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1. competence of these firms and the quality of work and should be continued see section 4 2 Feedback from trainees indicates that courses should be expanded for roads and building sites and 10 should include technicians from local governments In addition courses in micro irrigation for consulting firms should be expanded and courses for senior technicians including management should be added to the curriculum Courses should also be made available for sociologists and other employees of consulting firms dealing with community development It is important for low income groups in rural areas to have access to credit to enhance their income earning potential However effective small loan programs are difficult to establish and their impact will remain limited if they operate outside a country s financial markets It is preferable for small loan programs to be integrated within existing financial policies markets and institutions see section 4 1 9 Partner Comments a Borrower implementing agency N A b Cofinanciers N A c Other partners NGOs private sector The following comments have been provided by local governments and private contractors 1 Mr REMI Mayor of the Rural Commune Joffreville Antsiranana The beneficiaries involvement required for the community health center in Joffreville is a bit heavy not in monetary terms but in the amount of animation required and that led to a delay in starting and the
2. Jai eu 12 contrats dont 9 pass s Antananarivo et les 3 restants Toliara Les r sultats sont positifs en g n ral et varient avec le temps et la localit des sous projets Le FID a non seulement contribu au d veloppement de mon entreprise mais a permis galement d toffer les connaissances techniques de notre personnel Sur le plan social le FID nous a permis de cr er des emplois temporaires Ceci est d une importance majeure surtout pour les zones o nous travaillons 7 4 M ANDRIAMIHAJA Pierre Entreprise ECOMET Mahajanga Je f licite le FID d avoir pu depuis 1995 faire la d centralisation c est un grand avantage pour les MPE des provinces de pouvoir soumissionner dans leur r gion Notre souhait est que cette d centralisation soit appliqu e au niveau des r gions Le probl me dans le secteur BTP est qu il n y a pas encore suffisamment de techniciens dignes de ce nom sur le march du travail Notre souhait le FID doit renforcer les formations des entreprises Le FID doit consid rer l anciennet des PME pr s lectionn es qui ont toujours travaill avec lui all gement du dossier de pr s lection exemple rien que le NIF et la Carte professionnelle certificat de bonne relation avec le FID Concernant l apport des b n ficiaires en num raire la proc dure administrative des virements au niveau des CLD est trop lente d o incidence financi re au niveau de la tr
3. i a a Tsiro nomandid A bAndrpmasing amp 7 r Faratsiho Anosibe an Antsirabe 4 4 SE u aro amboi A Fa en zj S a res Mn a can van ant ET ES Ambatotinandrahana TOLIARY PP cud LT x Manja a SV ATanandava mangot FIANARANTSOA oAnkazoabe pr Kt qlvohibe 3 B i EAE i ondrozo Fe 47 en oO Sakaraho TANZANIA Te EN G mes Abs ary Sud gs eg 2 Pi gi SOUTH AFRICA DECEMBER 1994
4. re de relations avec les Communes sont loin d tre n gligeables Il en est de m me en ce qui concerne les ONG D une fa on g n rale leur potentiel ne peut s ext rioriser que par des programmes de formation et des actions pratiques Les projets communautaires test initi s en 1999 sont en ce sens tr s instructifs L implication et la mobilisation des b n ficiaires toutes les phases d un sous projet sont effectives ainsi que l op rationnalit de leurs associations Toujours est il qu au vu des exp riences pass es et r centes la p rennisation des r alisations peut tre une r alit avec l application des proc dures qui se concr tise par l implication des b n ficiaires toutes les phases d un sous projet 36 COMMENTAIRES DES PARTENAIRES M REMI Maire de la Commune Rurale Joffrevile CSB Jotfreville Antsiranana L engagement des b n ficiaires participer la r alisation des apports du CSB Joffreville est un peu lourd Ce n est pas au niveau de l apport qu on a trouv un probl me mais l animation de la population et cela a entra n un retard au commencement et surtout la progression de travail Le Gouvernement n a pris part ce projet CSB Joffreville selon l habitude de la population quand on collabore avec le FID La phis grande chose qu on ne peut pas laisser tomber est l entretien La population comprend maintenant les difficult s pour construire Dem
5. Communes ont b n fici de sous projets sur le projet FID II 22 P rennit des Actions du FID Deux aspects concrets d montrent la p rennit des actions du FID dans le moyen terme Premi rement le FID a recrut un bureau d tudes qui a pr par un manuel d entretien pour les divers ouvrages du FID Ce manuel sera utilis dans le cadre de la formation des groupes communautaires pour leur apprendre sur le tas quelles dispositions ils devraient prendre pour assurer une p r nisation des ouvrages Par ailleurs le FID exige maintenant qu une association d usagers soit cr e et soit pleinement op rationnelle Finalement compte tenu de l acroissement d activit s en mileu rural Madagascar plusieurs entreprises qui ont t cr es pour r pondre des appels d offres du FID ont t attributaires d autres march s sur d autres sources de financement Chol ra Le chol ra est en augmentation Madagascar pendant cette saison des pluies Le FID a pu r pondre tr s rapidement la demande pour les financement des activit s li es la lutte contre le chol ra au niveau des communaut s les plus touch es Le FID est en train de financer la construction ou r habilitation de 81 latrines lavoirs Ces r habilitations ont t faites par des t cherons de la r gion concern e Par ailleurs le FID a appuy la mise en place de comit s de gestion pour ces latrines et appuie aussi des petites campagnes d IEC
6. Etat malgache le bailleur de fonds IDA et le d veloppeur du projet FID Chaque entit partenaire a rempli ses obligations conform ment aux Accords et Conventions d o la s r nit de l atmosph re de travail La composante AGR a toutefois t arr t e en cours de route septembre 1998 28 2 RESULTATS 2 1 Les r alisations physiques sont donn es dans le tableau qui suit Tableau 1 R alisation du PROJET FID It Rubrique Sous projets Sous projets en Mian r ceptionn s travaux au 01 01 2000 Ecoles 358 100 CSB 135 48 AEP Assainissement Autres i TDB Sociales 391 MPI 72 March s Abattoirs Magasin Autres Pistes 120 24 144 Digue de protection 6 6 Bassin versant 1 1 EE o ol TOTALIDB 58 61 178 Micro cr dits Petits cr dits TOTAL AGR NOMBRE TOTAL DE PROJETS Les sous projets en cours d ex cution au 01 01 2000 seront cl tur s avant la fin mars 2000 La rapidit de l ex cution et l extension des r alisations dans 623 Communes sur les 1 400 Communes de Madagascar ont contribu la visibilit et la cr dibilit du FID 2 2 Le volet ASP a vu la r alisation de trente trois s ances de formation ax es sp cialement sur l am lioration des capacit s des partenaires Le tableau suivant donne les sujets du programme Tableau 2 AGR Encadrement technique et financier des projets en micro fina
7. ON OMNA X Gender OH OSU M ON OM _ Other Please specify DT Private sector development OH OSU M ON ONA DT Public sector management OH OSU M ON ONA L Other Please specify 19 Annex 6 Ratings of Bank and Borrower Performance HS Highly Satisfactory S Satisfactory U Unsatisfactory HU Highly Unsatisfactory 6 1 Bank performance XI Lending DT Supervision Overall 6 2 Borrower performance x Preparation DT Government implementation performance DT Implementation agency performance DA Overall Rating O HS Ss O HS S OHS S Rating O HS s OHS S O HS S OHS S _ 20 OU OU OQU OU OU OU OU O HU O HU HU O HU O HU O HU O HU Annex 7 List of Supporting Documents Manual of Procedures Maintenance Manuel Quarterly and Annual Reports Aide Memoire of Project Completion Mission Project Agency s Completion Report 24 R publique de Madagascar Deuxi me Projet de Fonds Social FID IT Cr 2778 MG AIDE MEMOIRE DE FIN DE PROJET Janvier 2000 Introduction ie Madame Eileen Murray charg e des op rations a effectu des visites au FID dans le cadre de la pr paration du rapport d ach vement du projet FID II Les visites avaient pour objectifs de a faire le point sur les indicateurs de performance du FID II b discuter des th mes aborder dans la contribution de l emprunteur au rapport d ach vement et c discuter des modalit s pratiques de fermeture du p
8. progress of the work The Government played no role on the project as is customary for the people in collaborating with FID The main thing that cannot be overlooked is maintenance The population now understands the difficulties in construction Tomorrow it will learn that maintenance will be necessary to ensure the center will stay functioning In my opinion we can count on sustainability through maintenance since the members have already planned for it 2 Mrs RAZAFTIARZAY Jonshon Director of the construction firm MILANTO Antananarivo I had three contracts during the period with DRT and two with DRA Competition was hard because of the large number of participants and because it involved construction Every contract benefited us However small the profit it suited us because FID works are financed autonomously and bills are paid almost immediately In the beginning there were serious difficulties responding to bid requests because the number of documents and details of pricing requested Only after the first contract did we understand the need and importance of these details In general this method brought a lot to us 3 Mr RAYMOND Claude Co Director of the construction firm ORIMBATO Antananarivo My results with FID are good I had 12 contracts 9 in Antananarivo and 3 in Toliara The results were generally positive varying with the time and locality of the sub projects FID not only contributed to the development of my firm but it
