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CONGO
BRAZZAVILLE AND POINTE-NOIRE SANITATION PROJECT (PABP)
PROJECT COMPLETION REPORT
(PCR)
RDGC
November 2017
Translated Document
AFRICAN DEVELOPMENT FUND
Publi
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1
I Basic Data
A Report Data
Report
date
Date of Report September 2016
Mission Date (if field mission) From: 6 June 2016 To: 13 June 2016
B Responsible Bank Staff
Positions At Approval At Completion
Regional Director J.M. GHARBI Mrs Marlene KANGA
Country Manager Mr. Coulibaly MEDJOMO Mr. Sylvain MALIKO
Sector Director Mr. K. BEDOUMRA Mr. Mohamed EL AZIZI
Sector Manager Mr. F. WASSEL Mrs Monia MOUMNI
Task Manager Mrs MOUMNI Monia Mr. Bruno ZALI
Alternate Task Manager Mr. ZALI Bruno N/A
PCR Team Leader Mr. Bruno ZALI, Task Manager CDFO/OWAS.1
PCR Team Members Mr. Vurce Arcene MAFOUTA LOSSOMBOT, Financial
Management Specialist, CDFO/ORPF.2
C Project Data
Project Name: BRAZZAVILLE AND POINTE-NOIRE SANITATION PROJECT (PABP)
Project Code: P-CG-E00-002 Instrument Number(s): 2100155016516
Project Type: Investment Project Sector: Water and Sanitation
Country: Republic of CONGO Environmental Categorization (1-3): 2
Processing milestones – Bank approved
financing only (add/delete rows
depending on the number of financing
sources)
Key Events (Bank approved financing
only)
Disbursement and closing dates (Bank
approved financing only)
Financing Source/Instrument
ADF Grant - 2100155016516
Financing Source/Instrument
ADF Grant - 2100155016516
Financing Source/Instrument
ADF Grant - 2100155016516
Date Approved: 16/09/2009 Cancelled Amount : UA 0 Original Disbursement Deadline: 76
months
Date Signed : 10/11/2009 Supplementary Financing: Congo’s
counterpart contribution
Original Closing Date: 31/12/2014
Date of Entry into Force: 10/11/2009 Restructuring (specify date and amount
involved): Not Applicable
Revised (if applicable) Disbursement
Deadline: 31/03/2016
Date Effective for First Disbursement:
10/04/2010
Extensions (specify dates): 30/06/2015 (06
months), 31/12/2015 (6 months) and
31/03/2016 (03 months)
Revised (if applicable) Closing Dates:
31/12/2015, 31/03/2016
Date of Actual First Disbursement:
19/04/ 2010
PROJECT COMPLETION REPORT FOR PUBLIC SECTOR OPERATIONS (PCR)
AFRICAN DEVELOPMENT
BANK GROUP
2
Financing source/instrument (add/delete
rows depending on the number of financing
sources):
Disbursed amount
(amount, UA):
Percentage
disbursed (%):
Undisbursed
amount (UA):
Percentage
undisbursed (%):
Financing Source/Instrument : ADF
Grant – 2100155009616
12,063,476.91 94.62 686,523.09 5.38
Government: Government of Congo 7,949,616.37 104.21 - -
Others : Beneficiaries: 424,909.28 68.53 - -
TOTAL 20,438,002.60 97.32 686,523.09 3.27
Co financiers and Other External Partners: NA
Executing and Implementing Agency(ies): Ministry of Energy and Water through the General Directorate of Water
D Management Review and Comments
Report reviewed by Name Date reviewed Comments
Country Manager Sylvain MALIKO
Sector Manager Monia MOUMNI 23/12/2016
Regional Director (as chair of Country Team) Marlène KANGA
Sector Director Mohamed EL AZIZI
II Project Performance Assessment
A Relevance
1. Relevance of Project Development Objective
Rating* Narrative assessment (max 250 words)
4 This sanitation project is ful ly consistent wi th the priorities mentioned in Congo’s Poverty Reduction
Strategy Paper for 2008- 2010, which focuses on peace-building, stability, the promotion of good governance and
the search for sources of robust and sustainable economic growth capable of improving access to basic social
services. Go vernment ’s priorities aim to tackle the constraints that hinder economic and social progress,
including: (i) weak State capacity to offer sustainable public services; (ii) weak infrastructure due to the
destruction o f t h e p r o d uc t i o n ma c h i n e r y ; and (iii) v e r y r a p i d urbanization, in particular i n
Brazzaville and Pointe-Noire, w h i c h p l a c e s e n o r m o u s s t r a i n o n infrastructure and poses serious
problems of health and hygiene, and affects the environment a n d t h e w e l l - b e i n g o f t h e population.
