Document of

The World Bank

FOR OFFICLAL USE ONLY

Report No. 14886

IMPLEMENTATION COMPLETION REPORT

PAKISTAN

PUNJAB AND SIND AGRICULTURAL EXTENSIONAND ADAPTIVE RESEARCR - PHASE II PROJECT

(CREDIT 1762-PAK)

JULY 20, 1995

Agriculture and Natural ResourcesOperations DivisionCountry Department ISouth Asia Region

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

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CURRENCY EQUIVALENTS

Currency Unit = Pakistan Rupees (Rs)

Appraisal Year (1986) Rs 16.65 = US$1.00

Completion Year (1994) Rs 30.57 = US$1.00

WEIGHTS AND MEASURES

(Metric System)

FISCAL YEAR OF BORROWER

July I - June 30

ABBREVIATIONS AND ACRONYMS

AO Agricultural OfficerATI Agricultural Training Institute

ARF Adaptive Research Farm

ARP-II Agricultural Research Project - Phase II

CWD Communications and Works Department

DA Department of Agriculture

DCA Development Credit Agreement

ECNEC Executive Conmmittee of National Economic Council

FA Field AssistantGOP Government of Pakistan

GOPun Government of Punjab

GOS Government of Sindh

IDA International Development Association

M&E Monitoring and Evaluation

PAR Performance Audit Report

PC-l Planning Commission Form-1

PCR Project Completion Report

PERI Punjab Economic Research Institute

SA Stock AssistantSAR Staff Appraisal Report

SMS Subject Matter Specialist

SSMS Senior Subject Matter Specialist

T&V Training and Visit System of Extension

WEW Women Extension Workers

GLOSSARY

Kharif (Monsoon Season) Mid-April to Mid-October

Rabi (Dry Season) Mid-October to Mid-April

FOR OFFICIAL USE ONLY

TABLE OF CONTENTS

Preface

Evaluation Summary ...............................................

PART I: PROJECT IMPLEMENTATION ASSESSMENT.1

A. Statement/Evaluation of Objectives ..................................... 1B. Achievement of Objectives ........................................... 1C. Project Implementation Record and Major Factors Affecting the Project .............. 4D. Project Sustainability ..................... 7E. Bank Performance. 7F. Borrower Performance. 8G. Assessment of Outcome. 9H. Future Development ............................................... 9I. Key Lessons Learned ............................................. 10

PART II: STATISTICAL TABLES ..................................... 13

Table 1. Summary of Assessments ................................... 13Table 2. Related Bank Loans/Credits .................................. 15Table 3. Project Timetable ........................................ 16Table 4. Loan/Credit Disbursements: Cumulative Estimated and Actual .... ....... 17Table 5. Key Indicators for Project Implementation ......................... 18Table 6. Key Indicators for Project Operation ............................. 19Table 7. Studies Included in Project ................................... 19Table 8A. Project Costs ........................................... 20Table 8B. Project Financing ........................................ 20Table 9. Economic Costs and Benefits ................................. 21Table 10. Status of Legal Covenants ................. I ............... 22Table 11. Bank Resources: Staff Inputs ................................. 24Table 12. Bank Resources: Missions ................................... 25

APPENDICES

Appendix A: Mission's Aide MemoireAppendix B: Project Completion Report, Pakistan: Punjab Agricultural Extension and Adaptive

Research Project Phase-IIAppendix C: Implementation Completion Report (ICR) of Sindh Agricultural Extension and Adaptive

Research Project Phase-IIAppendix D: Comments from Government of Sindh on Final Draft ICRAppendix E: Comments from Government of Punjab on Final Draft ICR

This document ha a restricted distribution and may be used by recipients only in the performance of thuirofficial dudes. Its contents may not otherwise be disclosed wihout World Bank authorization.

IMPLEMENTATION COMPLETION REPORT

PAKISTAN

PUNJAB AND SIND AGRICULTURAL EXTENSIONAND ADAPTIVE RESEARCH - PHASE II PROJECT

(Cr. 1762-PAK)

PREFACE

1. This is the Implementation Completion Report (ICR) for the Punjab and Sind AgriculturalExtension and Adaptive Research Project for which Credit 1762-PAK in the amount of SDR 35.5 million(US$42.1 million) was approved on February 24, 1987 and made effective on November 6, 1987. Thecredit closing date was extended once, by one year, to June 30, 1994. The credit account was kept openfor four months beyond the closing date to allow submission of final withdrawal applications. Totaldisbursements amounted to SDR 28.88 million (81 % of original credit; equivalent to US$39.74 million)and the unspent credit balance of SDR 6.62 million was cancelled effective December 7, 1994.

2. This ICR was prepared by an FAO/World Bank Cooperative Program" mission whichvisited Pakistan in October 1994, and reviewed by the Agriculture and Natural Resources OperationsDivision, Country Department I, South Asia Region. Preparation was based on material in the projectfiles, field visits, and discussions with officials of the Punjab and Sindh Provincial Governments and Bankstaff associated with the project. Both provincial governments contributed to the preparation of the ICRby commenting on the mission's aide-memoires, arranging all field visits and meetings, and providingseparate completion reports on the project.

" Messrs. D.A. Ivory (mission leader, agronomist) and B.J. Gorddard (agricultural extension specialist,consultant).

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PAKISTAN

PUNJAB AND SIND AGRICULTURAL EXTENSIONAND ADAPTIVE RESEARCH - PHASE II PROJECT

(Cr. 1762-PAK)

EVALUATION SUMMARY

Introduction

1. Agricultural extension services in Pakistan are entirely within the provincial domain andvary considerably among provinces. The IDA supported first-phase projects in three provinces (Punjab,Sindh and Balochistan) to reorganize and strengthen extension services and the adaptive research systemin selected districts, in line with the "Training and Visit" (T&V) methodology. These were the PunjabExtension and Agricultural Development Project (Cr. 813-PAK), Sind Agricultural Extension andAdaptive Research Project (Cr. 922-PAK), and Baluchistan Agricultural Extension and Adaptive ResearchProject (Cr. 1533-PAK). Second phase projects were proposed for Punjab and Sindh to extend the T&Vsystem to all districts. A joint project - the subject of this report - was therefore developed for these twoprovinces.

Project Objectives

2. The overall project objective was to achieve sustained increases in agricultural productionin the project areas through effective transfer of technologies most suited to local agroclimatic conditions,and creating a sense of dedication and commitment in the provincial extension services by making all staffmore accountable to specific assigned duties and objectives. For this purpose, the project was tocomplete the strengthening and reorganization of extension services in Punjab and Sindh by extending theT&V system to the districts not covered by the first-phase projects, while consolidating the gains madein the districts covered by these projects and strengthening the adaptive research system. The specificproject objectives were clear and achievable, and the general objective was important to country,provincial and sector objectives and complemented the Bank's country assistance strategy.

3. Covenants. Both the governments of Punjab (GOPun) and Sindh (GOS) had, by projectclosure, complied with all covenants of the Project Agreement, except for the transfer of all incrementalstaff positions to the non-development budget, and in the case of GOPun, payment of attendant salaries.[See GOPun comment in Appendix E, item 3.]

Implementation Experience and Results

4. The project is judged to have partially achieved its overall objective in both provinces.Production and yield of most of the important crops increased significantly (para. 5)". The extent towhich these increases were attributable to the project could not be determined, but the projectundoubtedly played a role in promoting new improved technologies. Notwithstanding initial delays, theproject achieved or exceeded the majority of the physical targets set in the SAR (PC-1), except for civilworks and technical assistance (paras. 12, 17 and 11, 18). [See GOPun comment in Appendix E, item4.]

" References throughout the Evaluation Summary are to paragraphs of Part I.

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5. Project Cost. Of the total IDA Credit (SDR 35.5 million), SDR 6.62 million remainedunspent on December 7, 1994 and were cancelled, due mainly to the depreciation of the Rupee againstthe SDR, and in the Punjab component, due to the deletion of 248 buildings from the civil works programand the underutilization of funds allocated for technical assistance (paras. 16, 17 and 18). Total actualproject cost was Rs 1,247.77 million (about US$51.12 million), 25% more than estimated at appraisalin Rupee terms, but 12% less in Dollar terms. [See GOPun comment in Appendix E, item 5.]

Key Factors Relating to Achievement of Objectives

6. T&V System. The institution building objective of the T&V system was satisfactorilyachieved in all districts in both provinces, although Punjab consultancies were limited and delayed. Asignificant impact of the project has been the improvement of staff and contact farmer skills andknowledge. However, Monitoring and Evaluation (M&E) reports indicate that regular contacts withfarmers had been at an undesirably low level, with only about 30% of contact farmers being reachedregularly. With contact farmers only representing 7% of all farmers, these regular contacts were thuswith only about 2% of all farmers. Farmer interviews suggest that contact farmers had significantlyhigher crop yields than district averages and crop yields of farmers in the majority of villages not visitedby Field Assistants (FAs). The project has experienced most of the well documented problems of theT&V system including high recurrent costs, poor staff qualifications and skills, weak linkages withresearch, lack of new messages, inequitable contact patterns with farmers, heavy management loads, poorsupervision of FAs by Agricultural Officers (AOs), poor farmer contact by AOs and inflexibility (paras.6, 7, 10, 19, 20, 21, 25 and 26). [See GOPun comment in Appendix E, item 6.]

7. Training Institutes. Agricultural Training Institutes have been strengthened and traininghalls established and equipped as scheduled. These are operating satisfactorily with several encouragingsigns of innovation and responsiveness to emerging demands such as training programs for womenfarmers and women extensionists (paras. 8 and 22).

8. Training. A large amount of training has been provided for selected staff throughparticipation in pre-service and in-service training, refresher courses, workshops, seminars and foreigntraining. Generally, regular training programs were repetitive and lacking in substance and thereforeneed to be upgraded to meet current demands for improved knowledge and skills, but it is doubtfulwhether the present intensity of training for FAs and AOs is sustainable or essential (paras. 9 and 22).Some training was delayed, particularly overseas training and workshop and seminar programs, and somenot undertaken because of the cancelled technical assistance, such as M&E training, all of which affectedproject benefit and impact assessment. [See GOPun comment in Appendix E, item 8.1

9. Adaptive Research. The Adaptive Research Farms (ARFs) have been established in bothprovinces, despite shortfalls in adaptive research staffing. However, the on-station focus of much of theresearch and the failure to develop essential linkages with extension and other research institutions area cause for concern (paras. 10 and 20). [See GOPun comment in Appendix E, item 9.]

10. Technical Assistance. While the quality of consultancy inputs ranged from satisfactory toexcellent, the level of inputs was well below targets in Punjab, and in both provinces inputs wereseriously delayed and disrupted due to disputes between Government and consultants regarding liabilityto taxation (paras. 11 and 18). Technical assistance was discontinued in Puniab, resulting in only 47%of planned inputs. [See GOPun comment in Appendix E, item 10.]

11. Monitoring and Evaluation (M&E). Project monitoring and evaluation was carried outregularly and documented in bi-annual reports. These reports would have been of greater value to

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management if there had been more focus on evaluation, a problem which might have been overcome byappropriate technical assistance (paras. 11 and 18).

12. Civil Works and Vehicles. Civil works implementation was seriously delayed in bothprovinces (paras. 12 and 17), and several buildings are still not completed or handed over to theDepartments of Agriculture (DAs; para. 27). These delays had adverse effects on the operations of theARFs, extension programs and training programs. Despite procurement of vehicles, mobility ofextension staff was identified as a continuing major constraint (paras. 13 and 21). [See GOPun commentin Appendix E, item 12.]

13. Communications. Excellent progress was made in developing mass media support forextension, and monitoring reveals a high level of penetration and satisfaction with these outputs, whichare notable for their timing and targeting (para. 14).

14. External Constraints. A number of external factors affected the impact of the projectincluding a lack of production inputs (para. 23) plus problems associated with irrigation, drainage, andadulteration of fertilizers and pesticides. Security problems in Sindh also adversely affected the projectfor a period of more than three years (para. 24).

Performance of Association and Borrower

15. Association Performance. Supervision missions were reasonably regular and providedsound guidance and support to implementation. The Resident Mission staff provided additional supportbetween supervision missions, which was appreciated by both provincial governments (para. 29).

16. Borrower Performance. Both provincial governments tried hard to complete the projecton target, but problems arose due to some limitations in management, inter-departmental coordinationand civil disturbances in Sindh. Problems in both provinces also included: serious delays in the civilworks program, procurement of replacement vehicles, and overseas training; shortfall in appointment ofadaptive research staff; slow start of technical assistance; poor supervision of FAs by AOs; and poorfarmer contact by AOs. In Sindh, additional constraints were imposed by inadequate availability ofcounterpart funds and a lack of funds for operation and maintenance in Phase I areas (paras. 30, 31, 32and 33).

Project Outcome Assessment

17. Project outcome is assessed as satisfactory, since the project achieved most of its specificobjectives. In Punjab it is expected that further worthwhile development will be achieved withoutadditional investment. However, if modifications to the T&V system are not made, sustainability andimpact on agricultural development would ultimately be affected. In Sindh, there is some doubt thatfurther worthwhile development will occur, unless sufficient budget is provided for operations,maintenance and replacement of capital items, and there is further investment in reorienting anddeveloping the extension service (para. 34). [See GOPun comment in Appendix E, item 17.]

Summary of Findings, Key Lessons Learned and Future Operations

18. Important Findings: (a) The T&V extension system has been set up as planned, but hasexhibited a number of serious deficiencies in operation. (b) The low education level of FAs limits theircapacity to provide comprehensive services which are responsive to farmers' needs. [See GOPuncomment in Appendix E, item 18.ii.] (c) Adaptive research has not been as effective as intended,

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especially in linking with and supporting extension. [See GOPun comment in Appendix E, item 18.iii.](d) Serious civil works implementation delays occurred in both provinces. [See GOPun comment inAppendix E, item 18.iv.] (e) Good progress was made in both provinces in developing mass mediamaterials for radio, television and print, to support extension.

19. Lessons Learned: (a) Project success is dependent on managerial capacity. Managementtraining early in the project can be a critical input. (b) The T&V system must be substantially modifiedto make it more cost effective, more flexible and targeted, more equitable, less top-down, moreparticipatory and responsive to its clientele. Consideration should be given to prioritizing target groupsand areas of investment, and to the role of the private sector and NGOs. (c) The availability of trainedhuman resources should determine the rate at which a program is developed. Training methods andcurricula need to be upgraded, and education programs for farmers should be expanded, including therecent, innovative courses for women farmers and extensionists. (d) Within the extension system thereshould be more incentives and merit-based promotional opportunities for the front-line extension workers,and their basic knowledge and skills should be steadily upgraded. (e) Proposed programs of civil worksmust be within the financial and managerial capacity of the implementing agency and the governmentmust remain fully committed to implementing (completing) such a program within the proposed time-frame. (f) Adaptive research should not duplicate research done by Research Institutes, should bedemand-driven and emphasize the financial and economic viability of new technologies compared withcurrent farmer practices. (g) The importance of M&E, especially evaluation, in justifying budget supportfor extension has been reinforced.

20. Future Development: Both provincial DAs recognize the need to modify their extensionservices and have prepared extension strategy papers, which propose more sustainable extension systems,wider interaction with farmers, use of more modern communication systems and extension methodologies,more flexible allocation of staff resources, and a more participatory approach to defining problems andtechnological solutions (para. 35). These have yet to be considered by the provincial governments. [SeeGOPun comment in Appendix E, item 19.]

