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Report No: 20294
IMPLEMENTATION COMPLETION REPORT
(CREDIT27780)
ON A
CREDIT
Public Disclosure Authorized
IN THE AMOUNT OF US$40 MILLION
TO THE REPUBLIC OF MADAGASCAR
FOR
FOR THE SOCIAL FUND II PROJECT
Public Disclosure Authorized
May 1, 2000
HumanDevelopmentIV
AfricaRegion
This document has a restricted distribution and may be used by recipients only in the
performanceof their official duties. Its contentsmay not otherwisebe disclosedwithout
World Bank authorization.
CURRENCY EQUIVALENTS
(Exchange Rate Effective November 30, 1999)
Currency Unit = FMG franc
FMG 1 = US$ .00016
US$ 1 = FMG 6260
FISCAL YEAR
2000
ABBREVIATIONS AND ACRONYMS
CAS
FAO
FID
IDA
NGO
PCD
SECALINE
SAR
Country Assistance Strategy
Food and Agriculture Organization
Social Fund (Fonds d'Intervention pour le Developpement)
International Development Association
Non-Governmental Organization
Project Concept Document
Food Security and Nutrition Project (S&curiteAlimentaire et Nutrition
Elargie)
Staff Appraisal Report
Vice President:
Country Director:
Sector Manager:
Task Team Leader:
Callisto Madavo
Michael Sarris
Arvil Van Adams
Eileen Murray
FOR OMCIAL USE ONLY
CONTENTS
1.ProjectData
2. PrincipalPerformanceRatings
3. Assessmentof DevelopmentObjectiveandDesign,and of Qualityat Entry
of ObjectiveandOutputs
4. Achievement
and Outcome
5. MajorFactorsAffectingImplementation
6. Sustainability
7. BankandBorrowerPerformance
8. LessonsLearned
9. PartnerComments
10.AdditionalInformation
FrameMatrix
Annex1. KeyPerformanceIndicators/Log
Annex2. ProjectCostsandFinancing
Annex3. EconomicCostsandBenefits
Annex4. BankInputs
of Components
Annex5. RatingsforAchievementof Objectives/Outputs
Annex6. Ratingsof BankandBorrowerPerformance
Annex7. List of SupportingDocuments
Page No.
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and maybe used by recipientsonlyin the
This documenthas a restricteddistinbution
perfomanceof theirofficia duties. Its contentsmaynot otewise be disclosedwithout
WorldBankauthoization.
Project ID: P035669
TeamLeader: Eileen Murray
ICR Type: Core ICR
ProjectName: SOCIAL FUND 2
TL Unit: AFMMG
Report Date: May 1, 2000
1. Project Data
Name: SOCIALFUND 2
Country/Department: MADAGASCAR
Sector/subsector: SA - Social Funds & Social Assistance
LIC Number: 27780
Region: Africa Regional Office
KEY DATES
Original
Effective: 06/25/96
MTR: 11/01/98
Closing: 12/31/2000
PCD: 04/05/95
Appraisal: 08/15/95
Approval: 09/14/95
Revised/Actual
06/25/96
11/22/98
12/31/99
Borrower/ImplementingAgency: Governrnentof Madagascar/Officeof the Prime Minister/Fondsd'Interventionpour
le Developpement(Social Fund)
Other Partners:
-STAFF
VicePresident:
Country Manager:
Sector Manager:
Team Leader at ICR:
ICR Primary Author:
Current
Callisto Madavo
Michael N. Sarris
Arvil Van Adams
Eileen Murray
James Wright
At Appraisal
Edward V. K. Jaycox
N.A.
Alain Colliou
2. PrincipalPerformanceRatings
(HS=Highly Satisfactory,S=Satisfactory,U=Unsatisfactory,HL=HighlyLikely,L=Likely, UN=Unlikely,HUN=Highly
Unlikely,HU=Highly Unsatisfactory,H=High, SU=Substantial,M=Modest, N=Negligible)
Outcome: S
Sustainability: UN
InstitutionalDevelopmentImpact: SU
Bank Performance:
S
Borrower Performance: S
QAG (if available)
Quality at Entry:
Project at Risk at Any Time: No
ICR
S
3. Assessmentof DevelopmentObjectiveand Design, and of Quality at Entry
3.1 Original Objective:
The project objectives, as stated in the SAR, were to alleviate poverty and support community
development through partnership with NGOs and beneficiary communities. The project would provide
supplemental financing to the Fonds d'Intervention pour le Developpement (FID), which had been active
in the provinces of Antananarivo and Toliary since 1993.
The objectives were stated somewhatgenerallywhichmade the assessmentof their attainmentdifficult.
However,they were appropriateand in line with Governmentstrategy. In 1993,54% of the population
livedbelow the poverty line (basedon 90% of the FAO recommendeddaily caloricintake plus essential
non-food items). An estimated92% of the poor lived in rural areas. The rural infant mortalityrate was
107,and fewerthan one in three childrencompletedthe five year priinaryschool cycle. Poverty reduction
was a pillar of the Government'sdevelopmentstrategy. A poverty assessmentdevelopedby the Bank and
the Governmentproposeda povertyreduction strategyusing a participatoryprocess. NGO and community
participationwas in line with Bank policiesand consistentwith the needto involvecommunities,both for
implementationand for longer-termcommunitycommitmentto maintenance.
The FID II Projectwas developedas a complementto the ongoingmacroeconomicadjustmentprocess in
order to provide importantelementsof a social safety net program in Madagascar. It was an important
cornerstoneof the CAS discussedby the Board on July 18, 1994. Its risk was limited since it was a
follow-onto the successfulFID componentof the then ongoing SECALINEProjectwhich had strong
borrower support.
3.2 RevisedObjective:
The objectiveswere not revised.
3.3 OriginalComponents:
The project componentsincluded:(a) constructionand rehabilitationof basic infrastructure,including
schools,health centers, water supply, small irrigationsystems, rural roads, small bridges, as well as
reforestationand protection of the environment;(b) income generatingactivities, includingactivities
pertainingto the CommunityNutritionProgram under the Food Securityand NutritionProject; and (c)
private sector supportprograms, includingtraining programs for small enterprises and consultingfirns,
and developmentof communitygroupsand localNGOs. There were also studies: (i) to identifythe
demandfor potentialincome generatingactivitiesto be financedunder the project; (ii) to develop a training
needs assessmentand training plan for contractorsand engineeringconsultants;and (iii) to complete a
diagnosticevaluationof technicaland contractingproceduresto strengthenimplementationof sub-projects
by contractorsand engineeringconsultants. Since the project was to be demanddriven, exact amounts
were not earmarkedfor each component. It was assumed,however, that most of the funding would be for
category(a) social infrastructure.
The SECALINEProject (Credit2474-MAG)which was approvedin March 1993 had includedthe
creationof the Fonds D 'InterventionPour le Developpment(FID). FID was establishedas a non-profit
organizationto implementlabor intensiveworks througha delegatedcontract managementsystem in the
Provincesof Antananarivoand Toliary. Under SECALINE,FID developedthe capacityto achieve poverty
alleviationand developmentobjectives. It acquiredthe capacity to develop infrastructuresub-projects,
incomegeneratingactivitiesand training sub-projects. This experienceprovidedthe foundationfor the
expansionof FID's activityto all six provincesin the country under the FID II Project. Severallessons
from the SECALINEProject were taken into account in the design of this project (see section 3.5).
3.4 RevisedComponents:
Component(b) to support incomegeneratingactivitieswas dropped fiom the project in 1998because it
was felt that the smallloans program was incompatiblewith the country's financial sector policies and that
-2 -
this type of initiative could best be managed by financial intermediaryinstitutions(see section 4. 1). This
was not a major restructuringsince the funds could be easily allocatedto other FID programs through a
demand-drivenprocess.
3.5 Quality at Entry.
The rapid implementationand disbursementof FID II from effectivenessis an indicationof its readiness
and quality at entry (27% of credit disbursed in first year). Under the SECALINEProject, FID had an
ongoing successfulprogram in two provincesprior to the initiationof the FID II Project. By the time of its
completion in 1998,the FID componentof the SECALINEProject had implemented348 infrastructure
sub-projects,36 income generating activitiesand 10 training sub-projects. The SECALINEproject
therefore provided a foundation for program expansion under FID II.
FID is a non-profit organizationoperating under a Convention between FID and the Governmentand a
Manual of Procedurescovering lending criteria,model agreementsand contracts,procurement procedures,
financial managementprocedures,and administrativeprocedures. Broad participationin FID management
and membershipinvolved interestedparties at all levels. The Board of Directors includedone
representativeof the Prime Minister (President of the Board), the donor community,NGOs, civic
organizationsand two electedby members. Members compriseda broad spectrumof government,NGO,
private sector and communitygroups. There were also regional advisorycommittees. The Project
Agreement stipulatedthat FID would revise the Manual of Proceduresnot later than June 30, 1996 based
on the results of the studies listedabove (section 3.3). In the end, three separate manuals were produced.
The issue of previous poor quality rural road works was identifiedand later addressed in the revisions of
proceduresmanuals and through improvedtraining of engineeringfrms and contractors.
As a demand driven project, FID I did not have fixed implementationtargets, but indicativeprogram
monitoringindicatorswere agreed to (see Annex 1). A set of agreementsand operating procedureswas
put in place to ensurethat this programmaticapproach would function smoothly. Regional Directorswere
given the authorityto approve sub-projectsrequiring less than US$5,000 from FID, the FID Executive
Director could approve projects requiring less than US$25,000, and larger sub-projectshad to be approved
by FID's Board of Directors. IDA's approval was required for project grants in excess of $50,000
(US$100,000for rural roads). It was agreed that annual work programs and budgets would be prepared
for reviewwith IDA and that annual technicalaudits would be carried out. The articlesof agreement,
By-laws and Manual of Proceduresof FID, and the frameworkagreementbetween the Governmentand
FID were required to remain acceptableto IDA. The Executive Director,Deputy ExecutiveDirector, and
RegionalDirectors of FID, were at all times to have qualificationsand experience acceptable to IDA.
The FID II project design incorporatedsuccessfulfeatures of the SECALINEProject, including: (a)
involvementof beneficiariesat all stages; (b) regionallaunch workshops involvingall stakeholders;(c) a
decisive Director Generalwho recruitedcompetentstaff and let them work independentlywhile monitoring
performance in relation to agreed outcomes; and (d) the organizationof FID along private sector lines,
staffedwith competentmanagers. Additionallessonsof the SECALINEProject which were taken into
account in designingFID II included:
*
*
*
Projects executed outsideof traditional govemmentstructurestend to be more efficient and flexible
in getting quick results in the field and servingthe communities;relianceon NGOs and community
groups contributes to success.
