Report No: ICR00243 IMPLEMENTATION COMPLETION AND RESULTS REPORT TF0B5828 ON A SMALL GRANT IN THE AMOUNT OF US$4.6 MILLION TO THE Republic of Uganda FOR Securing Uganda’s Natural Resource Base in Protected Areas Project November 15, 2024 Environment Department Eastern And Southern Africa The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT CURRENCY EQUIVALENTS (Exchange Rate Effective Oct 27, 2024) Currency Unit = UGX 3,667.97 = US$1 US$0.7516 = SDR 1 FISCAL YEAR July 1 – June 30 Regional Vice President: Victoria Kwakwa Country Director: Qimiao Fan Regional Director: Iain G. Shuker Practice Manager: Paul Jonathan Martin Task Team Leader (s): Stephen Ling, Nicholas Stephen Zmijewski ICR Main Contributor: John Redwood, Lesya Verheijen The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT ABBREVIATIONS AND ACRONYMS AF Additional Financing CFM Collaborative Forest Management CFR Central Forest Reserve CFM Collaborative Resource Management CMU Country Management Unit COVID-19 Novel coronavirus disease DO Development Objective EOP End of project ESCP Environmental and Social Commitment Plan ESRC Environmental and Social Risk Category ESS Environmental and Social Standard GEF Global Environment Facility GoU Government of Uganda IFPA-CD Investing in Forests and Protected Areas for Climate Smart Development Project ICR Implementation Completion Report INT World Bank’s Integrity Vice Presidency IP Implementation Progress IPF Investment Project Financing IRI Intermediate results indicator ISR Implementation Status and Results Report LMP Labor Management Procedures MDTF Multi-Donor Trust Fund M&E Monitoring and Evaluation MFNP Murchison Falls National Park NFA National Forestry Authority NGO Non-governmental organization NP National Park PA Protected Area QENP Queen Elizabeth National Park STEP Systematic tracking of exchanges in procurement UGX Uganda Shilling UWA Uganda Wildlife Authority WR Wildlife Reserve The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT TABLE OF CONTENTS DATA SHEET ................................................................................................................................................. i I. PROJECT CONTEXT AND DEVELOPMENT OBJECTIVES ........................................................................................1 II. OUTCOME .......................................................................................................................................................4 III. KEY FACTORS THAT AFFECTED IMPLEMENTATION AND OUTCOME ...................................................................7 IV. BANK PERFORMANCE, COMPLIANCE ISSUES, AND RISK TO DEVELOPMENT OUTCOME ......................................9 V. LESSONS AND RECOMMENDATIONS .............................................................................................................. 11 ANNEX 1. RESULTS FRAMEWORK AND KEY OUTPUTS ................................................................................................ 13 ANNEX 2. PROJECT COST BY COMPONENT ................................................................................................................ 16 ANNEX 3. RECIPIENT, CO-FINANCIER AND OTHER PARTNER/STAKEHOLDER COMMENTS ........................................... 17 The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT DATA SHEET @#&OPS~Doctype~OPS^dynamics@icrbasicdata#doctemplate BASIC DATA Product Information Operation ID Operation Name Securing Uganda’s Natural Resource Base in Protected P174337 Areas Project Product Operation Short Name Investment Project Financing (IPF) Securing Uganda’s Natural Resource Base Operation Status Approval Fiscal Year Closed 2021 Current ESRC Small Grant Type Moderate Country/CMU Specific CLIENTS Borrower/Recipient Implementing Agency Republic of Uganda Uganda Wildlife Authority, National Forestry Authority DEVELOPMENT OBJECTIVE Original Development Objective (Approved as part of Approval Package on 20-May-2021) To improve sustainable management of, and increase benefits to communities from, target protected areas in response to COVID-19 impacts. s s s s @#&OPS~Doctype~OPS^dynamics@icrfinancing#doctemplate FINANCING Financing Source Original Amount (US$) Revised Amount (US$) Actual Disbursed (US$) i The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT World Bank Administered 4,600,000.00 4,035,741.75 4,600,000.00 Financing TF-B5828 4,600,000.00 4,600,000.00 4,035,741.75 Total 4,600,000.00 4,600,000.00 4,035,741.75 RESTRUCTURING AND/OR ADDITIONAL FINANCING Amount Disbursed Date(s) Type Key Revisions (US$M) • Disbursement Estimates 15-Jun-2022 Portal 1.81 • Loan Closing Date Extension • Implementation Schedule • Disbursement Arrangements • Additional Financing 10-Mar-2023 Portal 2.69 • Loan Closing Date Extension • Implementation Schedule • Disbursement Arrangements • Additional Financing 10-Mar-2023 Portal 2.69 • Loan Closing Date Extension • Implementation Schedule @#&OPS~Doctype~OPS^dynamics@icrkeydates#doctemplate KEY DATES Key Events Planned Date Actual Date Concept Approval 26-Oct-2020 Approval 15-May-2021 20-May-2021 Additional Financing and or Restructuring Sequence.01 Not Applicable 15-Jun-2022 ICR Sequence.01 (Final) -- 23-Jan-2025 Operation Closing 30-May-2024 30-May-2024 @#&OPS~Doctype~OPS^dynamics@icrratings#doctemplate RATINGS SUMMARY Outcome Bank Performance M&E Quality Satisfactory Satisfactory Substantial ii The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT ISR RATINGS Actual Disbursements No. Date ISR Archived DO Rating IP Rating (US$M) 01 18-Oct-2021 Satisfactory Moderately Satisfactory 0.95 @#&OPS~Doctype~OPS^dynamics@icrsectortheme#doctemplate SECTORS AND THEMES Sectors Adaptation Mitigation Major Sector Sector % Co-benefits Co-benefits (%) (%) FY17 - Forestry 96 0 0 FY17 - Agriculture, Fishing and Forestry FY17 - Public Administration - 4 0 0 Agriculture, Fishing & Forestry Themes Major Theme Theme (Level 2) Theme (Level 3) % FY17 - Environmental policies and 100 FY17 - Environment and institutions Natural Resource FY17 - Biodiversity 96 FY17 - Renewable Natural Resources Management FY17 - Forests Policies Asset Management 100 and institutions FY17 - Human FY17 - Pandemic FY17 - Disease Control 4 Development and Response Gender FY17 - Gender 52 FY17 - Social FY17 - Conflict Development and FY17 - Fragility, Conflict and Violence 52 Prevention Protection FY17 - Urban and Rural FY17 - Rural Development FY17 - Rural Markets 52 Development FY17 - Urban Development FY17 - Urban Planning 52 iii The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT ADM STAFF Role At Approval At ICR Practice Manager Iain G. Shuker Paul Jonathan Martin Regional Director Ede Jorge Ijjasz-Vasquez Amit Dar Global Director Karin Kemper Genevieve Connors Practice Group Vice President Juergen Voegele Juergen Voegele Country Director Keith E. Hansen Qimiao Fan Regional Vice President Hafez Ghanem Victoria Kwakwa ADM Responsible Team Leader Nigel Ross Hughes Stephen Ling Co-Team Leader(s) Nicholas Stephen Zmijewski ICR Main Contributor John Redwood, Lesya Verheijen I. PROJECT CONTEXT AND DEVELOPMENT OBJECTIVES Context 1. Uganda, with a land area of 238,535 square kilometers and an estimated population of 45.9 million in 2024,1 is a low-income country in East Africa. At the time of project appraisal, its Gross Domestic Product was US$34.4 billion and the share of people living below the national poverty line was around 21 percent. The economy was – and remains -- heavily dependent on renewable natural resources. The poor tend to live mainly in rural areas and derive their incomes predominantly from farming, with high reliance on forests. The country is vulnerable to climate change, with increasing occurrence of droughts and reduced or more variable rainfall adversely affecting agriculture, livestock, and human health. Environmental degradation and climate change continue to pose significant challenges to economic growth and livelihoods of poor and vulnerable groups, particularly women. 