completed in March1985. Procurement procedures were recently reviewed following Government'sprocurement reform initiative. The legal framework for public sectorprocurement consists of: (a) Law No. 90.06/AN-RM of February 19, 1990 creatingthe Directorate General of Public Sector Procurement (Direction Generale desMarches Publics); (b) Decree No. 90-030/P-RM of even date establishing theorganisation and functions of the above-mentioned Directorate; and (c) DecreeNo. 92-059/P-CTSP of February 14, 1992, establishing in detail theresponsibilities of all entities concerned with public sector procurement. Inparticular, LCB procedures provided by the latter Decree are acceptable to theBank.

3.27 IDA-financed contracts for works, goods and services above athreshold of US$100,000 equivalent each would be subject to IDA's priorreview. Selective post review of awarded contracts below the threshold levelswould be carried out on about one in 20 works contracts and one in 5 goods andservices contracts.

3.28 Assurances were obtained during negotiations that procurement ofthe goods, works and consultants' services required for the Project and to befinanced out of the proceeds of the Credit will take place in accordance withprocedures satisfactory to IDA (para. 6.01a). Procurement information will becollected and recorded as follows:

(a) prompt reporting of contract award information by the Borrower;

(b) comprehensive semi-annual reports to the Bank by the Borrower,indicating:

(i) revised cost estimates for individual contracts and thetotal project, including best estimates of allowances forphysical and price contingency;

(ii) revised timing of procurement actions, includingadvertising, bidding, contract award, and completion timefor individual contracts;

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(iii) compliance with aggregate limits on specified methods ofprocurement; and

(c) a project completion report prepared within three months of thecredit's closing date.

G. Disbursements

3.29 The Project corresponds to a five-year program and the IDA creditwould be disbursed over a period of six years. The credit closing date willbe December 31, 1998. The estimated semi-annual disbursement schedule is atAnnex 6.

3.30 The full financing of incremental operating costs under the Creditduring the life of the Project is required since (a) the Government is fundingall recurrent operating costs through the transfer of about half the projectstaff from other services, and (b) the operation is a time-slice of a long-term program, therefore, during implementation, incremental operating costscannot be financed on a declining basis, which does not diminish theGovernment commitment to the Project. The IDA credit would be disbursed onthe basis of the categories shown below:

Z of ExpendituresIDA Allocation to be Financed

Category of Expenditure (USS million) by IDA

1. Civil WorksA. Project Civil Works 9.0 100B. Civil Works-Baoule Park 0.5 100

2. Vehicles, Equipment, Materials 2.9 1003. Aerial Photographs, Satellite 0.3 100

Imagery4. Consultant Services 1.2 1005. Training 1.6 1006. Incremental Operating Costs 2.7 1007. Refinancing of PPF 0.2 1008. Unallocated 2.0

TOTAL 20.4

3.31 Disbursement of the IDA Credit would be fully documented exceptfor expenditures valued at less than US$20,000 equivalent, which will beagainst Statements of Expenditure (SOEs) certified by the CIMU'sAdministrative and Financial Officer and the Project Director. CIMU would beresponsible for preparing withdrawal applications and will indicate on SOEsthe nature and origin of any goods and payment date. Documentation forwithdrawals under SOEs (invoices, evidence of shipment, evidence of payments,etc.) would be retained at the CIMU for review by IDA staff during supervisionmissions and for regular annual audits.

3.32 To expedite disbursements and ensure that funds are available whenneeded, the Government will open two Special Accounts: Special Account A,

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operated by CIMU and Special Account B, operated by the National EnvironmentalMonitoring Facility, in a commercial bank, under terms and conditionssatisfactory to the Association. Immediately after Credit effectiveness, IDAwould make an initial deposit of US$1.0 million into Special Account A,representing about four months' expenditures, and a deposit of US$100,000 intoSpecial Account B. The accounts would be used to finance the local andforeign costs of eligible expenditures financed by IDA. CIMU will alsoinitiate the establishment, at regional banks, of three Second GenerationSpecial Accounts (SGSAs) for US$100,000 each to be provided through SpecialAccount A. The Regional Coordinators will administer these funds, obtain thenecessary documentation justifying incurred expenditures and will seekreplenishment of their second generation special accounts on a monthly basis.Following this, CIMU will prepare the replenishment request of the SpecialAccount. IDA would replenish the Special Account upon receipt of satisfactoryproof of incurred expenditures and evidence that such expenditures wereeligible for financing. Up-to-date bank statements and reconciliation of theSpecial Accounts would accompany replenishment requests.

3.33 Disbursements have been estimated using a six-year projectdisbursement period instead of the standard seven-year historical disbursementprofile for agricultural projects in Mali.

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IV. PROJECT IMPLEMENTATION

A. Proiect Organization

4.01 The administrative set-up of the Project has been designed toallow for the recent profound changes experienced by the Malian Government andto facilitate a smooth adjustment to the changes likely to occur in thefollowing areas: (a) organization of the Ministry of Agriculture, followingthe National Seminar on the subject (Bamako, March 1992); (b) decentral-ization, with definition of the mandate and responsibilities to be granted toregional and local Development Committees and Councils; and (c) the nature andtasks of the entity charged in the future with coordinating and implementingMali's environmental policy. A brief description of the four differentinstitutional levels of the p oposed project, from the village (the finalproject target) to the National Coordination Committee at the cen.tral level,will clarify how the Project is to be implemented and managed (Annex 10,Organizational Chart).

4.02 At Village Level. Once they have satisfied the selection criteria(para. 4.20), villages involved in project activities would establish, inaddition to existing Village Associations (AV), which have a moreadministrative and political mandate, a Village NRM Group that would be theprimary channel of communication with the proposed project. The NRM groupwould decide on any action to be carried out, and would be involved in anydecisions dealing with the use of community land, water and vegetation. TheVillage NRM Group would designate Delegates to meetings and consultations heldoutside the village; it would include representatives of the village's varioussub-sectoral groups (farmers, herders, forest users, women, etc.). TheseCommunity NRMs and sub-sectoral groups would be the target of most extensionwork and would be in charge of implementing the agreed Community NRM Plans.

4.03 At Sub-District (Arrondissement) Level. On average, the proposedproject would share with the Agricultural Services Project one extension agentfor 200 villagers (instead of the 400 covered by one extension agent workingunder the Agricultural Services Project alone). The activities of extensionagents will be scheduled twice a month during the fortnightly training andplanning sessions carried out by the proposed project's Technical SupportTeams (TSTs) and the Agricultural Extension Project's subject matterspecialists. On average, extension agents will extend agricultural messagesto farmer contact groups two and a half days per week with the support ofsubject matter specialists from the Agricultural Services Project, and willtransmit messages aimed at the sustainable management of collectively- ownedresources to village sub-sectoral groups with the support of TSTs from the.proposed project for another two and a half days per week. Extension agentswould not be required to carry out extra non-extension activities: these wouldbe implemented by the TSTs.

4.04 Each of the project's five TSTs (para. 3.12c) would assist aboutnine extension agents and 30 villages. The TSTs would train and support theextension agents in their efforts to help the villagers gain full control overmethodological procedures and technologies designed to enable them to managetheir resources with minimal external assistance. This would be achieved byimproving the villagers' skills in organization and goal-setting, technicalNRM planning and methods, and financial and administrative implementation of

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the plan (para. 4.10). The monthly program of training of trainers to betaken by the TSTs will be part of the skills development component anddelivered to the 15 members as the group.

4.05 At District and Regional levels. In the regions and districts(cercles) (para. 3.12b), project implementation would be supervised by threeRegional Coordinators and 10 District Coordinators, respectively. The ProjectCoordinators would be staff from the Technical Departments of the MAEE who aremembers of the Rural Development Sub-Commission of the Regional and LocalDevelopment Committees (CRDs and CLDs). In order to ensure good acceptance ofthe Project by technical and administrative staff at regional and districtlevels, project coordinators would be designated by their colleagues in theCRDs and CLDs before this choice is confirmed by the Minister of Agriculture.Regional Coordinators will (a) manage the regional second generation specialaccounts with the assistance of an accountant; (b) coordinate the project workplan in the region with the activities carried out under the RegionalDevelopment Committee; and (c) ensure full underst:nding and support ofproject activities by the Regional Administrative Authorities (Governor).Since they are closer to village operations, the District Coordinators will(a) follow up and support the progress of TSTs in implementing Community NRMPlans; (b) ensure effective coordination of the proposed project with theAgricultural Services Project; and (c) facilitate communications betweenproject staff and members of the CLDs. Local coordinators will have specialresponsibility for ensuring close coordination between the proposed projectand the NGOs. Since the villages to be covered by the Project will beselected during project implementation (para. 4.20) together with therespective TST, the District Coordinator will identify NGOs operating in thearea, assess their performance, and establish with them the procedures underwhich they could be associated with the proposed project objectives andactivities, possibly by contracting out some of these NGOs to provide servicesas suggested earlier (para 3.16d).

4.06 At National Level. The project's Central Implementing andMonitoring Unit (CIMU) will be led by a Project Director with the title ofAdvisor to the Minister. Together with an administrative and financialofficer and a data processing specialist, the Project Director will be chargedwith overall project implementation, including financial management,procurement and reporting. The Project Director will be assisted by anoperation team of three (ecologist, trainer, monitoring specialist)responsible for the assessment of proposed Community NRM Plans, delivery ofthe training program, and monitoring of project impact. Although it isacknowledged that such project implementing authorities have not alwaysperformed satisfactorily, this option has been chosen for the proposed projectsince: (a) it does not imply incremental recurrent costs; and (b) tasks whichwill need to be continued after project completion (e.g., environmentalmonitoring) will be transferred to a permanent unit to be developed (para.4.07). In view of the crucial role of the CIMU in project implementation,the Project team will be required (e.g., in the context of the project launchand annual team-building workshops) to identify dny additional measures thatmay help strengthen the CIMU, given the major changes currently foreseen inthe institutional set-up of agricultural services in Mali. The ProjectDirector satisfactory to IDA was appointed prior to negotiations.

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4.07 A National Environmental Monitoring Facility would be establishedwithin the newly created Planning, Monitoring and Evaluation Department withinMAEE to provide the Government with monitoring data on the environment ingeneral, progress achieved with decentralisation and land tenure tests andother on-going projects (para. 3.12e). During the Project mid-term review,the Environmental Monitoring Facility would present an action plan forimplementing a National Environmental Information System (EIS). Since theabove-mentioned Directorate has yet to be implemented and, since its financialmanagement capacity (i.e., to manage the Project Special Account B) needs tobe developed (para. 4.31), special conditions have been agreed upon for thedisbursement of the component (para. 4.29c).

4.08 The Baoule National Park component will be implemented by theexisting Baoule National Park Authority (OPNBB) of the National ForestryDirectorate (DNE-,. Resources provided by IDA for redelimitation of the Park,and rehabilitation of existing park infrastructure (para. 3.11) would behandled by the CIMU at the request of the DNEF. Realignment of parkboundaries is considered a precondition for IDA's involvement in theconservation of the Baoule area together with UNDP. The adoption by theBorrower of new boundaries for Baoule National Park, together with a statementon its impact on the environment and indigenous people and the review of sameby IDA, would be a condition of disbursement (para. 6.03a).

4.09 Overall coordination of project activities would be theresponsibility of the Project National Coordinating Committee (PNCC) chairedby the Minister of Agriculture and meeting at least twice a year. It wouldinclude representatives from the MAEE's Technical Departments and otherministries involved in natural resource management (para. 2.02). In additionto clearance of the project's annual work plans and the review of its pastactivities, the PNCC will seek to obtain full understanding of, agreementwith, and support for project activities on the part of all institutionsinvolved. Assurances were obtained during negotiations that the Borrowershall establish for the duration of the Project, the Project NationalCoordinating Committee (PNCC) with a composition and functions acceptable toIDA (para. 6.01b).

B. ImDlementation of Project Components

4.10 Implementation of Community NRM Plans. In accordance with theCommunity Natural Resource Management approach (para. 2.13), the project'stechnical support teams (TSTs) and extension agents would operate as follows:

(a) Under the lead of the TST's communications/organization specialist(para. 4.04), the first phase of intervention would aim atbuilding trust, establishing community NRM groups and sub-sectoralgroups (para. 4.02), and defining or agreeing on the community'stentative objectives. This specialist would be responsible inparticular for following up and supporting local community landtenure initiatives; no further activity should be started untilthis step is completed. The key element here is time: this stepwould take from a few weeks to several months, depending on thecommunities' readiness for action.

