SCCD: G. G.

AFRICAN DEVELOPMENT FUND

PROJECT COMPLETION REPORT

COTONOU-PORTO NOVO ROAD REHABILITATION PROJET

REPUBLIC OF BENIN

INFRASTRUCTURE DEPARTMENT ex-OCIN CENTRAL AND WEST REGIONS JANUARY 2006

CONTENTS Pages

CURRENCY EQUIVALENTS, FISCAL YEAR, LIST OF ANNEXES; ACRONYMS AND ABBREVIATIONS, BASIC PROJECT DATA; (i-ix) PROJECT MATRIX AND EXECUTIVE SUMMARY

1 INTRODUCTION......................................................................................................................................... 1

2 PROJECT OBJECTIVES, DESCRIPTION AND FORMULATION..................................................... 1 2.1 Project Objectives ...................................................................................................................................... 1 2.2 Project Description..................................................................................................................................... 2 2.3 Project Formulation.................................................................................................................................... 2 2.4 Identification, Preparation, Appraisal, Negotiation and Approval............................................................. 3

3 PROJECT IMPLEMENTATION............................................................................................................... 3 3.1 Loan Effectiveness, and Start-Up............................................................................................................ 3 3.2 Covenants and Conditions.......................................................................................................................... 4 3.3 Project Implementation .............................................................................................................................. 4 3.4 Modifications ............................................................................................................................................. 4 3.5 Implementation Schedule........................................................................................................................... 5 3.6 Reporting.................................................................................................................................................... 5 3.7 Award of Contracts................................................................................................................................... 5 3.8 Costs, Sources of Financing, and Disbursements ...................................................................................... 6

4 PROJECT PERFORMANCE AND RESULTS......................................................................................... 8 4.1 Overall Assessment.................................................................................................................................... 8 4.2 Operating Performance .............................................................................................................................. 8 4.3 Institutional Performance ........................................................................................................................... 9 4.4 Performance of Consultants, Contractors and Suppliers.......................................................................... 10 4.5 Economic Performance ............................................................................................................................ 11

5 SOCIAL AND ENVIRONMENTAL IMPACT OF THE PROJECT ................................................... 12 5.1 Social Impact............................................................................................................................................ 12 5.2 Environmental Impact .............................................................................................................................. 12

6 PROJECT SUSTAINABILITY................................................................................................................. 13

7 PERFORMANCE OF THE BANK, BORROWER, EXECUTING AGENCY AND OTHER DONORS ..................................................................................................................................................... 13

7.1 Performance of the Bank.......................................................................................................................... 13 7.2 Performance of the Borrower................................................................................................................... 13 7.3 Performance of the Executing Agency..................................................................................................... 14 7.4 Performance of the Other Donors ............................................................................................................ 14

8 OVERALL PERFORMANCE AND RATING........................................................................................ 14

9 CONCLUSIONS, LESSONS LEARNT, AND RECOMMENDATIONS ............................................. 15 9.1 Conclusions.............................................................................................................................................. 15 9.2 Lessons Learnt ......................................................................................................................................... 15 9.3 Recommendations .................................................................................................................................... 16 This report was prepared by Mr. Mamady SOUARE, Transport Engineer and a Consultant, Civil Engineer, OCIN.3, following their mission to Benin in December 2004. Mr. Moctar MBODJ, Transport Economist, OCIN.3 also participated in the preparation of the report. Questions on this document may be referred to Mr. Alex RUGAMBA, Division Manager, OCIN.3.

i

CURRENCY EQUIVALENTS

Currency unit (December 2004) 1 UA = 771.871 CFAF 1 UA = 1.49878 USD 1 UA = 1.17671 EURO 1 CFAF = 0.001296 UA 1 USD = 0.667209 UA 1 EURO = 0.849827 UA

Exchange Rate Trend Average exchange rate 1995 1998 2001 2004 UA/CFAF 756.690 791.609 933.348 771.871

FISCAL YEAR

1 January to 31 December

LIST OF ANNEXES

Titles

1 Map of Benin 2 Project Location Map 3 Cost of Project at Appraisal and Completion 4 Sources of Financing by Category of Expenditure of the

ADF/NTF/WADB/KFW/Government Components 5 Annual Disbursements made by the Bank 6 Economic Analysis and Sensitivity Analysis 7 Performance Evaluation and Rating 8 Matrix of Recommendations and Follow-up Measures 9 Sources of Information

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ACRONYMS AND ABBREVIATIONS

AC = Asphalt Concrete ADB = African Development Bank ADF = African Development Fund BGDR = Road Data Management Office CAA = Caisse Autonome d’Amortissement – Autonomous amortization fund CR = Central reservation CRI = Contractor’s Risk Insurance DGTP = Public Works Department DMRP = Directorate of Major Road Projects DROA = Department of roads and civil works ECOWAS = Economic Community of West African States EDF = European Development Fund EL = Emergency Lane HDM = Highway Design and Maintenance Standards Model HDM = Highway Development and Management IRI = International Roughness Index IRR = Internal Rate of Return KFW = Kreditanstalt für Wiederaufbau LV = Light vehicles MPWT = Ministry of Public Works and Transport NTF = Nigeria Trust Fund RF = Road Fund SME = Small and Medium-sized Enterprises SRCS = Studies, Regulation and Control Service TSP = Transport Sector Programme UA = Unit of Account USD = US Dollar Veh/d = Vehicles per day VOC = Vehicle Operating Cost WADB = West African Development Bank WAEMU = West African Economic and Monetary Union

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A BASIC PROJECT DATA 1. Country : BENIN 2. Loan number : F/BEN/RTE/96/30 et N/BEN/REA-RTE/96/2 3. Borrower : Republic of Benin 4. Executing Agency : Ministry of Works and Transport

General Directorate of Public Works 5. Beneficiary Republic of Benin 6. ADF Loan 6.1. Amount : UA 10.00 million 6.2. Duration : 50 years 6.3. Interest rate : 0 % 6.4. Repayment period : 1 % of the principal each year from the 11th to the 20th

year inclusive, and 3 % per year thereafter. 6.5. Grace period : 10 years 6.6. Service charge : 0.75% 7. NTF Loan 7.1. Amount : UA 6.00 million 7.2. Duration : 25 years 7.3. Interest rate : 4% a year on the balance of the amount disbursed 7.4. Repayment period : 40 equal half-yearly and consecutive payments 7.5. Grace period : 5 years 7.6. Commitment charge : 0.75% 8. Approval date : 04 September 1996 9. Loans Signature Date : 23 September 1996 10. Effectiveness date : 25 February 1998 11. Other sources of financing

WADB : UA 6.61 million EDF : UA 17.34 million KFW : UA 18.97 million Government : UA 2.10 million

B PROJECT DATA

Financing Plan for the Entire Project (In million UA)

Source of financing At appraisal At completion Difference

Currency LC Total (%) Currency LC Total (%) Currency LC Total (%) ADF 8.50 1.50 10.00 16.40 6.99 1.23 8.22 16.29 1.51 0.27 1.78 17.80NTF 6.00 0.00 6.00 9.80 4.64 0.00 4.64 9.20 1.36 0.00 1.36 22.67WADB 3.65 2.96 6.61 10.80 3.65 2.96 6.61 13.10 0.00 0.00 0.00 0.00 EDF 12.48 4.85 17.34 28.40 9.96 3.88 13.84 27.43 2.52 0.97 3.49 20.13KFW 13.54 5.43 18.97 31.20 10.81 4.34 15.15 30.02 2.73 1.09 3.82 23.10Government 0.00 2.10 2.10 3.40 0.00 2.00 2.00 3.96 0.00 0.10 0.10 11.00Total 44.17 16.84 61.01 100.00 36.05 14.41 50.46 100.00 8.12 2.43 10.55 17.29

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Financing plan by source of ADF/NTF/WADB/KFW/Government components (In million UA)

Source of financing At appraisal At completion Difference from appraisal

Currency LC Total (%) Currency LCL Total (%) Currency LC Total (%)

ADF 8.50 1.50 10.00 39.20 6.99 1.23 8.22 37.08 1.51 0.27 1.78 17.80

NTF 6.00 0.00 6.00 23.50 4.64 0.00 4.64 20.93 1.36 0.00 1.36 22.67

WADB 3.65 2.96 6.61 25.90 3.65 2.96 6.61 29.82 0.00 0.00 0.00 0.00

KFW 0.50 0.30 0.80* 3.10 0.44 0.26 0.70 3.16 0.06 0.04 0.10 12.50-

Government 0.00 2.10 2.10 8.30 0.00 2.00 2.00 9.02 0.00 0.10 0.10 11.00

Total 18.65 6.86 25.51 100.00 15.34 6.14 22.17 100.00 2.93 0.41 3.34 13.09* KFW financed the control and supervision of the ADF/NTF/WADB/KFW/Government components.

Dates of disbursement, star-up and completion of activities financed by the Bank

At appraisal At completion

1. Effective date of first disbursement 30 September1996 15 February 1999

2. Deadline for last disbursement (ADF) 31 December 2002* 30 June 2005

3. Deadline for last disbursement (NTF) 31 December 1999 30 June 2005

4. Date of commencement of project activities March 1996 April 1998

5. Date of completion of project activities 31 December 1998 31 December 2004

Although the date of completion of project activities was fixed at 31 December 1998, the deadline of the last disbursement (ADF) was fixed at 31 December 2002. An error was thus committed during the preparation of the loan agreement.

C PERFORMANCE INDICES OF THE COMPONENTS FINANCED BY THE BANK

Title %

1. Leftover of ADF and NTF loans UA 3.14 million 19.6

2. Time overrun 25 months

* Slippage on effectiveness (required deadline) 17 months 170

* Slippage on estimated completion date 72 months 318

* Slippage on last disbursement 66 months 188

* Number of extensions of the deadline for the last disbursement

3

3. Status of project implementation Completed 4. List of verifiable indicators and state of progress (in % of stages anticipated)

See matrix %

Insufficient Fair Satisfactory

5. Institutional performance X

6. Contractor’s performance X

7. Supervisory performance X

8. Rate of return Appraisal Completion

Internal Rate of Return (IRR) 29 and 58% per section 28%

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D MISSIONS FIELDED BY THE BANK

Composition Staff/days Dates Number of

people Civil engineer Transport economist

3. Appraisal July 1995 3 2 1 36 4. Supervisions - Supervision 1 5/10 to 15/10/1997 1 1 1 10 - Supervision 2 15/9 to 30/9/1999 2 1 1 30 - Supervision 3 25/6 to 10/7/2000 2 1 1 30 - Supervision 4 27/5 to 6/6/2001 1 1 9 - Supervision 5 18/3 to 30/3/2002 1 1 12 - Supervision 6 1/10 to 8/10/2002 1 1 8 - Supervision 7 16/11 to 1/12/2003 1 1 15 - Supervision 8 1/5 to 21/5/2004 2 1 1 40 5. PCR 15/12 to 23/12/2004 2 2 16 TOTAL 206

E DISBURSEMENTS RELEASED BY THE BANK (In million UA)

Year 1996 1997 1998 1999 2000 2001 2002 2003 2004 for 2005 Total

a) Estimate at appraisal (ADF) 1.70 4.00 4.30 10.00

b) Disbursements made (ADF) 4.08 2.27 0.83 0.13 0.00 0.72 0.19 8.22

c) Balance of ADF loan (a-b) 1.78

d) Estimate at appraisal (NTF) 1.00 2.40 2.60 6.00

e) Disbursements made (NTF) - 2.31 1.28 0.48 0.18 0.00 0.29 0.10 4..64

f) Balance of NTF loan (d-e) 1.36

g) Total balance (c+f)) 3.14

F CONTRACTORS AND CONSULTANTS AWARDED THE PROJECT CONTRACTS

Designation

Donor Contract amount in

billion CFAF

Contract awarded to

Deadline for the

contractual execution of

the initial contracts

Date of notification of

start-up

Contract amendment in billion CFAF

Works under lot A KFW 8.786 Satom 24 months 17/04/98 0.932

Works under lot B ADF/NTF /WADB/Gov. 14.168 Colas 26 months 16/11/98 2.160

Works under lot C. EDF 7.982 Satom 24 months 22/07/98 1.395 Tollbooth/weighing station equipment (lot B)

ADF/NTF/WADB 0.882 ASCOM-SEIB 10 months 11/01/02 0

Control and supervision KFW 1.281 Beller-IGIP

Group 32 months 05/02/98 0.383

Audit ADF 0.021 Price Waterhouse 8 months 0

TOTAL 33.120 4.870

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Date of appraisal: July 1995 Date of completion: December 2004 Design: Mr. SOURE, MBODJ, Consultant

REPUBLIC OF BENIN

COTONOU - PORTO NOVO ROAD REHABILITATION PROJECT

PROJECT MATRIX

EXECUTIVE SUMMARY OBJECTIVELY VERIFIABLE INDICATORS AT APPRAISAL

OBJECTIVELY VERIFIABLE INDICATORS AT COMPLETION

MEANS OF VERIFICATION IMPORTANT ASSUMPTIONS/ RISKS

1. SECTOR GOAL 1.1 Improvement of the domestic and

foreign trade of Benin and neighbouring Sahel countries.

1.2 Contribution to regional integration

1.1 Volume of Benin’s foreign trade

and transit of Sahel countries 1.2 Volume of regional trade

1.1 Increase in volume of Benin’s foreign trade

and transit of Sahel countries. 1.2 Increase in volume of regional trade.