2. Uganda’s protected areas (PA) are managed by the National Forestry Authority (NFA) and the Uganda Wildlife Authority (UWA). The former manages central forest reserves (CFRs) and the latter wildlife protected areas, including national parks (NPs) and wildlife reserves (WRs), and wildlife outside of PAs. Key pertinent legislative and other documents are the Local Government and Land Acts (both 1998), the National Forestry Policy (2001), the National Forestry and Tree Planting Act (2003), the Wildlife Policy (2014), and the National Environment and Wildlife Acts (both 2019). Participatory forest management approaches, including collaborative forest management (CFM) implemented by NFA and collaborative resource management (CRM) implemented by UWA, are provided for in this legal and policy framework. At the time of appraisal, these approaches were being adopted slowly in Uganda. However, there was growing interest, and NFA had entered into CFM agreements with 324 1 https://www.ubos.org/uganda-profile/. Page 1 The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT community groups, although some had lapsed and needed to be renegotiated and extended. 3. National authorities recognized that sustainable forest management and access to services and benefits from PAs could help vulnerable communities better absorb and adapt to climate change impacts. Uganda’s Nationally Determined Contributions to the Paris Climate Agreement under the United Nations Framework Convention on Climate Change strongly emphasized adaptation, as did its Strategic Program for Climate Resilience, which identified the importance of climate-resilient agriculture. NFA and UWA likewise acknowledged that nature-based tourism could generate substantial revenues, and greater value could be earned by PAs. However, the novel coronavirus disease (COVID-19) had abrupt negative socio-economic impacts due to declining ecotourism. Existing community livelihoods programs supported by the NFA and UWA were also curtailed due to lack of financing because of collapse of the tourism industry and reductions of the revenue sharing programs financed from the tourism revenues. These agencies concluded that, unless local and regional economies were able to realize strong value from the PAs, prospects for protecting them, their wildlife, and local livelihoods could be severely undermined. Continued support for UWA and NFA was thus considered imperative to ensure that PAs were shielded from encroachment and poaching, promptly address human-wildlife conflicts, and maintain good relations with neighboring communities. 4. The Bank has a long history of supporting conservation and PAs using Trust Fund resources in Uganda2 and, at the time of appraisal, was helping the Government of Uganda (GoU) to prepare a much larger new project with these objectives. The resulting Uganda Investing in Forests and Protected Areas for Climate-Smart Development (IFPA- CD) Project, which is ongoing, was approved in April 2020 for an IDA credit and grant totaling US$148.2 million. However, this project did not become effective until August 2021. In the interim, there was a need to fill a gap in donor funding for institutional support to NFA and UWA to help address the growing adverse effects of the COVID- 19 pandemic on key PAs and surrounding communities. The present, much smaller, project was, therefore, designed with the assistance of the Swedish Government through the Swedish International Development Agency (Sida) for this purpose, as a COVID-19 response operation, and the two projects are intimately interlinked and were supervised jointly by the Bank. Additional funding was later provided by the Government of Ireland. Project Development Objectives (PDO) 5. The PDOs were to improve sustainable management of, and increase benefits to communities from, target protected areas in response to COVID-19 impacts. Key Expected Outcomes and Outcome Indicators 6. The main project beneficiaries were members of participatory forest management groups in rural communities adjacent to the target PAs that depended on forest and tourism resources. Provision of jobs-related training and inputs was expected to contribute to enhancing employment opportunities for community members. The project would also support greater inclusion and participation of women and youth through targeted support for livelihoods. GoU agencies in the natural resources sector and their staff (UWA and the NFA) were expected to benefit from improved service delivery capacity. Project interventions were likewise anticipated to enhance 2The first such operation, with the Global Environment Facility (GEF) support, was the Conservation of the Bwindi Impenetrable National Park and Mgahinga Gorilla National Park Project, approved in January 1995 and closed in December 2000. It was followed by the IDA and GEF co-funded Protected Areas Management and Sustainable Use Project approved in July 2002 and closed in June 2010. In the following years several other Bank- managed projects also included support for biodiversity conservation in the country. Page 2 The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT ecosystem services from the landscape (e.g., watershed protection, indirectly benefiting downstream water users through improved water flow, better water quality, and reduced soil erosion). 7. The project would generate direct benefits to communities through five main channels: (i) immediate employment benefits through jobs related to project activities, such as works on infrastructure that would be built along sections of the PA boundaries to prevent wild animals from entering communities, restoration (enrichment) planting and maintenance, and tree nursery operations; (ii) improved access to forest resources within PAs that could be made available to them under CRM and CFM arrangements (e.g., wood fuel and non- timber forest resources); (iii) support to livelihood activities in PA adjacent communities (through the CRM and CFM groups); (iv) community ecotourism programs supported through training, to help them adjust to the changing tourism modalities in view of COVID-19; and (v) jobs-focused interventions and training. This approach is reflected in the project’s simplified theory of change below. 