Document of The World Bank IMPLEMENTATION COMPLETION AND RESULTS REPORT (IDA IDA-3745A IDA-H0320 IDA-H6160)

Transcription

1 Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Transport Sector Country Department AFCF2 Africa Region Document of The World Bank IMPLEMENTATION COMPLETION AND RESULTS REPORT (IDA IDA-3745A IDA-H0320 IDA-H6160) ON AN INITIAL CREDIT IN THE AMOUNT OF SDR 36.0 MILLION (US$49.5 MILLION EQUIVALENT) AND AN INITIAL GRANT IN THE AMOUNT OF SDR 30.9 MILLION (US$42.6 MILLION EQUIVALENT) AND AN ADDITIONAL GRANT IN THE AMOUNT OF SDR10.7MILLION (US$16.0 MILLION EQUIVALENT) FROM PILOT CRISIS RESPONSE WINDOW TO BURKINA FASO FOR A TRANSPORT SECTOR PROJECT March 14, 2014 Report No: ICR2327

2 CURRENCY EQUIVALENTS (Exchange Rate Effective March 31, 2013) Currency Unit = FCFA SDR 1.00 = US$1.50 US$1.00 = 450 FCFA FISCAL YEAR July 1 June 30 ABBREVIATIONS AND ACRONYMS AGETIB AF ANAC ARV CAS CBC CCVA CDMT CEA CFP CGES CMLS CONASER CRW CTTRA DAF DEP DES DFA DFP DGACM DGESS DGPR DGR Agence des Travaux d Infrastructures du Burkina (Infrastructures Works Agency of Burkina) Additional Financing Agence Nationale de l Aviation Civile (National Agency of Civil Aviation) Antiretroviral Country Assistance Strategy Conseil Burkinabé des Chargeurs (Burkina Shippers Council) Centre de Contrôle des Véhicules Automobiles (Center for Automobile Control) Cadre des Dépenses à Moyen terme (Medium Term Expenditure Framework) Cost-Effectiveness Analysis Centre de Formation et de Perfectionnement (Training and Development Center) Cellule de Gestion Environnementale et Sociale (Environmental and Social Management unit) Comité Ministeriel de Lutte contre le Sida (Ministerial Committee for the Fight against AIDS) Comité National pour la Sécurité Routière (National Committee for Road Safety) Crisis Response Window Centre de Formation en Transport Routier et Activités Auxiliaires (Road Transport and Auxiliary Activities Training Center) Direction de l'administration et des Finances (Directorate of Administration and Finance) Direction des Etudes et de la Planification (Directorate for Studies and Planning) Direction des Etudes et du Suivi (Directorate of Studies and Monitoring) Development Financing Agreement Direction de la Formulation des Politiques (Directorate of Policy Formulation) Direction Générale de l'aviation Civile et de la Météorologie (General Directorate of Civil Aviation and Meteorology) Directions Générales des Etudes et des Statistiques Sectorielles (General Directorates of Studies and Sector Statistics) Direction Générale des Pistes Rurales (General Directorate for Rural ) Direction Générale des Routes (General Directorate of )

3 DGTTM DRH EMP EIRR ERR ESMP EU FCFA FER GNI GoBF HILM HIPC HIV/AIDS ICAO IDA IMT INSD ISR MCC M&E MEF MID MITH MS MT MTR MHU CNSR NGO NRTS ONASER PAD PASEC-T PCU PDO PIA PIP Direction Générale des Transports Terrestres et Maritimes (General Directorate of Road and Maritime Transport) Direction des Ressources Humaines (Directorate of Human Resources) Environmental Mitigations Plans Economic Internal Rate of Return Economic Rate of Return Environmental Strategic Management Plan European Union CFA Franc Fonds d Entretien Routier (Road Maintenance Fund) Gross National Index Government of Burkina Faso High Intensity Labor-based Method Heavily Indebted Poor Countries Human Immunodeficiency Virus/Acquired Immunodeficiency Syndrome International Civil Aviation Organization International Development Association Intermediate Means of Transport Institut National de la Statistique et de la Démographie (National Institute of Statistics and Demography) Implementation Supervision and Results Report Millennium Challenge Corporation Monitoring and Evaluation Ministry of Economy and Finance Ministère des Infrastructures et du Désenclavement (Ministry of Infrastructure) Ministère des Infrastructures, du Transport et de l Habitat (Ministry of Infrastructure, Transport and Housing) Moderately Satisfactory Ministry of Transport Mid-Term Review Ministère de l Habitat et de l Urbanisme (Ministry of Housing and Urban Development) National Committee for Road Safety Non-Governmental Organization National Rural Transport Strategy Office National pour la Sureté Routière (National Office for Road Safety) Project Appraisal Document Programme d'ajustement Sectoriel des Transports (Transport Sector Adjustment Program) Project Coordination Unit Project Development Objective Project Impact Area Programme d'investissement Prioritaires (Priority Investment Program)

4 PRSP PST-2 QAG RAI SCADD SDR SGES SME SPPST TOR TSP TSP-2 VPD Poverty Reduction Strategy Paper Second Transport Sector Strategy Quality Assurance Group Rural Access Index Stratégie de Croissance Accélérée de Développement Durable (Accelerated Growth Strategy for Sustainable Development) Special Drawing Rights Service de Gestion Environnementale et Sociale (Social and Environmental Monitoring Unit) Small and Medium Enterprise Stratégie et Programme Prioritaire du Secteur des Transports (Transport Sector Strategy and Priority Program) Terms of Reference Transport Sector Project Second Transport Sector Program Vehicles Per Day Vice President: Makhtar Diop Country Director: Ousmane Diagana Sector Director: Jamal Saghir Sector Manager: Supee Teravaninthorn Country Manager: Mercy Miyang Tembon Project Team Leader: Aguiratou Savadogo Tinto ICR Team Leader: Alexandre K. Dossou

