AFRICAIN DEVELOPPEMENT FUND

RURAL DRINKING WATER AND SANITATION PROGRAMME (PAEPA)

BENIN

PROJECT COMPLETION REPORT

OWAS DEPARTMENT

Translated Document

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PROJECT COMPLETION REPORT

A. BASIC DATA AND KEY DATES

I. BASIC INFORMATION

Project Number Project Name Country

P-BJ-EAO-OO 2100150008647

Rural Drinking Water and Sanitation Programme (PAEPA)

Benin

ID Number of Lending Instrument(s): Department Environmental Classification

Project Loan Lending Agreement N° 2100150008647 of 29/11/2004 OWAS 2

Original Commitment Amount Amount Cancelled Amount Disbursed Percent Disbursed

UA 10,740,000 UA 2,573,561 UA 8,166,439,67 75.57

Borrower

Government of Republic of Benin, Ministry of Finance

Executing Agency(ies) [List the main Ministries, Project Implementation Units, Agencies and civil society organizations responsible for implementing project activities.]

General Directorate of Water (DG-Eau) of the Ministry of Energy, Mining and Petroleum Research and Renewable Energy Development (MERPMEDER), Directorate of Hygiene and Basic Sanitation (DHAB) of the Ministry of Health (MS), Programme Coordination Unit (PCU).

Co-financiers and Other External Partners [List all the other sources and amounts of financing, technical assistance or other sources used in this project]

Co-financiers and Other External Partners:

1. ADF Loan UA 10.740 million 2. Government UA 1.5 million 3. Beneficiaries UA 0.43 million

II. KEY DATES Project Concept Note Cleared by Ops. Com. Appraisal Report Cleared Board Approval

Non applicable Non applicable 10/11/2004

Restructuring(s)

Non applicable

Original Date MM/DD/YY

Actual Date MM/DD/YY

Difference in months

EFFECTIVENESS 29/05/2005 12/07/2006 12 months

MID-TERM REVIEW NA NA NA-

CLOSING 31/12/2008

30/06/2012 42 months

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III. RATINGS SUMMARY Insert scores from relevant tables in the different sections of the PCR. For example, please insert the “Overall Output Score” in Section D.I of the “Achievement of Outputs” box below

CRITERIA SUB-CRITERIA RATING

PROJECT OUTCOME

Achievement of Outputs 3

Achievement of Outcomes 2

Timeliness 1

OVERALL PROJECT OUTCOME 2

BANK PERFORMANCE

Design and Readiness 3

Supervision 3

OVERALL BANK PERFORMANCE 3

BORROWER PERFORMANCE

Design and Readiness 3

Implementation 1

OVERALL BORROWER PERFORMANCE 2

IV. RESPONSIBLE BANK STAFF

POSITIONS AT APPROVAL AT COMPLETION

Regional Director J. GHARBI J.K. LITSE

Sector Director G. MBESHURUBUSA S. JALLOW

Sector Manager M. DOUMBIA K. BA

Task Manager K. BA E. A. MBAYE

PCR Team Leader A.B.SY

PCR Team Members M. EL GHALI

B. PROJECT CONTEXT (300 Words)

The sub-programme forms part of the national programme formulated in 2003 for the period leading up to 2015. It falls within the framework of the Rural Drinking Water Sector Strategy adopted in 1992 by Benin aimed at: (i) decentralization of the decision making process; (ii) community participation in drinking water and sanitation infrastructure and management of water points; (iii) private sector strengthening and promotion; and (iv) health education systematization. It is also in line with the priorities defined in Bank’s CSP for Benin for the 2003-2007 period and consistent with the Bank’s Rural Drinking Water and Sanitation Initiative launched in 2004. The goal of this initiative is to reduce poverty and improve the living conditions of the disadvantaged population through the construction of social amenities in the rural areas. It is also in line with the African Water Vision 2025.

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C. PROJECT OBJECTIVE AND LOGICAL FRAMEWORK 1. Project Objective

The sector goal of the project was to contribute to meeting the drinking water and sanitation needs of the rural populations of the Atlantique and Zou Regions in a sustainable manner, in order to improve their living conditions. The specific objective was to ensure, by 2007, the supply of drinking water to 32% of the rural population of Zou and 40% to those of Atlantique as well as sanitation to 25% of the rural population of the two regions.

2. Description of Project Components

The sub-programme comprised the following five major components:

Component A: Basic Infrastructure Development: the actions proposed were (i) construction or strengthening and expansion of village water supply (VWS) networks as well as independent water stations (IWS). Twenty-five VWS and 28 IWS units in Atlantique; 19 VWS networks and 14 expansion schemes in Zou. (ii) 120 latrine modules in schools and two markets in each of the 2 regions. Component B: Studies, Works Supervision and Control: Apart from the works supervision and control, the studies relate to: (i) hydrogeological modelling of the Zou and Atlantique water tables; (ii) strengthening and expansion of the Geographic Information System “SIG–Eau” database to include hygiene and sanitation; (iii) participation in the financing of the Integrated Water Resources Management process; (iv) financing of water and sanitation project studies for the preparation of future sub-programmes under the Initiative. Component C: Information, Education and Communication (IEC): This covers the entire awareness, information, education and communication activities for village communities, micro-enterprises, NGOs and local officials. It aimed at putting in place or consolidating the management of local DWSS facilities and contributing to improving hygiene. Component D: Institutional Support: It comprises the entire support to DGH, DHAB, SDHs and SDHABs of the Atlantique and Zou regions, the municipal authorities of the regions, Ministry of Family, Social Protection and Solidarity as well as the private sector operators involved in water and sanitation. The component aimed to provide the sector with qualified staff and adequate material resources to enable them carry out their functions. Component E: Project Management: This covers aspects related to the management, coordination and monitoring of the sub-programme technical, administrative and accounting activities. To this end, the programme was intended to provide human resources to coordinate the activities of the various stakeholders, manage the resources provided the project, create a monitoring-evaluation system and monitor the environmental and social management plan to be put in place.

3. Assessment of Project Objectives

PROJECT OBJECTIVES DIMENSIONS ASSESSMENT WORKING

SCORE

RELEVANT a) Relevant to the country's

development priorities

The sector goal of the sub-programme is clearly in line with the rural drinking water and sanitation strategy objectives aimed at reducing poverty by meeting drinking water needs and ensuring adequate sanitation services.

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ACHIEVABLE

b) Objectives could, in principle, be achieved with the project inputs and in the expected timeframe.

The objectives of the sub-programme could be achieved within 36 months, in view of the enhanced existing institutional capacity and the expected inputs of the programme (85%), beneficiaries (3%) and the Government (12%). However, the Bank allowed an extension of 42 months to help achieve the targeted objectives.

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CONSISTENT

c) Consistent with the Bank’s country or regional strategy.

The Rural Drinking Water and Sanitation Initiative is consistent with the Bank’s strategy for Benin. The latter is in line with that defined by the authorities under the country’s rural drinking water and sanitation initiative.

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d) Consistent with Bank’s overall priorities.

The sub-programme is consistent with the Bank’s Country Strategy Paper (CSP) for Benin for the 2002-2004 period and the Bank Group’s strategy for the 2003-2007 period, which defined drinking water as one of its major priorities. It is also consistent with the Rural Drinking Water Supply and Sanitation Initiative.

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4. Project Logical Framework at Appraisal

Note: In view of deficiencies in the initial Project Matrix, it became necessary to reformulate the logical framework, as in the following table, and reorganize the Appraisal Report data by component to ensure greater consistency and facilitate its application.

Objectives Description Expected Outcomes Expected Outputs Indicators To Be Measured

Sector Goal: 1. sustainable satisfaction of drinking water and sanitation needs of rural populations

1.1 Satisfy the drinking water and sanitation needs of rural populations in a sustainable manner

1.1 The poverty index rising from the current 29 % to 15 % by 2015 1.2Child mortality decreasing from 166.5 per thousand to 90 per thousand by 2015

1.1 Improved living conditions of the rural communities. 1.2 Improved health conditions

1.1 Number of households whose socioeconomic conditions have improved

1.2 Number of households whose health conditions have improved

Specific Objectives 2 Improve the drinking water supply and access to adequate sanitation services in the Atlantique and Zou 3. Improve the performance of the rural drinking water and sanitation

2.1 Improve drinking water supply and access to sanitation of rural communities in the Atlantique and Zou regions 3.1 Improve the performance of the RDWSS sector

2.1 Drinking water access rate is 32% in Zou and 40 % in Atlantique; rate of access to on-site sewage disposal rises to 25 %. 3.1 All the DWSS systems are

functioning .