8. Project outcome indicators were: • Beneficiaries reached with assets or services – i.e., the number of individuals reached with extension, technical outreach services, or inputs provided by the project. • PAs under effective management – i.e., the total area in hectares (ha) of protected areas (NPs and CFRs) that receive support for effective management from the project. Simplified Theory of Change Activities Outputs Outcomes Improved forest monitoring and protection, including prevention and control of wildfires and human- -wildlife conflicts Provision of PA infrastructure Restoration of forest cover through Improved sustainable and operational support to enrichment planting, using management of target PAs NFA and UWA community labor Design documentation for infrastructure to be implemented by IFPA-CD project Provision of inputs and occupational/ Employment and income generation Increased benefits to vocational training for alternative in alternative livelihood activities communities near target PAs livelihoods, using gender-inclusive approaches Components 9. The project had two components, the first having two subcomponents: Component 1. Improved Management of Protected Areas (appraisal cost: US$2.6 million; actual cost: US$3.87 million) to support participatory forest protection, forest monitoring, and forest restoration Page 3 The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT activities, including prevention and management of wildfire and human wildlife conflict. Working with CFM and CRM groups, it would also invest in community livelihoods and ecotourism activities, with a focus on value chains and marketable and adaptable employment skills and support preparation of designs (including the environmental and social due diligence) for priority infrastructure to be financed under the IFPA-CD Project. Subcomponent 1.1. Improvement of infrastructure and equipment for the management of forest protected areas (appraisal cost: US$1.3 million; actual cost: US$2.26 million) to support UWA and NFA forest monitoring and protection activities, including forest monitoring, prevention and control of wildfires and human-wildlife conflict, and restoration of forest cover through enrichment planting, using community labor. This subcomponent would also support development of design documentation for some of the infrastructure that would be supported under IDA financing under the IFPA-CD Project. Subcomponent 1.2. Increasing the involvement of local communities in the management of forest and wildlife areas by increasing their access and benefits from these areas (appraisal cost: US$1.3 million; actual cost: US$1.60 million) to support livelihoods and employment opportunities in forest- adjacent communities, through provision of inputs for alternative livelihoods (both natural-resource based and not) and occupational/vocational training in non-tourism fields -- in partnership with non- governmental organizations (NGOs) where possible -- to create innovative income streams and enhance job creation, using gender-inclusive approaches. The subcomponent would work through established community groups under CFM and CRM arrangements with NFA and UWA respectively. Component 2. Project monitoring (appraisal cost: US$0.1 million; actual cost; US$0.17 million) to support overall project management, monitoring, environmental and social risk management, financial management, procurement, audits, and field supervision, including travel, by UWA and NFA headquarters staff. 10. Geographic coverage. The project, as appraised, covered the Murchison Falls National Park (MFNP) and Queen Elizabeth National Park (QENP) and Toro-Semliki Wildlife Reserve (WR) for UWA, and Budongo, Bugoma, and Wamjbabya CFRs in the Budongo systems Range and Kalinzu and Kasyoha- Kitomi CFRs in South West Range for NFA. With additional financing (AF) (from Government of Ireland), more CFRs were later added, namely the regions of South Maramagambo, Kibego, Itwara, Muhangi, Kitechura, Rwensambya, Ibambaro, and Matiri CFRs. II. OUTCOME A. ASSESSMENT OF ACHIEVEMENT OF EACH PDO OUTCOME 11. As noted above, the project, in effect, had two objectives, to: (i) improve sustainable management of target PAs; and (ii) increase benefits to communities around these areas, both in response to COVID-19 impacts. It also had a single PDO indicator for each of these objectives. Each objective is assessed against the project results indicators and their revised targets following the second restructuring (see Key Factors That Affected Implementation and Outcomes below). 12. Sustainable Management of Target Protected Areas. As of the project closing date, 760,199 ha covered by PA plans -- 112,699 ha by NFA and 647,500 ha by UWA -- had been supported by the project, representing 99.2 percent of the Page 4 The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT revised target (766,123 ha). NFA more specifically had achieved effective protection of 112,692 ha in 13 CFRs, representing about 95 percent of the total end-of-project (EOP) target (118,623 ha), while UWA had achieved 100 percent (647,500 ha). Improved monitoring and patrolling, the latter supported under the project by provision of food rations, camping equipment, warm clothing, and fuel for improved mobility, has helped to enhance forest protection in the targeted gazetted areas. These activities were combined with ongoing community awareness through the CFM groups and in cooperation with a network of community informers. They have also helped to streamline community access to forest resources and reduced conflicts between NFA and local communities, while 32 signposts were installed in targeted CFRs to improve their visibility. Associated actions and results are summarized in the next few paragraphs. According to UWA’s completion report, patrols have increased, and poaching has been reduced due to support provided by the project and fire management in the PAs has improved. NFA’s completion report affirms that these interventions achieved about 95 percent effectiveness in reducing illegal activities in the CFRs as indicated by improved natural regeneration in areas previously disturbed by activities like gold mining, charcoal burning, and subsistence farming. 13. Improved forest planning and management. Collection of forest and socio-economic data for the review of Forest Management Plans (FMPs) for the Budongo and Maramagambo CFRs was completed and plan preparation was completed, while NFA has also completed forest zoning in the Budongo and Kalinzu CFRs, in a process that involved surveying and demarcation by painting all trees with 20 cm of diameter or more at breast height to mark the internal management boundaries for the Strict Nature Reserve, Buffer, and Protection Zones in accordance with the Nature Conservation Master Plan. In addition, 50,092 ha of forest area had been brought under collaborative management, exceeding the revised target (36,736 ha) by 36 percent, and 1,736.5 ha had been reforested or afforested and restored, exceeding the revised target (1,700 ha). NFA reports, moreover, that the total restored area was maintained three times by line slashing, crown opening, and climber cutting since completion of planting in 2022, save for the areas in Kitechura, Kibego, Ibambaro and Rwensambya CFRs which were maintained once in April-May 2024. It adds that the survival rate is at about 70 percent and saplings are showing good growth, and that the restored areas are showing good natural regeneration from the existing indigenous seed trees. 