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(b) During the second phase, the community NR1. specialist from the TSTwould perform, together with the villagers, a baseline study ofthe village area and extend the NRM planning methodology to thevillagers, with a view to setting up the first village operationsto be implemented. Such methodology includes the "testingguidelines" to be used for selecting the technologieo most likelyto result in the cost-effective achievement of the community'sobjectives. At this stage, the project's monitoring capacitywould be developed; the focus of the initial Community NRM Plancould vary, depending on the situation, from a single limitedaction to comprehensive programs involving entire productionsystems and populations. The key element here is flexibility.

(c) the financial and administrative specialist from the TST wouldsubsequently help the village to implement its Plan, providingsupport for access to and management of funds, and procurement ofinputs and services. In addition, he will be responsible forpreparing disbursement requests and submitting them to theRegional Coordinator. Moreover, the financial and administrativespecialist of the TST will monitor, on behalf of the Project, theeffective delivery of goods and works (including labor provided bythe villagers), contracted for the implementation of community NRMplans.

4.11 The process described above is complex and time consuming.Nevertheless, past experience (para. 2.05) has shown that community naturalresource management can achieve its objectives provided thatt (a) thecommunity NRM Plans are demand-driven and take into account essentialrequirements (drinking water, health and education); (b) initial efforts aremade to address the villagers' land tenure security, even if this consistsinitially of a "test approach"; (c) a comprehensive skills development programsensitive to cultural differences is carried out; (d) the role of women isacknowledged and encouraged; and (e) NGOs are associated whenever possible inthe process of popular participation. The foregoing elements need to beexecuted in a coordinated manner.

4.12 Implementation of the Skills Development and Public AwarenessComponent. Implementation of the proposed Project through adoption of thecommunity NRH approach calls for the acceptance of innovation on the part ofthe beneficiaries, the technical and administrative staff involved, and thepublic at large. Adopting this approach will require the acquisition of newtechnical knowledge and skills very different from those presently available.The success of such a project depends on intensive human resource development.An interim training program will be in place at project launch (par. 4.14).The strategy to be followed for this component will aim at adapting thetraining program to the changing needs of the Project. It will include fourdifferent steps to be carried out by different entities working in closecoordination (para. 3.15):

(a) The first step of the program will aim to identify target groupsto be involved in the training program, and will be handled by theCIMU's Training Specialist, with an eye to the problems identifiedduring project implementation. In addition to project staff (82),these t3rget groups will be selected from among the different

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community NRM and sub-sector groups (para. 4.02), technical andadministrative staff at the local, regional and nationalgovernment levels, and the public at large.

(b) each group identified as requiring training would then besubjected to a skills gap analysis' which, based on its presentprofile and mandate, would pinpoint the missing skills to bedeveloped under the program; these might include very differentfeatures, such as pure technical knowledge, operationalprocedures, communications ability, etc. A particular procedurewould be followed to develop targeted public awareness campaigns.

(c) skills development *modules* or training processes of variousdurations would then be designed for each specific target groupand set of skills to be developed. These modules would be basedon effective participatory adult training techniques, including,for instance, case studies, small group exercises, simulationsand, in the case of village communities, techniques of rapid ruralappraisal.

Cd) once tested and adjusted, the "modules' would be delivered totheir intended target groups by specialized facilitators assistadby qualified resource persons; in addition to the training oftrainers, to be provided fortnightly to extension agents andmonthly to TSTs (paras. 4.03 and 4.04), these modules wouldinclude full-day village sensitization sessions, team buildingworkshops, short information seminars, national public awarenesscampaigns, and others (para. 3.15b).

4.13 The skills gap analysis and module design would be subcontractedto private training consulting firms. These firms would establish a databaseof training resources available in Mali and its neighboring countries(facilitators, resource persons, training facilities), which could becontracted for implementation of the modules. A condition of effectivenesswould be the submission by the Borrower to IDA of bidding documents forsubcontracting the implementation of the skills development component of theProject, satisfactory to IDA (para. 6.02b).

4.14 In order to have some of the target groups ready to operate atthe time of Credit effectiveness, an interim training program, including 3 to6 workshops of 1 to 3 days each, would be implemented. This interim trainingprogram would be a precursor of the several project-launching workshops to becarried out at the time of project effectiveness, the cost of which isincluded in the detailed cost tables of the component. The establishment of aprogram proposal by the PNLCD Unit, supported by technical assistance fromGTZ, was a condition of negotiation which was fulfilled; the program will beimplemented during the fall of 1992, before the proposed project becomeseffective. Full advantage would be taken cf the experience gained by thesimilar component of the Burkina Faso Environmental Management Project,through the use of tested training packages and trainers with the bestperformance records. The sharing of the resources and experience of bothprojects would pave the way for the future establishment of a comprehensiveSrhelian NRM training program to be discussed and developed during the projectmid-term implementation review (para. 4.37).

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4.15 Addressing the Gender Issue. The proposed project would developand implement a strategy that would incorporate and enhance the importance ofwomen in natural resource management (para. 1.12). According to thisstrategy, to be prepared at the beginning of project implementation by aconsultant (para. 3.16d), the gender issue would generally not be tackledthrough separate components targeting women (although this might be relevantin some circumstances). Instead, the issue would be dealt with by the entireproject staff in its day-to-day operations. Guidelines for project staffwould be established as part of the skills development program, and decisionsregarding the following subjects would be included in the Community NRM Plansonly after being discussed and accepted by the village women's sub-sectoralgroups (a) location and operation of water points; (b) land use planning(agro forestry); (c) movement and management of livestock; and (d) choice,location and operation of collective food-processing equipment (mills, oilextraction plants).

4.16 In addition, measures would be taken under the Project to: (a)encourage the establishment of village sub-sectoral groups of women (by TSTs);(b) have these groups consulted on all important decisions concerning NRMactivities in the village (by project coordinators); (c) promote theparticipation of women in training sessions and meetings organized under theproposed project (by the CIMU training specialist); (d) have the CIMUdecentralization specialist pay special attention to the gender issue in landtenure (para. 4.17); and (e) recruit women, where possible, as technicalstaff, especially at village level, to provide extension services (para.3.12). The monitoring of the project's achievements in dealing with thegender issue would be the responsibility of the training specialist from theCIMU (para. 4.06), periodically assisted by local consultants (para. 3.16d),and using the project indicators included in Annex 9.

4.17 Implementing the Proiect's Approach to the Land Tenure Issue.Following studies and seminars carried out under the Mali - Ag SECAL supportedby CILSS/Club du Sahel and the CCCE, and in line with the Government'sdecentralization policy (para. 2.03), the approach to land tenure does not aimto adjust existing Codes and Laws in a top-down fashion, but rather to pursuethe following strategy:

(a) Villagers willing to deal with land tenure issues in their areawould be helped by resource persons (para. 3.16d) who would,together with the land users, review current land tenurepractices, paying special attention to gender-related issues whichcould require further amendments to rights of inheritance andusufruct. This assistance would be provided by locally-recruitedresource persons having knowledge of the subject and the respectof the community, who would conclude the review by makingpractical recommendations to technical and administrativeauthorities likely to improve the community's security of accessto natural resources. In areas where there are overlappinggrazing rights between sedentary villagers and seasonaltranshumant herders, special attention would be paid to theacknowledgement by villagers of all well established seasonalgrazing rights. This would be a condition of assistance by theProject and of the implementation of further steps;

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(b) subject to prior review by the technical and administrativeauthorities, at regional and district levels, the recommendationsenvisaged by a given community would thereafter be tested for afixed period of time; and

(c) following close monitoring of the land tenure tests by the CIMUand the local authorities, the experience gained from those testswould be fully assessed during the Project's mid-term review(para. 4.37); a decision would then be taken either to discontinuethe operation, to adjust it, or to formalize it; in this case, thetest could be used for the further amendment of land tenureregulations. A co-4ition of effectiveness would be that theBorrower would has furnished proof, satisfactory to IDA, that theland tenure arrangements to be tested under the Project can beeffectively implemented within the framework of current laws andregulations (6.02c).

4.18 Staff Recruitment. Staff recruitment would be phased according toa staffing plan agreed upon during negotiations. While the Project Directorwas appointed before the negotiations (para. 4.06), three specialists would berecruited before effectiveness and the recruitment of the remaining CITUstaff, Regional and Local Coordinators, and Technical Supporting Teams wouldstart immediately after credit effectiveness; the recruitment of additionalextension agents would follow the phasing of village incorporation.Assurances were obtained at negotiations on a staffing plan, includingtransfers and new hirings, and an implementation timetable (para. 6.01c). Acondition of effectiveness would be the implementation of the staffing plan ina manner satisfactory to IDA and the provision to the Borrower of a shortlistof candidates for key Project posts to be fulfilled immediately aftereffectiveness (para. 6.02d).

4.19 Recruitment for positions under the credit would be publicized andopen to private, NGO and Government staff willing to separate fromadministrative service. Terms of Reference (included in the ProjectImplementation Volume), minimal requirements and conditions of selection wouldbe agreed between IDA and the Administrative and Financial Department (DAF) ofthe MAEE. Assurances were obtained during negotiations that for purposes ofimplementing the Project, the Borrower would employ and maintain staff withqualifications, experience, terms and conditions of employment satisfactory toIDA (para. 6.01d). In order to ensure effective staffing at the highestlevel, selection mechanisms, such as "assessment centers," could beimplemented with the participation of IDA staff. The level of remunerationwould be commensurate with the temporary nature of the contract, but shouldnot result in a disincentive to Government officers with similarqualifications and responsibilities.

4.20 Village Participation. The selection of rural communities to takepart in the Project would be undertaken on a voluntary basis by each CLD withthe assistance of the project TST. The chief criteria for selection wouldinclude, for the initial phase of the Project: (a) existing coverage of thevillage concerned by the Agricultural Services Project, with an extensionagent posted; (b) the existence of a locally acknowledged effective villageleader; (c) an established record of the 041!:-e community's actions intackling land and natural resource management; (d) proven capacity to

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implement communal development activities; and (e) absence of any majorlitigation or disputes within the community or with neighboring communities.

4.21 The phasing of village participation (Annex 7) has to take intoaccount: (a) the initial phase of project implementation, lasting up to 6months, during which the villagers will hardly be involved at all in projectactivities; (b) the ensuing period of "breaking in" field staff to the projectcommunity NRM planning procedures; and (c) the fact that community NRM Planswill tpke at least between two and three years to be completed. In addition,the phasing of village participation would be designed to avoid major problemsdue to unforeseen obstacles. Should it become obvious at the mid-term review(para. 4.37) that the program should be discontinued, and that the Projectshould not be renewed, the Community NRM Plans set up by the villagesincorporated during PY1, PY2 and PY3 (Annex 7) (estimated to reach 90villages) would be fully implemented by project completion in PY5. In thiscase, no additional village would be approached. In the most probable case,however, where a commitment could be taken during the mid-term review in favorof a follow-up, 60 additional villages would be incorporated during PY4 andPY5. The villages to be incorporated in the Project during PY1 would notnecessarily be spread among the 11 districts of the Project area. Foreffective program support, the strategy to be pursued will concentrate onthree to four focal areas where several neighboring villages would be coveredsimultaneously.

C. Coordination With Other Proiects and Programs

4.22 The proposed Project would be closely coordinated with otherongoing projects and programs, either similar or complementary. Thiscoordination which would not be limi:ed to projects indicated below would bethe responsibility of the Project's Regional and District Coordinators (para.4.05). This would be done to establish effective linkages with all projectsand NGOs operating within its area of intervention. Such coordination wouldaim to:

(a) take advantage of the experience gained bys IDA projects nearingcompletion (para. 1.19), and the GTZ technical assistance project(para. 2.04);

(b) build on the facilities and services (staff, equipment) availableat field level: Agricultural Services Project (para. 4.23); and

(c) ensure that the village communities covered by the proposedProject have access to the services and inputs provided by theseprojects: IDA's Second Health, Population & Rural Water SupplyProject, (para. 4.25); Food for Work provided by the FAO WorldFood Program, when required.

4.23 Agricultural Services Proiect. The objectives of both projects&re mutually complementarys while the agricultural services project extendsproductive technologies to be mostly implemented within individualagricultural plots, and in livestock operations, the proposed project would,in addition, concentrate on the sustainable exploitation of collectiverangeland and forests; implementation of these two projects would therefore beclosely coordinated, resulting in complete integration of staff (extension

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agents, AVVs) and activities at the village level (para. 4.03). Thefortnightly training of the AVVW would be provided simultaneously by subjectmatter specialists from the Agricultural Services Project and staff of theproposed project's Technical Support Teams (para. 4.04). The schedule ofvillage visits by AVVs and field interventions by TST staff would be set upjointly during the AVVsB fortnightly training period. Since the two projectsare both implemented under the MAEE, an agreement would be concluded betweentheir respective implementing entities, outlining the modalities of theircoordination. A condition of effectiveness would be the establishment of acontractual arrangement satisfactory to IDA between the CIMU and theDirectorate of Agriculture on the coordination of the two projects at thecentral, regional and local levels (para 6.02e).