5 BURKINA FASO TRANSPORT SECTOR PROJECT Data Sheet A. Basic Information B. Key Dates C. Ratings Summary D. Sector and Theme Codes E. Bank Staff F. Results Framework Analysis G. Ratings of Project Performance in ISRs H. Restructuring I. Disbursement Graph CONTENTS 1. Project Context, Development Objectives and Design Key Factors Affecting Implementation and Outcomes Assessment of Outcomes Assessment of Risk to Development Outcome Assessment of Bank and Borrower Performance Lessons Learned Comments on Issues Raised by Borrower/Implementing Agencies/Partners... 3 Annex 1. Project Costs and Financing... 4 Annex 2. Outputs by Component... 5 Annex 3. Economic and Financial Analysis... 6 Annex 4. Bank Lending and Implementation Support/Supervision Processes... 7 Annex 5. Beneficiary Survey Results... 9 Annex 6. Stakeholder Workshop Report and Results Annex 7. Summary of Borrower's ICR and/or Comments on Draft ICR Annex 8. Comments of Cofinanciers and Other Partners/Stakeholders Annex 9. List of Supporting Documents MAP : Non-Bank Map

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7 A. Basic Information Country: Burkina Faso Project Name: TRANSPORT SECTOR PROJECT IDA-37450, IDA- Project ID: P L/C/TF Number(s): 3745A, IDA-H0320, IDA-H6160 ICR Date: 11/22/2013 ICR Type: Core ICR Lending Instrument: SIM Borrower: GOVERNMENT OF BURKINA FASO Original Total Commitment: XDR 66.90M Disbursed Amount: XDR 75.05M Revised Amount: XDR 77.6M Environmental Category: A Implementing Agencies: Program Coordination Unit Co-financers and Other External Partners: B. Key Dates Process Date Process Original Date Revised / Actual Date(s) Concept Review: 07/18/2002 Effectiveness: 08/15/ /15/ /27/ /07/2007 Appraisal: 12/09/2002 Restructuring(s): 07/14/ /20/ /15/2011 Approval: 04/08/2003 Mid-term Review: 12/11/ /04/2006 Closing: 09/30/ /31/2013 AF 09/13/2010 Closing: 03/31/ /31/2013 C. Ratings Summary C.1 Performance Rating by ICR Outcomes: Risk to Development Outcome: Bank Performance: Borrower Performance: Moderately Satisfactory High Moderately Satisfactory Moderately Satisfactory C.2 Detailed Ratings of Bank and Borrower Performance (by ICR) Bank Ratings Borrower Ratings Moderately Moderately Quality at Entry: Government: Unsatisfactory Unsatisfactory i

8 Implementing Quality of Supervision: Satisfactory Agency/Agencies: Overall Bank Overall Borrower Moderately Satisfactory Performance: Performance: Satisfactory Moderately Satisfactory C.3 Quality at Entry and Implementation Performance Indicators Implementation QAG Assessments (if Indicators Rating Performance any) Potential Problem Project Quality at Entry No None at any time (Yes/No): (QEA): Problem Project at any Quality of Supervision Yes Moderately Satisfactory time (Yes/No): (QSA): DO rating before Satisfactory Closing/Inactive status: D. Sector and Theme Codes Original Actual Sector Code (as % of total Bank financing) Central government administration and highways Theme Code (as % of total Bank financing) Administrative and civil service reform Infrastructure services for private sector development Injuries and non-communicable diseases Micro, Small and Medium Enterprise support Rural services and infrastructure E. Bank Staff Positions At ICR At Approval Vice President: Makhtar Diop Callisto E. Madavo Country Director: Ousmane Diagana A. David Craig Sector Manager: Supee Teravaninthorn Maryvonne Plessis-Fraissard Project Team Leader: Aguiratou Savadogo-Tinto Moctar Thiam ICR Team Leader: Alexandre K. Dossou ICR Primary Author: Alexandre K. Dossou F. Results Framework Analysis Project Development Objectives (from Project Appraisal Document) ii

9 The Project Development Objective (PDO) is to assist the recipient to increase the mobility possibilities for people and goods in its territory through: (i) decreasing social, economic and financial transport costs; (ii) increasing sector management capacity of the Ministry of Infrastructure, Transport and Housing (Ministère des Infrastructures, du Transport et de l'habitat - MITH); (iii) improving mobility for the rural population; and (iv) improving road network condition. Revised Project Development Objectives (as approved by original approving authority) The initial PDO was not revised. (a) PDO Indicator(s) Indicator Indicator 1: Value quantitative or Qualitative) Baseline Value Original Target Values (from approval documents) Formally Revised Target Values Actual Value Achieved at Completion or Target Years 10 percent increase in the number of transport operators in the affected areas by the end of the Project (number). 2 transport operators per itinerary Date achieved 12/31/ /31/ /31/ /31/ percent achieved in terms of mean number of transport operators per itinerary. Comments The initial indicator 10 percent decrease in non-urban road transport fares was (incl. % reformulated during the Mid Term Review (MTR) of December achievement) Indicator 2: 20 percent decrease in average access time to health centers in the affected areas by the end of the Project Value quantitative or 36 minutes 28 minutes 24 minutes Qualitative) Date achieved 05/07/ /12/2013 Comments (incl. % achievement) 116 percent achieved. Indicator 3: Increase in number of teaching months in primary schools in the project impacted areas. Value quantitative or 8 Months 8 Months 9 Months 9 Months Qualitative) Date achieved 05/07/ /31/ /31/2013 Comments (incl. % achievement) 113 % achieved. The initial indicator was reformulated during the MTR to Increase in number of teaching months in primary schools in the PIA. The later indicator was measured and fully achieved. This increased the number of teaching months in primary schools Indicator 4: Direct beneficiaries in the PIA (number), of which female (%) Value quantitative or 250, percent female 250, percent female 719,022 (52 percent) iii