14. Human-wildlife conflict (HWC) prevention (UWA) and restoration of forest cover through enrichment planting (NFA). The project supported construction of 21 kilometers of elephant trenches along the boundaries of QENP and MFNP as physical barriers to prevent animals from raiding farmer fields and to stop crop losses; as an impact of this intervention, people are able to harvest their crops in full, and children who used to stay at home guarding crops against raiding are now going to school. As a result of this intervention, there has been significant reduction in crop losses. On average, the families around protected areas own 4 acres of farmland under crop farming. The trench in MFNP in Kyankende sub-county in Kiryandongo District has helped protect about 700 farms with an estimated area of 3,100 under food crops such as maize, cassava, bananas, and beans from destruction by elephant raids. Following support to preparation of sub-county land use plans around Toro-Semliki WR and Queen Elizabeth NP, 76 farmers received inputs to plant non-palatable crops in HWC hotspots. NFA has also restored and maintained a total of 1,736.5 hectares using indigenous species, specifically 550 hectares in Kasyoha- Kitomi, 586.5 hectares in Bugoma, 200 ha in Kitechura, 200 ha in Ibambaro, and 100 ha each in Kibego and Rwensambya CFRs. The species planted were selected local indigenous species including Albizia coriaria, Antiaris toxicaria, Khaya anthotheca, Maesopsis emiini, Markhamia lutea, Milicia excelsa, Warbugia ugandensis, Canarium schweinfurthii, and Markhamia platycalyx. 15. Enhancing community awareness of the need for and importance of forest conservation. Community sensitization meetings were held around Kalinzu and Kasyoha-Kitomi CFRs with 1,652 participants, focusing on community conservation roles and benefits. The same awareness activities were also undertaken in the communities surrounding the CFRs in the Budongo Range with 1,162 participants. Piloting the establishment of Forestry Committees (whose Page 5 The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT mandate is derived from the 2003 National Forestry and Tree Planting Act) had been initiated for Kalinzu and Kasyoha- Kitomi CFRs in collaboration with the local district governments of Bushenyi, Mitooma, Rubirizi, Kitagwenda, Ibanda, and Buhweju. The Forest Committees are expected to work with NFA in managing the CFRs while: (i) ensuring that community issues are addressed; and (ii) benefits are accessed in accordance with the respective approved FMPs. It can be concluded from the above that the project has contributed satisfactorily to the achievement of its objective to improve sustainable management of its targeted protected areas both before and after the AF was approved. According to UWA, additional 283 community scouts were identified, trained, equipped, and deployed in the three project PAs. The primary purpose of engaging the wildlife scouts is so they can warn UWA about approach of large animals to the community land and try and scare them away while awaiting assistance from UWA. At the same time, the training and equipping of 200 scouts in MFNP helped report 20 poachers around the park and impound over 245 wire snares, preventing capture of and damage to wild animals. In addition, the scouts helped in minimizing the human-wildlife conflict by chasing away over 423 elephants from farmer’s gardens, hence improving park-community relations. 16. Increased Benefits to Communities Around the Target Protected Areas. As of the end of the project, 7,931 beneficiaries – 6,105 by NFA and 1,826 by UWA -- had been reached with assets or services by the project, which was 94.2 percent of the revised target (8,420). 3 However, 5,661 people benefited from job-focused interventions, exceeding the revised target (1,359) by 316.6 percent; 685 people were engaged in tree restoration and nursery work and 4,976 people were provided with beekeeping training by NFA. And of the total, 1,927 were female, likewise greatly surpassing the revised EOP target (286), by 573.8 percent. NFA engaged local community labor for forest restoration and maintenance activities, which provided cash incomes and increased beneficiary sense of ownership of the associated forests. Through an NGO service provider, NFA supported 21 CFM groups with training on beekeeping, honey extraction, and honey packaging (5 groups in each CFM in the case of the latter), and provided the required equipment for these purposes, benefiting 3,420 CFM members. Communities previously provided with support for community tree nurseries were able to continue raising seedlings, even though sales were reportedly lower than expected and better support on market linkages is needed. However, 581 beneficiaries received fruit and non-fruit tree seedlings, two groups in each CRM were trained in wood craft, and 15 CRM members from each one with respect to liquid soap, candle, paper bag, and briquette making, while, according to UWA, 80 youth and women were trained in the fields of metal fabrication, mobile phone repairs, motorcycle repairs, sculpting, and tailoring. Consequently, the project also has achieved a generally successful outcome in relation to this objective. B. OVERALL OUTCOME RATING 17. The overall outcome rating for the project is Satisfactory. C. OTHER OUTCOMES AND IMPACTS 18. Civil Works Designs and Mapping Activities. Using project resources UWA had prepared designs and environmental and social risk management documentation for staff accommodation, tourism entry gates, multi-purpose centers, bird hides, and fire towers, which will be constructed by the ongoing IFPA-CD project. NFA had completed the same for renovation and construction of staff accommodation and field offices, and its Geographic Information Service unit completed mapping of the sites for field offices and staff housing. 3 UWA exceeded its EOP target (1,200 beneficiaries) by 52 percent, while NFA experienced a shortfall of 15 percent (6,105 versus 7,220). Page 6 The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT 19. Income Generation. The project provided job-skilling support to members of community groups, with a particular focus on women and youth, through training and provision of tools – this has important income generation impact. NFA and UWA have also attempted to estimate the potential economic benefits of some project interventions. These include community nurseries run by CFM groups, which, as of March 2024, had produced 150,000 tree seedlings with an estimated value of UGX75 million (around US$20,000). It is also anticipated that, when all hives are populated, CFM groups that have started with the beekeeping can earn about US$77,000 (UGX294 million) a year from this activity. The project also supported a training on valuation of resources for UWA staff. As part of this training, value of resources accessed by community groups in target PAs was estimated. It is estimated that the value of total resource extraction in Toro-Semliki WR, which includes firewood, grass, poles, honey, herbs, and rattan canes, is on the order of UGX1.16 billion, or about US$306,000 in the period 2017-2021; for Queen Elizabeth Protected Area, this value is estimated at UGX1.51 billion in 2020-2021, or about US$400,000; and for Murchison Falls Protected Area – at UGX0.98 billion in 2013-2022, or about US$270,000. 