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Document of

The World Bank

FOR OFFICIAL USE ONLY

Report No: 35035

IMPLEMENTATION COMPLETION REPORT

(PPFI-P7870 PPFI-P7871 PPFI-P7872 IDA-33640) ON A

CREDIT

IN THE AMOUNT OF SDR 48.4 MILLION (US$66.0 MILLION EQUIVALENT) TO

MADAGASCAR

FOR A

TRANSPORT SECTOR REFORM AND REHABILITATION PROJECT

JANUARY 30, 2006

Africa Region

Transport

This document has a restricted distribution and may be used by recipients only in the performance of their

official duties. Its contents may not otherwise be disclosed without World Bank authorization.Public Disclosure AuthorizedPublic Disclosure AuthorizedPublic Disclosure AuthorizedPublic Disclosure AuthorizedPublic Disclosure AuthorizedPublic Disclosure AuthorizedPublic Disclosure AuthorizedPublic Disclosure Authorized

CURRENCY EQUIVALENTS

(Exchange Rate Effective July 31, 2005)

Currency Unit = Malagasy Ariary (MGA)

100 MGA =US$ 0.049

US$ 1 =MGA 2,053.09

FISCAL YEAR

January 1 December 31

ABBREVIATIONS AND ACRONYMS

ACM- Aviation Civile de Madagascar (Civil Aviation Authority)

APL- Adaptable Program Loan

APMF- Agence Portuaire, Maritime et Fluviale (Port Authority) ATT- Agence de Transport Terrestre (Land Transport Agency)

CAS-Country Assistance Strategy

CGGTX- Cellule de Gestion des Grands Travaux (Management of Large Works Unit)

DCA- Development Credit Agreement

DPTP- Direction Provinciale des Travaux Publics (Public Works Provincial Department)

EIRR- Economic Internal Rate of Return

ENEAM- Ecole Nationale d'Enseignement de l'Aéronautique et de la Météorologie (Aeronautic and

Meteorology Institute)

GOM- Government of Madagascar

IPR- Independent Procurement Review

MOTM- Ministry of Transport and Meteorology (until 2002)

MOPW- Ministry of Public Work (until 2002)

MPWT - Ministry of Public Works and Transport (since March 2005)

NPV- Net Present Value

MARPOL- Marine Pollution (International Convention for the Prevention of Pollution from Ships) OPRC- Oil Pollution Preparedness Response and Cooperation

PAD- Project Appraisal Document

PDO- Project Development Objective

PRSP- Poverty Reduction Strategy Paper

RA/AR- Roads Authority/ Autorité Routière

RMF/FER- Road Maintenance Fund/ Fonds d'entretien Routier

RUC- Road User Charges

RUR- Redevances d'Usage de la Route (Road Users Fees) SE-PST- Secrétariat Exécutif du Programme Sectoriel des Transports (Executive Secretariat of

Transport Sector Program)

SMEs- Small and Medium Enterprises

TPP- Taxes sur les Produits Pétroliers (Oil taxes) TSRRP- Transport Sector Reform and Rehabilitation Project VER - Vignette d'Entretien Routier (Fees for Road Maintenance)

VPM - Vice Primature chargée des Programmes économiques, Ministère des Transports, des Travaux

Publics et de l'Aménagement du territoire (from April 2003 to March 2005)

Vice President: Gobind T. Nankani

Country DirectorJames P. Bond

Sector ManagerC. Sanjivi Rajasingham Task Team Leader/Task Manager:Noroarisoa Rabefaniraka

MADAGASCAR

MG-Transp Sec Reform & Rehab (FY00)

CONTENTS

Page No.

1. Project Data

1

2. Principal Performance Ratings

1

3. Assessment of Development Objective and Design, and of Quality at Entry

2

4. Achievement of Objective and Outputs

5

5. Major Factors Affecting Implementation and Outcome

16

6. Sustainability

17

7. Bank and Borrower Performance

18

8. Lessons Learned

19

9. Partner Comments

20

10. Additional Information

20 Annex 1. Key Performance Indicators/Log Frame Matrix 21

Annex 2. Project Costs and Financing

23

Annex 3. Economic Costs and Benefits

25

Annex 4. Bank Inputs

30
Annex 5. Ratings for Achievement of Objectives/Outputs of Components 34
Annex 6. Ratings of Bank and Borrower Performance 35

Annex 7. List of Supporting Documents

36

Annex 8. Borrower's Contribution 38

Annex 9. Various Statistics and Financial Data53

Annex 10. Tables containing ratings criteria/ indicators58

Project ID: P052208 Project Name: MG-Transp Sec Reform & Rehab (FY00)Team Leader: Noroarisoa RabefanirakaTL Unit: AFTTRICR Type: Core ICRReport Date: January 31, 20061. Project Data

Name:MG-Transp Sec Reform & Rehab (FY00)L/C/TF Number:PPFI-P7870; PPFI-P7871;