4.24 Mopti Area (MADP) and Forestry Development (OAPF) Proiects. Thesetwo projects, co-financed by IDA and the CCCE, with a Norwegian contribution,are being implemented in the 5th and 2nd regions respectively (Map 2). Theywill be continued until FY93. This continuation will allow the PNLCDMonitoring Unit (para. 2.04) to coordinate activities that could be highlybeneficial to further implementation of the proposed project. These wouldinclude: (a) testing rangeland and forestry management technologies prior toproject implementation; (b) initiating the land tenure testing approach inagro-pastoral and sylvo-pastoral systems; (c) supplying the proposed projectwith selected skilled staff, available at the completion of these projects;and (d) preparing and implementing the interim training program to be heldbefore project implementation (para. 4.14).

4.25 IDA's Second Health. Ponulation and Rural Water Supply Project.This Project (para. 1.21) is expected to become effective during the firstsemester of 1992. Its area of action is similar to that of the proposedproject. Following discussions between the PNLCD Monitoring Unit and theHealth Project's implementing agency, it was agreed that, provided villagesguarantee a good level of organization and commitment (which is a prerequisitefor the implementation of Community NRM Plans), the participants in theproposed project would result in insuring priority attention from the HealthProject with services such as construction and equipment of community healthcenters, family planning education, and drinking water supply.

4.26 Compagnie Malienne tour le D4veloppement des Textiles (CMDT). Twotest zones have been established by the PNLCD Monitoring Unit in the districtsof Koutiala and Kadiolo (Third Region, where the Agricultural Services Projectis not being implemented). This operation is funded by a Norwegian grant, aspart of the preparation phase for the proposed project (para. 2.06). Sincethese interventions require three to four years to be completed, their follow-up would be carried out by the CMDT/Pterroir' management program currentlyoperating in the Third Region.

4.27 Permanent Inter-State Committee for Drought Control in the Sahel(CILSS) and Club du Sahel. There are four areas of common interest betweenthe proposed project and CILSS/Club du Sahel in which close coordination wouldbe beneficial to both. These are: (a) decentralization and popularparticipation; (b) land tenure, a field in which coordination has already beeneffective with the Mali - Ag SECAL (para. 4.17); (c) implementation of thecommunity NRM approach; and (d) the gender issue. In order to strengthen theProject implementation and to share experience gained, the following actions

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will be taken: (a) sharing with the Club du Sahel information generated by theProject (activity reports, working papers, consultant reports); (b) schedulingproject events (supervision mission, annual reviews) aimed at facilitating theparticipation of CILSS/Club du Sahel staff; and (c) promoting projectparticipation in the activities (meetings, regional studies) of CILSS/Club duSahel in the four areas of common interest identified above.

D. Monitorina and Evaluation

4.28 Careful monitoring of the proposed project is needed to helpdecision-makers obtain quick and regular feedback on implementation progress,and to make rapid adjustments whenever required. Because of the grassrootsnature of the proposed project and its bottom-up approach, details on theexact location, type and number of investments at field level cannot be knownbefore agreeing on Community NRM Plans (para. 3.07). The Project isinherently flexible, which makes the role of process monitoring far moreimportant, and also more difficult, than simply assessing the implementationof prescribed plans.

4.29 Three areas would be the focus of intensive monitoring duringproject implementation. Project monitoring would be carried out using keyindicators noted in Annex 9, which have been discussed during negotiations:

(a) Monitoring of proiect implementation, (staffing, disbursements,and achievement of objectives), using agreed indicators, would beperformed and recorded by the CIMU's administrative and financialofficer; these indicators are listed in Annex 9. Agreements werereached at negotiations on these indicators (para. 6.01e). Theestablishment of a project operations monitoring systemsatisfactory to IDA would be a condition of effectiveness (para.6.02f);

(b) Monitorina of the proiect's socioeconomic and phyto-ecologicalimpact would be the responsibility of the CIMU's project impactmonitoring specialist, who would process data established by theTST, working in close coordination with members of the relevantvillage sub-sectoral groups. Socioeconomic data will be collectedon a monthly basis by specialized surveyors from the AgriculturalServices Project. Performance in the area of skills developmentand the progress achieved in addressing the gender issue would beassessed by the training specialist;

(c) Environmental Information System: the three-member EnvironmentalMonitoring facility located in the MAEE's Planning, Monitoring andEvaluation Department (para. 4.07) would lay the groundwork for afuture Environmental Information System (EIS), assist ongoingprojects and programs in establishing their own impact monitoringprograms, and create a forum for exchanging experiences in theareas of natural resource management, decentralization, and landtenure. Conditions of disbursement for this component will be (i)the establishment by the Borrower of a national entity chargedwith planning, monitoring and evaluating desertification controland NRM, with a degree of independance and authority satisfactoryto IDA; (ii) furnishing IDA with an organizational chart and a

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work plan satisfactory to IDA, and (iii) developing anadministrative and financial unit satisfactory to IDA to managethe Special Account (6.03b).

E. Financial Management, Accounting and Audits

4.30 Proiect Management and Accounting. A computerized management andaccounting system would be established under the CIMU by consultants funded bythe Project (para. 3.16d). Assurances were obtained at negotiations that forall expenditures for which withdrawals from the Credit account were made onthe basis of statements of expenditure, the Borrower shall (a) maintainrecords and accounts reflecting such expenditures; (b) retain for at least oneyear all records evidencing such expenditures; (c) enable IDA'srepresentatives to examine such records and (d) ensure that such records andaccounts are included in the annual audit, and that the report of such auditcontains a separate opinion as to whether the SOEs can be relied upon tosupport the related withdrawals (para. 6.01f). In order to facilitateimplementation of the component, an accounting procedures manual would beestablished by the above-mentioned consultant. Assurances were obtainedduring negotiations that not later than September 30, 1992, the Borrower wouldhire a consultant with terms of reference and qualifications acceptable to IDAto set up and operate the project's computerized management and accountingsystem, prepare an accounting procedures manual, and train the accountants forthe Project (para. 6.0lg). A condition of effectiveness would be the settingup of the accounting and financial management system of the Project (para.6.02g).

4.31 Special Account and Second Generation Special Accounts (SGSAs).The Project will be granted two Special Accounts: Special Account A, for thefinancing of project implementation, excluding the National EnvironmentalMonitoring Facility, and Special Account B for the financing of the NationalEnvironmental Monitoring Facility. Immediately after Credit effectiveness,IDA would make an initial deposit in Special Account A of US$ 1 million,representing about four months' expenditures (para. 3.32) and, afterconditions of disbursement have been met satisfactorily (para 4.29c), IDAwould make an initial deposit of US$100,000 in Special Account B. SGSAs wouldbe opened for each of the three regions covered by the Project -- Kayes,Sikasso and Mopti. These SGSAs would be operated under the responsibility ofthe project's Regional Coordinators, assisted by an accountant recruited bythe Project (para. 4.05). The initial deposit would be US$100,000, drawn fromSpecial Account A. Replenishment of the SGSAs from Special Account A would beeffected by the CIMU upon receipt of all documented expenses as approved bythe respective Regional Coordinators, the project's Regional Accountant andthe Project Director. Special Accounts A and B and the three SecondGeneration Special Accounts will be audited annually.

4.32 Disbursement Procedure for Village Investments. This would bebased on an agreement to be concluded between the village, represented by theleader of the village NRM group, a representative of the Local Government, andthe project team (represented locally by the Administrator in the TST). Thisagreement would indicate the different expenditures incurred by implementationof the Community NRM Plan; the detailed budget and corresponding financingscheme would indicate the respective contributions of the village, the projectfunds, and other sources of funds when available. The agreement would also

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indicate the disbursement rate necessary to launch the actions. It would showclearly the amount of social and productive investments, which should be underor equal to 30 percent, and the villagers' contribution (cash and labor),which should be equal to or above 25 percent of the total village investment.

4.33 Once this agreement is signed by those three partners, proceduresfor the procurement of works, goods and services required for theimplementation of the agreement will be followed by the District Coordinatorassisted by the Administrator of the TST. Together with his RegionalAccountant, the Regional Coordinator will issue payments drawn on the secondgeneration special account, based upon contracts, invoices and othersupporting documents. Any further disbursements would be checked against thatagreement and effected on the basis of SOEs and/or supporting documents. Theagreements, with their corresponding SOEs and supporting documents, would becompiled and sent to the CIMU by each regional project accountant forreplenishment from the Special Account. In any case, a report on the SecondGeneration Special Accounts and the status of the contract disbursements withcorresponding SOEs and supporting documents would be sent every two months byeach of the three Regional Accountants to the Project Director.

4.34 In order to facilitate project implementation by all actorsinvolved, and particularly the establishment, implementation and monitoring ofthe agreed Community NRM Plans, a manual of simple guidelines and forms(procedures manual) would be provided by the CIMU at the beginning of theProject. The manual would include standard agreement forms, instructionsconcerning the minimum village contribution, types of investments or actionseligible for project funds, the amount of project funds available for the"illage, guidance on disbursement rates, guidance for access to other sourcesof funds, and standard disbursement and contract forms. A condition ofeffectiveness would be the production of a procedures manual satisfactory toIDA concerning the preparation, negotiation and implementation of theCommunity NRM Plans, including guidelines for village land tenure assessment,covering (i) the assessment proper, and (ii) how land tenure arrangements tobe carried out under the Community NRM plans should be processed with localauthorities (para. 6.02h).

4.35 External Audits. The Administrative and Financial Officer of theCIMU would maintain all project-related records and accounts, and would havethese audited annually by independent external auditors acceptable to IDA.All disbursements against SOEs, the two Special Accounts and the three SecondGeneration Special Accounts would be audited separately. The project accountswill be maintained in accordance with sound and internationally recognizedaccounting principles and practices satisfactory to IDA. The accounting unitwill provide interim and annual financial statements to reflect the financialperformance and position of the Project. An auditor's opinion and reportssatisfactory to IDA on such statements will be provided within six months ofthe close of the fiscal year. The auditor's report will include a statementon the adequacy or otherwise of the accounting system and internal controls,the reliability of statements of expenditures as a basis for Creditdisbursements, and compliance with financial covenants. Assurances wereobtained at negotiations that (a) the records and accounts (Special Accountsand Second Generation Special Accounts) will be audited for each fiscal year,in accordance with appropriate auditing principles consistently applied byindependent auditors acceptable to IDA (b) the Borrower will furnish to the

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Association as soon as available, but in any case not later than six monthsafter the end of each such year, a certified copy of the report of such auditby said auditors, of such scope and in such detail as the Association shallhave reasonably requested and (c) the Borrower will furnish to the Associationsuch other information concerning such records, accounts and the audit thereofas the Association shall from time to time reasonably request (para. 6.01h).During negotiations, the Malian delegation submitted a short list of auditingfirms to IDA for approval, while the appointment of an auditing firmacceptable to IDA to audit project accounts based upon a one-yearautomatically renewable contract, except in the case of poor performances willbe a condition of effectiveness (para. 6.02i). Also, a condition ofeffectiveness would be that outstanding audits of the Mopti Area DevelopmentProject (Cr. 1597-MLI), Agricultural Sector Adjustment Credit (Cr. 2163-MLI)and Office du Niger II (Cr. 1906-MLI) overdue since December 31, 1991, for thefirst one, and March 31, 1992, for the two others, have been provided to thesatisfaction of IDA (para. 6.02j).

F. Supervision and Mid-term Review

4.36 Proiect Supervision. Supervision would be approached in closecollaboration with other donor agencies to ensure consistency among thedifferent parallel financing. One joint donor supervision mission wouldtherefore be scheduled each year at the time of the annual review round table.In addition, other supervision missions would be carried out jointly or in aconcerted manner with other co-financing agencies. Supervision of theProject's financial management, accounting and auditing follow-up would beundertaken as a separate exercise. Supervision missions would involve, inaddition to the task managers, experts possessing the different skills andexperience required for assessing the progress of project implementation infinancial management, popular participation, women in development, training,and the environment, in accordance with the tentative schedule attached atAnnex 8. In view of the high supervision input that will be required foreffective implementation of this "process-oriented, project, such input willbe clearly indicated in the Departmental CAM, including that provided byfield-based Bank staff. In order to draw on the World Bank's ongoingexperiences in the area of popular participation, the proposed project will beincluded in the 20 selected participatory projects currently being monitoredby the popular participation core group of sociologists and developers; thiswill result in stronger project supervision in the future, and will also makethe achievements of this project known to others. Assurances were reachedduring negotiations that each year, by December 31 at the latest, the Borrowerwill convene a project implementation review meeting with IDA, other co-financiers and regional and local authorities to review and approve the PNCCrecommendations regarding project implementation (para. 6.01i). Suchimplementation review meetings would be of particular importance in the caseof the proposed project, where, as noted in para. 3.07, village-levelinvestments (amounting to half of the Credit) would be chosen during projectimplementation. Investments included in a NRH Plan for a given year will beincluded in the work program to be drawn up for the following annual projectreview meeting to facilitate monitoring of implementation during subsequentyears.