20. Gender Equality. Women have benefitted from project-targeted and tailored training and other livelihood enhancement activities. As indicated above, the EOP target in this regard was significantly surpassed and training in business skills (men and women) and craft-making targeting women in 18 CFM groups was also completed. Training was also provided to women by NFA in liquid soap making, beekeeping, and the use of energy saving stoves (again for both genders). Furthermore, 100 percent of the CFM groups established with project support now have at least one woman in their Executive Committees. D. JUSTIFICATION OF OVERALL OUTCOME RATING 21. The overall outcome rating for the project is assessed as Satisfactory, as both of its objectives have been largely achieved and some of its revised EOP targets significantly surpassed. III. KEY FACTORS THAT AFFECTED IMPLEMENTATION AND OUTCOME A. KEY FACTORS DURING PREPARATION 22. COVID-19. The unexpected onset of the pandemic and its adverse effects on Uganda’s tourism revenues and associated financing of NFA’s and UWA’s activities at a time when a much larger IDA operation (IFPA -CD) was under preparation and subsequently becoming effective were the main reasons for the need for this project. In response, the Swedish Government, through Sida, provided a grant to fill the resulting funding gap for selected PAs, and the World Bank was charged with its oversight and supervision. The extended duration of the pandemic and GoU’s measures in response to it also directly affected project implementation, causing various delays (see the next paragraph). B. KEY FACTORS DURING IMPLEMENTATION 23. First Restructuring and Implementation Delays. Among the factors that affected project implementation and outcomes were the two Level 2 restructurings, the first in May 2022, at a time when US$1.81 million, or 63.3 percent Page 7 The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT of the original US$2.7 million grant, had been disbursed, and the second in March 2024, in both cases extending the closing date and future disbursement estimates. The first restructuring extended the closing date by 13 months from May 31, 2022, to June 30, 2023, and was required, according to the associated Project Paper, because “due to lengthy procurement processes and delays with the initial disbursements, deployment on the ground had started with a delay [and] additional delays were caused by the lockdowns and restrictions on travel and meetings as part of Uganda’s COVID-19 pandemic response.� 24. AF and the Second Restructuring. AF of US$1.9 million for NFA-implemented activities only from the Partnership for Support to the Implementation of Uganda’s National Development Plans Multi-donor Trust Fund (MDTF) was approved on March 10, 20234, at a time when the original grant had been nearly fully disbursed (i.e., US$2.69 out of US$2.7 million). The associated second restructuring further extended the project closing date by 11 months to May 30, 2024. With approval of the AF, the project’s territorial coverage was also expanded by addition of the following areas: (i) in refugee hosting landscapes: Itwara, Muhangi, Kitechura, Rwensambya, Ibambaro, and Matiri CFRs; and (ii) in other high-pressure areas: South Maramagambo and Kibego CFRs. Changes were also made in the project components and subcomponents to utilize the additional resources made available by the AF, specifically: Component 1: Improved management of protected areas (original cost – US$2.6 million; AF – US$1.6 million; total revised cost – US$4.2 million). Sub-Component 1.1. Improvement of infrastructure and equipment for the management of forest protected areas – AF will support NFA protection and forest restoration activities, including monitoring and patrolling activities (including required small equipment such as survey equipment and patrols equipment), and restoration of forest cover through enrichment planting, using community labor as per standard procedures in use by the NFA. Sub-Component 1.2 Increasing the involvement of local communities in the management of forest and wildlife areas by increasing their access and benefits from these areas – AF will support livelihoods and employment opportunities in forest-adjacent communities, through provision of inputs for alternative livelihoods (both natural-resource based and not) and occupational/vocational training (in partnership with non-governmental organizations where possible) – to create innovative income streams for these communities and support job creation. Component 2: Project monitoring (original cost – US$0.1 million; AF – US$0.3 million; total revised cost – US$0.4 million) - AF will provide additional funding to support overall project management and monitoring, including cost of field supervision by the NFA headquarters staff. 25. Revision of Results Targets. The EOP targets for both parts of the PDO and all but one of the Intermediate Results Indicators (IRIs) were also altered at the time of the second restructuring. Specifically, the target for PDO indicator 1 (Protected Area plans supported) was raised from 743,298 ha to 766,123 ha, while that for PDO indicator 2 (Beneficiaries reached with assets or services) increased from 5,220 to 8,420. As concerns the IRIs, the target for the first indicator (Area re/afforested and restored) was raised from 1,100 ha to 1,700 ha, the second IRI (Forest area brought under collaborative management) target was expanded from 20,000 ha to 36,736 ha, the fourth IRI (Beneficiaries of job-focused interventions) target rose from 600 to 1,039 and that for the fifth IRI (Female beneficiaries of job-focused interventions) increased from 190 to 296, while that for the third IRI (CFM Groups 4 And countersigned on May 8, 2023. Page 8 The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT established with project support that have at least one woman in the Executive Committee) remained the same at 100 percent. 26. Inspection Panel Request. While this did not greatly affect project implementation, on October 18, 2021, the Panel received a Request for Inspection by 193 community members living in the project area close to the Toro-Semliki WR, who had authorized the Twerwaneho Listeners Club, a Ugandan human rights organization, to represent them. The Requesters claimed that UWA had historically carried out human rights violations, including loss of life and illegal land acquisition, in the project area and would continue to do so in future. The Requesters claimed that the Project had failed to identify this underlying conflict during stakeholder consultations and alleged that Bank support to UWA had legitimized the latter’s approach and actions and would cause future harm by intensifying this conflict. They also claimed that the Project was being implemented on land that had been taken from them by UWA, which they deemed unlawful. The area where the project is being implemented has been disputed by the Requesters for many years, and these disputes are being handled by the High Court of Uganda (the court case started in 2016 and is ongoing at the time of preparation of this implementation completion report (ICR). At the time of the request no funds had been disbursed to support UWA activities in the project area, and, therefore, the alleged harm by communities predated the project. In addition, the project had only planned to support community livelihoods activities in Toro Semliki WR. After conducting its due diligence, the Panel decided not to register this Request due to the absence of a plausible link between the alleged harm in the Request and the Project. However, the Panel also noted that “this decision does not preclude the possibility of a future Request for Inspection based on new evidence or circumstances not known at the time of the current Request,� thus providing an important lesson for the ongoing implementation of the IFPA -CD project that deals with several sensitive and complex issues. 