10 Qualitative) Date achieved 09/13/ /13/ /31/2013 Indicator was introduced at Additional Fin. (AF) preparation as part of the mandatory Comments core indicators launched in (incl. % 288% achieved for the PIA of the AF road works. Overall, total number of TSP achievement) beneficiaries is 4,140,982, of which 2,151,311 are female. a) Share of rural population with access to an all season road in the PIA (%) Indicator 5: b)number of rural people with access to an all season roads in the PIA Value quantitative or Qualitative) a) 25% b) 2,950,000 a) 26% b) 3,000,000 a) 33.46% b) 2,419,658 Date achieved 09/13/ /13/ /31/2013 Comments (incl. % achievement) Indicator was introduced in Sept at the time of the AF. (a) 129% achieved (b) 81% achieved. Statistics were calculated from data collected by the Demography and Statistic National Institute from 2009 and updated in 2013 Indicator 6: in Good and Fair Condition as a Share of Total Classified (%) Value quantitative or 0 100% 70% 70% Qualitative) Date Achieved 05/07/ /07/ /13/ /31/2013 Comments (incl. % achievement) 100% achieved. Initial indicator was reformulated for the AF: 70% of Total Classified are in Good/Fair Condition to better reflect the reality: (a) road fund capacity to finance the network maintenance (b) exclude the portion of rehabilitated (b) Intermediate Outcome Indicator(s) Indicator Baseline Value Original Target Values (from approval documents) Actual Value Formally Achieved at Revised Target Completion or Target Values Years Indicator 1: Value (quantitative or Qualitative) Date achieved Comments (incl. % achievement) The DRH personnel data base is operational and MITH personnel are adequately managed according to the ministry needs. Yes. DRH data base is in Yes. place. 165 staff were DRH personnel data trained. MITH No base is in place and personnel data base is MITH personnel connected with the adequately national system making managed. career and salaries management automatized and fluent. 05/07/ /07/ /31/ % achieved. (a) DRH has a better skill mix and MITH personnel management has improved in areas like performance assessment. (b) DRH data base is now connected with the national data base managing civil servant salaries and career development. iv

11 Indicator 2: DGTTM duly collects, processes, analyses and publishes sectoral data on a semi-annual basis. Yes. A data base was designed and installed inside DGTTM and staff is well trained in its use. Data on road Value accident are now Yes. (quantitative No collected and analyzed or Qualitative) in systematic by DGTTM and published. Transport documents, such as driving permits, are now delivered more quickly. Date achieved 05/07/ /07/ /31/2013 Comments 100% achieved. Information technology equipment was financed and DGTTM staff (incl. % (about 154) trained in data collection, processing analysis, road safety etc. achievement) Indicator 3: DEP builds efficient MITH-wide activity programs based on appropriate studies. Value (quantitative or Qualitative) No Yes. Yes. A three year planning cycle is now in place and well mastered by staff. Date achieved 05/07/ /07/ /31/2011 Comments (incl. % achievement) 100% achieved. MITH is now planning its activities based on the 3-year rolling program, which involve all directorates of the ministry. A series of training were financed; environmental and social issues, project management, Communication, & audit, etc. Indicator 4: DAF manages and reports efficiently the use of MITH funds allowing for full budgetary monitoring Value (quantitative or Qualitative) No Yes DAF manages and reports efficiently the use of MITH funds allowing for full budgetary monitoring Yes. Regular reporting system in place and DAF is producing regular financial status reports used for planning, establishment and execution of the annual budget and its control. Planning is based on CDMT Date achieved 05/07/ /07/ /31/2011 Comments (incl. % achievement) 100% achieved. Capacity building program was implemented for DAF staff. ICT equipment was provided to DAF directorates for coordination with other directorates in the Ministry v

12 Indicator 5: Three mock-cdmt exercises have been successfully conducted Yes. Value (quantitative or Qualitative) No Three mock budget programs have been successfully conducted within the CDMT Yes The ministry has conducted budget programs within the CDMT framework. framework. Date achieved 05/07/ /07/ /31/ % achieved. Comments The Ministry is functioning based on CDMT approach. The project financed training (incl. % program for the ministry staff (all the directorates) on CDMT approach as well as the achievement) ministry of finance staff. Indicator 6: The Sectoral Framework Law (Loi D orientation Sectorielle) has been enacted. Value (quantitative or Qualitative) No Yes. The Sectoral Framework Law (Loi d orientation Sectorielle) has been enacted. Yes. The Sectoral Framework Law (Loi d orientation Sectorielle) was adopted by the parliament in 2008 and under implementation. Date achieved 05/07/ /07/ /31/2008 Comments 100% achieved. The sectoral framework law has been adopted by the parliament in (incl. % The Ministry is actually implementing the recommended actions achievement) Coordination committees between the MITH and the private sector are set and all sector Indicator 7: issues are discussed openly. Value (quantitative or Qualitative) No Yes Yes. Indicator achieved. The framework for private sector and MITH consultations is in place and effective. Meetings are regularly organized and the actions plans implemented and assessed. Date achieved 05/07/ /07/ /31/2011 Comments (incl. % achievement) 100 percent achieved. The project assisted the Ministry to create technical consultation committee for public works and for transportation. The consultation committee is now annually organized. Indicator 8: 50 percent of carriers have been trained to transport hauling company management and received technical assistance to benefit from regional guarantee operations. Value (quantitative or Qualitative) No Yes Yes. Indicator achieved. The carriers have benefited from training. vi