2.1 Conditions of access to drinking water and sanitation are met

3.1Uninterrupted supply of drinking water

2.1 Number of persons with access to adequate drinking water and DWS and latrines. 3.1Number of operating DWS systems.

Components Activities Expected Outcomes Expected Outputs Indicator To Be Measured

Component A: Basic Infrastructure Development 1. DWS Infrastructure Development 2. Sanitation Infrastructure Development

1.1. Construction of 9 boreholes, 44 VWS, 36 IWS and 14 extensions of SONEB network 2.1 Construction of 240 school latrine units and 4 in markets and promoting family latrines

1.1. DWS is efficient and sustainable in Atlantique and Zou. 2.1 Existence of an efficient and sustainable sanitation system in schools, markets and households

1.1 Improvement in drinking water supply in Zou and Atlantique 2.1. Improvement in sanitary conditions in schools, markets and households.

1.1 Number of VWS, IWS units and extensions made. 2.1 Number of latrines constructed and operational

Component B: Studies, Works Supervision and Control 1. Studies 2.Works Supervision and Control

1.1 Hydrogeological modelling of the Zou and the Atlantique water-tables 1.2 Strengthening and extension of the SIG-Eau database of DG-Eau to cover hygiene and sanitation 1.3 Integrated Water Resource Management 1.4 Financing water and sanitation project studies for future programmes 2.1 Water works supervision and control 2.2 Sanitation works supervision and control

1.1 Setting up of groundwater management and planning system 1.2 Setting up of an optimal management monitoring system for the entire subsector 1.3 Setting up of a management system 1.4 Availability of preliminary and/or final designs for the implementation of new projects. 2.1 Recruitment of consulting firms for works control. 2.2 Recruitment of NGOs and local consultants for sanitation works

1.1 Improvement of knowledge on groundwater resources 1.2 Optimal monitoring of the water quality and of management of water and structures. 1.3 Improved of water resource management 1.4 New projects are implemented satisfactorily 2.1 Works executed and within time- frame. 2.2 Works are carried out satisfactorily.

1.1 Modelling and computer tools are available. 1.2 Database and computer tools are available, used and updated 1.3Studies conducted and computerized system put in place. 1.4 Number of preliminary and/or final designs available 2.1 Number of consulting firms recruited 2.2 Number of NGOs and consultants recruited

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Component C: Information, Education and Communication (IEC) 1. Developing a general information campaign on rural DWS 2. Promoting basic hygiene and sanitation 3. Socioeconomic studies and surveys

1.1 Undertaking 6 IEC campaigns, 2.1 Training of 100 sanitary workers, 15 sanitary technicians, 200 health workers, 200 masons and artisans 3.1 Conducting 6 surveys and establishing a database on the project’s socioeconomic status and impact

1.1 Requests for DWSS facilities made, payment of contributions, training of management committees 2.1 The services of water and sanitation management entities are viable 3.1 The project’s impacts are well defined

1.1 Expression of needs driven by demand

2.1 There is optimal monitoring of water quality and management of water resources and structures 3.1 Improvement of socioeconomic data

1.1 Number of IEC campaigns conducted and requests recorded 2.1 Number of persons trained by activity sector 3.1 Number of surveys conducted; availability of database

Component D: Institutional Support 1. Increasing the implementation capacity of subsector 2. Private sector promotion 3 Professionalizing DWS system management 4. Mainstreaming of gender issues at all stages of programme

1.1 Procurement of equipment, scientific apparatus and training 2.1 Strengthen CEPEPE’s resources to enable it support private sector operators and various training activities 3.1 Water points managed by women recruited by the municipal councils on a competitive basis 4.1 Ensure gender participation in DWSS sector activities

1.1 The services of water and sanitation system management entities are viable 2.1 The various private sector actors acquire know-how 3.1 Water points managed efficiently and the management structures are viable 4.1 Build capacity of women in DWSS implementation and management.

1.1 Improvement in the DWSS sector 2.1 Improved the performance of private sector operators 3.1 The facilities are managed, used, repaired and renewed from water sale revenues. 4.1 Active participation by women in DWSS sector activities

1.1 Number of entities whose capacity has been strengthened 2.1 Number of private sector entities strengthened and assisted 3.1 Number of DWS systems managed by women 4.1 Number of women trained, members of CP, consulting firms, NGOs,

Component E: Project Management 1. Overall Programme Coordination 2. Monitoring Evaluation

1.1. Establishing PCU 1.2 Putting in place management tools. 1.3 Recruitment of consulting firms, NGOs and works contractors 1.4. Putting in place a national monitoring committee 2.1 Monitoring-evaluation system in place and operational

1.1. Recruitment of PCU staff 1.2 Formulation of a procedures manual and computerization of the accounting system 1.3. Establishing and monitoring of contracts with operators (consulting firms, studies, NGO, contractor and consultants). 1.4. Meetings and workshops organized by CNS 2.1 Activities planned and indicators fed from an operational database

1.1. Effective monitoring of physical activities 1.2 Effective monitoring of financial activities 1.3. Effective involvement of operators in execution of activities. 1.4 Efficient execution of programme activities. 2.1Monitoring of activities and informed outcome indicators

1.1. Staff appointed in line with Appraisal Report. 1.2. Quality of procurement and financial management. 1.3. Operators and service providers’ reports. 1.4. Number of CNS meetings 2.1. Number of informed indicators

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5. Assessment of Logical Framework

LOG-FRAME DIMENSIONS ASSESSMENT WORKING

SCORE

LOGICAL - a) Provides a logical causal chain for achieving the project development objectives.

The logical causal chain is reflected in the clear definition of the objectives, expected outcomes, indicators, means of verification and key assumptions to be considered. These results were achieved through the implementation of the various components of the sub-programme.

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MEASURABLE

- b) Expresses objectives and outcomes in a way that is measurable and quantifiable.

The objectives were defined in a log-frame with objectively measurable indicators. This was not the case for the outputs of the analyses contained in the Completion Report.

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THOROUGH - c) State risks and key

assumptions.

The log-frame states the risks and key assumptions for the success of the project. On the other hand, risks related to the cumbersome and protracted procurement procedures and those exogenous to the project executing agency (capacity of service providers (lessees) and climate change) were not considered but proved to be significant.

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D. OUTPUTS AND OUTCOMES I ACHIEVEMENT OF OUTPUTS

MAJOR ACTIVITIES MAJOR ACTIVITIES

Share of project costs in percentage (as stated in the Appraisal Report)

Weighted Score(automatically generated) Expected Outputs Actual Outputs

Component A: Infrastructure Development

Construction and rehabilitation of 9 deep boreholes, 44VWS in Atlantique and Zou and 36 IWS in Atlantique

11 boreholes compared with 9 projected, 18 large VWS, 3 small VWS, 37 IWS fitted with 58 water towers, 488 standpipes, 108 individual connections and 362 km of pipes totalling 1048 water points equivalent (WPE), as against the projected 840; were constructed with a 129% physical execution rate.

4 0.665 1.995

14 extensions of the SONEB network completed

14 extensions of the SONEB network were completed in 2012 and are not yet transferred to SONEB

3 0.034 0.102

Construction of 240 school latrine modules, 4 in the markets, promotion of household latrines in Atlantique and Zou

241 latrine modules were constructed comprising schools : 223, health centres: 17, market: 1; following the campaign, 4345 household latrines were constructed by the 68 masons trained under the programme

4 0.082 0.328

Component B: Studies, Works Supervision and Control

Hydrogeological modelling of Zou and Atlantique water tables

This activity was not carried out; DANIDA undertook the modelling of the SONEB catchment area in the south of Atlantique.

1 0.003 0.003

Strengthening and extension of the SIG-Eau database of DG-Eau to cover hygiene and sanitation.

SIG-Eau not extended to sanitation component and regions and districts; groundwater study not undertaken.

1 0.003 0.003

Participation in the financing of the Integrated Water Resource Management implementation

The expected support did not materialize and PANGIRE is not operational

1 0.003 0.003

Participation in the funding of water and sanitation project studies for future programmes under the Initiative.

Preliminary and final designs of the DWSS projects were not conducted.

1 0.003 0.003

Supervision and control of works for boreholes, VWS, IWS and 14 extensions of the SONEB network

Control and supervision of VWS, IWS, and extensions were carried out by consulting firms.

4 0.04 0.16

Supervision and control of IEC and social intermediation activities

IEC activities were supervised by NGOs 3 0.008 0.024

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Supervision and control of sanitation works

Supervision and control of latrines works were carried out by local consultants. 4 0.003 0.012

Component C: Information, Education and Communication (IEC)

Conducting 6 IEC campaigns. 3 IEC campaigns were conducted and 30 close-to-client campaigns.