Communitiesshould participate in projectdesign and implementation.
The delegated contract managementsystem for the constructionor rehabilitation of infrastructure
-3-
*
works well at a reasonablecost in rural as well as urban areas.
Implementationand manualof proceduresare very importantto facilitate implementation.
4. Achievement of Objective and Outputs
4.1 Outcome/achievementofobjective:
The FID II Project has had an importantimpacton poverty conditions. By the end of the project, 6.1
millionperson days of temporary employmenthad been created(121% of target), and 1,546permanent
jobs had been created(55% of target). FID expandedits program throughoutthe country. At the mid-term
reviewthere was a decision to spreadthe programto the poorest, most isolated regions. A 1999
beneficiarysurvey of 60 FID financedprojects finishedbefore December31, 1997 gives an indicationof
the program'seffectivenessand social impact. The surveyshows generallypositive impacts,but the limited
sample sizes for each type of project may limitthe significanceof some of the conclusions. (i) In 12 of 15
rehabilitatedschools,the number of students increased,in many cases by 25% to 50%. Beneficiariesin all
cases indicatedthat schoolrehabilitationhad been a priority. (ii) In seven of the ten health centers
surveyedvisits had increased,and in all exceptone case the beneficiariesindicatedthat the health center
improvementshad been a priority. Impactwas dampenedby a lack of health personnel(see section6.2).
(iii) The number of beneficiariesof water supplysystems increasedin all five cases in the sample. In four
of five cases beneficiariesexpressedmedium or high satisfaction;all consideredthe projectsa priority. (iv)
In five of six irrigationprojects,the irrigatedarea increased. In four of these cases doublecroppingwas
enabled. (v) The number of vendorsincreased in 6 of 8 market projects. In all cases beneficiaries
consideredthe marketsa priority,but there was less than full satisfactionwith the utilizationof the
facilities. (vi) All 9 road projectsassessedprovided improvedaccessto isolatedareas; 7 of these were
consideredprioritiesby beneficiaries.
The componentto promote income generatingactivitiesinvolvedloans for agricultureand other productive
purposes. A separateManual of Procedureswas establishedfor this componentafter signing. FID was
to give grantsto NGOs called "Agencesd'Encadrement" whichwould lend to beneficiaries. Beneficiaries
would repay the loans to the NGOs at interest rates stipulatedby a benchmarkrate of the Central Bank.
The componentgot off to a slow start. When the benchmarkrate of the Central Bank was raised, lending
rates underthe FID program were not increased,and the program became inconsistentwith Madagascar's
fmancial sectorpolicies. To correct this, it was decided that loans should be channeledthrough savings and
loan associations. At the mid-termreview in 1998 it was decided to drop this componentfrom the FID
programnaltogetherand leave rural credit to other programs. The amountswhich would have been used for
income generatingactivitiesby FID were allocatedunder other components.
For environment,the project was rated "C" with no significantenvironmentalissues. Some projects
enhanced environmentalprotection such as reforestationand erosion control. Roads were on existing
aligmnentsand schools and healthcenters were rehabilitatedon existingsites.
4.2 Outputsby components:
Physical Objectives
By project completion(includingsub-projectsstill in progress as of 1/1/2000)FID had surpassedseveral
of its physical improvementtargets. FID had worked with NGOs (309 contracts) and communitygroups to
rehabilitate450 schools(428% of target)and 185 health centers (229% of target). In addition, 967 km of
rural roads (97% of target) had been rehabilitatedand 11,171ha. had been irrigated (37% of target).
-4 -
Costs of FID investmentswere comparableto projectsfinanced under other programs,with the exception
of schoolswhich have cost about 30% more than other programs in order to make them cycloneproof. The
projectwas implementedmore rapidlythan planned,closingone year ahead of the original closingdate of
December31, 2000.
Private SectorDevelopment
Implementationof the 1998 program was slowed by 20% due to a lack of sufficientcompetentengineering
firms, indicatingthe need to focus on training in project preparationand site supervision. Efforts were
madethroughout project to improvethe targetingof trainingto engineeringfirms and small contractors,
especiallyfor the design and implementationof ruralroads sub-projectsand to help beneficiariescreate
maintenanceassociations. By December31, 1999, 55 training courseshad been providedfor employeesof
engineeringfirms, small/mediumcontractorsand loan programpromoters. Since the inceptionof FID, 226
managersand techniciansfrom more than 100 contractingfirms and 374 persons from some 80 engineering
firms have been trained. Participantsin FID's training programshave assessed the program's impacts and
an impact study of FID training was undertakenas part of the 1999beneficiary survey. Participants were
unanimousin recognizingboth the impactof the trainingin winning contractsand in deepeningthe
professionalismof their firms. FID representsa significantshare in the volume of business of many
consultingfrms and contractors. Many firms have been able to win contractsfrom other sourcesas a
result of their experiencewith FID. Strengtheningthe personnelof small and medium contractors,
especiallyat technicallevels,has enabledmany firms to developtowardsentry into the formal sector. A
total of 1796contractshad been madewith small and mediumenterprises (121% of the target) by
December31, 1999. The 1,796FID contractswith small and mediumenterprises,together with contracts
from other sources,have enabled many firms to acquireconstructionand office equipment.
4.3 Net PresentValue/Economic
rateof return:
FID sub-projectsin economicsectors (transportand small-scaleirrigation)are subjectedto economic
analysis and have been required to have at least a 15% economicrate of return in order to qualifyfor
financing. Sub-projectsin income generatingactivitiesand supportto the private sector were expectedto
have at least a 20% rate of return. As part of the 1999 beneficiarysurvey, ex-post economicrates of return
were calculated for rural roads. Four roads had economicrates of return ranging from 41% to 349%;one
had a rate of return of only 3%. For small-scale irrigation,three projectswere calculated to have ex-post
rates of return ranging from 22% to 99%; one had a rate of return of only 6%. The lower rates in some
road and irrigationsub-projectsreflect political influencein project selectionand/or poor quality of
technicalwork in some project preparation. Since only rehabilitationwas undertakenfor schools and
health centers,not new construction,these sub-projectsare assumedto have yieldedhigh economicrates of
return, althoughno calculationswere made.
4.4 Financialrateof return:
No financialrates of return were calculated for this project.
4.5 Institutionaldevelopmentimpact:
Under the project FID expanded its capacity from limitedoperationsin two provincesto much larger-scale
nationwideoperationsin six provinces. There is now a regionaloffice in each province. A monitoringand
evaluationsystem has been established. All regionaldirectorateshave an e-mail, and reporting information
is transferredto the central directoratein real time. This system allows FID to manage beneficiary
-5 -
requests,monitorcontracts,monitor beneficiarycontributions,followperformance indicators,and manage
the annual work program. FID producesits monthlyreports in real time. The increasedcapacity gained by
FID in this project has enabled it to undertake a subsequentproject and to plan a fourth. FID has been able
to accomplishthis programexpansionwhile keepingits operating expensesbelowthe target of 10% of its
expenditure.FID's operating costs did rise to 14%of expendliturein 11996,but this was reducedto 9.74%
by 1997.
The project has supportedthe Government'sdecentralizationpolicy which was introducedduring the
period. FID made increasingeffortsduring the project to encouragedevelopmentat the communityand
local government levels. Under this policy local governments (commuanes) have received increased funding
allocationsand authority. Beginningin 1998 some mayors of decentralizedrural communes became
involvedin project selectionand funding. By August 199925% of projectswere being implementedwith
some involvement of communes, consistent with decentralization policy. While it is important for elected
local govemmentto support sub-projects,especiallyby allocating funds in their budgets for operation and
maintenance,FID recognizedthe need to limit politizationby balancingthe involvementof mayors vis-a-vis
communitygroups. Mayors' contributionshave been limitedto 25% ofthe total beneficiarycontribution.
5. Major Factors Affecting Implementation and Outcome
5.1 Factors outside the control of government or implementingagency:
N.A.
5.2 Factors generally subject to government control:
While FID was able to implementthe programnsatisfactorily,there were problemsat the political level
which had to be overcome. Duringthe SECALINEproject,the FID Director Generalhad been removed
for politicalreasons. Recruitmentof the new DirectorGeneral involved some politicalconstraintswhich
may have limitedthe scope of recruitment,but this did not seriouslyaifect the outcomeof the project. A
new DirectorGeneral was appointedas a conditionof effectivenessfor FID II. In 1997the President of
the Board of FID had to resign for politicalreasonsand the Board of I)irectors did not function well for a
year. Sub-projectsrequiring Board approval could not be authorized. During that time the thresholdsfor
projects requiringBoard review were raised to $45,000for infrastructureproject and $90,000 for feeder
roads to enableapprovalswithout Board involvement. The lack of an effective Board of Directorsand a
Presidentdelayedthe mid-termreviewfrom June to October 1'998.
5.3 Factors generally subject to implementing agency control:
The agency contributedto the successof the project by expaniing implementationto a national scile
managing implementationwell. FID's managementsystemshave workedwell, and its increasedcapacity
providesthe base for further,more ambitious projectsin the future (see section4.5).
5.4 Costs andfinancing:
Differencesin appraisaland actual costs were not significantin most cases (see Annex 2). Savingson the
cost of FID subprojectconsultantswere possible becausesome consullantswere financed from other
projects, as were some costs of equipmentand vehicles. Savingson incrementalrecurrentcosts reflectthe
efficient operationsof FID. These savingsallowedsomewhatmore to be spent on FID sub-projectsand on
TA, Training, Studies& Audits. Beneficiariescontributedslightly more than expected at appraisal.
- 6-
6. Sustainability
6.1 Rationalefor sustainability rating:
FID is a strong institutionwhich has demonstratedits ability to managea growing program throughout
Madagascarwith competentstaff and efficient operating procedures. The requests by the Governmentfor
continuingphases of FID involvementare furtherevidence of the viabilityof FID. There has also been
considerableimprovementin the capacity of local contractorsand consultingfrms. However,these gains
are not likelyto be sustainablewithout continued externalfunding.