13 Date achieved 05/07/ /07/ /31/2013 Comments (incl. % 100 percent achieved. Training was provided to carriers and transport stakeholders. achievement) Indicator 9: Conseil Burkinabé des Chargeurs (CBC) increases the outreach of its activities toward private small carriers Yes. A data base Value providing information (quantitative No Yes of freight availability is or Qualitative) in place. Date achieved 05/07/ /07/ /31/2013 Comments (incl. % achievement) Indicator 10: Value (quantitative or Qualitative) (100 percent achieved). CBC has developed a platform for freight disclosure and its outreach with the support of the project. A study was conducted to set up a virtual market platform for freight. Appropriate road maintenance policy is implemented and routine maintenance is carried out on the entire classified network and on 25 percent of the network under the jurisdiction of local governments. In particular: (i) annual funding required for routine maintenance is duly allocated; (ii) annual maintenance plans are prepared timely; (iii) quality maintenance works are contracted out; and (iv) efficient procurement and payment procedures are enforced Yes. No Yes The road fund is in place and functional. Date achieved 05/07/ /07/ /31/2008 Comments (incl. % achievement) Indicator 11: DGPR (currently DGDR) is operational and active in all the provinces according to the NRTS implementation manual Value (quantitative or Qualitative) No Yes Yes. Indicator achieved. Forty-five (45) technical staff were recruited, trained and equipped by the TSP and assigned to the 45 provincial units. High Intensive labor approach was successfully implemented Date achieved 05/07/ /07/ /31/2013 Comments (incl. % achievement) 100% achieved. Training and equipment were provided to DGPR. 45 recruited staff were trained & equipped. The project supported MITH to start implementation of NRTS through the pilot of HILM for rural roads. A rural roads database was created Indicator 12: 50 percent of the rural households have access to affordable transport services and/or means of transport. Value (quantitative No Yes Yes. Indicator achieved. vii

14 or Qualitative) Rural households benefited from the rural roads which improved the transport condition and allow MIT through an intensive training and awareness campaign toward IMT stakeholder and users Date achieved 05/07/ /07/ /31/2011 Comments (incl. % achievement) Indicator 13: Value (quantitative or Qualitative) 100% achieved. Improved capacity of IMTs through several rounds of training provided to 279 IMT stakeholders, 111 IMT manufacturers in the 45 provinces, and promotion activities towards 882 users of in rural areas. Rehabilitated rural roads enlarge access Civil aviation rules are updated. Yes. Indicator achieved. The No Yes civil aviation code was updated and ANAC was created in Date achieved 05/07/ /07/ /31/ % achieved. The Civil Aviation Code in Burkina Faso dated from 1960 was updated Comments by the Parliament with the adoption of the new law No /AN on April The (incl. % project funded a study which led to the restructuring of DGACM into ANAC in 2009 achievement) Indicator 14: Value (quantitative or Qualitative) DGACM staff is trained to air transport security and safety No Yes Yes. Indicator achieved. 17 staff were trained in security and ICAO safety standards requirement Date achieved 05/07/ /07/ /31/2013 Comments (incl. % achievement) 100% achieved. DGACM staff has improved service delivery and improved the audit rating in This activity was taken over by the regional air safety and security project and significant improvements were made. Indicator 15: The National Road Safety Strategy has been adopted by the Borrower and the relevant laws and decrees have been passed Yes. Value (quantitative or Qualitative) No Yes Indicator achieved. National Strategy for Road Safety is in place with its national plan and ONASER is created and functional. Date achieved 05/07/ /07/ /31/2011 Comments (incl. % achievement) 100% achieved. National Strategy for Road Safety was adopted by the decree No /PRES/PM/MT/MEF/SECU with its action plan for the period adopted. Also ONASER was created and CONASER strengthened. Indicator 16: Rehabilitation and maintenance of key Main roads. viii

15 Rehabilitated under original TSP (Sub-component 1) Total rehabilitated (km) -Periodic maintenance of main earth road (part of classified network) -Rehabilitation of secondary roads (part of unclassified network) Value (quantitative or Qualitative) ,227 km -2,616 km -1,611 km 1,710 km -850 km -860 km 1,424 km km km Date achieved 05/07/ /07/ /27/ /31/2011 Comments (incl. % achievement) 83 percent achieved. The achievement has exceeded the revised target. a) 185 percent achieved in terms of revised target and including the HIPC funded road Comments works. (incl. % b) 118 percent achieved of revised road length target without the HIPC funded road achievement) works. Indicator 17: Marking with milestones of main roads Value 0 13,408 km of rural (quantitative 0 13,400 roads are marked. or Qualitative) Date achieved 09/13/ /13/ /31/2013 Comments (incl. % achievement) 100 percent achieved Road Rehabilitated under Additional Financing Total Rehabilitated Indicator 18: -Rehabilitation of secondary roads -Rehabilitation of rural roads -Rural roads rehabilitated with High Intensity Labor-based method Value (quantitative or Qualitative) km 92.5 km 35.0 km km km Date achieved 09/13/ /31/2013 Comments 100 percent (incl. % The entire planned length was rehabilitated. achievement) Indicator 19: Rehabilitation of culverts rehabilitated (number) Value (quantitative or Qualitative) Date achieved 09/13/ /13/ /31/2013 Comments (incl. % 100% achieved. This indicator was introduced at the time of the AF preparation ix