The Congolese Government’s determination to tackle the development challenge is confirmed in the 2012 -
2016 Growth, Employment and Poverty Reduction Strategy Paper (DSCERP), which places strong emphasis
on the promotion of diversified, inclusive growth. The new medium-term vision hinges on the following five
thrusts: (i) Governance; (ii) Growth and diversification; (iii) Development of economic and social
infrastructure; (iv) Social development and inclusion; and (v) Balanced sustainable development. Pursuant to
the MDGs, the Congolese Government also committed itself to improve the living conditions of the population
by 2015. Government policy is announced in the Water and Sanitation Sector Development Strategy Paper and
the respective Sector Development Policy Letters for the Water Sector and Sanitation Sub-Sector, which also
indicate its strategic guidelines and implementation thrusts.
The Bank’s Results-Based Country Strategy Paper (RBCSP, 2008-2012) a d d r e s s e s Government’s concerns
and priorities with emphasis on: (i) the development of infrastructure to support growth and improve living
standards; and (ii) the promotion of macro-economic stability and growth. The first intervention area, which
focuses on better access to basic infrastructure (drinking water, sanitation and electricity) is crucial f o r
g r o w t h , private sector development, w i d e r a c c e s s t o b a s i c services and job creation. The second
intervention area, focused on better management of public resources and improvement of the business climate,
aims to provide the right context for improving economic governance and the fight against corruption to a t t rac t
na t iona l and int erna t io nal investments and guarantee growth that favours poor people’s access to basic
services. Lastly, the project is in line with the guidelines of the Bank’s 2013-2022 Ten-Year Strategy, which
prioritizes enhanced engagement in fragile States and development of infrastructure for inclusive growth.
* For all ratings in the PCR use the following scale: 4 (Highly satisfactory), 3 (Satisfactory), 2 (Unsatisfactory), 1 (Highly unsatisfactory)
3
2. Relevance of Project Design
Rating* Narrative assessment (max 250 words)
3 The project’s sector objective is to help Government to consolidate efforts made to implement its urban poverty
reduction policy through: (i) the construction of infrastructure for the collection and evacuation of waste water,
excreta and rainwater; (ii) the implementation of actions geared towards sustainably increasing access to sanitation by
sensitizing the population on the importance of procuring family latrines to promote hygiene and sanitation, properly
manage excreta, support investments and ensure institutional support. The technical solutions adopted for this project
targeted the construction of 4,383 family latrines and 353 public latrines to improve the population’s access to
individual sanitation, 2 stations for the treatment of sludge in each of the two towns, the collection/evacuation of
excreta and the rehabilitation and extension of 11.5 km (2.7 km rehabilitated and 8.8 km constructed) of the rainwater
drainage network in Pointe-Noire. However, the recommended method of procurement of family latrines through
community labour proved unsuitable. Resorting to SMEs via local shopping to meet the project objectives led to an
upward revision of the initial cost per latrine, which ultimately reduced the programmed number of latrines to be
constructed. Although it is difficult at this stage to assess the project impacts, the recommended technical solution
allows for meeting the latrine needs of nearly 70,000 people in Brazzaville and Pointe-Noire, the project impact area.
The rehabilitation of the rainwater drainage network in Pointe-Noire benefits over 700,000 people and mitigates the
risk of flooding in beneficiary neighbourhoods, helping to improve the living conditions of the beneficiary population.
The prevalence rate of diarrhoea-related diseases, one of the causes of infant and child mortality, dropped from 117‰
in 2005 to 44‰ in 2015 in the project area. Similarly, the maternal mortality rate fell from 1,100 in 2008 to 436 in
2015, or a 241% drop.
3. Lessons learned related to relevance
1. Progress towards the
project’s development objective (project purpose)
Comments
The project is in line with Government’s development strategy whose main objective is the promotion of robust growth and
poverty reduction. It facilitates the development of access to basic social services, one of the priority thrusts of Government’s
strategy. It hinges on four main components: (a) Development of sanitation infrastructure; (b) Development of IEC programmes,
FD studies/preparation of BDs, Works control and monitoring; (c) Institutional support; and (d) Project management.
1. Component A : Development of Sanitation Infrastructure
The project plans to construct in Brazzaville and Pointe-Noire : (i) 6,450 individual latrines in households ; (ii) 360 public multi-
compartment latrines in schools, markets and health centres ; (iii) two (2) sludge treatment stations and two (2) gravel packs in the
two towns. Specifically for Pointe-Noire, there were plans to rehabilitate and strengthen the rainwater drainage networks on a
distance of 12 kilometres. At completion, the project will allowed for the construction of 4,383 family latrines, or nearly 70%
done, 353 public latrines, or 98% done, two (2) sludge treatment stations in each of the two towns, or 100% done, and the
rehabilitation and extension in Pointe-Noire of 11.5 km of the rainwater drainage network (2.7 km rehabilitated and 8.8 km
constructed), or nearly 96% done.
2. Components B : Development of IEC programmes, FD studies/BD, Works control and monitoring
IEC Programmes
B Effectiveness
Key issues (max 5, add rows as needed)
Lessons learned Target audience
1. How to ensure a better level of
project ownership and coordination of
implementation by municipal and
sector authorities?