Maintenanceproblemswere noted duringthe SECALINEproject and during FID II. A 1998survey
indicatedthat maintenanceproblemswere particularlyevident in rural roads but much less evident in the
case of small irrigationprojects. FID and the Bank have carried out an increasingeffort to ensure the
properuse of new facilitiesandto improvecommunityinvolvementto enhanceprospects-formaintenance
and sustainability. At the mid-termreview of FID/SECALINEin 1996 a strategywas developedto make
beneficiariesmore responsiblefor infrastructure. Five percent up-front depositswere required from
communitiesto ensure long-termcommitment.NGOs and consultingfirmswere involvedto a much
greater extentto build awarenessabout maintenanceissues. Maintenancemanualswere requiredfor all
sub-projects. Local governments(communes), newlyelected under governmentdecentralizationpolicy,
were asked to make budgetprovisionsfor operation and maintenancein advanceof works. It was decided
that communitieswould not be eligiblefor furtherFID financing if maintenancewas not undertaken. The
need to focus on maintenancewas again stressedby supervisionmissions during 1998and at the Mid-term
reviewin October 1998. It was agreedthat communitiesprovidinga commitmentof more than 5% would
be given priorityfor new sub-projects,and tolls would be chargedfor rural roads. Community
commitmentwould be encouragedeven more stronglyby a proposedfuture operationwhich will enable
communitiesto undertakemany types of works directly.
After the mid-termreview, a large maintenancesupportprogram was launched in 1998 aimedto: (a)
inspectthe maintenanceof projectsfinished beforeDecember 1997;(b) improve the promotionof
maintenancewith beneficiariesthrough technicalassistance;and (c) elaborate an improvedmaintenance
strategy for FID projects. The survey indicatedthat 49% of sub-projectsstill under contractors'guaranties
were consideredpoorlymaintainedand another21% were only moderatelywell maintained. These figures
improvedto 35% poorly maintainedand 29% moderatelymaintainedafter consultantsvisited the sites
again. Sub-projectswhichhad been turned over to communitieswere better maintained(47% poorlyand
32% moderately before consultants'visits and 26% poorly and 28% moderatelyafter consultants'visits).
Despite improvementsafter FID efforts, the results indicatethe difficultyof the maintenanceissue.
Problems in the staffing of health centers and schoolsalso suggestsustainabilityproblems (see section6.2).
However,FID's consistenteffortsto face these problemsgives some optimism that better resultscan be
achieved in the future.
6.2 Transition arrangement to regular operations:
Agreementswere made with sector ministriesthat schoolsand health centerswill be properly staffedand
FID has entered into Protocoles d'accord with them. RegionalConsultativeCommittees(CCRs) which
have representationfrom sector ministriesand concemedNGOs have also approvedprojectsand made
staffing commitmentsbefore appraisal. However,there,havebeen consistentproblems in staffimghealth
centers by the Health Ministry. At the time of the mid-tenr reviewmany facilitieswere not properly
staffed. In the 1999beneficiariessurvey, insufficientpersonnelwas cited as a problem in 9 out of 10
health centers. This problem also existed for schools,but was less severe (6 of 16 schoolshad insufficient
-7-
personnel). In 1998FID determinedit would not finance more healthcenters until this problem is
rectified.
Relevantperformanceindicators:
*
*
*
*
*
*
*
*
*
Degree to which project was a priorityof beneficiaries;degree of satisfaction
Staffinglevels of schoolsand health centers
Budgets for maintenanceand maintenancelevels of health centers,schools, irrigationsystems,
markets.
Quality of infrastructure
Number of pupilsin schools(before and after), indicatorsof irmprovededucation
Number of patients in healthcenters, and indicatorsof improvedhealth
Increased area of irrigation/production
Ex-post ERRs of roads and irrigation systems
Number/typesof employeesof consultingand contractingfirmtstrained.
Recommendedfollow-upby the Bank.
Continuedbeneficiarysurveys with larger samplesto assess satisfactionand design and maintenance
arrangements.
7. Bank and Borrower Performance
Bank
7.1 Lending:
The project was prepared during supervisionmissions for the SECALINEP'rojectwhich led to economies
in preparation. The essentialelementsfor a project of this type were put in place during SECALINEand
expanded for FID II. This includeda good institutionalstructure, sound proceduresand a plan for
extendingthe program into new regions. The fact that it began disbursingso rapidly is an indicationthat it
was well prepared. Bank performance is rated satisfactory.
7.2 Supervision:
The project was supervisedby local hire staff and headquartersstaff based in the field. This contained
costs and enabled informalsupervisionbetween missions.Teclmicalaudits by an engineeralso
complementedBank supervisionand reducedcost. Supervisioncosts were furtherreduced becauseBank
staff allocatedtime to several FID projectsat once whichwere in various stages of preparationand
implementationand specialistconsultantsfunded by trust funds were frequentlyused. Annual reviews
were carried out with the borrower,includinga mid-termreview in 1998. The annual technicalaudits
carried out by an engineercomplementedsupervisionefforts, and financial audits were also carried out as
plannedand reviewed by supervisionmissions.
-8 -
A social impact study of the project at the beneficiarylevel was made at the end of the SECALINEproject.
A further study was not undertakenuntil 1999,althoughthe SAR called for them on an ongoingbasis. It is
doubtful,however,that additionalearly studies would have affectedthe implementationof the rest of the
project, since implementationwas proceedingat a rapid pace. However,these surveys have helped in the
design of subsequentprojects. Annualtechnicalaudits inspected samplingsof FID projectsand gathered
some of the informationnormallycollectedin a beneficiaryassessment(e.g. quality,status,usefulnessof
works). On balance supervisionis judged to be satisfactory.
7.3 Overall Bank performance:
Especiallygiven the rapid implementation,one year ahead of schedule,and positiveresults of impact
assessments,supervisionby the Bank is rated satisfactory.
Borrower
7.4 Preparation:
Theprojectwaswellpreparedby FIDas a follow-onto the FIDcomponentof the SECALINEProject. FIDdrew
lessonsfromthe previousprojectandwas ableto setup a nationwidenetworkto implementthe project.
Performanceis ratedsatisfactory.
7.5 Government implementationperformance:
Although,as noted above,there were some problemswith supportfor the project from the Government
level, these problemsdid not seriouslyaffectthe outcomeof the project. In fact, the rapid implementation
of the project was due in large part to strong supportfrom the Govermment.The Prime Minister took a
direct interest in FID, and the governmentalways provided counterpartfunding on time. Government
performanceis thereforerated satisfactory.
7.6 ImplementingAgency:
FID successfullyextendedthe project throughoutthe country. Technicalaudits indicatethat over the
course of the project FID reactedto many of the problemsand constraintsthat were identified. The needto
improvethe existingcapacityof consultingand engineeringfirms was identifiedearly in the project and
FID worked to accomplishthis, although capacity is still a constraint. FID's procedureswere noted to
improve duringthe project, beneficiaryparticipationimproved,and FID's abilityto make paymentson time
improved. Work quality problemspersisted,but they diminishedtowards the end of the project.
One problem cited by beneficiariesin the 1999beneficiarysurvey was the lack of contactand animationat
the local level by FID. Insufficientanimationwas cited for 9 out of 16 schoolprojects, 5 out of 10 health
center projects, 4 out of 10 small-scaleirrigationprojectsand 6 out of ten market projects. This suggests
that FID lackedthe resourcesto supportcommunitymobilizationeffortsto the extent desired. Consultants
were hired for this purpose but this did happen quicklyenough duringthe project. Financialauditswere
late during earlyyears of the project due to the high volumeof work. By mid 1989 the audit was on time,
but the auditorwas still unable to give an opinion becauseof problemsdistinguishingbetween FID I, II and
III. This was a minor problem. FID could identifywhich works were financedunder each credit,but in
some cases costsrelated to the receptionof the works could not be distinguished.
In spite of the above points, FID's performance is rated satisfactory. It successfullyexpanded an
efficientlymanagedprogramthroughoutthe country and it implementedthe project one year ahead of
-9-
schedule. It implementedthe maintenancesupport program and is followingup to improve the prospects
for sustainabillityin future operations.
7.7 Overall Borrowerperformance:
Giventhe successfulimplementation
of the project,the overallperformanceof the borroweris ratedsatisfactory.
8. Lessons Learned
The lessons learned are being addressed as part of the CommuniityDevelopmentFund and have
been incorporatedinto the PCD for that project.
*
Projects designedand managed.outsideof Governmentcan recruit more competentstaff and get
better results, but they cannot be completelyisolated from political influence. One way to
minimize governmentinfluenceis by buildingpartnershipswilh communitiesand local
governments,giving them more influenceat all stages.
*
Direct beneficiazyinvolvementin implementation,currentlybeing piloted by FID, should also
improvethe influenceof beneficiarycommunities. The proposed CommunityAction Program
being considered for FID IV, which would finance a range of infrastructureand services selected
by communities,would further empowerbeneficiaries.
v
A large commitmentto maintenance is essentialin this type of programto improvethe likelihood of
sustainability. Using consultantsto followup and animate commumitieson maintenance issues
has helped. Maintenanceimprovedafter consultantvisits, but more needs to be done in a program
of this scope (see section 6.1).
v
Inadequateanimationby FID and inadequateresults on maintenance were risks of a program of
this size and scope, spread throughouta country as large and as difficult to travel in as
Madagascar(see section 7.6). In many cases FID lac.kedthe resources to follow up as necessary,
since it was committedto keeping its operating expensesat 10%4)
of total expenditure. It may be
more efficient to spend a somewhat higherpercentage for operating expense if this can be used to
improve communityoutreachand maintenance.
*
It is importantto ensurethat the FID's activitiesare in line with the strategiesof sector ministries,
not only at the national level but within the decentralizedstructLre. Such coordination is also
importantwithin the Bank to ensurethat infrastructureconstructrionand maintenance is in line with
the programs supported by the social sub-sectorsin the Bank (see section 6.2).
*
A simplerstructureto oversee non-governmentalorganizationslike FID might help to minimize
infightingand politicalinterference(see section 5.2). FID was set up to have wide representation
from a broad spectrum of groups in order to provide for broad participation and checks and
balances. However,this sometimesled to stalematesand indecision. This happenedwhen the
Board ceased to function well in 1997. The size and communicationsproblems of Madagascar
made it difficultfor the Board and the members to come togethLer
when necessary.
*
Trainingprograms for engineeringfirms and small and mediunmcontractorshave improvedthe
competenceof these firnnsand the quality of work and should be continued (see section 4.2).
Feedbackfrom trainees indicatesthat courses should be expanded for roads and building sites and
- 10-
should includetechniciansfrom local governments. In addition,courses in micro-irrigationfor
consultingfirms should be expanded,and courses for senior technicians,including management,
should be addedto the curriculum. Courses should also be made availablefor sociologistsand
other employeesof consultingfirms dealingwith communitydevelopment.