9. sur la propret men es par ces comit s de gestion Points en Suspens Les projets communautaires ont bien d marr Il a t convenu que le FID en 2000 n entreprendrait que des projets communautaires et continuerait mettre l accent sur l entretien des ouvrages existants FMG 300 millions doivent encore tre rembours s pour des AGRs Il a t convenu qu au fur et mesure que cet argent serait rembours il serait vers dans le compte sp cial du FID III pour tre utilis pour d autres activit s pr vues dans le FID III En ce qui concerne l audit financier il a t convenu que l audit 1999 se ferait en m me temps que l audit de l exercice 2000 compte tenu du fait que les fonds du FID II seront puis s avant le 30 mars 2000 et donc que l auditeur pourrait commencer ses travaux d but avril 2000 afin d assurer que le rapport soit soumis la Banque Mondiale avant la date butoir du 30 juin 2000 Le FID devrait s assurer que l auditeur est pay avant que les fonds soient puis s ou le cr dit cl tur Il a t convenu que le FID continuerait faire les r ceptions provisoires et d finitives dans les d lais pour s assurer que les projets devant etre r ceptionn s en mars 2000 soient effectu s En ce qui concerne les vieilles voitures et quipements du FID il est fortement sugger que toutes les d marches soient faites pour les transf rer dans les plus brefs d lais la primatu
10. through technical assistance and c elaborate an improved maintenance strategy for FID projects The survey indicated that 49 of sub projects still under contractors guaranties were considered poorly maintained and another 21 were only moderately well maintained These figures improved to 35 poorly maintained and 29 moderately maintained after consultants visited the sites again Sub projects which had been turned over to communities were better maintained 47 poorly and 32 moderately before consultants visits and 26 poorly and 28 moderately after consultants visits Despite improvements after FID efforts the results indicate the difficulty of the maintenance issue Problems in the staffing of health centers and schools also suggest sustainability problems see section 6 2 However FID s consistent efforts to face these problems gives some optimism that better results can be achieved in the future 6 2 Transition arrangement to regular operations Agreements were made with sector ministries that schools and health centers will be properly staffed and FID has entered into Protocoles d accord with them Regional Consultative Committees CCRs which have representation from sector ministries and concerned NGOs have also approved projects and made staffing commitments before appraisal However there have been consistent problems in staffing health centers by the Health Ministry At the time of the mid term review many facilities were no
11. 260 000 DTS a t affect e la cat gorie 1 la fin de 1998 Toutefois celle ci accuse par rapport la r partition initiale un d passement de 1 413 905 DTS tandis que la cat gorie 2 relative P ASP accuse un exc dent de 1 634 530 DTS 30 Ces r sultats d coulent du fait que i les projets d infrastructures Cat gorie 1 tiennent la grande part dans les d penses du FID et ii le financement des BE et ONG a t imput dans la pratique dans la Cat gorie 1 l Accord de Cr dit n tant pas tr s explicite sur ce point 2 5 Le tableau suivant montre le paiement du Fonds de Contrepartie Tableau 4 bis Allocation PIP FID I FONDS DE CONTREPARTIE 4 874 750 4 874 750 6 900 000 6 900 000 10 620 760 10 620 760 8 503 000 en cours 30 898 510 22 395 510 2 6 _L volution du rapport de performance Rapport entre les charges r currentes et le co t total des projets a t satisfaisante de 1996 1999 telle qu elle ressort dans le tableau suivant Tableau 5 Evolution annuelle du rapport de performance Ame 0 1997 1995 1999 15 50 10 83 Le co t du fonctionnement du Projet sauf pour l ann e 1996 ann e charni re des Projets FID I et FID ID reste dans des limites contractuellement raisonnables 2 7 La participation des b n ficiaires l investissement qui se concr tise par des apports en nature en travail en num raires est une r alit Ces apports sont c
12. 3 27 375 000 a 32 3 6 Au 30 09 98 date de son arr t le Programme d appui aux Activit s G n ratrices de Revenu PAGR a permis de i financer 4 559 cr dits pour un montant de 7 3 milliards de FMG et 253 auto emplois et ii cr er 26 600 hommes jour d emplois temporaires et 389 emplois permanents 94 Agences d Encadrement ont eu un chiffre d affaire de 1 2 milliards pour la gestion des conventions de cr dit 240 Agences d Encadrement ont b n fici de deux s ries de formation pour am liorer leurs comp tences Malgr la modicit du co t du programme celui ci fut victime de son succ s du fait qu il ne cadrait plus avec la politique de micro finance initi e nationalement La seule incidence de son arr t sur les actions du FID fut la d mission des Agences d Encadrement et donc une r percussion n gative sur le recouvrement des cr ances 3 7 La composante Appui au Secteur Priv ASP a conditionn largement l obtention des r sultats des deux autres composantes IDB et AGR du Projet Le volume et la qualit de la formation ont eu depuis 1996 des impacts significatifs sur la qualit des prestations des partenaires Qu il s agisse des B E des MPE ou des Agences d Encadrement Le contexte de travail du FID ne peut tre ind pendant de la situation g n rale du pays notamment en mati re de capacit institutionnelle des Communes et de la disponibilit des ressources humaines l ch
13. 3 5 3 4 Revised Components Component b to support income generating activities was dropped from the project in 1998 because it was felt that the small loans program was incompatible with the country s financial sector policies and that this type of initiative could best be managed by financial intermediary institutions see section 4 1 This was not a major restructuring since the funds could be easily allocated to other FID programs through a demand driven process 3 5 Quality at Entry The rapid implementation and disbursement of FID II from effectiveness is an indication of its readiness and quality at entry 27 of credit disbursed in first year Under the SECALINE Project FID had an _ ongoing successful program in two provinces prior to the initiation of the FID II Project By the time of its completion in 1998 the FID component of the SECALINE Project had implemented 348 infrastructure sub projects 36 income generating activities and 10 training sub projects The SECALINE project therefore provided a foundation for program expansion under FID II FID is a non profit organization operating under a Convention between FID and the Government and a Manual of Procedures covering lending criteria model agreements and contracts procurement procedures financial management procedures and administrative procedures Broad participation in FID management and membership involved interested parties at all levels The Board of Directors inclu
14. Public Disclosure Authorized Public Disclosure Authorized Document of The World Bank FOR OFFICIAL USE ONLY Report No 20294 IMPLEMENTATION COMPLETION REPORT CREDIT 27780 ON A CREDIT IN THE AMOUNT OF US 40 MILLION TO THE REPUBLIC OF MADAGASCAR FOR FOR THE SOCIAL FUND II PROJECT May 1 2000 Human Development IV Africa Region This document has a restricted distribution and may be used by recipients only in the performance of their official duties Its contents may not otherwise be disclosed without World Bank authorization CAS FAO FID IDA NGO PCD SECALINE SAR CURRENCY EQUIVALENTS Exchange Rate Effective November 30 1999 Currency Unit FMG franc FMG 1 US 00016 US 1 FMG 6260 FISCAL YEAR 2000 ABBREVIATIONS AND ACRONYMS Country Assistance Strategy Food and Agriculture Organization Social Fund Fonds d Intervention pour le D veloppement International Development Association Non Governmental Organization Project Concept Document Food Security and Nutrition Project S curit Alimentaire et Nutrition Elargie Staff Appraisal Report Vice President Callisto Madavo Country Director Michael Sarris Sector Manager Arvil Van Adams Task Team Leader Eileen Murray FOR OFFICIAL USE ONLY CONTENTS Page No 1 Project Data l 2 Principal Performance Ratings 1 3 Assessment of Development Objective and Design and of Quality at Entry l 4 Achievement of Objective
15. ain elle saura qu il faut entretenir le CSB pour qu il soit toujours fonctionnel A mon avis on peut compter beaucoup sur la p rennisation de cet entretien du fait que les membres ont d j mis un plan d action ce sujet Mme RAZAFIARIZAY Jonshon Directrice de l Entreprise MILANTO Antananarivo J ai pu avoir trois march s pendant cette p riode dont un pour le compte de la DRT et deux pour celui de la DRA Le dossier pourrait tre mieux mais la concurrence est vraiment dure compte tenu du nombre important de participants surtout lorsqu il s agit de b timent Chaque march nous rapportait Et ce b n fice aussi modeste qu il soit cause du moins disant nous convient car un chantier FID poss de une autonomie financi re et le paient des factures est presque imm diat Au d but l on avait prouv des difficult s s rieuses chaque fois qu on r pond des appels d offres lanc s du fait des exigences dont le nombre de pi ces demand es ainsi qu l tablissement des sous d tails des prix C est seulement apr s avoir obtenu le premier march qu on s tait aper u de leur n cessit et de leur importance Nous estimons aussi qu elles pourront tre l origine de la disparition de concurrents peu s rieux En g n ral cette m thode nous a beaucoup apport M RAYMOND Claude Co g rant de l Entreprise ORIMBATO Antananarivo Mon r sultat avec le FID est bon