16 achievement) Indicator 20: Number of people benefiting from short-term jobs in the affected areas Value 3,600 (quantitative 0 3,864 or Qualitative) Date achieved 09/13/ /13/ /31/2013 Comments 107 percent achieved (incl. % Indicator introduced at the time of the AF preparation achievement) Rural Access Rehabilitation under original TSP (Sub-component 2) Indicator 21 Value (quantitative or Qualitative) -Total rehabilitated -Department capital city access road -Access roads in cotton areas -Light spot improvement of rural roads (RR) -Light spot improvement of RR by HIPC financing ,830 km -1,580 km -250 km -1,000 km 0 1,064 km -500 km -250 km -314 km 0 1,969.3 km km km km (HIPC) Date achieved 05/07/ /27/ /27/ /31/2011 Comments (incl. % achievement) The achievement has exceeded the revised targets. a) 185 percent achieved including the HIPC funded road works. b) 118 percent achieved of revised road length target without the HIPC funded road works Note: The indicators that achieved their targets by 2011 or earlier were not measured after x

17 G. Ratings of Project Performance in ISRs No. Date ISR Actual Disbursements DO IP Archived (USD millions) 1 05/08/2003 Satisfactory Satisfactory /29/2003 Satisfactory Satisfactory /01/2003 Satisfactory Satisfactory /28/2004 Satisfactory Satisfactory /11/2004 Satisfactory Satisfactory /10/2005 Satisfactory Satisfactory /16/2005 Unsatisfactory Unsatisfactory /10/2006 Unsatisfactory Unsatisfactory /27/2006 Moderately Satisfactory Moderately Unsatisfactory /30/2006 Moderately Satisfactory Moderately Unsatisfactory /14/2006 Moderately Satisfactory Moderately Unsatisfactory /17/2007 Moderately Satisfactory Moderately Unsatisfactory /27/2007 Moderately Satisfactory Moderately Satisfactory /07/2007 Moderately Satisfactory Moderately Satisfactory /11/2008 Moderately Satisfactory Moderately Satisfactory /28/2008 Moderately Satisfactory Moderately Satisfactory /18/2009 Moderately Satisfactory Moderately Satisfactory /30/2009 Moderately Satisfactory Moderately Satisfactory /25/2010 Moderately Satisfactory Moderately Satisfactory /28/2010 Moderately Satisfactory Satisfactory /24/2011 Satisfactory Satisfactory /18/2012 Satisfactory Satisfactory /12/2013 Satisfactory Moderately Satisfactory xi

18 H. Restructuring Restructuring Date(s) ISR Ratings at Amount Board Restructuring Approved PDO Change DO IP 06/27/2006 MS MU /7/2007 MS MS 07/14/2008 MS MS /20/2010 MS MS /15/2011 MS S Disbursed at Restructuring in USD millions Reason for Restructuring & Key Changes Made a) Increase the percentage of expenditures financed by IDA in order to reduce the amount of counterpart funds provided by GOBF. The change was triggered by the spike in construction costs and a drop in the exchange rate between SDR and FCFA. b) Reallocate the credit proceeds c) Reduce the scope of the rural roads to be treated from 7,000 km to about 3,000 km in light of the above factors. This restructuring was a follow-up action to the recommendations of the December 2006 MTR, which resulted in: (a) 5.04 percent of the total Credit and Grant amount (US$ 92.1 million) being reallocated among various categories. The change led to an amendment of the Development Financing Agreement in order to adjust the key performance indicators to make them more measurable and to better focus on the achievement of the PDO as well. First extension of the closing date by 18 months from September 30, 2008 to March 31, Second extension of the closing date by 12 months, from March 31, 2010 to March 31, Reallocation of the remaining undisbursed and unallocated funds of the Original Credit and Grant proceeds before closure on March 31, xii

19 I. Disbursement Profile xiii

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21 1. Project Context, Development Objectives and Design 1.1 Context at Appraisal 1. Economic context at appraisal. At the time of appraisal in 2002, Burkina Faso had a population of about 11.8 million, a Gross National Income (GNI) per capita of US$230 and an overall poverty rate for the country estimated at 45 percent. Since 2002, Burkina Faso s average growth rate of the GNI has been around 5.5 percent per year, but persisting high levels of predominantly rural poverty continue to undermine the country s development efforts. Currently, Burkina Faso has approximately million inhabitants predominantly living in rural areas (80 percent), where poverty is particularly high: 50.7 percent of the rural population lives below the poverty line, compared with 23.7 percent in urban areas. The country s GNI per capita income is US$670 and represents less than half the sub-saharan Africa average. Burkina Faso s poverty rate is estimated at 43.9 percent, and the country has been ranked 183 out of 187 countries in the United Nations Development Program Human Development Index in The country had successfully implemented the Transport Sector Adjustment Program (Programme d'ajustement Sectoriel des Transports, PASEC-T), from 1997 to 2000, during which some major reforms and investments had been implemented increasing the classified network by 50 percent to reach about 15,000 km. In addition and based on its Transport Sector Strategy and Priority Program (Stratégie et Programme Prioritaire du Secteur des Transports, SPPST), the Government of Burkina Faso (GoBF) conducted a participatory and consensual process which led to the definition of the sectoral priority reforms and the Programme d Investissement Prioritaires PIP (Priority Investment Program). Sector main issues and Government strategy 3. Road infrastructure in general. The condition of the Burkina Faso road network suffered from the political crisis that occurred in Côte d'ivoire due to the shift in transit traffic from Abidjan to other ports in the region, with overloaded trucks transiting via Burkina Faso to Niger and Mali. At the time of appraisal, the country road asset was characterized by: (a) insufficient periodic maintenance; (b) insufficient accessibility to remote rural areas; and (c) lack of consistency between road maintenance strategies and actual transport demand. 4. Rural Transport. Rural transport and mobility has a major impact on the rural economy which remains the main source of employment and income for 80 percent of the country s population. Despite the importance of rural transport, more than 60 percent of 8,230 villages in Burkina Faso are more than three km away from a main all-weather road 2. At appraisal, the 1 Source: World Bank Development Report, The World Bank Transport Sector core indicator is two km. 1

