October 2013

FINAL EVALUATION REPORT OF THE WESTERN AREA PENINSULA FOREST PROTECTION PROJECT EC: DCI-ENV/2008/153865 WHH: AF / SLE 1008

on behalf of Welthungerhilfe Bonn

Hendrik Hempel Independent consultant for Natural Resource Management and Rural Development [email protected]

legislature. The country has a tropical climate, I Summary with a diverse environment ranging from savannah to rainforests, but it remains one of the poorest countries in the world. It does have 1 BRIEF DESCRIPTION OF THE PROJECT strong economic growth, but with very little AND FRAMEWORK CONDITIONS impact on the living conditions of the poorest. The Western Area Peninsula Forest Reserve Poverty and food insecurity are the major project (WAPFR) in Sierra Leone started in challenges regarding further development. Land March 2009 and will end in February 2014 after grabbing in combination with unsustainable a 5-year implementation period. The overall natural resource exploration constitute the objective of the project has been to enhance the biggest risk for future conflicts, rural exodus, a protection and conservation of the WAPFOR and fast-growing urban population and increasing to decelerate deforestation, as nearly a third of poverty. the original forest cover had been destroyed Nowadays WAPFOR is one of eight between 1990 and 2008. biodiversity hotspots in the country and is part The project concept was based on a coherent of the Upper Guinean Forest Ecosystem. It is of result model that: (i) (potential) encroachers are critical importance for the water supply to the supported with alternative livelihood options to peninsula population, including the capital stop their unsustainable utilisation of forest Freetown (1.5 million people1 – approximately resources; (ii) communities are supported with 20% of the country’s total population). The ecosystem services as well as community reserve covers 17,000ha of enclosed rainforest empowerment, to facilitate their participation in declared a reserve in 1916 and gazetted as a forest protection; (iii) awareness raising and non-hunting forest reserve in 1973. It hosts sensitisation at different levels to create approximately 80–90% of Sierra Leone’s environmental consciousness and an terrestrial biodiversity. Its environmental understanding of the lifesaving functions of the services – protection against floods, erosion and forest ecosystem and the importance of landslides; absorption of water in the rainy conservation; and (iv) the relevant government season and its release over the course of the dry institutions, particularly Ministry of Agriculture season; considerable windbreak and micro- Forestry and Food Security (MAFFS), are climate regulation – as well as its tourism strengthened enabling them: to prioritise potential are essential for the whole country. conservation issues, to advance and implement The intervention’s direct target group was legislation, and to set up an effective estimated at 50,000 people living in villages institutional framework. adjacent to the WAPFOR. The communities The Republic of Sierra Leone is bordered by mainly rely on subsistence farming and fishing Guinea to the northeast, Liberia to the for their livelihoods. Households are also southeast, and the Atlantic Ocean to the carrying out horticulture, charcoal burning and southwest. Between 1991 and 2002, the Sierra trading, stone and sand quarrying, palm wine Leone Civil War devastated the country, and small-scale agricultural production. Women resulting in more than 50,000 deaths, much of play a vital role, as they take care of the home the country's infrastructure destroyed, and over gardens and small-scale animal husbandry. two million people displaced as refugees in Timber and non-timber forest products from neighbouring countries. Since 2002, the country WAPFOR play a crucial role in the livelihoods of has been undergoing peace-building, these communities. democracy, reconciliation and development, as well as coming to terms with its recent history. Sierra Leone is a constitutional republic with 1 CIA World Fact Book demographic statistics (2008 a directly elected president and a unicameral est.) Final Evaluation Report of the Western Area Peninsula Forest Protection Project