3 0.012 0.036

Training of 100 sanitary workers, 15 sanitary technicians, 200 health workers, 200 masons and artisans

2782 teachers, 210 community workers, 370 food sellers, 68 masons, 518 health committees were trained with 105 %, 575%, 100% and 123% execution rates, respectively.

3 0.015 0.045

Training in AIDS prevention for the staff of the administration, NGOs, contractors, and especially the borehole workshop staff

Awareness activities were conducted 3 0.020 0.060

4.1 Conducting 6 surveys and establishing a database on the project’s socioeconomic status and impact

1 socioeconomic survey conducted; DG-Eau integrated database was established; a summary impact assessment was undertaken for Atlantique

2 0.005 0.010

Component D: Institutional Support

Increased implementation capacity of sub-sector

The proposed equipment and training were not fully procured due to the non-execution of the studies and main activities and the sector performance did not improve significantly.

2 0.01 0.02

Private sector promotion The CEPEPE was strengthened and contributed, through advisory services, to building the capacity and supervision of over 326 operators.

3 0.020 0.06

Professionalizing DWS system management

Out of the 21 VWS, 7 large and 3 small VWS are already managed by lessees recruited by the mayors of municipal councils with leasing arrangements. For the 11 other VWS and the 37 IWS, the process is ongoing as well as the transfer of the 14 extensions to SONEB.

3 0.02 0.06

Mainstreaming gender at all stages of the programme

Women are involved in the management of the sector activities: 195 standpipe operators, 78 health committee officials, 290 in drinking water consumers associations, 370 food sellers sensitized and trained, 67 women entrepreneurs trained, representing 19 % of the total numbers.

3 0.01 0.03

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Component E: Project Management

Organizing project coordination and management of activities

The Coordinator and the 2 experts recruited were the project start-up. Though the procedures manual and accounting software were put in place, they are not operational. The 2010 audited accounts have not been approved and the 2011 and 2012 accounts have not yet been audited. The last revolving funds have not been fully accounted for. Monitoring Committee meetings were held regularly. Although the annual work plans and budgets have been approved, they are not always followed.

2 0.03 0.06

NGOs, consulting firms and contractors recruited for the sub-programme activities.

2 NGOs (for 4 contracts), 7 consulting firms and 8 contractors were recruited based on the ADF and the country’s procedures.

3 0.008 0.024

Monitoring-evaluation

The monitoring-evaluation system has not been put in place. A decentralized data collection network exists and is monitored by the SIG-Eau with data inputs every three months.

2 0.009 0.018

OVERALL OUTPUT SCORE [Score is calculated as the sum of weighted scores] 3.058

II. ACHIEVEMENT OF OUTCOMES

OUTCOMES Working

Score Projections Outcomes

Component A: DWSS Infrastructure Development

Improve the living conditions of rural communities (socioeconomic, health and hygiene conditions)

271,000 persons have access to adequate drinking water within a radius of 300 m and 48,800 persons have access to institutional latrines and 26,070 persons to household latrines. The combined effects helped improve hygiene conditions and reduce water-borne diseases (malaria, diarrhoea and vomiting) by about 30%.

3

Improve drinking water supply and adequate sanitation services for Atlantique and Zou rural communities

The rate of access by Zou and Atlantique rural communities increased to 80.4% and 52.3% in 2011. The 1084 water point equivalent constructed helped meet the daily need of 20l/capita. The rate of access to a sanitation service also increased in the 2 regions (32% for Atlantique and 26.58% for Zou in 2011, compared with 14% and 25% in 2007).

3

Improve hygiene conditions in schools, health centres, markets and households

Social marketing campaigns on the drinkability of well and tank water, promotion of on-site sewage facilities in households and hand washing with soap, supported by communication tools helped improve hygiene conditions in schools, health centres and households.

3

Negative environmental impacts managed through the enforcement of environmental measures.

The ESMP was not formulated; the piezometric system was not put in place and environmental measures were only partially carried out.

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Professionalization of the management of water points through leasing

Out of the 21 VWS systems constructed, 7 large and 3 small ones have already been leased out; for the 11 others and the 37 IWS units, the recruitment of lessees is ongoing.

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Sustainability of DWSS infrastructure investments

For the DWS facilities, this largely depends on the viability of the leasing system put in place. In the case of the latrines, their sustainability will be ensured through the system in place for many years and which has been running satisfactorily.

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Component B: Studies, Works Control and Supervision

Improving knowledge on groundwater resources

This did not improve significantly: the proposed studies, technical and scientific procurement of computer tools and software, recruitment of experts, proposed training activities and those related to the modelling of the Atlantique and Zou aquifers, strengthening and extension of SIG-Eau with the data from these studies were not carried out.

1

Optimal monitoring of water quality and management of water resources and facilities.

Thanks to the DG-Eau laboratory and the contractual obligations of the consulting engineers, the quality of water was analysed during the construction of DWS infrastructure. However, the quality monitoring system and management of the facilities are not efficient enough. Indeed, figures on the service coverage rates are inconsistent as a result of different formulas used by the same actors.

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Improving water resource management

Although SIG-EAU of DG-Eau is operational, it has not been strengthened with supplementary basic hygiene and sanitation modules and has not been adapted to the ongoing decentralization and deconcentration framework. SIG-EAU-related activities were not carried out at the central level and in the Zou and Atlantique regions and townships.

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Component C: Information, Education and Communication

Outreach and mobilization for adherence to good hygiene practices

Following the outreach and social mobilization campaigns, the beneficiary communities were able to: (i) express their views on the technical choices of the facilities; (ii) form water point or health committees; (iii) promote women’s participation at all phases of the DWSS programmes; (iv) inform micro-enterprises involved in DWSS (artisans, well sinkers, masons, etc..) about employment opportunities in the sector, and (v) assess the impact of the construction of the facilities on improving their living conditions.

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Component D: Institutional Support

Improving the DWSS sector performance

Improvement of the sector performance was hampered by the failure to undertake the aforementioned major studies and capacity building in training, technical and scientific resources as well as technical assistance. However, it is worth noting the improvements at the level of national technical directorates (DG-Eau, DN, local councils and deconcentrated technical directorates)

2

Improving the performance of private operators of the sector

Through advice and support as well as training and supervision by CEPEPE backed by project resources, the performance of private operators in the sector improved.

3

Active participation of women in DWSS sector activities

The involvement of women was effective and at all levels 3

Component E: Project Management

Supervision, control and effective monitoring of physical and financial programme activities

Overall, supervision and control of physical activities were satisfactory. However, those related to financial activities were less so. Procedures manual, accounting software and the computerized monitoring-evaluation system were either unavailable or ignored. The transfer of the programme accounting to the DAF of DG-Eau was inefficient. The 2010 audit report has not yet been approved. The 2011 and 2012 financial statements are not ready.

2

Efficient programming and implementation of project activities

The annual work programme and relevant budget prepared by the PCU were approved by the Monitoring Committee but their implementation was often unsatisfactory.

2

OVERALL OUTPUT SCORE[Score is calculated as the sum of weighted scores] 2.33

2. Comment on the project’s additional outcomes not captured in the log-frame, including cross-cutting issues (e.g. gender).

Poverty indices in the programme area are high, especially in relation to vulnerable population groups. In this regard, the sub-programme gives pride of place to gender. An impact assessment by the DANIDA led to the following observations: (i) reduction in the time devoted to water-related chores by women and girls; (ii) increase in girl and youth enrolment rates; (iii) development of women’s income generating activities; (iv) employment creation, notably for women: 370 female food sellers in schools, 195 female stand-pipe operators, 78 health committee officials and 290 women in drinking water consumers associations. Furthermore, with the recruitment of local labour during the project works, trading activities grew, resulting in increased revenues and improved living conditions of the communities in the sub-programme areas.

3 Risks to sustained achievement of outcomes. State the factors that affect, or could affect, long-term or sustained achievement of project outcomes. Mention if any new activity or institutional change is recommended to help sustain outcomes. The analysis should draw upon the sensitivity analysis in Annex 3, where appropriate.

The viability and sustainability of the DWSS facilities relate to: (i) the actual capacity of the local councils to assume their new responsibilities in the management of DWSS facilities; (ii) lack of participation by the local councils in the initial investment; (iii) late recruitment of private professional managers for the facilities of the sub-programme, thereby depriving the communities of water services for several months, (iv) the quality of water and volume of water sold. In this regard, the following are being proposed: (i) sustain the good practices already acquired in the area of hygiene and sanitation through constant awareness raising; (ii) build the capacity of local councils in the area of project management and the formulation, seeking of funding for and implementation of their Communal Water Plans (PCEAU) as well as Hygiene and Sanitation Plans (PHAC); (iii) undertake an analysis of the current status of the lease of DWS facilities to enhance the control, regulation, lease monitoring and sustainable management of DWS facilities; (iv) determine the financial rate of return of the DWS facilities prior to the recruitment of the lessees.