22 villages were connected to the road network by about 112,000 km of foot paths, many of which were impassible even to non-motorized transport during the rainy season. 5. Road maintenance. Burkina Faso had made progress in providing routine maintenance implemented by the local private sector but periodic maintenance remained inadequate, particularly for unpaved and rural road networks requiring heavy and costly works. The funding of routine maintenance program was satisfactorily managed by the General Directorate of (Direction Générale des Routes, DGR) until 2002 when the Ministry of Economy and Finance introduced new procedures for payment of maintenance contracts. However, persistent difficulties in resource mobilization led to delays of up to eight months in arrears. Addressing this situation coupled with the weak capacity (financial, organizational and technical) of the private sector and road administration, was considered as part of the reforms the project should address. 6. Road Transport Services. The reforms introduced during the PASEC-T had notably improved road passenger transport quality while keeping relatively stable transport prices. The freight transport market was dominated by small operators (94 percent of trucking firms had less than five vehicles) and was economically unprofitable. Furthermore, the transport services industry faced a number of issues to overcome, among which the most important were: (a) weak demand for national and international freight services; (b) high cost of transport services, compounded by expensive bribes at road barriers; (b) lack of cost control in the road transport; (c) obsolescence of vehicle fleets; (d) uncertainty clouding the profession of owners-operators providing freight transport services; (e) low compliance with permissible axle load regulations; (f) absence of an effective road safety policy and lack of resources for implementing it; and (g) lack of reliable data on road traffic accidents. 7. Institutional Planning and Regulations. The General Directorate of Road and Maritime Transport (Direction Générale des Transports Terrestres et Maritimes DGTTM had a central role in regulating and supervising land and overseas transport, but had inadequate human and financial resources to carry out its mandate, especially in regards to sustainable data gathering and analysis. Furthermore, the following major constraints were identified during the preparation of the TSP: (a) persistent lack of coordination and communication between sector institutions, compounded by the multiplicity of actors; (b) weak planning and management capacity among sector institutions due to lack of skilled human resources, financial and material resources, as well as non-availability of reliable and updated information on sector activities; (c) weak Government capacity to enforce traffic regulations compounded by administrative red tape; (d) insufficient and ill-adapted sector regulations; and (e) ill-adapted legal and regulatory environment for the promotion of private initiatives. 8. Road Safety. The GoBF committed to tackle the road safety issues and engaged in a large program with the European Union 3 (EU). This program financed various studies, a pilot project, 3 As part of the 9 th European Development Fund 2

23 technician and financial support to the Center for Automobile Control (Centre de Contrôle des Véhicules Automobiles- CCVA) and special training for DGTTM staff. However, this sub-sector continued lacking a national strategy, strengthening of DGTTM services in road safety issues, enforcement of data collection and management and enlargement of sensitization campaigns. 9. Air Transport. The General Directorate of Civil Aviation and Meteorology (Direction Générale de l Aviation Civile et de la Météorologie, DGACM) under the Ministry of Infrastructure, Transport and Housing (Ministère des Infrastructures, des Transports et de l Habitat, MITH) was responsible for air transport and civil aviation. The main challenges in this sub-sector were related to: (i) sub-optimal use of Ouagadougou, and particularly Bobo-Dioulasso airports; (ii) obsolete and insufficient meteorological equipment as well as safety equipment at Ouagadougou Airport; and (iii) insufficient maintenance of secondary airports in the context of their potential contribution towards improving country-wide accessibility. 10. The Government s policies and plans. Burkina Faso s 2000 Poverty Reduction Strategy Paper 4 (PRSP) highlighted the transport sector as a priority. Furthermore, to respond to the challenges described above, the GoBF also adopted in 2000, a ten year Transport Sector Strategy that included a National Rural Transport Strategy (NRTS). The General Directorate for Rural (Direction Générale des Pistes Rurales, DGPR) was created to address issues related to rural transport services and Intermediary Means of Transport (IMT) 5. Sector issues addressed by the project 11. To enable the transport sector to play its role of key driver of economic growth, the GoBF adopted in 2002 a ten year priority investment plan, Second Transport Sector Program (Deuxième programme sectoriel des transports - PST-2). The PST-2 would focus on the following four areas: (i) decreasing social, economic and financial transport costs to final users; (ii) increasing MITH sector management capacity; (iii) sustaining and improving mobility for rural population; and (iv) improving road network conditions through a steady (routine and periodic) maintenance of the classified road network. 12. The Transport Sector Project (TSP), now under evaluation, was aligned with the Poverty Reduction Strategy Paper (PRSP-1) and the Bank's FY01-03 Country Assistance Strategy 6 (CAS) for Burkina Fasothat identified transport weaknesses as a key impediment to growth in Burkina Faso and proposed to assist the Government. It provided a continuation of the PASEC-T launched in 1992 and completed in As a cross sub-sectoral transport project, the TSP was 44 Report Burkina Faso has exceptionally developed IMT among West Africa countries 6 Report No BUR dated November 03,