1.1 Economic statistics and road

counts

2. PROJECT OBJECTIVES 2.1 Improvement of conditions of access to,

and exit from, Cotonou 2.2 Reduction in transport costs 2.3 Increase in revenue from Road Fund.

2.1 Fluidity of traffic 2.2 Reduction of time in driving

across Cotonou city, and continuity of the Godomey-Akossombo-Etoile Rouge-Sobréba-Sémé-Porto Novo link.

2.3 30% increase in revenue from

tollbooth into the accounts of the Road Fund.

2.1 Increased traffic fluidity, significant reduction

in the number of traffic jams since the speed increased from 20 km/h to 50 km/h on the highway.

2.2 Over 60% reduction un time spent in driving

across the city of Cotonou, and continuity of the Godomey-Akossombo-Etoile Rouge-Sobréba-Sémé-Porto Novo link.

2.3 At least 400% increase in revenue of tollbooth

into the accounts of the Road Fund as from 2003

2.1 Traffic counts and speed

statistics of MTPT and the Commune

2.2 Accounts of the Road Fund.

2.1 Continued implementation of the

transport strategy 2.2 Continued maintenance of the road

with the second generation Road Fund established and replenished with revenue from the tollbooth.

3.OUTCOMES 3.1 18.3 km of road in 2x2 lanes with

tollbooth/weighing station and bicycle path constructed on 9.4 km of road, widened and rehabilitated into a 7m wide roadway

3.2 Improved safety of road users.

3.1 Technical and geometrical

characteristics of the road. 3.2 Reduction in accidents

3.1 18.3 km of road in 2x2 lanes with equipped

tollbooth/weighing station, bicycle path, service road constructed in 2003. 9.4 km of road widened and rehabilitated into a 7m wide roadway constructed. Public lighting installed.

3.2 Security and comfort of users. Reduction in

rate of accidents

3.1 Quarterly Status Reports 3.2 ADF Supervisory Report 3.3 ADF Completion Report

3.1 Replacement of the defaulting

company operating the tollbooth/weighing station

3.2 Continued improvement in the

safety of road users

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EXECUTIVE SUMMARY OBJECTIVELY VERIFIABLE INDICATORS AT APPRAISAL

OBJECTIVELY VERIFIABLE INDICATORS AT COMPLETION

MEANS OF VERIFICATION IMPORTANT ASSUMPTIONS/RISKS

4. Component activities

4.1 Recruitment of contractors and

consultants 4.2 Road works including the

procurement of equipment for tollbooth/weighing station.

4.3 Control and supervision of works. 4.4 Project audit

4. INPUTS/RESOURCES

Categories of expenditure in million UA Currency LC Total A. Works 36.95 13.99 50.94 B. Control 1.48 0.67 2.15 C Audit 0.04 0.01 0.05 D Not allocated 5.70 2.17 7.87 Total 44.17 16.84 61.01 Source of financing in million UA Currency LC Total ADF 8.50 1.50 10.00 NTF 6.00 0.00 6.00 WADB 3.65 2.96 6.61 EDF 12.48 4.85 17.34 KFW 13.54 5.43 18.97 Govt. 0.00 2.10 2.10 Total 44.17 16.84 61.01

Human Resources Executing Agency (temporary Division of Works) Consultants for the supervision of the works and audit Supervisory missions by ADF and other Lenders

4. ENTRIES/RESOURCES Categories of expenditure in million UA Currency LC Total A. Works 30.01 12.01 42.02 B. Control 1.31 0.60 1.91 C Audit 0.02 0.01 0.03 D Not allocated 4.71 1.79 6.50 Total 36.05 14.41 50.46 Source of financing in million UA Currency LC Total ADF 6.99 1.23 8.22 NTF 4.64 0.00 4.64 WADB 3.65 2.96 6.61 EDF 9.96 3.88 13.84 KFW 10.81 4.34 15.15 Govt. 0.00 2.00 2.00 Total 36.05 14.41 50.46 Human Resources Executing Agency established during whole period of the works. Consultants for the supervision of works during the whole period of the works . Audit for 2001 and 2002 carried out. Audit for 2003 and 2004 underway. Supervision missions of the ADF and other lenders conducted on regular basis.

4.1 Contracts signed 4.2 ADF Ledgers 4.3 Government accounts. 4.4 Quarterly audit and

supervisory reports 4.5 Borrower’s report

4.1 Implementation of axle load

control 4.2 Re-launch of concession for the

operation of the tollbooth/weighing station.

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EXECUTIVE SUMMARY

1. Since 1972 when it began its operations in Benin’s transport sector, the Bank has funded fourteen (14) operations, including 9 projects and 5 studies, in the total amount of UA 81.98 million. This sector thus becomes the 2nd sector of the Bank’s assistance to Benin, after agriculture and rural development.

2. The Cotonou–Porto Novo road rehabilitation project, which was financed by ADF, NTF, WADB, EDF, KFW and the Government of Benin, was aimed at improving the country’s domestic and foreign trade. There was a 72-month delay in project implementation owing mainly to (i) slippage on effectiveness of the ADF and NTF loans, (ii) procurement-related problems, and (iii) technical problems related to works implementation.

3. Overall, the project results were satisfactory. Indeed, at operational level, the functionality of the road has been improved (increase in the average speed from 20 km/h to 50 km/h, reduction in traffic jams, improved management of traffic disputes and improvement in road safety through the separation of traffic flows of 2 wheelers and vehicles).

4. The project viability was guaranteed by: (i) the technical and geo-technical characteristics of the project roads which, considering forecast traffic, will ensure good resistance for the life span of the project if standard maintenance and control of axle load and total recommended load are carried out properly, (ii) availability of the Road Fund set up since 1997, which is totally autonomous by virtue of its total financial independence; and (iii) the actual implementation of axle load control, the relevant regulatory texts of which have been adopted.

5. The project has had a positive impact in the social and environmental spheres. Accessibility of residents to centres of activity has improved with the increase the linear mileage of service roads and creation of stops for public transport. The direct impact of the project on women and poverty is significant (improved market access and creation of income-generating activities). The project also generated considerable income for the local labour force during the work phase, and direct employment thanks to the tollbooth. In general terms, it led to a reduction in overall costs of transport. It facilitated the implementation of the policy of decentralization embarked upon in the country thanks to the improvement of the link between the country’s political and administrative capital (Porto-Novo) and economic capital (Cotonou). The Government paid compensation to the occupants of the road coverage. There was considerable improvement in the rehabilitation of the project zone. A tree-planting and green space development plan was prepared, and the relevant works carried out. Seepage basins have also been constructed.

6. The economic performance of the project is satisfactory. Indeed, the project led to a high increase in the capacity of the road segments in respect of which the road was widened and strengthened. It must equally be noted that there was significant reduction in the overall cost of transport and improvement in comfort and safety. The 28% internal rate of return at completion is satisfactory, although the rate was lower than the one forecast at appraisal (between 29 and 58% in relation to the sections).

7. The lessons to be learnt from the implementation of the project can be summed up as follows: (i) development of the lanes reserved for 2 wheel vehicles must be properly examined to prevent them from being diverted from their assigned purpose; (ii) the implementation of axle load control on the transit corridors, as in the case of the Cotonou-Porto Novo road, cannot be handled by one country since it forms part of the regional integration of those corridors; (iii) the implementation schedule drawn up at project appraisal must be examined in due consideration of the constitutional and institutional constraints in the countries and the policy of the Bank, as well as the specific characteristics of the project zone, such as works in rural areas with low output and numerous

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unforeseen impediments; (iv) the SME promotion strategy through, inter alia, the creation of an equipment leasing company did not yield the results expected; (v) the quantified data of the project’s impact on the land tenure situation and development of economic and commercial activities; and (vi) a newly-developed urban highway can fast become saturated if measures are not adopted to prevent commercial activities from spilling onto the roadway.

8. It is recommended:

A. to the Government of Benin to: (i) ensure the effective functionality of the lanes reserved for two-wheel vehicles from design to operation, and a more effective motor traffic policy to prevent improper parking and the spillage of commercial activities onto the roadway; (ii) speed up the mechanism for regional coordination which is being established by ECOWAS and WAEMU for an effective start-up of axle-load control throughout ECOWAS; (iii) (a) ensure that the schedules for designs and appraisal are realistic and (b) examine the problem of loan ratification so as to reduce to less than 6 months the time between the loan signature and ratification; (iv) envisage a mechanism of multi-year contracts with the obligation for an investment in equipment with a view to re-launching the promotion of SMEs, which is one of the objectives of the transport sector project; (v) (a) build the capacities of the BGDR in human resources but, above all, fund its programme of activities with the Road Fund so that regular and dependable road statistics and data are available at all times; and (b) ensure that feasibility studies, especially for road projects in rural areas, take due account of the diagnosis of the land tenure situation and town planning; (vi) (a) reconsider the concessioning file for the operation of the Ekpé tollbooth/weighing station, by making it a real concession and not lease, as was the case in the first experience; (b) rapidly re-launch bidding for the recruitment of a concessionaire and including his participation in the investment by way of the procurement of towing and lifting facilities to free the project’s traffic lanes, and the construction of warehouses for overloaded trucks to discharge some of their goods and (vii) (a) carry out and forward to the Bank, by 30/06/2005, the project audit for 2003-2004; (b) commission a socio-economic and environmental impact study to assess and quantify the impacts of the project;

B. to the Bank to: (i) construct weigh-bridges and continue to support sub-regional organizations in financing diagnostic studies on the effect of excess load on the Inter-state highways, the modalities for the management of the works and experiences in the area, and financing of weighing equipment, as provided for by the PACT of NEPAD; (ii) (a) during the missions to review the portfolio and CSP of the country, to examine with the Government the means of implementing the loans within a 6-month period after signature; and (b) at appraisal, take into consideration the need to establish a realistic schedule; (iii) at appraisal, include in the provision of consultancy services, monitoring and evaluation during the phase of the works of the evolution of the land tenure situation and spatial organization, especially for road projects in urban areas; and (iv) pursue the monitoring of the re-launch of the concessioning of the operation of the tollbooth/weighing station.

1 INTRODUCTION

1.1 At independence, the whole of Benin, save the major urban centres, was extremely isolated. The role devolving on the transport sector in the framework of economic development was thus particularly important and explains why a “Transport Sector Strategy” was established with a CFAF 140 billion investment programme (1994 base) for the period 1993-1997. Since February 1997, date of the second sectoral round table on a transport strategy, the Bank’s assistance in the sector has been in the framework of the Transport Sector Programme (TSP) for the 1997-2006 period, adopted by the Government with the agreement of the Donors, whose objectives aim, among other things, at sustainably ensuring a good level of service of the transport system and opening up the production zone and strengthening regional integration.

1.2 Since 1972 when it commenced its operations in Benin’s transport sector, the Bank has funded fourteen (14) operations, including 9 projects and 5 studies, for a total commitment of UA 81.98 million. This sector therefore becomes the Bank’s 2nd sector of assistance to Benin, after agriculture and rural development.

1.3 In 1995, the Government sought the Bank’s and other donors’ assistance to finance the Cotonou-Porto Novo road rehabilitation project, complete the operation of the Akossombo-Etoile Rouge-Dantokpa-Carrefour SOBEBRA road section constructed with ADF funding in the framework of the “Cotonou access and crossing project. This project is unique owing to the construction of its tollbooth/weighing station, which is managed by a contractor. That is how, further to the appraisal mission of July 1995, the Bank granted an ADF loan of UA 10.00 million and NTF loan of UA 6.00 million for the partial financing of the project, the total cost of which was estimated at UA 61.01 million. The project is practically completed. The last invoices for the works under lot B are being prepared by the executing agency.

1.4 Overall, the project objectives were attained without cost overruns. The project was awarded 3.0 out of 4.0 points for implementation performance and 3.25 out of 4.0 for the performance of the Bank. As regards the performance of the project results, it obtained 2.95 out of 4.0. The overall project performance was satisfactory.

1.5 This completion report was prepared on the basis of the outcome of the Bank’s completion report preparation mission of December 2004 and also on consultation of the Borrower’s completion report, project activity reports, project financial audit reports, payment dossiers, and various dossiers and correspondence on the project. 2 PROJECT OBJECTIVES, DESCRIPTION AND FORMULATION 2.1 Project Objectives

The project sector goal was to improve the domestic and foreign trade of Benin and

the neighbouring countries, thus contributing to regional integration. Specifically, the project was aimed at improving the conditions of access to, and exit from, Cotonou, reducing transport costs, and increasing the revenue of the Road Fund.

2

2.2 Project Description

The project comprised the following components: A. Road works in three lots

Lot A (PK 0.40 to Pk 4.25): rehabilitation of 3.85 km of the exit from Cotonou in 2x2 lanes with bicycle paths, EL and CR. The funding of this lot was ensured by KFW.

Lot B (PK 4.25 to PK15.00): rehabilitation of 10.75 km in 2x2 lanes with tollbooth/weighing station (road works and equipment), bicycle path, EL and CR. The funding of this lot was ensured by ADF, NTF, WADB and the Government.

Lot C (PK 15.00 to PK 27.71): rehabilitation of 12.71 km. The first 3.45 km were upgraded in line with the specifications of lot B, and the rest was widened into a of 2x3.60 m roadway. The lot was funded by EDF.

B. Control and supervision of the works

Consultancy services for the control and supervision of the works, including the preparation of monthly and quarterly status reports. This component was exclusively funded by KFW.

C. Project Audit

Consultancy services for the project audit were funded by ADF.