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E. PROJECT DESIGN AND READINESS FOR IMPLEMENTATION

1. Indicate the extent to which the Bank and the Borrower ensured the project was commensurate to the Borrower’s capacity to implement by designing the project appropriately and by putting in place the necessary implementation arrangements. Consider all major design aspects, such as extent to which project design took into account lessons learned from previous PCRs in the sector or the country (please cite key PCRs); whether the project was informed by robust analytical work (please cite key documents); how well Bank and Borrower assessed the capacity of the implementing agencies and/or Project Implementation Unit; scope of consultations and partnerships; economic rationale of project; and provisions made for technical assistance.

[250 words maximum.] [Any additional narrative about lessons learned should be included in Annex 6: Project Narrative]

The sub-programme took into account lessons learned from similar projects and heavily drew on available preliminary designs and socioeconomic studies. The arrangements made at the appraisal for the sub-programme implementation were largely followed: the Ministry of Mines, Energy and Water Resources is the executing agency of the sub-programme. For the technical and financial coordination, a Programme Coordination Unit (PCU) was put in place comprising a Coordinator, a Socioeconomist, a Finance an Accounts Officer and support staff. The PCU depended on the DG-Eau for the Water component and the DHAB for the Sanitation component as well as on their deconcentrated entities, notably the SDHs of Zou and Atlantique, as well as the DHAB and its deconcentrated entities in the regions. All these structures benefited from capacity building to enable them correctly undertake the assignments entrusted them. A Sub-Programme Monitoring Committee was established to coordinate all the stakeholders. At implementation, shortcomings and lapses were noted, particularly: (i) inability of the PCU financial units to perform the tasks assigned them, (ii) inadequate coordination of activities and various actors on the ground, (ii) irregular functioning of consultative frameworks, (iii) inadequate feedback and transmission of information, (iv) difficulties in recruiting lessees following the acceptance of the VWS units. At completion, the economic rate of return was 14.9%.

2. For each dimension of project design and readiness for implementation, provide a brief assessment (up to two sentences). Insert a working score, using the scoring scale provided in Appendix 1.

PROJECT DESIGN AND READINESS FOR IMPLEMENTATION DIMENSIONS

ASSESSMENT Working Score

REALISM (a) Project complexity is matched with country capacity and political commitment.

The country’s capacity was analysed. To remedy some of the weaknesses noted, the evaluating team made provision for the building of the capacity and resources of entities involved in the project implementation. The Bank secured the country’s political commitment.

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RISK ASSESSMENT AND MITIGATION

b) Project design includes adequate risk analysis

The assumption/risk assessment in the logical framework proved to be accurate during the project implementation. Some unforeseen risks materialized during implementation such as climate change (drought), red-tape hampering national procurement procedures and capacity of lessees.

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USE OF COUNTRY SYSTEMS

c) Project procurement, financial management, monitoring and/or other systems are based on those already in use by government and/or other partners.

The procedures for the procurement of goods, services and works applied were those of the Government and the Bank. But the process was cumbersome and the administrative, financial and accounting procedures manual was lacking at the project start-up. The procedures used were those of the DG-Eau.

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For the following dimensions, provide separate working scores for Bank performance and Borrower performance:

Working Score

Bank Borrower

CLARITY

d) Responsibilities for project implementation were clearly defined.

The responsibilities of the various actors and beneficiaries were clearly defined at appraisal. The borrower took this into account, despite the challenges affecting the operation of the PCU and its working relationships with the supervisory body.

4 2

PROCUREMENT READINESS

e) Necessary implementation documents (e.g. specifications, design, procurement documents) were ready at appraisal.

The Bank financed the relevant studies. At appraisal, some studies had been completed and approved and the key documents required for implementation were ready 3 3

MONITORING READINESS

f) Monitoring indicators and monitoring plan were agreed upon before project launch.

The project did not have a monitoring-evaluation manual but used the updated DG-Eau SIG-Eau database and a table containing results indicators based on the logical framework. The meetings of the Monitoring Committee were held regularly. The Bank’s supervision missions were regular.

3 2

BASELINE DATA g) Baseline data was available or was collected during project design.

Baseline data was available at project start-up but the baseline study was not. The technical data has been stored in the SIG EAU database. Some financial data is not available to the PCU.

3 2

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F. IMPLEMENTATION

State the major characteristics of project implementation with reference to: adherence to schedules, quality of construction or other work, performance of consultants, effectiveness of Bank supervision and effectiveness of Borrower oversight. Assess how well the Bank and the Borrower ensured compliance with safeguards.[200 words maximum.] [Any additional narratives about implementation should be included at Annex 6: Project Narrative

The sub-programme started with considerable delay. The loan became effective 19 months following the signing of the agreement and the conditions of the first disbursement were met 10 months later. Unduly long delays hampered the procurement process with an average duration of 11 months for works, 14 months for goods and 10 months for services; there was significant delay with the Bank’s non-objection notification. Also, the delay in releasing sites for the project affected the start of works; hence the drilling of boreholes began only in 2009. The 30-month implementation period starting from July 2005 to December 2007 was not adhered to and the project was completed only in June 2012. The DWS facilities were entirely executed by 8 contractors selected by national competitive bidding and under the supervision and control of consulting firms and overall direction of DGH-Eau regional departments. The 6-month duration for the execution of works lots was adhered to by 5 contractors and slightly exceeded by 3 contractors. Some good quality facilities have already been provisionally accepted and others definitively accepted. Overall, 6 consulting firms and 20 local consultants were involved and their services were deemed to be fairly satisfactory. Works for the sanitation facilities were executed by 68 local masons selected, trained and equipped by the sub-programme. Supervision and control of the latrine works were carried out by local consultants under the supervision of the DHAB regional departments. The facilities are of good quality and the masonry work is satisfactory. The Bank supervised the project at the rate of two missions per annum except in 2008 and 2011. In 2012, a financial supervision mission was conducted. The Bank’s intervention was somewhat satisfactory, as despite the missions, the financial problems persisted and constituted the weak points of the project. Furthermore, the environmental assessment and formulation of an ESMP were not undertaken and no specific environmental safeguards were put in place.

2. Comment on the role of other partners (donors, NGOs, companies, etc.). Assess the effectiveness of co-financing arrangements and donor coordination, if applicable.

As part of the Government’s decentralization policy, the social intermediation activity was conducted by the local councils with the assistance of NGOs based on contracts. This method of work made for expeditious execution of the outreach and sensitization activities. As part of the collaboration between sector partners, periodic sector coordination meetings involving all the actors including the donors helped harmonize the interventions of the various partners. Overall the performance of contractors and consulting firms was satisfactory.

3. Harmonization. State whether the Bank made explicit efforts to harmonize instruments, systems and/or approaches with other partners.

The Bank contributed to the overhaul of the procurement system and formulation of a new public procurement code. The supervision missions established contacts with the various donors to coordinate their efforts. Furthermore, the PCU participated in discussions to develop and adopt manuals and guides for the harmonization of sector procedures and it conveys the viewpoints of the Bank.

4. For each dimension of projection implementation, assess the extent to which to the project achieved the following. Provide a brief assessment (up to two sentences) and insert a working score, using the scoring scale provided in Appendix 1.

PROJECT IMPLEMENTATION DIMENSION ASSESSMENT Working Score

TIMELINESS

a) Extent of project adherence to the original closing date. If number on the right is: below 12, “4” is scored between 12.1 and 24, “3” is score between 24.1 and 36, “2” is scored beyond 36.1,”1” is scored

Difference in months between original closing date and actual closing date or date of 98% disbursement rate

The original closing date was 31/12/2008. This was not shifted to t 30/06/2012. Considerable delay

1

42 months

BANK PERFORMANCE

b) Bank complied with:

Environmental Safeguards

The Bank classified the project as Category II in accordance with its guidelines, and observed the environmental safeguards but failed to ensure close monitoring of the implementation of the environmental activities.

2

Fiduciary Requirements

Commitments and all the fiduciary requirements were met from programme start-up to completion. 4

Project Covenants

The Bank took the necessary steps to ensure the timely signing of the agreement following its approval by the Board. It also fulfilled its commitments as stipulated in the Loan Agreement.

4

12

c) Bank provided quality supervision in the form of skills mix and practicality of solutions.

During the entire duration of the sub-programme, the Bank undertook 9 supervision missions. It mobilized the necessary skills and produced mission reports that are available at the Bank and the Executing Agency. The relevant recommendations were often not applied, resulting in the recurrence of some problems.