16. also developed the technical knowledge of our personnel FID enabled us to create temporary employment which is very important especially in the regions where we work 4 Mr ANDRIAMIHAJA Pierre construction firm ECOMET Mahajanga 41 I congratulate FID for having been able to decentralize since 1995 It is a great advantage for the small and medium enterprises in the provinces We hope decentralization is applied at the regional level The problem in this sector is that there are not enough qualified technicians working FID should increase the training of enterprises FID should consider the age of the enterprises preselected which have always worked with it The process of disbursements is too slow which affects the cash flow of small enterprises Strict application of the rules would promote professionalism and be very much appreciated 5 Mr FAROUK Mayor of the Commune of Masomeloka Faritany Toamasina The rural commune of Masomeloka worked with FID in 1999 to construct the Masomeloka Market Generally we have good relations with FID But we deplore nonetheless the difficulties in communication in our region which constrain our communication with FID The municipality is satisfied with the construction of the first lot Unfortunately because of communications difficulties and problems in mobilizing we were not able to finish our contribution for the second lot For this reason FID put off the second lot From the beginning of the
17. ance were risks of a program of this size and scope spread throughout a country as large and as difficult to travel in as Madagascar see section 7 6 In many cases FID lacked the resources to follow up as necessary since it was committed to keeping its operating expenses at 10 of total expenditure It may be more efficient to spend a somewhat higher percentage for operating expense if this can be used to improve community outreach and maintenance It is important to ensure that the FID s activities are in line with the strategies of sector ministries not only at the national level but within the decentralized structure Such coordination is also important within the Bank to ensure that infrastructure construction and maintenance is in line with the programs supported by the social sub sectors in the Bank see section 6 2 A simpler structure to oversee non governmental organizations like FID might help to minimize infighting and political interference see section 5 2 FID was set up to have wide representation from a broad spectrum of groups in order to provide for broad participation and checks and balances However this sometimes led to stalemates and indecision This happened when the Board ceased to function well in 1997 The size and communications problems of Madagascar made it difficult for the Board and the members to come together when necessary Training programs for engineering firms and small and medium contractors have improved the
18. and Outputs 4 5 Major Factors Affecting Implementation and Outcome 6 6 Sustainability 7 7 Bank and Borrower Performance 8 8 Lessons Learned 10 9 Partner Comments 11 10 Additiona Information 12 Annex 1 Key Performance Indicators Log Frame Matrix 13 Annex 2 Project Costs and Financing 14 Annex 3 Economic Costs and Benefits 16 Annex 4 Bank Inputs 17 Annex 5 Ratings for Achievement of Objectives Outputs of Components 19 Annex 6 Ratings of Bank and Borrower Performance 20 Annex 7 List of Supporting Documents 21 This document has a restricted distribution and may be used by recipients only in the performance of their official duties Its contents may not otherwise be disclosed without World Bank authorization Team Leader Eileen Murra TL Unit AFMMG Project ID P035669 Project Name SOCIAL FUND 2 pe Core ICR Report Date May 1 2000 1 Project Data Name SOCIAL FUND 2 L C Number 27780 Country Department MADAGASCAR Region Africa Regional Office Sector subsector SA Social Funds amp Social Assistance KEY DATES Original Revised Actual PCD 04 05 95 Effective 06 25 96 06 25 96 Appraisal 08 15 95 MTR 11 01 98 11 22 98 Approval 09 14 95 Closing 12 31 2000 12 31 99 Borrower Implementing Agency Government of Madagascar Office of the Prime Minister Fonds d Intervention pour le D veloppement Social Fund Other Partners STAFF Current At Appraisal Vice President Callisto Madav
19. ans le cadre des Manuels de Proc dures est reconnu et soutenu dans la pratique par le Gouvernement La g n ralisation des protocoles d action avec les Minist res caract re social peut tre une r ponse aux probl mes de coordination toutefois les ressources humaines peuvent ne pas correspondre aux besoins compte tenu de la multiplicit des actions mener 4 3 Gestion du Projet A la base des r sultats du Projet FID II il faut mentionner la clart des relations et des attributions du Conseil d Administration de Association FID et du Directeur G n ral Ce fut acquis d s le dernier trimestre de l ann e 1996 L autonomie de la structure et une gestion caract re priv ont t des facteurs d cisifs dans la bonne ex cution du Projet Cette gestion priv e a eu comme corollaire le rel vement du niveau de comp tence du personnel et son adh sion aux objectifs du Projet ainsi que la consid ration accord e l efficacit La gestion d centralis e du FID est rendue possible par l existence d un chelon central m me de coordonner et de superviser les activit s et d instaurer une saine concurrence entre les Directions R gionales A travers un programme de travail annuel chaque Direction dans le respect des Manuels des Proc dures est responsable de la r alisation technique de son programme Sur un autre plan la ma trise de l utilisation du compte sp cial et des sous comptes r gionaux es
20. ary contribution 5 Major Factors Affecting Implementation and Outcome 5 1 Factors outside the control of government or implementing agency N A 5 2 Factors generally subject to government control While FID was able to implement the program satisfactorily there were problems at the political level which had to be overcome During the SECALINE project the FID Director General had been removed for political reasons Recruitment of the new Director General involved some political constraints which may have limited the scope of recruitment but this did not seriously affect the outcome of the project A new Director General was appointed as a condition of effectiveness for FID II In 1997 the President of the Board of FID had to resign for political reasons and the Board of Directors did not function well for a year Sub projects requiring Board approval could not be authorized During that time the thresholds for projects requiring Board review were raised to 45 000 for infrastructure project and 90 000 for feeder roads to enable approvals without Board involvement The lack of an effective Board of Directors and a President delayed the mid term review from June to October 1998 5 3 Factors generally subject to implementing agency control The agency contributed to the success of the project by expanding implementation to a national scale managing implementation well FID s management systems have worked well and its increased capacity provide
21. ave at least a 15 economic rate of return in order to qualify for financing Sub projects in income generating activities and support to the private sector were expected to have at least a 20 rate of return As part of the 1999 beneficiary survey ex post economic rates of return were Calculated for rural roads Four roads had economic rates of return ranging from 41 to 349 one had a rate of return of only 3 For small scale irrigation three projects were calculated to have ex post rates of return ranging from 22 to 99 one had a rate of return of only 6 The lower rates in some road and irrigation sub projects reflect political influence in project selection and or poor quality of technical work in some project preparation Since only rehabilitation was undertaken for schools and health centers not new construction these sub projects are assumed to have yielded high economic rates of return although no calculations were made 4 4 Financial rate of return No financial rates of return were calculated for this project 4 5 Institutional development impact Under the project FID expanded its capacity from limited operations in two provinces to much larger scale nationwide operations in six provinces There is now a regional office in each province A monitoring and evaluation system has been established All regional directorates have an e mail and reporting information is transferred to the central directorate in real time This system allow
22. base IDB co t inf rieur USD 50 000 pour les infrastructures sociales et productives co t inf rieur USD 100 000 pour les infrastructures de d blocage sauf approbation pr alable de la Banque mondiale et des Activit s G n ratrices de Revenu AGR Les travaux d infrastructures sont r alis s soit par des micro et petites entreprises MPE des t cherons ou des ONG Le Projet participe la promotion de ces entit s soit directement en finan ant les travaux soit par le biais de la formation concr tis e par un programme d Appui au Secteur Priv ASP 1 3 Le cadre juridique des activit s est r gi par i l Accord de Cr dit de D veloppement entre l Etat Malgache et IDA Cr dit 2778 MAG ii l Accord de Projet entre PIDA et le FID et iii la Convention entre l Etat Malgache et le FID En somme le FID concr tise les objectifs du Projet et g re dans des conditions bien d finies les cr dits allou s par l Etat emprunt IDA et FCP Le co t total du Projet a t estim USD 45 4 millions 100 0 dont le financement se r partit comme suit i USD 40 0 millions sur le compte de PIDA soit 88 1 ii USD 3 6 millions sur le compte du Gouvernement Malgache soit 7 9 et iii USD 1 8 millions sur le compte des b n ficiaires soit 4 0 Le cadre des activit s tait bien d fini ainsi que les attributions et les pr rogatives de chaque entit partenaire savoir l Emprunteur
23. d consulting firms and development of community groups and local NGOs There were also studies i to identify the demand for potential income generating activities to be financed under the project ii to develop a training needs assessment and training plan for contractors and engineering consultants and 111 to complete a diagnostic evaluation of technical and contracting procedures to strengthen implementation of sub projects by contractors and engineering consultants Since the project was to be demand driven exact amounts were not earmarked for each component It was assumed however that most of the funding would be for category a social infrastructure The SECALINE Project Credit 2474 MAG which was approved in March 1993 had included the creation of the Fonds D Intervention Pour le D veloppment FID FID was established as a non profit organization to implement labor intensive works through a delegated contract management system in the Provinces of Antananarivo and Toliary Under SECALINE FID developed the capacity to achieve poverty alleviation and development objectives It acquired the capacity to develop infrastructure sub projects income generating activities and training sub projects This experience provided the foundation for the expansion of FID s activity to all six provinces in the country under the FID II Project Several lessons from the SECALINE Project were taken into account in the design of this project see section