4.37 Mid-Term Review. Assurances were obtained during negotiationsthat:

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(a) The borrower and IDA conduct, not later .han December 31, 1995, amid-term Project Implementation Review to: (i) monitor progress ofproject implementation according to which preliminary decisionswill be made on further continuation of the Program (para. 4.21);(ii) assess the experience gained under land tenure arrangements,aiming at setting up a time-bound Action Plan to be agreed,including steps to replace, modify or implement the existing landtenure framework (para. 4.17c); (iii) evaluate performances of thenational Environmental Monitoring Facility, and review theproposed EIS to be further developed by IDA and/or other donors(para. 4.29c); (iv) the Baoule National Park Management Plan to beprepared in the beginning of the Project would be assessed andadditional investments could be supplied under separate channels(GEF funding envisaged by UNDP) (para. 3.11d); and (v) thetraining component would be evaluated by an external entity,aiming at a possible merger of similar programs to be carried outat sub regional level (para. 4.14);

(b) Not later than four weeks prior to such review, the Borrower shallfurnish to IDA for its review and comments a report in such detailas IDA shall reasonably request, including: (i) an evaluation ofprogress achieved in project implementation by the Borrower ingeneral, and by its Central, Regional and Local agencies, inparticular, in accordance with the provisions of the respectiveimplementation agreements, (ii) a draft action program to becarried out until the completion of the Project, focussed on thecomponents stressed above; and

(c) Promptly after completing the mid-term review, carry out thoserecommendations arising out of the said review as agreed by theBorrower and IDA (para. 6.01j).

G. Environmental Impact

4.38 The broad objective of the Project is to halt and reverse theprocess of natural resource degradation in order to secure sustainableagricultural growth, enhance biodiversity and ecological stability, andachieve sustainable forest and wildlife management. The proposed project isclearly intended to have a positive impact on the environment, but any programaiming simultaneously at enhancing production and protecting the naturalresource base can have potential negative impacts: these must be foreseen, andprovision for their mitigation must be incorporated in the implementationplan. Such risks include, for instance, water pollution by fertilizers, lossof biodiversity due to land clearance, soil erosion resulting from intensivetillage practices, and rangeland degradation due to overgrazing. In addition,the reorganization of activities at the village level could disrupt soundtraditional practices that have long been in use.

4.39 The potential negative environmental impacts have been recognizedin the project design, and adequate provision has been made for environmentalmonitoring. Assessment and monitoring of the project's environmental impactwill be the responsibility of the project impacc monitoring specialist in theCentral Implementing and Monitoring Unit (para. 4.06); this specialist will

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monitor the impacts of specific environmental improvements and assess thesuitability of new techniques to be adopted. A monitoring program will alsobe set up by the National Environmental Monitoring Facility, which willmonitor environmental change in the ecological zones covered by the Project incomparison to changes in control zones not covered by the Project and inconservation areas such as Baoule National Park. These monitoring programswill be able to detect any negative trends during implementation and proposeimmediate corrective measures, Working Paper No. 6 on the project'senvironmental analysis procedure will be part of the Project ImplementationVolume.

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V. PROJECT BENEFITS. RISKS AND SUSTAINABILITY

A. Benefits

5.01 A 1990 World Bank study entitled "Economic Issues in RenewableNatural Resource Management" examined the empirical evidence on theprofitability of techniques to improve natural resource management. The studyconcluded that: (a) many techniques are economically viable, although theirfinancial profitability is less obvious; (b) there are enough economicallyviable techniques to provide a menu of options to clients in each agro-ecological zone; but (c) further adaptive research is required to refine thetechniques and tailor them more closely to local circumstances. The empiricalwork from which the above conclusions were drawn was almost invariably basedon a before/after analysis, by comparing the costs and benefits of theresource management improvement techniques against the initial situation. Butthe initial situation is not static; a with/without analysis to determineincremental net benefits would have to take into account resource degradationand declining land productivity in the "without" case. The measurementproblems are so difficult that a true with/without analysis has seldom beenattempted. The above conclusions, therefore, understate the net benefits ofresource management improvement techniques.

5.02 Given the scope of the project's expected results, it wouldsubstantially benefit the quality of life of most of the 95,000 people livingin the region. Project benefits would be particularly significant in thefollowing areas:

(a) improving agriculture, forestry and livestock productionperformance in the project area. The establishment andimplementation of improved sustainable production practices wouldcontribute to a better standard of living and quality of life forthe villagers concerned;

(b) in the area of human resources, in addition to the impact of itsskills development and public awareness programs, the Projectwould contribute to the empowerment of local communities, to thecreation of local management capabilities, and to theacknowledgement and enhancement of the role of women in themanagement of natural resources;

(c) the overall benefit of the Project in terms of the environment andnatural resources would be the restoration of ecological stabilityand the introduction of a sustainable land use system which wouldbalance production against resource consumption;

(d) for those Community NRM Plans that would include high proportionsof labor-intensive land and water conservation works, laborexceeding the 25 per cent beneficiaries' contribution would baremunerated, raising employment levels during the dry season, whenthere are few opportunities for productive agricultural activity;and

(e) local communities around Baoule National Park would benefit fromdirect employment by the Park (park patrol personnel) and indirect

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tourism-related activities (tour guides, tourist camps, safarihunting) and from the planned management of the Park's surroundingareas and buffer zones.

5.03 Environment and resource management experiences would beavailable for extension to other parts of Mali not covered by the Project.Mali's capacity to maintain and assess the environment, resource use, andlong- and short-term trends would be firmly established. The preservation ofMali's biodiversity for future generations would be assured through the soundmanagement of Baoule National Park by the local population. The Project wouldlay an excellent foundation for the development of a National EnvironmentalAction Plan for Mali.

B. Risks

5.04 In such a project, the following are the major risks:

(a) a possible drop in the degree of political commitment shown by theGovernment, particularly in the MAEE. However, the strongcommitment of the Malian Administration to the decentralizationpolicy and the firm support provided by other donors give definitegrounds for hope;

(b) insufficient understanding and poor implementation of thecommunity natural resource management approach, since it requiresskills very different from those involved in conventional top-downpractices. In addiXion, implementation of the project strategywould result in a certain shifting of power and authority that notall political (or even technical) staff are ready to accept; and

(c) institutionally, the Central Implementing and Monitoring Unit maylack authority, which might undermine its role of building up anational capacity to coordinate the strategies of various partnersinvolved in natural resource management.

5.05 The following actions will be taken to minimize the above-mentioned riskst

(a) together with other donors and within the framework of the Mali -

Ag SECAL, IDA will monitor ongoing administrative reforms andencourage those measures likely to contribute most effectively toadministrative decentralization and local participation;

(b) project implementation will be the subject of close and well-focused supervision intended to identify and address disruptionsas soon as they occur, inter alia through the training program;and

(c) IDA, with the other donors, will monitor future developments witha view to addressing environmental issues comprehensively,possibly within the framework of a National Environmental ActionPlan (NEAP).

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C. Proiect Sustainabilit,

5.06 The development and implementation of the land tenure law will becritical to future sustainability of the Project. During the Project mid-termreview, the Borrower and the Association will assess the experience gainedunder land tenure arrangements, with a view to defining a mutually agreedaction plan, including measures to replace, modify or implement the existingland tenure framework. Moreover, if the NRM programs are successful asanticipated, the village NRM Groups will continue to implement them in thefuture, using their own resources, whilst the technical back-up servicesprovided by Government will be ensured in the context of the regular functionsof extension work in agriculture, health and education.

- 48 -

VI. AGREEMENTS REACHED AND RECOMMENDATIONS

6.01 Assurances were obtained durina neaotiations that:

(a) procurement of the goods, works and consultant services requiredfor the Project and to be financed out of the proceeds of theCredit will take place in accordanc* with procedures satisfactoryto IDA (para. 3.28);

(b) th,. Borrower shall establish and maintain for the duration of theProject, the Project National Coordinating Committee (PNCC) with acomposition and function acceptable to the Association (p3ra.4.09);

(c) a staffing plan was drawn up for the Project, indicating staff tobe transferred within the MAEE and staff to be contracted, and theschedule of implementation (para. 4.18);

'd) the Borrower shall, for purposes of carrying out the Project,emplay and maintain staff with qualifications, experience, termsand conditions of employment all satisfactory to the Association(para. 4.19);

(e) agreement was reached on the nature and measuring standards ofindicators to be used to monitor project achievements (para.4.29a);

Cf) for all expenditures for which withdrawals from the Credit accountare to be made on the basis of SOEs, the Borrower shall (i)maintain records and accounts reflecting such expenditures, (ii)retain for at least one year all records evidencing suchexpenditures, (iii) enable IDA's representatives to examine suchrecords and (iv) ensure that such records and accounts areincluded in the annual audit (para. 4.30);

Cg) the Borrower will hire a consultant no later than September 30,1992, with terms of reference and qualifications acceptable toIDA, to set up and operate the project's computerized managementand accounting system, prepare an accounting procedures manual andtrain project accountants (para. 4.30);

(h) (i) the records and accounts (Special Accounts and SecondGeneration Special Accounts) will be audited for each fiscal yearin accordance with appropriate auditing principles, consistentlyapplied by independent auditors acceptable to the Association;(ii) the Borrower will furnish to the Association as soon asavailable, but in any case not later than six months after the endof each such year, a certified copy of the report of such audit bysaid auditors, of such scope and in such detail as the Associationshall have reasonably requested and (iii) the Borrower willfurnish to the Association such other information concernin& suchrecords, accounts and the audit thereof as the Association shallfrom time to time reasonably request (para. 4.35);

- 49 -

(i) each year, not later than December 31 at the latest, the Borrowerwill convene a project implementation review meeting with IDA,other co-financiers and regional and local authorities, to reviewand approve the PNCC recommendations regarding projectimplementation (para. 4.36); and

(j) (a) the Borrower and the Association shall conduct, no later thanDecember 31, 1995, a mid-term project implementation review to:(i) monitor progress of project implementation; (ii) assess theexperience gained under land tenure arrangements, with a view todefining ar. action plan to be agreed upon between the Borrower andthe Association, including measures to replace, modify orimplement the existing land tenure framework; (iii) evaluateperformance of the national Environmental Monitoring Team andreview the EIS to be proposed by the Borrower; (iv) assess theBaoule National Park management plan; and (v) evaluate theimplementation of training programs; (b) no later than six weeksprior to such review, the Borrower shall furnish to theAssociation for its review and comments a report in such detail asthe Association shall reasonably request, including: (i) anevaluation of progress achieved in project implementation by theBorrower in general, and by its central, regional and localagencies, in particular; (ii) a draft action program for thecompletion of the Project; (c) promptly after completing themid-term review, the recommendations of the said review shall becarried out agreed upon between the Borrower and the Association(para. 4.37).

6.02 Conditions of effectiveness will be that:

(a) the Borrower has submitted to the Association a detailedProcurement Plan except for village local investments, withtimetables satisfactory to the Association (para. 3.25);

(b) the Borrower has submitted to the Association bidding documentsfor subcontracting the implementation of the skills developmentcomponent of the project, satisfactory to IDA (para. 4.13);

(c) the Borrower has furnished proof to IDA's satisfaction that theland tenure arrangements to be tested under the Project can beeffectively implemented within the framework of current laws andregulations (4.17c);

(d) the implementation of the staffing plan for the Projectsatisfactory to IDA has been completed and a short list ofcandidates for key Project posts to be fulfilled immediately afterjffectiveness has been supplied by the Borrower (para. 4.18);

(e) contractual arrangements satisfactory to IDA have been concludedbetween the Project CIMU and the Directorate of the AgriculturalServices Project on the coordination of the two projects at thecentral, regional and local levels (para. 4.23);

- 50 -

(f) an operations monitoring system satisfactory to IDA has beenestablished for the Project (para. 4.29a);

(g) the accounting and financial management system of the Projectsatisfactory to IDA has been put in place (para. 4.30);

(h) a procedures manual satisfactory to IDA has been establishedconcerning the preparation, negotiation and implementation ofcommunity NRM plans, including guidelines for village land tenureassessment, covering (i) the assessment proper and (ii) how landtenure arrangements to be carried out under Community NRM plansshould be processed with local authorities (para. 4.34);

(i) the Borrower has appointed an auditing firm acceptable to theAssociation to audit the project accounts, based upon a one yearautomatically renewable contract, except in the case of poorperformance (para. 4.35); and

Cj) outstanding audits of Mopti Area Development Project (Cr. 1597-MLI), Agricultural Sector Adjustment Credit (Cr. 2163-MLI) andOffice du Niger II (Cr. 1906-MLI) overdue since December 31, 1991,for the first one and March 31, 1992 for the two others have beenprovided to the satisfaction of IDA (para. 4.35).