*
It is importantfor low income groups in rural areas to have accessto credit to enhance their
income earning potential. However,effective small loan programs are difficult to establish,and
their impact will remain limited if they operate outsidea country's financial markets. It is
preferable for small loan programs to be integratedwithin existingfinancial policies, markets and
institutions(see section4.1)
9. Partner Comments
(a) Borrower/implementingagency:
N/A
(b) Cofinanciers:
N/A
(c) Otherpartners (NGOs/privatesector):
The followingcommentshave been providedby local governmentsand private contractors:
1. Mr. REMI, Mayor of the Rural CommuneJoffreville - Antsiranana:
The beneficiaries'involvementrequired for the communityhealth center in Joffrevilleis a bit heavy, not in
monetary terms but in the amount of animationrequired, and that led to a delay in startingand the progress
of the work. The Governmentplayed no role on the project, as is customaryfor the people in collaborating
with FID. The main thing that cannot be overlooked is maintenance. The populationnow understandsthe
difficultiesin construction. Tomorrowit will learn that maintenancewill be necessaryto ensure the center
will stay functioning. In my opinion, we can count on sustainabilitythrough maintenance, since the
membershave already planned for it.
2. Mrs. RAZAFIIARZAYJonshon, Director of the constructionfirm MILANTO- Antananarivo:
I had three contractsduring the period with DRT and two with DRA. Competitionwas hard because of the
large number of participantsand because it involvedconstruction. Every contract benefitedus. However
small the profit, it suited us becauseFID works are financedautonomouslyand bills are paid alnost
immediately. In the beginningthere were serious difficultiesrespondingto bid requestsbecause the number
of documents and details of pricing requested. Only after the first contract did we understandthe need and
importanceof these details. In general this method brought a lot to us.
3. Mr. RAYMONDClaude, Co-Directorof the constructionfirm ORIMBATO - Antananarivo:
My results with FID are good. I had 12 contracts, 9 in Antananarivoand 3 in Toliara. The results were
generallypositive, varying with the time and localityof the sub-projects. FID not only contributedto the
developmentof my firm,but it also developedthe technicalknowledgeof our personnel. FID enabled us to
create temporaryemploymentwhich is very important,especiallyin the regions wherewe work.
4. Mr. ANDRIAMIHAJAPierre, constructionfrmnECOMET - Mahajanga:
-11 -
I congratulateFID for having been able to decentralize since 1995. It is a great advantage for the small
and medium enterprisesin the provinces. We hope decentralizationis applied at the regional level. The
problem in this sector is that there are not enough qualifiedtechniciansworking. FID should increasethe
training of enterprises. FID should considerthe age of the enterprises preselectedwhich have always
worked with it. The process of disbursementsis too slow whiichaffects the cash flow of small enterprises.
Strict applicationof the rules would promote professionalismand be very much appreciated.
5. Mr. FAROUK,Mayor of the Communeof Masomeloka(Faritany Toamasina):
The rural commune of Masomelokaworked with FID in 1999to construct the MasomelokaMarket.
Generallywe have goodrelations with FID. But we deplore,nonetheless,the difficultiesin communication
in our region which constrain our communicationwith FID. The municipality is satisfiedwith the
constructionof the first lot. Unfortunately,because of communicationsdifficultiesand problems in
mobilizing, we were not able to finish our contributionfor the second lot. For this reason FID put off the
second lot. From the beginningof the project, we had in place a provisional committeein charge of
contributions. We haven't yet occupiedthe project because we are waiting for the provisional reception.
But this is the same committeewhich is supposedto sensitizeusers and collect maintenancefunds. At the
level of the commune,we plan to sell ticketsfor each market day and include FMG 2000 in our budget for
maintenance.
6. Mr. LAIMISONDROTRAThomas, Mayor of Beforona (Faritany Toannasina):
Individualsfound their own water supply for a long time in Beforona. Since December 1999,thanksto
FID, the problem was solved. However, we note that since the 15 standpipesand the wash basin function
at the same time, the amount of water is insufficient. The design firm explainedto us that we should
organizewater managementby water committeeswhich we have established. For the moment,we have
water committeesfor each standpipe,but after discussionswith FID and the designfinn we are convinced
that the committeesshould be drawn into one more formal associationwhichwe are now doing. Above all,
these committeesneed to be reinforcedbecausesome of the standpipesare next to the street and are
vandalizedby people passing by.
7. Mr. RABAKO Justin, President of the project cell (PC College Rainisoalambo-Fenerive Est)
(Farantany Toamasina):
We have good relationswith FID. In every communityproject we have appreciatedthe confidenceFID has
given us to completelymanage the project. We also recognizethat the FID team has spent a lot of time
training us to manage the project. For us, the collaborationof FID in the communityproject has been
enriching, becausethere were many new aspects:consultationof partner-s,procurement,control of works,
etc. FID has beentoo rigid about the 20% contributionnecessary. For.some months we have been putting
money aside to have our maintenancefund. Our communityalready is accustomedto take charge of
maintaining its assets. If FID plans to developcommunityprojects, we hope the 20% deposits will be
reduced. We also would like project cells to be trained by FID)before starting projects.
10. Additional Information
NA
- 12 -
Annex 1. Key Performance Indicators/Log Frame Matrix
OutcomeI ImpactIndicators:
-Temporarydaysof employmentcreated:
Objective: 5,000,000
6,065,300
(121.3%of target)
-
Penmanentjobs created.
Objective:2,800
1,546
(55.2%of objective)
-
Numberof contractswith artisans:
Objective200
122
(61% of objective)
-
Numberof contractswith local SMEs:
Objective: 1,200
1,796
(149.6%of objective)
-
SchoolsRehabilitated
Objective:105
450
(428.5%of objective)
-
Healthcentersrehabilitated
Objective:89
183
(228.7%of objective)
-
Kmnof feederroads rehabilitated
(Objective:1,000)
967
(96.7%of objective)
-
No. of hectaresirrigated
(Objective:30,000
11,071
(36.9% of objective)
Output Indicators:
SeparateOutcome/ImpactIndicatorsand
OutputIncicatorswere not providedfor in the
SAR.
End of project
-13 -
Annex 2. Project Costs and Financing
Project Cost by Comr nent (in US$ million uivalent)
Equipment
Vehicles
FID Projects
FID Sub-ProjectConsultants
TA, Training, Studies & Audits
IncrementalRecurrent Costs
0.40
0.70
31.80
3.10
1.60
2.60
0.18
0.27
37.64
0.07
1.75
2.30
Total BaselineCost
Contingencies
Physical
PriceConfIngencies
TotalProjectCosts
Total FinancingRequired
40.20
4.00
1.20
42.21
45.40
42.21
42.21
45.40
Arran ements(A
ProiectCostsb Procurement
raisalEstimate US$ millione uivalent
E
1_^~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~f
1. Works
2. Goods
3. Services
4. RecurrentCosts
5. Miscellaneous
6. Miscellaneous
Total
0.00
(0.00)
1.00
(0.90)
0.00
(0.00)
0.00
(0.00)
32.20
(27.70)
0.00
(0.00)
0.00
(0.00)
0.00
(0.00)
0.00
(0.00)
0.00
(0.00)
1.00
(0.90)
0.00
0.00)
0.00
(0.00)
32.20
(27.70)
-
45
39
118
2
109
88
14 -
3.60
(3.10
0.40
(0.30)
5.30
(5.30)
2.90
(2.60)
0.00
(0.00)
0.00
(0.00)
12.20
(11.30)
i
S
/V
0.00
(0.00)
0.00
(0.00)
0.00
(0.00)
0.00
(0.00)
35.80
(30.80)
1.40
(1.20)
5.30
(5.30)
2.90
(2.60)
0.00
(0.00)
0.00
(0.00
0.00
0.00
(0.00)
0.00
(0.00)
45.40
(39.90)
(0.00)
Arran ements Actual/LatestEstimate(US$millionequivalent
ProiectCostsb Procurement
1. Works
0.00
(0.00)
0.00
(0.00)
0.00
33.97
(27.68)
0.00
(0.00)
0.00
3.04
(2.69)
0.45
(0.42)
2.45
0.00
(0.00)
0.00
(0.00)
0.00
37.01
(30.37)
0.45
(0.42)
2.45
(0.00)
(0.00)
(2.14)
(0.00)
(2.14)
0.00
0.00
2.30
0.00
2.30
(0.00)
(0.00)
(2.06)
(0.00)
(2.06)
0.00
(0.00)
0.00
(0.00)
0.00
(0.00)
0.00
(0.00)
0.00
(0.00)
0.00
(0.00)
0.00
==________________
(0.00)
0.00
(0.00)
33.97
(27.68)
0.00
(O.00)
8.24
(7.31)
0.00
(O.00)
0.00
(0.00)
0.00
(.0
42.21
(34.99)
2. Goods
3. Services
4. RecurrentCosts
S. Miscellaneous
S. Miscellaneous
Total
" Figuresin parenthesisare the amountsto be financedby the BankLoan. All costsincludecontingencies
2 Ilncludes
civil worksand goodsto be procuredthroughnationalshopping,consultingservices,servicesof contracted
staffof the projectmanagementoffice,training,technicalassistanceservices,and incrementaloperatingcostsrelatedto
(i) managingthe project,and(ii) re-lendingprojectfundsto local governmentunits.
ProjectFinancingbyC mponent(in US$ millionequivalent)
~~~~~~~~~~~~~~~~~~~~~~Per
of Appraisal
l
Component
FID Projects
FID Sub-Projects Consit
TA,Train,Studies,
Audit
Equip,Veh,Furn, Other
Incremental Recur Cost
Ap raisal Estimate
Bank
30.60
3.50
1.60
1.40
2.90
Govt.
3.60
Actual/LatestEstimate
CoF.
1.80
3.60
Bank
30.37
0.69
1.45
0.42
2.06
Govt.
CoF.
Bank
Govt.
CoF.
3.79
2.85
99.2
105.3
158.3
0.01
19.7
0.0
0.0
0.30
0.03
90.6
30.0
0.0
0.0
0.0
0.0
0.24
71.0
6.7
0.0
Notes:
1. Latest estimatesof cost and financing amountswere providedby implementingagency and reflect
amounts of US Dollars disbursed at current exchange rates duringthe project period. They underestimate
actual dollar cost and financing amounts.
2. Cofinancingamount in "Project Financingby Component"table represents beneficiaries'contribution.
- 15 -
Annex 3: Economic Costs and Benefits
FID sub-projectsin economicsectors (transportand small-scale irrigation) are subjected to economic
analysis and have been required to have at least a 15%economicr ate of return in order to qualify for
financing. Sub-projects in income generatingactivitiesand supportto the private sector were expectedto
have at least a 20% rate of return. As part of the 1999 beneficiary survey, ex-post economic rates of return
were calculated for rural roads. Four roads had economicrates of return rakging from 41% to 349%; one
had a rate of return of only 3%. For small-scaleirrigationthree projectswere calculated to have ex-post
of return ranging from 22% to 99%; one had a rate of return of only 6%. Since only rehabilitationwas
undertakenfor schools and health centers,not new construction,these sub-projectsare assumedto have
yielded high economicrates of return,although no calculationswere made.