24. ded one representative of the Prime Minister President of the Board the donor community NGOs civic organizations and two elected by members Members comprised a broad spectrum of government NGO private sector and community groups There were also regional advisory committees The Project Agreement stipulated that FID would revise the Manual of Procedures not later than June 30 1996 based on the results of the studies listed above section 3 3 In the end three separate manuals were produced The issue of previous poor quality rural road works was identified and later addressed in the revisions of procedures manuals and through improved training of engineering firms and contractors As a demand driven project FID IT did not have fixed implementation targets but indicative program monitoring indicators were agreed to see Annex 1 A set of agreements and operating procedures was put in place to ensure that this programmatic approach would function smoothly Regional Directors were given the authority to approve sub projects requiring less than US 5 000 from FID the FID Executive Director could approve projects requiring less than US 25 000 and larger sub projects had to be approved by FID s Board of Directors IDA s approval was required for project grants in excess of 50 000 US 100 000 for rural roads It was agreed that annual work programs and budgets would be prepared for review with IDA and that annual technical audits would be carried ou
25. ective and Outputs 4 1 Outcome achievement of objective The FID II Project has had an important impact on poverty conditions By the end of the project 6 1 million person days of temporary employment had been created 121 of target and 1 546 permanent jobs had been created 55 of target FID expanded its program throughout the country At the mid term review there was a decision to spread the program to the poorest most isolated regions A 1999 beneficiary survey of 60 FID financed projects finished before December 31 1997 gives an indication of the program s effectiveness and social impact The survey shows generally positive impacts but the limited sample sizes for each type of project may limit the significance of some of the conclusions 1 In 12 of 15 rehabilitated schools the number of students increased in many cases by 25 to 50 Beneficiaries in all cases indicated that school rehabilitation had been a priority ii In seven of the ten health centers surveyed visits had increased and in all except one case the beneficiaries indicated that the health center improvements had been a priority Impact was dampened by a lack of health personnel see section 6 2 iii The number of beneficiaries of water supply systems increased in all five cases in the sample In four of five cases beneficiaries expressed medium or high satisfaction all considered the projects a priority iv In five of six irrigation projects the irrigated area
26. elon local les impacts sont r els si on prend en compte titre d exemple la possibilit r elle de la population se mobiliser autour d un projet Par son extension le Projet a r ussi r duire la notion d Etat Providence la participation des b n ficiaires l investissement est effective Les actions pour la responsabilisation des m mes b n ficiaires surtout dans la phase apr s projet sont connues et sont en cours de concr tisation Le Projet FID III est en fait ax sur ce point 33 4 EXECUTION DU PROJET 41 Relations avec la Banque Mondiale La Banque Mondiale fut un vrai partenaire non seulement financier mais aussi technique Les relations dans le cadre des Accords ont t caract ris es par leur transparence et la rapidit des r actions i pour les d caissements sauf pour quelques cas sans grande incidence n gative et ii pour les demandes de non objection De par la permanence du Task Manager Antananarivo des mises au point trimestrielles ont pu tre effectu es Dans le cas du FID IT l implication du FID et du Gouvernement dans la pr paration du Projet fut tr s positive Il est fait r f rence notamment au lancement des projets tests communautaires financ s par les Projets FID II et FID III 4 2 Coordination des activit s sur le plan national Le FID est reconnu comme un composant majeur dans la lutte pour la r duction de la pauvret Son autonomie d action et de gestion d
27. es ont t constat es d s les ann es 1998 1999 en mati re d appropriation des sous projets de par une meilleure implication des b n ficiaires et des Communes toutes les phases d un sous projet 3 2 A la phase actuelle les r alisations ont permis l am lioration de l acc s 1 l ducation primaire augmentation du nombre d enfants scolaris s ii la sant les m dicaments existent ainsi que le personnel sanitaire compte non tenu de la qualification de celui ci et ii l eau potable environ 235 000 habitants en ont b n fici Le d senclavement d une centaine de communes rurales a t rendu possible gr ce aux pistes rurales r habilit es L assurance d une r colte stable et ou en augmentation a t constat e dans les zones ayant b n fici d am nagements hydro agricoles Les march s ont r pondu aux besoins de transactions commerciales des producteurs et vendeurs Les points ci dessus concourent cr er les conditions d une croissance locale Les efforts actuels concourent tous la mise en place d associations des b n ficiaires en liaison ou non avec les Communes dans les cas o elles n existent pas encore et qui sont charg es d exploiter les r alisations Sur le volet plus imm diat de la lutte contre la pauvret de 1996 1999 le FID a pu cr er environ 5 000 000 hommes jour d emplois temporaires 3 3 L avanc e est tr s significative en mati re de promot
28. f objective 183 228 7 of objective 967 96 7 of objective 11 071 36 9 of objective Annex 2 Project Costs and Financing Project Cost by Component in US million equivalent BRC Se Equipment Vehicles FID Projects FID Sub Project Consultants TA Training Studies amp Audits Incremental Recurrent Costs Total Baseline Cost Physical Contingencies Price Contingencies 3 Services 0 00 0 00 5 30 0 00 5 30 0 00 0 00 5 30 0 00 5 30 0 00 0 00 2 90 0 00 2 90 0 00 2 60 0 00 2 60 5 Miscellaneous 0 00 0 00 0 00 0 00 0 00 0 00 6 Miscellaneous 0 00 0 00 0 00 0 00 om en Total 1 00 12 20 0 00 45 40 0 90 27 70 11 30 0 00 39 90 14 33 97 27 68 2 69 0 00 30 37 0 00 0 00 0 42 0 00 0 42 0 00 0 00 2 14 0 00 2 14 0 00 0 00 2 06 0 00 2 06 i RE ee NN RE SL 0 a a a aa 0 00 0 00 0 00 0 00 0 00 0 00 0 00 0 00 0 00 0 00 0 00 27 68 7 31 0 00 34 99 Figures in parenthesis are the amounts to be financed by the Bank Loan All costs include contingencies Includes civil works and goods to be procured through national shopping consulting services services of contracted staff of the project management office training technical assistance services and incremental operating costs related to i managing the project and ii re lending project funds to local government unit
29. ficiaires 1 EE so NOMBRE TOTAL DE PROJETS p 385 1645 1997 1998 1999 10 83 9 53 Total 160 086 650 1999 56 459 616 44 276 458 1996 1997 D caissement Projet FID II 8 107 329 51 243 247 Situation au 31 12 99 26 EVALUATIONDE L EXECUTION manne PU PROJET FID M n F vrier 2000 27 PROJET FID II 1 LE CADRE DES ACTIVITES 1 1 Le Projet FID H s ins re dans le cadre g n ral de l ajusternent macro conomique et dans les efforts de l Etat pour r duire la pauvret Il participe ainsi au renforcement des conditions d une croissance durable bas e sur des initiatives communautaires et individuelles en relation avec les collectivit s locales et ou des organismes non gouvernementaux ONG Ces conditions de croissance durable ont pour base le d veloppement des ressources humaines m me de g rer les infrastructures de base IDB mises en place Le Projet uvre sur tout le territoire de Madagascar par le biais de l Association FID structure autonome but non lucratif et reconnue d utilit publique Il est financ par un pr t de VIDA le fonds de contrepartie FCP de l Etat malgache et les contributions des b n ficiaires et a d marr en juillet 1996 1 2 En tant que Fonds Social le FID finance des sous projets identifi s et demand s par des b n ficiaires Ce financement vise la construction ou la r habilitation d infrastructures de
30. he program into new regions The fact that it began disbursing so rapidly is an indication that it was well prepared Bank performance is rated satisfactory 7 2 Supervision The project was supervised by local hire staff and headquarters staff based in the field This contained costs and enabled informal supervision between missions Technical audits by an engineer also complemented Bank supervision and reduced cost Supervision costs were further reduced because Bank staff allocated time to several FID projects at once which were in various stages of preparation and implementation and specialist consultants funded by trust funds were frequently used Annual reviews were carried out with the borrower including a mid term review in 1998 The annual technical audits carried out by an engineer complemented supervision efforts and financial audits were also carried out as planned and reviewed by supervision missions A social impact study of the project at the beneficiary level was made at the end of the SECALINE project A further study was not undertaken until 1999 although the SAR called for them on an ongoing basis It is doubtful however that additional early studies would have affected the implementation of the rest of the project since implementation was proceeding at a rapid pace However these surveys have helped in the _ design of subsequent projects Annual technical audits inspected samplings of FID projects and gathered some of the info