Municipalities’ little or no involvement and support for project
activities causes lateness in taking decisions that impact the
achievement of the project objectives. Greater involvement of
municipalities would have made it possible to rapidly find
appropriate solutions to problems encountered during
implementation. For example, the issue of laying out access
roads to the sites of oil sludge treatment stations. Therefore, it
is recommended that branches of implementation units should
be established directly inside beneficiary municipal offices for
a more effective and committed monitoring of project
implementation.
Sector ministries and
beneficiary
municipalities
4
The promotion of hygiene and sanitation led to the sensitization of population in the two towns at the level of municipal districts,
heads of quarters, households, public places via focus groups of 20 to 40 households and public meetings of 200 to 500 people.
The main objective is to create awareness in households of the advantages of procuring latrine, elicit the will to have reliable
latrines, facilitate capacity in each household to mobilize financial contributions, which is a fundamental condition for obtaining a
latrine. At completion, over 70,000 of the initially expected 100,000 people were sensitized, or over 70% of persons sensitized.
With regard to the promotion of hygiene in households, over 10,000 households in Brazzaville and Pointe-Noire were sensitized
on hygiene and sanitation, especially on the importance of latrines and adequate management methods, thus minimizing faeces-
related risks. The approach used consisted in animation sessions through focus groups and door-to-door communication.
About 3,060 students, 60 per school, as well as 250 teachers against 200 initially planned, or nearly 125% of teachers, were
educated on hygiene and sanitation in schools benefiting from public sanitation infrastructure in Brazzaville and Pointe-Noire.
Two hundred (200) small-scale masons were trained, 100 per town, or 100% of the initial target, for the construction of family
latrines. Unfortunately, they were replaced by SMEs due to the slow implementation of works. The objective of 220 female
community leaders could not be achieved because of the lack of female associations that could be contracted for the management
of public latrines.
FD/BD studies
At project design, there were plans to conduct FD studies for Component A works, an institutional study of the sanitation strategy
and an independent review of the national diarrhoea-related disease control programme. At completion, the FD studies had been
conducted (100% done) and helped to prepare bidding documents (BD) for the consultation of contractors. The institutional study
of the project sanitation strategy was conducted (100% done) and its final report validated. It allowed for clarifying and
operationalizing the implementation of the national sanitation strategy in the Republic of Congo. The independent review of the
national diarrhoea-related disease control programme was performed and helped to determine the impact of hygiene and
sanitation on morbidity and mortality due to diarrhoea-related diseases. A final validated report sanctioned this review.
3. Component C: Institutional Support
At project appraisal, the expected outcomes for this component were: supply of maintenance equipment for sanitation structures
in Pointe-Noire and strengthening of the senior staff of DGH and municipalities. At completion, Pointe-Noire was endowed with
a hydro-cleaning truck and hydraulic shovel to maintain drainage works and natural collectors as initially planned. This was 100%
done. The administrative and financial officer was trained on three programmes: the use of TOMPRO software in Brazzaville;
capacity-building on the use of the software in Yaoundé (Cameroon) and aspects related to audit and financial statements in
Abidjan (Côte d’Ivoire). Project coordination and support experts received training on the improvement of project performance
tools financed by AfDB. An experience-swap trip involving four municipal workers and two project coordination staff related to
the management of sludge treatment stations was organized in Accra (Ghana).
4. Component D: Project Management
Project activities were implemented by the General Directorate of Water (DGH) in the Ministry of Energy and Water (MEH)
through the Project Implementation and Coordination Unit (PIU). The PIU’s administrative, financial and accounting procedures
manual was prepared at project start-up and made available. Programmed audit reports and quarterly progress reports are
submitted regularly.
5
2. Outcome reporting
Outcome indicators (as per
RLF; add more rows as needed) Baselin
e value
(Year)
Most
recent
value
(A)
End
target (B)
(expected
value at
project
completion
)
Progress
towards
target (% realized)
(A/B)
Narrative assessment (indicative max length: 50 words per outcome)
Core Sector
Indicator (Yes/No)
Outcome 1 : Access rate to
sanitation in Brazzaville and
Pointe Noire
10.5%
(2008)
20%
(2015)
16%
(2013)
172 % Thanks to project outputs, the
latrine needs of nearly 70,000
people in Brazzaville and Pointe-
Noire were met. The rehabilitation
of the Pointe-Noire rainwater
drainage network benefited over
700,000 people and mitigates the
risk of floods in beneficiary
neighbourhoods, thus helping to
improve the beneficiary population’s
living conditions.
YES
Outcome 2: Infant and child
mortality rate
117‰
(2005)
52‰
(2015)
44‰
(2015)
89 % The prevalence rate of diarrhoea-
related diseases, one of the causes of
infant mortality, drops by 89%in the
project area.