-
16-
Annex 4. Bank Inputs
(a)Missions:.-__
Month/Year
No. of Persons and Specialty
(e.g. 2 Economists, I FMS, etc.)
Specialty
Count
Identification/Preparation
This project was prepared
Stage of Project Cycle
Performance Rating
Development
Implementation
Objective
Progress
during supervision missions for
the SECALINE Project
Appraisal/Negotiation
5
Economist, Imp. Spec.,
Nutritionist, IEC Specialist,
MIS Specislist
6196
4
12//96
2
8/97
2
2/98
5
7/98
2
10/98
3
Implementation Spec, Social
Fund Spec., Procurement
Spec., Engineer
Implementation Spec, Social
Fund Spec.
Implementation Spec, Social
Fund Spec.
Implementation Spec, Portfolio
Assist, Operations Assist,
Disbursement Spec, Procurement
Spec.
Implementation Spec,
Procurement Spec
Implementation Sped, Social
Funds Spec, Engineer
Implementation Spec, ????
Missions for the preparation of
the CommunityDev. Fund
Project (FID IV) also supervised
final stages of FID II
Supervision
8/99
5/99,2/99&10/99,
ICR
1/00
I
Implementation Spec
-
17 -
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
(b) Staff
Stage of Project Cycle
: :; j
Identification/Preparation
Appraisal/Negotiation
Supervision
ICR
Total
Ac___atest_
___Estimate_E
j°Staffweeks0
N.
40.5
74.3
44.8
159.6
- 18 -
_
US00)
L us$
155.0
_ 311.9
172.5
_ 12.0
_ 651.4
_|
i
Annex 5. Ratings for Achievementof Objectives/Outputsof Components
(H=High, SU=Substantial,M=Modest, N=Negligible,NA=Not Applicable)
Macro policies
Sector Policies
I Physical
Z
Financial
Z Institutional Development
Z Environmental
Rating
O H OSUOM
O H *SUOM
O H *SUOM
* NA
O NA
O NA
O NA
O H OSUOM
0 H O SUO M 0 N 0 NA
O N O NA
O H OSUOM
Social
Z Poverty Reduction
Z Gender
0 Other (Please specify)
Z Private sector development
Z Public sector management
El Other (Please specify)
ON
ON
ON
ON
O H *SUOM
O H OSUOM
O N O NA
O N
O NA
0 H O SUO M 0 N 0 NA
0 H O SUO M 0 N 0 NA
-19 -
Annex 6. Ratings of Bank and BorrowerPerformance
(HS=Highly Satisfactory, S=Satisfactory,U=Unsatisfactory,HU=Highly Unsatisfactory)
6.1 Bank performance
Rating
I1 Lending
Z Supervision
O HS * S
OHS OS
Z Overall
OHS * S
6.2 Borrowerperformance
Rating
M Preparation
Z Government implementationperformance
N Implementation agency performance
Z Overall
O
-
20 -
HS O S
O lJ O HU
C(
>:1 O HU
O lJ O HU
0 HS 0 S
OCU O HU
0 U 0 HU
O HS * S
OHS OS
O 1J O HU
O U O HU
Annex 7. List of Supporting Documents
Manual of Procedures
MaintenanceManuel
Quarterlyand Annual Reports
Aide-Memoireof Project CompletionMission
ProjectAgency's CompletionReport
- 21 -
Republique de Madagascar
Deuxieme Projet de Fonds Social (FID II)
Cr. 2778-MG
AIDE-MEMOIREDE FIN DE PROJE'T
Janvier 2000
Introduction
1.
Madame Eileen Murray, chargee des operations, a effectue des visites au FID dans le
cadre de la pr6parationdu rapport d'achevement du projet FID II. Les visites avaient
pour objectifs de: (a) faire le point sur les indicateurs de performance du FID II; (b)
discuter des themes a aborder dans la contribution de l'emprunteur au rapport
d'achevement; et (c) discuter des modalites pratiques de fermeture du projet.
2.
A la cloture du FID II, le FID aura receptionne 1,645 sous-projets (427 sont actuellement
en cours de realisation ou de reception). A la date du 31 decembre 1999,le FID a
receptionne 1,218projets repartis comme suit:
*
591 infrastructures sociales (ecoles, centres de sante, adduction d'eau)
*
196 infrastructures productives (micro-perimetres irriguds, abattoirs, marches et autres)
*
169 infrastructures de d6blocage(pistes, ponts et radiers)
*
7 infrastructures de protection de l'environnement (digue de protection et bassins
versants)
*
239 activites generatrices de revenus
*
16 activites pour appuyer le secteur prive.
Voir Annexe 1 pour plus de details.
Impact sur le Developpement
En ce qui conceme I'impact du FID sur le developpement, le FID continue a surpasser ses
objectifs dans plusieurs domaines: (a) environ 4.5 millions de persomiesjours de travail
temporaire ont e crees; (b) environ 3.5 millions de beneficiaires ont it6 atteints; (c) le FID a
continue les formations formelles et sur le tas pour les MPE, BE, ONGs, et groupements
communautaires;(d) environ 200 MPE et bureaux d'etudes ont ete crees pour repondre aux
appels d'offre du FID et il est estime que 1,500 emplois permanents ont et crees; et (e) les
femmes ont beneficie d'environ 25 a 30 pour cent des sous-projets.en ce qui concerne la
repartition geographique, 107 sur les 111 Fivondronana, et 623 sur les 1,438 Communes ont
beneficie de sous-projets sur le projet FID II.
22
Perennite des Actions du FID
Deux aspects concrets demontrent la perennite des actions du FID dans le moyen terme.
Premierement, le FID a recrute un bureau d'etudes qui a prepare un manuel d'entretien pour les
divers ouvrages du FID. Ce manuel sera utilise dans le cadre de la formation des groupes
communautairespour leur apprendresur le tas quelles dispositions ils devraient prendre pour
assurer une perenisation des ouvrages. Par ailleurs, le FID exige maintenant qu'une association
d'usagers soit creee et soit pleinement operationnelle. Finalement, compte tenu de l'acroissement
d'activites en mileu rural a Madagascar,plusieurs entreprises qui ont ete creees pour repondre A
des appels d'offres du FID ont ete attributaires d'autres marches sur d'autres sources de
financement.
Cholera
Le cholera est en augmentationa Madagascarpendant cette saison des pluies. Le FID a pu
repondre tres rapidement Ala demande pour les financement des activites liees a la lutte contre le
cholera au niveau des communautes les plus touchees. Le FID est en train de financer la
constructionou rehabilitation de 81 latrines lavoirs. Ces rehabilitations ont etd faites par des
tacherons de la region concemee. Par ailleurs, le FID a appuye la mise en place de comites de
gestion pour ces latrines et appuie aussi des petites campagnesd'IEC sur la propretd menees par
ces comites de gestion.
Points en Suspens
Les projets communautairesont bien demarre. II a ete convenu que le FID en 2000
n'entreprendrait que des projets communautaireset continuerait a mettre 1'accent sur 1'entretien
des ouvrages existants.
FMG 300 millions doivent encore etre remboursespour des AGRs. II a e convenu qu'au fur et
a mesure que cet argent serait rembourse, il serait verse dans le compte sp6cial du FID III pour
etre utilise pour d'autres activites prevues dans le FID III.
En ce qui conceme l'audit financier, il a ete convenu que l'audit 1999 se ferait en m8me temps
que l'audit de l'exercice 2000, compte tenu du fait que les fonds du FID II seront epuises avant le
30 mars 2000 et donc que l'auditeur pourrait commencer ses travaux debut avril 2000 afin
d'assurer que le rapport soit soumis a la Banque Mondiale avant la date butoir du 30 juin 2000.
Le FID devrait s'assurer que l'auditeur est paye avant que les fonds soient epuises ou le credit
cl6ture.
11a ete convenu que le FID continuerait Afaire les receptions provisoires et definitives dans les
delais, pour s'assurer que les projets devant etre receptionnesen mars 2000 soient effectues.
En ce qui conceme les vieilles voitures et equipements du FID, il est fortement suggere que toutes
les demarchessoient faites pour les transferer dans les plus brefs delais a la primature.
Tous les actifs du FID II devraient8tre transferes sur l'inventaire du FID III.
23
Rapport d'Achevement
Le FID a eu une copie du projet de rapport d'achevement du FID II. II a ete convenu que le FID
transmettrait, au plus tard le 15 fevrier 2000, sa contribution au rapport d'achevement, ainsi que
les chiffres actualises sur les decaissements, les passations de marches, les couts et le financement
du projet, ainsi que les indicateurs de performance.
24
Annexe 1
INDICATEURSDE REALISATIONFID II
Realisations
INDICATEURS
Ant6rieures
Nombre d'ecoles
Total
270
80
350
91
38
129
655
102
757
3 682 724
1 232 658
4 915 382
Nombre CSB
Km Pistes
HJJ temporaires
En 1999
Emplois permanents
1 045
Ha. irrigues
8 895
926
Ha. proteges
l 460
20
Marche BE
364
192
556
Marche MPE
815
425
1240
Contrat Tacherons
100
22
122
Convention AE/ONG
295
14
309
25
1 045
9 826
1
480
Annexe 2
CHIFFRES DE REALISATIONDU CREDITFID II
Projets Receptionnes
Anterieurs En 1999
INDICATEURS
INFRASTRUCTUREDE BASE
Ecoles
CSB
AEP
Assainissement
Autres
EBDSociales
MPI
Marches
Abattoirs
Magasin
Autres
IBD Productives
Pistes
Ponts et autres
IBD Deblocage
Digue de protection
Bassin versant
270
91
52
88
44
36
4
2
174
26
35
4
2
11
78
39
18
57
2
1
3
312
4
417
46
64
2
5
1
118
81
31
112
4
4
IDB Protection
Total IDB
ACTIVITES GENERATRICESDE REVENUS
Programmes de micro-cr6dits
Projets
en 1999
651
100
48
25
27
4
204
10
28
2
40
24
18
42
0
286
Total
458
183
113
31
10
795
82
127
8
7
12
236
144
67
211
6
1
7
1249
45
16
38
99
Projets de petit credit
26
52
103
281
Total AGR
APPUI AU SECTEURPRIVE
ForrnationBE MPE
Formations beneficiaires
Total ASP
NOMBRE TOTAL DE PROJETS
71
68
141
380
10
1
11
833
5
385
0
427
15
1
16
1645
1996
15,50
1997
10,83
1998
10,83
1999
9,53
Evolution du ratio de performnance
1996
DecaissementProjet FID II 8 107 329
1997
1998
1999
Total
51 243 247
56 459 616
44 276 458
160 086 650
Situationau 31-12-99
26
EVALUATION DE
L'EXECUTION
DU PROJET FID II
j
Ffvrker 2000
27
PROJET FID II
1- LE CADREDES ACTIVITES
1.1.