31. iations By December 31 1999 55 training courses had been provided for employees of engineering firms small medium contractors and loan program promoters Since the inception of FID 226 managers and technicians from more than 100 contracting firms and 374 persons from some 80 engineering firms have been trained Participants in FID s training programs have assessed the program s impacts and an impact study of FID training was undertaken as part of the 1999 beneficiary survey Participants were unanimous in recognizing both the impact of the training in winning contracts and in deepening the professionalism of their firms FID represents a significant share in the volume of business of many consulting firms and contractors Many firms have been able to win contracts from other sources as a result of their experience with FID Strengthening the personnel of small and medium contractors especially at technical levels has enabled many firms to develop towards entry into the formal sector A total of 1796 contracts had been made with small and medium enterprises 121 of the target by December 31 1999 The 1 796 FID contracts with small and medium enterprises together with contracts from other sources have enabled many firms to acquire construction and office equipment 4 3 Net Present Value Economic rate of return FID sub projects in economic sectors transport and small scale irrigation are subjected to economic analysis and have been required to h
32. icateurs de suivi sont atteints et d pass s exception faite pour les micro p rim tres irrigu s du fait du nombre des demandes re ues et des emplois permanents cr s du fait de l arr t des AGR 2 4 Le tableau suivant donne la r partition des d caissements par cat gorie de d penses suivant l Accord de Cr dit de D veloppement Tableau 4 D caissements du Projet FID II Cr dit 2778 MAG au 31 12 1999 Cat gorie D caissement Solde es Enr En DIS En USD 1 Travaux et fournitures pour les 19 980 000 27 440 132 40 21 393 905 49 sous projets EE 1 413 905 49 1 909 391 03 2 Services de 2 140 000 2 939 033 20 505 461 87 694 191 22 2 244 841 98 29 349 523 43 consultants et 1 634 538 13 formation au titre des sous projets 3 Assistance Technique formation 1 000 000 1 373 380 00 1 054 179 37 1 447 788 86 54 179 37 74 408 86 et tudes ne 4 Equipement 790 00 od ons 66 4185392 5 Co ts de fonctionnement 1 590 000 2 183 674 20 1 497 850 14 2 057 117 42 iiaa 6 Non allou E 767 576 26 1 054 173 89 485 394 34 666 630 88 7 D p t initial CS 92 149 86 126 556 78 000 0 TOTAL 25 500 000 35 021 190 00 25 523 578 79 35 021 134 14 5 86 Le solde du compte de cr dit de 25 500 000 DTS s l ve a 40 61 DTS au 31 12 99 Il sera utilis totalement durant la p riode de grace La cat gorie non allou e de 1
33. increased In four of these cases double cropping was enabled v The number of vendors increased in 6 of 8 market projects In all cases beneficiaries considered the markets a priority but there was less than full satisfaction with the utilization of the facilities vi All 9 road projects assessed provided improved access to isolated areas 7 of these were considered priorities by beneficiaries The component to promote income generating activities involved loans for agriculture and other productive purposes A separate Manual of Procedures was established for this component after signing FID was to give grants to NGOs called Agences d Encadrement which would lend to beneficiaries Beneficiaries would repay the loans to the NGOs at interest rates stipulated by a benchmark rate of the Central Bank The component got off to a slow start When the benchmark rate of the Central Bank was raised lending rates under the FID program were not increased and the program became inconsistent with Madagascar s financial sector policies To correct this it was decided that loans should be channeled through savings and loan associations At the mid term review in 1998 it was decided to drop this component from the FID program altogether and leave rural credit to other programs The amounts which would have been used for income generating activities by FID were allocated under other components For environment the project was rated C with no significant en
34. intenance support program and is following up to improve the prospects for sustainabillity in future operations 7 7 Overall Borrower performance Given the successful implementation of the project the overall performance of the borrower is rated satisfactory 8 Lessons Learned The lessons learned are being addressed as part of the Community Development Fund and have been incorporated into the PCD for that project Projects designed and managed outside of Government can recruit more competent staff and get better results but they cannot be completely isolated from political influence One way to minimize government influence is by building partnerships with communities and local governments giving them more influence at all stages Direct beneficiary involvement in implementation currently being piloted by FID should also improve the influence of beneficiary communities The proposed Community Action Program being considered for FID IV which would finance a range of infrastructure and services selected by communities would further empower beneficiaries A large commitment to maintenance is essential in this type of program to improve the likelihood of sustainability Using consultants to follow up and animate communities on maintenance issues has helped Maintenance improved after consultant visits but more needs to be done in a program of this scope see section 6 1 Inadequate animation by FID and inadequate results on mainten
35. ion du secteur priv Il a t contract 1 796 march s avec les B E et les MPE Au niveau des provinces le FID a r ussi cr er un tissu d entreprises et de bureaux d tudes m me de r pondre pour l essentiel aux besoins de construction d infrastructures de la r gion La transparence des proc dures de passation de march est une r f rence de la bonne gouvernance et de la libre concurrence au niveau national et r gional 3 4 La technique HIMO Haute Intensit de Main d Oeuvre dans la construction des pistes est de plus en plus ma tris e Elle est b n fique en mati re d emplois et comp titive en mati re de co t L utilisation des mat riaux locaux est mieux comprise ainsi que la n cessit de travaux de qualit 3 5 Toutes choses tant gales par ailleurs le rapport qualit prix des r alisations du FID sont comp titives suivant le rapport de l audit technique externe En moyenne i une salle de classe co te 52 millions de FMG ii une salle de centre sanitaire 27 Millions FMG et iii un kilom tre de piste 62 millions FMG Ces co ts int grent les tudes les travaux et les apports des b n ficiaires Tableau 7 Co t unitaire des projets FID II Etude travaux Apport 22 350 000 56 500 00 59 200 000 41 700 000 70 800 000 44 875 000 23 600 000 57 100 000 52 130 000 26 750 000 61 750 000 53 950 000 24 500 000 62 850 000 59 620 000 25 350 000 63 950 000 TOTAL 52 085 83
36. l gu et des proc dures d un Fonds Social le FID est actuellement en tr s bonne position pour r aliser des Projets Communautaires gr ce un Manuel de Proc dures suffisamment rigoureux et la mesure des objectifs recherch s et surtout gr ce aux exp riences lanc es en 1999 et aux exp riences avec les ONG et les Communes 4 6 Sur la communication Le FID est parmi les Projets les plus cr dibles et les plus visibles dans le pays Gr ce la m diatisation des r alisations et une politique de promotion des meilleurs projets donc des meilleurs exemples et des meilleures pratiques et des meilleurs partenaires La communication est utilis e comme un volet majeur de la mobilisation responsabilisation des b n ficiaires et de la p rennisation des r alisations 35 5 LES ACQUIS ET LES LECONS A TIRER 5 1 Le premier atout du FID est son autonomie accept e et garantie par le Gouvernement malgache et la Banque Mondiale Dans le m me ordre d id es il a su montrer par ses r sultats et sa gestion une certaine id e d une bonne gouvernance dans l ex cution d un Projet La possession d un syst me d information pour la gestion devrait am liorer les performances du Projet 5 2 La participation des b n ficiaires est acquise au niveau des investissements Durant le Projet FID I et au d but du FID II si des lus pr conisaient l allocation directe du cr dit FID aux autorit s provinciales actuellemen
37. nce Nombre de s ances 12 2 par province MPE Gestion d entreprise Gestion de chantier en HIMO Technique routi re en HIMO Recyclage des conducteurs des travaux et chefs de chantier 3 national 4 Antananarivo Majunga Fianarantsoa Toamasina 12 2 par province B E estion des Bureaux d Etudes cadre g rant Techniques des batiments Conception des routes en terre et ouvrages Recyclage des agents de contr le et surveillance Conception des MPI micro p rim tre irrigu 2 national 2 national 3 national 12 2 par province 2 national 29 2 3 Les indicateurs de suivi du Projet sont donn s dans le tableau qui suit Tableau 3 Indicateurs de suivi du Projet FID IT Indicateurs Objectifs R alisation au 1 31 12 99 2 En cours au 01 01 00 3 Pourcentage de r alisation 2 1 2 3 1 Nombre d coles r habilit es 100 333 3 428 5 Nombre CSB r habilit s 48 168 7 228 7 Km pistes rurales 210 75 7 96 7 Ha irrigu s 1 250 32 7 36 9 Ha prot g s 180 9 5 10 6 Hj d emplois temporaires 1 150 000 98 3 121 3 Emplois permanents cr s 55 2 Contrats avec MPE 149 6 Contrats avec t cherons 61 0 Contrats avec ONG 77 2 Objectifs dans le rapport d valuation n 14489 MAG du 12 06 95 de la Banque Mondiale Les r alisations sont a la mesure des efforts consentis et les ind