NO
Outcome 3 : Maternal
mortality rate
1100
(2008)
436
(2015)
825
(2015)
241 % The maternal mortality rate falls
from 1,100 in 2008 to 436 in 2015,
or a 241% drop.
NO
Rating* (see IPR
methodology) Narrative assessment
3 It is important to note that the outcome indicators considered at project appraisal are global indicators at
country level. The expected changes were to be achieved with the support of all projects sponsored by
Government and its partners in the water and sanitation sector. The RBCSP outputs only contribute thereto.
However, recent information shows that significant progress has been made. The outcomes report is deemed
satisfactory.
6
3. Output reporting
Output indicators (as specified in the RLF;
add more rows as needed)
Most recent
value
(A)
End target
(B)
(expected value
at project completion)
Progress
towards
target (% realized)
(A/B)
Narrative assessment (indicative max length: 50 words per output)
Core Sector
Indicator (Yes/No)
Output 1: Number
of public kiosks
constructed ( 360
public latrines)
353 360 98.06%
Thanks to the project, 353 public latrines
were constructed in schools, health
centres, dispensaries and markets Yes
Output 2: Number
of family latrines
constructed (6,450
latrines)
4,383 6,450 67.95%
Only 4,383 of the initially planned 6,450
family latrines were constructed due to
difficulties linked to the organization of
community work and the management of
small-scale masons, which caused the
change of the works procurement method.
Yes
Output 3: Number
of sewage treatment
stations constructed
(4 stations)
4 4 100.00%
The four (4) treatment stations constructed
as part of the project are designed to treat
up to 100 mᵌ/day of sewage freshly
collected in family or public latrines.
However, the higher number of sewage
collection trucks owned by private
operators in the sewage transport sector
increase the demand for treatment
estimated at nearly 250 mᵌ/day. Since the
constructed stations are clearly
overwhelmed, complementary actions
should be envisaged to increase the
performance of these stations.
Yes
Output 4 : The linear
distance of
rehabilitated and
strengthened
rainwater drainage
network in km (12
km).
11.5 12 95.83%
The rehabilitation of 11.5 kilometres of
rainwater drainage network in Pointe-
Noire benefits over 700,000 people and
mitigates the risk of flooding in
beneficiary neighbourhoods, thus helping
to improve the beneficiary population’s
living conditions.
Yes
Rating* (see IPR
methodology) Narrative assessment
3 Results in terms of outputs are awaited. The change of procurement method of family latrines led to a
cost overrun, which led to the reduction of the number of family latrines to be constructed.
7
4. Development Objective (DO) rating1
DO rating (derived from
updated IPR)* Narrative assessment (indicative max length: 250 words
3
The project development objective was to ensure sustainable access to sanitation so as to improve the
socio-economic and sanitary conditions of the Congolese population. Specifically, the project was
expected to help increase sanitation infrastructure and improve hygiene in Brazzaville and Pointe
Noire through the expected outputs namely : (i) 6,450 new individual latrines; (ii) 360 multiple-cabin
public latrines in schools, health centres and markets; (iii) two sewage treatment stations in
Brazzaville and two treatment stations in Pointe Noire; (iv) 200 masons trained in latrine construction
techniques; (v) 220 female community leaders and 200 teachers trained on the themes of hygiene and
sanitation ; (vi) 12 km of primary and secondary rainwater drainage networks rehabilitated and
strengthened in Pointe Noire; (vii) information, coordination and sensitization campaigns organized
targeting the population of both towns; and (viii) an institutional study of the sanitation strategy that
will define mechanisms for operationalizing and sustaining the sanitation sub-sector. Thus, the
constructed infrastructure, various equipment procured, training offered, sensitization campaigns
conducted indicate that the project development objectives were achieved.
5. Beneficiaries (add rows as needed)
Actual (A) Planned (B) Progress towards target (% realized) (A/B)
% of women Category (e.g. farmers, students)
70,000 100,000 70 % 52 % Number of additional persons served by
family latrines
700,000 700,000 100 % 52 % Number of beneficiaries of rainwater
drainage works in Pointe Noire
1,900,000 1,900,000 100 % 52 % Total population of both towns, or 1.9
million people, benefiting from IEC
campaigns, public latrines and sewage
treatment stations.
6. Gender equality
Review of gender analysis performance in the operation (at most 250 words)
Women’s involvement in the management of public latrines will help to enhance their economic and decision-making powers.
The project will also offer the opportunity to train 220 female leaders to continue sensitizing the population for behaviour
change. Lastly, the project’s positive impacts on the everyday personal and social well-being of women and girls (intimacy, ease
of use, proximity and safety) have led to fewer incidents of violence against women attributable to lack of intimacy linked to the
absence of appropriate latrines.
Indeed, thanks to project outputs, the hygiene conditions of the population, especially women and children, have improved.
Proximity sanitation infrastructure is now available at the level of schools, health centres, public markets as well as in families.