24 expected to address some of the sector issues remaining after completion of the PASEC-T 7 and to assist the GoBF to implement its sector policy and strategy adopted in June The World Bank s strategic activities proposed by the TSP addressed road infrastructure, focusing on unpaved roads, which were identified GoBF and supported by the Bank team as a critical part of the Burkinabè road network. New technical standards were, applied in line with existing demand and focused on spot improvements rather than full length treatments to reduce investments and maintenance costs as much as possible. The TSP also supported the implementation of the NRTS and road transport services through DGTTM and provided assistance to the Burkina Shippers Council (Conseil Burkinabé des Chargeurs CBC) to increase its outreach among small haulers. In terms of planning and regulations, the TSP focused on improving the MITH capacity in planning and sector regulation functions in addition to investment programs. As for reforms, the TSP supported the newly developed programmatic approach and the sectoral CDMT in line with priorities laid out in the CSLP. The TSP also assisted in developing the National Road Safety Policy, in building capacity within two relevant institutions (DGTTM and CONASER), and provided technical support and capacity building to the DGACM. 14. In addition, the TSP had a strong social focus and specific activities were selected to receive IDA grant funding such as: (i) Human Immunodeficiency Virus/Acquired Immunodeficiency Syndrome (HIV/AIDS) curative actions in the transport sector; (ii) investments in the tertiary road network on roads with low traffic levels but high social impacts especially through improved access to health care and education facilities; (iii) ancillary social measures aimed at generating direct social and economic benefits to the population living next to roads improved through the project; (iv) introduction on a limited basis of labour based construction methods to address rural unemployment/underemployment. 1.2 Original Project Development Objectives (PDO) and Key Indicators (as approved) 15. Original PDO. The Development Objective as stated in the Development Credit Agreement was to assist the Recipient to increase the mobility possibilities for people and goods in its territory through: (i) decreasing social, economic and financial transport costs; (ii) increasing sector management capacity of MITH; (iii) improving mobility for the rural population; and (iv) improving road network condition. 16. Original Key Indicators. The PDO indicators were: (i) 10 percent decrease in non-urban road transport fares; (ii) Average access time to health care facilities has decreased by 20 percent 7 The PASEC-T enabled the implementation of reforms and improvements in the sector, such as: (i) privatization of the road maintenance, railroad operations, and transport in Ouagadougou; (ii) development and full participation of Small and Medium Enterprises (SME) in road maintenance; and (iii) institutional restructuring of the road network management under one entity and simultaneous establishment of the works supervision procedures and an operational road database. 4

25 in project intervention areas; (iii) Average access time to primary schools has decreased by 20 percent in project intervention areas; and (iv) 100 percent of classified road network s condition has improved. 1.3 Revised PDO (as approved by original approving authority) and Key Indicators, and reasons/justification 17. The PDO remained the same, although the project was restructured five times these did not impact the PDO and its outcomes. However, some of the PDO indicators were reformulated in August 2007 following the recommendations of the Mid-Term Review (MTR) in December 2006 and during the preparation of Additional Financing (AF) in The rationale was twofold: (a) to make the indicators more measurable and better focused on the achievement of PDO; and (b) to reflect the new core sector indicators introduced as IDA s requirements in As part of the AF, additional intermediate outcome indicators were included to the results framework to measure activities included by the AF. The original intermediate outcome indicators remained unchanged. Table 1 summarizes the revisions of the indicators. 5

26 Original Indicators April percent decrease in non-urban road transport fees 2. Average access time to health care facilities has decreased by 20 percent in project intervention areas 3. Average access time to primary schools has decreased by 20 percent in project intervention areas percent of classified road network s condition has improved Table 1: Revised PDO Indicators Revised Indicators August percent increase in the total number of transport operators in the project intervention areas (PIA) by the end of the Project 20 percent decrease in average access time to health centers in the PIA by the end of the project 20 percent decrease in average access time to primary schools in the affected areas by the end of the project Increase in the number of teaching months in primary schools in PIA. 100 percent of classified road network s condition has improved Revised Indicators September 2010 No change No change No change No change 70 percent in good and fair condition as a share of total classified roads 5. Direct beneficiaries in the Project intervention areas (PIA) (of which female %) 6. Share of rural population with access to an Allseason road in the PIA (%) 7 Number of rural people with access to all-season roads in the PIA 6

27 1.4 Main Beneficiaries 18. Rehabilitation of the transport infrastructure under the TSP benefited all transport users directly and most of the population of Burkina Faso indirectly. In the road sub-sector, the primary beneficiaries were the primary users of roads, including car owners, transport companies and industries, and the road sector administration. In the airport sub-sector, the primary beneficiaries were the primary users of the improved legal framework, including air transport administration, private sector, air transport companies, passengers, and freight owners. Other benefitting sectors of the economy included: (a) the agricultural sector benefiting from the improved accessibility to production areas as a result of the road rehabilitation works; (b) the construction industry benefiting from the creation of jobs induced by the road works and the gains in travel time; (c) the public sector such as Ministries and parastatal entities in the transport sector benefitting from the institutional support and training provided through the project; and (d) the trade industry benefitting from improved trade facilitation due to enhanced circulation of persons and goods. 1.5 Original Components (as approved) 19. The achievement of the PDO was supported by the following components: 20. Component A: Institutional Support and Sector Reforms (US$11.54 million). This component aimed at strengthening planning, management, and monitoring capacities of Transport Sector related institutions through the following sub-components: Sub-component A.1. Reorganization and Strengthening of MITH. This sub-component aimed at streamlining the Ministry in-charge of the transport sector after merging the two ministries of transport and infrastructure; Sub-component A.2. Promotion of the private transport service industry. To support the development of the private sector involved in transport services, the TSP will conduct a range of activities spanning from sectoral regulation overhaul to direct support to the transport Small and Medium enterprises (SMEs); Sub-component A.3. Improvement of the road network management. This subcomponent focused on all institutional activities aimed at improving the management of the road network. It also concentrated on support to the two general directorates in charge of implementation, i.e. DGR and the newly created DGPR. This allowed an all-inclusive and consistent approach over the whole road network regardless of the Directorate in charge and their respective strategy. This sub-component complemented the investments managed by those two directorates and financed through the component B. Sub-component A.4. Support to the DGACM. The DGACM was to strengthen its capacity to supervise the air transport security and safety. Sub-component A5. Road Safety Improvement and HIV/AIDS Program. This subcomponent aimed at increasing road safety in Burkina Faso. These activities were complementing the large engagement of the EU in Road safety. In addition, the subcomponent aimed at supporting the newly created AIDS-dedicated Ministerial Committee against Aids (Comité Ministériel de Lutte contre le Sida CMLS) in the MITH. 7