3

d) Bank provided quality management oversight

The Bank ensured that its procurement rules and procedures were followed. Audit reports and vouchers were scrutinized on each occasion and appropriate recommendations made to the Borrower, although there were delays in their approval by the Bank

2

BORROWER PERFORMANCE

e) Borrower complied with:

Environmental Safeguards The environmental assessment and ESMP were not carried out and the safeguards were only partially applied. 2

Fiduciary Requirements

Fiduciary requirements were not satisfactorily met. The preparation of financial statements (2007, 2008 and 2009) suffered delays, those of 2010 were rejected twice and those of 2011 and 2012 have not yet been audited. The counterpart fund was not released regularly and payments of the governmental portion of contractors’ invoices are outstanding.

1

Project Covenants The project covenants were adhered to.

4

f) Borrower was responsive to Bank supervision findings and recommendations

The Borrower was generally responsive to the Bank’s recommendations, despite the challenges encountered in the project financial management and auditing, due to failure to apply the recommendations. 2

g) Borrower collected and used monitoring information for decision making.

Some recommendations of the monitoring, supervision and external monitoring missions as well as most of the monitoring committee’s suggestions were implemented. For technical decision making, the Borrower used information obtained from the monitoring process.

2

G. COMPLETION

1. Is the PCR delivered on a timely basis, in compliance with Bank policy?

Date project reached 98% distribution rate (or closing date, if

applicable)

Date PCR was sent to pcr@afdb.org

Difference in months

WORKING SCORE (automatically generated) If the difference is 6 months or less, a 4 is scored. If the difference is 6.1 or more, a 1 is scored.

30 June 2012 July 2012 1 4

Briefly describe the PCR Process. Describe the Borrower’s and co-financier’s participation in producing the document. Highlight any major differences of opinion concerning the assessments made in this PCR. Describe the team composition and confirm whether a site visit was undertaken. Mention any major from other development partners. State the extent of field office involvement in producing the report. Indicate whether comments from Peer Reviewers were received on time (provide names and positions of Peer Reviewers). [100 words maximum]

The completion mission organized by the Bank comprised a consulting water and sanitation expert and a consulting financial analyst. Their profiles matched the two major features of the project, namely DWSS capacity building and financial management. When the time came for the mission (52 days from closing of the programme), the experts recruited by the project had relinquished their positions, except the PCU Coordinator, recruited without a contract or remuneration. The Coordinator, DG-Eau staff and the DNS were available and assisted the mission team members in office work and field trips. Interviews with the beneficiaries and partners in the field provided a better understanding of the realities and results achieved. The PCR is the product of participatory work involving all the stakeholders, and lessons learned from frank discussions with the various actors.

List of Peers:

J. M. OSSETTE, Water and Sanitation Engineer, AWF/OWAS J. THIOMBIANO, Water and Sanitation Engineer, Consultant OWAS.2 P. HUROGAVYE, Socioeconomist OWAS.1 S. BARA, Gender Expert OWAS.

13

H. LESSONS LEARNED At completion, there were a number of lessons to be learned from the sub-programme in terms of design, implementation and monitoring, namely:

(i). The performance of the Programme Coordination Unit was unsatisfactory, partly as a result of the reduced number and quality of staff

as well as lapses in institutional anchoring. For normal operation, the PCU should include specialists in the main project intervention areas, recruited on a competitive basis with duties clearly defined in a work contract backed by a performance contract linking the staff to the coordinator and the latter to the project supervisory authority. Special attention should be paid to the institutional framework, institutional anchoring of the PCU and serviceability of the PCU in relation of the administrative supervisory body and the technical supervisory entity.

(ii). Implementation of the sub-programme through the DG-Eau and its decentralized structures for the drinking water component and

DHAB and its decentralized structures for the sanitation component, involvement of the local councils in the project management enabled these various entities to own the results achieved by the various structures.

(iii). The non-execution of some activities, notably studies for better knowledge and optimal management of water resources and DWSS

facilities and capacity building, prevented this operation from enhancing the performance of the water and sanitation sector. (iv). The leasing of DWS facilities, currently a countrywide practice, is a recent experience and its underlying mechanism is deficient.

Hence, it is time to conduct a situation analysis of the system, with a view to establishing an enabling legal framework to strengthen activities for the supervision, monitoring and sustainable management of the DWS equipment, as well as determine the conditions of their financial performance.

(V) Prior to the project start-up, ensure the availability of an administrative, financial and accounting procedures manual to guide all the project operations, and a monitoring-evaluation manual with objectively verifiable indicators. Two major activities, namely monitoring-evaluation and mid-term evaluation were neglected, the former was inadequately carried out and the latter overlooked. These two activities should be restored in the OWAS project cycle and during mid-term reviews. Also, the mission should be conducted by experts different from those in charge of project management and supervision in order to ensure a critical assessment of the implementation and operation of the system put in place and proffer relevant recommendations to enhance project performance or refocus the project, where necessary.

(vi). Strengthen project monitoring in countries without Bank representation, so as to avoid the delays and lapses observed in the project

implementation.

14

I. PROJECT RATINGS SUMMARY

Insert scores from relevant tables in the different sections of the PCR. For example, please insert the “Overall Output Score” in Section D.I of the “Achievement of Outputs” box.

CRITERIA SUB-CRITERIA Working

Score

PROJECT OUTCOME

Achievement of outputs 3.06

Achievement of outcomes 2.22

Timeliness 1.00

OVERALL PROJECT OUTCOME SCORE (Average score) 2.09

BANK PERFORMANCE

Design and Preparedness

Project Objectives were relevant to country development priorities 4

Project Objectives could in principle be achieved with the project inputs and in the expected time frame 3

Project Objectives were consistent with the Bank’s country or regional strategy 4

Project Objectives were consistent with the Bank’s country or regional strategy 4

The log frame presents a logical causal chain for achieving the project development objectives. 3

The log frame expresses objectives and outcomes in a way that is measurable and quantifiable 2

The log frame states the risks and key assumptions 2

Project complexity was matched with country capacity and political commitment 3

Project design includes adequate risk analysis. 3

Project procurement, financial management, monitoring and/or other systems were based on those already in use by government and/or other partners. 3

Responsibilities for project implementation were clearly defined 4

Necessary implementation documents (e.g. specifications, design, procurement documents) were ready at appraisal 3

Monitoring indicators and monitoring plan were agreed upon during design. 3

Baseline data was available or were collected during design. 3

PROJECT DESIGN AND READINESS SUB-SCORE) 3,14

Supervision:

Bank complied with:

Environmental Safeguards 2

Fiduciary Requirements 4

Project Covenants 4

Bank provided quality supervision in the form of skills mix provided and practicality of solutions 3

Bank provided quality management oversight. 4

PCR was delivered on a timely basis 4

SUPERVISION SUB-SCORE 3.5

OVERALL BANK PERFORMANCE SCORE 3.325

BORROWER PERFORMANCE

Design and Readiness

Responsibilities for project implementation are clearly defined. 3

Necessary implementation documents (e.g. specifications, design, procurement documents) are ready at appraisal.

3

Monitoring indicators and monitoring plan are agreed upon and baseline data are available or are being collected.

3

PROJECT DESIGN AND READINESS SCORE 3.00

Implementation

Borrower complied with:

Environmental Safeguards 1

Fiduciary Requirements 1

Project Covenants 3

Borrower was responsive to Bank supervision findings and recommendations. 2

Borrower collected and used of monitoring information for decision-making 2

IMPLEMENTATION SUB-SCORE 1.80

OVERALL BORROWER PERFORMANCE SCORE 2.40

15

J. PROCESSING

STEP SIGNATURE AND COMMENTS DATE

Sector Manager Clearance Kéba BA

Regional Director Clearance Janvier LITSE

Sector Director Approval Sering JALLOW

I

ANNEX 1: Programme Cost and Financing by Sources, Costs at Appraisal and at Completion

Programme Cost by Component (In UA million) Estimate Actual

Component F.E L.C Total F.E L.C Total Diff.

A Infrastructure Development 3.73 4.79 8 .52 6.61 0.90 7.51 -1.01

B Study, Works Supervision and Control 0.61 0.89 1.50 0.45 0.09 0.54 -0.96

C Information Education and Communication 0.22 0. 30 0.52 0.10 0.01 0.11 -0.41

D Institutional Support 0.60 1.00 1.60 0.58 0.08 0.66 -0.94

E Management 0.22 0. 31 0.53 0.42 - 0.42 -0.11

Total 5.38 7.29 12.67 8.16 1.06 9.24 -3.43

Programme Cost by Source of Financing (In UA million)

Estimate Actual

Source F.E L.C Total F.E L.C Total Diff.