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IMPLEMENTATION COMPLETION REPORT

PAKISTAN

PUNJAB AND SIND AGRICULTURAL EXTENSIONAND ADAPTIVE RESEARCH - PHASE II PROJECT

(Cr. 1762-PAK)

PART I: PROJECT IMPLEMENTATION ASSESSMENT

A. Statement/Evaluation of Objectives

1. The overall project objective was to achieve sustained increases in agricultural productionin the project areas through effective transfer of technologies most suited to local agroclimatic conditions,and creating a sense of dedication and commitment in the provincial extension services by making all staffmore accountable to specific assigned duties and objectives. For this purpose, the project was tocomplete the strengthening and reorganization of extension services in Punjab and Sindh provinces byextending the T&V system to all districts not covered by preceding IDA assisted projects (PunjabExtension and Agricultural Development Project, Cr. 813-PAK; and Sind Agricultural Extension andAdaptive Research Project, Cr. 922-PAK), while consolidating gains made in districts covered by thefirst-phase projects and strengthening the adaptive research system.

2. The specific project objectives included: (i) reorganization and strengthening of theagricultural extension and adaptive research activities in the 23 districts of Punjab and 8 districts of Sindhprovinces not covered by the Phase I projects; (ii) maintaining and strengthening the agricultural extensionand adaptive research activities in the five districts of Punjab and five districts of Sindh covered by thePhase I projects; (iii) strengthening the Agricultural Training Institutes; (iv) strengthening in-service andon-the-job training of extension staff; (v) establishing new Adaptive Research Farms and supplyingappropriate equipment; (vi) establishing Demonstration Centers/Plots; (vii) providing offices, residences,and furniture for technical staff of Adaptive Research Farms, office and residential buildings for extensionstaff at district and tehsil/taluka levels, and training halls for extension staff and farmers; (viii) providingtransport to improve staff mobility; and (ix) providing audio-visual equipment to improve communicationcapacity.

3. These specific project objectives were clear and achievable, and the overall project objectivewas important to country, provincial and sector objectives and complemented the Bank's countryassistance strategy. However, the project did not capture the role and needs of women farmers. It alsofailed to involve various farming groups in the extension communication process.

B. Achievement of Objectives

4. Project design continued the emphasis of the first-phase projects (Cr. 813-PAK and Cr. 922-PAK) on physical and institutional changes to the extension and adaptive research systems. The criteriaadopted for judging project achievements were generally satisfactory for institutional and physical targetsbut not for quality and impact of extension on crop production and family incomes. This restricted the

effectiveness of the process and extent of transfer of relevant technologies to farmers and therefore theimpact of the project.

5. In Punjab, annual average production increases were 5.3% for wheat, 5.0% for cotton and3.7% for sugarcane, but average rice production declined by 1.2% per year. For Sindh, annual averageproduction increases for the Phase II districts were 1.1% for wheat, 3.6% for paddy and 14.5% forsugarcane, while cotton production decreased by 4.6% per year, due to significant area replacement bysugarcane. Yield per unit area increased for all crops except rice in Punjab, which suffered an averageannual decline of 3.0%. The decline in rice yield and production cannot be explained, but may beassociated with increasing salinity. The extent to which these increases in crop production and yieldswere attributable to the project cannot be determined precisely. However, it is unlikelv that T&V hada significant impact on production as only about 2% of the farmers achieved production increases dueto extension advice (see para. 7). Notwithstanding initial delays, the project reached or exceeded themajority of the physical targets set in the SAR (PC-I) by the closing date, except for civil works andtechnical assistance (see paras. 11 and 12).

6. T&V System. The T&V system was satisfactorily institutionalized in all districts in bothprovinces. Progress in Sindh was slow prior to 1993, but thereafter improvement of the securitysituation, a change in senior management and high quality technical assistance inputs revitalized theproject. In Puniab, the increase in staff numbers exceeded project targets whilst in Sindh it was asscheduled. Unfortunately, however, in Sindh a number of Senior Subject Matter Specialists (SSMSs)have recently transferred to Research Institutes of the Research Wing of the Department of Agriculture(DA) due to more attractive conditions provided under the Second Agricultural Research Project (ARP-II;Cr. 2154-PAK). Significant vacancies are now also reported for Agricultural Officer (AO) positions insome districts of Sindh. [See GOS comment in Appendix D.]

7. Internal and external reports on the project' suggest that the T&V system did not achievewidespread benefits to farmers in general. M&E reports for both provinces indicated that the project hadan impact on staff and "contact" farmer skills and knowledge, that "contact" farmers had achievedincreases in production and income as a direct result of extension advice, and that there was somespillover of information to a limited number of "non-contact" farmers in the same villages. Nevertheless,the M&E reports showed that while regular contacts with farmers and adoption of technology hadoccurred, this had been at an undesirably low level, with only about 30% of contact farmers beingreached regularly by extension. With contact farmers representing only 7% of all farmers, these regularcontacts were thus with only about 2% of all farmers. In addition, contact farmers were found to beunrepresentative with respect to area coverage and farmer categories. Further, M&E surveys, includingthe final project evaluation study by the Punjab Economic Research Institute (PERI), have been unableto discern differences between "contact" and "non-contact" farmers in adoption of new technologies, withthe possible exception of yield improvements for wheat and sugarcane by contact farmers. This resultis not surprising, however, as the sampling procedures used seemingly compared "contact" and "non-contact" farmers in villages where FAs were active, where it was clear that "non-contact" farmers oftenmet with FAs on their own initiative. While PERI found increases in fertilizer use, seeding rates andpesticide use, only a small proportion of farmers were found to be using recommended rates. Bycontrast, ICR mission interviews with farmers in villages where FAs were not active (the majority of

Evaluation Study of Punjab Agricultural Extension and Adaptive Research Project - II, Punjab EconomicResearch Institute, 1994; Extension Strategy Review Final Report, Department of Agricultural Extension,Sindh, December 1993; Future Agricultural Extension Strategy, Agriculture Department, Government of thePunjab, 1994; M&E Annual Reports for Governments of Punjab and Sindh.

villages) suggest that their crop yields and production techniques are inferior to those in contact villages.This is supported by the fact that crop yields of contact farmers appear to be much higher than districtaverages.

8. Training Institutes. Agricultural Training Institutes (ATI) have been strengthened andequipped as scheduled and are operating satisfactorily with several encouraging signs of innovation andresponsiveness to emerging demands. Problems with staff turnover have been corrected in bothprovinces. The ATI at Dahgal, Punjab, is producing around 60 two-year-certificate holders per year.Curricula for the Punjab ATIs were developed with technical assistance provided under the project andwere generally appropriate and of good quality, but will need further inputs for the new women's courses,which will begin with a 12-month course for women FAs in 1995 (48 students). At Dahgal ATI, aninaugural course in nutrition has recently been completed for 72 women extension workers. In Sindh,the ATIs, especially the one at Sakrand, have been very active in running short courses for farmers, andrecently women farmers, in addition to routine in-service training for FAs, AOs and Subject MatterSpecialists (SMSs). At Sakrand, about 80 FAs and 40 Stock Assistants (SAs) have been trained eachyear, and a further 60 FAs and 20 SAs at Gharichand ATI. The excellent training resource that has beendeveloped at Sakrand needs further strengthening to consolidate the ATI's position as the key provincialcenter for pre-service and in-service extension training. The development of training programs forwomen extensionists and the construction of new training facilities for women under separate funding alsobolster its potential as a major center for women's development.

9. Training. Additional training halls were built and equipped as part of the civil worksprogram to establish new district offices. A large amount of staff training has been achieved in Puniab,including in-service and refresher courses (9,529 persons), workshops and seminars (244 persons) andforeign training (97 persons), and a small amount of farmer training. In addition, regular fortnightlytraining was held for FAs and AOs. A reasonable amount of staff training has been achieved in Sindh,including in-service and refresher courses (501 persons), workshops and seminars (780 persons, including110 women) and foreign training (26 persons), plus regular fortnightly training for FAs and AOs.However, some training was delayed in both provinces, particularly overseas training and workshop andseminar programs, thereby not achieving the full benefit to project implementation and management. Thetraining schedule for FAs in Phase I project areas in Sindh has already been changed to a monthly basis,and Phase II areas are expected to follow now that the project has been completed.

10. Adaptive Research. The Adaptive Research Farms (ARFs) in Puniab are well organized,managed and maintained. In Sindh, their management has been more problematic because they wereestablished within a portion of large government farms mostly concerned with seed production and largeareas given to tenant farming and managed by a Farm Superintendent. The construction of buildings atKarror and D.G. Khan (Punjab) and at Pangrio (Sindh) has been completed, but at Pangrio the buildingshave not been handed over to DA because they were not constructed according to specifications. [SeeGOS comment in Appendix D.] A considerable number of trials and demonstrations have been set upunder the project. The majority of trials, however, have been undertaken on ARFs, not in farmers'fields. In general, trials and demonstrations have not been useful for fine-tuning new technologies andpromoting proven technologies. In Sindh, the adaptive research program was reorganized during the one-year extension of the project to include, for the first time, large numbers of trials in farmers' fields, andthe relocation of many SSMSs to district locations.

11. Technical Assistance. In Puniab, consultancy inputs were well below planned targets(47%), whereas in Sindh they exceeded planned targets (131 %), even though there was a suspension ofabout two years. The Sindh consultancies (94 staff months) were beneficial to the development of project

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activities and included assistance to improve extension planning, adaptive research, information andcommunications, diagnostic surveys, monitoring and evaluation and development of future strategies forextension development. The Puniab consultancies, although limited and delayed, appear to have beenhighly effective in management training, curriculum development, in-service training and extensionplanning. Technical assistance was critically required to improve M&E activities, particularly evaluation,to support management decision making, better assess efficiency and effectiveness of the extension systemand impact on agricultural production, and to improve feedback to adaptive research.

12. Civil Works. The planned schedule was to complete all construction within the first twoyears of the project. Serious implementation delays occurred in Punjab, with only 44% of the originallyscheduled buildings completed by June 30, 1994, and another 40% near completion at that time. Duringthe project period, the number of buildings to be constructed in Punjab was reduced from 2,418 to 2,170.In Sindh, civil works construction (819 units) was still not fully completed by the closing date (see PartII, Table 5). The delays in both provinces adversely affected project implementation and impact.

13. Vehicles. Procurement of motorcycles and bicycles in Punjab was as scheduled, butprocurement of 4-WD vehicles and pick-ups greatly exceeded targets (180%). In Sindh, procurementof 4-WD vehicles, cars, pick-ups, vans and motorcycles exceeded targets, while bicycle procurement wasas scheduled. Small 4-WD vehicles were preferred as they were cheaper, but their life expectancy is lessand maintenance costs are higher. The lack of mobility of extension staff, with the exception of fieldstaff, continued to be a major problem due to insufficient maintenance.

14. Communications. Excellent progress was made in both provinces in developing mass-media support for extension. Communication capability has been improved by the purchase ofprofessional equipment to produce audio-visual materials for farmers, extension and, in Puniab, researchworkers. A wide range of materials for radio, television and print media has been produced, with about40% cost recovery for periodicals. Monitoring reveals a very high level of penetration and satisfactionwith these programs, which are notable for their timing and targeting. In Puniab, films and audio-visualaids were farmers' second preference among extension techniques, after regular extension meetings.Production quality and content of the electronic and print materials have steadily improved, and are nowof a high standard, with the use of simple, concise messages and clear impact points. Both provinces arekeen to extend the use of media vans.

C. Project Implementation Record and Major Factors Affecting the Project

15. The project partially achieved its overall objective in both provinces. A number offactors"' contributed to delays in achieving physical targets, resulting in the need for a one-yearextension of the project, which allowed physical targets to be met, with the exception of civil works, andtechnical assistance in Puniab.

16. Project Costs. Of the total IDA credit of SDR 35.5 million, SDR 6.62 million remainedunspent and were cancelled effective December 7, 1994. This was due mainly to the depreciation of theRupee against the SDR; and in Puniab, the deletion of 248 residential and service buildings from the civilworks program and the underutilization of the funds allocated for technical assistance. Total actualproject cost was Rs 1,247.77 million (about US$51.117 million), which is 25% above the appraisalestimate in Rupee terms, but 12% below in Dollar terms. The breakdown of costs and expenditures by

" Mostly subject to government/implementing agencies control.

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province, as of June 30, 1994, was as follows: (a) Puniab. Of the IDA credit allocated to GOPun (SDR20.92 million), SDR 5.83 million were unspent. Total project cost for the province was Rs 669.73million (US$27.24 million), which exceeded the SAR estimate of Rs 625.98 million (US$36.75 million)by 7 % in Rupee terms, but was 26 % below in Dollar terms. (b) Sin&. Sindh had fully utilized its SDR11.73 million credit allocation, plus a part (SDR 0.46 million) of the SDR 2.85 million left unallocatedin the DCA (Schedule 1). Total project cost for the province was Rs 578.07 million (US$23.88 million),which exceeded the SAR estimate of Rs 371.36 million (US$21.79 million) by 58% in Rupee terms and10% in Dollar terms.

17. Civil Works. The serious delays in the civil works program in Puniab, which ultimatelyled to a downward revision of targets, were due to a combination of factors. These included:government procedural problems in preparation and approval of contracts; disbursement problems, eventhough special accounts had been established; rising building costs due to long delays in contractprocessing; and construction delays by contractors. These delays had adverse effects on the operationsof the adaptive research farms, extension and training programs. In Sindh, security problems (para. 24)and rising prices also adversely affected contractors' construction schedules, even though the civil worksprogram was accelerated through appointment of a special project director within the Communicationsand Works Department (CWD) in 1991 to monitor and coordinate civil works. There are still a numberof buildings which are not completed according to original specifications and have not been handed overto DA due to factors beyond the control of the project. Completing these civil works could be a problemas the group responsible for the civil works program under the project has been disbanded andpresumably no further budget funds will be allocated this financial year. The quality of construction ofbuildings in both provinces is only fair, as there was inadequate supervision during construction, andallocation of budget for maintenance of completed buildings already appears to be a problem.

18. Technical Assistance. The underutilization of technical assistance was due to disagreementson payment of taxes between the Government of Pakistan (GOP) and the contracting agents which ledto suspension of activities in both provinces. In Punjab, the contract was suspended in January 1989 andfinally cancelled in March 1993, with only one year of consultancy inputs achieved. Technical inputswere planned to assist extension, training, adaptive research, information and communications, monitoringand evaluation, surveys and management activities. Only limited technical assistance actually occurredin Punjab (47% of planned) for some of these components, with - notably - no assistance for theMonitoring and Evaluation units. All the above activities would have benefitted from greater assistancethan was achieved. In Sindh, the consultants suspended work in September 1990, but resumed in April1992. The quality of their input was high and all parties have expressed their satisfaction with this work.Of critical importance was the production of excellent reports on diagnostic surveys", adaptive researchreorganization and strategy2', and extension strategy review3", which has set a clear direction for thefuture development of extension and adaptive research in Sindh.

19. Research-Extension Linkages. The committees set up under the project (AgriculturalExtension-Research Coordinating Conmmittees, Zonal Technical Committees, District TechnicalCommittees) to improve coordination generally functioned as intended, but were clearly insufficient per

Diagnostic Surveys Summary Report, Department of Agricultural Extension, Hyderabad, Sindh, February1994.

2/ Adaptive Research Reorganisation and Strategy Report, Department of Agriculture Extension, Hyderabad,Sindh, March 1994.

3/ Extension Strategy Review Final Report, Department of Agriculture Extehsion, Hyderabad, Sindh,December 1993.