27. Community Capacity Constraints and Involvement. NFA highlighted as one of the major challenges it faced in implementing the project – the other being the Bank procurement processes and associated delays cited above – the low capacity of some of the CFM communities to uptake the commercial tree nurseries and bee value projects it supported in a timely manner, especially in terms of providing the labor and other requirements for effective implementation (depending on the intervention the communities may provide labor or inputs). It concluded that, while NFA staff could provide the back-up support and coordination with other partners needed to ensure implementation progress, local group leadership was fundamental for their ultimate success. It also found that interventions that are community demanded easily get adopted and can be sustained beyond the project life as was done with CFM groups prior to project selection and eventual implementation. Similarly, while CFM groups have different approaches to project implementation with some preferring group projects, but others preferring individuals running their own activities within the group. Thus, it is important to understand which activities can best be done together and those that individuals can manage, market surveys and identification are regularly required for sustaining income generating activities that have limited demand in some areas before uptake or expansion of production, and group empowerment was very important for the uptake of the community projects through updating the agreements, improving CFM group governance structures, awareness, and skills training. These can also be viewed as significant project lessons. IV. BANK PERFORMANCE, COMPLIANCE ISSUES, AND RISK TO DEVELOPMENT OUTCOME 28. Quality at Entry: Project design was simple and straightforward and responded to the need to fill a funding gap for key NFA and UWA activities in support of priority PAs and adjacent local communities at the onset of the COVID-19 pandemic. It was prepared in the context of that for the much larger IDA-financed IFPA-CD operation and continuing Bank and Trust Fund support for PAs and surrounding communities in Uganda. Its design was thus able to draw on experience with and prior assistance to both NFA and UWA, and its quality at entry was generally good. However, as Page 9 The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT a response to some of the impacts of the pandemic, it could perhaps have better anticipated the implementation difficulties and delays generated in part from the pandemic and government efforts to manage its effects. At the time it was nevertheless hard to envisage how long lasting and far reaching the COVID-19 impacts were going to be. Quality at entry is thus assessed as Satisfactory. 29. Quality of Supervision: Project implementation and its progress was overseen on a regular basis by nine Bank missions between October/November 2020 and March 2024. It was recorded in an equal number of detailed Aide Memoires and a single ISR issued in October 2018, around the same time as the Inspection Panel request but prior to approval of the Additional Financing (AF) and associated second restructuring. The World Bank's and global measures in response to the COVID-19 pandemic also affected Bank supervision and the ability to provide technical support to implementation in person. During most of its implementation period, however, the project was supervised jointly with -- and by the same Bank team for -- the IFPA-CD operation (also carried out in part by NFA and UWA), which is still ongoing. This has ensured strong synergies and coordinated Bank implementation support to the benefit of both projects. Quality of supervision is likewise assessed as Satisfactory. 30. Quality of Monitoring and Evaluation (M&E): Project monitoring using the results framework, which was revised at the time of the second restructuring to reflect increased output indicators due to the AF, was adequate. It has also provided the basis both for the grantees’ and the present completion reports. Given the small size of the grant, however, no formal beneficiary survey or impact evaluation was planned or undertaken. Quality of M&E is thus considered Substantial. 31. Procurement Compliance. The procurement performance rating throughout much of the project life was Moderately Satisfactory. Planned procurement activities were all in the post review category and were neither high value nor complex. However, there were procurement delays, which were attributable to: (i) internal clearance processes between the procurement cycle stages; (ii) external factors such as clearances required from the Attorney General’s Office for contracts above US$50,000 that, in some instances, took more than three months; and (iii) complaints alleging conflict of interest and fraud and corruption for a key procurement by the NFA. These allegations were later cleared by the World Bank’s Integrity Vice Presidency (INT), and a retendering was done upon confirmation of the conflict-of-interest allegation against one bidder. Overall compliance with the use of the system for systematic tracking of exchanges in procurement (STEP) was good, although sometimes there was delayed upload of documentation. There was good effort on the part of both agencies to satisfactorily close out procurement activities through upload of documentation in STEP up to completion status. 32. Financial Management Compliance: Financial reports were submitted on time and were acceptable to the Bank, as were external audit reports for FY 2022/23. Auditor General provided unqualified opinion on the annual audits.5 The major issues identified were delayed implementation, delayed disbursements, and under-absorption of funds by NFA. In addition, the findings of the internal audit had not been shared with project management as of the time of the last supervision mission. 33. Environmental and Social Risk Management. The Environmental and Social Risk Classification of the project was Moderate, since it involved activities under component 1 with limited and readily predictable adverse environmental and social impacts that were expected to be temporary and/or reversible, low in magnitude, site-specific, and could be easily mitigated. In compliance with the requirements of the relevant Bank Environmental and Social Standards 5 Quoted from the audit report: “In my opinion, the Financial Statements of Securing Uganda’s Natural resources base in Protected Areas Project (SIDA) Grant No. TF0B5828, Project No. P174337 for the year ended 30th June 2023, are prepared in all material respects, in accordance with the basis of Accounting described under Note 11.0 of the financial statements and in conformity with the terms of the Financing Agreement.