Le Projet FID II s'insbre dans le cadre general de l'ajusternent macroeconomique et dans
les efforts de l'Etat pour reduire la pauvrete. II participe ainsi au renforcement des conditions
d'une croissance durable basee sur des initiatives communautaires et individuelles, en relation
avec les collectivites locales et/ou des organismes non gouvemementaux (ONG). Ces conditions
de croissance durable ont pour base le developpement des ressources humaines Am8me de g6rer
les infrastructures de base (IDB) mises en place.
Le Projet ceuvre sur tout le territoire de Madagascar par le biais de <<I'Association FID »,
structure autonome Abut non lucratif et reconnue d'utilite publique. Il est financ6 par un pret de
l'IDA, le fonds de contrepartie (FCP) de l'Etat malgache et les contributions des beneficiaires et a
demarr6 en juillet 1996.
1.2.
En tant que Fonds Social, le FID finance des sous-projets identifies et demandes par des
beneficiaires. Ce financement vise la construction ou la rehabilitation d'infrastructures de base
(IDB) (cout inferieur a USD 50.000 pour les infrastructures sociales et productives - cout
inferieur AUSD 100.000pour les infrastructures de deblocage - sauf approbation prealable de la
Banque mondiale) et des Activites Generatrices de Revenu (AGR).
Les travaux d'infrastructures sont realises soit par des micro et petites entreprises (MPE), des
tacherons, ou des ONG.
Le Projet participe a la promotion de ces entites soit directement en financant les travaux, soit par
le biais de la formation, concretisee par un programme d'Appui au Secteur Prive (ASP).
1.3.
Le cadre juridique des activites est regi par: (i) I'Accord de Credit de Developpement
entre l'Etat Malgache et l'IDA (Credit 2778-MAG), (ii) I'Accord de Projet entre l'IDA et le FID,
et (iii) la Convention entre l'Etat Malgache et le FID.
En somme, le FID concretise les objectifs du Projet et gere dans des conditions bien definies les
credits alloues par l'Etat (emprunt IDA et FCP).
Le coit total du Projet a et estime AUSD 45,4 millions (100,0%) dont le financement se repartit
comme suit: (i) USD 40,0 millions sur le compte de l'IDA, soit 88,1%, (ii) USD 3,6 millions sur
le compte du Gouvernement Malgache, soit 7,9% et (iii) USD 1,8 millions sur le compte des
beneficiaires, soit 4,0%.
Le cadre des activites etait bien defini, ainsi que les attributions et les prerogatives de chaque
entite - partenaire a savoir: I'Emprunteur (Etat malgache), le bailleur de fonds (IDA) et le
developpeur du projet (FID). Chaque entite - partenaire a rempli ses obligations conformement
aux Accords et Conventions,d 'oi la serenite de I 'atmosph re de travail.
La composante AGR a toutefois ete arretee en cours de route (septembre 1998).
28
2. RESULTATS
2.1.
Les realisations physiques sont donnees dans le tableau qui suit:
Tableau 1 : Realisation du PROJET FID II
Rubrique
Sous-projets
receptionnes
- Ecoles
- CSB
- AEP
- Assainissement
- Autres
IDB Sociales
- MPI
- Marches
- Abattoirs
- Magasin
- Autres
IDB Producives
Pistes
- Ponts et autres
IDB Ddblocage
- Digue de protection
- Bassin versant
IDB Protection
TOTAL IDB
- Micro-credits
- Petits credits
TOTALAGR
Sous-projets
en
travauxau 01.01.2000
358
135
88
4
6
591
72
99
6
7
12
196
120
49
169
6
I
NOMBRETOTALDE
Total
100
48
25
27
4
204
10
28
2
458
183
113
31
10
795
82
127
8
7
-
12
236
144
67
211
40
24
18
42
6
I
7
-
7
963
61
178
239
286
38
103
141
1.196
427
-
PROJETS
1.249
99
281
380
1.629
_
Les sous-projetsen cours d'execution au 01/01/2000 seront cl6tures avant la fin mars 2000.
La rapidite de 1'execution et 1'extension des realisations (dans 623 Communes sur les 1.400
Communesde Madagascar)ont contribue a la visibilite et la credibilite du FID.
2.2.
Le volet ASP a vu la realisation de trente trois sdances de formation, axees specialement
sur l'amrlioration des capacites des partenaires. Le tableau suivant donne les sujets du
programme:
Tableau 2:
AGR:
- Encadrementtechnique et financier des projets en micro-finance
Nombre de seances:
12 (2 par province)
MPE:
- Gestion d'entreprise
- Gestion de chantier en HIMO
- Techniqueroutiere en HIMO
- Recyclage des conducteurs des travaux et chefs de chantier
3 (national)
4 (Antananarivo-MajungaFianarantsoa- Toamnasina)
12 (2 par province)
B.E. :
-
Gestiondes Bureauxd'Etudes(cadregerant)
2 (national)
-
Techniquesdes batiments
Conceptiondes routes en terre et ouvrages
Recyclage des agents de contr6le et surveillance
Conceptiondes MPI (micro-perimetreirrigue)
2 (national)
3 (national)
12 (2 par province)
2 (national)
29
2.3. Les indicateursde suivi du Projet sont donnes dans le tableau qui suit:
Tableau 3: Indicateursde suivi du Projet FLD11*
Objectifs
(1)
Indicateurs
Nombred'ecolesrehabilitees
NombreCSBrehabilites
Kmpistesrurales
Ha. irrigues
Ha. proteges
Hj.d'emploistemporaires
Emploispermanentscrees
ContratsavecMPE
Contratsavectacherons
ContratsavecONG
*
105
80
1.000
30.000
16.000
5.000.000
2.800
1.200
200
400
Pourcentagede realisation
En coursau
01/01/00(3)
Realisationau
31/12/99(2)
350
135
757
9.821
1.520
4.915.300
1.546
1.796
122
309
100
48
210
1.250
180
1.150.000
-
(2) (1)
333,3
168,7
75,7
32,7
9,5
98,3
55,2
149,6
61,0
77,2
(2+3) (1)
428,5
228,7
96,7
36,9
10,6
121,3
Objectifs dans le rapport d'dvaluation n°14489 MAG du 12.06.95 de la Banque Mondiale
Les realisations sont a la mesure des efforts consentis et les indicateurs de suivi sont atteints et
depasses, exception faite pour les micro-perimetres irrigues (du fait du nombre des demandes
recues) et des emplois permanentscre6s (du fait de l'arret des AGR).
2.4.
Le tableau suivant donne la repartition des decaissements par categorie de depenses
suivant l'Accord de Credit de Developpement.
Tableau 4: Decaissementsdu Projet FID II - Credit 2778 MAG(au 31.12.1999
Cat6gorie
Montantallouk
En DTS
Decaissement
En DTS
En USD
En USD
Solde
En DTS
En USD
1.Travauxet
fourniturespour les
19.980.000 27.440.132,40 21.393.905,49 29.349.523,43 - 1.413.905,49 - 1.909.391,03
sous-projets
2. Servicesde
consultantset
2.140.000 2.939.033,20 505.461,87
694.191,22 1.634.538,13 2.244.841,98
formationau titredes
sous-projets
3. Assistance
- 74.408,86
Technique,formnation 1.000.000 1.373.380,00 1.054.179,37 1.447.788,86 - 54.179,37
et etudes
4. Equipement,
418.339,32 485.394,34
666,630,88
vehicules,mobilier
790.000 1.084.970,20 304,605,66
5. Cofitsde
fonctionnement
1.590.000 2.183.674,20 1.497.850,14 2.057.117,42
92.149,86
126.556,78
0,00
0
I_
_
6. Non allou
767.576,26 1.054.173,89
7. Dep6tinitialCS
TOTAL
25.500.000 35.021.190,00 25.523.578,79 35.021.134,14
40,67
55,86
Le solde du compte de credit de 25.500.000DTS s'eleve A40,61 DTS au 31.12.99. II sera utilise
totalement durant la periode de grAce.
La categorie non allou6e de 1.260.000 DTS a ete affectee a la categorie I A la fin de 1998.
Toutefois, celle-ci accuse par rapport Ala repartition initiale, un depassement de 1.413.905DTS,
tandis que la categorie 2 relative AI'ASP accuse un excedent de 1.634.530DTS.
30
Ces resultats decoulent du fait que: (i) les projets d'infrastructures - Categorie I - tiennent la
grande part dans les d6penses du FID et (ii) le financement des BE et ONG a Wteimpute dans la
pratique dans la Categorie 1, I'Accord de Credit n'etant pas tres explicite sur ce point.
2.5.
Le tableau suivant montre le paiement du Fonds de Contrepartie:
Tableau 4 bis: Allocation PIP FID II
FONDS DE CONTREPARTIE
Mandati
Allocation
4 874 750
4 874 750
6 900 000
6 900 000
10 620 760
10 620 760
8 503 000
30 898 510
en cours
22395 510
L'evolution du rapport de performance (Rapport entre les charges recurrentes et le cout
2.6.
total des projets) a ete satisfaisante de 1996A 1999,telle qu'elle ressort dans le tableau suivant:
Tableau 5: Evolution annuelle du rapport de performance
Annie
Rapport
1 1996 1 1997 l 1998
10,83
9,68
15,50
l
1999
9,53
Le cofutdu fonctionnement du Projet, sauf pour l'annee 1996 (ann6e charniere des Projets FID I et
FID II) reste dans des limites contractuellementraisonnables.
La participation des beneficiaires a l'investissement, qui se concretise par des apports en
2.7.
nature, en travail, en numeraires est une realite. Ces apports sont comptabilis6s et entrent dans la
remuneration des MPE. Le taux de participation a evolue a la hausse sauf pour les sous-projets
d'infrastructures de deblocage.
Le tableau suivant donne la repartition des participationspar Direction Regionale.