2.3 Project Formulation 2.3.1 The realization of the Cotonou-Porto Novo road rehabilitation project was in the framework of the Transport Sector Programme (TSP) for the period 1997-2006. The technical feasibility studies and detailed engineering designs and economic studies carried out in 1994 and 1995 with KFW funding demonstrated the urgent need to carry out the project. It was motivated by the need to ensure fluid traffic between Cotonou and Porto Novo. Indeed, the road before the project was barely 6 m wide, which was inadequate for the increase in traffic that exceeded 22 000 vehicles/day at the exit of Cotonou. The capacity of the road, including the roadway that required frequent and costly repairs, was thus exceeded. This situation was translated into extremely dangerous traffic conditions, resulting in increasingly frequent fatal accidents on the one hand, and an average speed of about 20 km/h on the Cotonou-Sémé segment during rush hours, with an adverse impact on the environment, on the other hand.

2.3.2 The design of the road was based on forecast traffic for the next twenty years. In the urban sector (Cotonou), it was decided to construct service roads to limit the intersections and accord the inhabitants easy access to existing dwellings. The road structure was determined on the basis of generally-accepted design standards. The zone for the construction of the tollbooth/weighing station was chosen with due respect for the anticipated constraints of the urbanization of the suburbs of Cotonou.

3

2.4 Identification, Preparation, Appraisal, Negotiation and Approval

2.4.1 The project was identified in the framework of the general study on access to, and driving across, the city of Cotonou. The Bank did not undertake a specific mission to prepare the project. Nonetheless, it participated in meetings at which the operations of donors under the Transport Sector Programme were determined. That is how KFW funded the studies of the road under this project whose findings were examined by the Bank before the donors’ meeting which led to the apportioning of the project and conclusion of financing arrangements.

2.4.2 In July 1995, the Bank then fielded an appraisal mission during which, in cooperation with the Borrower, the executing agency and the other donors prepared the details of the project. The negotiation of loan agreements took place in August 1996, one year after the appraisal mission, and there were no major problems. The loans were approved on 4 September 1996 and agreements signed on 23 September 1996, i.e. 19 days after approval. 3 PROJECT IMPLEMENTATION

3.1 Loan Effectiveness, and Start-up

EFFECTIVENESS

3.1.1 The ADF and NTF loans entered into force on 25 February 1998, i.e. 17 months after signature. Besides the General Conditions, the loans were subject to seven (7) conditions precedent, six in the form of undertakings and one in the form of proof, namely,: (i) the country should undertake to provide sufficient resources for maintaining the current road; (ii) undertake to establish the new structure of the Road Fund; (iii) undertake to submit to the Fund the Curricula Vitae of the Engineer and the three (3) Technicians who would be seconded to the Consulting Engineer for the control and supervision of the project works; (iv) undertake to inform the Fund of all the stages of the selection of the Consulting Engineer in charge of Control and Supervision; (v) undertake to set up a company to operate the toll booth/weighing station on the road; (vi) undertake, as a matter of priority, to allocate the net revenue from the tollbooth to road maintenance and, in particular that of the Cotonou-Porto/Novo road; and (vii) provide proof that the financing agreements had been signed with the other donors (WADB, EDF, KFW), or that the latter had given a written undertaking to participate in financing the project.

3.1.2 The 17 months slippage on effectiveness of the loans was attributed largely to the time spent in fulfilling the General Conditions, especially the ratification of the loans and establishment of legal opinions thereon.

START-UP

3.1.3 The road works commenced in April 1998 with a delay in relation to the estimated schedule at appraisal (19 months delay in respect of lot A, 26 for lot B, and 22 for lot C). In the case of lot B, the delay was mainly due to: (i) the 12 months spent in launching the tender whereas the ADF and NTF loans had been rapidly signed; and (ii) the 15 months required to carry out the whole procurement procedure which became cumbersome with the consideration of a complaint made by one of the bidders concerning lot B.

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3.2 Covenants and Conditions

3.2.1 The six “other” loan conditions consisted in verifying that the undertakings in the conditions precedent to release of the first disbursement had been fulfilled. These conditions were all fulfilled. Nonetheless, it would have been advisable to add: (i) a condition relating to the conduct of traffic counts on the 3 sections of the road comparable to those of appraisal to facilitate comparison between the two phases of the project cycle; and (ii) another condition on the annual transmission, to the Bank, of the running costs of the operator of the tollbooth/weighing station.

3.3 Project Implementation

3.3.1 The road works anticipated at appraisal were generally carried out according to good practice, although there were untimely degradations of the surface course in June 2001 concerning lot B and partial degradation with regard to lot C. The repair works were carried out on about 40% of the length of the sections concerned by lots B and C and financed by the Contractor’s insurance after an independent expert assessment which concluded that the defect was largely due to the composition of the asphalt concrete (AC), especially the quality of certain materials and of the binder.

3.3.2 The tollbooth/weighing station was constructed and the equipment for the station provided and installed after a technical study not provided for at appraisal had been conducted. It was proposed in the study to undertake the layout and provide electronic equipment in conformity with the requirements of the service for the type of travel (home-place of work) passing through the station. In conformity with the conditions set at appraisal, this work was entrusted to a concessionary after tender.

3.4 Modifications

3.4.1 During project implementation, besides additional works due to quantity variations, other works not initially provided for were identified and carried out owing to the problems encountered as the works progressed. That is why the following five (5) major modifications were made: (i) the replacement of the earth discharge channels to drain water with retention basins to prevent costly expropriations of the houses erected and owing to the difficulties of having minimal slopes for the self-cleansing of these channels; (ii) the construction of additional service roads to take account of the development of the project zone and facilitate access by the residents; (iii) the construction of 4 additional lanes at the tollbooth/weighing station as recommended by the supplementary study on the tollbooth/weighing station and level of traffic and service required; (iv) the replacement of the asphalt coating with reinforced concrete slabs because of the detection loops to be placed at the level of the tollbooth/weighing station; (v) improvement of road safety through the provision of public lighting, and erection of road signs and crash barriers. The entire additional works, in the total amount of CFAF 4.50 billion of the cumulated amounts of the basic works contracts were financed through amendments by all the donors. To that must be added the modification made in the procurement arrangements described at paragraph 3.7 of this report dealing with the award of contracts.

3.4.2 These modifications reinforced the social and environmental impact, the fluidity of traffic flow at the level of the tollbooth station and, subsequently, the project objectives.

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3.5 Implementation Schedule

3.5.1 The works under lot A were executed from April 1998 to March 2002, and those under lot C from July 1998 to July 2003. As regards lot B, co-financed by ADF, NTF, WADB, KFW and the Government: (i) the works were executed from December 1998 to December 2004; and (ii) the procurement and installation of equipment for the tollbooth/weighing station from February 2001 to December 2004.

3.5.2 At appraisal, the duration of implementation of the entire works was estimated at 29 months. At completion, the duration was 47 months for works under lot A, 72 for those under lot B and 60 for lot C. This extended duration of implementation was due to: (i) the time spent in carrying out the additional works; (ii) the stoppages to determine the causes of the degradations of the surface courses of lots B and C and propose the requisite solutions; (iii) the time spent in acquiring and providing the equipment of the tollbooth/weighing station due to the fact that, at appraisal, the technical specifications for the equipment had not been defined; (iv) the time spent in approving covenant N° 2 for lot B, totally borne by Benin owing to the depletion of WADB’s credit, for the realization of the works of replacing the crash barrier, and payment of penalty interests.

3.6 Reporting

3.6.1 The 15 quarterly project status reports required in conformity with the appraisal report and loan agreements were provided in time and regularly by the Executing Agency to the Bank. The contents of the reports were satisfactory. They provided the information requested by the Bank, especially on the project’s status and difficulties encountered, and proposed solutions. The Executing Agency also provided its Project Completion Report (PCR).

3.6.2 As regards the project audit, the two missions in 1998 to 2001 and in 2002 were carried out and the relevant reports prepared. However, since it was impossible to carry out the procedure for the acquisition of consultancy services for the conduct of the audit for 2003 and 2004, the Government undertook to commission the audits and transmit the relevant reports to the Bank no later than in the course of the first half 2005 at its own expense. The audit reports revealed an unsatisfactory accounting procedure of the MTPT, which was confirmed by the audit mission on projects in Benin undertaken by the Bank in 2002. On the recommendations of the Bank’s supervision and follow-up missions, controllers were seconded to MTPT by the Ministry of Finance to resolve the problem.

3.7 Award of Contracts 3.7.1 All the procurements for the components financed by the Bank were conducted in conformity with its rules of procedure. They were subject to: (i) two international tenders: one for the works, and the other for the supply and installation of the equipment of the tollbooth/weighing station; and (ii) shopping on the basis of a shortlist for the audit. At appraisal, it was envisaged to combine the procurement of works and equipment of the tollbooth/weighing station into a single international tender. This change was motivated by two reasons. As a matter of fact, the studies relating to these items of equipment began late. The initial study provided for a tollbooth with 2 x 7 lanes. The contracting authority and lender (KFW) demanded an additional study which recommended the construction of at least 2 x 8 lanes to guarantee fluid traffic. During the analysis of the tenders for the works under lot B, the contractor with the lowest financial offer on opening of tenders made a complaint whilst the procurement procedure was not even finalized. This complaint was examined by

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the Bank and the Government, which considered it unacceptable. All the other procurements were made in good conditions. The first tender related to road works under lot B, which was launched in September 1997, the second for the supply and installation of the equipment of the tollbooth/weighing station under lot B, which was launched in February 2001, and the third project audit which was launched in April 2001. The tenders led to improved competition and better offers, which partially accounts for the unspent balances on the loans awarded.

3.7.2 All the procurements made by the other donors were carried out without major problems. WADB followed the Bank’s procurement procedure.

3.8 Costs, Sources of Financing, and Disbursements

PROJECT COST

3.8.1 The costs (without tax) of all the components at project completion amounted to about CFAF 38 billion (UA 50.46 million) for an estimate at appraisal of CFAF 46 billion (UA 61.01 million). The considerable undrawn balance of about CFAF 8 billion (UA 10.55 million) was mainly due to the favourable fluctuation of the exchange rate between the UA and the CFAF during the implementation of the project, and the savings made from the competition for the works. As a matter of fact, at project appraisal, UA 1 was equivalent to CFAF 757. During project implementation, the average rate between the UA and the CFAF rose to CFAF 886, i.e. an average increase of 17 %. The table of the project cost at appraisal and completion is given in Annex 3.

3.8.2 For the components of the project funded by ADF, NTF, WADB and the Government, the cost (without tax) at appraisal was UA 22.17 million as against the estimate, at appraisal, of UA 25.51 million. The difference of about UA 3.34 million accounts for the undrawn balance from the ADF and NTF loans. The table of the sources of financing per category of expenditure of the ADF/NTF/WADB/KFW components is set out in Annex 4.

3.8.3 Considering the age of the project (10 years), the Bank transmitted to the Government a notice of cancellation of the balance on the ADF and NTF loans on 01/02/2005.

PROJECT FINANCING

3.8.4 The different project donors provided their contribution to the financing of the project in accordance with the financing plan below, which was prepared during project appraisal in 1996 and completion in 2004, as summarized in the table below:

Financing plan of the entire project (In million UA)

Source of financing

At appraisal At completion Difference

Currency LC Total (%) Currency LC Total (%) Currency LC Total (%)

ADF 8.50 1.50 10.00 16.40 6.99 1.23 8.22 16.29 1.51 0.27 1.78 17.80 NTF 6.00 0.00 6.00 9.80 4.64 0.00 4.64 9.20 1.36 0.00 1.36 22.67 WADB 3.65 2.96 6.61 10.80 3.65 2.96 6.61 13.10 0.00 0.00 0.00 0.00 EDF 12.48 4.85 17.34 28.40 9.96 3.88 13.84 27.43 2.52 0.97 3.49 20.13 KFW 13.54 5.43 18.97 31.20 10.81 4.34 15.15 30.02 2.73 1.09 3.82 23.10 Government 0.00 2.10 2.10 3.40 0.00 2.00 2.00 3.96 0.00 0.10 0.10 11.00 Total 44.17 16.84 61.01 100.00 36.05 14.41 50.46 100.00 8.12 2.43 10.55 17.29

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3.8.5 The cost of the components jointly funded by ADF, NTF, WADB, KFW and the Government at appraisal was UA 25.51 million, i.e. 41.81 % of the total cost of the project. These components were the road works under lot B, including the rehabilitation and equipping of the tollbooth/weighing station, control and supervision of works, and project audit. The table below sets out the financing plan at appraisal and at completion of these components.