6.03 Conditions of disbursement will be that

(a) no withdrawals shall be made for expenses incurred under theBaoule National Park component until new park boundariessatisfactory to the Association have been adopted by the Borrower,and a statement on its impact on the environment and indigeneouspeople has been reviewed (para. 4.08); and

(b) no withdrawal shall be made for expenses incurred under theNational Environmental Monitoring Team until the Borrower has (i)established a national entity charged with planning, monitoringand evaluating desertification control and NRM, with a degree ofindependance and authority satisfactory to IDA; (ii) supplied IDAwith an organizational chart and a work plan aiming for thecreation of an environment information system satisfactory to IDAand (iii) developped an administrative and financial unitsatisfactory to IDA to manage Special Account B (para. 4.29c).

6.04 Recommendation. Subject to the above assurances and conditions,the Project is suitable for a credit of US$20.4 million equivalent to theGovernment of Mali on standard terms, with 40 years maturity.

hal .jcb

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ANNEX 1Page I of 3

MALI

NATURAL RESOURCE MANAGENT

A STRATEGY FOR COMMUNITY LEVEL OPERATIONS

I. INTRODUCTION

This Annex summarizes an operational strategy for preparing andimplementing community level development and natural resource management plans.A more detailed description of the strategy can be found in Working Paper No. 1included in the Project Implementation Volume.

The strategy is based on a decentralized, multisectoral, participativeapproach. As the details of project investment are to be decided by the localcommunities, it is not possible to pre-determine specific physical goals.Project activities in each intervention zone will be selected by communities froma "menu" of possible interventions aimed at improving production, providingbetter infrastructure and services, and ensuring better natural resourcemanagement (list in Annex 3, and detailed features in Working Paper No. 8included in the Project Implementation Volume).

The process described here is not a finely developed, rigid procedure.Local modifications are essential and should be encouraged so that the specificagro-ecological and socio-economic conditions of different areas may be takeninto account.

II. THE STRATEGY

The strategy aims to help plan and implement durable local development andland management activities at the community level. A key element, indeed aprecondition for success, is the allocation of authority and responsibility tocommunities for their own development and land management. The strategy linkseconomic production, social infrastructure development, and sustainable resourcemanagement through a community NRM plan and implementation contract.

There are eight basic steps in implementing the strategy:

(i) Fulfillment of essential pre-conditions. These include a strong,visible, and effective high level support for the strategy,including appropriate national policy and legal framework; effectivelocal and regional institutions (Village NRHM and subsectoral groups,technical support teams, etc.) with the mandate and manpower tocarry out ; and an appropriate level of awareness and concern.

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ANNEX 1Page 2 of 3

(ii) A participative survey of local natural resource problems and needsshould be undertaken by specially trained members of the supportteam. Using traditional, local concepts the community describesthe resources of their "terroir" and identifies key problems andneeds. The perspective of sub-sectoral groups such as women,landless, and children need to be included in the analysis.

(iii) Identification of local goals, and the skllls and resourcesavailable to achieve them. This, once agaLn, is undertaken by thecommunity itself with particular attention being given to, firstly,aspects related to the quality of life (income security, socialvalues, health, education, water supply, communications, etc.) andsecondly production and economic goals (crop, livestock, forestryproduction, employment, etc.).

(iv) Preparation of Village Natural Resource management plan. This willinitially be a relatively simple document, that can be developed indepth and complexity as need and capacity demand. It would bebased on the results of the two previous phases (sections ii andiii) and should include components concerned with production,infrastructure development and natural resource management. Theplan should indicate which activities would be undertaken by thecommunity itself, and which would require external assistance;either financial or technical. The plan should cover a two-yearperiod, but should be regularly reviewed and updated.

(v) A review of the suitability of the Plan should be undertaken beforelaunching implementation. The review should include: anevaluation of potential environmental impact; an identification ofweak links; an analysis of cause and effect, to make sure thatfundamental problems and simple symptoms are being tackled; acalculation of the marginal benefits to the population; an analysisof the plan's sustainability and energy requirements; a review ofthe role of, and benefits to women in the plan; and, finally, anassessment of the plan's social and cultural impact.

(vi) Neeotiation of a development and land management contract betweenthe community and the program would follow the review. The rolesand responsibility of both parties would be clearly defined, aswould a time table for action, and details nf the specific steps tobe undertaken by each side. It is to be expected that thecommunity's contribution will be mainly in the form of labor,agreements to control the use of certain resources and areas, andsome finance. The program's contribution would be principallytraining, technical advice, and finance.

(vii) Implementation would follow the negotiations. The majority ofthe work would initially be undertaken by the communitiesthemselves, with only a limited amount of work being contractedout.

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ANNEX 1Page 3 of 3

(viii) Evaluation and Adjustment will be undertaken on a regular basisthroughout implementation. Careful reviews of progress, by bothtechnicians and the community, will lead to modifications andadjustments to the plan and the agreement. The methodology used inthis whole process, as described in this paper, should also besubjected to review and modification.

III. THE CONSTRAINTS

The strategy presented in this paper is new. A significant constraintduring the early years of implementation will therefore be lack of experiencedand trained practitioners. While pre-implementation training programs can helpto a certain extent, it will also be important to ensure that program goals arekept to a realistic level.

Other potential constraints include: i) problems with village selectionand failure to develop rigorous criteria that ensure that only suitable, Iready,Ivillages are involved in the program; ii) failure to ensure the full array ofconcerns and points of view in the community are taken into account; iii)administrative constraints blocking the flow of funds and hence the program'sability to deliver timely and effective services; iv) failure of the Project tosecure sufficiently flexible funding that enables to respond to the widest rangeof locally identified priority needs.

IV. MONITORING AND EVALUATION

The program has no previously determined, precise physical goals. Theessence of the strategy demands this. It will therefore be very important todevelop an effective M&E system that provides information on three levels.Firstly, the operational efficiency of program operations should be monitored toensure that staff and financial resources are being correctly used. Thisrequires a standard system of financial audit, management review, and assessmentof pre3ect implementation. Secondly, the strategy and methodology themselvesshould be carefully reviewed to ensure that project impact is responding to bothlocal development needs and wider environmental concerns. Thirdly, at theregional and national levels, the impact of the program on development, theeconomy, and the environment should be monitored. This should review whetherthere was effective "feed back" from the field on key policy, institutional andlegal matters, whether the local, decentralized focus of the Project helps intargeting technical support and infrastructure investment to where it is mostneeded and therefore more efficient.

V. CONCLUSIONS

There is no simple blueprint available for the implementation of thisstrategy. The success of the operation will depend to a very large extent on theskill, determination, and dedication of those people entrusted with projectimplementation. The strategy gives them more opportunity and more responsibilitythan usual. Whether this is finally seen as a strength or as a weakness ofdesign will depend on the people themselves.

MANATURAL RESOURCE MANAGEMENT lbt511CT

LIST OF PbILOT OPERIATIONS

*itle of Project Donor Impkmaln AmountJ Period (USS 1,000)

A. RESSOURCES EN EAU IT EN SOL

1. Luneo hm o cor rsEosion Gencyrz s s so 2,8472. Lunt AliErosi KoWilWal I Ndheands 86-89 1,0133. AzuEaganet Terror Villo Pan Nehcrland 8749 2934. DI _oppmaat Rural Dogos Neherlands U980 198S. Lulte Ati-Eh ouiW KoaiaPai 1 Nhcrads t9-93 3,8326. Resoure d'Eau US PNa Corp 71-89 2,6287. Plauifcation et Gedion des EPx Sourabu UNDP 5489 6,1958. A _asgemet Hydro-Agricole Gao UNDP S6-89 1209. Syame Pagutine UNDP 87-89 12510. DRe et Rslouws Nau res UN Volunwers 5489 011. Pub lAmior Diolk SNV 7849 712. A _nages dos Ternoin Vieoo Fan SNV 8889 297 .13. Aduction dEAu Gouinn Niak ACDI 88-91 2,43714. Hydralpu Viflageo ACDI S9 8,390IS. Puit de Mwins ACDI 8889 51116. Maklie de rEau en Pays Dogon ACDI 85-89 1,27017. Puls poUr ka Survie de l'Enst Afice U8-91 27315. Puls de KolmueboxAfu Aicar 69-90 619. Puils do Pamni Aficam 89-90 520. Pul de Babugou Africa 89-90 321. Proje da*FAo-Asuimanoe de Gaado AUirica 89 722. D6- Ie_ ew de Niafikd Eau Pbtable AMAS 87-89 14423. Puirts d'Eu L pakoGoiuma BADIFAD 90 12,43724. Hydraulque Villisgeoi CEAO BAD/PAD 87-89 6.17325. oins d'Eau 1.pako-Gourma DID 4,98126. Apouo en lDa en Milicu Rural IBRD/IDA 84-92 10,90027. Prjad Pub Macin CARE/Mal 86-92 1,11328. Mli Aqua Viva 3 CCCE/Prance 87-90 6,48829. Hydulique Viblagouc I Silam=e Kadiolo Denmk 88-90 11,14030. Eau Putabk eKotials PAC/Pance 25931. Barges en Pays Dogon/2hme Tnche PAC/Prnce 456

32. Mali Vivad jHge Villageis FAC/rance S 50933. RPau Hydrologique FA 12734. Valorisation EuShne Region FED/CUE 8849 55635. Hydiqe Ike et 2ke Rdgions FED/CUE 4,42036. HydmuiqucVillcageoiA-A inis UNICEF 8892 11,69837. Puibs Paomux & OURO Velbl (Kouna) Genvdrs Monde 1638. Eau pour Is Mal Ily 87-92 1,85139. Valodation Resouuese Hydr-Souterraines , IV, et V Roons Ily 88-90 2,71740. Unitd C-opdation dEcution d'Acqducs R3Ux/Pa JI IalWy 88-90 6,77341. Prje de Puits du Lac Fagoline Luhe-W. Relief 342. Kngoia Gueba OXPAM (UK) 89 743. Tapoto OXPAM (UK) 89 444. Pnojet D hceoppement Rurd et Misw an Vakur des Resource Nauefles PAM 87-91 4145. HydraulkuVllageoiscliatoims SECAMA 89- 9246. RedCh: MisO on Valur EBm SoutCranes Sw;ziQand 86-89 5,28647. vt au Potable Plateau Dogon Sw dzerlan 85-92 97448. HydhUu Tare des Hommes 5449. Pubt Vllageojt ToxboutOu UNAIS 87-90 262 150. Misn en Var dU Systam dU Lac FaguCP e UNSO 86-90 3,75051. POUi Dogon World Relief 88-89 2,60052. PRojt de D6velo Wement Ietid M&uk. ViSion Mondiak 88589 564

B. ENERGI

1. Pormm Spdoial Enagis Raouvabl (PSE) Gmany GZ 85-90 1,4322. Diffuion de Foyes A r Germany GTZ 88-91 2,5623. Energy Secor A umn Pogram Nethurads 2534. Foyas AmofEs US Pac= Corps 71-89 2,010S. Diffusion Foyes Amrliofg Kayes UNSO 87-90 5306. Cetre Rgal d'erie Soai (CRES) BAD/FAD 88-89 11,5317. Ahndnameat Hydro-Agricolo de h Plain do Daye BAD/FAD 89-93 2,845S. Cente Rioml Eneg Solaie Lome I FEDICEE 2,0239. ESMAP Household Energy Statea Nedbcand 89 41S

C. AGRCULTURE SYLVICULTURtE ET PECH8

a. A uic k au | 1. Pogd de Dd penat Agmob dans le Zones Aides Mui CARE/Mali 86-90 1,5362. Projet de D6l4J nu Rrl & Tombooctou CARE/Mali 86-92 2,8693. Pojet Sysae Agro-Syvo-Patonm Viabls & Denne CARFMaH 8991 1,0184. Projet Agop-Ecoloi Bk DED 86-91 333S. Pijt Agro-ologic Tominia DED 88-90 133