ADF 5.38 5. 36 10.74 8.16 - 8.16 -2.58

Government - 1.50 1.50 1.06 1.06 -0.44

Beneficiaries - 0.43 0.43 - - - -0.43

Total 5. 38 7.29 12.67 8.16 1.06 9.22 -3.45

II

ANNEX 2: Bank’s Inputs

Bank’s Inputs (Supervision Missions)

N° Mission Date No. of Days

No. of Persons

Composition

1 Supervision 27/2-5/03/2007 8 1 - Kéba BA, Financial Analyst, Project Officer

2 Supervision 7-8/10/2007

2 1 - Kéba BA, Financial Analyst, Project Officer

3 Supervision 05-16/05/2008 12 2 - Kéba BA, Financial Analyst, Project Officer and - C. LIM, Senior Analyst

4 Supervision 22/1-06/02/2009

15 1 - Kéba BA, Financial Analyst, Project Officer

5 Supervision 06-14/10/2009 9 2 - Kéba BA, Financial Analyst, Project Officer and - EL HRKOUBI, Water and Sanitation Engineer

6 Supervision 26/5-02/06/2010

8 2 - Kéba BA, Financial Analyst, Project Officer and - Jérôme THIOMBIANO, Water and Sanitation

Engineer

7 Supervision 5-17/11/2010 13 1 - Kéba BA, Financial Analyst, Project Officer

8 Supervision 10-26/06/2011 17 1 - M. Kéba BA, Financial Analyst, Project Officer

9 Supervision 23-29/02/2012 7 1 - Elhadji Amadou M’BAYE, Water and Sanitation

Engineer

10 Completion 23/08/ au 02/09/12 2 - Amadou Baba SY, Water and Sanitation Engineer,

Consultant - Mustapha EL GHALI, Financial Analyst, Consultant

III

ANNEX 3: Economic Analysis of Programme

Assumptions for Calculating Economic Rate of Return

1 – Time saving and development of income generating activities: Water chores are generally entrusted to women and children. Time saved in fetching a 25-litre bowl of water is estimated at 23 minutes. This includes the time taken going and coming, waiting in a queue and chatting. On an annual basis, this translates into 17.5 days per household. There are 45,166 households in the project area with an average of 6 persons per household (271,000 /6). The project will enable the population of the area to save 790,416 days, 70% of which will be devoted to other tasks. Given a daily wage of CFAF 10,000 per person, the total annual earning amounts to CFAF 553,291,667. 2 – Reduction of diseases, financial savings and increased productivity The water points, together with adequate sanitation and storage, help reduce diseases by 30% (malaria, diarrhoea and vomiting). A household spends on average CFAF 30,000 /year to treat these diseases. And it loses 39 days/year corresponding to CFAF 39,000/year. The total population covered by the project is 280,400 (9400 for sanitation) comprising 46,733 households. The saving for health expenditures is CFAF 420,597,000 and CFAF 546,776,000 for work stoppage, due to illness representing a total of CFAF 967,373,100. 3- Operating Expenses of DWSS facilities Drinking water facilities: In Atlantique, the project financed 12 large VWS and 2 small VWS units; and in Zou 4 large ones and 3 small ones (totalling 16 large VWS and 5 small ones). The operating cost for the large ones is CFAF 15 million and CFAF7 million for small ones. The total cost is CFAF 240,000 + CFAF 35,000.000 = CFAF 275,000,000. The project also funded 37 IWS units with an operating cost of CFAF 4,000,000. The cost amounts to CFAF 148,000,000. The total cost is 423,000,000 *0.70 = CFAF 296,100,000 Sanitation facilities The operating cost of sanitation is low. It amounts to CFAF 2000/block/month namely CFAF 5,808,000*0.7 = CFAF 4,065,000.

The total operating cost of the project is CFAF 300,165,000/year. 4- Renewal The renewal rate of pumps is every 7 years, i.e. 58 x CFAF 2,000,000 equivalent to CFAF 116,000,000 in foreign exchange /7years. Power generators must be renewed every 7 years

37 IWS at the rate of CFAF 7 million, making CFAF 185,000,000 5 VWS at the rate of CFAF 7 million, making CFAF 35,000,000 16 large VWS at the rate of CFAF 12,000,000, making CFAF 192,000,000

That is 412,000,000 + 116,000 = CFAF 528,000,000/ 7years. For latrines: CFAF 12,000 * 242 = CFAF 2,904,000/year. 4 – For the investments, account was taken of foreign currency costs and for the economic costs of the project activity, account was taken of the opportunity cost of the labour and the effects of 70% taxes. 5 – The residual value of the project is estimated at 10% of the project foreign currency cost. The economic rate of return at completion is 14.9%, which is satisfactory in view of the social nature of the project.

IV

Calculation of Economic Rate of Return

Project Cost Operating Cost Time Saved Health Gains Flows to be discounted

2008 808 346 -808 346

2009 684871 -684 871

2010 1156177 -1 156 177

2011 2669972 -2 669 972

2012 1566675 300165 553291 967373 -346 176

2013 2900 300165 553291 967373 1 217 599

2013 2900 300165 553291 967373 1 217 599

2014 2900 300165 553291 967373 1 217 599

2015 2900 300165 553291 967373 1 217 599

2016 2900 300165 553291 967373 1 217 599

2017 2900 300165 553291 967373 1 217 599

2018 531900 300165 553291 967373 688 599

2019 2900 300165 553291 967373 1 217 599

2020 2900 300165 553291 967373 1 217 599

2021 2900 300165 553291 967373 1 217 599

2022 2900 300165 553291 967373 1 217 599

2023 2900 300165 553291 967373 1 217 599

2024 2900 300165 553291 967373 1 217 599

2025 531900 300165 553291 967373 688 599

2026 2900 300165 553291 967373 1 217 599

2027 2900 300165 553291 967373 1 217 599

2028 2900 300165 553291 967373 1 217 599

2029 2900 300165 553291 967373 1 217 599

2030 -691504 300165 553291 967373 1 912 003

ERR =14.9%

V

ANNEX 4: Major Contracts Signed.