38. nd fewer than one in three children completed the five year primary school cycle Poverty reduction was a pillar of the Government s development strategy A poverty assessment developed by the Bank and the Government proposed a poverty reduction strategy using a participatory process NGO and community participation was in line with Bank policies and consistent with the need to involve communities both for implementation and for longer term community commitment to maintenance The FID II Project was developed as a complement to the ongoing macroeconomic adjustment process in order to provide important elements of a social safety net program in Madagascar It was an important comerstone of the CAS discussed by the Board on July 18 1994 Its risk was limited since it was a follow on to the successful FID component of the then ongoing SECALINE Project which had strong borrower support 3 2 Revised Objective The objectives were not revised 3 3 Original Components The project components included a construction and rehabilitation of basic infrastructure including schools health centers water supply small irrigation systems rural roads small bridges as well as reforestation and protection of the environment b income generating activities including activities pertaining to the Community Nutrition Program under the Food Security and Nutrition Project and c private sector support programs including training programs for small enterprises an
39. o Edward V K Jaycox Country Manager Michael N Sarris N A Sector Manager Arvil Van Adams Alain Colliou Team Leader at ICR Eileen Murray ICR Primary Author James Wright 2 Principal Performance Ratings HS Highly Satisfactory S Satisfactory U Unsatisfactory HL Highly Likely L Likely UN Unlikely HUN Highly Unlikely HU Highly Unsatisfactory H High SU Substantial M Modest N Negligible Outcome S Sustainability UN Institutional Development Impact SU Bank Performance S Borrower Performance QAG if available ICR Quality at Entry S Project at Risk at Any Time No 3 Assessment of Development Objective and Design and of Quality at Entry 3 1 Original Objective The project objectives as stated in the SAR were to alleviate poverty and support community development through partnership with NGOs and beneficiary communities The project would provide supplemental financing to the Fonds d Intervention pour le D veloppement FID which had been active in the provinces of Antananarivo and Toliary since 1993 The objectives were stated somewhat generally which made the assessment of their attainment difficult However they were appropriate and in line with Government strategy In 1993 54 of the population lived below the poverty line based on 90 of the FAO recommended daily caloric intake plus essential non food items An estimated 92 of the poor lived in rural areas The rural infant mortality rate was 107 a
40. o recognize that the FID team has spent a lot of time training us to manage the project For us the collaboration of FID in the community project has been enriching because there were many new aspects consultation of partners procurement control of works etc FID has been too rigid about the 20 contribution necessary For some months we have been putting money aside to have our maintenance fund Our community already is accustomed to take charge of maintaining its assets If FID plans to develop community projects we hope the 20 deposits will be reduced We also would like project cells to be trained by FID before starting projects 10 Additional Information NA 12 Annex 1 Key Performance Indicators Log Frame Matrix Outcome Im pact Indicators Temporary days of employment created Objective 5 000 000 Permanent jobs created Objective 2 800 Number of contracts with artisans Objective 200 Number of contracts with local SMEs Objective 1 200 Schools Rehabilitated Objective 105 Health centers rehabilitated Objective 89 Km of feeder roads rehabilitated Objective 1 000 No of hectares irrigated Objective 30 000 Output Indicators Separate Outcome impact Indicators and Output Incicators were not provided for in the SAR End of project 13 6 065 300 121 3 of target 1 546 55 2 of objective 122 61 of objective 1 796 149 6 of objective 450 428 5 o
41. omptabilis s et entrent dans la r mun ration des MPE Le taux de participation a volu la hausse sauf pour les sous projets d infrastructures de d blocage Le tableau suivant donne la r partition des participations par Direction R gionale Tableau 6 Participation des b n ficiaires Projets IDB FID II Apports b n ficiaires requis 7 r alis s O 2 076 838 332 2 101 402 645 98 8 DRD 827 647 491 865 893 746 DRF 2 844 275 775 2 887 877 663 DRM 1 754 120 417 1 733 721316 98 8 DRA 1 220 500 203 1 190 589 038 DRU 1 039 735 550 986 116 459 94 8 TOTAL 9 787 682 081 9 741 036 554 Dans le d veloppement du Projet et travers les performances techniques et financi res le FID a montr un professionnalisme certain Comparativement aux r alisations du Projet FID I et au fil des ann es la qualit des travaux s est am lior e C est une des conditions de la p rennisation des r alisations 31 3 LES IMPACTS 3 1 L inventaire exhaustif et l valuation ex post r alis s en 1999 ont montr que i les sous projets financ s par le FID r pondent des besoins r els et dans la grande majorit des besoins prioritaires des populations b n ficiaires ii implication et la responsabilisation de ces derni res ne sont pas encore satisfaisantes en ce qui concerne l appropriation et la p rennisation des r alisations Toujours est il que des avanc es notabl
42. project we had in place a provisional committee in charge of contributions We haven t yet occupied the project because we are waiting for the provisional reception But this is the same committee which is supposed to sensitize users and collect maintenance funds At the level of the commune we plan to sell tickets for each market day and include FMG 2000 in our budget for maintenance 6 Mr LAIMISONDROTRA Thomas Mayor of Beforona Faritany Toamasina Individuals found their own water supply for a long time in Beforona Since December 1999 thanks to FID the problem was solved However we note that since the 15 standpipes and the wash basin function at the same time the amount of water is insufficient The design firm explained to us that we should organize water management by water committees which we have established For the moment we have water committees for each standpipe but after discussions with FID and the design firm we are convinced that the committees should be drawn into one more formal association which we are now doing Above all these committees need to be reinforced because some of the standpipes are next to the street and are vandalized by people passing by 7 Mr RABAKO Justin President of the project cell PC College Rainisoalambo Fenerive Est Farantany Toamasina We have good relations with FID In every community project we have appreciated the confidence FID has given us to completely manage the project We als
43. proper use of new facilities and to improve community involvement to enhance prospects for maintenance and sustainability At the mid term review of FID SECALINE in 1996 a strategy was developed to make beneficiaries more responsible for infrastructure Five percent up front deposits were required from communities to ensure long term commitment NGOs and consulting firms were involved to a much greater extent to build awareness about maintenance issues Maintenance manuals were required for all sub projects Local governments communes newly elected under government decentralization policy were asked to make budget provisions for operation and maintenance in advance of works It was decided that communities would not be eligible for further FID financing if maintenance was not undertaken The need to focus on maintenance was again stressed by supervision missions during 1998 and at the Mid term review in October 1998 It was agreed that communities providing a commitment of more than 5 would be given priority for new sub projects and tolls would be charged for rural roads Community commitment would be encouraged even more strongly by a proposed future operation which will enable communities to undertake many types of works directly After the mid term review a large maintenance support program was launched in 1998 aimed to a inspect the maintenance of projects finished before December 1997 b improve the promotion of maintenance with beneficiaries
44. re Tous les actifs du FID II devraient tre transf r s sur l inventaire du FID IIL 23 Rapport d Ach vement Le FID a eu une copie du projet de rapport d ach vement du FID IJ Il a t convenu que le FID transmettrait au plus tard le 15 f vrier 2000 sa contribution au rapport d ach vement ainsi que les chiffres actualis s sur les d caissements les passations de march s les co ts et le financement du projet ainsi que les indicateurs de performance 24 Annexe INDICATEURS DE REALISATION FID II R alisations Ant rieures En 1999 Total Ha prot g s Convention AE ONG 350 129 LU GQ 757 1 045 9 826 1 480 A D 556 425 1240 N ho 122 l 295 N pond BR 25 Annexe 2 CHIFFRES DE REALISATION DU CREDIT FID II INDICATEURS Projets R ceptionn s Projets Total Ant rieurs En 1999 en 1999 INFRASTRUCTURE DE BASE 270 88 100 91 44 48 183 52 36 25 113 4 27 31 Ecoles CSB AEP Assainissement Autres 4 2 4 10 TA MPI 46 26 10 82 March s 64 35 28 127 Abattoirs 2 4 2 8 Magasin 5 2 7 Autres 1 11 12 ig 7 Pistes 81 39 24 144 i 2 37 Digue de protection 7 2 6 jp _ 3 of 3 ACTIVITES GENERATRICES DE REVENUS Programmes de micro cr dits 16 38 99 Projets de petit cr dit 52 103 Total AGR mr APPUI AU SECTEUR PRIVE E Formation BE MPE 10 5 15 Formations b n
45. rmation normally collected in a beneficiary assessment e g quality status usefulness of works On balance supervision is judged to be satisfactory 7 3 Overall Bank performance Especially given the rapid implementation one year ahead of schedule and positive results of impact assessments supervision by the Bank is rated satisfactory Borrower 7 4 Preparation The project was well prepared by FID as a follow on to the FID component of the SECALINE Project FID drew lessons from the previous project and was able to set up a nationwide network to implement the project Performance is rated satisfactory 7 5 Government implementation performance Although as noted above there were some problems with support for the project from the Government level these problems did not seriously affect the outcome of the project In fact the rapid implementation of the project was due in large part to strong support from the Government The Prime Minister took a direct interest in FID and the government always provided counterpart funding on time Government performance is therefore rated satisfactory 7 6 Implementing Agency FID successfully extended the project throughout the country Technical audits indicate that over the course of the project FID reacted to many of the problems and constraints that were identified The need to improve the existing capacity of consulting and engineering firms was identified early in the project and FID