� Page 10 The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT (ESSs), during project preparation the project prepared an Environmental and Social Management Framework, including procedures for environmental and social screening, Labor Management Procedures (LMPs), and Stakeholder Engagement Plan. An Environmental and Social Commitment Plan (ESCP) was also prepared setting out material measures and actions to ensure that the project was implemented in compliance with the relevant ESSs. 34. It should be noted that this was one of the first projects under the World Bank’s new Environmental and Social Framework in Uganda, and there was a lot of learning on the job as a result. Regarding the challenges faced, moreover, although implementation generally progressed well, there was lack of regular reporting on the environmental and social compliance as required in the ESCP. Thus, it was difficult at times to ascertain whether proper processes as guided by the safeguards instruments in place were followed and how issues (if any) (e.g. from the implementation of project activities on the ground) were handled, due to lack of documentation. 35. As concerns social aspects specifically, key challenges that were raised by several implementation support missions related to incomplete documentation of stakeholder engagement activities and delayed establishment and operationalization of the grievance redress mechanisms. Although the implementation of project activities generally proceeded well and training has been provided in Occupational Health and Safety (including Environmental and Social Incident Response Toolkit), LMP, and Codes of Conduct for PA field staff, the implementation of environmental and social activities was not adequately documented. 36. Risk to Development Outcome: As the measures taken to improve the sustainable management of priority Protected Areas and to help enhance local livelihoods of nearby communities have been largely implemented as planned, and in view of the continuing financial and other support to NFA and UWA under the ongoing IFPA-CD operation, risk to the development outcome of this project is likely to be low. V. LESSONS AND RECOMMENDATIONS 37. Among the lessons learned from this project are the following: a) It is useful to pilot activities at a smaller scale to determine their implementability and results, then, if successful, scale them up through larger projects to increase their effectiveness and impact. b) Longer-term engagement and relationships by individuals on the Bank and client sides are important, as are consistency and strong commitment to project objectives and design by both over time. c) It is essential to be fully aware of the broader social context in which the project is taking place. As a result of the Inspection Panel request, a social conflict analysis was undertaken for the two implementing agencies. In the future such analysis could be part of project preparation. d) Awareness of the political economy context in which the project is implemented is equally important. Changes and, therefore, delays in GoU approval procedures contributed to implementation delays. e) Proactivity is important in addressing emerging issues under constrained circumstances. In this case, both the Bank and the donors were proactive in reacting to the unanticipated challenges brought about by COVID-19 rather than simply waiting for the larger project to materialize and start implementation. Page 11 The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT f) Pooling of resources from different donors in support of a single approach can create good value for money and better results. The AF provided by a second donor through the MDTF allowed NFA – and hence the ongoing project more generally – to usefully expand the territorial scope and overall positive impact of its activities. It also provides a unified dialogue platform to engage government and other key stakeholders on key required developments in the sector. Page 12 The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT ANNEX 1. RESULTS FRAMEWORK AND KEY OUTPUTS @#&OPS~Doctype~OPS^dynamics@icrresultframework#doctemplate A. RESULTS FRAMEWORK PDO Indicators by Outcomes Not Categorized Indicator Name Baseline Closing Period (Original) Closing Period (Current) Actual Achieved at Completion Result Month/Year Result Month/Year Result Month/Year Result Month/Year 0.00 Apr/2021 743,298.00 Jun/2023 760,192 May/2024 Protected Areas plans supported Comments on achieving targets Target slightly underachieved. 112,692 ha (NFA) – 95% of 13 target CFRs effectively monitored by the field (Hectare(Ha)) patrol teams; 647,500 ha (UWA) covering total area of the three target protected areas. 0.00 Apr/2021 5,220.00 Jun/2023 7,931 May/2024 Comments on achieving targets Target slightly underachieved NFA 6,105: CFM group members and others that benefited from conservation awareness, bee value support and commercial nurseries, Business training, liquid soap ,crafts and briquette Beneficiaries reached with assets or making. UWA 1,826: Beneficiaries of livelihoods activities: fruit and non-fruit tree seedlings recipients; 5 CRM services (Number) groups in each PA supported with training in honey packaging, 2 CRM groups in each PA in wood crafts, 15 CRM group members from each PA in liquid soap, candle, paper bag, briquette making: and farmers in park adjacent subcounties that received support for planting non-palatable crops to reduce human wildlife conflict. Intermediate Indicators by Components Not Categorized Indicator Name Baseline Closing Period (Original) Closing Period (Current) Actual Achieved at Completion Result Month/Year Result Month/Year Result Month/Year Result Month/Year 0.00 Apr/2021 1,100.00 Jun/2023 1,736.50 May/2024 Area re / afforested and restored Comments on achieving targets Tareget slightly exceeded. Area of natural forest restored with indigenous species in the CFRs of Kasyoha- (Hectare(Ha)) Kitomi (550ha), Bugoma (586.5 ha), Ibambaro (200 ha), Kitechura (200 ha), Kibego (100 ha) and Rwensambya (100 ha). Page 13 The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT Forest area brought under 0.00 Apr/2021 20,000.00 Jun/2023 50,092 May/2024 collaborative management Comments on achieving targets Target exceeded. (Hectare(Ha)) CFM groups established with project 0.00 Apr/2021 100.00 Jun/2023 100 May/2024 support that have at least one Comments on achieving targets All CFM groups which have been supported under the project have at least one woman in the executive woman in the executive committee committee. (Percentage) 0.00 Apr/2021 600.00 Jun/2023 5,129 May/2024 Comments on achieving targets Target significantly exceeded due to high community demand NFA – 4,209: trained and employed in enrichment Beneficiaries of job-focused and restoration planting and maintainence and community nursery work; and provided with skills-training and interventions (Number) materials for bee value chain, making crafts ,liquid soap, energy saving stoves and briquettes UWA - 920: 349 bee value chain support beneficiaries; 348 tree nursery training; 107 rabbit farming; 45 tailoring; 20 motorcycle repair; 6 mobile phone repairs; 5 brick laying; 2 sculpting; 2 metal fabrication. 36 executives of 6 ecotourism groups were provided with ecotourism development training. Beneficiaries of job-focused 0.00 Apr/2021 190.00 Jun/2023 2,296 May/2024 interventions - Female (Number) Page 14 The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT B. KEY OUTPUTS Objective/Outcome 1: improve sustainable management of target protected areas in response to COVID-19 impacts PAs under effective management – i.e., the total area in hectares (ha) of protected areas Outcome Indicators (NPs and CFRs) that receive support for effective management from the project. 