-6 -

se to ensure close working relationships. Linkages between agricultural extension, agricultural andlivestock research, and soil and water research remain weak or non-existent. Lack of strong involvementof the on-farm water management program was especially noticeable.

20. Adaptive Research. The adaptive research system is not fully effective. Trials anddemonstrations are not planned, conducted and interpreted with the participation of farmers, and do notalways compare new technologies with existing farmer practices. Appropriate economic analyses havenot yet been undertaken in Punjab, and economic analyses are totally absent in Sindh, and there has beenlittle problem definition and analysis in a systems context. In Sindh, the linkage between the ARFs andextension has failed to develop, and the quality and relevance of the trials is often poor. Both ARFs inSindh visited by the ICR mission (Pangrio, Phase II; and Oderolal, Phase I) were established as a smallpart of large existing government farms involved in seed production and farmed by tenants. At thesefarms the effectiveness of the adaptive research programs appears compromised by budget funds beingcontrolled by the Farm Superintendent and the competing needs of research and input supply for tenantfarmers.

21. Extension. The problems associated with implementation of the T&V system included:high recurrent costs; poor staff qualifications, skills and credibility, limiting their capacity to providecomprehensive services responsive to farmers' needs; weak linkages with research; lack of new messagestailored to local needs and circumstances, and insufficient emphasis on minor crops; inequitable contactpattern with farmers; heavy management loads; poor supervision; poor farmer contact by AOs; andinflexibility. In Sindh, Phase I districts were severely disadvantaged compared to Phase II districts bylack of funding, which affected operation and management of both extension and adaptive researchactivities. Lack of mobility of extension staff, except field staff, was a continuing major constraint,which is worsening as vehicles are not adequately repaired and replaced. Present availability of transportis inadequate to sustain the T&V system, even at reduced intensity. Program reviews in both provincessuggest that in order to reduce the high extension agent/farmer ratio and associated recurrent costconsideration be given to prioritizing target groups and areas for extension investment, and to the roleof the private sector and NGOs.

22. Training. Both provinces have maintained an intensive program of regular training underthe T&V system, which was especially important because of the relatively low level of education andbasic agricultural training of FAs. But while 72% of FAs in Punjab considered training as relevant, 55%of AOs found it inadequate. The programs are very costly to maintain, and their cost-effectivenessrequires close monitoring as it is doubtful that the present intensity is sustainable or essential. Trainingprograms also tended to be repetitive. Program reviews in both provinces" concluded that considerationshould be given to (i) substantially improving education levels of extension workers and farmers,including women farmers; and (ii) monthly training which was more focused on technologies relevant toseasonal campaigns for local farmer groups. Special in-service and overseas training also improvedhuman resource development, although the training schedules were often delayed and too short.

23. Input Supplies. There were a number of external factors which affected the impact of theproject on agricultural production. Farmers interviewed in all districts indicated that a chronic lack ofsufficient and timely inputs, such as credit, fertilizers and good -quality seeds, were restricting their

" Extension Strategy Review Final Report, Department of Agriculture Extension, Sindh, December 1993; andFuture Agricultural Extension Strategy, Agriculture Department, Government of the Punjab, 1994.

adoption of recommended practices. In addition, problems associated with irrigation, drainage, salinityand adulteration of fertilizers and pesticides affected production.

24. Civil Disturbances. A law and order problem existed in Sindh from 1990 to 1993, whichadversely affected the project as it was difficult for staff in a number of districts to carry out their duties.Also, the Local Security Enforcement Agency commandeered project vehicles and buildings during thisperiod.

D. Project Sustainability

25. In the short-term, it seems likely that GOPun will be able to maintain project achievements,in respect to major objectives and strategies, and the plans currently being formulated to ensure furtherimprovements to extension services and adaptive research, but the situation in Sindh is more problematic(para. 34). In both provinces DAs are experiencing temporary delays in the transfer of recurrent projectcosts to their non-development budgets. [See GOS comment in Appendix D.]

26. More important is the long-term ability and willingness of GOPun and GOS to meet salaryand other recurrent costs of a large extension service, the lack of which would seriously affect thesustainability of the T&V system as established, in both provinces. Proposals to include women as AOsand Women Extension Workers (WEWs) will place further pressure on financial sustainability in the longterm. The consequences of budget constraints on extension activities are already becoming apparent:reduced farm visits and contact with farmers, fewer field demonstrations of new technologies and reducednumber of adaptive research trials to test new technologies. Limitations in mobility were the problemmost often cited by extension staff. In Sindh, high rates of staff transfer, apparently as policy, areleading to inefficiency in management and operations. [See GOS comment in Appendix D.]

27. GOPun is committed to complete the buildings for which construction was commenced priorto the credit closing date. There remains a building-deficit in Sindh, as a number of buildings have notyet been handed over to the DA, because they were not constructed according to the originalspecifications, or are in need of extensive renovation due to deterioration while occupied by the SecurityForces. [See GOS comment in Appendix D.]

E. Association Performance

28. The need for a follow-on to the Phase I projects was identified early. However, preparationof the second-phase projects was prolonged. While FAO/CP assisted GOS in project preparation, noexternal assistance was given to GOPun. Ultimately, a joint project for both provinces was appraised.There was thus a 2.5 year gap between completion of the Phase I projects and effectiveness of the PhaseII project. During appraisal it was decided to cover all provincial districts in the project, including thedistricts supported by the Phase I projects. However, continuation in a Phase II project of the conceptsof (i) extension based on the standard T&V model, and (ii) ARFs as the centerpiece for adaptive researchtrials and technology testing, fine-tuning and promotion were serious design faults which should havebeen readdressed at appraisal. By 1987 there was evidence from the Phase I projects and the T&Vexperience of other countries in Asia suggesting the need to modify the traditional T&V model. Inaddition, it must have been apparent in setting up special farms (ARFs) for adaptive research that: mostof the research would continue to be done on these farms; such research would be more applied thanadaptive, and duplicate work at agricultural research institutes; most research would have no involvementof farmers; and research would be insufficiently relevant to the farm situation. Also, input supply, whichcontinues to be a problem, was not identified as a risk in the SAR.

29. IDA supervision missions were reasonably regular and provided sound guidance and supportto implementation. The Resident Mission staff provided additional support between supervision missions,which was appreciated by both provincial governments. The project benefitted from the continuity ofResident Mission staff assigned to the project. The Association actively supported GOS in its plan torevitalize the project after earlier disruptions.

F. Borrower Performance

30. Both GOPun and GOS were also not active enough in preparation of Phase 11, thuscontributing to an unnecessarily long hiatus between this project and the two preceding projects. Thelong delay between credit signing and effectiveness was due to delays in review and approval of theproject by the Executive Committee of National Economic Council (ECNEC), and in the signing ofconsultants agreements. In both provinces, the project was constrained by a shortfall in counterpart fundsand usage of credit funds in the first year. In Puniab, the Extension Wing of DA did a meritorious jobin project implementation. Problems cited by supervision missions which concerned performance inPunjab were: serious delays in the civil works program and procurement of replacement vehicles; slowstart of technical assistance followed by cessation of inputs in January 1989; poor supervision of FAs byAOs; poor farmer contact by AOs; shortfall in appointment of adaptive research staff; and delayedoverseas training. In Sindh, the Extension Wing of DA did a fair job in project implementation, but itstask had at times been seriously constrained by other departments of government. Problems cited bysupervision missions included: serious delays in the civil works program; slow initial appointment of newstaff; severe constraints imposed by inadequate availability of counterpart funds; delays in procurementof vehicles; largely inefficient and ineffective extension and adaptive research activities; lack of funds foroperation and maintenance in Phase I districts; delays in overseas training; and the civil unrest during1990-93. The project made much better progress from 1993 onwards, due in part to more dynamicleadership and managerial capacity.

31. The one-year extension of the credit closing date (from June 30, 1993 to June 30, 1994)was conditional on remedying the above implementation problems. Subsequently, there was a rapidincrease in activity and achievement of physical targets, indicating that the problems had been mostlymanagerial in both provinces, but also due to civil unrest in Sindh. A request for a second extension wasnot approved by IDA because all components, except civil works, were expected to be substantiallycompleted by end of first extension period. The Association's request that emphasis be given to womenin development issues and introduction of a private sector pilot extension program during the one-yearcredit extension was only minimally addressed, but women's involvement is lately receiving considerableattention.

32. Both provinces have conducted and published regular M&E studies for the past six years.These reports were comprehensive and according to guidelines. In Puniab, a number of project M&Estudies was carried out by the M&E cell, while more formal studies were contracted out to PERI (para.7). Published internal reports, covering assessments of the T&V system and impact of the project onfarmer practices were of fair quality, given the lack of experience and training of the officers involvedand the absence of the planned technical assistance for M&E (which would have been very beneficial inaddressing some of the shortcomings in evaluation analysis). In Sindh, it appears that management mademuch greater use of the M&E reports than in Puniab. In both provinces, the reports would have beenof greater value if there had been more focus on evaluation, with reports specifically aimed at: assistingmanagement decisions on the effectiveness of the T&V system; assessing project impact on farmproduction practices; and providing guidance for adaptive research programs.

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33. During project implementation, both GOPun and GOS recognized some limitations in theT&V system but appeared constrained in making any changes. During the one-year extension period,GOS prepared several key documents - Comprehensive Diagnostic Survey; Extension Strategy Review;Adaptive Research Reorganisation; and Training Course for Women - as guides to improve the extensionsystem and to plan future projects. An innovative measure of GOS to improve the relevance and valueof the adaptive research program was to introduce the concept of Village Participatory Research Groups,but since this is a recent step it is too early to judge its impact. Subsequent to project completion,GOPun prepared an agricultural extension strategy paper which proposes a number of modifications toimprove the extension system.

G. Assessment of Outcome

34. The project's outcome in both Puniab and Sindh, in terms of the specific project objectives,is assessed as satisfactory. In Puniab, it is expected that as a result of the project further worthwhiledevelopment will be achieved without additional investment. However, if modifications to the T&Vsystem are not made, budget constraints, lack of breadth of extension coverage, and lack of relevanceof adaptive research would ultimately affect sustainability and impact on agricultural development.Further project assistance in modifying the T&V system would obviously accelerate the move towardsa more cost-effective, efficient and appropriately focused extension service. In Sindh, there is some doubtthat further worthwhile development will occur, unless sufficient budget is provided for operations,maintenance and replacement of capital items, and there is further investment in reorienting anddeveloping the extension services.

H. Future Development

35. The Extension Wings of the DA in both provinces have had excellent task-force reviewsof the present functioning of the T&V system, and a series of modifications have been proposed toimprove working efficiency, effectiveness and approach of the extension services. In both provinces,extensive modifications will need to be made to the original T&V methodology in the light of lessonslearned under the project. Strategy papers for development of extension services have been prepared forboth provinces but have yet to be discussed by the provincial governments. The Extension Wing in Sindhis presently preparing a PC-I proposal for a follow-on project. The Bank has developed a Strategy forSustainable Agricultural Growth in Pakistan" and identified the need for revising the notion of extensionas a top-down supply-driven process. The strategy report suggests that the service needs to be reducedin size and improved in quality. Extension should concentrate more on participatory problem solvingwith farmers -- which means substantially improving education levels of farmers and extension agents.The use of mass media should be expanded and the private sector and NGOs encouraged to increase theirprovision of extension services. Regarding agricultural research, publicly funded research needs to stressgrowth-enhancing public goods, especially research on crop and resource management, where the majorproduct is information (e.g., Integrated Pest Management), and poverty reduction. Joint public-privateresearch ventures should also be encouraged.

" Pakistan - A Strategy for Sustainable Agricultural Growth, Report No. 13092-PAK, November 3, 1994.

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I. Key Lessons Learned

36. The following lessons can be drawn from the implementation and outcome of the projectin the two provinces:

(a) Project success is dependent on management's commitment, leadership, vision, technicalexpertise, managerial and organizational skills. Management training early in the projectcan be a critical input (paras. 6 and 11).

(b) The low education level of FAs limits their capacity to provide comprehensive serviceswhich are responsive to farmers' needs (para. 21).

(c) The large number of personnel with limited capabilities was the result of adopting a staff-intensive program for a large area (para. 6). In the future, an improved extension program(with its associated cost per operating unit) should only be expanded at the rate at whichsuitably trained staff become available to implement it efficiently.

(d) The T&V extension system must be modified to make it more cost effective, more flexibleand targeted, more equitable to all farmers, less top-down, more participatory in thedefinition, testing and refinement of new technologies/on-farm practices, more rigorous inthe diagnosis of constraints within the farming system and in the quantification of theseissues and their feedback to management and research, more strongly linked with research,and more focused on farmer groups rather than on individual contact farmers (paras. 7, 19and 21). Consideration should also be given to prioritizing target groups and areas forextension investment, and to the role of the private sector and NGOs (para. 21).

(e) Within the extension system, there should be more incentives and merit-based promotionalopportunities for front-line extension workers. Their knowledge and skills should besteadily upgraded to meet future demand for a more analytical and responsive service.More emphasis should be given to appointing women extension officers to ensure directinteraction and more specific advice for women farmers (paras. 8 and 22).

(f) Proposed civil works programs must be within the financial and managerial capacity of theimplementing agency, and the government must be fully committed to such a program. Aspecially appointed Director for project civil works is highly desirable where responsibilityfor civil works is outside the control of the implementing agency (para. 17).

(g) Adaptive research should: be concentrated on farmers' fields rather than on stations; notduplicate research done by Research Institutes; be demand-driven; and be designed topermit valid economic comparisons of new technologies with current farmer practices.Close cooperation of farmers in all on-farm trials is important for effective adaptiveresearch and extension-farmer-research linkages (paras. 10 and 20).

(h) Training programs and methods need to be upgraded, both technically and in the use ofmodern adult-learning methodologies. Curricula for FAs and AOs need revision to include:a three-year pre-service diploma course rather than the current two-year certificate leveltraining for FAs; training in extension methods, including group and communication skillsand participatory methods; and training which places more emphasis on problem definition,

- 11 -

problem analysis, survey techniques, and M&E, including informal and self-reflectivemethods (para. 22).

(i) Farmer education programs should be expanded, including special programs for womenfarmers, emphasizing improved knowledge of basic principles and use of information indecision making, rather than providing general recipes (paras. 9 and 22).

(j) Locally produced, low-cost audio-visual materials used on radio and television, and use ofprint media, media vans and information centers have proved to be very effective in bothprovinces. Media services require ongoing monitoring to ensure that they are reaching thetarget audience and that content remains relevant (para. 14).

(k) The importance of M&E, especially the use of appropriate evaluation procedures, to ensureefficient, effective and relevant extension services (and thereby justify budget support) hasbeen reinforced. It is clear that both provincial governments are demanding evidence ofproject impact, managerial competence and effectiveness, and sustainability of services asa condition of continued funding for extension (paras. 11 and 32).

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PART II: STATISTICAL TABLES

Table 1: Summary of Assessments

A. Achievement of obiectives Substantial Partial NeEligible Not ADDlicable

Macro policies i i7 El

Sector policies E O ( F

Financial objectives 7 K] ElInstitutional development ] [E] n]Physical objectives K] OI] EPoverty reduction El O7 K]Gender issues K] EO o] KOther social objectives El E 0 3Environmental objectives K] K] Eo E7

Public sector management El 7O K] K]Private sector development n K] ] Other (human resources dev.) [I E] F]

B. Proiect sustainability Likelv Unlikelv Uncertain(d) () (/)

HighlyC. Bank Rerformance 'l satisfactory Satisfactory Deficient

(/) (d) (V)Identification L K]Preparation assistance O [I

Appraisal O K]Supervision K K]1

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Hi2hlvD. Borrower Performance satisfactory Satisfactory Deficient

(d) ()0 (e)Preparation O : F

Implementation FI [7] EO

Covenant compliance 71 0 E

Operation (if applicable) K] [I] OI

Highiv HighlvE. Assessment of outcome satisfactory Satisfactory Unsatisfactorv unsatisfactory

(11 (WI (V (

K] [71 K] O

" For the purposes of Part II, "Bank" includes IDA; see World Bank Operational Manual,OP 13.55 1 BP 13.55.