Financing plan of the ADF/NTF/WADB/KFW/Government components

(In million UA)

At appraisal At completion Difference Source of financing

Currency LC Total (%) Currency LC Total (%) Currency LC Total (%)

ADF 8.50 1.50 10.00 39.20 6.99 1.23 8.22 37.08 1.51 0.27 1.78 17.80

NTF 6.00 0.00 6.00 23.50 4.64 0.00 4.64 20.93 1.36 0.00 1.36 22.67

WADB 3.65 2.96 6.61 25.90 3.65 2.96 6.61 29.82 0.00 0.00 0.00 0.00

KFW 0.50 0.30 0.80 3.10 0.44 0.26 0.70 3.16 0.06 0.04 0.10 12.50

Government 0.00 2.10 2.10 8.30 0.00 2.00 2.00 9.02 0.00 0.10 0.10 11.00

Total 18.65 6.86 25.51 100.00 15.34 6.14 22.17 100.00 2.93 0.41 3.34 13.09* KFW funded the control and supervision of the ADF/NTF/WADB/KFW/Government components. DISBURSEMENT

Of the ADF (UA 10.00 million) and NTF (UA 6.00 million) loan amounts, the Bank had disbursed as at 31/12/04, UA 8.22 million, i.e. 82.20% and UA 4.64 million, i.e. 77.33% respectively. These loans had undrawn balances of UA 1.78 million and UA 1.36 million, respectively, i.e. a total of UA 3.14 million. The Bank’s table on annual disbursements is given in Annex 5. As regards the settlement of payment requests, the problems that arose related to: (i) ADB payment delays between 2002 and 2003 during the period of re-location of the Institution; (ii) invoices that remained unsettled by WADB owing to the depletion of its credit in the amount of CFAF 5 billion as a result of bearing part of the contingencies on the basis of the allocation formula for the project financing. The delays that occurred during project implementation led to two extensions of the deadline for the last disbursement which was fixed at project appraisal for 31 September 1999 in respect of the NTF and 31 December 2002 in respect of ADF. A 3rd request for extension to 30 June 2005 is under consideration at the Bank so as to settle the last payment requests concerning the connection and finishing works that had been suspended pending the completion of the installation of equipment at the tollbooth/weighing station. These settlements will be made by the end of January 2005. Local counterpart. The counterpart fund was established by the Government and all requests have been settled by Benin. At completion, the total share of the Government was CFAF 1.2 billion i.e. 3.96 % of the project cost without tax i.e. UA 2.00 million. This share accounted for 9.02% of the joint financing of the ADF/NTF/WADB/KFW/Government components. Furthermore, the tax and customs duties borne by the Government under the project amounted to CFAF 425 million, accounting for UA 0.51 million.

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4 PROJECT PERFORMANCE AND RESULTS

4.1 Overall Assessment

4.1.1 During its implementation, the project encountered a number of problems (late fulfilment of conditions, disbursement delays, additional work requiring the preparation of amendments, etc.), which significantly affected the project implementation schedule. The project activities were completed with a 72 slippage on the estimated schedule at appraisal.

4.1.2 Despite these weaknesses, the performance of the project results was satisfactory scoring 2.95 out of 4.0 points. In fact, the project activities and objectives were completely achieved, namely,: (i) improvement of the domestic and foreign trade of Benin and neighbouring Sahel countries, (ii) contribution to regional integration, (iii) improvement of conditions of access to, and exit from, Cotonou, (iv) reduction in transport costs and (v) improvement of road safety. The sustainability of the road rehabilitated was ensured mainly by the considerable increase in the revenue of the Road Fund. Smooth cooperation between the donors contributed to the success of the project. Furthermore, the construction of the third bridge at Cotonou, which was financed by KFW and commissioned during the 2nd half of 2004, led to increased road traffic fluidity.

4.2 Operating Performance

4.2.1 At operational level, the rehabilitation of the road improved its functionality by increasing average speed from 20 km/h to 50 km/h on the first section and from 50 km/h to 80 km/h on the two other sections of the road, the reduction of traffic jams, improved management of traffic conflicts, improved road safety through the separation of 2-wheeled traffic flow from that of vehicles, public lighting, and improvement in the drainage of rainwater and reduction in frequent flooding in the zone, thanks to the drainage works constructed. It also led to strengthening decentralization and deconcentration by facilitating the link between Cotonou, the economic capital and Porto–Novo, the political capital. Furthermore, the construction of the tollbooth/weighing station led to: (i) an increase in the revenue of the Road Fund of at least 1.5 billion CFAF a year and increased road maintenance capacity; (ii) the necessary resources became available to ensure the durability of the works, especially through axle-load control. However, although the Government of Benin had established the relevant regulatory texts for the application of axle load control, there were objections by users mainly due to the fact that the users transiting through Benin did not understand why the control had not been conducted on the whole corridor. It appeared, therefore, that axle load control could be done only if it was conducted at sub-regional level. In that regard, in the framework of the regional road transit and transport facilitation programme, ECOWAS and WAEMU are in the process of defining a common policy and common rules to ensure that axle load control begins in 2005 on all the corridors of West Africa.

4.2.2 It was observed that the 2 wheel vehicles did not use the lanes reserved for them because of the development standard, the occupation of these paths, and the behaviour of the users. Furthermore, considering that the tollbooth/weighing station was the first experience in the sub-region, the concessioning of the management of its operation did not totally meet expectations especially as regards the execution of the concession contract which was terminated early. Measures are underway to re-launch the bidding. The analysis of the initial results of the state-controlled management operated by the licensor (Management of

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the Road Fund) and retrospective examination of bids during the tender show that the concessionary company had overestimated the fee and underestimated the cost of its contractual services. Furthermore, the application of axle load control proved difficult to implement, owing to its regional character.

4.2.3 Another point that had an impact on operational performances was the spillover onto part of the roadway, of the commercial activities being rapidly developed along the road by virtue of the structuring effect of the rehabilitation of the road. 4.3 Institutional Performance

4.3.1 The diagnosis of the institutional problems established at project appraisal revealed a mismatch between the financing and organization of the maintenance of the road and the strategic context of privatization of road maintenance to which Benin was committed. The solutions proposed were: (i) to establish a structure of the autonomous Road Fund, under the supervision of MTPT; and (ii) to transform the Directorate of road maintenance equipment into an equipment leasing company so as to facilitate the privatization of road maintenance works and the promotion of SMEs.

4.3.2 This diagnosis and the solutions recommended at project appraisal were relevant and remain valid to date. Indeed, the Road Fund was restructured and was totally autonomous as far as management was concerned, but with a relative financial autonomy since, in 2003, 53% of its revenue came from the allocation of part of the taxes on petroleum products and part of VAT and road tax, 17% State subsidy and 29% of its own funds from the tolls. The establishment of the Road Fund has made it possible to meet the current road maintenance requirement since 1997. Nonetheless, considering the seriousness of fuel fraud in Benin, the high dependence on revenue from petroleum products was risky. It was therefore necessary to ensure the financial autonomy of the Road Fund, and payment of part of the VAT and tax on petroleum products directly at the customs post, without passing through the Public Treasury. On the other hand, the transformation of the Directorate for equipment into a semi-public equipment leasing company was not successful since the company was unable to mobilize the relevant investments to replace the stock of equipment inherited from the Government, which was in poor condition. Overall, the actions and measures adopted in February 1997 relating to the transport sector strategy were therefore implemented, save for the promotion of SMEs capable of carrying out in good conditions the periodic maintenance works and routine mechanized maintenance. The Government should envisage the institution of multi-year contracts with SMEs with the obligation of an investment plan in equipment so as to enable the objective of promoting SME capacities to be attained.

4.3.3 The executing agency was the Ministry of Public Works and Transport (MTPT), which established a temporary works monitoring division. Despite the restructurings effected within the Ministry in the past years, the project monitoring team remained the same until the works were completed. The Road Data Management Office (BGDR), which had been set up with IDA funding, has not been very operational since the end of this assistance. This poses the problem of its sustainability and explains why it was impossible to obtain complete data on the counts for the preparation of this completion report. Preparations are underway to seek EDF support to reinvigorate the BGDR. Nonetheless, for it to be sustainable, it is important for its activities and operation to be financed with the budget of the Road Fund.

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4.3.4 From the point of view of capacity building, several technical assistance missions have been funded since 1997 by the donors (IDA, EDF, DANIDA) to build the capacities of DGTP. That rendered the organization more efficient on the one hand, and improved the quality of the work provided by the agents, on the other hand. However, the officials of DGTP need training in project appraisal and other specific areas. Contacts were made with potential donors to seek financing in that regard. Recruitment of new technical assistance to the Ministry with EDF funding is underway.

4.4 Performance of Consultants, Contractors and Suppliers SERVICES

4.4.1 The performance of the consultant responsible for the control and supervision of all the works of the project was deemed satisfactory by all the Lenders. He conducted feasibility studies, detailed technical studies, preparation of tender dossiers, and analysis of the tenders for the works, control and supervision of the works. The consultant further prepared periodic reports, acceptance reports and the completion report. Further, the consultant played his role of facilitator between the different actors on the work yard.

4.4.2 The project audit missions for 1998 to 2001 and 2002, awarded further to international consultation were carried out in conformity with the terms of reference, and the results were satisfactory. The auditor raised problems relating to the accounting procedures of MTPT confirmed by the Bank’s audit in Benin.

4.4.3 The consultants who, with KFW funding, were entrusted with the initial and supplementary studies on the rehabilitation of equipment and concessioning of the tollbooth/weighing station, carried out the studies satisfactorily. However, it is unfortunate that the reports on the study were finalized with some delay, which impacted on the progress of the work. CONTRACTORS

4.4.4 Two contractors were awarded the three works contracts. During the execution of the works, the contractors demonstrated acceptable site organisation and good collaboration as regards the quality of the works. The organization was sustained with sound technical and financial management of the project. However, there were defects in the asphalt concrete coating a few months after the works had been carried out. An independent expert assessment financed by KFW detected the causes of the defects, and solutions were proposed. The contractor availed himself of his all risk insurance (CRI) for the rehabilitation of the degraded sections after identification. The CRI procedure and conduct of the works per se led to delays in the acceptance of the work.

SUPPLIER

4.4.5 The company selected to supply and install the equipment of the tollbooth/weighing station carried out all the services in conformity with the contract, although there were about 8 months delay owing to the time spent setting up guarantees and paying the start-up advance. Furthermore, there were faults in the electronic equipment installed, and these are in the process of being corrected. They will be accepted finally by Mid-January 2005.

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4.5 Economic Performance

4.5.1 The economic performance of the project was satisfactory. In fact, the implementation of the project led to a significant increase in the capacity of the road segments concerned with the widening and reinforcement of the roadway. It must also be noted that there was a considerable reduction in the overall cost of transport, and improved comfort and safety.

4.5.2 According to the MTPT counts conducted from 1998 to 2004, the average normal distance-weighted traffic volumes recorded between 1998 and 2004 on the road for all categories of vehicles excluding 2-wheel vehicles, varied in 1998 depending on the road segments of the project, between 12 200 and 18 300 vehicles/day, as against the 14 517 and 26 340 vehicles/day for 1998 at appraisal. It emerged that the traffic forecasts estimated at appraisal, but above all the 1993 traffic volume taken as the working basis, were overly optimistic.

4.5.3 On the basis of MTPT traffic data from 1998 to 2004, there was a 4% average traffic growth and a 7% of heavy-duty vehicles. The economic benefits of the project were mainly due to the savings made on vehicle operating costs. The economic benefits of the project were mainly due to the savings made in the operating costs and reduced traveling time. The time gain was also considered. Similarly, the tolls paid (CFAF 1.5 billion per annum as from 2003, with an annual increase of 10% until the end of the lifespan of the project), were considered as exogenous benefits. It should be mentioned that we managed to obtain data on the counts on sections 2 and 3 and not on section 1. This made us rely on estimated traffic on this section.

4.5.4 The costs considered were economic costs (without tax and subsidies) for the investment costs represented by the cumulative contract amount as well as current and periodic maintenance cost for the reference situation and for the situation with project whose information was obtained after analyzing the available relevant data at DGTP.

4.5.5 The economic calculation was made with model HDM-4 by taking due account of traffic elements, amounts without tax, and price rise of contracts of works and supervision of the rehabilitation and equipment of the tollbooth/weighing station, and current maintenance cost and periodic maintenance triggered in relation to the level of service measured by the IRI. The date for the commissioning of the project was 2002 for a duration of 20 years. A 25% residual value of the investment was adopted at the end of that period of life. The result obtained was a 28% Internal Rate of Return (IRR). This rate, which was higher than the 12% opportunity cost of capital, should have been higher if account had been taken of the social advantages which are difficult to convert in currency units. The sensitivity tests made demonstrate that the IRR which varied between 24% and 28% was relatively stable in the face of the cost variations (+10%) and advantages (-10%). The project proved economically justified since the ERR was higher than 12% which represented the opportunity cost of capital.

4.6.6 The difference observed between the IRR at appraisal (between 29% and 58% in relation to the segments) and the IRR at completion (28%) was largely due to the traffic forecast assumptions at appraisal but, above all, the 1993 traffic volume considered as the working basis was overly optimistic. The economic and sensitivity analysis table is given in Annex 6.

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5 SOCIAL AND ENVIRONMENTAL IMPACT OF THE PROJECT* 5.1 Social Impact

5.1.1 The accessibility of the residents was improved with the increase in the linear mileage of service roads and creation of stops for public transport. Pedestrian crossings were marked out at crossroads and placed at average walking distances were provided. Owing to the reduction in travel time, the project had an impact on the activity of women with an improvement in their access to the Cotonou town market, and led to the development of income-generating activities, such as trade in food items along the road.

5.1.2 The project made it possible to generate direct revenue estimated at: (i) CFAF 7.5 billion, thanks to jobs created during the works implementation phase; (ii) CFAF 92 billion made up of income from the tollbooth during the lifespan of the project 2/3 of which constituted a contribution to the Road Fund, and (iii) 60 permanent jobs induced by the operation of the tollbooth/weighing station. Furthermore, the project generated indirect revenue through its impact on the land tenure situation and the development of economic activities along the road. The rehabilitation of commercial areas in some areas of the road, especially at the Sémé crossroads, will make it easier to control the commercial activities developing along the road. Some of these indirect impacts could have been quantified if provisions had been made at project appraisal to integrate services relating to the analysis and determination of these effects. It is recommended to the Government to undertake a study on the social and environmental impact.