The project holder is Welthungerhilfe, but it 3 OUTCOMES AND IMPACTS was planned and implemented together with Impacts are defined as long-term effects. With “Environmental Forum for Action” or ENFORAC – the international recognition of the National a Sierra Leonean network of non-governmental Park and through Sierra Leonean parliament organisations (NGOs). The project is an legislation, the project has certainly achieved an integrated part of Welthungerhilfe’s global, impressive impact that no one had expected regional and national programmatic approach. during the project planning phase or even at the All relevant stakeholders from government beginning of its implementation. The WAP agencies at all levels, district councils, local Forest is also listed under the UNESCO World NGOs and CBOs were involved. Heritage sites, which increased international attention to the forest and therefore its 2 RELEVANCE protection. Project relevance is generally very high. The There is a strong awareness created about WAP Forest Reserve is of crucial importance for the core forest zone, and the need for the water supply of the entire peninsula preservation is generally well accepted among population, including the inhabitants of the all stakeholders, as well as the peninsula capital Freetown. Furthermore, Sierra Leone has population. Nearly 100% of the target signed several international conventions and population is aware of the importance of the protocols regarding environmental and forest forest ecosystem and what it provides, protection, and has developed policy, legislative especially its watershed. Around 25% of the and institutional framework for its villages adjacent to the forest have a fully environmental management. functional water supply, which has contributed The project objectives are well aligned to the to measurable improvements in living conditions general objectives of Welthungerhilfe: i.e. to in the communities, e.g. the reduction of sustainably improve living and to support people waterborne diseases and improved health to help themselves. The project’s approach of conditions among the dwellers. developing community and institutional capacity The project reached only about 13% of an for zonal management strengthens self-help estimated total of 6,000 potential encroachers, efforts. (people who derive their income from the forest The project has been financed under the EC in a destructive way) with its livelihood support. programme “Environment and sustainable Of these, approximately 80% managed to management of natural resources, including establish reasonable alternative income sources, energy” and is aligned to the objective of the and use these for further investments. European Community’s Country Strategy Paper Nevertheless, there is a considerable reduction and National Indicative Programme 2008–2013, of anthropogenic activities and human stressors which lists environmental governance as one of in the forest. six priorities under its focal sector “good Some small-scale community-based tourism governance and institutional support”. destinations were promoted. Their income is A particularly strong aspect of the project reasonable, but their design is at an early stage design is the articulation between local and and the major touristic infrastructure is still national levels, reinforcing each other to rudimentary. However, the water supply encourage law enforcement, communities’ systems and piloted hydro-power supply economic development with alternative systems will increase the potential for livelihoods options (ALO), and the use of community-based development of future tourist ecosystem services as an argument for projects. Awareness regarding preconditions for protection and conservation and further a successful tourism business is established. community development. Page | 3 of 6

Final Evaluation Report of the Western Area Peninsula Forest Protection Project

The government of Sierra Leone (GoSL) is sensitisation of the peninsula population and the aware of the need to establish an independent public sector on the importance of and sustainable National Park administration environmental protection, land use planning and structure and that the forest law and its benefits of preservation. The relevance, urgency penalties must urgently be revised, although to and importance of forest protection has been date there is no indication that the government recognised at the highest political level in the is taking any action. But district councillors and president’s Strategy Policy Unit (SPU), and it can community headmen have become active and be expected that the GoSL will continue to have promoted by-laws. Ministry employees address the issues in the future, with the have learnt and greatly benefited from project lobbying pressure coming from civil society support, by compiling quality data and organisations. arguments for ministerial internal debates and Partially successful income generation advocacy work in parliament. The project could activities and ALO have contributed to gain important supporters such as the EPA2 and decreasing the pressure on the forest reserves. SPU3 to push the legalisation of the National Communities developed considerable ownership Park and its conservation and protection. for their water systems and established water The communities’ and councils’ education committees, taking care of the maintenance contributed to their empowerment and enabled themselves. A high sense of ownership is a good them on the one hand to grasp the serious risk precondition for sustainability. coming from further deforestation, degradation In project planning, a long-term strategic and unsustainable natural resource approach, acknowledging that a complex and exploitration; and on the other hand they ambitious intervention would need more than understand the benefits that can be derived 5 years, was not sufficiently included. As a result, from protected ecosystem services. Although a the project design, as well as Welthungerhilfe preliminary zonal management plan was jointly headquarters (HQ), did not anticipate the developed, so far it has neither been accepted necessity for a second phase to establish and nor legalised. This will have negative effects on consolidate a National Park management further economic, regional and community structure in time. development. It is quite obvious that a second phase is The outcome for ENFORAC as a project required for the establishment and/or partner is considerable. Having to cope with consolidation of sustainable structures. The non- many early difficulties led to their poor initial establishment of a National Park management involvement in the project management. structure within the GoSL is a limiting factor to Nevertheless, throughout the intervention, their sustainability, together with the unrevised law own capacities and competencies have been enforcement and the week prosecution. strengthened, resulting in the project’s success 5 EFFECTIVENESS and the strengthening of their own reputation. Welthungerhilfe has a regional office in 4 SUSTAINABILITY Monrovia, Liberia, to coordinate the country Probably the most sustainable project programmes in Liberia and Sierra Leone. Both achievement is the awareness raising and country programmes are supported by the regional desk at the HQ level (Bonn, Germany). The project office was established and 2 Environment Protection Agency, a cross-cutting government agency responsible for coordinating the equipped by Welthungerhilfe and is based in various ministries involved in environmental issues. Freetown. The project holder has a functional 3 The Strategy Policy Unit is a governmental body administration system, based on clear rules and advising and responding in turn directly to the president of Sierra Leone. Page | 4 of 6