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Table 2: Related Bank Loans/Credits

Loan/credit title Purpose Year of Statusapproval

Preceding operations

1. Punjab Ext. & Agric. To introduce "Training & Visit" 1978 Closing date JuneDevelopment (T&V) system of agricultural 1985; PAR(Cr. 813-PAK) extension in five core districts of issued June 1988

Punjab Province.

2. Sind Agric. Ext. & Adap. To introduce T&V system in five 1979 Closing date JuneRes. core districts of Sind Province by 1985; PAR(Cr. 922-PAK) increasing extension staff, providing issued June 1988

regular training and relevantproduction of messages for farmersand establishing research farms, twosoil testing laboratories and pestscouting service in one district.

3. Agric. Res. I To strengthen Pakistan's agricultural 1981 Closing date(Cr. 1158-PAK) research system by (a) supporting Dec. 1987; PAR

establishment of PARC (b) providing issued Dec. 1990technical assistance (c) staff training(d) research on crops, livestock,agricultural engineering andeconomics at NARC (e) contractresearch system for provincialinstitutes and (f) improving supportservices.

4. Baluchistan Agric. Ext. & To achieve increases in sustainable 1984 Closing date JuneAdap. Res. III agricultural production in four 1992; PCR(Cr. 1533-PAK) districts of Baluchistan Province issued Apr. 1994

through strengthening T&V systemand widespread adoption of improvedfarming practices by farmers.

Following operations

1. Agric. Res. II To improve and strengthen research 1990 On-going;(Cr. 2154-PAK) capabilities in provinces; consolidate expected closing

achievements under Agric. Res.I; date June 1998support high priority researchprograms; and improve andstrengthen research/extensionlinkages.

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Table 3: Project Timetable

I ~~~~~~~Date actual/Steps In project cycle Date planned latest estimate

Identification (Executive Project Summary) October 1983"June/July 1984 21

Preparation November 1984 31

July 19854/

Appraisal Jan./Feb. 1986 Jan./Feb. 1986

Negotiations October 1986 November 1986

Letter of development policy (if applicable) n.a. n.a.

Board presentation Jan. 1987 Feb. 24, 1987

Signing March 20, 1987

Effectiveness May 1987 Nov. 6, 1987

First tranche release (if applicable) n.a. n.a.

Midterm review (if applicable) n.a. n.a.

Second (and third) tranche release (if applicable) n.a. n.a.

Project completion December 31, 1992 n.a.

Credit closing June 30, 1993 June 30, 1994 5/

)Originally considered as a Second Extension Services Project to cover Punjab, N.W. Frontier andBalochistan provinces, not Sindh Province. IDA mission reviewed progress on preparation ofPhase 11 project for Punjab during October 22-30, 1983.

2/ Review of progress on concept clearance for Phase II projects for Punjab and Sindh.

3/ FAO/CP produced Project Brief on Sind Agricultural Extension and Adaptive Research Projectin February 1985.

4/ Government of Punjab completed preparation.

51 Requests for one year extension of closing date to June 30, 1994 were received from GOP onJanuary 30, 1993 (Punjab component) and February 25, 1993 (Sind component) and agreed byIDA on June 28, 1993. Subsequently, it was agreed to keep the credit account open for fourmonths beyond the closing date to accommodate final disbursements.

- 17 -

Table 4: Loan/Credit Disbursements: Cumulative Estimated and Actual(SDR million)

FY87 FY88 FY89 FY90 FY91 FY92 FY93 FY94 FY95

Appraisal estimate 1.69 5.06 11.81 20.24 27.83 32.89 35.50

Actual - Punjab 2.61 3.49 5.77 8.07 10.86 12.32 15.09

- Sindh - 0.70 2.31 3.41 6.15 9.30 11.88

- Total - 2.61 4.19 8.08 11.49 17.01 21.62 26.97 28.88

Actual as % of estimate - 52 35 40 41 52 61 76 81

Date of final December 7, 1994disbursement

Comment: The final closing date was June 30, 1994. The credit account was kept open until October 31, 1994, andthe last disbursement was made on December 7, 1994. The remaining credit balance of SDR 6.62 million wascancelled as of that date.

- 18 -

Table 5: Key Indicators for Project Implementation

Item Unit Appraisal Target at Actual PercentProject Completion Achievement (06/94)

A. PUNJAB

Staff Additions

Management (grade 16 and above) No 179 174' 97

Field Assistants No 245 289 118

Staff Training 2 No 9,870

Buildings (offices, residences, service bldgs.) No 2,4183 1,066' 444

Vehicles Procurement

4-WD, Cars, Pick-ups No 88 158 180

Motorcycles No 371 371 100

Bicycles No 1,934 1,934 100

Tractors No 5 5 100

Consultancy staff-month 38 18 47

B. SINDH

Staff Additions

Management (grade 16 and above) No 85 132 155

Field Assistants No 292 292 100

Staff Training 2 No 1,307

Buildings (offices, residences, service bldgs.) No 819 819' 100

Vehicles Procurement

4-WD, Cars, Pick-ups No 61 89 146

Motorcycles No 141 976 274

Bicycles No 1,053 1,053 100

Consultancy staff-month 72 94 131

While 174 new positions were sanctioned, 45 old positions were abolished, leaving a net gain of 129sanctioned positions of grade 16 and above.

2 No specific staff-month targets were set. Number includes in-service and refresher courses (Punjab9,529 persons; Sindh 501 persons), training in workshops/seminars (Punjab 244; Sindh 708); andforeign training (Punjab 97; Sindh 26).

3 Total number of buildings to be constructed was revised downwards to 2,170 during implementation.

4 An additional 961 buildings in Punjab were near completion by June 30, 1994. Their fullcompletion raises the completion rate from 44% to over 80%.

5 Construction of 84 boundary walls and 2 approach roads, and renovation of 5 buildings at ATISakrand were approved and completed by June 30, 1994, which is additional to the 819 buildingsconstructed. On the other hand, a number of the 819 buildings were not completed according to theoriginal specifications nor have they been handed over to DA (see Part I, para. 27).

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Table 6: Key Indicators for Project Operation

(This table is not applicable to this project)

Table 7: Studies Included in Project

Purpose as definedStudy at appraisal/redefined Status Impact of study

Scheduled Studies

1. Benchmark Survey of Pre-project analysis of the Studies completed Provided basis forPunjab Agricultural extension system, farmers comparison with finalExtension & Adaptive knowledge and practices and PERI studyResearch Project-1l agricultural production in(1987-88) (SAR para. project area in order to4.30) establish baseline indicators

for project impact

2. Evaluation study of Post-project analysis of Studies completed Useful for monitoringPunjab Agricultural impact on project inflows, performance and impactExtension and Adap- effectiveness of T&V of extension systemtive Research Pro- extension system, knowledge under projectject-1l (1994) (SAR and performance of fieldpara. 4.30) staff, farner knowledge and

practices, agriculturalproduction, etc.

Ad Hoc Studies

3. Diagnostic Survey To define agroecological Studies completed Excellent basis forReport, Sindh zones within Sindh province planning future researchProvince to provide framework and and extension activities

basis for all future researchand extension activities

4. Extension Strategy Taskforce used to review Studies completed Useful for planningReview, Sindh performance of Extension future development ofProvince Wing of DA and provide extension and project

proposals for future assistancedevelopment

5. Adaptive Research Taskforce used to review Studies completed A number of proposalsReorganisation and performance of adaptive for reorganization haveStrategy Report, Sindh research activities in Sindh already beenProvince Province and provide implemented

proposals for revitalising thissection

- 20 -

Table 8A: Project Costs */

Appraisal estimate (US$M) Actual/latest estimate (USSM)

Item Local Foreign Local Foreigncosts costs Total costs costs Total

Civil Works 26.06 15.79 - 15.79

Land Acquisition & 0.67 0.32 - 0.32Development

Vehicles 3.50 5.24 - 5.24

Equipment & Fumiture 3.01 2.33 - 2.33

Technical Assistance 1.82 0.08 1.27 1.35

Training 1.78 2.42 0.45 2.87

Recurrent Costs 21.52 23.22 - 23.22

Total Project Costs 46.5 11.9 58.38 49.32 1.80 51.12

Comments:

1. GOS did not maintain records of project expenditure by component and therefore expenditure is presented by line

item.

2. Breakdown of project costs by line item into foreign and local costs is not available from the SAR.

3. Taxes and duties estimated to be US$3.3 million in the SAR; actual taxes and duties not available.

4. Total actual project costs in Rupees as of June 30, 1994, were Rs 1,247.77, or 125% of the appraisal estimate of

Rs 994.5 1million. Due to devaluation of the Pakistan Rupee against the US dollar, actual project costs in US dollars

were US$51.12 million, or 88% of the appraisal estimate of US$58.4 million. Actual project costs for Punjab Province

as of June 30, 1994 were Rs 669.7 million, or 107% of the appraisal estimate of Rs 625.98million - US$27.24 million

or 74% of the appraisal estimate of US$36.75 million. Actual project costs for Sindh Province as of June 30,1994 were

Rs 578.07million or 156% of the appraisal estimate of Rs 371.36 million - US$23.88million or 110% of the appraisal

estimate of US$21.79 million.

Table SB: Project Financing */

Appraisal estimate (US$M1 Actual/latest estimate (US$M) I/

Source Local Foreign Local Foreign

costs costs Total costs costs Total

IDA 30.2 11.9 42.1 37.94 1.80 39.74

Federal/Provincial 16.3 - 16.3 11.38 - 11.38

Governments

TOTAL 46.5 11.9 58.4 49.32 1.80 51.12

1/ Estimated actual project financing in US$ at credit closure (December 7, 1994).

*/ See GOPun comment in Appendix E, part C.

- 21 -

Tabb 9: Ecsxomk Cods ad BeImus

No net present value or economic rate of return was estmated, as such meases are not relevant for thistype of project.

- 22 -

Table 10: Status of Legal Covenants

Agmt Section Covenant Status Original Revised Description of Covenant CommentsType FulfMment FulfIllment

Date Date

DCA 2.02 (b) F OK Open Special Accounts.

DCA 3.01 (a) F OK Provision of funds, etc.

DCA 4.01 (a) F OK Maintain records and accountsfor each implementing agency.

DCA 4.01 (b) F OK Furnish to IDA audit reportswithin nine months from end ofeach fiscal year.

DCA 6.01 (a) E OK Condition of ECNEC approval of project.effectiveness

DCA 6.01 (b) M OK Condition of Appoint Project Director (Civileffectiveness Works) for each Province.

DCA 6.01 (c) M OK Condition of Sign contracts for consultancyeffectiveness services.

PROJ 2.01 (a) E/F/M OK - - Provinces declare theirconmmitment to projectobjectives (Schedule 2 DCA).

PROJ 2.01 (b) E/FIM OK - - Provinces to carry out theProject in accordance withimplementation program setforth in Schedule 2 PROJ.

PROJ 2.05 M OK - - Relieve extension staff of non-extension duties.

PROJ 2.06 F/M OK - - Give incentive payments toinstructors of ATIs.

PROJ 2.07 M OK - - Punjab to train DOA accountingstaff.

PROJ 2.08 M/F ACT On project completion (a) Not fully complied with atoperate and maintain the time of mission visit inextension services provided, October 1994.and (b) make adequatebudgetary allocations.

PROJ

-Sch2 B.5 M OK - Establish Project Coordinatingand Monitoring Committees.

-Sch2 B.6 M/T OK - Maintain existing ProjectReview Committees.

-Sch2 B.7 M/T OK - Establish District AgriculturalAdvisory Committees.

-Sch2 C.8 M/T OK - - Establish Zonal TechnicalCommittees.

-Sch2 D.9 M ACT - - Provinces to provide staff and Mobility hampered in Sindhvehicles according to an agreed Province as vehicles haveschedule. been taken by the law

enforcement agencies.

- 23 -

Agmt Section Covenant Status Original Revised Description of Covenant CommentsType Fulfillment Fulfillment

Date Date

-Sch2 D.10 F OK - - Establish revolving funds forreplacement of motorcycles andbicyles.

-Sch2 D. II F OK - - Provinves to provide for andpay adequate travel/dailyallowances to Project staff.

-Sch2 D.12 F OK - - Provinces to provide adequateO&M funds for Projectvehicles.

-Sch2 D.13 (a) M OK 12/31/87 Provinces to undertakebenchmark surveys.

-Sch2 D.13 (b) M OK Beginning Provinces to furnish quarterlywith quarter progress reports to IDA.ending 09/87

Legend

Covenant Type StatusE - Economic ACT - Needs use of formal remedies to bnng about complianceF - Financial NYD - Not yet dueM - Managerial OK - Covenant complied withT - Technical RVS - Needs to be revised

- 24 -

Table 11: Bank Resources: Staff Inputs

Planned Revised Actual '

project cycle Weeks US$ Weeks Weeks US$

Through appraisal n.a. n.a. n.a. n.a. 29.2 n.a.

Appraisal - Board n.a. n.a. n.a. n.a. 55.2 n.a.

Board - effectiveness n.a. n.a. n.a. n.a. n.a. n.a.

Supervision n.a. n.a. n.a. n.a. 124.1 n.a.

Completion n.a. n.a. n.a. n.a. 17.3 n.a.

TOTAL 225.8

Data from COS.

Dollar budgeting was only introduced in FY94 and therefore costs are not available.

- 25 -

Table 12: Bank Resources: Missions

Performance rating

Number Specialized hmplemen- Develop-Stage of Month/ of Days in staff skills tatlon ment Types of

project cycle year persons field represented status objectives problems

Through appraisal October 1983 7 8 n.a. - - -

June/July 1984 1 4 n.a. - -

November 1984 2 27 A,ECJan./Feb. 1986 3 16 A,EC,T

Appraisal through Board June 1986 1 3 ECapproval 1 6 EC,A

November 1986

Board approval througheffectiveness

Supervision February 1988 2 26 EC,A I I FJanuary 1989 2 10 A,E 3 2 T,F

(Sind)March 1989 2 9 A,E 2 2 M

(Punjab)June 1989 2 5 AXE 3 2 F

(Sind)March 1990 4 16 A,E(2),EC 3 3 T,F

Nov./Dec. 1990 2 18 A,E 3 2 M,F,TOct./Nov. 1991 2 14 A(2) 2 2 M,F,T

July 1992 2 26 A,E 3 3 M,F,TFebruary 1993 2 20 A,E 3 2 M,T

June 1993 1 10 A 2 2 M,TJan./Feb. 1994 2 20 A,E 2 2 M

Completion October 1994 2 18 A,E 2 2 -

A = Agriculturist; E = Extension Specialist; EC = Economist; T = Training Specialist.

Appendix A

PAKISTAN: Punjab and Sind Agricultural Extension and Adaptive ResearchProject (Phase II)

Mission's Aide-Memoire

A. INTRODUCTION

1. At the request of the World Bank, an FAO/CP Mission " visited Punjab and SindhProvinces from 3-20 October 1994 to meet with officials of the Governments of Punjab (GOPun) andSindh (GOS) concerned with the implementation of the above project and to obtain relevant informationfor the preparation of the Implementation Completion Report (ICR) for this project. Meetings were heldwith the Secretaries of Agriculture, Directors General of Extension, staff of the Extension Wings,Planning and Development Departments, and other government officials. Field visits were made toseveral districts in three project areas in both provinces. New facilities constructed under the projectwere inspected and meetings were held with government officials and farmers in these districts.