5.1.3 Generally, the project led to a reduction in overall transport costs. It facilitated the implementation of the policy of deconcentration and decentralization embarked upon in the country thanks to the improvement of the link between the country’s political and administrative capital (Porto-Novo) and economic capital (Cotonou).

5.2 Environmental Impact 5.2.1 Albeit classified as category II at appraisal, the project in itself had negative impacts on the environment (expropriation, deforestation). It must be noted that, at appraisal, the Bank’s environmental policy had not yet been defined. Before the works commenced, the Government paid compensation to the occupants of the total road right-of-way (in cash or by land substitution). As regards the necessary expropriations of bare sites for the extension of the tollbooth recommended by the studies carried out (16 lanes and unloading areas), the settlement proposals were agreed to by all the parties and its implementation, begun at the end of 2002, is still underway.

5.2.2 Among the negative impacts which were not evaluated are exhaust gas emissions from old vehicles passing through the toll station, which are hazardous to the health of the toll collectors. The Bank’s supervision missions recommended that they be provided with masks pending the widespread use of lead-free fuel in Benin.

5.2.3 The sanitation of the project zone was improved considerably. A tree-planting and green-space development plan was established and the relevant works are underway in the framework of Amendment no.1 to the contract for the works financed by ADF. Retention basins were also constructed to prevent the basins from constituting pockets for the proliferation of mosquitoes during the rainy season. The public health services, which have been associated with project implementation, have been undertaking periodic pest control

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operations. Furthermore, in the pursuit of its general mission of supervising the activities on the road right-of-way, the concessionaire of the tollbooth should seek such services, whenever necessary.

6 PROJECT SUSTAINABILITY

The viability of the project is effectively guaranteed mainly as a result of the technical and geo-technical characteristics of the project road which, considering the traffic forecast, makes it possible to ensure a good resistance for the project life span, if the standard maintenance and control of excessive axle load are correctly performed. For several years, Benin has established a second-generation road fund with adequate resources for structural maintenance (almost CFAF 56 billion have been mobilized since 1997, i.e. about CFAF 7 billion a year, on average, including 15 billion for 2004). The tollbooth generates sufficient revenue to ensure the standard maintenance of the road. The regulatory texts on excessive weight in conformity with ECOWAS standards, and the management of the tollbooth on the road, have been adopted but there are problems in their application owing to its impact at regional level. As a matter of fact, the Cotonou-Porto Novo road being an inter-state corridor, it is plied by trucks undertaking international transport. Axle-load control on this corridor alone may well jeopardize its competitiveness in relation to other alternative corridors.

7 PERFORMANCE OF THE BANK, BORROWER, EXECUTING AGENCY AND OTHER DONORS

7.1 Performance of the Bank 7.1.1 Overall, the Bank’s performance was satisfactory despite a few delays in the processing of payment requests in the wake of the political events that occurred in the Republic of Côte d’Ivoire and the Bank’s temporary relocation to Tunisia, but the situation has gradually improved. As a matter of fact, the project preparation was conducted normally. The Bank’s reactions to problems of implementation were appropriate. It ensured that the procurement rules were applied at the time the contracts were awarded. The supervision missions (more than 1.2 on the average) were regular. These made it possible to ensure the timely resolution of the problems encountered, including,: (i) the proposal to recruit an independent expert to determine the causes of, and responsibility for, the early degradation of the road course under lots B and C; and (ii) the perception of the regional dimension of axle-load control after an attempt had been made to start the control at the tollbooth/weighing station. There was a significant delay in the release of disbursements.

7.2 Performance of the Borrower

7.2.1 The Borrower’s fulfilment of the loan conditions was unsatisfactory. Indeed, the loans approved on 4 September became effective only on 25 February 1998, i.e. 17 months delay, mainly due to the delay in the fulfillment of the general conditions, especially the ratification of the loans and drafting of the legal opinion. Nonetheless, the Borrower fulfilled all the project conditions precedent and ‘other conditions’.

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7.2.2 As regards mobilization and payment of the counterpart funds, Benin honoured its commitments and there were no payment arrears in its financial contribution to the project. On the other hand, the monitoring of project implementation was not well carried out. The audits of 1999 to 2002 were produced but those of 2003-2004 were not undertaken. The Government has undertaken to fund the audit with the national budget before the end of the second quarter of 2005.

7.2.3 Apart from the slippage on loan effectiveness, the overall performance of the Borrower was deemed satisfactory.

7.3 Performance of the Executing Agency

7.3.1 The project executing agency was the Ministry of Works and Transport (MTPT) which, despite the restructurings undertaken, provided a temporary division to monitor the works. The organizational modifications did not affect the monitoring of the project since it was the same team that monitored it.

7.3.2 The executing agency carried out a satisfactory coordination of the project activities. It supervised project implementation by providing for the Consultant a team composed of an Engineer and 3 (three) technicians, one of whom was specially seconded to the lot B works and by organizing, on regular basis, work site meetings to monitor the works. There was some delay in the procurement procedure, which contributed to the overrun on the estimated project implementation period.

7.3.3 The executing agency did not produce, on a regular basis, the traffic data on the three segments of the road constructed, as well as the counts of two-wheel vehicles. These counts are necessary in monitoring the traffic on the road constructed.

7.3.4 The executing agency transmitted on regular basis to the Bank, all the disbursement requests made in the framework of the project and regularly provided quarterly status reports on the works. The performance of the executing agency was considered satisfactory.

7.4 Performance of the Other Donors The performance of EDF and KFW were deemed satisfactory. As a matter of fact, through its delegation in Benin, the EDF regularly monitored the conduct of the works and disbursements. The KFW also carried out several works monitoring missions, and disbursements were released with considerable delay. WADB undertook supervision missions alongside the Bank. However, there were considerable delays in the processing of invoices, which led to the payment of penalty interest to the contractor by the Government of Benin. It must be stressed that there was smooth coordination between the different project donors, which led to its completion without major problems. 8 OVERALL PERFORMANCE AND RATING Overall, the project objectives were attained without any cost overruns. The project scored 3.0 out of 4.0 points for implementation performance and 3.25 out of 4.0 for the performance of the Bank (forms IP1 and BP 1 in Annex 7). As regards project performance results, these scored 2.95 out of 4.0 (form P01 in Annex 7). The overall performance of the project was satisfactory.

15

9 CONCLUSIONS, LESSONS LEARNT, AND RECOMMENDATIONS

9.1 Conclusions 9.1.1 The assessment of the project shows that the activities envisaged and objectives set in the project were fully carried out in terms of the reduction of transport costs and actual improvement of the service level. The principal actions governing the success of the project were generally well identified during project preparation and appraisal. Nonetheless, considering the urban development of the project zone, modifications were made at the implementation phase to adapt it and reinforce its operational performance. The donors contributed to the project in conformity with the estimates and, overall, their performances were satisfactory.

9.1.2 Thanks to the project, a 18.30 km road segment was developed in conformity with the traffic norms of the current and estimated traffic. The project had a 28% economic rate of return and led to a reduction in transport costs and travel time. Furthermore, it generated temporary jobs for a little over five years through the implementation of contracts. The project led to an improvement in the autonomy of the Road Fund from tolls which were paid directly into the account of the Road Fund.

9.1.3 The sustainability of the project was guaranteed by: (i) the technical and geo-technical characteristics of the project road which, considering the traffic forecast, would make it possible to ensure good resistance for the lifespan of the project if standard and periodic maintenance are made correctly; (ii) the availability of a road fund established since 1997 and replenished with toll revenue; and (iii) the actual conduct of axle-load control, the regulatory texts of which have been adopted.

9.1.4 Overall, it appears that the objectives set for the road sub-sector were attained save for (i) the emergence of SME; (ii) sustainability of the BGDR; and (iii) the consideration of the diagnosis of the land tenure situation and space organization through feasibility studies.

9.2 Lessons Learnt 9.2.1 On analyzing the elements above the following lessons can be learnt:

(i) the layout of the lanes reserved for 2-wheel vehicles must be properly studied to prevent the lane from being diverted from its assigned purpose;

(ii) the implementation of axle-load control on the transit corridors, as in the case of the Cotonou-Porto Novo road, cannot be done by one country alone since it relates to the regional integration of these corridors;

(iii) the implementation schedule established at appraisal must be analyzed in due consideration of the constitutional and institutional constraints in the countries and in the Bank’s policy, as well as the specificities of the project zone, such as works in urban areas where the output of works is lower and unforeseen impediments rife;

(iv) the strategy for promoting SME, inter alia, through the creation of an equipment hire company did not yield the results expected;

(v) the quantified data of the project’s impact on land tenure and development of economic and commercial activities;

16

(vi) a newly-developed urban road axis can fast become saturated if rules of urbanism are not established and measures adopted to prevent commercial activities from spilling onto the roadway.

9.3 Recommendations 9.3.1 In light of the foregoing, it is recommended:

A To Benin to:

(i) Ensure the effective functionality of the lanes reserved for 2-wheel vehicles from design to operation, and a more effective traffic policy established to prevent improper parking and the spillover of commercial activities onto the roadway;

(ii) Speed up the mechanism for regional coordination which is being established by ECOWAS and WAEMU for an effective start-up of axle-load control throughout ECOWAS;

(iii) (a) ensure that the schedules for designs and appraisals are realistic; and (b) examine the problem of loan ratification so as to reduce to less than 6 months the time between loan signature and ratification;

(iv) envisage a mechanism of multi-year contracts with the obligation of an equipment investment plan so as to re-launch the development of the promotion of SMEs, which is one of the objectives of the transport sector project;

(v) (a) build the capacities of the BGDR in human resources, but, above all, fund its programme of activities with the Road Fund so that regular and dependable road statistics and data are available at all times; and (b) ensure that the feasibility studies, especially for road projects in urban areas, take due account of the diagnosis of the land tenure situation, spatial organization, and town planning;

(vi) (a) reconsider the concessioning file for the operation of the Ekpé tollbooth/weighing station by making it a real concession and not a lease as was the case in the first experience; (b) rapidly re-launch bidding for the recruitment of a concessionaire and include its participation in the investment through the acquisition of towing and lifting equipment to free the project’s traffic lanes, and the construction of warehouses to unload overloaded trucks;

(vii) (a) carry out ad forward to the Bank, by 30/06/2005, the project audit for 2003-2004; (b) commission a study on the socio-economic and environmental impact study to assess and quantify the impacts of the project.

B To the Bank to: (i) Support the sub-regional organizations in funding diagnostic studies on the

effect of excess weight on inter-state highways, the modalities for the management of the works and experiences thereon, and the financing of weighing equipment, as provided for in the framework of the PACT of NEPAD;

17

(ii) (a) examine with the Government, during portfolio and DSP review of the countries, the ways and means of implementing loans within a period of 6 months after signature; and (b) ensure that the implementation schedules established at appraisal are realistic;

(iii) at appraisal include, in consultancy services during the works phase, the

monitoring and evaluation of the evolution of the land tenure situation and spatial organization, especially for road projects in urban areas; and

(iv) pursue the monitoring of the process for the re-launch of the concession for the operation of the road’s tollbooth/weighing station.

Annex 1 Map of Benin

Annex 2 Project Location Map

REHABILITATION OF THE COTONOU – PORTO NOVO ROAD

DIAGRAM OF PROJECT AREA

Annex 3 COTONOU – PORTO NOVO ROAD REHABILITATION PROJECT

COMPLETION REPORT

COST OF PROJECT AT APPRAISAL AND AT COMPLETION (In million UA)

Expenditure categories At appraisal At completion Difference

F.E. L.C. Total F.E. L.C. Total F.E. L.C. Total

A. Works 36.96 13.99 50.94 30.01 12.01 42.02 6.95 1.97 8.92 B. Control and supervision of works 1.48 0.67 2.15 1.31 0.60 1.91 0.17 0.07 0.24 C. Project audit 0.04 0.01 0.05 0.02 0.01 0.03 0.02 0.00 0.02 Total basic costs 38.48 14.66 53.14 31.34 12.62 43.96 7.14 2.04 9.18 Physical contingencies 2.50 0.95 3.45 2.07 0.78 2.85 0.43 0.17 0.60 Price contingency 3.20 1.22 4.42 2.64 1.01 3.65 0.56 0.21 0.77 GENERAL TOTAL 44.18 16.83 61.01 36.05 14.41 50.46 8.12 2.43 10.55

Annex 4 COTONOU-PORTO NOVO ROAD REHABILITATION PROJECT

COMPLETION REPORT

SOURCES OF FINANCING BY CATEGORY OF EXPENDITURES OF ADF/NTF/WADB/KFW/GOVERNMENT COMPONENTS (In million UA)

Expenditure categories

AT APPRAISAL

AT COMPLETION

DIFFERENCE

ADF NTF WADB KFW GVT TOTAL ADF NTF WADB KFW GVT TOTAL ADF NTF WADB KFW GVT TOTAL

A. Works and equipment (Lot B) 8.48 5.08 6.36 0 1.54 21.54 7.16 4.04 6.36 0 1.74 19.30 1.32 1.04 0 0 -0.20 2.24

B. Control and supervision of works 0 0 0 0.63 0 0.63 0 0 0 0.61 0 0.61 0 0 0 0.02 0.00 0.02

C. Project audit 0.05 0 0 0 0 0.05 0.03 0 0 0 0 0.03 0.02 0 0 0.00 0.00 0.02

Not allocated 1.46 0.92 0.25 0.17 0.56 3.29 1.03 0.60 0.25 0.09 0.26 2.23 0.43 0.32 0 0.08 0.30 1.06