This has improved the general well-being favourable for income-generating activities and the school attendance or literacy of
girls and women, thereby facilitating their empowerment. In the same vein, female community leaders were trained and women
participate in the management committees of the constructed latrines.
1 For operations using the old supervision report and rating system in SAP, the DO rating for the PCR shall be calculated using
the IPR methodology.
8
7. Unanticipated or additional outcomes (add rows as needed)
Description Type (e.g. gender,
climate change, social,
other)
Positive or
negative
Impact on project (High, Medium, Low)
Flood control in Pointe-Noire. Neighbourhoods that were hitherto
prone to floods due to the afflux of rainwater are now protected and the
population’s living conditions have improved. Similarly, the reduction
of open-air defecation and controlled management of sewage
discharges due to the presence of adequate individual and public
sanitation infrastructure, have led to improvements in beneficiaries’
health.
These outcomes aim
at better factoring in
climate change on
the one hand and
behaviour change on
the other
Positive High
8. Lessons learned related to effectiveness (add rows as needed)
Key issues (max 5, add rows as needed) Lessons learned Target audience
1. How to shorten the time take to process files
and procurements
Long file-processing timeframes have been a non-
negligible constraint, whether on the part of the Bank or
the Borrower. The more decision-making powers are
delegated to the Bank’s Task Managers, the shorter will
be the file processing time. Procurement methods are
sometimes unsuitable (community work) for some types
of activities whose amounts are small, especially
construction works of family latrines, leading to the late
implementation and cost overrun of such activities. It is
recommended to use more flexible procedures for the
procurement of certain types or just use national
procedures.
Government/ Bank
C Efficiency
1. Timeliness
Planned project duration – years
(A) (as per PAR) Actual implementation time – years
(B) (from effectiveness for 1st disb.) Ratio of planned and actual
implementation time (A/B)
Rating*
4 year 5.4 years 0.74 2
Narrative assessment (indicative max length: 250 words)
Project schedule monitoring was marked by a rapid start-up of project activities. Bank approval came in September 2009,
followed by the signature of the grant agreement in November of the same year, barely two months after approval. The first
disbursement took place in April 2010, five months after effectiveness. This was due to a slight delay in the process of opening
the special accounts for lodging project resources and the complete and effective establishment of the Project Implementation
Unit due to the absence of office premises and logistical means for the PIU’s functioning (furniture, IT and office equipment,
internet, etc.). Added to that is the low performance level of some providers in implementing works which led to a significant
slippage in the project implementation schedule. Scheduled for 48 months (4 years), project implementation took 64 months (5.4
years), 16 months behind the initial schedule, corresponding to a slippage of 33%. At the last disbursement, the project had been
extended three times. Planned initially in December 2014, the completion date was extended first to June 2015, then twice in
December 2015 and the last time to 31 March 2016.
9
2. Resource use efficiency
Median % physical implementation
of RLF outputs financed by all
financiers (A) (see II.B.3)
Commitment rate (%) (B) (See table 1.C – Total commitment rate of all
financiers)
Ratio of the median percentage
physical implementation and
commitment rate (A/B)
Rating*
90.46 % 97.32 % 93 3
Narrative assessment (indicative max length: 250 words)
ADF resources, counterpart funds and beneficiaries’ contributions were disbursed at the rate respectively of 94.62%, 104.21%
and 68.53%. This made it possible to achieve the expected outputs. It is worth noting that the target of 6,450 family latrines was
scaled down after difficulties were encountered linked to the organization of community labour and the management of small-
scale masons, the cause of the change of works procurement method. This method was reviewed to suit the realities of
implementing project activities. Thus, the initial cost per latrine (CFAF 850,000) was revised upward (CFAF 1,200,000), leading
to a reduction of the number of planned latrines to 4300. Standing at 93%, resource use efficiency is deemed satisfactory.
3. Cost benefit analysis
Economic rate of return
(at approval) (A)
Updated economic rate of return
(at completion) (B)
Economic rate of return ration
updated and at approval (B/A)
Rating*
24.7% 19.6 80.16% 3
Narrative assessment (indicative max length: 250 words)
The mobilized resources (UA 20.5 million) helped 70,000 additional persons to have family latrines, 700,0000
persons to benefit from rainwater drainage works in Pointe Noire and 1.9 million people to benefit from IEC
campaigns, public latrines and sewage treatment stations in Pointe Noire and Brazzaville. The project’s economic
analysis at completion revealed that the economic benefits of these works include the lower prevalence rate of
water-related diseases, one of the main causes of infant mortality which fell by nearly 50% in the project area.
The updated economic rate of return of 19.6% shows that the project is economically more profitable even though
the internal ERR is lower than at appraisal (24.7%). The ratio between the ERR at completion and ERR at
appraisal is 0.80. In calculating profitability, account was taken of the final value of effective investments made,
annual operating costs including maintenance and the benefits linked to the lower incidence of water-related
diseases at the level of the health system (time of medical staff, immobilization of medical facilities, medications)
and the population (medical bills paid, time lost during visits and examinations, related transport costs, lost
working time).