1. Areas re/afforested and restored (ha) Intermediate Results Indicators 2. Forest area brought under collaborative management (ha) 1. Forest monitoring and protection activities (including forest monitoring, prevention Key Outputs by Component and control of wildfires and human-wildlife conflict, and restoration of forest cover (linked to the achievement of the through enrichment planting, using community labor). Objective/Outcome 1) 2. Development of design documentation for some of the infrastructure that would be supported under the IFPA-CD Project. Objective/Outcome 2: increase benefits to communities from target protected areas in response to COVID-19 impacts Beneficiaries reached with assets or services – i.e., the number of individuals reached Outcome Indicators with extension, technical outreach services, or inputs, provided by the project. 1. CFM/CRM groups supported under the project that have at least one woman in the executive committee Intermediate Results Indicators 2. Beneficiaries of job-focused interventions 3. Beneficiaries of job focused interventions – female Support for livelihoods and employment opportunities in forest-adjacent communities, Key Outputs by Component through provision of inputs for alternative livelihoods (both natural-resource based and (linked to the achievement of the not) and occupational/vocational training in non-tourism fields to create innovative Objective/Outcome 2) income streams and enhance job creation, using gender-inclusive approaches. Page 15 The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT ANNEX 2. PROJECT COST BY COMPONENT Amount at Amount with AF Actual at Project Percentage of Components Approval (US$M) Closing (US$M) Approval (US$M) Component 1. Improved 4.2 2.60 3.87 92 management of protected areas Component 2. Project monitoring 0.10 0.4 0.17 44 Total 2.70 4.6 4.04 88 Page 16 The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT ANNEX 3. RECIPIENT, CO-FINANCIER AND OTHER PARTNER/STAKEHOLDER COMMENTS Sida and Ireland – cofinanciers of the project under the Uganda MDTF Window 5 – did not provide specific inputs to this ICR. However, they provided overall endorsement of the report findings by email. Both UWA and NFA have reviewed the draft of this ICR and confirmed agreement with the information within. Included below are summaries of the completion reports prepared by the implementing agencies. NFA: Conclusion on overall project implementation 1. Despite the challenges and risks, the implementation of the Securing Uganda’s Natural Resource Base in Protected Areas Project has been largely successfully, with all the planned activities implemented. The communities have highly appreciated the support of the project at a critical time when the level of poverty and lack of employment opportunities created by COVID were affecting community welfare. 2. The project has raised the level of conservation of the target CFRs which had suffered degradation during COVID through strengthening the monitoring capacity of NFA on one hand and improving the relations with communities on the other hand. The evidence is visible on the ground through restored areas and reduced illegal activities and regenerating natural vegetation. Project impact The project interventions have contributed to the following impacts: 1. Improved integrity of the CFRs through restoration, protection, community awareness and strengthened partnership with CFM groups. 2. Some of the negative impacts of COVID like high community reliance on the CFRs for livelihoods, lost opportunities for incomes, lack of investment capital have been addressed especially for the CFM communities supported with income generating activities. 3. Improved NFA capacity for project implementation and created conducive environment for implementation of similar IFPACD activities –reduced conflicts, capacity and incomes for communities. 4. The models from the support provided to the communities will act as learning points for other members of the wider community who should be able to adopt the innovations for improved livelihoods and incomes. Lessons Learnt 5. Training or activity sequencing is important for the smooth flow and success of subsequent implementation. Business training should have happened before deployment of the Bee value or crafts making so that the beneficiaries have skills to run them effectively. 6. Interventions which are community demanded easily get adopted and can be sustained beyond the project life. This was done with CFM groups prior to project selection and eventual implementation. Page 17 The World Bank Securing Uganda’s Natural Resource Base in Protected Areas Project (P174337) ICR DOCUMENT 7. Providing alternatives/ incentives to the forest adjacent communities creates good working environment for conservation as it creates buy-in and reduces conflicts. However, this requires strengthening elements for sustainability along the project implementation. 8. CFM groups have different approaches to project implementation with some preferring group projects while others prefer individuals running their own activities within the group. It is important to understand which activities can best be done together and those that individuals can run. 9. Market survey and identification is regularly required for sustaining some income generating activities that have limited demand in some areas before uptake or expansion of production. 10. Group empowerment was very important for the uptake of the community projects through updating the agreements, improving CFM group governance structures, awareness and skills training. UWA To a very extent implementation of the Securing of the Natural Resource Base in Protected Areas Project has been successfully completed. Although there were delays in project completion, there were many reasons that were inevitable and unforeseen. UWA is very grateful that the Government of Sweden through the World Bank came to the assistance of the organization at time that was critical for the survival of the wildlife and their habitats. The project by design had very limited scope both geographical coverage and intervention beneficiaries. Lessons Learnt during project implementation Several lessons were learnt during project implementation that would feed into future designs. The project was designed quickly as a mitigation to the impacts of Covid 19 pandemic and its design did not involve everyone that was later involved in Implementation. As a result, the project was largely seen as a stand-alone instead of seeing it as an integral part of UWA activities. The lesson here is that future project designs should be as participatory as possible bringing the would-be implementers on board. Project interventions especially those of community livelihoods were received with overwhelming enthusiasm and the demand for scaling up was also overwhelming. The communities that were never beneficiaries remain optimistic that the interventions will spread to them with time. The lesson here is that future designs need to incorporate an aspect of management of expectations from beneficiary communities from the start of project implementation. Page 18