GENERAL TOTAL 10.00 6.00 6.61 0.80 2.10 25.51 8.22 4.64 6.61 0.70 2.00 22.17 1.78 1.36 0 0.10 0.10 3.34

Annex 5

COTONOU-PORTO NOVO ROAD REHABILITATION PROJECT

COMPLETION REPORT

ANNUAL BANK DISBURSEMENTS (In million UA)

Years 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 Total

a) Estimate at appraisal (ADF) 1.70 4.00 4.30 10.00

b) Disbursements (ADF) 4.08 2.27 0.83 0.13 0.00 0.72 0.19 8.22

c) Balance of ADF loan (a-b) 1.78

d) Estimate at appraisal (NTF) 1.00 2.40 2.60 6.00

e) Disbursements (NTF) - 2.31 1.28 0.48 0.18 0.00 0.29 0.10 4.64

f) Balance of the NTF loan (d-e) 1.36

g) Total balance (c+f)) 3.14

Annex 6 HDM 4

COTONOU-PORTO NOVO ROAD REHABILITATION PROJECT

COMPLETION REPORT

1 - ECONOMIC ANALYSIS (In million CFAF)

Administrative extras Savings user costs Net benefits

Year Vehicle traffic/day Investment. Function Special VOC (mot). Time (mot). Time +VOC

(non-mot) Accidents Net

exogenous benefits

Total net benefits

1998 16705 4 152 -47 0 1 608 -72 -1 400 0 -2 169.69

1999 17 386 18 614 -47 -3 -127 -278 -10 460 0 -18 519.71

2000 18 095 8 944 -47 -6 131 -266 -9 529 0 -8 505.43

2001 18 833 4 584 -215 -9 292 -267 -6 608 0 -3 733.31

2002 19 601 482 -217 -12 9 335 433 12 700 1 500 11 726.18

2003 20 400 0 -219 -15 8 268 407 15 805 1 650 11 378.46

2004 21 233 930 -221 -18 8 690 440 19 925 1 815 11 198.35

2005 22 098 264 -224 -21 9 128 474 23 1 064 1 997 12 666.65

2006 23 000 0 -226 -24 9 581 511 29 1 224 2 196 13 790.79

2007 23 938 0 -229 -27 10 046 551 35 1 407 2 416 14 711.48

2008 24 914 0 -232 -30 10 522 593 43 1 618 2 657 15 696.16

2009 25 930 0 -235 -33 10 996 637 53 1 861 2 923 16 738.70

2010 26 988 0 -238 -36 11 473 684 65 2 140 3 215 17 851.50

2011 28 089 0 -242 -39 11 949 731 79 2 461 3 537 19 037.43

2012 29 234 0 -245 -42 12 417 778 96 2 830 3 891 20 298.68

2013 30 426 5 000 -249 -45 12 867 823 116 3 255 4 280 16 634.87

2014 31 667 0 -253 -48 17 202 943 142 3 743 4 708 27 038.92

2015 32 959 0 -258 -51 18 208 1 016 171 4 305 5 178 29 187.17

2016 34 303 0 -262 -54 19 170 1 095 207 4 950 5 696 31 434.29

2017 35 702 0 -262 -54 19 170 1 095 251 5 693 6 265 32 788.80

2018 37 158 0 -262 -54 19 170 1 095 303 6 547 6 890 34 320.56

2019 38 674 0 -262 -54 19 170 1 095 366 7 529 7 579 36 053.80

2020 40 251 0 -262 -54 19 170 1 095 442 8 658 8 336 38 016.21

2021 41 893 0 -262 -54 19 170 1 095 533 9 957 9 169 40 239.44

2022 43 601 -4 914 -267 -57 20 161 1 178 644 5 693 6 266 39 179.86

Total: 38 054.96 -5 484.88 -840.00 297 765.92 15 885.02 3 616.08 79 359.85 92 163.37 457 060.16

ERR = 28.03%

2 - SENSITIVITY ANALYSIS

Case 1 Case 2 Case 3 Case 4

Discount rates (%) 12.0 12.0 12.0 12.0

Multiplying factor for net benefits

* Benefits related to investment and maintenance costs 1.00 1.10 1.00 1.10

*Vehicle operation 1.00 1.00 0.90 0.90

------- ------- ------- ------- Benefits discounted in million CFAF 457 060 453 255 407 549 403 743

ERR. (%) 28.03% 26.2% 26.0% 24.3%

Annex 7

Page 1 of 2

COTONOU-PORTO NOVO ROAD REHABILITATION PROJECT

COMPLETION REPORT

PERFORMANCE EVALUATION AND RATING

A) FORM IP 1: IMPLEMENTATION PERFORMANCE

Component indicators RATING(1 to 4)

Observations

1 Adherence to overall schedule 1.0. The works were completed with 72 months delay in relation to the date of completion envisaged at appraisal

2 Adherence to cost parameters 3.5 The final cost at completion was 17 % lower than the total cost envisaged at appraisal

3 Compliance with covenants 4.0 All the covenants were complied with 4 Adequacy of monitoring, evaluation and reporting 3.5 The follow-up, appraisal and reports were deemed

to be in keeping with the requirements 5. Satisfactory operations (if any) TOTAL 12.0 Overall assessment of implementation performance 3.00 The overall assessment was satisfactory

B) FORM BP 1: PERFORMANCE OF THE BANK

Component Indicators RATING (1 to 4)

Observations

1 At identification 3.5 The project was part of national priorities and was included in the national investments programme.

2 At preparation 3.0 The project matrix was established and all actions conducted. The measures taken by the Bank prior to appraisal were effective.

3 At appraisal 3.5 The appraisal report was good quality, and examined all aspects relating to the viability of the project (technical, economic, etc.)

4. At supervision 3.0 The deadlines for examining dossiers were satisfactory. The project was supervised more than 1.2 times a year.

Overall assessment of Bank’s performance 3.25 Performance of Bank satisfactory

Annex 7 Page 2 of 2

COTONOU-PORTO NOVO ROAD REHABILITATION PROJECT COMPLETION REPORT

C) Form PO 1: PROJECT RESULTS

N° OPERATIONAL INDICATORS RATING (1 to 4)

OBSERVATIONS

1 Relevance and achievement of objectives 3.0 The relevance of the objectives was generally confirmed

i – Macroeconomic policy 3.0 The project is fully in keeping with the national transport plan

ii – Sector policy 3.5 The project constitutes a component of the TSP

iii – Equipment component (including production) S0 The project had no equipment component

iv – Financial component 3.5 The financial resources were inadequate for achieving all the project’s components.

v – Poverty reduction, social component and gender problems 3.0 The objectives on the social sphere were globally attained.

vi – Environment 3.0 The environmental objectives were globally attained.

vii – Private sector promotion 2.0 The project contributed very little to the development of the activities of the private sector.

viii - Others (to be specified)

2 Institutional capacity building 2.8 Overall, the institutional performance of the project was satisfactory

i – Institutional framework (including restructuring) 3.5 The executing agency played its role well

ii – Financial and integrated management systems including audit system

2.0 Out of 4 audit missions, 2 were carried out. The remaining 2 are underway.

iii - Transfer of technology S0 There was no transfer of technology

iv - Skilled personnel (including rotation), training and counterpart personnel

3.0 There was staff training and rotation.

3 Sustainability 3.0 The sustainability of the work was ensured, inter alia, with considerable increase in the revenue of the Road Fund.

i – Continued commitment of Borrower 3.0 The Borrower abided by the commitment.

ii – Environmental policy 2.5 The environmental policy was only partially adhered to.

iii – Institutional framework 3.0 The restructuring made by the executing agency rendered it more effective.

iv – Technical viability and provision of staff 3.0 Quality and quantity wise, there were enough staff.

v – Financial viability and cost recovery mechanisms 3.0 The revenue from the tollbooth enabled the maintenance of the work to be ensured.

vi – Economic viability 3.5 The project was economically viable

vii – Environmental viability 2.5 The measures adopted only partially guaranteed the environmental viability of the project.

viii – Continued operation and maintenance (availability of funds to cover recurrent charges, currency, replacement parts, work yards, etc.)

3.5 The revenue from the tollbooth enabled the maintenance of the work to be ensured.

4 Economic rate of return 3.0 The project objectives were attained in economic terms.

TOTAL 11.8

Overall assessment of results 2.95 The overall performance of the project was satisfactory.

Annex 8 COTONOU-PORTO NOVO ROAD REHABILITATION PROJECT

COMPLETION REPORT MATRIX OF RECOMMENDATIONS AND FOLLOW-UP MEASURES

MAIN OBSERVATIONS AND CONCLUSIONS LESSONS LEARNT/RECOMMENDATIONS

FOLLOW-UP MEASURES RESPONSIBILITY

1. Although the project was completed with some delay, the assessment shows that all the anticipated activities were carried out, and objectives set for the project were attained in terms of a reduction in transport costs and improved efficacy of the level of service. The main actions that condition the success of a project were, in general, well identified at project preparation and appraisal. Nonetheless, considering the urban development of the project zone, modifications were made at the implementation phase to adapt it and strengthen the operational performance of the project. The operator of the tollbooth/weighing station did not fulfill the conditions under his contract, leading to the termination of the contract. The donors made their contribution to the project in conformity with the estimates and, overall, their performance was satisfactory. 2. The project led to the development of an 18.30 km road segment in compliance with norms that conform with current and forecast traffic. The project’s economic rate of return was 28%, and it led to a reduction in transport costs and travel time. Furthermore, it generated temporary jobs for a little over five years with the execution of contracts. Road safety improved considerably. The project led to an improved autonomy of the Road Fund, thanks to the toll dues which were paid directly into the Road Fund accounts. 3. The sustainability of the road was guaranteed by: (i) the technical and geo-technical characteristics of the road which, considering forecast traffic will ensure a good resistance for the span of the project if standard and periodic maintenance are carried out correctly and; (ii) the availability of a Road Fund set up since 1997 and replenished with revenue from the tollbooth installed, etc (iii) the actual implementation of axle load control, the regulatory texts of which have been adopted. Overall, it appears that the objectives set for the road sub-sector were achieved save for (i) the emergence of SME, (ii) sustainability of the BGDR and (iii) consideration of the diagnosis of the land tenure situation and spatial organization through feasibility studies.

1. The implementation schedule established at project appraisal must be analyzed taking into account the constitutional and institutional constraints of the countries and the Bank’s policy as well as the specificities of the project area such as works in urban areas where the output of works is low and there are many unforeseen constraints as well as the quantified data of the project’s impact on the land tenure situation and development of economic and commercial activities. 2. A newly developed urban highway can rapidly become saturated if rules of urbanism are not established and measures taken to prevent economic activities from spilling over onto the roadway. The development of lanes reserved for 2-wheeled vehicles must be examined carefully in order to prevent the lanes from being diverted from their original purpose; 3. The implementation of axle load control on the transit corridors such as the Cotonou-Porto Novo road cannot be handled by one country alone since these corridors fall within the framework of regional integration. 4. The strategy of promoting SMEs; inter alia, through the creation of an equipment leasing company did not yield the expected results.

1. Ensure that, during the studies and appraisal, schedules are realistic; and examine the problem of loan ratification so as to reduce by at least 6 months the period between loan signature and ratification; ensure that feasibility studies, especially for road projects in urban areas, take due account of the diagnosis of the land situation and spatial organization. At appraisal, include in consultancy services monitoring and assessment during the works phase of the evolution of the land tenure situation and spatial organization, especially for projects in urban areas. Reconsider the concession dossier for the operation of the Ekpé tollbooth/weighing station with a view to ensuring a real concession, and not lease, as was the case during the initial experience, and rapidly re-launch the bidding for the recruitment of a concessionaire. Pursue the monitoring of the process for the re-launch of the concession for the operation of a tollbooth/weighing station. 2. Ensure the actual functionality of the lanes reserved for 2-wheeled vehicles from design to operation, and a more effective traffic policy so as to combat improper parking and prevent commercial activities from spilling over onto the roadway. 3.Speed up the regional coordination mechanism being prepared by ECOWAS and WAEMU for an effective commencement of control of axle load throughout ECOWAS. Support sub-regional organizations in funding diagnostic studies on the effect of overloading on inter-state road axes, the modalities for the management of works and experiences thereon, and the financing of weighing equipment, as provided for in the framework of the PACT of NEPAD 4.Envisage a mechanism of multi-year contracts with the obligation for a plan for investments in equipment so as to re-launch the development of the promotion of SMEs, which is one of the objectives of the transport sector project. (a) Build the human resource capacities of BGDR as well as seek funding for its programme of activities with the Road Fund so that dependable and regular road statistics and data could be available at all times; and (b) ensure that the feasibility stages, especially for road projects in urban areas, take due account of the diagnosis of the land situation and spatial organization and town planning.