2. The mission wishes to thank all GOPun and GOS staff involved in the meetings and fieldvisits for giving generously of their time, information and assistance with the preparation of the ICR forthis project. Preliminary findings were presented and discussed at separate wrap-up meetings withGOPun and GOS on 12 and 19 October, 1994, respectively. The views presented in this Aide-Memoirereflect those of the mission and have been amended to take into account points raised in wrap-up meetingswith the GOPun, GOS and final wrap-up meeting with the Government of Pakistan in Islamabad on 21October, 1994. In the following sections, project implementation is reviewed separately for eachprovince.

B. PROJECT IMPLEMENTATION ASSESSMENT

Statement/Evaluation of Objectives

3. The project is the second IDA-assisted project designed to reorganize and strengthenagricultural extension services in both Punjab and Sindh Provinces. The objective was to achievesustained increases in agricultural production in project areas through effective transfer of technologiesmost suited to local agroclimatic conditions and creating a sense of dedication and commitment in theExtension services, by making all staff more accountable to specific assigned duties and objectives. Forthis purpose the project was to complete the strengthening and reorganisation of Extension Services ofPunjab and Sindh Provinces by extending the T&V system to all districts not covered by the Phase Iprojects in each province, while consolidating gains made in districts covered by the first-phase projectand strengthening the adaptive research system.

4. The specific project objectives included:

- reorganisation and strengthening of the Agricultural Extension and Adaptive ResearchActivities in the remaining 23 districts of Punjab and 8 districts of Sindh Provinces notcovered by the Phase I project;

" Messrs. D.A. Ivory (mission leader) and B.J. Gorddard (extension specialist, consultant).

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- strengthening the Agricultural Training Institutes;- strengthening in-service and on-job training of extension staff;- establishing new Adaptive Research Farms and supplying appropriate equipment;- establishing Demonstration Centres/Plots;- providing offices and residences, and furniture, for technical staff of Adaptive Research

Farms, offices and residential buildings for extension staff at district and tehsil/taluka levelsand training halls for in-service training of extension staff and for farmners;

- providing transport to improve staff mobility; and- providing audio-visual equipment to improve communication capacity.

5. The objectives were clear and achievable, important to country, provincial and sectorobjectives and complemented the Bank's Country Assistance Strategy.

Achievement of Objectives

Punjab Province

6. Most of the above objectives were realised in Punjab Province. During the course of theproject, significant increases in crop production occurred. Production increases for the major crops forthe period 1986-89 compared to 1991-94, were 23 % for wheat, 25 % for cotton, 21% for paddy and 13%for sugarcane. The extent to which this was attributable to the project cannot be determined, butdiscussions with selected farmers indicated that they had all benefitted from extension advice in increasingfarm production and family incomes.

7. The T&V system was satisfactorily institutionalised and became operational in all districtsand the project achieved or exceeded the majority of the physical targets set in the SAR (PC-1) by theend of the one-year extension to the project, but not by the original project completion date. Asignificant impact of the project has been on staff and contact farmer skills and knowledge.

8. The increase in staff numbers under the project exceeded target increases, with staffincreases resulting from the creation of new positions for adaptive research, training, extensionsupervision and field assistant staff.

9. Both the regular M&E reports and the surveys conducted by Punjab Economic ResearchInstitute (PERI) indicated that while regular contacts with farmers and adoption of technologies hadoccurred, this had been at an undesirably low level. This was not evidenced by the field mission,possibly due to the shortness of the field visits. The inability of the survey to discern differences betweencontact and non-contact farmers in adoption of new technologies was not consistent with the observationsof the mission and were possibly due to sampling difficulties.

10. A high level of staff training has been achieved, including in-service and refresher courses(9,529 persons), workshops and seminars (244 persons) and foreign training (97 persons). Some of thistraining was, however, considerably delayed, particularly overseas training, thereby not realising the full

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benefit of this training to project implementation and management. In addition, regular fortnightlytraining was held for Field Assistants (FAs). The cost-effectiveness of this training should be examinedas it is doubtful that the present intensity of training is sustainable or essential.

11. The Adaptive Research Farms established under the two project phases are very wellorganized, managed and maintained. A considerable number of on-farm trials and demonstrations havebeen set up under the project. In general, trials and demonstrations have been beneficial for fine-tuningnew technologies and promoting proven technologies. These would be improved if trials anddemonstrations always compared new technologies with existing farmer practices and appropriateeconomic analyses were undertaken.

12. Serious implementation delays occurred with civil works, with only 44% of buildings finallybeing completed by 30 June, 1994, with another 36% near completion at that time. Consultancy inputswere also well below planned targets (47%).

13. Procurement of motorcycles and bicycles was as scheduled, but procurement of 4-WDvehicles and pick-ups greatly exceeded targets (180%). Problems of mobility of field staff (FAs), wasidentified as a continuing major constraint and consideration must be given by the GOPun to providingcredit for hire purchase of motorcycles by FAs.

14. Communication capability has been improved by the purchase of equipment to produceaudio-visual materials for farmers and extension workers. A wide range of materials for radio andtelevision has been produced. The production quality and content of printed materials for farmers hassteadily improved with the use of clear impact points.

Sindh Province

15. Most of the above objectives were also realised for Sindh Province. During the course ofthe project, overall crop production increased for most of the important crops. Production increases forthe major crops for the period 1985-88 compared to 1991-94 for the Phase II districts, were 5% forwheat, 16% for paddy and 73% for sugarcane, while cotton production decreased by 8%. The changesin production for sugarcane and cotton were strongly affected by increased area of sugarcane andconsequent decreased area of cotton. However, yield per unit area was increased for all crops. Theextent to which these increases in production were attributable to the project cannot be determined, butdiscussions with contact and associated farmers in villages where Field Assistants (FAs) were active,indicated that they had all benefitted from extension advice in increasing farm production and familyincomes.

16. The project achieved or exceeded the majority of the physical targets set in the SAR (PC-1)by the scheduled project completion date, except for civil works, which were 89% completed. However,the majority of these civil works were considerably delayed compared with project target of completingcivil works within the first three years of the project. These delays adversely affected projectimplementation and impact. All civil works (819 units) were 'completed' (refer para. 34) by the end ofthe one-year extension to the project.

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17. Incremental staff positions were filled as scheduled. However, a number of Senior SubjectMatter Specialists (SSMSs) have transferred to Research Institutes of the Research Wing of theDepartment of Agriculture (DA) due to more attractive conditions provided under the World banksponsored Agricultural Research Project. Significant staff vacancies were also reported for AgriculturalOfficer (AO) positions in some districts. However, the situation is not clear because of the recentapproval by the Federal Government to sanction a further 250 AO positions in Sindh Province.

18. The T&V system was satisfactorily institutionalised and became operational in all districts.The regular M&E reports indicated that while regular contacts with farmers and adoption of technologieshad occurred, this had been at an undesirably low level and only about 30% of farmers were beingreached by extension. Evidence from the Diagnostic Survey indicated that many of the extensionmessages were not sufficiently focused on problems and constraints experienced by farmers.

19. A reasonable level of staff training has been achieved, including in-service and refreshercourses (501 persons), workshops and seminars (780 persons) and foreign training (26 persons). Someof this training was, however, considerably delayed, particularly overseas training and workshop andseminar programs, thereby not realising the full benefit of this training to project implementation andmanagement. In addition, regular fortnightly training was held for Field Assistants (FAs). It is notedthat the training schedule for FAs in Phases I project areas has already changed to monthly training andPhase II areas would be expected to follow suit now that the project has finished.

20. The excellent training resource that has been developed at Sakrand needs to be furtherconsolidated and strengthened, with the (possible) development of Sakrand as the key provincial centrefor pre-service and in-service extension training. The development of training programs for womenextensionists is commended and has potential for expansion as a major centre for women's development.

21. The construction of buildings at the Pangrio Adaptive Research Farm (ARF) has beencompleted, but has not been handed over to the Department of Agriculture (DA) because the buildingshave not been completed according to specifications. No research staff are now located at this ARF.The early project policy was only to conduct research trials on the ARFs. Throughout Sindh Province,about 150 adaptive research trials were conducted each year on the ARFs during the latter years of theproject. This number was considerably increased during the 1993-94 rabi season with the reorganisationof adaptive research programs to include large numbers of trials in farmer fields with the relocation ofmany Senior Subject Matter Specialists (SSMSs) to district locations. A total of 7,262 demonstrationswere set up during the project. The number of demonstrations during the last two years and on-farmtrials in the last kharif season, however, have declined due to budget restrictions on operational expenses.

22. Consultancy inputs exceeded planned targets (131 %), even though consultancy inputs weresuspended for about two years, due to problems associated with liability of consultants to taxes inPakistan. These consultancies (a total of 94 person months) were beneficial to the development of projectactivities and included assistance to improve extension planning, adaptive research, information andcommunications, diagnostic survey, monitoring and evaluation and development of future strategies forextension development.

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23. Procurement of 4-WD vehicles, cars, pick-ups, vans and bicycles was as scheduled. Small4-WD vehicles were preferred as they were cheaper, but their life is less and maintenance costs arehigher. Procurement of motorcycles, however, greatly exceeded targets. This was a result of theidentification of lack of mobility of field staff (FAs) being a continuing major constraint, even thoughmany had received bicycles under the project, and the agreement of the GOS to provide hire purchaseagreements for FAs to purchase 835 motorcycles during the one-year extension to the project.

24. Communication capability has been improved by the purchase of equipment to produceaudio-visual materials for farmers and extension workers. A wide range of materials for radio andtelevision has been produced. An excellent studio has been established for the production of audiovisualmaterials. The production quality and content of printed and audio-visual materials for farmers has beenvery good.

Overall

25. The design of the project is considered appropriate for achieving the desired objectives atthe time of project planning and the criteria set for judging project achievements were found to begenerally satisfactory.

Major Factors Affecting the Project

Punjab Province

26. Overall, the project was judged to have partially achieved its objectives in Punjab Province.A number of factors contributed to delays in achieving physical targets during implementation, thusresulting in the need for a one-year extension to the project. It was only due to this extension that mostphysical targets were met, with the notable exceptions of civil works and technical assistance.

27. Of the total IDA Credit (US$26.53), US$6.496 million remained unspent at 30 June, 1994,due to: the depreciation of the Rupee against the US dollar; the deletion of 480 residential and servicebuildings from the civil works program; and the under-utilization of the funds allocated for technicalassistance. Total project costs were Rs 669.7 million (US$27.242 million), which exceeded projectestimates by only 7% in Rupee terms but was only 74% of estimated costs in Dollar terms. A four-month extension has been given to 31 October, 1994 to complete disbursements of expenditure incurredbefore project closure.

28. The serious delays in the civil works program, which ultimately led to a downward revisionof building targets, was due to a combination of factors, including: government procedural problems inpreparation and approval of contracts; problems in disbursements of monies, even though special fundswere established; rises in building costs due to inordinately long delays in contract processing; and delaysin construction schedules by contractors. These delays had adverse effects on the operations of theadaptive research farms, extension programs in local areas and on training programs.

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29. The under-utilization of technical assistance was due to disagreements on payment of taxesbetween the GOPun and the contracting agent which led to suspension of activities and then unilateralcancellation of the assistance contract, with only one year of consultancy inputs achieved. While theconsultancy inputs that did occur were beneficial to the training, and to a lesser extent the adaptiveresearch programs, no technical assistance was provided to the Monitoring and Evaluation unit. All threeareas of assistance would have benefitted more from further follow-up assistance.

30. While the committees set up under the project to improve coordination generally functionedsatisfactorily, linkages between agricultural extension, agricultural and livestock research and soil andwater research and extension were not sufficiently strong.

31. There were a number of external factors which affected the impact of the project onincreasing agricultural production. Farmers interviewed in all districts indicated that lack of inputresources, such as credit, fertilizers and good quality seeds, were restricting their adoption ofrecommended practices. In addition, problems associated with irrigation, drainage, and adulteration offertilizers and pesticides also affected production.

Sindh Province

32. Overall, the project was judged to also have partially achieved its objectives in SindhProvince. A number of factors contributed to delays in achieving physical targets during implementation,thus resulting in the need for a one-year extension to the project. It was only due to this extension thatall physical targets were met. While the project has impacted favourably on farm production the degreeof this impact has been constrained by a number of factors.

33. Of the total IDA Credit (US$15.57), US$3.526 million remained unspent at 30 June, 1994,due mainly to the depreciation of the Rupee against the US dollar. Total project costs were Rs578.066million (estimated at US$23.875 million), which was 58% above the original estimated base project costsof Rs366.063 million (although two revisions of project costs were made during project implementation),but only 10% above total estimated costs in Dollar terms. A four-month extension has been given to 31October, 1994 to complete disbursements of expenditure incurred before project closure.

34. The serious delays in the civil works program were due to a combination of factors,including problems associated with site selection and government procedural problems in preparation,processing and approval of contract documents. Security problems (see para. 38) and rising prices alsoadversely affected contractors in constructing buildings. These delays had adverse effects on theoperations of the newly established adaptive research farm and extension programs in local areas. Thecivil works program was accelerated through the establishment of a special project director within theCommunications and Works Department (CWD) in 1991 to monitor the processing of civil works for thisproject. At this time there are several buildings which are not completed according to the originalspecifications (for example, the Pangrio ARF and the district buildings at Dadu) and have not beenhanded over to the Department of Agriculture due to factors beyond the control of the Project. A criticalproblem now exists in completing these civil works as the group responsible for the civil works programunder the project has been disbanded and presumably no further appropriate budget has been allocated

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in this financial year. The quality of construction of buildings could only be considered fair, as there wasinadequate supervision during construction, and maintenance of buildings already appears a problem (thisis the responsibility of the CWD).

35. Both Adaptive Research Farms (ARFs) visited by the mission (Pangrio, Phase II andOderolal, Phase I) were established as a small part of large existing government farms involved in seedproduction and tenant farming. The effectiveness of the adaptive research programs appears compromisedby budget control being administered by the Farm Superintendent and the competing needs for funds forresearch and input supply for tenant farmers.

36. While the commnittees set up under the project to improve coordination generally functionedsatisfactorily, linkages between agricultural extension, agricultural and livestock research and soil andwater research and extension were not sufficiently strong.

37. There were a number of factors external to project interventions which affected the impactof the project on increasing agricultural production. Farmers interviewed in all districts indicated thatlack of input resources, such as credit, fertilizers and good quality seeds, were restricting their adoptionof recommended practices. In addition, problems associated with irrigation, drainage, and adulterationof fertilizers and pesticides also affected production.

38. A local law and order problem occurred in Sindh Province from 1991 to 1993 whichadversely affected the project as it was difficult for staff in a number of districts to carry out theirextension duties and additionally the Local Security Enforcement Agency commandeered project vehiclesand buildings during this period.

Total Project Costs

39. Of the total IDA Credit (US$42.1 million), US$10.022 million remained unspent at 30 June,1994, due mainly to the depreciation of the Rupee against the US dollar, the deletion of 480 residentialand service buildings from the civil works program; and the under-utilization of the funds allocated fortechnical assistance for the Punjab component. Total project costs were Rs1,247.766 million (estimatedat US$51.117 million), which was the same as the original estimated total project cost in Rupee terms,but only 88 % in Dollar terms. A four-month extension has been given to 31 October, 1994 to completedisbursements of expenditure incurred before project closure.