6. Petit Barages anPay.Dogon DED 87490 ISS7. Appui Office du Nigert2mne Trnche FAC/France 4338. Gestion du Terroir Mal-Sud FAC/Fkance 2519. Projen Zono La1st FIDA 87-93 6,27110. Prone do Dveoppnet Rrl MaSud H FIDA 84-9 12,82811. Proe do Recherche at In Sytmes de Production Agricole Nedherlands 84-89 9,00012. P Projs Ambusde Nethelands 8489 6313. Projet do RoCiechee as ks Systmes de Production AgriCole Nherands 89-93 6,70614. Valrisaio Ressources Hydauiques Gao et Tombouctou Ialy 89-91 615IS. Op6rtion Haute Vaile USAID 78-90 20,79116. Recherche sur n Sytmes de Produclion Rurale USAID 85-94 9,28317. Amdnagent do Teroir ACDI 88-93 9,75018. Kaarta/Fhase M ACDI 89-90 12,58419. Micro Raliaion 11 ACDI 89-93 4,06220. Kaaia/Pha1 H ACDI 84-89 19,30321. GOet In btgre Resources Natreles AEN 2,64422. D&mbppement de Nifink6 P6ambrcs 1rrig AMAS 87-91 9823. Oass f Amduageunets ANITOU 87324. Iniate die Bae ANlTOU 33525. Ddveloppament Rgdon do Mopti BAD/FAD 86.90 8,01226. D6veloppaW nt Agro-Sylvo -Paoal en Eve au Mali Nord-Est BADIPAD 88-93 18,62327. D&eo"cment Rural Slngue BADIFAD 82-89 14,81728. Rdaliation du PNrimtre Hyd-Agricol Baguineda BADAD 90-94 19,21329. Amhnicat Hydo-Agriool de Pbaine de Daye BADIFAD 89-93 8,49630. Appui Lo tiqu_CoophrWo-R m v Belgium 89-92 3431. Projn Mali-Sud I IBRD/IDA 8449 25,90032. Ddvekoppcmc REgon Mopti IBRD/IDA 85-91 19,50033. Projet Consataon Office du Niger IBRD/IDA 89- 40,00034. D&veoppeanet Rurl REgion I IBRDADA 88- 25,00035. Cnl Tanda Kabaa CCCE/Frnce 87-9 4,99136. Poje de D6veloppemeat Rual Mai-Sud H CCCE/Frnce 8489 9,15437. RIocaNiation Nomades A_Magemceat Mar do Doo EUMC 87-91 11338. MaSud 1mm. meTanche FAC/Fanue 77939. Office du Niger/3bei Tnbche FAC/Fance 5,15740. Prto t SoI-Eau-Ptme/Ihae H FAC/Fance 25441. Appui rOfflice du Niger FAC/Fance 11,71542. Prot Fuhmvi r dl ons Lone m FED/CEE 88-90 3,46243. Am6nagemet Hydro-Agricole GAO FENU 8489 2,3844. Poamme AgSylvo-Pastorl Haua Itly 5,009

4S. DtlrePlu D o ~~~~~~~~~~GernanyKFPW 7,570 oo 45. D6veloppamnet lntdri PI.tan DogonGatnyFW7S46. Paguibine (UNSO) Norway 87-89 1,039 x47. P mme IEgred BafouWbe Nony 87-90 . 3,04248. Ddvhel m Agriool Norway 87-90 1,87049. Ddveloppeneut Agricola Zone LacuI e OPEP Funds 2,600

50. D6veloppunentl6 de li Zone Lacareiae n UNSO 8689 43051. Vulgrisation Agricol en Pays Dogon Germany GTZ 88-152. Decvppeent Rual Integrc du Lao Oro Germany GTZ 88-91

b. Bkvg1. Dveonment del 'Agricukure Gerany GTZ 89-90 4322. Ekvag UNDP 88m2 1,0683. Secw lMgc 11 USAID 82-90 22,2204. Encadreient et Relamc Eevage Tombouctou VSF 89-91 5725. D hvbocmcnt In4rc de 8 Villages ACDE 88-90 136. Appui k l'nvage EBRD/IDA 88- 5,0007. Opratioo D oppemat Elege & Mopti ODEM CCCE/Fhan=c 86-89 6,4558. A _nage Pastoranu dans la 3me Rgon CCCE/IFmnce 89a2 5,2439. PRODESCO Kayes-Nam FAC/Frnce 29310. D6ecment Elevapg MaiSud FEDICEE 79-89 2,78211. Ekvage Mali Nord-Est FED/CEE 90-93 2,60412. Ekvage Sabel Occidentl (OMBEVI) Saoudian Funds 78-89 14,081

c. Poehe1. P smoioa do la Pechc (SEguE) Gernany GTZ 89-902. DppementPisciul UNDP 87-92 1,6183. Pechs Dioliba AMAS 87-90 100

d. Sxiyc -

1. Proj Agro-Foresticr Kozo CAREI/Mali 83-89 1,S082. Amiagement Fortier et Rebos t do Koulikoro PAO 86-89 1,1843. Surveilac Rssourcs Nauraes Renouvelables FED/CEE 86-894. Don do Vllages SgoulFP a luterm1aire Netherands 89 476S. Syheukur US Peace Corps 71-89 2,6946. Appui I la Foreuzic V iwgo. Rgion do KouMio/Phas H SNV 89-92 2,5647. Propammu dAppui I s Foruaeic du Mali (PAFOMA) Swiand 87-92 10,6668. AmEageent Fort Natuele Tunisia9. RdPoirniedVMageois USAID 80-91 1,85510. Projet Foestier OAP0 11 EBRD/IDA 86-91 6,30011. FlamnementdoPxejciForestier CCCE/France 8691 6,64112. Acais S gl (UNSO) Norway 87-91 1,38013. Dauim PerojetForester (IDA) Norway 88m90 2,44914. Koro Vllage Forestior Norway 87-90 1,51315. Ppinb Reboiaement Silo SECAMA 8-91 10616. R8Abation AcacisShfgl UNSO 87-91 1,500

MAIUNATURAL WI SOURCE MANAGEMENT PROJECT

MENU OF APPRQPRIATE TECINOLOGIES

Reliability Location Soils Slope Cost

A B C A B C A B C A B C CPAVOO Unit

A. Water HarvestinaEaulb Bund Acrs GUfy X X X X X 46 haRionfonxd Eath Bunds X X X X X X XSlone Bunds X X X X X X SO haContour Slone Lin X X X X X X XPbomn Bund X X X X 1,330 kmHarrowing X X X X X 33 haAnimal 1mpat X X X X X

B. Erosion ControlWatenhed Correction X X X X X 200 haSubsufce Stablizatio X X X XStraw Bundles X X 8nnch Bundls X X X XStone Bundles X X XGabion Weir X X X X X X XSpilwy X X X XRiv_bank Trnuig X X X XQuicbet Hedge X X X X 12 kmWuidbrak X X X X X 140 kmGCa Conur X X X X X X 40 ha

C. Soil Filit, h Dune FixationAgro Forestq X X X X X X 145 haSand Dune Fatio X X X X 400 haSand Dunc P _atation X X X X

D. Vctlion RehabilirationControled Grag X XX X X X X XPaddock Delimtation X X 67 haEarly Fus X X X X XFureBreaks X X X X X X X 40 kmReforesaton X X X X X X ... . & ~~~~~~~~~~X

Natural Pod Rehabilidtion X X X X 107 haPitting X X X XTree Nursry X X X X X 1,066 unitReseeding X X

e. Village Water Sungl,Well X 11,000 unitBoreholes X 3,200 unkBorehoks With Pnp. XEarth Dam X X X X 8,400 nitPndDeepeming X X X X X 640 unit

F. Aerucuhural PrcTied Ridgs X X X X XSemi-Circular Earth Bund X X X X X X 59.000 hPlate Semi-Ciculr Earh Burd X X X X X 95,000 hV-Shaped Micro Cicthsn X X X X X 196,000 haSani-Circular Ditches X X X X X 360,000 hZmi (Buria Pitig X X X X X 268,000 haCukivation Under Mubh X X X X XIncorporation of Green Manure X X XIncorportion of Crop Residues X X X X Xlncorporation of Strw X X X X XComposting Pit X X X 45,000 unitCrop Rotation X X X X XContour Crtpuig X X

Reliability: (a) FuUy tested in Mali, (b) Tesled in Sabel, (c) Still not tesed in SahelLocation: (a) Agricukuan, (b) Rangeland. (c) ForestqSoils: (a) Sandy. @) Sily, (o) ClsyeSbp.: (i) Ls thn2%, (b) 2to 6%, (c) More dn 6%

IX

MALI

NATURAL RFSOURCE MANAGEMENT PROJECT

DESCRIPTION OF TIlE PROJECT AREA

Arva Production Homogeneous Cercbs No. of Areand Types of ActivkySyspm Zone Villages Population

MOPI1 _ vg" Ativ Delta Djenne i 42,000 ha Flood Control, Borcholes, and RangelandDpamc Ag:mculawc 11.000 inhab. Mnagemnct

Tcnenkou Transhuman -inctive' Dela Tanakou 15 Villages or 138,000 ha/ Pastorl Development, Fishing Resources,Heding (WCst) "Fractions" 6,000 inab. a Agro-Forestry

Doueanza Trnshuman Gourm Sod and Douentza 3 Pastoral Units 90,000 ha/ Pastoml Water Pbints, Agro-Foray, andHerding Mondoro Boni 700 inab. Rangeland Mangement

GounnaRharous

BAOULE Protece National Mandingue Plateau, Kita 10 378,000 ha/ Participative Managemcnt of NaturalPauk National Park (DF) Kolokani 1,700 inab. Vegetation, and Agro-Forcstry

DILLY Pstoral Rcsource Hodh Nam is 145,200 ha/ Pasture Development, Management ofand Agrienhuru Dilly 8,000 inb. Waler

Rcsources, Village Reforestation, ErosionConttol, and Panicipative Management ofNatural Vegetation

PERI- Agp-Forestry Mandingue Platu Kati 30 95,000 ha/ Particip- .e Managcment of NaturalURBAN Villages aNd Dioila 20,400 inhab. Foress and New PlantationsFOREST GaztAREA Forests

KAYES- Pastorl and Guidam gh Kayce 30 323,700 ha/ Erosion Control, Mobilization of SurfaceDIEMA Marginal 22,500 inab. Water, Integrtion of Agriculume and

Agrichuro Stockraising, nd Natural ResourceHodh Dion 30 270,000 ha/ Management

24,300 inbbx

KAUNatural Resource Management Project

Sumary Accounts Cost Sumary

FCFA9I U5MM8 % Totsl_ Foreign Bass

Local Foreign Total Local Foreign Total Exchange Costs

I. INESTMENT COSTS

A. CivlI Works 172116.9 26965M4.0 4317590.6 6199.7 9U40.2 16586.9 6S.1 67.8B. Equipm_nt/Nat.rials 16479.6 820W44.6 48668s.6 592.6 1164.1 1748.9 66.1 6.4C. Vehicles 112399.6 198886.2 3f8286.0 494.8 697.4 1191.7 88.3 4.1D. Aerial photo/Sat. imagery 121e.t 2811.9 49e.6 4.8 16.1 14.4 70.9 9.1E. TralnIng 458356.6 667J.9 522296.8 1631.3 247.1 1878.4 18.2 8.9F. Consultant 27300.9 716809. 966888.9 962.9 2674.8 8656.6 72.4 18.1

Total INVESTMENT COSTS 2726901.8 8696613.7 6624516.6 966.4 14028.6 23829.2 68.9 87.9

II. RECOURRET COSTS

A. Salaries 353260.9 9.9 85326.6 1279.7 0.9 1270.7 0.0 4.7B. Travel Allowances 2S7602.6 6.9 267692.6 926.6 9.9 926.6 9.8 3.4C. Vehicle 0 M Costs 94497.5 77242.6 171659.0 839.6 277.9 617.4 45.f 2.3D. Equip m Maintnaocs 45287.5 27862.5 72699.0 .162.7 98.4 261.2 37.7 1.9E. Office Operatinc Costs 617S9.9 *.0 51759.9 166.2 *.0 186.2 .9 9.7F. Bullding Maintenance 176.9 1676.9 8769.9 6.7 6.7 18.5 59.9 0.1