It should be noted that the project’s late implementation and higher construction costs of public latrines reduced
the present value of investments and delayed the concretization of project benefits. These uncertainties were
factored into the sensitivity analysis conducted at appraisal. The project remains economically profitable with a
positive NPV and IRR above the updated cost used of 12%.
4. Implementation Progress (IP)2
IP Rating (derived from
updated IPR) *
Narrative comments (commenting specifically on those IP items that were rated Unsatisfactory or
Highly Unsatisfactory, as per last IPR). (indicative max length: 500 words)
3 Absence of a monitoring-evaluation system: Despite the support offered by technical assistance, the project did
not succeed in establishing an adequate monitoring-evaluation system, thanks to which a link is created
between the baseline situation and the closing situation through ongoing monitoring and evaluation of indictor
progress versus targets (annual, mid-term and final). Nevertheless, it is undeniable that project implementation
is satisfactory overall in light of the results obtained.
2 For operations using the old supervision report and rating system in SAP, the IP ratings need to be converted from the 0-3 scale used in SAP to the 1-4 scale
used in the IPR..
10
5. Lessons learned related to efficiency
Key issues (max 5, add rows as needed) Lessons learned Target audience
1. How to optimize project implementation
timeframes?
Train PIU on Bank rules and procedures once the
project is approved.
Government/AfDB
2. How to ensure better use of loan resources? Avoid additional clauses with financial impact in
contracts and comply with fund allocation ceilings
for various activities
Strengthen the internal control system and the
Steering Committee’s monitoring and oversight
powers over the PIU.
Government/AfDB
3. How to ensure the right conditions for the
implementation of project activities ?
Ensure the categorization of contractors, especially
as far as works are concerned and set contract
thresholds by contractor type. This categorization
will be based on contractors’ technical and
financial capacities.
Government
4. How to ensure good beneficiary participation and
the preservation of project achievements?
During design, collect enough data to enable a
detailed analysis of the community dynamics and
propose suitable measures to enhance ownership.
Government/AfDB
D Sustainability
1. Financial sustainability
Rating* Narrative assessment (indicative max length: 250 words)
3 Generally, it is noted that upkeep/maintenance costs of structures are charged to the beneficiaries’ budget. Public
latrines in health centres are maintained by staff recruited for that purpose and the related costs charged to the budgets
of these structures. At the level of public markets, their respective management committees collect money from
sellers to buy the necessary cleaning/maintenance products and pay the occasional cleaners. With regard to sewage
treatment stations, their operation and maintenance are incorporated in the respective local development plans of the
beneficiary municipal offices.
2. Institutional sustainability and strengthening of capacities
Rating* Narrative assessment (indicative max length: 250 words)
3 The mayors of the two towns appointed staff (six from the Directorate of Economic Promotion and Tradable
Activities, in the case of Brazzaville) specially to manage the stations constructed. This, notwithstanding the
difficulties they encounter in implementing their investment programmes because of budget cuts due to the fall in oil
prices, Congo’s main resource. This staff received training and support from a specialist to master how these
structures operate. Similarly, equipment allowing municipalities full control of the management of constructed
structures were procured as part of the project (tractor mounted scoop, hydro-cleaning vehicle and service vehicle).
At the institutional level, the sanitation strategy study made it possible to define the management framework of this
sub-sector with the creation of the Ministry of Energy and Water and the Directorate of Sanitation.
11
3. Ownership and sustainability of partnerships
Rating* Narrative assessment (indicative max length: 250 words)
3 The sustainability of project infrastructure is not in doubt. For family latrines, beneficiaries indeed contributed to the
related cost. They participated in monitoring works and benefited from sensitization actions. With regard to public
sanitation works, the beneficiary municipalities and structures participated in monitoring works and have included the
operating costs of these works in their budget. The constructed infrastructure is of good quality and functional overall.
By virtue of their unique architecture, the infrastructure is highly appreciated by the beneficiary population and pulls
crowds since they are very practical for communities. However, a great part of the demand for family latrines has
remains unmet because allocated resources ran out and the project came to an end.
4. Environmental and social sustainability
Rating* Narrative assessment (indicative max length: 250 words)
3 The construction of sewage treatment stations in a context of near-absence of regional development planning in the
sites of LIFOULA, MAKANA, VINDOULOU and FOUTA is exposed to environmental and social risks especially
erosion and the disorderly occupation of surrounding land. Mitigation measures were taken to limit the risk of
erosion. With regard to the disorderly occupation of land, the municipalities are requested to pursue efforts to avoid
problems of acceptability of the works by the local population established after construction of the structures.
5. Lessons learned related to sustainability
Key issues (max 5, add rows as needed) Lessons learned Target audience
1.How can sector governance be improved ?