28 21. Component B: Road Network Improvement (US$ million). This component aimed to preserve and improve the national road network. Special emphasis was put on financing periodic maintenance and rehabilitation of unpaved roads ranging from national roads to local government capital access roads. Those activities were to complement investments financed by other donors thus allowing for the completion of the PIP. Activities were broken down as follows: Sub-component B.1. Main Road Rehabilitation and periodic maintenance. (a) periodic maintenance of main earth roads 2,616 km at a unit cost of 15 MFCFA/km; (b) rehabilitation of 1,611 km of secondary roads (911 km at 15 MFCFA/km and 700 km at 6 MFCFA/km; (c) road marking works; and (d) social ancillary measures to increase the direct benefits to the population leaving along the main roads receiving investment from the TSP, a dedicated envelope allowed local investments that benefited both the local population and road users. Sub-component B.2. Rural Access Road Rehabilitation. Support DGPR to rehabilitate. (i) 1,580 km of Department capital access roads at a unit cost of 4.4 MFCFA/km; (ii) 250 km of access roads in cotton area at a unit cost of 4.4 MFCFA/km; and (iii) slight spot improvement of 1,000 km of rural roads at a unit cost of 2 MFCFA/km. 22. Component C: Project Coordination (US$3.63 million). Provision of technical advisory service to the Project Coordination Unit (PCU) to coordinate, monitor and evaluate the Project. 1.6 Revised Components 23. The original components were slightly revised as a result of the 2006 restructuring, and later as a result of the AF. In June 2006, the scope of road length to be rehabilitated under Component B was reduced from the initial 7000 km to about 2,700 km due to the following factors: (i) a 13 percent drop of the exchange rate between SDR and FCFA; (ii) 30 percent higher construction costs than at appraisal because of a spike in fuel and bitumen prices; (iii) firms unaccustomed to costing the innovative spot improvement approach for maintenance and rehabilitation of low-volume roads; and (iv) lack of counterpart funding. In 2010, the AF further revise the project components to include: 24. Component A: Institutional support to DGPR and DGR and the Regional Directorates of MID (about US$1.47 million). This component was designed to strengthen the DGPR capacity to better manage and monitor the: (i) construction of rural roads and small bridges; (ii) labor based maintenance approach of rural roads; and (iii) Regional Directorates of the Ministry in charge of Infrastructures in supervising the road works. 25. Component B: Rehabilitation of rural roads and reconstruction of small bridges/culverts) (about US$ million). This component funded: (a) the rehabilitation of about 180km of key rural roads; (b) the construction of 17 small bridges/culverts; (c) maintenance of about 35 km of key rural roads using high intensity labor-based method; and (d) design and supervision of the works. 8

29 26. Component C: Project management and monitoring (about US$1.132 million). The component funded the project coordination, monitoring and evaluation activities and the project operations costs. 1.7 Other significant changes 27. Implementation arrangements. At approval, the governmental entity in charge of the Project was the MITH. In 2006, the MITH was split into three ministries: the Ministry of Infrastructure (Ministère des Infrastructures et du Désenclavement MID), the (Ministry of Transport (Ministère des Transports - MT) and the (Ministry of Housing and Urban Development (Ministère de l Habitat et de l Urbanisme - MHU). While the DGTTM and the DGPR were not affected, the Directorate of Human Resources (Direction des Ressources Humaines- DRH), the Directorate of Administration and Finance (Direction de l'administration et des Finances - DAF) and the Directorate for Studies and Planning (Direction des Etudes et de la Planification - DEP) were duplicated in each of the ministries, hence multiplying the number of executing agencies. The split thinly spread human resources across the newly created ministries substantially affecting staff responsible for project activities thus hindering implementing capacity and experience. As a result of the lack of capacity in the concerned implementing agencies due to the fragmentation of ministerial competencies in the transport sector, the MTR recommended to postpone the transfer of the Project Coordination Unit (PCU) responsibilities to the newly created agencies within the ministries. This recommendation was adhered to by GoBF. 28. Financing parameters. New Country Financing Parameters, approved by the World Bank on January 25, 2005, allowed IDA to finance local costs and any proportion of project expenditures, including taxes and recurrent expenditures. During the restructuring in June 2006, the World Bank team seized this opportunity to amend the Development Financing Agreement increasing IDA percentages of expenditures and reducing the GoBF share of counterpart funding as follows: (i) Category (1) Civil works from 63 percent to 85 percent; (ii) Category (2) Goods, including vehicles from 80 percent of local expenditures to 85 percent; and (iii) Category (3) Consultants services, including audit fees from 80 percent of local expenditures to 85 percent. 29. Modified technical approach for the road rehabilitation works. The TSP s rehabilitation works were initially planned to be based on the spot improvement of roads with less than 50 Vehicles per Day (VPD) traffic levels. Most of the road sections to be rehabilitated in the project belonged to this group of roads, which could not generate positive economic rate of return. However, due to insufficient know-how and acceptance of the approach by the DGR and difficulties experienced with private firms and contractors weak capacity, the application of this approach was limited to low traffic rural roads only, while higher traffic rural road sections included in the TSP were fully rehabilitated regardless of traffic levels. During the 2006 MTR, it was decided to adopt this modified approach for the rehabilitation of the Sub-component B-2 roads while the roads targeted in Sub-Component B-1 were to be fully rehabilitated. This modified approach contributed to the increase in rehabilitation costs leading to shortage of funds to rehabilitate the planned road length of 7,000 km. As a result, the scope of road length was also reduced to about 2,700 km during the June 2006 restructuring. 9