Project Sustainability

Punjab Province

40. It is likely that the GOPun will be able to maintain the achievements generated, in relationto its major objectives and strategies and the plans currently being formulated to ensure furtherimprovements to extension services and adaptive research. The T&V system requires a substantialnumber of field staff. To date incremental staff under the project have not been paid salaries for this

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financial year, as they have not been transferred to the non-development budget, as required by thecovenants of agreement of the project. This places some uncertainty on the financial sustainability of theT&V system. Proposals to include women as AOs and Women Extension Workers (WEWs) will placefurther pressure on financial sustainability. Other sustainability issues relate to the apparent failure toinclude funding for maintenance and replacement of equipment in departmental budgets.

41. The GOPun is committed to complete the civil works program for those building units forwhich construction was commenced prior to the Credit closing date. It would appear, however, that theGOPun is not generally convinced of the value of government investment in staff housing. Whereconsiderable budget constraints exist, it would seem more important to ensure an adequate level ofvehicles and motorcycles, so that staff are able to carry out their duties adequately, than to invest in staffhousing. Limitations in staff mobility were the most often cited problems by extension staff, particularlyin respect to FAs.

Sindh Province

42. There is some doubt that the GOS will be able to maintain the level of achievementsgenerated under the project. The T&V system requires a substantial number of field staff. Whileincremental staff employed under the project have been paid salaries for this financial year, they have notbeen transferred to the non-development budget, as required by the covenants of agreement of the project.The more important aspect is, however, is the ability of the GOS to meet salary costs in the future. Inaddition, operation and maintenance funds for extension activities are extremely limited and there is nofunding for maintenance and replacement of capital items, such as vehicles and equipment, indepartmental budgets. This places considerable uncertainty on the financial sustainability of the T&Vsystem. Proposals to include additional women extension staff will place further pressure on financialsustainability.

43. The consequences of budget constraints on extension activities are already becomingapparent; reduced farm visits and contact with farmers, less field demonstrations of new technologies andreduced numbers of adaptive research trials to test new technologies.

Bank Performance

44. There was an early identification of the need for a follow-on to the Phase I extensionprojects. Preparation of second-phase projects were, however, very prolonged and little assistance wasgiven by the Bank to this process; the FAO/CP ultimately assisted Sindh Province in project preparationbut no external assistance was given to Punjab Province. The Bank could have been more pro-active inaccelerating preparation activities. Ultimately, the project was appraised as a joint project for both Sindhand Punjab provinces. There was thus a 2.5 year lacuna between the completion of the Phase I projectsand the effectiveness of the Phase 11 project. During appraisal it was wisely decided to include allprovincial districts in the project, including the districts supported by the Phase I project in each province.

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45. During implementation the Bank supervisory missions were reasonably regular and providedgood guidance and support to implementation. The local resident Bank staff also provided additionalsupport between implementation missions, which was appreciated by the GOS. The project was furtheradvantaged by the continuity of resident Bank staff assigned to the project.

Borrower Performance

Punjab Province

46. The period of time associated with preparation, appraisal and effectiveness of the projectwas unnecessarily long, leaving a lacuna between the two extension projects. The implementing agencydid a meritorious job in project implementation. However, some deficiencies in Borrower performancewere apparent. The long delay between credit negotiations and project effectiveness was due to 8 monthdelays in the review and approval of the project by the Executive Committee of National EconomicCouncil (ECNEC) and in the signing of consultant agreements. The project was constrained by ashortfall (26%) in provision of counterpart funds and usage of Credit (56%) in the first year. Commonproblems cited by Bank supervision missions which concerned Borrower performance duringimplementation were: serious delays in civil works program, procurement of replacement vehicles; slowstart with technical assistance followed by cessation of inputs beyond 1989; poor supervision of FAs byAOs; poor farmer contact by AOs; shortfall in appointment of adaptive research staff; and overseastraining very delayed.

47. The request for extension of the project by one year was conditional on remedying the aboveimplementation problems. Subsequently, there was a rapid increase in activity and achievement ofphysical targets, indicating that the problems were mostly managerially based. A request for a further(second) extension of the project was not supported because all components, except for civil works, wereexpected to be substantially completed by end of first extension. The request by the Bank for emphasisto be given to women in development issues and introduction of a private sector pilot extension programduring the one-year project extension was only minimally addressed.

48. Project monitoring and evaluation was carried out regularly, with two reports produced eachyear, covering assessments of the T&V system and impact of the project on farmer practices,respectively. These reports were comprehensive and according to guidelines given. Greater value wouldhave been obtained from these reports if there had been a greater focus on evaluation, with report outputbeing more specifically aimed at: assisting managerial decisions on the effectiveness of the T&V system;the impact of the project on changing farm production practices; and providing guidance for adaptiveresearch programs. Although technical assistance was scheduled to assist in the development of the M&Eunit, this did not occur, but would have been very beneficial in assisting with overcoming some of theabove shortcomings in evaluation analysis.

49. The design of the project was based on the T&V system advocated by the Bank at that time.Since then, there has been considerable debate given to the modification of this design to ensure moresustainable financial viability, wider interaction with farmers, use of more modern communication

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systems and extension methodologies, more flexible allocation of staff resources, and less top-downtechnology training which is more responsive to individual farmer needs. During project implementation,the GOPun recognised some of these limitations in the T&V system but appeared constrained in makingany changes. However, subsequent to the completion of the project, the GOPun has prepared a futureagricultural extension strategy which proposes a number of modifications to improve the extension systemin any further project.

50. The GOPun had by project closure complied with all covenants of the Development CreditAgreement, except for the conversion of all incremental staff positions and attendant salaries to the non-development budget, which is implicit in Section 2.08 of the Project Agreement.

Sindh Province

51. The implementing agency (DA) has done a fair job in project implementation, but their taskhas at times been seriously constrained by other departments of government. Some deficiencies inBorrower performance during project implementation are apparent from project documents. Problemscited by Bank supervision missions which concerned Borrower performance during implementation were:serious delays in civil works program; slow initial appointment of new staff; severe constraints imposedby inadequate availability of counterpart funds; delays in procurement of vehicles; extension and adaptiveresearch activities were often indicated to be largely inefficient and effective; poor supervision of FAsand AOs early in project; lack of funds for operation and maintenance in Phase I areas; and overseastraining delayed.

52. The project made much better progress from 1993 onwards, due in part to more dynamicleadership and managerial capacity. The request for extension of the project by one year was conditionalon remedying many of the above implementation problems. Subsequently, there was a rapid increase inactivity and achievement of physical targets, indicating that the problems were mostly managerially based.A request for a further (second) extension of the project was not supported because all components,except for civil works, were expected to be substantially completed by end of first extension.

53. Project monitoring and evaluation was carried out regularly, with two reports produced eachyear, covering assessments of the T&V system and impact of the project on farmer practices,respectively. These reports were comprehensive and according to guidelines given. Greater value wouldhave been obtained from these reports if there had been a greater focus on evaluation, with report outputbeing more specifically aimed at: assisting managerial decisions on the effectiveness of the T&V system;the impact of the project on changing farm production practices; and providing guidance for adaptiveresearch programs.

54. The design of the project was based on the T&V system advocated by the Bank at that time.Since then, there has been considerable debate given to the modification of this design to ensure moresustainable financial viability, wider interaction with farmers, use of more modern communicationsystems and extension methodologies, more flexible allocation of staff resources, and less top-downtechnology training which is more responsive to individual farmer needs. During project implementation,the GOS recognised some of these limitations in the T&V system but appeared constrained in making any

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changes. However, during the one-year project extension phase, the GOS prepared several keydocuments, including a Comprehensive Diagnostic Survey, Extension Strategy Review, AdaptiveResearch Reorganisation and Training Course for Women, as guides to improve the extension system.The GOS also introduced the concept of Village Participatory Research Groups to improve the relevanceand value of new technologies, but as this is a recent innovation it is too early to judge its effectiveness.

55. The GOS furnished quarterly reports on project progress and provided the necessary projectaudits as required. By project closure, the GOS had complied with all covenants of the DevelopmentCredit Agreement, except for the conversion of all incremental staff positions to the non-developmentbudget, which is implicit in Section 2.08 of the Project Agreement.

Assessment of Outcome

56. The project's outcome in both Punjab and Sindh Provinces is assessed as satisfactory as theproject achieved most of its major objectives. In Punjab Province it is expected that as a result of theproject, further worthwhile development results will be achieved without further investment. In Sindhprovince, however, there is some doubt (refer para. 41) that further worthwhile development results willoccur, unless sufficient budget is provided for operations, maintenance and capital item replacement andthat there is further investment in developing the extension services.

Future Development

57. Consideration has been given by the Extension Wings of the Department of Agriculture inboth provinces to the present functioning of the T&V system and a series of modifications have beenproposed to improve the working efficiency, effectiveness and approach to extension services. The WorldBank has a concurrent mission in Pakistan which is considering the future Strategy for SustainableAgricultural Growth in Pakistan. Clearly this will have important implications to the design of futureprojects concerned with agricultural development. Strategy papers for development of extension servicesunder new projects have been prepared separately by the Extension Wings of the AgriculturalDepartments for both provinces but these have yet to be considered by the respective provincialgovernments. The proposed modifications to the present extension systems include the following:

Punjab Province

- changing the focus of extension to farm families rather than individual farmers, with anincreased coverage;

- reducing the frequency of the training and visit schedule to allow better message preparationand more time for farmers to visit the extension agent;

- placing more emphasis for M&E on evaluation and information generation for management;

- inducting women into the extension service;

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developing technologies for specific target farmer groups to ensure more direct applicabilityand adoption;appointing staff specialized in horticulture and soils adaptive research and development;enhancing and involving farmer organisation and Non-Government Organisations inagricultural development;increasing farmer training;establishing contract research grants to universities for post-graduate studies to enhanceresearch-extension linkages;increasing organisational decentralisation to develop autonomy and more comprehensivecoverage within regions;promotion of commercialisation in agricultural extension services; andrationalisation of the administrative structure in the Agricultural Department.

Sindh Province

- changing the focus of extension to target groups in defined agro-ecological zones;- ensuring routine farmer contact for SMSs and AOs in addition to their training and

supervisory roles;- develop a field service executed by a reduced number of better qualified and more

technically competent field staff that could produce substantial savings- inducting women into the extension service;- improve effectiveness of Zonal Technical Committee pre-season and in-season workshops

to ensure better research-extension linkages;- use farmer groups, mass media and mobile vans to increase coverage and cost-effectiveness;- use seasonal campaigns to disseminate the most important "key messages" through on-farm

adoption plots, demonstrations and mass media services;- enhancing and involving farmer organisations, the private sector and Non-Government

Organisations in agricultural development;

Key Lessons Learnt

58. There are a number of lessons to be drawn from the implementation and outcome of thisproject in the two provinces, including:

project success is very dependent on management which has leadership, vision, technicalexpertise, managerial and organisational skills;

the T&V extension system should be modified to make it more cost effective, more flexible,more equitable to all farmers, less top-down, more participatory in the definition, testingand refinement of new technologies/practices on-farm, more rigorous in the diagnosis ofconstraints within the farming system and in the quantification of these issues and theirfeedback to management and research, have stronger linkages with research, and be moretargeted to farmer groups (landlords, foremen, tenants, owner-operators and women);

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within the T&V system there should be more incentives and promotional opportunities forthe front-line extension workers and their base knowledge and skills should becomprehensive and of a reasonably high standard to meet the demand for more site specificadvice and recommendations to farmers;

adequate mobility of front-line extension workers to enable widespread interaction withfarmers is an imperative to ensure viability of extension programs and previous investmentsin improvement of extension services;

proposed programs of civil works must be within the financial and managerial capacity ofthe implementing agency and the government must be fully committed to such a programat appraisal;

the present setup of the ARFs in Sindh Province is unsatisfactory and they should beseparated financially and administratively from the seed production and tenant farms andthe recent move to more on-farm adaptive research is supported; in both provinces adaptiveresearch should be concentrated more on farmers' fields, should not duplicate research doneby Research Institutes, should be demand-driven and should make valid economiccomparisons of new technologies with current farmer practices;

training programs need to be modified to upgrade teaching methods, using adult-learningprinciples, curricula require revision to include training in extension methods, includinggroup and communication skills and participatory methods, and training for FAs shouldprovide more emphasis on problem definition, problem analysis, survey techniques,monitoring and evaluation, including informal and self-reflective methods;

training programs for farmers should be increased and their curricula should emphasizeimprove farmers' knowledge of basic production principles and decision making ability; and

the capacity to produce locally a range of low-cost audio-visual materials, to utilize regulartime-slots on radio and television for programs of interest to farmers and to set-up mediavans and information centres for farmers, all provide very effective pathways of technologytransfer to farmers; media services require ongoing monitoring to ensure that they arereaching the desired target audience and that content is relevant.

13

Appendix B

PROJECT COMPLETION REPORT

PAKISTAN

PUNJAB AGRICULTURAL EXTENSION ANDADAPTIVE RESEARCH PROJECT PHASE-IH

CREDIT NO. 1762-PAK[ Punjab Component ]

2-10-1994

I

PROJECT COMPLETION REPORTPAKISTAN

PUNJAB AGRICULTURAL EXTENSION ANDADAPTIVE RESEARCH PROJECT PHASE-II

(Credit 1762-Pak)

PREFACE

1. This is the Project Implementation Completion Report (ICR) for the PAE&AR Project in Pakistanfor which Credit 1762-Pak amounting to SDR 22.53 million (US$ 26.53 million) was approved on 20-3-1987 and was made effective on 31-12-1987. The Credit closing date was extended by one year i.e. from30-6-1993 to 30-6-1994. Total credit disbursement was 20.03 million against the appraisal estimate of26.53 million US$.

2. The Evaluation Summary and Parts I and III of the ICR have been prepared on the basis of thedata supplied by the Agriculture Department or available in the P&D Department." This reportprimarily covers the Project Components/objectives and the targets viz-a-viz actual achievements. Theimpact evaluation of the project is being prepared and would be released by the Punjab EconomicResearch Institute (PERI) shortly.

EVALUATION SUMMARY

3. This project is the fourth Bank Group loan and credit for the Agricultural Sector in Pakistan. Itis in line with Government objectives to re-organize and strengthen Agriculture Extension Service toincrease agricultural production in Punjab Province.

1. Implementation Experience:4. The objectives of strengthening and re-organization of Extension Services have largely beenaccomplished. However, difficulties were encountered in getting the construction of buildings completedaccording to schedule because of frequent revisions in construction rates and in some cases the site/landacquisitionproblems. Difficulties in establishing Adaptive Farm at D.G Khan were faced because suitableland was not available. Furthermore works at 480 sites could not be taken in hand due to aforementionedproblems. The Foreign consultants engaged under the project unilaterally stopped consultancy serviceand it ultimately resulted cancellation of the agreement w .e. 20-3-1993. The consultants achievement was46 percent.

2. Results:5. The physical and financial targets of the project were fully achieved for all the project component,except the building and consultancy components. Perusal of the Table. 1 reveals a net increase inproduction of major crops, when compared with the production figures of the base period. AlthoughAgricultural production is a function of a number of factors which interact and overlaps to help givingoutput. However this increase in the production in the project area during the post project period (1986-1994) can be attributed to the improvement in the diffusion of proved crop production technology. More

'/ Since the full report is 30 pages long, only the Preface, Evaluation Summary, and Summary of Assessmentsare attached. The full report is available from Asia ISC. SAIAN.