The low level of sector governance (absence of
suitable institutional framework as well as policies
and strategies), the consequence being the low
level of involvement and support for
implementation of project activities by national
sector authorities. Improve sector governance by
creating a conducive environment for private
operators (concession, lease contracts, etc...).
Government
III Performance of stakeholders
A Relevance
1. Bank Performance
Rating* Narrative assessment by the Borrower on the Bank’s performance, as well as any other aspects of the project
(both quantitative and qualitative). See guidance note on issues to cover. (indicative max length: 250 words)
3 The Bank’s assistance contributed to Government’s efforts to implement its development programme, which targets
the improvement of access to basic social services through the construction of more sanitation infrastructure and
better hygiene in the towns of Brazzaville and Pointe Noire, which has a population of 1.9 million people. These
actions allowed for improving the living environment of the population. The Bank also supported Government to
prepare the institutional strategy to better organize the sanitation sub-sector, long characterized by the total absence of
leadership.
The Bank monitored and supervised the implementation of project activities in all the implementation phases. Bank
monitoring proved valuable in achieving the project objectives. Regular monitoring and supervision missions
including financial supervision had the advantage of facilitating the establishment of a management system which
made it possible for the project to avoid ineligible expenses and late production of financial statements. In addition,
the Bank’s support helped to guide the project, as evidenced in the training on archiving of procurement and contract-
monitoring files. Regular contacts for project implementation updates and assessment made it possible to resolve
problems and propose necessary adjustments to the implementation context. Bank performance is deemed
satisfactory.
12
Comments to be inserted by the Bank on its own performance (both quantitative and qualitative). See guidance note on
issues to cover. (indicative max length: 250 words)
The Bank’s assistance focused inter alia on developing and improving basic infrastructure. The Bank therefore contributed to the
rehabilitation and extension of sanitation infrastructure for the better social well-being of the population and thus foster their full
participation in activities that contribute to economic recovery. The Bank also supported Government to prepare the institutional
strategy for better organization of the sanitation sub-sector, henceforth placed under the supervisory authority of the Ministry of
Energy and Water.
The Bank’s monitoring and supervision was unflagging during all project implementation phases and proved significant for
achieving the project objectives. Monitoring and supervision missions, including financial supervision, were undertaken
regularly. Bank performance is deemed satisfactory.
Key issues (related to Bank performance, max 5, add rows as needed) Lessons learned
1. How to ensure that the Bank is proactive and shorten
long file processing timeframes?
Task managers lack real decision making powers. Although
they have a better understanding of project implementation
related problems and initiate all files, they do not have any
decision-making powers and therefore depend on other actors
who are often not on the field. It is important to imagine
control and supervision mechanisms of Task Managers and
delegate to them sufficient decision-making powers to
improve the performance of Bank operations.
2. Borrower performance
Rating* Narrative assessment on the Borrower performance to be inserted by the Bank (both quantitative and
qualitative, depending on available information). See guidance note. (indicative max length: 250 words)
3 Government, especially the Ministries of Energy and Water, Planning and Finance (at central level), displayed great
capacity for ownership, showing interest in project activities including the construction of individual latrines for the
poorer segments of the population. In fact, it mobilized all planned counterpart contributions and went out of its way
to authorize indirect expenses to finance gaps caused by contingencies not linked to financial modifications granted.
The Borrower commissioned the Ministry of Planning and the Ministry of Finance to audit the project accounts and
inspect field achievements. This important internal control role made it possible to supervise PIU’s management of
the project. Borrower’s supervision is deemed satisfactory.
Narrative assessment on the Borrower performance to be inserted by Borrower (both quantitative and qualitative,
depending on available information). See guidance note. (indicative max length: 250 words)
Borrower’s supervision was satisfactory. It mobilized all the expected counterpart funds. PIU’s anchoring in DGH and its long-
standing monitoring attest to the clear perception of the project rationale and the PIU that the Borrower however failed to
institute into a single agency to execute all technical projects.
Key issues (related to Bank performance, max 5, add rows as needed) Lessons learned
3. Performance of other stakeholders
Rating* Narrative assessment on the performance of other stakeholders, including co-financiers, contractors and
service providers. See guidance note on issues to cover. (indicative max length: 250 words)
2 The performance of some contractors recruited was below expectations, especially for STEPs works in Pointe-Noire
and latrines. Congolese small and medium sized enterprises are still weak when it comes to performing contracts. Due
to limited means and equipment, they find it hard to execute works as well as to comply with timeframes and to
deliver all the expected services. This had a negative impact on the construction works of family latrines. The
situation could have been worse if the logic of community work executed by small-scale masons had been
scrupulously followed, a logic that caused the significant lateness in the start-up of this activity and which in the end
failed to yield satisfactory results due to the difficulty of managing and coordinating the masons.