46. rojet 2 A la cl ture du FID II le FID aura receptionn 1 645 sous projets 427 sont actuellement en cours de r alisation ou de r ception A la date du 31 d cembre 1999 le FID a r ceptionn 1 218 projets r partis comme suit 591 infrastructures sociales coles centres de sant adduction d eau e 196 infrastructures productives rose irrigu s abattoirs march s et autres 169 infrastructures de d blocage pistes ponts et radiers 7 infrastructures de protection de l environnement digue de protection et bassins versants e 239 activit s g n ratrices de revenus 16 activit s pour appuyer le secteur priv Voir Annexe 1 pour plus de d tails Impact sur le D veloppement En ce qui concerne l impact du FID sur le d veloppement le FID continue surpasser ses objectifs dans plusieurs domaines a environ 4 5 millions de personnes jours de travail temporaire ont t cr s b environ 3 5 millions de b n ficiaires ont t atteints c le FID a continu les formations formelles et sur le tas pour les MPE BE ONGs et groupements communautaires d environ 200 MPE et bureaux d tudes ont t cr s pour r pondre aux appels d offre du FID et il est estim que 1 500 emplois permanents ont t cr s et e les femmes ont b n fici d environ 25 30 pour cent des sous projets en ce qui concerne la r partition g ographique 107 sur les 111 Fivondronana et 623 sur les 1 438
47. s Project Financing by Component in US million equivalent Component Appraisal Estimate Actual Latest Estimate FID Projects FID Sub Projects Conslt TA Train Studies Audit Equip Veh Furn Other Incremental Recur Cost Notes 1 Latest estimates of cost and financing amounts were provided by implementing agency and reflect amounts of US Dollars disbursed at current exchange rates during the project period They underestimate actual dollar cost and financing amounts 2 Cofinancing amount in Project Financing by Component table represents beneficiaries contribution _ 15 Annex 3 Economic Costs and Benefits FID sub projects in economic sectors transport and small scale irrigation are subjected to economic analysis and have been required to have at least a 15 economic rate of return in order to qualify for financing Sub projects in income generating activities and support to the private sector were expected to have at least a 20 rate of return As part of the 1999 beneficiary survey ex post economic rates of return were calculated for rural roads Four roads had economic rates of return ranging from 41 to 349 one had a rate of return of only 3 For small scale irrigation three projects were calculated to have ex post of return ranging from 22 to 99 one had a rate of return of only 6 Since only rehabilitation was undertaken for schools and health centers not new construction these sub projects are assumed
48. s FID to manage beneficiary requests monitor contracts monitor beneficiary contributions follow performance indicators and manage the annual work program FID produces its monthly reports in real time The increased capacity gained by FID in this project has enabled it to undertake a subsequent project and to plan a fourth FID has been able to accomplish this program expansion while keeping its operating expenses below the target of 10 of its expenditure FID s operating costs did rise to 14 of expenditure in 1996 but this was reduced to 9 74 by 1997 The project has supported the Government s decentralization policy which was introduced during the period FID made increasing efforts during the project to encourage development at the community and local government levels Under this policy local governments communes have received increased funding allocations and authority Beginning in 1998 some mayors of decentralized rural communes became involved in project selection and funding By August 1999 25 of projects were being implemented with some involvement of communes consistent with decentralization policy While it is important for elected local goverment to support sub projects especially by allocating funds in their budgets for operation and maintenance FID recognized the need to limit politization by balancing the involvement of mayors vis a vis community groups Mayors contributions have been limited to 25 of the total benefici
49. s the base for further more ambitious projects in the future see section 4 5 5 4 Costs and financing Differences in appraisal and actual costs were not significant in most cases see Annex 2 Savings on the cost of FID subproject consultants were possible because some consultants were financed from other projects as were some costs of equipment and vehicles Savings on incremental recurrent costs reflect the efficient operations of FID These savings allowed somewhat more to be spent on FID sub projects and on TA Training Studies amp Audits Beneficiaries contributed slightly more than expected at appraisal 6 Sustainability 6 1 Rationale for sustainability rating FID is a strong institution which has demonstrated its ability to manage a growing program throughout Madagascar with competent staff and efficient operating procedures The requests by the Government for continuing phases of FID involvement are further evidence of the viability of FID There has also been considerable improvement in the capacity of local contractors and consulting firms However these gains are not likely to be sustainable without continued external funding Maintenance problems were noted during the SECALINE project and during FID II A 1998 survey indicated that maintenance problems were particularly evident in rural roads but much less evident in the case of small irrigation projects FID and the Bank have carried out an increasing effort to ensure the
50. sorerie des PME L application stricte des r gles de jeu pour promouvoir le professionnalisme caution de bonne ex cution p nalit de retard est tr s appr ci e 5 M FAROUK Maire de la Commune de Masomeloka Faritany Toamasina La Commune Rurale de Masomeloka a travaill avec le FID en 1999 dans le cadre de la construction du March Masomeloka Dans l ensemble nous entretenons de bonnes relations avec le FID Mais nous d plorons toutefois les difficult s de communications qui r gnent dans notre fivondronana qui sont telles que nous avons du mal communiquer avec le FID La mairie de Masomeloka est satisfaite dans la mesure o nous avons t servis pour la construction d un premier lot Malheureusement cause des difficult s de communication que j ai voqu es tout l heure et des probl mes de mobilisation du fokonolona nous n avons pas pu terminer temps nos apports pour le 2 lot Pour ces raisons le FID a diff r la r alisation de notre 2 lot D s le d but du projet nous avons mis en place un comit provisoire qui a t charg de la surveillance des apports Nous n avons pas encore occup les lieux pour l instant car on attend la r ception provisoire Mais c est le m me comit qui va sensibiliser les utilisateurs et collecter le fonds d entretien Au niveau de la commune comme nous pensons instituer des tickets pour chaque jour de march nous avons l in
51. t The articles of agreement By laws and Manual of Procedures of FID and the framework agreement between the Government and FID were required to remain acceptable to IDA The Executive Director Deputy Executive Director and Regional Directors of FID were at all times to have qualifications and experience acceptable to IDA The FID II project design incorporated successful features of the SECALINE Project including a involvement of beneficiaries at all stages b regional launch workshops involving all stakeholders c a decisive Director General who recruited competent staff and let them work independently while monitoring performance in relation to agreed outcomes and d the organization of FID along private sector lines staffed with competent managers Additional lessons of the SECALINE Project which were taken into account in designing FID II included Projects executed outside of traditional government structures tend to be more efficient and flexible in getting quick results in the field and serving the communities reliance on NGOs and community groups contributes to success Communities should participate in project design and implementation The delegated contract management system for the construction or rehabilitation of infrastructure Exc a works well at a reasonable cost in rural as well as urban areas Implementation and manual of procedures are very important to facilitate implementation 4 Achievement of Obj
52. t les Communes les instances d partementales allouent partiellement des cr dits aux populations locales pour pouvoir r pondre aux imp ratifs du FID 5 3 Les actions d appui au secteur priv sont positives Des micro et petites entreprises op rationnelles existent au niveau des r gions quoique leurs performances techniques ne soient pas encore id ales 5 4 Des efforts sont consentis pour diffuser les exp riences des meilleurs sous projets vu sous l angle de l implication des b n ficiaires et de la p rennisation des r alisations pour instaurer la concurrence entre les populations et communes La participation est la responsabilisation des populations et communes ne sont pas encore satisfaisantes Si la participation des b n ficiaires l investissement est acquise l appropriation des r alisations n cessite encore des efforts pour la mobilisation des ressources humaines et financi res 5 5 L existence des r alisations quoique consistante sur le plan national n est pas encore suffisante pour mobiliser les communes les plus excentr es Des efforts sont encore n cessaires pour toucher les zones handicap es par l tat des infrastructures routi res A contrario les zones qui ont d j b n fici des investissements FID connaissent les proc dures et les obligations du Projet En effet la couverture des d partements est totale celle des Communes l est 45 5 6 Les exp riences amass es en mati