Total RECUENT COSTS 64182.5 196480.0 919612.5 2892.6 388.9 3275.6 11.7 12.1

Total BASELINE COSTS 85383a.6 495993.7 7535127.5 12696.9 14406.6 27104.6 63.2 1i9.0Physical Contingencesg 214682.1 363692.6 578286.9 772.2 1387.9 2669.2 62.9 7.7Price Contingencies 39625.9 499fl2. 635 18.6 1221.8 2766.2 2967.5 59.1 11.9

Total PROJECTS COSTS 4114236.6 4869689.8 6943626.1 14691.6 17486.9 82172.4 64.3 116.74_1m _-

4/39/1992 aT :18

I-

U'

MALINatural Resreu Man Projoet

Project cot Sumry

FCFA uSJm X TotelX Forelgn BseLocal ForIgel Total Local Foreign Total Exchangs Cost

A. Ville" LwI lIvestsmfta 1719446.6 2684444.0 4844690.9 0152.7 9476.4 15629.1 so.0 57.7D. Field Teckeical Support 60 47.6 286229.5 61445.6 2159.6 06.1 3m.2 28.2 11.1C. Central Imp.1 Monit.Umit 166132.5 elm.# 226902.5 594.6 222.5 816.3 27.2 3.9P. Skill Dvt & Publlc Aware 68556.9 6.6 563555.9 227.2 .9 327.2 9.0 7.5E. TA, begerch & Studies 20790.9 GJ2C .0 U4156. 756.7 2276.8 M527.9 76.2 11.2F. Ba-l. Pational Park 26994.8 81_C1.7 51979.$ 755.3 1101.2 166.6 59.5 6.9a. Not. Eavi. Mo.l. Facility 7.6 132134.5 234735.0 259.9 47.5 736.5 o4.S 2.7Total UASEWIE COSTS 853UM.$ 49 3.7 7u3127.5 1269J.9 14496.6 27194.6 53.2 1U.0Phwsical Conti ufciles 214662.1 86862.6 5762.9 772.2 1897.9 29.2 02.9 7.7Price C.etlucies 39526.9 496192.17 63J1.6 1221.8 176.2 2937.5 $9.1 11.0

Total OECTS COSTS 404236.6 4659669.3 9926.1 14691.5 17469.9 3217.4 64.3 116.7

4/6/1992 llsl4

* Refinancing of a PPF of US$200,000 is included in these costs.

MALINatural Rwource Management ProjectSuary Account by Project Component

FCFA35

Villa Central Skill bat.L l.'r FAeid Impl.& Deyt A TA, Seoulc Envi.

Investmen Technical Monit.Uni Public Reserch National Moni.to Support t Aware & Studies Park Facility

1. DWESITM CUSe

A. Civil Works 415_5.9 4915.9 6.6 0.9 9.9 13_11.9 9.93. Equipmsst/lsterials 214351.9 155605.9 1395.9 9101. *.i 5735.0 87336.9C. Vehicle *.6 1264810.9 526. 91015.6 9. 112816.1 11.D. Aerial photo/Sat. tmegey t . 6.0 t .t 9. 9 9.9 451.9 0.9E. Training 0.9 el 8.* 45356.6 1.1 6170.9 6.6F. Coemltaste 9.9 t.t 9 .9 948WS M15. 2755.9 7269.6

Total INVESTHENT COSTS 434436.0 21141.0 .61 65.0 S3OWN. 7411n.0 46655.9 17156.

1U. NECIJEENT COSTS

A. Salarie 9.9 25691.9 5839.4 6.0 6.0 26143.0 14405.B. Travel Allnces . 112656.9 598392. 0.6 65.9 28925.0 6750.0C. Vehicle O 11 Cost. 6.9 1176.0 4251.9 9.9 *.9 9.9 1295.6D. Equipment Umibtenamo 6.9 1761.9 0.6 9.9 *.9 C65.9 0.0E. Office Opeatinc Coot. 6.9 44266.9 75.9 *.9 9.9 *.9 t.9F. Sol lding Umntenance 9.9 3769.9 6.6 .9. 9.9 9.9 9.6

Total ItECUIT COSTS 0.9 554965.9 161982.5 0.9 565.9 1156.9 33160.9

Total SASELIE COSTS 434469.9 33446.9 226892.6 56355.9 34155.9 511179.9 294735.9Physical ContinigecIes 434489.9 2125.9 2425.9 8.9 7915.9 24712.5 163.6Price Contieci 69273.6 51529.9 15826.9 46939.1 6521.2 2M36.6 1669.1

Total OJECT COSTS 561452.9 916174.9 24616.4 69494.1 966621.2 571916.9 239862.6

Taxes 9.0 0.0 9.6 0.9 9.9 9.9 6.0Foreign Exclago 32936.6 29M2.5 66015.5 6.9 74389. 339397.6 153177.1

4/11/1982 11:12 -_

WLuNatural Resource eMnagummt ProjectSumry Account by Project Component

FCFAW

Physical PricoContlngonciTs ContingncieT

Total Amount X Amount

1. INVESTU COSTS

A. Clvil Works 4317696.9 16.6 431759.0 13.4 69293.4I. Eqmaipmnt/Mteriels 486U6.0 9.8 477".6 9.3 46363.9C. Vehicle 625.6 9.6 *. 4.1 12413.2D. Aerial photo/Sat. imagery 4.4 14.9 499.6 1.9 76.6E. Training 522286.9 6.6 6.4 8.3 43359.9F. Consltant 99J1111.6 9.9 69476.9 7.4 73263.7

Total WESTT COSTS 0624515.9 8.6 56997.5 11.4 764749.1

It. RECUII COSTS

A. Salari" 65326.6 *.6 6.6 .2 29136.5o. Travl Allone 257ff2.5 6.0 6.6 7.6 1978.9C. Vehicle 0 A M Ce 171656.6 9.9 *.9 9.8 1s136.3D. Equipasat Maina 7269.9 2.8 2662.5 .8. 6492.2E. Offlce Operatinc Cot 5176 .9 13.2 2.6 .3 4664.6F. BlT Iding Maintenane 376. 9 9.6 9.6 6.7 827.1

Total REN CSTS 915612.5 1.9 6897.5 8.3 75773.5

Total BASELI COSTS 7635127.6 7.7 576236.6 11.0 836613.6Phsical Conti.osncies 578235.6Price ContingencT 63513.6 7.7 63S57.9

Total PROJECT COSTS 694926.1 7.2 641642.9 9.5 863613.6

Toxw 6.0 9.6 0.9Foreign Exchange 4359689.3 6.4 496913.4

4/3/122 11: 12

tJl

mueat.IIl Eseource Manaemt Project

FCFAU9

Sumry Account. by toer

Bose Cost Foreign Exchange

91 *2 es *4 06 Total x Amount

I. IINESTnIT COSTS

A. Civil Works S5W9.0 491529.6 355558. 1217467.0 1687616.6 43176900 60.1 259684.9B. Eq.p.pet/M.tOrialIs 162396.0 6709.0 6466.0 96349.0 8460.0 486836.9 66.1 320844.C. vehicles 17660 . 51S 0 5 3S10 1 M46.0 SON.6 306285.9 63.3 193885.2D. Aerial photo/Sat. lo.9q 4.U9 *9* 9.* 9.0 9.t 4616.0 70.0 2600.0E. Training 67715.t 1196.0 117M7.9 12U70.9 96296.0 522206.0 13.2 6876S.6F. Cosultante 2942.9 275979.0 222979.0 136026.0 64729.0 9M8960 . 72.4 7168019.

Total DWESTUDE' COSTS 77943U.0 192874.0 1311413.9 15756I2.0 1928931.0 6024515.0 58.9 3896613.7

I. RECaUIET COSTS

0. Salari"s 4140.0 S664. 77106.9 7719180 76220.9 353269.0 9.0 O.0H. Travel Al loeaces 4743a.0 61322.5 S96.0 46469.9 46450.9 257602.5 0.g .0 aI. Vehicle O a M Cost 25976.0 32960.0 $7675.9 $7875.9 3876.0 17180.0 45.9 77242.5 VIJ. Eqvipment Maintenasc 14501 142 .0 148M. 1466.9 14866. 72609.9 37.7 27302.5K. Office Oporatluc Cost 195.9 l3.0 1935.0 19360.9 13506.0 617650 .. 0.0L. Building malteance 750. 760.9 750. 765.0 750.9 3765.9 50.0 1875.O

Total SOECrET COSTS 151745.0 188112.5 196905. 187406. 13445.0 910612.5 11.7 106486.0

Total BASELIE COSTS 931186.0 1216966.5 166131.9 1763267.9 2115376.6 7536127.5 53.2 4006093.7Physical Cotingec1ie 52713.0 62426.4 116209.3 144361.2 132679.1 578265.0 62.9 836362.8Price Contingencies 1686. 66498.0 140685.6 235407.4 371244.7 839613.6 59.1 495992.7

Total PROJECT COSTS 10_9576.0 136659.9 1765212.9 214303.6 266919J.3 8943926.1 54.3 4859689.3

Tr.e 0.9 0.0 9.6 6.0 0.0 *.e 0.0 9.0Foreig Excang 5569159.0 731692.8 943601.9 116022.6 1464313.9 4869689.3 1JJ.6 48596#89.3

4/86/1992 11:18

usI oe

VALINatural Rsoeres Imsost Project

Sumry Accoqat by Ver

Totals Including Contige.cleeFCFAM

41 2 U4 a Tot I1. DWESII COSTS

A. CjvIl lWrs 9165. 566745.4 1923846. 1665.69 215U42.8 15202.40. Equlput/mst.rials 169718.5 657.2 191.6 119116.1 121829.0 767572.4C. vehiclem 176516.6 66419.7 53224.9 1165.2 661.$ 810696.2D. Aerial phto/sat. l_m 4476.3 6.6 6.6 e.g 9.0 4476.6E. Tralmiag 6575. 1252 9.9 127669.6 154425.5 11_4.9 10554.9F. Consultas 527647.6 517826.9 26596.0 166140.9 6611.5 115152.7Total IIWESTmT COSTS 644695.6 1167165.2 1561644.9 195259C.6 2455361.3 7940652.6

n. IIECUIFff COSTS

A. Salaries 54952.1 71655.1 681U.5 65661.7 37073.1 6239506.S. Travel Alloe 46141.4 64119.6 60247.7 5151s.6 53064.1 277081.4 0'

C. Vehicle OM a Coot 2c49s.6 54616.7 4169.8 42462.4 43871.6 167538.5D. Equip -l Maintenao 14040.9 15333.7 16484.6 17922.1 17577.4 616t4.7E. Office Operatiac Coot 11696.7 12247.4 12614.9 12995.$ 15835.1 65129.5F. i ldling Ulbinterce 762.6 763.1 *14.5 341.8 $7?.1 4677.1Total RECURRET COSTS 1C5564.4 196746.7 21438.9 29439.9 216839.6 996273.5Totel PROJECT COSTS 14a78.9 1565963.9 1765212.9 2143836.6 2669196.8 3943926.1

4/16/1932 11:12

Vs|

Natural Reource MOnagsCwt ProjectSuscry Acousts by Yeor

Totals Iacluding Coetingencles

*1 12 9 04 6 Total1. DRNESTT CoSTS

A. Civil Wrbs 844.1 2345. 8632.9 6 24.8 7676.2 19171.8B. Eqi st Isle 611.6 249.6 864.4 429.9 486.4 2361.6C. Vehicl 642.2 816.1 119.6 41.9 24.6 1146.4D. Aerlol photo/St. lusaoy 1U.1 9.9 *.9 6.9 9.9 16.1E. Traiiag 247.4 45.7 4C7.1 43U.5 896.7 2684.4F. Coa eltaatt 1176.2 1148.8 964.7 576.1 293.9 4142.2

Total riESTWT COST 8016.5 4196.4 5576.6 6951.6 6625. 26592.8

II. REOIEAW CASTS

A. Salaries 197.7 257.6 299.9 897.9 818.2 1875.5D. Travol All _sec 178.2 239.6 216.7 165.8 199.9 996.7C. Vehicle 0 a M C"e 91.7 124.5 147.6 152.7 157.6 674.6D. Eqipuwmt Malutesa" 52.7 5S.2 59.8 61.2 ".2 291.6E. Offlc Operatlec Cost 42.6 44.1 45.4 46.7 48.1 227.1F. uilding Maistema_e 2.7 2.0 2.9 8.9 8.1 14.7

Total UURECNT COST 600.7 714.9 771.1 757.0 776.4 8509.1

Total POJCT COST 8599.2 4918.8 6849.7 7796.8 961.4 82172.4

4/38/1992 11:18

. 1~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~n

-68-

ANNEX 6

MAU

NiATMtAL RESOIMCE MANAGENENT PRO13C

ESTIMTED SCHEDULE OF DISB EMENTS OF IDA CKEDIT I/

DisbursementsIDA Piscal Year Semester Cumulative Cumulative

and Semester (USS Million) Disbursement

Deoember3l, 1992 0 0 0June 30, 1m 2! 0.6 0.6 3

EMDecember 31, 1993 1.4 2.0 10June 30, 1994 1.7 3.7 18

EMDecember31, 1994 2.4 6.1 30June 30, 199S 2.5 8.6 42

EMDecember31, 1995 4.0 12.6 62June 30, 1996 2.5 15.1 74

EmDecember31, 1996 2.4 17.5 86June 30, 1997 0.9 18.4 . 90

EMDecember31, 1997 0.8 19.2 94June 30, 1998 0.8 20.0 98

December 31, 1998 0.4 20.4 100

/I This schedule is identical to the tandard disburement profile for agriculkual proje in Mali, with the cxccdon ofFY96 whern one semester is compreued and the percentage becomes 62% instead of 54%.