Final Evaluation Report of the Western Area Peninsula Forest Protection Project

regulations. Project execution responsibility at levels on the other hand. It was crucial to operational level is with the project manager. include multi-stakeholder involvement in the The “Environmental Forum for Action” project proposal, as was done. ENFORAC was formed in 2004 in response to the The major shortcoming of the project was its urgent need for stronger action to protest and delayed start, taking almost 2 years to really get advocate for Sierra Leone’s natural resources. It it going. This was due to problems with is a coalition of about 11–15 environmental expatriate staff recruitment and a high turn-over NGOs, community groups and academic among the international project managers. institutions whose united voices maximise their Apparently, this had negative consequences for impact on policy, management and behavioural the effectiveness of the project. This could not change for a healthy environment. be compensated by the project partner Welthungerhilfe and ENFORAC have long- ENFORAC, who was neither the project holder, term operational experiences. Staff, equipment, nor had signed the project contract. material and the funding of activities were 6 EFFICIENCY realistically and appropriately calculated. The The total budget is €3.1 million with an long project duration supported the joint investment of €2.4 million by the EC and €0.7 implementation responsibility among the million by Welthungerhilfe. The budget project holder and its partners, as it allowed for corresponds with the common allocation of sufficient time to grow together, develop trust development projects. No major over- or and build partner’s capacities. Today the project underspendings were detected, except that staff and the project partners are committed because of currency exchange losses the budget and dedicated. The project manager, who is also was diminished by 2%. the Welthungerhilfe country representative, is The cost/performance ratio assessment professional, foresighted and utilises monitoring shows that 62% of the budget was planned for results for project cycle management. communities’ empowerment and development, At the time of project preparation in 2008, awareness raising, advocacy and lobbying, the general situation was different from today followed by 23% for the protection and and it was difficult to foresee how achievable conservation outcome, and finally 15% for pro- and realistic the full protection of the reserve poor financing mechanisms and long-term would be. From today’s perspective, the project financing options for forest conservation. has achieved more than initially intended, with In terms of “carbon efficiency”, the project the national and international recognition of the delivered much important data for further WAPFR National Park. In principle, the majority comparison, e.g. the cost for saving a tonne of of relevant activities were carried out and all carbon emission is about €59.20. This has to be planned outputs were achieved within the regarded as expensive, as currently the project period, although some not to their full theoretical estimated market price per tonne of extent. carbon emissions is around €9. However, the Furthermore, the planned involvement of the economic value of conservation cannot be different levels of stakeholders – starting at the calculated by just carbon emissions. For ministry level, across district councils, example, one would have to calculate the costs community-based organisations (CBOs), villagers that would be incurred if the water supply were and the environment network ENFORAC – was organised from other sources in the interior of certainly a major challenge for project Sierra Leone. management on the one hand, but also a key In hindsight, the project achieved quite a lot element for success, especially regarding by demanding community and individuals’ awareness raising and sensitisation at different contributions and involvement. Not only the Page | 5 of 6

Final Evaluation Report of the Western Area Peninsula Forest Protection Project

ownership has been strengthened, but been developed and a foresighted human ultimately more “micro projects” than originally resource management is highly recommended. planned were supported. 8 GENERAL CONCLUSIONS AND “LESSONS The internal monitoring and evaluation LEARNT” (M&E) system was managed by an M&E officer, The EC-funded project is providing a useful who focused on achieved outputs and, to a contribution to the overall Welthungerhilfe certain extent, on the use of outputs and country programme of Sierra Leone. It is an outcome, although the latter in a less well- important project for ENFORAC and documented and systematic way. Financial Welthungerhilfe, first because of its topic, and monitoring is carried out according to second because of its challenging multi- Welthungerhilfe standard financial procedures. stakeholder involvement, as well as the common In principle, reports are in line with donor project implementation with ENFORAC as requirements. partner from the Sierra Leonean civil society. 7 RECOMMENDATIONS A 5-year project phase is desirable for this The project – Project Management Team (PMT), type of intervention and it is quite remarkable ENFORAC and MAFFS Forestry Department – that the EC has managed to provide such an should focus on ensuring as much as possible exceptionally long funding period. that a park management structure is established The WAP Forest is of exhilarating beauty and within the GoSL. It should also advocate and unique in terms of its biodiversity. Its micro- lobby for government to prioritise funding climatic balancing function, its water sources – support for the second phase, as well as for law often described as the “white diamond of the enforcement (revision of the forest law and peninsula” – are the most important “life penalties) and prosecution. insurance”, as are its other ecosystem services, The recommended buffer zone plan for the peninsula residents and future (including worst-case scenario consequences generations. and best-case socioeconomic income opportunities and a push for legislation) must be The following lessons learnt can be deduced: finalised for further ministry information and projects with such a challenging concept and guidance. design and with little previous experience in Contacts (internet) with other international terms of its implementation should be planned biodiversity reserves, national parks and differently. Outcome mapping as the planning ecotourism forums should be intensified for and preparation tool would have been more professional and financial support (partnership). appropriated. It is advisable to integrate a pilot This type of complex and sophisticated phase, or at least an inception phase. It is always project needs better support and management helpful to start new and innovative projects with back up. The delay of 2 years to establish a an Introductory Workshop and to consolidate functional project management is not further implementation with a review evaluation acceptable. Prevention measures should have after two-fifths of the project period.

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