INTERNATIONAL WATERS
EXPERIENCE NOTES

http://www.iwlearn.net/experience








2006-008

Lake Chad: Tackling Implementation
Challenges Early On






Abstract: This note covers how the Lake Chad Basin GEF project has responded to initial delays in
project implementation. First, the project identified and address weaknesses in inadequate project
management at the level of the Project Management Unit. Second, the project addressed the need for
more inclusive involvement of the regional basin institution, the Lake Chad Basin Commission (LCBC) in
project implementation, as well as the need to build its institutional and fiduciary capacity. Finally, the
project has improved coordination among the two implementing agencies (World Bank and UNDP), the
executing agency (UNOPS), the regional basin institution (LCBC) and the Project Management Unit
(PMU).



Tracy Hart, thart@worldbank.org
Reversal of Land and Water Degradation Trends in the Lake Chad
Basin Ecosystem
1

---

Lake Chad: Tackling Implementation Challenges Early On

Experience of the GEF sponsored

Reversal of Land and Water Degradation Trends in the Lake Chad Basin
Ecosystem
GEF Project ID: 767, UNDP PMIS ID: 1845, IBRD PMIS ID: 1118, IBRD PO ID: 70252


PROJECT DESCRIPTION
(iii)
Key measurements, TDA and synthetic

basin framework
The project development objective (PDO) is to

contribute to the sustainable management of
The World Bank implements:
land and water resources in the greater
(iv)
Enhanced regional policy initiatives and
conventional basin of lake Chad (including
institutional mechanisms to address
Cameroon, Central African Republic, Chad,
transboundary issues
Niger and Nigeria). The project is designed to
(v)
Donor support mobilized for SAP and
achieve the following three specific objectives:
LCBC plan implementation
(i) build capacity within the Lake Chad Basin

Commission (LCBC) and its national committees
While the UNDP and the World Bank jointly
related to success in its mandate of managing
implement:
land and water resources, (ii) enhance policy
(vi)
Demonstration projects to test
initiatives and transboundary institutional
methodologies, stakeholder involvement
mechanisms to ensure that the member
and implementation modalities. The
countries jointly develop and manage the Lake
World Bank three pilot projects are the
Chad basin's resources, and (iii) conduct a
following: the Lake Fitri pilot, the
transboundary diagnosis analysis (TDA),
Komodougou-Yobe or Hadejia-Nguru
implements pilot demonstration projects,
project, and the Waza-Logone project.
designs a Strategic Action Program (SAP) for
Similarly, UNDP is implementing three
sustainable management of the basin and
pilot projects, two of which have become
mobilizes increased donor interest/support for
'twinned' for smoother execution
implementing the SAP. This sustainable
arrangements: the Lake Chad
management of the resources is expected, in
Shorelines project and the Niger-Chad
the long-term, to reverse the environmental
northern basin project; and, separately,
degradation in the Basin.
the Chad-CAR (Chari) transboundary

project.
This GEF grant is implemented by the World

Bank and UNDP, while UNOPS is the
The sector board approved the project in
implementing agency. The project has a total of
January 21, 2003 and it became effective only
six components. Three out of the six
one year later in January 22, 2004. Given this
components of the project are implemented by
delay, the closing date has been extended till
the UNDP, two components are implemented by
January 2008.
the World Bank, and one component is

implemented jointly by the World Bank and
ISSUES, CHALLENGES AND EXPERIENCES
UNDP.


I. Need to improve project management
The UNDP implements the following three

components:
An initial lag in project implementation

occurred due to inadequate project
(i)
Establishment of Program Management
management and insufficient technical
Unit (PMU) and country lead agencies.
capacities in the PMU; the initial Project
(ii)
Strengthened stakeholder participation
Manager (PM) selected and installed proved
and education, involvement of
to be a stronger technician than manager.
stakeholders through development of

local initiatives.
2

---

An early resolution of logistic problems is equally
without infringing on the responsibilities of the
essential for smooth project implementation in a
PM.
difficult operational environment. Outsourcing to

consulting companies may from time to time be
With such decision-making body embedded
considered. To address the initial lag in project
within LCBC this ensures that all the decisions
implementation and kick-start the project
taken in the project are taken by and on behalf
activities, the implementing agencies hired an
of LCBC. The PMG meets once a week, and on
international consultant (IC), an experienced
an ad hoc basis if needed, to review the issues
GEF Project Manager cum Chief Technical
and proposals prepared by the PMU and take
Advisor (CTA), on a retainer basis to assist the
decisions on them. The PMG chairman is the
resident project management unit (PMU) in
Deputy Executive Secretary of LCBC, who along
reviewing all preparation documents with a focus
with the Project Manager meets with the LCBC
on short-term `implementability', revision of the
Executive Secretary at least twice a month to
Project Implementation Plan, revision of the
brief him on the issues around the project. This
budget, preparing work plans, etc. The same IC
set-up has been tested and proves to be
was kept on a retainer basis to support the PM
effective. Additionally, the PMU will exercise
to build managerial skills and experience.
more managerial responsibility in delegating

activities to seconded staff from the LCBC to the
The more difficult the project's implementation
PMU.
and operational environment is, the more

important it is - and also the more difficult it is -
In order to build capacity, the project will invest
to find highly qualified staff, willing to work in
in more training for LCBC staff through the use
such conditions. In the light of the need for
of the project training budget. A framework for
improved project management, the project also
the specification of this training will come out an
made the difficult decision to hire a new PM with
Institutional Analysis of LCBC, which will include
demonstrated skills in contract management,
an (i) institutional assessment report, (ii) an
human resources, strategic planning, and
action plan for institutional reform, and (iii) a
performance. However, ultimately, this second
resolution at the level of the LCBC Council of
PM did not possess the adequate skills, and the
Ministers, which will lend political support for the
initial PM, who had been reposted to a more
institutional assessment and accompanying
technical assignment, was reinstated.
action plan. This process has been launched

with a workshop on institutional assessment and
II. Need for more inclusive involvement of the
its action plan.
regional basin institution, the Lake Chad