2

precise inferences regarding the socio-economic impact of the project could, however be drawn on thebasis the evaluation study being conducted by PERI.

3. Sustainabilitv:6. Sustainability of Agricultural Extension and Adaptive Research net work with huge recurringliabilities throughout the Punjab (keeping in view the increasing burden on the non-development side ofthe budget for Agriculture sector) would very much depend on the efficient/effective utilization of theexisting staff and the other resources. It would be imperative to delete the undesirable componnent andreduction of expenditures whereas possible. We will have to find the ways and means to make the projectsustainable. It would become difficult to afford a dense net work of public sector. Possibilities will haveto be explored to mobilize the masses, NGOs, and the provision of the extension services on cost sharingbetween extensionists and farmers.

4. Findings and Lessons Learnt:7. Although the project has achieved its most of the physical/financial targets set for thestrengthening and reorganization of extension and Adaptive Research Activities, yet desired results couldnot be accomplished in the areas of adoption rate of better technology and the linkages between extensionand research. The progress on the major component i.e. construction of civil works has been laggingbehind the schedule and resulted in delay in completion of the project. For the future projects, there isa need for improvement in the phasing of the project in such a way that during the initial phase of onetwo years, only nucleolus staff should be provided for arranging the infrastructure, machinery andequipment and other project activities be undertaken under the subsequent phases.

8. Due to the increasing number of development projects being transferred to the non-developmentside every year, it has become necessary to take in to account the recurring liabilities of the projects atthe time of the formulation of the project. There is a need for more active contribution of the farmersand N.G.Os in providing extension services.

9. The role of the World Bank authorities/missions in identification, formulation, financing,appraisal and supervision has been quite satisfactory. However the client Department did not have hada good experience of foreign consultants in the present project.

3

Sunnmary of Assessments

A. Achievement of obiectives Substantial Partial Neglieible Not Applicable

Macro policies [7]Sector policies 7 E i o

Financial objectives [O] G O Institutional development [7] Z ]DPhysical objectives [7[ [j ]7

Poverty reduction [] I [IOGender issues D 7 E E

Other social objectives En] [7] [ OEnvironmental objectives n ] u o

Public sector management 7 E] 0

Private sector development [n Eo o ]Other (human resources dev.) En [7] ED Ei]

B. Proiect sustainabilitv Likely Unlikely Uncertain(1) (el (/)

HighlvC. Bank performance satisfactory Satisfactory Deficient

(I) (/ (/)Identification [O li2Preparation assistance EO EOAppraisal F3 L ]Supervision O EO Ol

4

HiRhlvD. Borrower performance satisfactory Satisfactory Deficient

(d) ('/ (/)Preparation [ [ I

Implementation D 7 i

Covenant compliance [D [7 EDOperation (if applicable) l 1 O

HighlY HighlvE. Assessment of outcome satisfactory Satisfactory Unsatisfactory unsatisfactory

(4 (El (I (

ED I V I

Appendix C

GOVERNMENT OF SINDHAGRICULTURE & WILDLIFE DEPARTMENT

IMPLEMENTATION COMPLETION REPORT (ICR)

OF

SINDH AGRICULTURE EXTENSION & ADAPTIVE RESEARCHPROJECT PHASE-IT (CREDIT-1762 PAK)

[Sind Component 1

FOR

WB/FAO ICR PREPARATION MISSIONOCTOBER 13-20, 1994

DIRECTORATE GENERALAGRICULTURE EXTENSION SINDH

EHYDERABAD

1994

SINDH AGRICULTURE EXTENSION & ADAPTIVE RESEARCHPROJECT PHASE-II.

Sindh Agriculture Extension & Adaptive Research Project Phase-II was conceived as an extensionof earlier project "Sindh Agriculture Extension & Adaptive Research Project" to remaining areas of theprovince. World Bank assisted Sindh Agriculture Extension & Adaptive Research Project (Cr. 922-Pak)was under implementation from July 1980 to June 1985 in five districts namely Hyderabad, Sanghar,Nawabshah, Sukkur and Larkana of Sindh Province.

Following were the main objectives of the project.

- Increasing production of agricultural crops, particularly of major crops by improving their unitarea yield.

- Dissemination of improved production technology in small farmers so as to narrow down gap ofknowledge between innovative progressive farmers and common farmers.

- Strengthening of Agriculture Extension Services and introduction of Training and Visit system toremaining districts of the province.

- Establishment of Directorate of Agriculture Training and strengthening of Agriculture TrainingInstitute Sakrand for improved training facilities.

- Strengthening of Adaptive Research, Infornation, Monitoring and Evaluation components.

Project commenced from January, 1988 (1987-88) at a total cost of Rs.366.063 million (GOSRs. 105.936 & IDA Rs.260.127 million, equivalent to 13.155 million SDRs) for the period of 54 months.Later in May 1991, project Pc-I was modified, extending project life upto June 30, 1993 with revised costof Rs.419.970 million (GOS Rs. 139.483 and IDA Rs.280.487 equivalent to previously allocated 13.155million SDRs). During last year (1993) project Pc-I was again revised, extending project life upto June30, 1994. The revised estimated cost was 563.632 million (GOS Rs. 120.956 million and IDARs.442.676 million equivalent to previously allocated 13.155 million SDRs).

Project successfully completed its scheduled development life on June 30, 1994. Project Pc-IVhas been prepared and submitted to govermnent for allowing to continue project activities on the nondevelopment side. An estimated requirement of funds will be Rs.82.691 million annually, including59.867 million on O&M.

There have been significant progress in achievement of project objectives. Training and VisitSystem of Agriculture Extension have been successfully introduced in whole of the province of Sindh.The lowest level extension field staff i.e. Field Assistant has a fixed fortnightly schedule of field activitiescomprising of two days for training at training centres and six days for visit to contact farmers groupsduring a fortnight. During training sessions, he receives training on the fortnightly messages and thenhe delivers and demonstrates it to contact farmers groups during his visit to them.

Besides this direct contact approach, agricultural information on seasonal and day to day issues isdisseminated regularly through monthly Sindh Zarat, weekly Ahgd= progranmme of Pakistan TelevisionCentre Karachi and daily Zari Pro rammes of Radio Pakistan Hyderabad and Khairpur Stations.

Further, agriculture extension information is also spread through sign & publicity boards, wallchalking along main roads & highways and through leaflets, posters, pamphlets etc.

Apart from above, demonstration plots are kept on farmer's fields to demonstrate impact ofimproved production technologies, crop varieties and cultural practices to farmers on their fields. Specialcrop grow more campaigns, seminars and field days are arranged to make grower more and more awareof current issues and their solutions.

Research programmes addressing farners problems are basic requirement for effective extensionservices, realizing this fact. Adaptive Research farms were established and adaptive research is beingconducted to solve growers site specific problems.

Staff and farmer's training facilities have been strengthened considerably through the establishunentof Directorate of Agriculture Training and enhancement of facilities at Agriculture Training InstituteSakrand. Similarly working of Information and Monitoring and Evaluation components have improvedthrough the additional of project facilities to these components.

Project activities have produced its impact on over all agricultural production of the province ascan be seen from following provincial area and production figures of major crops.

TABLE- I

Area, Production & Yield per ha: of major crops in Sindh before and during the project.

Year Area Production Yield kg/Ha'noo'ha '000 ' MT/Bales

COTTON

1986-87 (BM) 638.30 1304.60 348.00

1987-88 629.60 1374.50 371.001988-89 564.00 1108.00 334.001989-90 561.30 1104.00 334.001990-91 536.60 1125.20 356.001991-92 547.60 1404.00 436.001992-93* 397.30 815.90 349.001993-94 594.90 1517.90 434.00

Average. 547.33 1207.07 373.42Change % (-)14.25 (1 7.48 7.305over BM.

SUGARCANE

1986-87 (BM) 182.70 7906.10 43.30

1987-88 207.10 9574.80 46.201988-89 247.90 13110.50 52.901989-90 250.70 12360.00 49.301990-91 253.00 11155.50 64.681991-92 255.20 14240.40 55.781992-93* 247.90 13556.80 54.671993-94 265.70 15421.00 58.04

Average 246.78 12774.14 54.51Change X 35.07 61.57 25.89over BM.

RICE

1986-87 (SM) 721.00 1548.50 2148.00

1987-88 722.00 1537.00 2129.001988-89 686.00 1436.00 2093.001989-90 685.00 1340.00 2046.001990-91 679.80 1433.40 2108.001991-92 692.30 1487.50 2148.001992-93* 568.70 1272.80 2238.001993-94 702.80 1954.80 2781.00

-3 -

Year Area Production Yield kg/Ha'OOO'ha '000' MT/Bales

Average 676.65 1494.50 2220.42Change % (-) 6.15 t-) 3.49 3.37over SM.

WHEAT

1986-87 (BM) 1036.00 2211.50 2135.00

1987-88 1025.00 2180.00 2127.001988-89 1045.00 2361.00 2259.001989-90 1045.00 2131.00 2039.001990-91 1053.50 2274.50 2159.001991-92 1058.40 2365.30 2235.001992-93 1103.70 2417.90 2191.001993-94* 1105.50 2116.60 1915.00

Average 1062.30 2263.43 2132.14Change X 2.54 2.36 (-) 0.13over BM.

Year 1992-93 was not a normal year for kharif crop due to devastating torrential rains.Considering 1986-87 as a bench mark (BM) year, it will be observed that area under cotton hascontinuously declined and so has production. But now trend has changed and there have been increasein production to the tune of 100 and 200 bales during the year 1991-92 and 1993-94 respectively.Similarly, yield per hectare has also increased from 348 Kg. to 373.42 Kg., an increase of about 7.31percent. Main cause for the decrease of area of cotton crop is heavy attack of pest to this crop. Otherimportant reason is establishment of sugar mills in cotton growing areas. Thus, growers are shifting tosugarcane crop. There have been a 35 percent increase in area of sugarcane crop since 1986-87.Correspondingly, production has registered an increase of about 61.57 percent and yield per hectare hasgrown to about 26 percent.

Area under rice crop has decreased to the extent of 6.15% compared to year 1986-87. This isagain due to shifting to sugarcane crop particularly in lower Sindh. However, production has declinedto 3.49 percent only; mainly because of improvement in yield per hectare, which has increased from 2148Kg/h in 1986-87 to 2220.42 Kg/h, an increase of about 3.37 percent.

Wheat area is continuously increasing since 1987-88. Increase being about 2.54 percent overbench mark (1986-87). Similarly production has also increased to the extent of 2.36 percent. Productionhas been increasing since 1990-91. Year 1993-94 was a exceptional year for wheat crop due to acuteshortage of irrigation water during late growth and maturity period, which resulted in reduction in yieldper hectare of the crop and over all decrease in production. Other wise yield per hectare of wheat crophave also increased (1.56%) over the bench mark year.

There has been improvement in the production of other crops also. This clearly indicate thatproject has made impact on the agricultural productivity of the province.

Other physical achievements of the project are as follow:

Staff Addition.

Through the project, following staff positions have been added in the provincial AgricultureExtension Services.

- 4 -

TABLE-2

Staff Position.

Sr: Position. PS Number Filled Vacant TotalNo:

1. Director Trg: 19 1 1 - 12. DD Information 18 1 1 - 13. DD Training. 18 1 1 - 14. Vid:Prod:Officer 18 1 1 - 15. System AnaLyst. 18 1 1 - 16. DD Agr:Ext. 18 6 6 - 67. SSMS. 18 3 3 - 38. ADA Ext. 17S 8 8 - 89. SMS. 17S 14 14 - 1410. Sr:Instructor. 17S 4 4 - 411. AD (Radio Prog) 17S 2 2 - 212. Asstt:Stat:Officer. 17S 1 1 - 113. Asstt:Dir:Trg: 17S 2 2 - 214. Agri:Officer. 17 42 42 - 4215. Information Officer. 17 1 1 - 116. Radio Prog:Officer. 17 1 1 - 117. Programmer. 17 1 1 - 118. Asstt:Trg:Officer. 17 2 2 - 219. Video Prog:Officer. 17 1 1 - 120. Research Officer. 17 1 1 - 121. Video Camera Man. 16 2 2 - 222. Video Technician. 16 3 3 - 323. Enumerators. 16 3 3 - 324. Office Supdt. 16 17 17 1725. Statistical Investg: 16 13 13 1326. Stenographer. 15 7 7 - 727. Artist/Designer. 13 2 2 - 228. Stenotypist. 12 15 15 - 1529. Photographer. 12 2 2 - 230. Office Assistant. 11 24 24 - 2431. ELectrician. 7 1 1 - 132. Plumber. 7 1 1 - 133. Senior Clerk. 7 10 10 - 1034. Inform:Van Operator. 7 1 1 - 135. Van Driver. 6 2 2 - 236. Van Operator. 6 2 2 - 237. Field Assistant. 6 292 292 - 29238. Jr:Clerk/Pf:Rd: 5 22 22 - 2239. Jr:Clerk/typist. 5 2 2 - 240. Computing Clerk. 5 3 3 - 341. Inform:Van Driver. 4 2 2 - 242. Driver. 4 41 41 - 4143. Tractor Driver. 4 1 1 144. Cook/Gardener. 3 4 4 - 445. Kitchen Helper. 1 3 3 - 346. NQ/HeLper/Watchman. 1 43 43 - 4347. Beldar. 1 44 44 - 44

Total: - 656 656 - 656

Civil Works.

Through this project 819 building units have been constructed all over the province. The detailsare as follow:

TABLE-3

Position of Civil WorIss.

Sr: BuiLding Completion year. TotalNo: type. --------------------------------------------------- Units.

87 88 89 90 91 92 9388 89 90 91 92 93 94

1. DG Office. - - - - - - - 12. Trg:Unit. - - - - - 1 - 13. Trg:Centre. - 2 3 10 3 - 2 204. ADA Office. - 2 4 8 3 - 3 205. AO Office. 3 2 3 11 15 9 3 U6. FA Office. - 3 7 47 366 228 72 7237. ARF Complex. - - - - - 1 - 18. DDAE Resid: - 1 1 3 - 2 79. Renov:of - - - - - - 5 5

build:2 ATISakrand.

10. Bound:Wall. - - - - - - 84 8411. Approach - - - - - - 2 2

Roads.

Total: 3 10 18 79 387 239 174 910

Transgort

Transport as listed below have been procured through the project:

TABLE-4

Procurement of Trnsport.

Sr: Transport Year of Procurement. TotalNo: type. ------------

86 87 88 89 90 91 92 9387 88 89 90 91 92 93 94

1. Car. - 04 01 - - - - - 052. Jeeps. 12 15 11 03 - - - 413. Pickups. 09 - - - - 28 - - 374. Micro Bus. - 01 - 01 - - - 025. Trg: Van. - - 01 - 01 - - - 026. Inform.Van. - - 01 - 01 - - 027. Motorcycles. 25 30 - 86 - - 835 - 976S. Sicyles. 146 342 - 565 - - - 1053

Total: 180 389 18 97 571 28 835 - 2118

Maclbinar & Eaiu]ents.

Following machinary and equipment items for various project component have been procured:

- 6 -

TABLE-5

Procurement of Machinary and Equipment.

Sr: I t e m s: Year of Procurement. TotalNo: --------------------

86 87 88 89 90 91 92 9387 88 89 90 91 92 93 94

1. ATI Equip: 02 03 01 01 01 13 258 07 2862. ARF Equip: 17 - 18 01 03 529 04 - 5723. Trg:Equip: 90 37 16 38 06 203 57 - 4474. Media Equip: - 12 04 04 08 41 129 23 2215. Office Equip: 54 11 12 17 10 11 09 - 1346. Other Equip: - - - - 01 09 02 - 12

Total: 163 63 61 61 29 806 463 34 1672

FurmitureTABLE-6

Funiture procured.