2/ EBxpcted datz of Board pentation: May 1992Expeted date of Credit effectiveness: January 1993

NATURAL RESOURtCE MUAHMMUM PROJCC MMTI LEMENTinLTONSCE8DA

PY1 PY2 PY3 PY4 PYS1. ContraI Iel ementationand Monitorina Unit

Offico RehabilItationand Equipment XProcurementVehicle 7Procurement Equipment and Inputs XStaffing - Technicol Assistance 4 ----_

- CIMU Managme_t Toam 3---- ---------- --------- --------- ---------- CIMU ImplementationToam 3----6 --- ---------- --------- --------- --------- Support Staff ------- ---------- --------- --------- ---------

2. Technical SuDport to Field OperationsOffice Rehabilitationand Equipment XProcurementVehicle 19Stf fing - Regional CoordInotion 3…----_ _______-_ --------- --------- ---------

- District Coordination 10-…----… ---------- --------- --------- ---------- Accountants 3…---- --- ---------- --------- --------- ---------- TST 9------- ___ _-------- --------- _________- Exten-ion Agents 1iS-- - -10- … -10------ ---------- Support Staff 15…------- ---------- --------- ---------

3. In I _lntationat th- VJIlIaat eLtIS l ection of Villages 25 30 36 30 30Goal Setting/TrastBuilding 26 30 36 30 30BasslI no Study 26 30 36 30 30Set Up Villoge HRM Pln 25 30 35 30 30Negotiationof Villogo NRM Plan 26 30 35 30 30NRM Plan Impl emntotion/Moeitoring 26 66 85 S0Annum I Assessont and Adjustmnt 26 56 85 90

4. Skill Dove lgomntand Pub IIc AarenessBieding Documents Prepared X>InternationmlSidding XSetting up SubcontractingFirm X M TA Provided I------ ---------- ------- --------- ---------- …ITraining De liv erd I---- ---------- -------- --------- ---------

Imp l_mntation- Initisl Team Bulding X- Periodical Training --- --------- ---------- ----------- Annual Workshops X X X X X

Public Awareness Campaigns X X X X X

S. aouIla PrkRed-limitationSurvey XStaffing - OPNBB -------- ---------- ---------- ---------- -------

- TA I---- ---------- ---------- ---------- -------Equipment OPf4NB XEstsblishmntManagementPlan -------- --------- ----- ----------Implementationand Monitoring ManagementPlan ---- ---------- -------

S. Pro;ect ITmlamntationand MonitorinaSetting Up computerize Accounting System XNational CoordinationCom_ittee Meetings X X X X XSupervision Mission X X X X X X X X X XAnnual Accounting Audit X X X X XAnnual Project ImplmentationReviE. Meeting X X X XMidtorm Review X

7. Nationel Environ. Monitorino FacIlityRecruitment I--- --------- ---------- ----------- ------ProcurementEquipment XDe ign EIS I--- ------- ----Iimplementation ETS I…

--------- - -------- ~ ~ ~ -

-71-

ANNEX8

MAUNA12 RSORCE MANAGMN PROJECT

1aDk~~b~m. J_ . The staff input indicated in the Table below is in additon to the supevionprovided by a Banlk Natual Resource Management specai staiooed in Ouadgou (rina Paso) chargedwith the ervision of NRM proets in the sub-regon and other actvities, and in addition to regularsupervision needs in Washington for the review of progress reports, procuement act , cepondence, etc.(estmated to require two staff weeks per year).

2. & = Borh are to be submitted as follows:(i) they should cover al pameters of the project execution;(ii) at the end of May and November of each year,(M) by the Project Director of the Central Implementation and Monitong Unit based upon the input

provided by Projects' Regional and Distict Coordinators and Technical Support Teams.

3. Shedule of Suqu2Wm Nflmon

-ti - DanAnivky Ezxpef b Ed1YtffW02/ Projct Launcn Workhop TM, Facilitor, Nd Finnil Anyt 6.0

05/93 Siwnf/lmpkmtaon Rw Meetig TM and Poplar Praion Speoi-l 5.0Gender_ sm

11/93 Supervision Mision TM And Tninsng Speislt 3.0

05194 Revinw Meeting TM, NWn u ad pinancial 5.0Analys

11%94 suprIn Mibion TM Nd Poplwa Pua on SpeWiV 3.0Gender hgu

05/95 Midtam review (to rviw iplemntio TM. E _1i POpua*.aler two yea and to rewommend correctve Pbanoipan/dr u, Faactions if required Aalyt Aduk Training, Nata

11/95 Supevion Mion TM aN Naural Resoum 3.0

05fw9 Swanvisilmlemeuiation Review Meei TM, Fi nnial AnyS, ad Ti 10.0

11196Ma Supeion Miss TM and Envnma Spali 6.0

mu

PROJECT KEuEYW^lElR

Indicator PY-1 PY 1 PY 2 PY 3 PY 4 PY 5 TOTAL

1. PROGRAM INPUTS

Dw _ emntof StaftCentrol Sopl_mentetionand Monitoring Unit No. 4 o 6 a o aRegional and Local Coordination No. 10 13 13 13 13 13Technical Support Tem No. - 9 is 15 15 15Extension Agents Na is 26 a6 46 46Nationsl Environ. Monit. F cilIty a 3 3 3 3

Eaui oent m9aoul- exc todV No. 20 16 3SVehicles No. 30 20 20 20 20 110Motorcycles Million 60 30 20 10 120OffIco equipmet

2. OELIVm

mIolao NRM Plans No. 26 30 36 30 30 1S0VII lages approached No. 26 30 35 30 30 10SBs lIno StudI-eachieved No. 26 30 as 30 30 2s0Villago NRM Plana Negotiated No. 26 66 a6 80 105Village NRM Plans Under Ixplam_ntation

Skill D v-lonmant day 744 730 730 730 730 3664Village day 1180Initial Team Building Workshop day 676 876 876 876 876Extension Agents Fortnight Training day 470 470 470 470 470TST Monthly Training day 1300 1300 1300 1300 1300Annual Workshops

VI lao. InvstmA_tn hea 1000 1500 2000 2600 3000 10000Water Hervesti ng Bunds ha 900 1360 1600 2250 2700 9000Watershed Erosion Control ha 350 525 700 876 1050 3500Forestry RehabI I tation km 320 400 640 600 960 3200Marking for Rangoland Grazing Managom nt No. 3 4 a 6 1 32Water Supply Facility

o- qx

I-X'0

~~~~-- --- - =

Women in DeveloDment I.Recruitment Extension Agents No 3 3 3 3 12Women in Vi Iage NRM Group % 5 1S 25 30Women Sub-Sectora I Groups/Others % S 10 is 20

3. PROGRAM IMPACT

Socio-EconomicalLIAnnual Household ProductionOn Farm Investments % increase 10 20 35 SO

X increase 20 40 70 100Phvto-Ecoloicl Estimates LIPastoral Perennial/AnnualPastoral Canopy % increase 20 40 70 100For-stry Regeneration X increase 20 40 70 100Soil OrganIc Matter % increase 20 40 70 100Land Erosion % increase 20 40 70 100Mamal Species in Baoul- Park X decrease 10 20 35 SO

X increase 40 40 70 1004. PROGRAM REVIEW AND REPORTING

Annual Program and Budget yes/no 1 1 1 1 1 6IDA Supervision yes/no 2 2 2 2 2 10Annual External Audit yes/no 1 1 1 1 1 5Ssmestrial Activity Reports yes/no 2 2 2 2 2 10National CoordinatingCommittee Meetings yes/no 2 2 2 2 2Project Mid-term Review 1

1/ Objectivesto be set up villageby villageaccordingto the pr--projectsituation.

c1QBxq

'.0c

-74-Annox 10

MALI

NATIONAL RESOURCE MANAGEUENT PROJECT

PROJECT ORGANISATION CHART

Administrative Institutional Set Up Number

Villag Sub- Vilg- Sub- Village Sub-Sectoral Groups Sctoral Groups Sectoral Groups

I~ ~ .IVillage NRU Villge NRM Village NRU 160

Village IrCup Group Croup

RuralDov-lopmentSector Extension Agont 46

Arrondissoment

Local~~~~~~~~~~~~~~~~

Circle Dovelopment D trictComoittn Coordinator

TECHNICAL SUPPORT TEAM

l Co_unicntTons tXio NRM Planntng

Country~~~~~~~~~~~~~~~~ Uononitmrine Project Managenageent

R glon | Rogion I l Regiovni Tea_

Region I Dovelopn Na ionl II

Coordinator Committ-o Ce9rdinstor Region V 8

Coor g |Coordinator

ConrtelImplementation

Country A iloni tori ngUnit oXuProvect ManagomentoField loI mpl nt tlon

s Environ. Monito. Two

|NationalCoordinating I X26Committ* §

Uiitr of Agriculture Ll-tck A Environment

MALI

NATU1RAL RESOURCE MANACEMENT PROJECT

PROPOSED TECHNICAL ASSISTANCE(in staff-month)

D_ERATIONAL DITEDIATIONAL LOCAL LOCAL LOCAL

FINR FIRM DuIIVIDUAL FIRM FIRM

UNDER CO-FIeDCIV NO LONG-TERM SHORT-TERM SHORT-TERM LONG-TERM SHORT-TERM TOTALTA to Central Implementation Grmany 260 260Monitoring Unit

TA to Skill Development Designing Norway N8 30 20 20 ISOFirms I _ _ _ _ __ _ _ _ __ _ _I _ _ _ _ _

Ugoul. National Park 1w I -so 6 _

UaR IDA FNANCi

Training Design Firms IDA 240 240

Implementtion of Training 3 36 70

Land Tenur- Resource Person is_26_ ___10__12

Environment Information Systm is 10 20Processing

Womn In Development 6 6 6 15Technical Expertis- 5 6 isManagment of Computerized Systems 6 5 is

Mid-term Review SExternal Audit 6 STOTAL 340 61 eo 249 96 816

... .~~~~~~~~~~~~~~~~

I-

-76-

ANNEX 12MALI

NATUML REt0URCE MANAGEMENT PROJECT

CONTENT OF THE PROJECT IMPLEMENTATION VOLUME

WORKING PAPERS (in French)

1. The Strategy of Community Natural Resource Management2. The Project's Institutional Set Up and Operation3. Terms of Reference of Project's Staff4. The Baoule National Park Component5. The Skill Development and Public Awareness Component6. The Project Environmental Analysis Procedures7. The Gender IssueS. Menu of Technical Interventions9. Project Accounting Procedures Manua.10. Guidelines for the Establishment of Community NRM Plans11. The Approach of Land Tenure Tests12. Selected Thematic Bibliography13. Detailed Cost Tables

NATURAL RESOURCE MANAGEMENT PROJECTSOILS AND RAINFALL

Ft.- FLUMO C.AIS

| M NmsOts s { l _ -A^

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m t

|GLV. GYSOIS mj Nl-] NnE l RG REGSOsI_LIJGWRVR.VRIoS

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ALGERIA- 41ENI - -

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60- ~ U

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WTEbKTXOlE IVIRESOUNNOA1NM

GUINEA S~~~~~~~~~~~~~~~~~ONE

ERIANA IAN

/ G UIN~~~~~~~~~ 1000~~R IN

MA L INATURAL RESOURCE MANAGEMENT PROJECT

ADMINISTRATIVE BOUNDARIESAND AREA OF THE PROJECT

noJfrA2A$

ILA~1T4A CARTh

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---- oJEcrs ~~~ ~ ~ ~ 2

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