Basin Commission (LCBC) in project
In order to provide more direct financial capacity,
implementation, as well as the need to build
an audit will be executed by a firm of
its institutional and fiduciary capacity.
international standards and funded by the

project. The GEF project will also hire a
The relevant basin institution lacked
Financial Management consultant to assist
ownership of its role in the project. Opinions
LCBC in developing an action plan for fiduciary
diverged as to whether its role should
capacity building, assist with the implementation
include direct project execution, or be
of the recommendations of the audit firm, and
strengthened in the areas of information
conduct training for representatives of the
sharing and knowledge, monitoring of
member countries.
regional basin protocols, and other political

supervisory activities.
Lastly, a special account has been opened for

the regional basin institution by the EA through
To strengthen LCBC's ownership of the project,
signature of a Memorandum of Agreement
two of its staff have been employed by the PMU,
(MOA) in order to sub-execute specific project
while a Project Management Group ­ consisting
sub-components relating to pilot / demonstration
of senior staff of LCBC and the PMU ­ has been
activities.
established to advise and guide the PMU and to

ensure LCBC's full involvement in all project
III. Need to continue coordination between
activities, decision making for the project,
the two implementing agencies (World Bank
submission of documents to the Implementing
and UNDP) and executing agency (UNOPS)
Agencies for no-objection's through LCBC,
of the line of communication with the
3

---

regional basin institution (LCBC) and the
the institution in order to be accepted, and
Project Management Unit (PMU)
thus embarked upon.


Coordination of flow of information as well
REPLICATION
as prioritization of key messages has been

challenging, as there is a project PMU, a
Elements needed for replication include:
partner organization (LCBC), two
· fungibility of funds to bring in additional
implementing agencies (WB and UNDP) and
consultants when necessary and to be able
one executing agency (UNOPS). Most
to restructure the work of the PMU;
informal communication has been through
· open communication and close cooperation
two-way email traffic, cc'ed to all others.
across the implementing agencies and
There has been a need to increase
executing agency, in order to exert needed
communication which gathers all parties in
improvement in functioning at project level;
order to make decisions on issues of mutual
· leverage of Project Implementation Review
interest.
rating of "unsatisfactory" in order to propose

formal project restructuring as an alternative.
Project management performance has
· willingness of the project's management and
significantly improved due to increased
IAs/EAs to be proactive in addressing
management input of UNOPS and daily
problems and making radical changes when
interactions between the Implementing Agency
needed
teams and the Project Management Unit (PMU).


SIGNIFICANCE
The PMU holds monthly telephone conferences

with the participation of the IAs, EA, and the
Project start-up was slow, while project
LCBC. The PMU performs the secretarial and
effectiveness and launch were substantially
facilitation functions, which include preparing
delayed. The above issues in turn affected
and distributing an agenda in advance, and
progress in other areas: PMU logistical set-up,
preparing and distributing meeting minutes. The
initiating flows of funds, effective preparation of
EA will ensure technical connection of all
work plan and budget, etc. Similar projects
parties.
would be well-advised to pre-emptively address

such issues before they delay project
RESULTS AND LEARNING
implementation.


To assist other GEF IW projects that may be
REFERENCES
struggling in terms of delayed implementation,

weak project management, and lack of clarity
For more information on the Lake Chad project,
with regards to the roles of stakeholder
please visit lakechadbasin.org or contact the
institutions, the Lake Chad Basin GEF project
Project Management Unit at
shares the following "lessons-learned":
anadatiega@yahoo.ie . Task Team Leaders for

the project are Abdoulaye Ndiaye (UNDP) and
· Projects should take action to improve
Johan Grijsen (World Bank).
project implementation at an early stage,

without the formality of "project
World Bank external website
restructuring".
http://web.worldbank.org/external/projects/main?
· Strong managerial skills in a Project
pagePK=64283627&piPK=64290415&theSitePK
Manager are critical to working with a
=40941&menuPK=228424&Projectid=P070252
regional basin institution with varying

degrees of capacity and ownership over
Project Appraisal Document
GEF project objectives.
http://www-
· A clearly defined role for the regional basin
wds.worldbank.org/external/default/main?pageP
institution is a pre-requisite to `ownership'
K=64193027&piPK=64187937&theSitePK=5236
and thus to successful project
79&menuPK=64187510&searchMenuPK=64187
implementation.
511&siteName=WDS&entityID=000094946_030
· The `roadmap', or framework, for institutional
10904004780
change must be adapted to the character of

4

---

Lake Chad Basin Commission web site:
www.cblt.org (currently under revision)

KEYWORDS

S Informal Project Restructuring
S Lake Chad Basin
S Joint Implementing Agencies
S Institutional Arrangements
S Project Management



The Global Environment Facility (GEF)
International Waters Experience Notes series
helps the transboundary water management
(TWM) community share its practical
experiences to promote better TWM.
Experiences include successful practices,
approaches, strategies, lessons, methodologies,
etc., that emerge in the context of TWM.

To obtain current IW Experience Notes or to
contribute your own, please visit
http://www.iwlearn.net/experience or email
info@iwlearn.net.
5

---