N° Scope Contract Amount Local Currency

Supplier Nationality Procurement Method

A1 Dolvi VWS 67,723,750 CFAF AGIRE Beninese NCB

A2 Lokozoume VWS 52,207,850 CFAF EWA Beninese NCB

A3 Houègbo VWS 245,079,225 CFAF AMEN GENERAL Beninese NCB

A4 Naouli VWS 67,119,570 CFAF CEC BTB Beninese NCB

A5 Glodjigbé VWS 408,225,250 CFAF AGIRE Beninese NCB

A6 Glodjigbé VWS 185,851,055 CFAF AGIRE Beninese NCB

A7 Adjogon Ouassa VWS 231,911,450 CFAF SONEPI Beninese NCB

A8 Yaago Bssa VWS 156,846,590 CFAF Afric solar Beninese NCB

A9 Yokon Houégbo VWS 180,965,000 CFAF AGIRE Beninese NCB

A10 ADJAGBO VWS 256,555,500 CFAF SONEPI Beninese NCB

A11 Kpomasse VWS Dekenmé 336,483,550 CFAF CEG BTP Beninese NCB

A12 Lot6 VWS Houégoudo

284,759,350 CFAF AMEN GENERAL Beninese NCB

A13 Hévié LOT 2 VWS 532,852,250 CFAF VERGNET/AGIRE Beninese NCB

A14 Amoulèhoué lot 4 182,445,700 CFAF SOBEC BTP Beninese NCB

A15 Djanglamé VWS 150,659,950 CFAF SAFRETTE Beninese NCB

A16 Borehole 82,188,200 CFAF SIAD Beninese NCB

CFAF Beninese NCB

A17 ABOMEY Extension 29,583,400 CFAF SAFRETTE Beninese NCB

A18 AGBANGNIZOUN Extension

86,260,550 CFAF CEC BTP Beninese NCB

A18 Bohicon Extension 167,811,250 CFAF Agire Beninese NCB

A19 PEA AGBANOU 100,900,950 CFAF Baticor Beninese NCB

A20 PEA Ahouannonzou lot 2

172,902,750 CFAF GRPE AGIRE CRESS Beninese NCB

A21 Aganmalohc IWS 188,010,650 CFAF SAFRETTE Beninese NCB

A22 Akassato IWS 132,685,000 CFAF Gre amen sarre Beninese NCB

A23 Colli Aifa IWS 96,377,250 CFAF IBT Beninese NCB

A24 Ahomey Vekky IWS lot 6 123,917,250 CFAF GRPE Beninese NCB

B1 Vehicle purchase 58,000,000 CFAF SOCAR Beninese Shopping

B2 Lab equipment 42,054,110 CFAF CAS LE ROCHER Beninese Shopping

S1 Social Intermediation 19,538,100 CFAF AERAMR Beninese Shortlist

S2 Social Intermediation 19,708,950 CFAF AERAMR Beninese Shortlist

S3 Control studies 104,649,875 CFAF SETEM BENIN Beninese Shortlist

S4 Social Intermediation 21,129,804 CFAF CREPA Beninese Shortlist

S5 AERAMR 15,544,800 CFAF AERAMR Beninese Shortlist

S6 Control studies 99,236,650 CFAF GPT BNIC SAED Beninese Shortlist

S7 Supplementary control 10,370,000 CFAF ESSOR AC Beninese Shortlist

S8 Supplementary control 8,500,000 CFAF CANAL EAU Beninese Shortlist

S9 Supplementary control 57,511,000 CFAF CANAL EAU Beninese Shortlist

S10 Supplementary control 26,095,000 CFAF CANAL EAU Beninese Shortlist

S11 AUDIT 600,000 CFAF SIEGA Beninese Shortlist

VI

ANNEX 5: Sub-Programme Status at Completion

The overall implementation rate of the sub-programme is 80 %. The initial objectives in terms of the number of DWSS facilities constructed were achieved and largely exceeded for drinking water supply (DWS), namely 1084 water points equivalent (WPE) as against the 840 originally projected, representing a physical implementation rate of 129%. The operational activities began in 2008 and were gradually completed end 2011 for some, and 2012 for others. The project fell thirty-nine (39) months behind the schedule set at the appraisal, with end December as the closing date. During the period, the activities undertaken entailed IEC, social intermediation, preparation of procurement documents for the recruitment of service providers, concerted identification of the various project sites and launch of relevant studies, as well the commencement of the initial DWSS works. There was no mid-term review and the changes made to the type and number of DWSS facilities earmarked in the Appraisal Report were decided prior to the project start-up. This was justified by national policy options made after the appraisal of the sub-programme. Status by Component Component A: Basic Infrastructure Development Drinking Water Supply (DWS): This component was fully implemented with a 129% physical implementation rate on the basis of a water point per 250 inhabitants. Overall, the two regions saw the construction of 11 high- flow rate boreholes, 18 large VWS, 3 small VWS, 37 IWS, 14 SONEB network extensions equipped 58 water towers, 488 standpipes (SPs), 108 private connections (PC) and 362 km of piping, corresponding to 1084 WPE, compared to the 840 planned at the appraisal, resulting in two hundred and seventy-one thousand (271,000) persons in 239 villages/localities gaining access to drinking water supply. The facilities show significant disparities, ranging from a simple water supply station for 1000 persons to a 10 to 40 km network for 2500 to 21000 persons (Glodjigbé and Hêvié). The distribution of the DWS facilities by region is as follows: Atlantique: 11 deep boreholes, 13 large VWS resulting from the grouping together of 25 small ones. 1 small VWS and 37 IWS; Zou: 5 large VWS, following the grouping together of 19 small ones, 2 small VWS and 14 extensions on the SONEB network. The physical implementation rate of the component is 129%. Sanitation: The sub-programme helped construct 241 3 to 5-cubicle institutional latrines corresponding to 976 cubicles in the schools and health centres for 48,800 persons and 4,345 household latrines for 26,070 persons. These may be broken down as follows: Atlantique: 130 institutional latrine units fitted with hand-wash basins corresponding to 532 cubicles; Zou: 111 latrines fitted with hand-wash basins with 1 latrine in a market on an experimental basis, making a total of 444 cubicles. The physical implementation rate of the component is 100%. The DWS structures constructed in Atlantique supply 15 villages with a total of188750 inhabitants on the basis of 20l/d/inhabitant. Those in Zou also supply 88 villages totalling 82250 inhabitants on the basis of 20l/d/inhabitant. Alongside the activities of other donors operating in the two regions, the sub-programme contributed to raising the service rate to 52.3% in Atlantique and 80.4% in Zou at end 2011. These results show that the MDG targets for 2015, set at 67.3% were exceeded in the Zou Region. However, these rates mask disparities and do not reflect the situation in numerous localities of less than 250 inhabitants. For sanitation, latrines were constructed in 219 schools with 102 in Zou and 117 in Atlantique, 18 health centres and 1 market, for a total of 42813 pupils and teachers, 3750 users made up of 2000 in Zou and 1750 in Atlantique and 2237 in 1 market. Furthermore, thanks to the hygiene and sanitation promotion effort, 4345 household latrines were constructed, 3373 in Zou and 972 in Atlantique. The access rate of this type of sanitation in rural areas is 32.47% for Atlantique and 26.58% for Zou. Operational Performance The DWS works comprising 27 lots were executed by 8 contractors selected on the basis of national competitive bidding. Supervision and control of the works were conducted by consulting firms recruited on the basis of a shortlist and under the supervision of DG-Eau regional departments. The 6-month schedule for the completion of works was adhered to by 5 contractors or slightly exceeded by 2 out of 8. Only one contractor slipped significantly behind schedule, before delivering a quality facility. The facilities built were generally of good quality and some were accepted provisionally and others definitively. Inadequacies were noted for some contractors: weak site planning and organizational capacity and weak financial capacity. However, overall, contractors who benefited from CEPEPE support performed satisfactorily. Delays were noted in the payment of the 15% owed to contractors as Government counterpart funding. Supervision and control activities were carried out by consulting firms for the infrastructural studies and by local consultants recruited by DHAB for the sanitation works. In total, this involved 6 consulting firms and 20 local consultants and their performance was average. In the course of the programme these service providers acquired experiences and know-how covering all the engineering and execution tasks. The sanitation works were executed through community-type direct negotiation by 68 local masons selected, trained and equipped by the sub-programme. Apart from constructing institutional latrines, they were also to contribute to promoting hygiene and sanitation by stimulating the demand for low cost household latrines and their construction. About 5% of the masons failed to adhere to the contractual duration of 2 months for the construction of a 4-cubicle VIP-type institutional latrine, ventilated double pit with a rear emptying system. Supervision and control of the works for these latrines were carried out by local service providers under the supervision of the DHAB regional departments whose functions have now been transferred to DNSP. Concerning household latrines, the masons helped construct 4345 latrines in the project area. Overall, the facilities are of good quality and the performance of the masons was satisfactory

VII

DWS infrastructure management and sustainability For the drinking water component, 18 large VWS, 37 IWS and 14 extensions of SONEB networks were constructed. Based on the new policy pursued by the TFPs, the management of these facilities was to be entrusted to lessees recruited by the local councils following competitive bidding processes. At project completion, the situation was as follows: Out of the 21 VWS, 7 large and 3 small VWS had already been leased out, for the 11 other VWS and the 37 IWS, the recruitment of lessees is ongoing. With regard to the 14 extensions, their transfer to SONEB is in progress. The functions assigned to the lessees include: (i) the sale of water at a rate fixed by the local council (between CFAF 400 and 600), (ii) payment of a municipal budget levy (CFAF 20 to CFAF 35 per m3) and a network equipment renewal and expansion fee (CFAF 65 to 85 per m3). The project sustainability depends mainly on the cost-effectiveness of these VWS units. However, in examining the income statements of the VWS visited, the mission noted that some were facing challenges due mainly to the low volume of water sold resulting in insufficient water sale proceeds to cover the relatively high operating expenses. To this end, it is suggested that an awareness campaign be undertaken to increase the volume of water consumed and pursue the recruitment of lessees. With regard to the SONEB extensions, they will be managed by the company thereby ensuring their sustainability. Furthermore: (i) most of the contracts with lessees will take effect only several months after the provisional acceptance of the facilities hitherto provisionally operated by management committees; (ii) the contribution to the initial investment by the local councils was never timely, despite the downward review of the rate; (iii) some leased VWS are showing deficits due to the insufficient revenues compared with the operating expenses.

Sanitation infrastructure management and sustainability Latrine management and maintenance system: The beneficiary entities of latrines (schools and health centres) made budgetary provision for the maintenance of the facilities. At the level of schools, the Government made provision for the replacement of padlocks, taps and anti-mosquito screens, estimated at CFAF 12,000/year. Health committees were put in place: 130 in Atlantique and 64 in Zou with a total of 518 members whose role is to oversee the application of rules of hygiene as well as the use and maintenance of the facilities in the beneficiary entities. Health/hygiene assistants at post in the municipal councils monitor the status of the facilities and report periodically to their supervisors as well as the municipal authorities. With regard to household latrines, their management and maintenance are catered for by the households under the supervision of community workers as well as the assistants. This system which has been operating for several years is satisfactory.