Tableau 6: Participation des b6nificiaires - Projets EDBFIEDII
DRT
DRD
DRF
DRM
DRA
DRU
TOTAL
Apports b6n6ficiaires
rkalis6s
requis
2 076 838 332
2 101 402 645
865 893 746
827 647 491
2 887 877 663
2 844 275 775
1 733 721 316
1 754 120417
1 190 589 038
1 220 500 203
986 116 459
1 039 735 550
9 741 036 554
9 787 682 081
%
98,8
104,6
101,5
98,8
97,5
94,8
99,5
Dans le developpement du Projet, et a travers les performances techniques etfinancieres, le FID
a montre un professionnalisme certain. Comparativementaux realisations du Projet FID I et au
fl des annees, la qualite des travaux s'est amelioree. C'est une des conditions de la
perennisation des realisations.
31
3. LES IMPACTS
3.1.
L'inventaire exhaustif et l'evaluation ex-post realises en 1999 ont montre que: (i) les
sous-projets finances par le FID repondent Ades besoins reels et, dans la grande majorite, Ades
besoins prioritaires des populations beneficiaires, (ii) l'implication et la responsabilisation de ces
dernires ne sont pas encore satisfaisantes en ce qui concerne l'appropriation et la perennisation
des realisations. Toujoursest-il que des avancees notables ont ete constatees des les annees 19981999 en matiere d'appropriation des sous-projets de par une meilleure implication des
bdneficiaireset des Communes a toutes les phases d'un sous-projet.
A la phase actuelle, les realisations ont permis l'amelioration de l'acces a: (i) I'education
3.2.
primaire (augmentation du nombre d'enfants scolarises, (ii) la sant6 (les medicaments existent,
ainsi que le personnel sanitaire, compte non tenu de la qualification de celui-ci) et (iii) 1'eau
potable (environ 235.000 habitants en ont bendficie).
Le desenclavement d'une centaine de communes rurales a e rendu possible grace aux pistes
rurales rehabilitees. L'assurance d'une recolte stable et/ou en augmentation a ete constatee dans
les zones ayant b6n6ficidd'amenagements hydro-agricoles.
Les marches ont repondu aux besoins de transactions commerciales des producteurs et vendeurs.
Les points ci-dessus concourent a creer les conditions d'une croissance locale. Les efforts actuels
concourent tous A la mise en place d'associations des beneficiaires, en liaison ou non avec les
Communes (dans les cas ou elles n'existent pas encore) et qui sont chargees d'exploiter les
realisations.
Sur le volet plus immediat de la lutte contre la pauvrete, de 1996a 1999, le FID a pu cr6er environ
5.000.000 hommes-jour d'emplois temporaires.
3.3.
L'avancee est tres significative en matiere de promotion du secteur privd. II a ete
contracte 1.796marches avec les B.E. et les MPE.
Au niveau des provinces, le FID a r6ussi Acreer un tissu d'entreprises et de bureaux d'etudes, a
meme de repondre pour 1'essentielaux besoins de construction d'infrastructures de la region.
La transparence des procedures de passation de marche est une reference de la bonne gouvemance
et de la libre concurrence au niveau national et regional.
3.4.
La technique HIMO (Haute Intensitd de Main-d'Oeuvre) dans la construction des pistes
est de plus en plus maltris6e. Elle est benefique en matiere d'emplois et competitive en matiere
de cout.
L'utilisation des mat6riaux locaux est mieux comprise ainsi que la necessite de travaux de qualite.
3.5.
Toutes choses etant egales par ailleurs, le rapport qualite-prix des realisations du FID sont
competitives suivant le rapport de l'audit technique exteme. En moyenne: (i) une salle de classe
coAte 52 millions de FMG, (ii) une salle de centre sanitaire 27 Millions FMG et(iii) un kilometre
de piste 62 millions FMG. Ces couts integrent les dtudes, les travaux et les apports des
beneficiaires.
Tableau 7: Cofit unitaire des projets FEDII (Etude- travaux - Apport):
DRT
DRD
DRF
DRM
DRA
DRU
TOTAL
CSB
Salle
22 350 000
41 700 000
23 600 000
26 750 000
24 500 000
25 350 000
27 375 000
Ecole
Salle
42 740 000
59 200 000
44 875 000
52 130 000
53 950 000
59 620 000
52 085 833
32
Pisne
Km
56 500 000
70 800 000
57 100 000
61 750 000
62 850 000
63 950 000
62 158 333
3.6.
Au 30.09.98, date de son arret, le Programme d'appui aux Activit6s Generatrices de
Revenu (PAGR) a permis de: (i) financer 4.559 credits pour un montant de 7,3 milliards de FMG
et 253 auto-emplois et (ii) creer 26.600 hommes-jour d'emplois temporaires et 389 emplois
pernanents. 94 Agences d'Encadrement ont eu un chiffre d'affaire de 1,2 milliards pour la
gestion des conventions de credit. 240 Agences d'Encadrement ont beneficie de deux series de
formation pour ameliorer leurs competences.
Malgre la modicit6 du couit du programme, celui-ci fut victime de son succes, du fait qu'il ne
cadrait plus avec la politique de micro-fmianceinitiee nationalement.
La seule incidence de son arret sur les actions du FID fut la < demission>>des Agences
d'Encadrement et donc une repercussion negative sur le recouvrement des creances.
3.7.
La composante Appui au Secteur Prive (ASP) a conditionne largement l'obtention des
resultats des deux autres composantes (IDB et AGR) du Projet. Le volume et la qualite de la
formation ont eu, depuis 1996, des impacts significatifs sur la qualite des prestations des
partenaires. Qu'il s'agisse des B.E., des MPE ou des Agences d'Encadrement.
Le contexte de travail du FID ne peut etre independant de la situation generale du pays,
notamment en matiere de capacite institutionnelle des Communes et de la disponibilite des
ressources humaines. A l'echelon local, les impacts sont reels, si on prend en compte, a titre
d'exemple, la possibilite reelle de la population a se mobiliser autour d'un projet. Par son
extension, le Projet a riussi a reduire la notion d'Etat Providence: la participation des
beneficiairesa l'investissement est effective.
Les actions pour la responsabilisation des memes bneficiaires, surtout dans la phase apres
projet, sont connues et sont en cours de concretisation. Le Projet FID III est en fait axe' sur ce
point.
33
4 - EXECUTION DU PROJET
4.1.
Relationsavecla BanqueMondiale:
La BanqueMondialefut un vraipartenairenonseulementfinanciermaisaussitechnique.
Les relations,dans le cadre des Accords,ont et caracteriseespar leurtransparenceet la rapidite
des reactions:(i) pourles decaissementssaufpourquelquescas sansgrandeincidencenegativeet
(ii) pour les demandesde non objection.De par la permanencedu TaskManagera Antananarivo,
des misesau pointtrimestriellesont pu etre effectuees.
Dans le cas du FID III, l'implicationdu FID et du Gouvernementdansla preparationdu Projetfut
tres positive. II est fait referencenotammentau lancementdes projets tests communautaires
financespar les ProjetsFID II et FIDIII.
4.2. Coordinationdesactivitessurle plannational:
Le FID est reconnucommeun composantmajeurdansla luttepour la r6ductionde la pauvrete.
Son autonomied'action et de gestiondans le cadre des Manuelsde Proceduresest reconnuet
soutenudansla pratiquepar le Gouvernement.
La generalisationdes protocolesd'action avec les Ministeresa caracteresocial peut 8tre une
rdponse aux problemesde coordination;toutefois, les ressourceshumaines peuventne pas
correspondreaux besoins,comptetenude la multiplicit6des actionsAmener.
4.3. Gestiondu Projet:
A la basedes resultatsdu ProjetFID II, il fautmentionnerla clartedes relationset des attributions
du Conseild'Administrationde l'AssociationFID et du DirecteurGeneral. Ce fut acquisdes le
demiertrimestrede l'annee 1996.
L'autonomiede la structureet une gestiona caracterepriv6ont et des facteursdecisifsdans la
bonneexecutiondu Projet.
Cette gestionpriveea eu commecorollairele relevementdu niveaude competencedu personnel
et son adhesionaux objectifsdu Projetainsique la considerationaccord6ea l'efficacit6.
La gestiondecentraliseedu FID est renduepossiblepar 1'existenced'un echeloncentrali meme
de coordonneret de superviserles activit6s et d'instaurer une saine concurrenceentre les
DirectionsRegionales.
A traversun programmede travail annuel,chaqueDirection,dans le respect des Manuelsdes
Procddures,est responsablede la realisationtechniquede sonprogramme.
Surun autreplan,la maitrisede l'utilisationdu comptespecialet des sous-comptesregionauxest
totale. D'autantplus que les proceduresd'utilisationde ces derniersont &6 conquespar le FID et
entierementapprouveespar l'IDA. A signalerque le relevementdu plafonddu CompteSpecialA
USD3.500.000enjanvier 1998a resolules problemesde tr6sorerie.
4.4. Systemed'information:
A la fin de l'annee 1999et apresune miseen placede plus de deux annees,le FID disposaitenfin
d'un systemed'informationa tempsreel et en reseaupour la gestionde ses activiteset pour le
suivi-evaluation
du Projet.
Le systeme est constitue principalementd'une base de donnees tres large comprenantles
informationssur les activiteset des outilspermettantd'exploiterces donn6eset d'6tablir les liens
exactsentreles partiestechniqueet fmancieredes activites.
L'existencedu systemeconstitueun atoutindeniablepour la poursuiteet la gestiondu projet. II y
a toutefoislieu d'evaluer la performancedu systemeet d'apporter les ameliorationsutiles au
niveaudes reseauxlocauxet Adistance(vitessede communication,s6curited'acces, protection
physiquedu reseau...).
4.5. Developpement
desManuelsde Proc6dures:
L'ossaturedes Manuelsde Proceduresexistaitdepuis le ProjetFID I. Ils furent developpesau
cours du Projet FID II, et la collaborationavec les experts de la Banque Mondiale a ete
exemplaireen ce sens.
34
Ayant assimild la maitrise d'ouvrage ddlegue et des procedures d'un Fonds Social, le FID est
actuellement en tres bonne position pour realiser des Projets Communautairesgrace a un Manuel
de Proc6dures suffisammentrigoureux et a la mesure des objectifs recherches et surtout grace aux
experiences lanceesen 1999et aux experiencesavec les ONG et les Communes.
4.6.
Sur la communication:
Le FID est parmi les Projets les plus credibles et les plus visibles dans le pays. Grace a la
m6diatisation des realisations et a une politique de promotion des meilleurs projets (donc des
meilleurs exemples et des meilleures pratiques)et des meilleurs partenaires.
La communicationest utilisee comme un volet majeur de la mobilisation/ responsabilisationdes
ben6ficiaireset de la perennisationdes realisations.