1. Borrower/Executing Agency ADB

Borrower/Executing Agency ADB 2. Borrower/Executing Agency 3. Borrower/Executing Agency ADB 4. Borrower/Executing Agency Borrower/Executing Agency

Annex 9

COTONOU - PORTO NOVO ROAD REHABILITATION PROJECT

COMPLETION REPORT

SOURCES OF INFORMATION

• Project appraisal report, • Loan negotiation report, • Loan agreements relating to the project • Bidding documents • Bid analysis documents • Contracts and amendments of the works, equipment and contract for the control and

supervision of the works • Project status reports • State of disbursement in SAP • Aide-mémoire, mission and project supervision reports • Data on road counts - 1998 and 2004 • General current and periodic maintenance programme • Provisional works acceptance report • Project Completion Report • Borrower’s PCR • Correspondence files

Benin - PCR Cotonou-P.N. Road

Annex 10 Page 1/11

REPUBLIQUE DU BENIN

MINISTERE DES TRAVAUX PUBLICS ET DES TRANSPORTS

DIRECTION GENERALE DES TRAVAUX PUBLICS

DIRECTION DES TRAVAUX NEUFS

REAMENAGEMENT DE LA ROUTE COTONOU/PORTO-NOVO LOT B :

DU PK 4+250(FIN AGGLOMERATION COTONOU) AU PK 15+000( SEME-PODJI)

RAPPORT D’ACHEVEMENT DE PROJET

Benin - PCR Cotonou-P.N. Road

Annex 10 Page 2/11

1. DONNEES DE BASE PAYS : République du Bénin TITRE DU PROJET : Aménagement de la route

Cotonou/Porto-Novo. NUMERO DU PROJET : FAD-n°F/BEN/RTE/96/30 du 23 septembre 1996. FSN- n° N/BEN/REA-RTE/96/2 du 23 septembre 1996 EMPRUNTEUR : République du Bénin ORGANE D’EXECUTION : Direction des Routes et Ouvrages d’Art DATE D’EVALUATION : du 26 juin au 07 juillet 1995 DATE DE SIGNATURE DU PRET : 23 septembre 1996 ENTREE EN VIGUEUR DU PRET : DATE DE DEMARRAGE : 07 décembre 1998 DATE D’ACHEVEMENT (exécution) : Les travaux de génie civil (hormis quelques travaux de raccordement au niveau du poste de péage/pesage de EKPE sont achevés le 11 septembre 2000. Les travaux d’équipement du poste sont achevés en mai 2004. Les travaux suspendus sont en cours de réalisation actuellement et leur achèvement est prévu pour le mois de Décembre 2004. DATE DE DECAISSEMENT FINAL : les décaissements sont en cours. Les dernières demandes de décaissement sont relatives aux travaux restant à faire et actuellement en cours et au paiement de la réception du décompte du marché de fourniture d’équipement correspondant à la réception provisoire des équipements COUT TOTAL DU PROJET : 46,17 milliards de FCFA soit (à évaluation) 61, 01 UC à raison de 1UC=756.69 FCFA) COUT DES TRAVUX DU LOT B : 16.487 millions de F CFA COUT DES EQUIPEMENTS : : 883 millions de FCFA (les coûts du contrôle des travaux et du contrôle des équipements sont supportés par la KFW) PLAN DE FINANCEMENT de l’ensemble du projet

FAD : 7.57 milliards F CFA FSN : 4.54 milliards F CFA FED : 13.12 milliards F CFA KFW : 14.36 milliards F CFA BOAD : 5.00 milliards F CFA BENIN : 1.58 milliards F CFA

Benin - PCR Cotonou-P.N. Road

Annex 10 Page 3/11

MONTANT DU PRET FAD :10 millions d’UC soit 7,57 milliards de F CFA

FSN : 6 millions d’UC soit 4,54 milliards de F CFA Autres pour la réalisation du projet :

FED : 13.12 milliards F CFA (subvention) KFW : 14.36 milliards F CFA (subvention) BOAD : 5.00 milliards F CFA ( prêt)

RAPPORTS D’ACTIVITES :

11 rapports d’activités trimestriels 1 rapport final des travaux 2 rapports d’audit

SUPERVISION : 3 visites de supervision

10 mars 1999 semaine 37/38 l’an 1999 semaine 22 l’an 2001

2. DESCRIPTION DU PROJET

- Le projet consiste en la reconstruction de la route Cotonou/Porto-Novo longue de 28.711 Km et qui se présente en trois lots. La participation du groupe de la BAD (FAD et FSN) est consacrée au financement des travaux du lot 2 PK 4+250 au PK 15+000. les caractéristiques du projet au niveau de cette section se présentent comme ci-après/

Profil en travers type : Chaussée

Bande de roulement : 2 x 2 voies x 3,60m Bande d’arrêt d’urgence (BAU) : 2 x 2,00m Piste cyclable et accotement : 2 x 2,20m Terre plein central avec bordure haut : 4,00m

Contre allée (non systématique)

Largeur : 6,00m

Structure Chaussée: Couche de forme : 20cm de silteux naturel ; Couche de fondation et de base : 35 cm de grave concassé 0/31.5

Revêtement : 7 cm de BB0/14 pour les bandes de roulement et 3.5 cm de BB0/6 pour les bandes d’arrêt d’urgence.

3. REALISATION DES CONDITIONS DU PRET

Benin - PCR Cotonou-P.N. Road

Annex 10 Page 4/11

Les conditions du prêt et leur réalisation se présentent comme suit :

L’engagement de mettre en place des ressources suffisantes pour l’entretien routier courant; Par lettre …………. Le Gouvernement du Bénin s’est engagé à mettre en place les ressources suffisantes pour l’entretien routier courant. Cet engagement s’est traduit dans les faits par l’adoption des mesures visant l’accroissement des taxes affectées, la mise en exploitation des postes de péage/pesage dont notamment celui de EKPE. Avec ses mesures, le taux de couvertures par le fonds routier des besoins en financement de l’entretien routier s’est nettement amélioré, mais reste insuffisant. La généralisation du péage et le contrôle des charges roulantes sont des mesures en cours de mises en œuvre et qui permettront d’une part, d’améliorer substantiellement les ressources du Fonds Routier et d’autre part, de réduire les besoins d’investissement en raison d’une meilleure utilisation du réseau routier.

L’engagement de mettre en place la nouvelle structure du Fonds Routier; Par décret 96-373 du 29 août 1996 le fonds routier s’est doté d’une nouvelle structure. Ce décret stipule en effet que le Fonds est désormais : - régi par le droit privé et soumis à l’obligation du contrôle de l’Etat ; - doté de la personnalité morale et de l’autonomie financière et - doté des organes de gestion que sont le Conseil de revue (organisation paritaire

Gouvernement et bailleurs de fonds) le comité de gestion regroupant les représentants des ministères MTPT, MFE, MAEP, MEHU, MFPTRA, MPPD, des Chambres d’Agriculture et de Commerce, des transporteurs, des conducteurs et des communes. Il est précisé notamment que l’Etat ouvre un compte spécial dans les écritures du Trésor Public au nom du Fonds pour recevoir les taxes affectées qui alimentent à son tour le compte bancaire du fonds.

La preuve que les accords de financement ont été signé avec les autres bailleurs de

fonds (BOAD, FED, KFW), ou que ces derniers se sont engagés par écrit à participer au financement du projet; Les financiers ci-dessus ont effectivement contribué financièrement à la réalisation du projet. Conformément le schéma de financement mis en place, la BOAD a cofinancé avec le FSN, le FAD et le Bénin, les travaux routiers du lot B. Le FED a assuré le financement du lot C (PK15+000 – PK 28+711) et la KFW assuré le financement du lot A et la Mission de Contrôle pour tous les lots (LOTA, lot B et lot C).

L’engagement de soumettre au Fonds les curriculum vitae de l’Ingénieur et des trois (3) techniciens qui seront détachés auprès de l’ingénieur Conseil pour le contrôle et la surveillance des travaux du projet;

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Ces curriculums vitae ont été soumis par lettre n° ………… du ……….., ce qui a permis la mise en place d’une Division Temporaire de Contrôle des travaux qui a travaillé en étroite collaboration avec la Mission de Contrôle jusqu’à la fin des travaux.

L’engagement d’informer le Fonds de toutes les étapes de sélection de l’Ingénieur Conseil chargé du contrôle et de la surveillance Suivant les accords avec la KFW, qui supporte le coût de la Mission de contrôle et de la surveillance des travaux de l’ensemble des lots, le groupement de Bureaux Beller Consult-IGIP qui a réalisé les études, a également assuré les prestations de consultant pour le contrôle et la surveillance des travaux en avenant au contrat de base. Au total cinq (5) avenants ont été pris dans le cadre desdites prestations. Ils concernent: - avenants n°1 et n°2 dans le cadre des études et de l’assistance pour le

dépouillement des offres pour la réalisation des travaux - avenant n°3 pour le contrôle et la surveillance des travaux - avenant n°4 pour le renforcement de la mission de Contrôle - avenant n°5 pour les prestations complémentaires pour prorogation du délai

d’exécution et pour le financement d’une expertise complémentaire - avenant n° 6 pour le prestations supplémentaires du Consultant pour les travaux

restants sur les lots B et C. Ces avenants sont toujours transmis pour information à la BAD.

L’engagement de mettre en place, la Société d’exploitation de la station de péage/pesage sur la route

Dans le cadre de l’exploitation du poste de péage /pesage de EKPE, un contrat de concession a été passé avec un opérateur privé qui a démarrer ses prestations en janvier 2003 pour une durée contractuelle de cinq ans. Mais à ‘issue de la première d’exploitation l’opérateur n’a pas respecté ses obligations ce qui a amené au prononcé de sa déchéance par arrêté 2004 n°058/MTPT/DC/FR/CG du 23 juin 2004. A la suite de cette déchéance et en attendant l’aboutissement de la procédure engagée pour la désignation d’un nouveau concessionnaire, la Direction du Fonds Routier assure la perception des droits de passage. Il y a lieu d’indiquer que la mise en application de la fonction déchargement n’est pas encore effective. Des dispositions sont en cours sur le plan régional pour l’uniformisation de la politique de contrôle des charges.

L’engagement à attribuer en priorité les revenus nets du péage à l’entretien routier et en particulier à celui de la route Cotonou-Porto/Novo;

Dans le cadre de la restructuration du Fonds Routier et conformément au décret pris à cet effet et cité plus haut, les revenus du péage sont affectés systématiquement au Fonds Routier.

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Mettre en place la nouvelle structure du Fonds routier, au plus tard le 31 décembre

1996; Cette structure est mise en place par décret 9-373 du 29 août 1996.

Transmettre annuellement au Fonds le projet de budget de l’entretien routier, pour

information et avis au Fonds; Le projet de budget de l’entretien routier est régulièrement transmis au Fonds.

Transmettre au Fonds le rapport de l’étude de péage pour information et avis, avant sa finalisation

Le rapport de l’étude a été régulièrement transmis au Fonds.

Détacher auprès de l’Ingénieur Conseil au plus tard le 31 juillet 1996, un Ingénieur et trois (3) techniciens routiers dont l’expérience et les qualifications auront été jugées acceptables par le Fonds;

L’équipe de l’Administration a été mise en place le en juin 1998 alors que les travaux effectivement démarré en décembre1998 suite à la notification du marché à l’Entrepreneur par Ordre de Service n°0080/DROA/SDAFdu 16 novembre 1998.

Attribuer annuellement en priorité les revenus du péage de la route en projet à l’entretien routier courant, en particulier à celui de la route Cotonou/Porto-Novo;

L’entretien courant de la route est assuré par les ressources du Fonds Routiers qui est alimenté, entre autres, par les revenus du péage. En dehors de cela, le contrat de concession prévoit qu’une intervention directe du concessionnaire pour le balayage de la route, la prise en charge de l’éclairage public et de son entretien, le dégagement de tout véhicule immobilisé sur la route. Le concessionnaire a également en charge toutes les prestations d’entretien des bâtiments, de la voirie et des réseaux divers constituant la gare de péage.

Mettre en place, au plus tard le 31 décembre 1998, la Société d’exploitation de la station de péage/pesage sur la route en projet.

La société de gestion du poste de péage a été mise en place en janvier 2003. Les raisons de ce retard proviennent de la nécessité d’attendre la reprise par l’Entreprise du revêtement de ce tronçon de route suite au constat de défectuosité qui a été observé. De même l’attribution du marché a mis un certain temps en raison des reprises de la procédure d’appel.

Ainsi qu’il suit toutes les conditions du prêt ont été réalisées. Les conditions ne semblent pas superflues. 4. ORGANISATION ET GESTION L’unité chargée de la gestion du projet a connu plusieurs mutations. Lors de, de l’évaluation du projet et du démarrage effectif des travaux, cette structure était dénommée Direction des Routes et Ouvrage d’Art (DROA).