Sr: Particulars Year wise procurement of Sets. TotaLNo: --------------------------

86 87 88 89 90 91 92 9387 88 89 90 91 92 93 94

1. DG Office: 01 2.5 - - - - 3.52. Trg:Centre: - 03 - 02 - 06 05 - 163. DDA&ADA Office - 02 - - - 05 10 - 174. AO Offices: - 5.5 - - - 15.5 15 - 365. FA Offices: - 93 40 41 06 80 324 - 5846. ARF & PD (C&W) - - - - - 01 01 - 02

Total: 01 106 40 43 06 107.5 355 - 658.5

Technical Assistance

Project provided service of foreign and local experts/ consultants on the discipline & period asgiven in the table.

TABLE-7

Procurement of Technical Assistance.

Sr: Subject: Man-Month ProcurementNo:

1. Extension PLanning. 38.502. Formal & informal training. 13.003. Adaptive Research. 19.654. Information. 5.005. Monitoring and Evaluation. 4.006. Survey. 3.507. Farming system. 3.008. Extension Strategy. 0.359. Supervisory. 3.0010. Local. 3.00

Total: 94.35

7a-

Besides fortnight training of field staff, following trainings were conducted locally and overseas.

TABLE-8

Trainigs

Sr: Subject: NumberNo:

1. Overseas. 26

2. Inland:a) Short Courses: 205b) Special: 167c) ATI Sakrand: 120

3. Consultants: 09

4. Seminars/Workshops.a) Lady Extension Workers & Farmers. 110b) Post Harvest Techniques. 365c) Water User's Associations. 102d) Demonstration & Exhibitions. 203

Totat: 1307

Appendix D

IMPLEMENTATION COMPLETION REPORT

PAKISTAN

PUNJAB AND SIND AGRICULTURAL EXTENSIONAND ADAPTIVE RESEARCH - PHASE II PROJECT

(Cr. 1762-PAK)

COMMENTS FROM GOVERNMENT OF SINDHON FINAL DRAFT ICR

DIRECTORATE GENERAL, AGRICULTURE EXTENSION SINDH, HYDERABAD.

No. DGAES.T.IV(161)/95/720Hyderabad, dated: 6/6/95

To:

The Section Officer (Ext),

Agriculture & Wildlife Department,Government of Sindh,

Karachi.

SUBJECT: PUNJAB & SINDH AGRICULTURE EXTENSION & ADAPTIVE RESEARCH PROJECT

(CR. 1762 PAK) IMPLEMENTATION COMPLETION REPORT (ICR)

Ref'nce: Letter dated May 24, 1995.

Dr. Rashed-ul-Qayyum, Project Advisor, World Bank Resident Missionin Pakistan through his letter dated May 24, 1995 (copy enclosed) has desired

comments on the final draft "Implementation Completion Report".

The final draft copy of "Implementation Completion Report" has been

thoroughly reviewed and concluded that it does not require any comment.

However, clarification with regard to certain paras is submitted as under:

Para-6 ..... .Unfortunately, however, in Sindh a number of Senior Subject

Matter Specialists (SSMSs) have recently transferred to Research

Institutes of the Research Wing of the Department of Agriculture

(DA) due to more attractive conditions provided under the SecondAgricultural Research Project (ARP-II; Cr. 2154-PAK). Significant

vacancies are now also reported for Agricultural Officer (AO)

positions in some districts of Sindh.

Senior Subject Matter Specialists (SSMSs) belonging to ResearchServices have been taken back by the Research Wing to fill the existing

vacancies under Research Services and not due to more attractive conditions

provided and ARP-II Project. Most vacant posts of SSMSs have been filled.

Para-10 ..... The construction of buildings at Karror and D.G. Khan

(Punjab) and at Pangrio (Sindh) has been completed, but at Pangrio

the buildings have not been handed over to DA because they were

not constructed according to specifications. A considerable numberof trials and demonstrations have been set up under the project.

The majority of trials, however, have been undertaken on ARFs, not

in farmers' fields. In general, trials and demonstrations have notbeen useful for fine-tuning new technologies and promoting proven

technologies. In Sindh, the adaptive research program wasreorganized during the one-year extension of the project toinclude, for the first time, large numbers of trials in farmers'

fields, and the relocation of many SSMSs to district locations.

The possession of buildings of Adaptive Research Farm Pangrio hasbeen taken over by the Department. All buildings are now in possession of

Adaptive Research staff posted on the farm.

Para-25 In the short term, it seems likely that GOPun will be able to

maintain project achievements, in respect to major objectives and

strategies, and the plans currently being formulated to ensurefurther improvements to extension services and adaptive research,

but the situation in Sindh is more problematic (para-34). In bothprovinces DAs are experiencing temporary delays in the transfer of

recurrent project costs to their non-development budgets.

Project costs have been transferred to non development budget in

Sindh.

Para-26 ..... In Sindh, high rates of staff transfer, apparently as policy,

are leading to inefficiency in management and operations.

Transfers of officials/officers are made whenever it becomes

necessary in the interest of government work. Recently, Government has

imposed restriction on transfer of officers/officials prior to three years

of service on a station.

Para-27 ..... There remains a building-deficit in Sindh, as a number of

buildings have not yet been handed over to the DA, because they

were not constructed according to the original specifications, or

are in need of extensive renovation due to deterioration whileoccupied by the Security Forces.

Matter regarding completion of under construction building/renovation of buildings was taken up with C&W Department and they havepromised for their completion.

You are requested that above clarifications may kindly be

communicated to Dr. Rashed-ul-Qayyum, Projects Advisor, World Bank Resident

Mission in Pakistan at Islamabad latest by June 10, 1995 as desired by him.

DIRECTOR GENERALAGRICULTURE EXTENSION SINDH

HYDERABAD

CC to:

Dr. Rashed-ul-Qayyum, Project Advisor, World Bank Resident Missionin Pakistan, PO Box No. 1025, Islamabad.

Appendix E

IMPLEMENTATION COMPLETION REPORT

PAKISTAN

PUNJAB AND SIND AGRICULTURAL EXTENSIONAND ADAPTIVE RESEARCH - PHASE II PROJECT

(Cr. 1762-PAK)

COMMENTS FROM GOVERNMENT OF PUNJABON FINAL DRAFT ICR

No. 1015)IDA-I/ 8 5-GOVERNMENT OF PAKISTAN

, S nii MINISTRY OF FINANCE. REVENUE &4 m S S4,-A-12 jX l,&< ECONOMIC AFFAIRS

MIC AFFAIRS & STATISTICS DIVISIONi* (ECONOMIC AFFAIRS WING)

_ _ ,/ |s/411[kIwnahad, the 28th.. 4 .* . .. i9Telearam: ECONOMICTelex ECDIV: 05-634

SECTI O OFFICERPHONE: 826556:

Subject:- PUNJAB AGRECULTURE EXTEN-SION AND ADAPTIVE RESEARCHPREJECT(IDA CREDIT NO.1762-PAK).IMPLfliTATIErN CC%PLETIrN REPORT(ICR).

Dear Mr. Rashidul Qayyum,

Please refer to the World Bank',Iq letter dated

18th May91995 on the above subject.

2. Please find enclosed a copy of the comments/views

of Gnvt. of Punjab mn the evaluation summary and project

iMpla.entatinn awsessment(implenentation completion report)

for further necee-Pry action at your end.

With regards.

Yours sincerely,

A4R MUNIR)

Mr. R-ghidul-Qayyum,Pr'oject -Adviver,World-B Bnk Resident Mission,I slamabad.

PARAWISE COMMENT/VIEWS ON EVALUATION SUMMARY

AND PROJECT IMPLEMENTATION ASSESSMENT

A. EVALUATION SUMMARY.

Item No. Comments

1. Introduction 1. Noted.

2. Project Objectives 2. Noted.

3. Covenants. 3. The Government of Punjab has now

The Government of Punjab had agreed and transferred all

complied with all covenants of incremental staff positions to non-development credit agreement except development budget w.e. fromfor transfer of all incremental staff 1.7.1994.

positions to non-development budget.

4. Implementation Experience and a> Buildings: The C&W Department inResults. view of initial implementation delays

(funding problems) and subsequently

The project undoubtedly played a because of frequent increase in

role in promoting new improved construction rates remained behind

technology. Notwithstanding initial the schedule envisaged in PC-I. On

delays the project achieved and 30.6.1994 the position about

exceeded the majority of physical buildings stood as under:targets set in SAR(PC-I) except for

civil works and technical assistance. Completed = 1066Near completion = 874Total 1940

To be constructed = 2170

b> Consultants: The consultantsunilaterally stopped the consultancy

due to income tax payment problem.

Later on in pursuit of the decisionof Consultant Selection Committee,

the contract was cancelled.

5. Proiect Cost. 5. The total IDA credit and theamount remained unspent as shown,

Of the total IDA credit of 35.5 covers both the Punjab and Sindh

million SDR 6.52 million remained province. It does not specifically

unspent on December 7, 1995 and were mention the amount of credit andcancelled due to depreciation of amount remained unspent for the

rupee against the SDR. Punjab component. It needsclarification from the author of thereport.

Contd ... P/2.

-: 2

6. Key Factors Relating toAchievement of Obiectives.

T&V system: Objectives of T&V 6. The author of the project reportsystem satisfactorily achieved, has based upon the reports preparedconsultancies were limited and by Monitoring and Evaluation unit.delayed, regular contacts with The accuracy of data of M&E reportsfarmers undesirably low level, requires a careful examination ofcontact farmers have significantly sampling methodology.higher crop yields than districtaverage.

7. Traininq Institutes. 7. Noted.

ATIs strengthened, ttaining hallestablished and equipped. These areoperating satisfactorily.

8. Training. 8. The pre-service training to FAsis imparted in ATI. A prescribed

Regular training programmes were syllabus is followed. The in-servicerepetitive and lacking in substance, training is disseminated according toneed to be upgraded for meeting need of agricultural situation (Rabicurrent demands. & Kharif).

Overseas Training.

There was some administrativedelay in finalizing the list oftrainees. However, officers approvedby Government of Punjab/ Governmentof Pakistan for overseas training,received training in differenteducational institutes in U.K., USA,China, Philippines and Netherland.

9. Adaptive Research. 9. Research trials are laid outaccording to approved plan at A.R.

A.R. Farms established. Failure Farm and farmers field. The A.R.to develop essential linkages with Staff maintains rapport with theExtension and other Research extension and other InstitutesInstitutions are a cause of concern. regularly. The Research Staff is

also participating in preparingfortnightly technical messages forthe training/refreshing the knowledgeof field staff.

Contd ... P/3.

-: 3 :-

10. Technical Assistance. 10. A foreign consultancy firm wasengaged which deployed its

Quality of consultancy inputs consultants according to schedule ofranged from satisfactory to the agreement. But due to income taxexcellent. The level of inputs was problem the firm unilaterally stoppedwell below the target. consultancy service after completing

only 17.5 man-months out of 38 man-months. Therefore the target was notachieved.

11. Monitoring & Evaluation (M&E). 11. Noted.

Monitoring & Evaluation of theproject regular and documented by bi-annual reports.

12. Civil Works & Vehicles. a> Civil Works: In view of frequentincrease in construction rate the

Civil works seriously delayed. construction of buildings remainedSeveral buildings were still not behind the schedule. On the close ofcompleted. Despite procurement of the project (30.6.1994) the followingvehicles mobility of extension staff situation regarding buildingswas identified a major constraint. emerged.

Total Buildings = 2170Buildings Completed = 1066Near Completion = 874

For the completion of buildingscategorised as near completion (874),the C&W Department is determining theamount required. After whichG.O.Punjab will be approached torelease the required funds and thebuildings will be completed in duecourse of time.

b> Vehicles: During the last yearof the project 70 vehicles wereprocured and supplied to ExtensionStaff.

13. Communication. 13. Noted.

Excellent progress made indeveloping mass-media.......

Contd .... P/4.

4 :4

14. External Constraints. 14. Noted.

Number of external factorsaffected the impact of the project.

15. Bank Performance. 15. Noted.

Bank supervision missions were

reasonably regular.......

16. Borrower Performance. 16. Noted.

The implementation agencies triedhard to complete the project on

target. Problems like serious delay

in civil works programme, procurement

of replacement vehicles, overseastraining, slow start of technical

assistance.

17. Project Outcome Assessment. 17. Noted. A future strategy

suggesting improvement in present T&VProject outcome assessed as system for agriculture has been

satisfactory. Project achieved most prepared and is under process of

of its specific objectives. Further approval with the Government of the

worthwhile development is expected to Punjab.

be achieved without additionalinvestment. If modifications to T&V

system are not gained sustainabilityand impact on agriculture development

would ultimately be affected.

18. Summary of Findings, Key LessonsLearned and Future Operation.

Important Findings:-

i> Deficiencies in operation. i> Noted.

ii> Low level of education of FAs ii> The A.O. who supervises the FAslimits their capacity to provide is a Graduate/Master Graduate incomprehensive services to farmers. Agriculture. He always guides the

FAs in technical matters to meet therequirements of farmers. The FAs are

also having two years diploma inAgriculture.

Contd ... P/5.

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iii> Weak linkage between Extension iii> The A.R. is maintaining liaisonand A.R. with Extension staff to achieve

the objectives successfully.

iv> Civil works implementation iv> The implementation delays indelays. civil works were due to

frequent increase in construc-tion rates of buildings.

v> Good progress was made in v> Noted.developing mass-media tosupport extension.

Lessons Learned:-

- Project success depends onmanagerial capacity,

- Modification of T&V system tomake it more cost effective,more flexible, more equitable,less top-down, moreparticipatory,

- Prioritizing role of privatesector and NGOs,

- Determining of availability ofhuman resources,

- Upgradation of training methodand curricula,

- Expansion of education ) Noted.programme for farmers,

- More incentives and promotionalopportunities for frontlineExtension worker,

- Civil works programme must bewithin financial and managerialcapacity,

- A.R. should not duplicate

research done by ResearchInstitutes,

- The importance of M&E,specially evaluation bereinforced.

19. Future Development. 19. A document of future AgricultureStrategy in Punjab is under process

A need to modify extension of approval with the Government ofservices recognized and extension the Punjab.strategy paper prepared. This hasyet to be considered by the PunjabGovernment.

Contd ... P/6.

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B. PROJECT IMPLEMENTATION ASSESSMENT (PART-I).

All the items under project implementation assessment have already beendiscussed under the aforementioned, Evaluation Summary.

C. STATISTICAL TABLES (PART-II).

Table No. Title of Table Comments

I> Summary of Assessments. Agreed.

II> Related Bank Loans/Credits. Agreed.

III> Project Timetable. Agreed.

IV> Loan/Credit Disbursements: Agreed.

Cumulative Estimated andActual (SDR millions).

V.7> Key Indicators for Project Agreed.Implementation.

VI> Key Indicators for Project Agreed.

Operation.

VII> Studies Included in Project. Agreed.

VIII> Al: Project Cost. [ The figures reflectedB]: Project Financing. E in the table pertain

Cto the Punjab & Sindh

Provinces. These need)

a Province wise break

(up.

IX> Economic Costs & Benefits. Agreed.

X> Status of Legal Covenants. Agreed.

XI> Bank Resources : Staff Inputs. Agreed.

XII> Bank Resources : Missions. Agreed.

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