Document of The World Bank Public Disclosure Authorized Report No.: 60947-AR Public Disclosure Authorized PROJECT PERFORMANCE ASSESSMENT REPORT ARGENTINA – NATIVE FORESTS AND PROTECTED AREAS PROJECT (LOAN No. 4085) ARGENTINA – BIODIVERSITY CONSERVATION PROJECT (TF-28372) June 29, 2011 Public Disclosure Authorized IEG Public Sector Evaluation Independent Evaluation Group Public Disclosure Authorized ii Currency Equivalents (annual averages) Argentina Currency Unit = Peso 1996 US$1.00 AR$1.00 2004 US$1.00 AR$2.97 1997 US$1.00 AR$1.00 2005 US$1.00 AR$3.04 1998 US$1.00 AR$1.00 2006 US$1.00 AR$3.07 1999 US$1.00 AR$1.00 2007 US$1.00 AR$3.14 2000 US$1.00 AR$1.00 2008 US$1.00 AR$3.44 2001 US$1.00 AR$1.00 2009 US$1.00 AR$3.81 2002 US$1.00 AR$3.40 2010 US$1.00 AR$3.97 2003 US$1.00 AR$2.95 2011 US$1.00 AR$4.02 iii Abbreviations and Acronyms ABC Argentina Biodiversity Conservation Project APN Administración de Parques Nacionales (National Park Service of Argentina) COFEMA Consejo Federal del Medio Ambiente (National Environmental Council) DNB Dirección Nacional de Bosques (National Directorate of Forests) GEF Global Environment Facility GIS Geographic Information System IBRD International Bank for Reconstruction and Development (The World Bank) ICR Implementation Completion Report IEG Independent Evaluation Group IEGPS IEG Public Sector Evaluation M&E Monitoring and Evaluation NFPA Native Forests and Protected Areas Project NGO Non-Governmental Organization OED Operations Evaluation Department (now called IEG) PPAR Project Performance Assessment Report SAyDS Secretaría del Ambiente y Desarrollo Sostentable (Secretariat of the Environment and Sustainable Development SRNyAH Secretaría de Recursos Naturales y Ambiente Humana (Secretariat of Natural Resources and Human Environment, now called SAyDS) SINAP Sistema Nacional de Areas Protegidas (National Protected Areas System) UMARF Unidad de Manejo de Información del Aprovechamiento Sustentable de los Recursos Forestales Nativos (Information Management Unit for the Sustainable Yield of Native Forests) UMSEF Unidad de Manejo de Sistema de Evaluación Forestal (Management Unit for the Forest Evaluation System) WCMC World Commission on Protected Areas Fiscal Year Government: January 1- December 31 Director-General, Independent Evaluation : Mr. Vinod Thomas Director, IEG Public Sector Evaluation : Ms. Monika Huppi (Acting) Manager, IEG Public Sector Evaluation : Ms. Monika Huppi Task Manager : Mr. Richard Carlos Worden v Contents Principal Ratings ............................................................................................................... vii Key Staff Responsible....................................................................................................... vii Preface................................................................................................................................ ix Summary ............................................................................................................................ xi 1. Historical Background and Natural Context of Argentina Projects ................................ 1 Other World Bank and Donor Assistance Projects ......................................................... 4 2. Project Objectives and Design ........................................................................................ 6 NFPA Project .................................................................................................................. 6 ABC Project Objectives and Design ............................................................................... 8 3. Institutional Arrangements, Expenditures and Implementation Experience of NFPA and ABC Projects ................................................................................................................ 9 Implementation arrangements ......................................................................................... 9 Implementation Experience – NFPA Project ................................................................ 10 Planned vs. Actual Disbursements ................................................................................ 12 NFPA Project Expenditures ...................................................................................... 12 ABC Project Expenditures ........................................................................................ 12 4. Achievement of Outcomes ............................................................................................ 12 Native Forests and Protected Areas Project .................................................................. 12 Objective 1: Assist SAyDS to prioritize actions in native forests ............................ 12 Objective 2: Develop an incentive-based regulatory framework ............................. 15 Objective 3: Develop a Plan to Transform APN into a world-class parks organization............................................................................................................... 16 Objective 4: Increase environmentally sustainable tourism in four selected National Parks. ......................................................................................................... 17 Argentina Biodiversity Conservation Project ............................................................... 20 Objective 1: Expand and diversify SINAP ............................................................... 20 Objective 2: Create conditions for their sustainable management ............................ 22 Global Environmental Objective .............................................................................. 24 5. Evaluation Ratings ........................................................................................................ 25 Relevance of Objectives ............................................................................................... 25 Relevance of Design ..................................................................................................... 26 This report was prepared by Richard C. Worden, who assessed the project in February 2011. The Peer Reviewer was Lauren Kelly, and Panel Reviewer was John Heath. Marie Charles provided administrative support. vi NFPA Project ............................................................................................................ 26 ABC Project .............................................................................................................. 27 Efficacy ......................................................................................................................... 29 Efficiency .................................................................................................................. 30 ABC Project .............................................................................................................. 33 Outcome .................................................................................................................... 34 Risk to Development..................................................................................................... 35 Monitoring and Evaluation (M&E) Systems ................................................................ 36 M&E Design, Implementation and Utilization ......................................................... 36 Bank Performance ......................................................................................................... 39 NFPA Project ............................................................................................................ 39 ABC Project .............................................................................................................. 40 Borrower Performance ............................................................................................. 42 NFPA Project ............................................................................................................ 42 ABC Project .............................................................................................................. 43 6. Lessons Learned............................................................................................................ 44 Annex A: Basic Data Sheet............................................................................................... 47 Annex B: Changes in Project Disbursements ................................................................... 53 Annex C: List of People Met ............................................................................................ 55 Annex D: Borrower Comments ........................................................................................ 56 Annex E: Maps ................................................................................................................. 65 Tables Table 1: Alternative “Blended” Design of APN and SAyDS Projects ............................. 29 Table 2: Financial Internal Rate of Return for Four NATIONAL PARKs Selected in NFPA Project .................................................................................................................... 32 Table 3: Comparison of Project Ratings ........................................................................... 34 Table 4: Summary of ABC Project Disbursements Amendment ..................................... 53 Table 5: Summary of NFPA Project Amendment of Disbursement Allocations ............. 54 Figures Figure 1: Transformed Areas overlaid Eco-Regions of Argentina ..................................... 3 Figure 2: Major Forest Types