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Par l’arrêté n° 035/MTPT/DC/SG/DGPR/SA du 05 juillet 2002, qui a abrogé celui portant création de la DROA, il a été crée la Direction des Grands Projets Routiers (DGPR) qui a assuré la gestion du projet jusqu'à la prise de l’arrêté n°034/MTPT/DC/SG/DGTP/SA du 04 mai 2004. C’est la DGTP qui assure actuellement la gestion du projet à travers la Direction des Travaux Neufs. L’Organigramme de la DGTP est jointe en annexe. L’effectif du personnel de la Direction des Travaux Neufs est de 47 dont 26 cadres. Comme la DROA et la DGPR, la DGTP a pour mission l’élaboration et a mise en œuvre de la politique du Ministère des Travaux Publics et des Transports dans le domaine routier et des ouvrages spécifiques de Génie Civil conformément à la stratégie du secteur routier. L’organigramme est joint en annexe. 5. PASSATION DES MARCHES La procédure suivie pour l’attribution des marchés et contrat est la suivante :

- Contrat d’actualisation des études, d’assistance pour les dépouillements des offres des Entreprises de passation des marchés des travaux

Avec l’appui financier de la KFW, la consultation des Bureaux de nationalité allemande a été organisée au début de l’année 1992 et a abouti, en janvier 1993, au choix du groupement du bureaux Beller consult et IGIP pour la réalisation des études de faisabilité de la route Cotonou/Porto-Novo. avec pour variante la réalisation des études techniques détaillées et l’élaboration des dossiers d’appel d’offres. Le reste des prestations concernant l’assistance pour le dépouillement des offres pour la réalisation des travaux et pour le contrôle et la surveillance desdits travaux ont été confiées au consultant avec l’accord de la KFW, sous forme d’avenant au contrat de base. Montant du contrat de base phase 1 Etudes) : 115.000.000 FCFA Montant avenant n°1(Etudes Techniques Détaillées) : 591.000.000 FCFA Montant avenant n°2(Etudes complémentaires) : 68.000.000 FCFA Montant avenant n°3 (Contrôle des travaux) :1.280.440.000 FCFA Montant avenant n°4 ( renforcement mission) : 207.649.569 FCFA Montant avenant n°5 (prolongation de délais) : 150.785.000 FCFA Montant avenant n°6 (contrôle travaux restants) : 24.750.000 FCFA Marché pour la réalisation des travaux routiers et de Génie Civil du poste de péage/pesage; L’attribution du marché relatif à la réalisation des travaux du lot B a été faite sur appel d’offres ouvert suivant une procédure de post-qualification. Sept Entreprises ont déposé des offres. L’analyse et le jugement desdites offres ont conduit à la sélection de l’entreprise Colas pour la réalisation des travaux. Les rapports de d’évaluation des offres reçues ont été soumis à la signature de la Banque Africaine de Développement avant la signature et la notification du marché à l’attributaire.

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Attributaire du Marche des travaux : Entreprise COLAS Montant du marché : 14.168.388.468 FCFA Montant de l’avenant n°1(travaux supplémentaires) : 1.825.721.911 FCFA Montant de l’avenant n°2(prise en charge par le Bénin de la part BOAD au titre du paiement des travaux restants en raison de l’épuisement du crédit de cette Institution et réalisation, et financement par le Bénin de certains travaux de réparation) ; Dans le cadre de l’avenant n°1, la société COLAS a assurer la fourniture des pont bascules faisant partie des équipements afin permettre la réalisation des fosses en fonction des caractéristiques dont pont bascules qui doivent les équiper. Marché pour la fabrication, le transport et l’installation des équipements du poste Ce marché est également confié suite à un appel d’offres ouvert au groupement ASCOM –SEIB pour un montant de 882.082.703francs CFA HTVA financé conjointement par le Bénin, le FAD et FSN. Conception Contrôle et réception du matériel du poste de péage/pesage Le Bureau Louis Berger International a été sélectionné, à l’issue d’une consultation restreinte pour assurer l’assistance à la conception du poste et au contrôle et à la réception des équipements pour un montant de 79.925.000 francs CFA. Utilisation d’un service d’audit Les services d’audit sont acquis par appel d’offres sur la base d’une liste restreinte limitée aux consultants nationaux et régionaux. Le Bureau Pricewatterhousecooper de nationalité Ivoirienne a été sélectionné pour procéder à l’audit du projet. Au total deux missions d’audit ont été réalisées. Les rapports y relatifs ont été déposés à la Banque.

6. EXECUTION DU PROJET Le projet comprend deux composantes principales:

- le travaux routiers y compris la composante Génie civil du poste de péage pesage de EKPE et

- la composante Equipement du poste de péage/pesage de EKPE. La composante "travaux routiers" a été réalisée par l’Entreprise COLAS de décembre 1998 à décembre 1998. Les quantités réellement mises en œuvre figurent en annexe au présent rapport. Evaluation de la performance des différentes parties participant au projet

a) organe d’exécution L’organe d’exécution a satisfait toutes les conditions du prêt. Elle a assuré une supervision de l’exécution du projet en mettant en place, aux côtés du Consultant, une équipe composée de d’un Ingénieur et de 3 trois techniciens dont un affecté spécialement sur le lot B et en organisant régulièrement des réunions de chantier pour le suivi des travaux. Elle a transmis régulièrement à la Banque toutes les demandes de décaissements établies dans le cadre du projet.

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Elle a maintenu durant le déroulement des travaux une bonne ambiance de travail avec les avec l’Entrepreneur, le Consultant et les financiers du projet dans le respect des règles, des accords, des contrats et marchés signés dans le cadre du projet. b) Les Entrepreneurs Durant la réalisation des travaux l’Entrepreneur a fait preuve d’une bonne organisation du chantier et d’une bonne collaboration en vue de la qualité des travaux qui est globalement acceptable. L’organisation de l’Entrepreneur est soutenue par une bonne gestion technique et financière du projet et une bonne ouverture au climat de dialogue instauré par le consultant dans le cadre du suivi du projet. Toutefois, des défectuosités ont été observées au niveau du revêtement en béton bitumineux quelques mois après la réalisation de ces travaux. L’Entrepreneur a mis en jeu son assurance TRC pour la reprise des sections dégradées après identifications. c) Consultants Durant la réalisation des travaux, le Consultant a fait preuve d’une bonne qualité professionnelle notamment dans les approches conceptuelles et décisionnelles liées à la réalisation des travaux. Il a mis en place, conformément au moyen prévu, un système de contrôle permettant de cerner au mieux les activités du chantier et de recueillir systématiquement les données de suivi des travaux. Le consultant a maintenu sur le chantier, une bonne ambiance de travail, avec l’Entrepreneur et l’organe d’exécution des travaux. d) La BAD Suite à sa mission d’évaluation du projet, la Banque a pris les dispositions pour que les accords de prêts (FSN et FAD) puissent être signés rapidement. De plus elle restée préoccupée de la prise des mesures nécessaires en vue du respect par le Bénin des conditions de mise en vigueur et de premier décaissement. La banque a également effectué plusieurs missions de suivi et apporté une contribution notable à l’amélioration du projet sur plusieurs aspects.

7. UTILISATION DU PRET

a) Les sommes provenant du prêt sont utilisées pour l’acquisition dans les territoires des Etats participants ou Etats membre, des biens et services conformément aux règles de procédure de la Banque. Mensuellement l’Entrepreneur établi un décompte sur la base du relevé des attachements pris dans le mois pour les travaux réellement exécutés et ayant fait l’objet de constat d’achèvement suivant les indications du Cahier des Clauses Techniques Particulières. Le décompte ainsi élaboré est contrôlé et signé par la Mission de Contrôle avant d’être soumis à la vérification de l’organe d’exécution du projet. Cet organe atteste alors la validité signatures nécessaires.

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Le décompte est alors transmis à la structure de l’Emprunteur chargée de la gestion des prêts qui établit les demande de décaissements. Au total ……. demandes de décaissement ont été établies dans le cadre de l’exécution des travaux routiers et ……… dans le cadre de l’acquisition du transport et de l’installation des équipements du poste de péage/pesage de EKPE. Les décaissements ont connus un retard assez important au lendemain des évènements politiques survenus en République de la Côte d’Ivoire et qui ont connu la banque à établir une agence temporaire de relocalisation en Tunisie.

b) L’état comparatif des prévision de financement et des décaissement réellement effectués se présente comme ci-après :

Sources de financement du projet

Montants annoncés à l’évaluation (en milliards

de francs CFA)

Dépenses réelles au 31/12/2001 (en milliers de francs CFA)

Ecarts (+ ou -)

FAD(10 Mios UC)

7,57 BAD (16 millions d’UC) FSN(6Mios

d’UC) 4,54

BOAD 5 5 0 Gouvernement 1 0

Les écarts constatés sur la part du Bénin sont dus à la prise en compte part le Bénin des paiements imputables à la BOAD suite à l’épuisement des ressources du prêt de cette Institution. Mais l’épuisement des ressources du prêt de la BOAD est au dépassement de la prévision faite pour l’inflation, de même que la commande de travaux complémentaire objet de l’avenant n°1 au marché des travaux. Le détail des dépenses par catégorie est joint en annexe.

8. PERFOMANCE OPERATIONNELLE

I. Les objectifs du projet sont atteints dans une grande mesure. Le projet a permis de construire une route express entre Cotonou et Porto-Novo avec la structure de chaussée et la géométrie décrites au cours de son évaluation. Un poste de péage/pesage a été érigé sur l’axe dans l’agglomération de EKPE. Le poste de péage permet de percevoir des droits de passage pour tout véhicule empruntant l’itinéraire. Les recettes issues du péage alimentent le fonds d’entretien routier.

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La gestion du poste de péage par un concessionnaire privé a été expérimentée. Les résultats n’étant pas totalement à la mesure des attentes notamment en ce qui concerne l’exécution du contrat de concession, il a été mis fin au premier contrat avant terme. Des dispositions sont en cours pour la désignation d’un nouveau concessionnaire. En attendant la gestion du poste se fait par l’Administration.

Le seul objectif non encore réalisé concerne le déchargement des véhicules en surcharge. L’application de cette mesure a été engagée. Mais, en raison de la réaction peut favorables des transporteurs, elle a été suspendue en attendant la mise en œuvre des actions concertées dans le cadre de la coopération sous-régionale.

II. D’importants reliquats sont dégagés sur les prêts du groupe de la BAD. Il est envisagé de sollicité de la Banque l’affectation de ces ressources à la réhabilitation de la route SEME-KRAKE.

9. CONCLUSION ET RECOMMANDATIONS L’expérience avec le groupe de la BAD dans le cadre de la mise en œuvre des projets routiers est assez enrichissante. Les observations qu’elle suscite de part de l’emprunteur sont liées aux difficultés liées à la prise d’avenants aux marchés et contrat projet, perçue comme une source de malversations. Mais en réalité, en phase de travaux, et par conséquent devant la réalité des situations et notamment de l’évolution imprévisible de conditions de mise en œuvre du projet, la prise d’un avenant peut s’avérer nécessaire pour la réalisation des objectifs du projet. Fait à Cotonou, le …………décembre 2004

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Projet de réaménagement de la route Cotonou/Porto-Novo Lot B : Fin Agglomération Cotonou – Sêmê Kpodji

RAPPORT D’ACHEVEMENT DU PROJET (RAP)

OBSERVATIONS SUR LE RAP DE LA BAD

1. Page ii Sigles et abréviations

CEDEAO : Ecrire « Communauté » Economique des Etats de l’Afrique de l’Ouest au lieu de Commission ;

DGTP : Mettre « e » muet à Générale ; PME : Ecrire « Petites » au lieu de Petits ; TPC : Ecrire « Terre-Plein Central » au lieu de Terre-Pleine Centrale ;

2. Page iii Données de base Point 4. Organe d’exécution : mettre « e » muet à Générale

3. Page v

Point F. Entreprise et consultants adjudicataires des marchés du projet. Colonne des Bailleurs de Fonds : Mettre « s » à Fonds. Les Bailleurs de Fonds des équipements du poste de péage-pesage de Ekpè sont : FAD/FSN/Gouvernement du Bénin; Donc supprimer BOAD 4. Page vi Tableau de la matrice du projet

Colonne d’hypothèses importantes risques Point 4.2 : Enlever petit « r » devant Relance

5. Page viii

Résumé analytique 3ème paragraphe.

Ecrire « les résultats du projet sont dans l’ensemble satisfaisants » au lieu de sont satisfaisants ;

Ecrire « En effet, sur le plan ……………, amélioration de la sécurité routière ………….) » au lieu de : des la sécurité routière.

7ème paragraphe. Point (iii) : Mettre : « le calendrier d’exécution ……………… analysé en tenant compte des contraintes ………… et les obstacles imprévus sont nombreux » ;

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6. Page 3

Exécution du projet 3.1.2 : 1ère ligne : Mettre : « mise en vigueur » au lieu de : « mise vigueur ».

7. Page 5 Calendrier d’exécution 3.5.1 (i) les travaux ont été exécutés de décembre 1998 à avril 2005 et non à décembre 2004.

8. Page 7 Décaissement 14ème ligne : supprimer « la » à la fin de la ligne.

9. Page 8 Performance et résultats du projet 4.1.1 Mettre « virgule » après Lors de son exécution, le …….. de l’évaluation.

10. Page 9 Performance institutionnelle 4.3.3 Ecrire le bureau de la « Banque de Gestion Routière » (BGR) au lieu de Gestion des Données Routières (BGDR).

11. Page 10 Performance des consultants, des entreprises et du fournisseur 4.4.2 Mettre espace entre 1998 à 2001 4.4.5 Changer la dernière phrase par « Par ailleurs, suite à leur mise en service, les équipements électroniques installés sur le poste de péage-pesage ont connu des dysfonctionnements qui ont été corrigés par le groupement ASCOM-SEIB chargé de la fourniture et de l’installation desdits équipements. Suite à la vérification de l’effectivité desdites réparations, la réception définitive des équipements du poste a été prononcée le 09 février 2005.

12. Page 12 Incidences sociales 5.1.1

Supprimer de la 2ème phrase « de marché à pieds acceptables ». Supprimer une fois des activités dans la dernière phrase.

13. Page 13

Performance de l’Emprunteur 7.2.1

Ajouter : En effet, les prêts approuvés le 4 septembre 1996 n’ont ……..

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Performance de l’organe d’exécution 7.3.1

Supprimer le « a » devant avait mis en place une division temporaire… Ecrire : Les modifications organisationnelles ………. a continué à suivre le projet.

7.3.2 Supprimer « de » devant « d’un Ingénieur et de 3 trois ………. des travaux ». Performance des autres bailleurs de fonds Dans la dernière phrase, supprimer « qui » devant a permis sa réalisation sans problème majeur. Fait à Cotonou, le 1er juillet 2005. Le Directeur des Travaux Neufs Moudachirou BACHABI