Component B: Studies, Works Control and Supervision

In view of the significant interruptions in implementation and successive extension of the completion dates (3), special focus was given to the construction of DWSS facilities to the detriment of activities to improve the performance of the sector. Indeed, key activities earmarked and budgeted for could not be carried out thereby impeding the sector performance. These are: (i) study of the hydrogeological modelling of the Zou and Atlantique water tables; (ii) strengthening and extension of the Geographic Information System (SIG-Eau) to include basic hygiene and sanitation; (iii) participation in the financing of the integrated water resource management (IWRM) process; (iv) financial participation in the financing of preliminary designs for water and sanitation projects for the preparation of future sub-programmes of the Initiative. The physical implementation rate of this component is about 60%.

Component C: Information Education and Communication (IEC) In the area of sanitation, the awareness, information, education and communication campaigns conducted by NGOs and community workers trained for villages by DHAB and local officials stimulated demand for domestic facilities and helped the users select the sanitation facility of their choice, mobilize counterpart funding and put in place health committees to manage the sanitation facilities provided. With regard to DWS, the IEC activities enabled the rural communities and local authorities to i) choose the technical options of the facilities; ii) form drinking water consumers’ associations; (iii) promote women’s participation in all the stages of the DWSS programmes; iv) inform local artisans involved in DWSS (masons, carpenters, scrap metal dealers and labourers) about employment opportunities; and v) assess the impact of the facilities in terms of improving their living conditions. In the area of social intermediation, outreach and training activities carried out by NGOs helped raise the awareness of the beneficiaries about the need to professionalize the management of VWS and IWS and train: (i) 210 community workers; (ii) 2762 teachers for hygiene and sanitation promotion in schools; (iii) 370 female food sellers in food hygiene; (iv) 68 masons; (v) 518 school health committees. Contrary to the arrangements in the programme appraisal report, these NGOs covered only about ¼ of the programme area in order to ensure the efficient use of resources. They participated alongside the consulting firms, in the preparation of the implementation documents of 2 VWS in the Ouidah municipality, 7 extensions in the Bohicon and Abomey municipalities and 5 IWS rehabilitated in the Sô-Ava municipality.

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Component D: Institutional Support This component aims at building the capacity of the water and sanitation sector actors. These include the DGH, DHAB, SDH and SDHAB and local councils of Atlantique and Zou, Ministry of Family, Social Protection and Solidarity and private operators in the water and sanitation sector. To this end, the technical departments of the local councils of the two regions, contractors and consulting firms as well as NGOs involved in water and sanitation sector received training to improve their performance. The Centre for Small and Medium Enterprise Promotion and Supervision (CEPEPE) was supported by the sub-programme to assist private operators involved in the sub-programme implementation in the preparation of their bidding documents, monitoring of works sites, advisory services and management and training assistance. Equipment and machinery for activities that were not carried out were not procured. Thus, the computer equipment intended for the SIG-Eau, and local councils, topographic equipment and scientific equipment were not procured. This was also the true for the study on the gender mainstreaming action plan. On the other hand, the training activities were mostly carried out and CEPEPE played a key role in providing advisory support, training, building the capacity of small and medium enterprises and consulting firms involved in the sub-programme implementation. As part of the transfer of the ownership of the DWSS facilities to the municipal authorities, specific training activities were organized for them. Thus, under training, a variety of themes and practices to meet the needs of users were developed for the beneficiaries by CEPEPE and the NGOs. These mainly entailed: (i) the preparation of bidding documents; (ii) contract organization and management; (iii) 2008 tax regulations for water and sanitation operators; (iv) bids evaluation, contract award and approval; (v) project management specific to village water supply; (vi) financial and strategic management for NGOs and local councils: resource mobilization strategies and financial sustainability; (vii) techniques for procedures manual formulation and internal auditing requirements; (viii) new approaches to the management and monitoring of rural DWSS facilities; (ix) methodology for managing and monitoring contracts for delegating public municipal service contracts: case of leased VWS; (x) methodology for sizing rural and peri-urban DWS facilities; (xi) human resource management in water and sanitation sector SMEs. Training activities for community workers, teachers, masons and female food sellers in schools were completed to the levels of 105 %, 575%, 100% and 123% respectively. The Private Sector Support, Supervision and Training component implemented by CEPEPE in accordance with the arrangements made in coordination with the Dutch Cooperation Agency was also completed. Thus, in addition to the training activities, the programme contributed to supervising 326 operators involved in the project. Component E: Programme Management The institutional arrangement outlined in the Appraisal Report was largely followed. An executing agency was created and placed under the responsibility of DG-Eau in Cotonou and not Boihicon The coordinator, socioeconomist and financial expert were recruited. Two sector focal points were appointed, one from DG-Eau for the water component and the other from DHAB for the sanitation component. Lastly, a monitoring committee was put in place. In the course of project implementation, the executing agency changed and became the Programme Coordination Unit (PCU). The latter did not function for two reasons: i) the quality of its staff, notably the financial expert and socioeconomist, and ii) lack of management autonomy in relation to the Administration. Apart from not being fully autonomous, the staff was replaced during the project implementation. The financial officer was dismissed for incompetence, which explains the lapses in accounting and delay in preparing the financial statements. The project accounting was entrusted to the DG-Eau Financial Department which has other responsibilities, and did not consider the project accounting as a priority. Furthermore, the terms of reference of the socioeconomist were not clear and he was also dismissed. The impact assessments conducted by the project are sketchy, compared with those by the Netherlands and Germany (IOB Report) which operate in other regions of the country. The mission team relied heavily on the studies conducted by these donors and discussions with operators and beneficiaries to assess the project impact.

Monitoring Evaluation: The project does not have a monitoring-evaluation manual and a database specific to the programme, but relies on the DG-Eau database. The results indicators are fed with data collected in the field by the NGOs, consulting firms and the decentralized departments of DG-Eau and DHAB. The programme activities were monitored through the various reports established. The Monitoring Committee regularly holds meetings to evaluate the programme and validate the activity reports and PTBA. Nine (9) supervision missions including one (1) portfolio review were conducted by the Bank. The missions helped review the status of activities in relation to the projections, assess the various difficulties encountered and make recommendations. Cross-cutting activities

Environmental and social issues: The project is classified as Environmental Category II. The Environmental and Social Management Plan (ESMP) was not formulated. The environmental assessment was not undertaken and, therefore, no specific environmental protection action was taken by the project. Sensitization sessions were organized with regard to the human health component for the prevention and awareness campaigns on malaria and HIV/AIDS.

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Mainstreaming gender in project activities The project addressed gender issues and fostered the high involvement of women in its various activities. Indeed, under gender promotion the following were achieved: 370 female sellers sensitized and trained, 67 women trained, representing 19 % of the total and distributed as follows: 18 (contractors), 13 (consulting firms), 16 (NGOs), 23 (local councils), and 7 (Administration); 195 stand-pipe bailiffs, 78 health committee officials and 290 women in drinking water consumers associations. 2.2 Project Financial Statement: The final cost of the project is UA 9.23 million (including ongoing disbursements amounting to UA 101,953). However, the estimated cost at the appraisal was UA 12.67 million representing a 27% shortfall essentially due to the non-execution of some activities. The ADF contributed UA 8.15 million, representing 88.4 %, compared with the 85% stated in the appraisal report. The Government and beneficiaries were assigned 12% and 3% respectively. At implementation, it was decided that the Government should pay the totality of the counterpart funds, namely 15 %. But in fact it only paid 11.6%. Moreover, this was not paid into an account for release to the PCU. The expenses were directly paid by the Treasury. It was difficult for the PCU to monitor payments to contractors and service providers. Furthermore, some municipal councils mobilized their counterpart funding after the construction of the facilities. An estimated 69.8% of the project was implemented. Components A, B, C, D, and E were 83.29%, 35.24%, 21.6%, 40.2% and 79.76% implemented, respectively. The total amount disbursed was UA 10.74 million. Direct payments amounted to UA 9,277,144. Total advances in the special account amounted to UA 1,462,856. Part of these advances was used for the sanitation component (CFAF 320,676,348 equivalent to UA 488,868. Auditing of Accounts: Pursuant to the Bank’s rules and procedures, the programme accounts were to be audited annually and submitted to the Bank six months after closing. But the first report covered the three periods namely 2007, 2008 and 2009, as a result of the delay in recruiting the first audit firm. The report for 2010 was rejected twice. The financial statements for 2011 and 2012 are not ready.

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ANNEX 6: List of Supporting Documents

BENIN Rural Drinking Water and Sanitation Programme

- PCU Activity Reports, - Completion Preparatory Report, - Appraisal Report; - Impact Assessment Funded by German Cooperation Agency.