35
5 - LES ACQUIS ET LES LECONS A TIRER
5.1. Le premier atout du FID est son autonomie,accepteeet garantiepar le Gouvemement
malgacheet la BanqueMondiale.
Dansle m8meordred'idees,il a su montrerpar sesresultatset sa gestionune certaineidee d'une
bonnegouvemancedans1'executiond'un Projet.La possessiond'un systemed'informationpour
la gestiondevraitameliorerles performances
du Projet.
5.2.Laparticipationdes b6neficiairesest acquiseau niveaudes investissements.
Durantle Projet FID I et au debutdu FID 1,si des elus pr6conisaientl'allocationdirectedu credit
FID aux autorit6sprovinciales,actuellement,les Communes,les instancesd6partementales
allouentpartiellementdes creditsauxpopulationslocalespourpouvoirr6pondreauximp6ratifsdu
FID.
5.3.Les actionsd'appuiau secteurprivesontpositives.
Des micro et petites entreprisesoperationnellesexistentau niveaudes regions,quoiqueleurs
performances
techniquesne soientpas encoreideales.
5.4. Des effortssont consentispour diffuserles exp6riencesdes meilleurssous-projets,vu sous
l'angle de l'implicationdes b6n6ficiaireset de la perennisationdes r6alisationspour instaurerla
concurrenceentre lespopulationset communes.
La participationest la responsabilisationdes populationset communesne sont pas encore
satisfaisantes.Si la participationdes beneficiairesAl'investissementest acquise,I'appropriation
des r6alisationsnecessiteencoredes efforts pour la mobilisationdes ressourceshumaineset
financieres.
5.5. L'existencedes r6alisationsquoiqueconsistantesur le plan national, n'est pas encore
suffisantepourmobiliserles communeslesplus excentr6es.
Des efforts sont encore n6cessairespour toucher les zones handicapeespar l'6tat des
infrastructuresroutieres.A contrario,les zones qui ont d6jaben6fici6des investissements
FID
connaissentles procedureset les obligationsdu Projet.En effet, la couverturedes d6partements
est totale,celledes Communesl'est a 45%.
5.6. Les exp6riencesamasseesen matierede relationsavec les Communessont loin d'8tre
n6gligeables.
Il en est de memeen ce qui concemeles ONG.
D'une facong6nerale,leurpotentielne peuts'ext6rioriserque par des programmesde formation
et des actionspratiques.
Les projetscommunautaires
- test initiesen 1999sont en ce senstres instructifs.L'implicationet
la mobilisationdes beneficiairesa toutesles phasesd'un sous-projetsont effectivesainsi que
l'operationnalitede leursassociations.
Toujoursest-ilqu'au vu des experiencespass6eset r6centes,ta perennisationdes realisationspeut
etre une realit6 avec l'application des proceduresqui se concretise par l'implicationdes
beneficiairesAtoutesles phasesd'un sous-projet.
36
COMMENTAIRES
DES PARTENAIRES
1. M. REMI,Maire de la CommuneRurale Joffrevile(CSBJoffreville- Antsiranana):
-
L'engagement des beneficiaires a participer a la realisation des apports du CSB Joffreville est
un peu lourd. Ce n'est pas au niveau de l'apport qu'on a trouve un probleme mais l'animation
de la population, et cela a entraine un retard au commencement et surtout a la progressionde
travail.
-
Le Gouvemement n'a pris part a ce projet (CSB Joffreville), selon l'habitude de la population
quand on collabore avec le FID. La plus grande chose qu'on ne peut pas laisser tomber est
l'entretien. La population comprend maintenantles diffic-ultespour construire. Demain, elle
saura qu'il faut entretenir le CSB pour qu'il soit toujours fonctionnel.
-
A mon avis, on peut compter beaucoup sur la perennisation de cet entretien, du fait que les
membres ont dejAmis un plan d'action a ce sujet.
2. Mme RAZAFIARIZAYJouishon,Directricede I'EntrepriseMILANTO>>(Antananarivo):
-
J'ai pu avoir trois marches pendant cette periode dont un pour le compte de la DRT et deux
pour celui de la DRA. Le dossier pourrait etre mieux mais la concurrence est vraiment dure
compte tenu du nombre importantde participants surtout lorsqu'il s'agit de batiment.
-
Chaque marche nous rapportait. Et ce b6n6fice aussi modeste qu'il soit (a cause du moinsdisant) nous convient car un chantier FID possede une autonomie financiere et le paient des
factures est presque immediat.
-
Au debut, l'on avait eprouve des difficultes sericuses a chaque fois qu'on repond a des appels
d'offres lances du fait des exigences dont le nombre de pieces demandees ainsi qu'A
l'etablissement des sous-details des prix. C'est seulement apres avoir obtenu le premier
marche qu'on s'etait aperqu de leur necessite et de leur importance. Nous estimons aussi
qu'elles pourront etre a l'origine de la disparition de concurrents peu serieux. En general,
cette methode nous a beaucoup apporte.
3. M. RAYMONDClaude, Co-g6rantde I'Entrepriseo ORIMBATO >>(Antananarivo):
-
Mon resultat avec le FID est bon. J'ai eu 1 con)trats dont 9 passes a Antananarivo et les 3
restants a Toliara.
-
Les resultats sont positifs en general et varient avec le temps et la localite des sous-projets.
-
Le FID a non sculement contribu6 au developpement de mon entreprise mais a permis
egalement d'6toffer les connaissances techniques de notre personnel. Sur le plan social, le
FID nous a permis de creer des emplois temporaires. Ccci est d'une importance majeure
surtout pour les zones ou nous travaillons.
37
4. M. ANDRIAMIHAJAPierre, EntrepriseECOMET (Malhajanga':
-
Je felicite le FID d'avoir pu, depuis 1995, faire la decentralisation; c'est un grand avantage
pour les MPE des provinces de pouvoir soumissionrierdans leur region. Notre souhait est que
cette decentralisation soit appliquee au niveau des rcgions.
-
Le probleme dans le secteur BTP est qu'il n'y a pas encore suffisamment de techniciens
dignes de ce nom sur le marche du travail. Notre souhait: le FID doit renforcer les formations
des entreprises.
-
Le FID doit considerer I'anciennet6 des PME pr6sel.ectionneesqui ont toujours travaill6 avec
lui :
* allegement du dossier de preselection (exemple: rie:n que le NIF et la Carte
professionnelle)
* certificat de bonne relation avec le FID
-
Concemant l'apport des beneficiaires en numeraire, la proce(lureadministrative des virements
au niveau des CLD est trop lente d'ofi incidence financiere au niveau de la tresorerie des
PME.
-
L'application stricte des regles de jeu pour promouvoir le professionnalisme (caution de
bonne execution, penalite de retard) est tres appreciee.
5. M. FAROUK,Mairede la Communede Masomeloka(Faritany Toamasina):
-
La Commune Rurale de Masomeloka a travaiIle avec le FID en 1999 dans le cadre de la
construction du Marche Masomeloka.
-
Dans l'ensemble, nous entretenons de bonnes relations avec le FID. Mais nous deplorons
toutefois les difficultes de communications qui regnent dans notre fivondronana qui sont
telles que nous avons du mal Acommuniquer avec le FID.
-
La mairie de Masomeloka est satisfaite dans la mesure oii nous avons e servis pour la
construction d'un premier lot. Malheureusement, A cause des difficult6s de communication
que j'ai evoquees tout A l'heure, et des problemes de mobilisation du fokonolona, nous
n'avons pas pu terminer Atemps nos apports pour le 2 "m'lot. Pour ces raisons, le FID a differe
la realisation de notre 2 1melot.
-
Ds le debut du projet, nous avons mis en place un comite provisoire qui a ete charge de la
surveillance des apports. Nous n'avons pas encore occupe les lieux pour l'instant, car on
attend la reception provisoire. Mais c'est le meme comite qui va sensibiliser les utilisateurs et
collecter le fonds d'entretien. Au niveau de la commune, comme nous pensons instituer des
tickets pour chaquejour de marche, nous avons l'intention dl'inclure dans notre budget 2000
un montant destine a l'entretien du marche.
6. M. LAIMISONDROTRA
Thomas,MairedeBeforona(FaritanyToamasina):
-
Nous avons ete longtemps prives d'eau potable ABeforona. Depuis decembre 1999, grace au
FID, le probleme a e resolu. Nous notons cependant que lorsque les 15 bomes fontaines et
le lavoir fonctionnent en meme temps, le debit d'eau n'est pas suffisant. Le bureau d'etudes
nous a explique qu'il faut organiser gestion de l'eau au niveau des <<komitin-drano >>(comite
de l'eau) que nous avons mis en place pour que toute le monde puisse bien en profiter.
38
-
Pour l'instant, nous avons des <<komitin-drano>>(comite de l'eau) au niveau de chaque borne
fontaine. Mais apres discussion avec le FID et le bureau d'etudes, nous sommes convaincus
que ces comites provisoires, pour etre efficaces et 6coutes par tous les usagers, doivent etre
ramenes au sein d'une association plus formelle que nous sommes en train de mettre en place
avec le bureau d'etudes. Surtout, ces comites on besoin d'etre renforces car certaines de nos
bornes fontaines se trouvent au bord de la route et font l'objet d'acte de vandalisme de la part
des gens qui passent.
7. M. RABAKO Justin, President Cellule de Projet (PC College Rainisoalambo- FeneriveEst)
(FaritanyToamasina):
-
Nous avons de bonnes relations avec le FID. Surtout, dans le cadre du projet communautaire,
nous avons apprecie que le FID nous ait accorde sa confiance et permis a la cellule de gerer
totalement le projet. Nous sommes egalement reconnaissants a l'equipe du FID d'avoir
consacre du temps pour notre propre formation dans la gestion du projet.
-
Pour notre cellule, la collaboration avec le FID dans le cadre du projet communautaire a ete
enrichissante, car il y a eu beaucoup de choses nouvelles que nous avions decouvertes:
consultation de partenaires, passation de march6, suivi de travaux, etc... Ceci etant, le FID a
ete trop ferme au niveau des apports de 20% et du temps imparti pour leur realisation.
-
Depuis quelques mois, nous mettons de l'argent de c6te pour constituer notre fonds
d'entretien. Notre communaute a deja l'habitude de prendre en charge 1'entretien et la
maintenance de son patrimoine.
-
Si le FID pense developper les projets communautaires, nous souhaitons que les apports de
20% exiges avant projet soient reduits car il est difficile de rassembler ces apports. Nous
demandons egalement a ce que tous les volets de formation dispenses par le FID soient
renforces et que la cellule soit bien formee avant le demarrage des travaux.
39
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