53. t totale D autant plus que les proc dures d utilisation de ces derniers ont t con ues par le FID et enti rement approuv es par PIDA A signaler que le rel vement du plafond du Compte Sp cial USD 3 500 000 en janvier 1998 a r solu les probl mes de tr sorerie 4 4 Syst me d information A la fin de l ann e 1999 et apr s une mise en place de plus de deux ann es le FID disposait enfin d un syst me d information temps r el et en r seau pour la gestion de ses activit s et pour le suivi valuation du Projet Le syst me est constitu principalement d une base de donn es tr s large comprenant les informations sur les activit s et des outils permettant d exploiter ces donn es et d tablir les liens exacts entre les parties technique et financi re d s activit s L existence du syst me constitue un atout ind niable pour la poursuite et la gestion du projet Il y a toutefois lieu d valuer la performance du syst me et d apporter les am liorations utiles au niveau des r seaux locaux et distance vitesse de communication s curit d acc s protection physique du r seau 4 5 D veloppement des Manuels de Proc dures L ossature des Manuels de Proc dures existait depuis le Projet FID I Ils furent d velopp s au cours du Projet FID IL et la collaboration avec les experts de la Banque Mondiale a t exemplaire en ce sens 34 Ayant assimil la ma trise d ouvrage d
54. t properly staffed In the 1999 beneficiaries survey insufficient personnel was cited as a problem in 9 out of 10 health centers This probiem also existed for schools but was less severe 6 of 16 schools had insufficient personnel In 1998 FID determined it would not finance more health centers until this problem is rectified Relevant performance indicators Degree to which project was a priority of beneficiaries degree of satisfaction Staffing levels of schools and health centers Budgets for maintenance and maintenance levels of health centers schools irrigation systems markets Quality of infrastructure Number of pupils in schools before and after indicators of improved education Number of patients in health centers and indicators of improved health Increased area of irrigation production Ex post ERRs of roads and irrigation systems Number types of employees of consulting and contracting firms trained Recommended follow up by the Bank Continued beneficiary surveys with larger samples to assess satisfaction and design and maintenance arrangements 7 Bank and Borrower Performance Bank 7 1 Lending The project was prepared during supervision missions for the SECALINE Project which led to economies in preparation The essential elements for a project of this type were put in place during SECALINE and expanded for FID II This included a good institutional structure sound procedures and a plan for extending t
55. tention d inclure dans notre budget 2000 un montant destin l entretien du march 6 M LAIMISONDROTRA Thomas Maire de Beforona Faritany Toamasina Nous avons t longtemps priv s d eau potable Beforona Depuis d cembre 1999 gr ce au FID le probl me a t r solu Nous notons cependant que lorsque les 15 bornes fontaines et le lavoir fonctionnent en m me temps le d bit d eau n est pas suffisant Le bureau d tudes nous a expliqu qu il faut organiser gestion de l eau au niveau des komitin drano comit de l eau que nous avons mis en place pour que toute le monde puisse bien en profiter 38 Pour l instant nous avons des komitin drano comit de l eau au niveau de chaque borne fontaine Mais apr s discussion avec le FID et le bureau d tudes nous sommes convaincus que ces comit s provisoires pour tre efficaces et cout s par tous les usagers doivent tre ramen s au sein d une association plus formelle que nous sommes en train de mettre en place avec le bureau d tudes Surtout ces comit s on besoin d tre renforc s car certaines de nos bornes fontaines se trouvent au bord de la route et font l objet d acte de vandalisme de la part des gens qui passent 7 M RABAKO Justin Pr sident Cellule de Projet PC Coll ge Rainisoalambo F n rive Est Faritany Toamasina Nous avons de bonnes relations avec le FID Surtout dans le cadre du projet comm
56. to have yielded high economic rates of return although no calculations were made 16 Annex 4 Bank Inputs a Missions No of Persons and Specialty k e g 2 Economists 1 FMS etc Identification Preparation This project was prepared during supervision missions for the SECALINE Project Appraisal Negotiation Economist Imp Spec Nutritionist IEC Specialist MIS Specislist Implementation Spec Social Fund Spec Procurement Spec Engineer 12 96 Implementation Spec Social Fund Spec 8 97 Implementation Spec Social Fund Spec 2 98 Implementation Spec Portfolio Assist Operations Assist Disbursement Spec Procurement Spec 7 98 Implementation Spec Procurement Spec 10 98 Implementation Sped Social Funds Spec Engineer 8 99 Implementation Spec 5 99 2 99 amp 10 99 Missions for the preparation of the Community Dev Fund Project FID IV also supervised final stages of FID H SAT b Staff Re of Kioa ae nee Actual Latest Estimate ___ No Staff weeks ue AR ICR CC Sas Sr ee 159 6 18 Annex 5 Ratings for Achievement of Objectives Outputs of Components H High SU Substantial M Modest N Negligible NA Not Applicable Rating DT Macro policies OH OSUOM ON NA RI Sector Policies OH SUOM ON OMNA Physical OH SUOM ON ONA Financial OH OSU M ON OMA XI Institutional Development OH OSU M ON OMNA XI Environmental OH OSU M ON OMA Social D Poverty Reduction OH SUOM
57. unautaire nous avons appr ci que le FID nous ait accord sa confiance et permis la cellule de g rer totalement le projet Nous sommes galement reconnaissants l quipe du FID d avoir consacr du temps pour notre propre formation dans la gestion du projet Pour notre cellule la collaboration avec le FID dans le cadre du projet communautaire a t enrichissante car il y a eu beaucoup de choses nouvelles que nous avions d couvertes consultation de partenaires passation de march suivi de travaux etc Ceci tant le FID a t trop ferme au niveau des apports de 20 et du temps imparti pour leur r alisation Depuis quelques mois nous mettons de l argent de c t pour constituer notre fonds d entretien Notre communaut a d j l habitude de prendre en charge l entretien et la maintenance de son patrimoine 1 le FID pense d velopper les projets communautaires nous souhaitons que les apports de 20 exig s avant projet soient r duits car il est difficile de rassembler ces apports Nous demandons galement ce que tous les volets de formation dispens s par le FID soient renforc s et que la cellule soit bien form e avant le d marrage des travaux 39 MAP SECTION IBRD 20035R1 gt a mbilabs gt N S ANT d Soanierana lyongo Lei a HBos0 ampy Orsor tanana a TOAMASINA 4 Andilame no 4 i Morafenobe A mratondrazg eg Anjozorobe ol
58. vironmental issues Some projects enhanced environmental protection such as reforestation and erosion control Roads were on existing alignments and schools and health centers were rehabilitated on existing sites 4 2 Outputs by components Physical Objectives By project completion including sub projects still in progress as of 1 1 2000 FID had surpassed several of its physical improvement targets FID had worked with NGOs 309 contracts and community groups to rehabilitate 450 schools 428 of target and 185 health centers 229 of target In addition 967 km of rural roads 97 of target had been rehabilitated and 11 171 ha had been irrigated 37 of target Costs of FID investments were comparable to projects financed under other programs with the exception of schools which have cost about 30 more than other programs in order to make them cyclone proof The project was implemented more rapidly than planned closing one year ahead of the original closing date of December 31 2000 Private Sector Development Implementation of the 1998 program was slowed by 20 due to a lack of sufficient competent engineering firms indicating the need to focus on training in project preparation and site supervision Efforts were made throughout project to improve the targeting of training to engineering firms and small contractors especially for the design and implementation of rural roads sub projects and to help beneficiaries create maintenance assoc
59. worked to accomplish this although capacity is still a constraint FID s procedures were noted to improve during the project beneficiary participation improved and FID s ability to make payments on time improved Work quality problems persisted but they diminished towards the end of the project One problem cited by beneficiaries in the 1999 beneficiary survey was the lack of contact and animation at the local level by FID Insufficient animation was cited for 9 out of 16 school projects 5 out of 10 health center projects 4 out of 10 small scale irrigation projects and 6 out of ten market projects This suggests that FID lacked the resources to support community mobilization efforts to the extent desired Consultants were hired for this purpose but this did happen quickly enough during the project Financial audits were late during early years of the project due to the high volume of work By mid 1989 the audit was on time but the auditor was still unable to give an opinion because of problems distinguishing between FID I II and III This was a minor problem FID could identify which works were financed under each credit but in some cases costs related to the reception of the works could not be distinguished In spite of the above points FID s performance is rated satisfactory It successfully expanded an efficiently managed program throughout the country and it implemented the project one year ahead of Os schedule It implemented the ma

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