The performance of the beneficiary population is deemed satisfactory. In fact, the “on request” approach enabled
them to fully participate in the implementation of works through their financial contributions towards the cost of
construction of individual latrines.
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Key issues (related to performance of
other stakeholders, max 5, add rows as needed)
Lessons learned (max 5) Target audience (for
lessons learned)
1. How can the recruitment of
deficient contractors to
implement activities be
avoided?
The performance of some recruited contractors was below
expectations. Local Congolese contractors are still weak when it
comes to performing contracts. They have difficulties in complying
with timeframes and delivering all expected services. Since these
small enterprises lack means and equipment, they are not able to
execute works. In addition, they have problems of access to credit
and depend on the payment of services rendered. Therefore,
Government should work in earnest to categorize contractors and
create conditions to facilitate access to credit for the emergence of
these enterprises.
Government
IV Summary of key lessons learned and recommendations
Key issues (max 5, add rows as needed) Key lessons learned Target audience
1. How to ensure a better level of
ownership and implementation
coordination by municipalities and
sector authorities?
The municipalities’ lack or weak level of involvement and support
for project activities is a cause of lateness in decision-taking which
impacts the achievement of the project objectives. Greater
involvement on the part of beneficiary municipalities would have
allowed for rapidly finding appropriate solutions to the problems
encountered during implementation. For example, the issue of
developing access roads to the sites of sewage treatment stations.
Therefore, it is strongly recommended that branches of the
implementation unit be established directly in beneficiary
municipal offices for the effective and more committed monitoring
of project implementation.
Sector ministries and
beneficiary
municipalities
2. How to shorten the time taken to
process procurement files
The Bank’s or Borrower’s long file processing timeframes
significantly constrained implementation. Similarly, procurement
methods sometimes unsuitable for some types of contracts of small
amounts led to late implementation and cost overrun of such
activities.
It is recommended that more flexible procedures be used to procure
certain contract types; otherwise, national procurement procedures
should be used.
Government/ Bank
3. How to improve sector
governance?
Weak sector governance (absence of a suitable institutional
framework and policies and strategies) resulting in low level of
involvement and support for implementation of project activities
by national sector authorities. Improve sector governance through
the creation of a conducive environment for private operators
(concession contracts, farm-out arrangements, etc...).
Government
4. How to ensure the best use of
loan resources? Avoid additional clauses with financial impact and comply with
fund allocation ceilings for different activities
Strengthen the internal control system and the Steering
Committee’s power to monitor and control the PIU.
Government /Bank
14
1. Key recommendations (with particular emphasis on ensuring sustainability of project benefits)
Key issue (max 10, add rows as needed) Key recommendation Responsible Deadline
1. How to ensure that the project
closes properly? Transmit to the Bank the auditor’s complementary
note concerning its report for FY 2014 ;
Expedite audit operations for FY 2015 to cover a
period of eighteen months from 1 January 2015 to 30
June 2016, then transmit to the Bank the auditor’s final
report no later than 30 September 2016 ;
Immediately close the special account and the
counterpart accounts;
Envisage actions to cancel the unused balance of ADF
Grant resources, pursuant to the policy in force;
Government
Bank
Immediate
Immediate
2. How to ensure the
sustainability of project
achievements?
Take measures to protect areas around STEP sites in
order to avoid all possible negative effects on the
neighbouring population;
Take necessary complementary measures to guarantee
the continuous operation of STEPs;
Government Immediate
V Overall PCR rating
Dimensions and criteria Rating*
DIMENSION A: RELEVANCE 3.50
Relevance of project development objective (II.A.1) 4
Relevance of project design (II.A.2) 3
DIMENSION B: EFFECTIVENESS 3.00
Development objective (OD) (II.B.4) 3
DIMENSION C: EFFICIENCY 2.75
Timeliness (II.C.1) 2
Resource use efficiency (II.C.2) 3
Cost-benefit analysis (II.C.3) 3
Implementation Progress (IP) (II.C.4) 3
DIMENSION D : SUSTAINABILITY 3.00
Financial sustainability (II.D.1) 3
Institutional sustainability and strengthening of capacities (II.D.2) 3
Ownership and sustainability of partnerships (II.D.3) 3
Environmental and social sustainability (II.D.4) 3
ARITHMETICAL AVERAGE OF DIMENSIONS 3.06
OVERALL PROJECT COMPLETION RATING 3
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VI Acronyms and abbreviations
Acronym (add rows as needed) Full name
ADF African Development Fund
BD Bidding Documents
DGH General Directorate of Water
DSCERP Growth, Employment and Poverty Reduction Strategy Paper
DWS Drinking Water Supply
DWSS Drinking Water Supply and Sanitation
FD Final Design
IEC Information, Education and Communication
MDG Millennium Development Goals
NPV Net Present Value
RBCSP Results-Based Country Strategy Paper
SME Small and Medium Sized Enterprises
STEP Treatment and Cleanup Station
UN Unit of Account