PPFI-P7872; IDA-33640

Country/Department:MADAGASCARRegion:Africa Regional Office

Sector/subsector:Central government administration (53%); Roads and highways (26%); Ports, waterways and

shipping (15%); Other industry (3%); Aviation (3%) Theme:Small and medium enterprise support (P); Social risk mitigation (S); Environmental policies and institutions (S)

KEY DATESOriginalRevised/Actual

Borrower/Implementing Agency:GOVT OF MADAGASCAR/MINISTRIES OF TRANSPORT/PUBLIC WORKS

Other Partners:

STAFFCurrentAt Appraisal

Vice President:Gobind T. NankaniCallisto E. Madavo

Country Director:James P. BondHafez M. H. Ghanem

Sector Manager:C. Sanjivi RajasinghamMaryvonne Plessis-Fraissard Team Leader at ICR:Noroarisoa RabefanirakaD. Pedro Geraldes

ICR Primary Author:Noroarisoa Rabefaniraka

2. Principal Performance Ratings

(HS=Highly Satisfactory, S=Satisfactory, U=Unsatisfactory, HL=Highly Likely, L=Likely, UN=Unlikely, HUN=Highly Unlikely,

HU=Highly Unsatisfactory, H=High, SU=Substantial, M=Modest, N=Negligible)

Outcome:S

Sustainability:L

Institutional Development Impact:SU

Bank Performance:S

Borrower Performance:S

QAG (if available)ICR

Quality at Entry:SS

Project at Risk at Any Time:No

3. Assessment of Development Objective and Design, and of Quality at Entry

3.1Original Objective:

Context. The objective and the design of the Transport Sector Reform and Rehabilitation Project (TSRRP,

APL1) need to be assessed in the context of the economic and institutional conditions prevailing in Madagascar in the late 1990s. The country had been under structural adjustment programs for about 20

years, and the results began to be visible in 1988. Economic growth rates were superior to population

growth, except between 1991-1996 when the program was suspended. Various measures were taken, including the liberalization of imports and domestic trade, and the disengagement of the State from productive and commercial activities.

The transport sector plays a key role in Madagascar's growth and poverty alleviation strategy. Increased

foreign investment, development of the country's eco-tourism and mining potential, growth in agricultural

output, and reduction of rural isolation, all depend on the efficiency of transport services and the availability of appropriate transport infrastructure. Unfortunately, three decades (1970-2000) of

inappropriate sector policies have led to a serious deterioration of the country's transport infrastructure.

During this period the country lost on average 1,000 km of roads per year due to lack of maintenance. In

April 2000, after almost ten years of sector dialogue with the World Bank, but no IDA lending, the country

adopted a comprehensive transport sector policy and strategy, which aims at (i) focusing the government's

role on strategic planning, sector oversight and coordination; (ii) creating public-private controlled and

user-financed agencies for sub-sector management and regulatory functions; (iii) divesting operational

activities to the private sector, through privatization and concessioning arrangements; (iv) developing the

local private sector for works design and execution; and (v) rehabilitating transport infrastructure to

appropriate levels. The Bank provided financial support to the implementation of this strategy through an

Adaptable Program Loan (APL), the first phase of which was launched shortly after the finalization of the

strategy. The APL was designed and is being implemented jointly with other donors, users, and the private

sector. The TSRRP, with a credit amount of SDR 48.4million (US$66m), was the first (APL1) of the four APL

phases.. Two years into implementation, and to respond to government's changing sector priorities, the

phasing and packaging was revisited. It was decided to bring forward the rural transport project which had

originally been under APL3 and to combine APL2 and APL4 which had respectively intended to strengthen

the newly created regulatory agencies and finance residual infrastructure needs. Regarding the identification of objectives of the TSRRP, there are discrepancies between the Project Development Objectives as stated in the Project Appraisal Document (PAD), Annex 1 (Logframe) and the Development Credit Agreement (DCA). According to the DCA, the objective of the Project is to provide

assistance to the Borrower's Program for the strengthening of its sector policy and management through

support to the (a) further liberalization of its aviation, port, maritime, coastal shipping, road transport

services; (b) development of an autonomous regulatory framework; (c) reactivation of the trade and

transport facilitation process; (d) promotion of public/private partnerships in investment and management

of primary transport facilities and users/ beneficiaries in operations and maintenance; (e) restructuring of

the MOTM (Ministry Of Transport and Meteorology) and the MOPW (Ministry Of Public Works); (f)

improvement of the competitiveness of small private transport operators and contractors; (g) development

of a strategy for road transport policy and management; and (h) implementation of an environmentally sustainable sector investment program. In the PAD's PDO description, the project was intended to: strengthen transport sector policy and management;i. strengthen road management; ii. - 2 - support the implementation of an environmental and social mitigation strategy for the transport iii. sector; and, restore infrastructure facilities.iv.

Last, in the PAD's logframe, the project development objectives were spelt out as follows: (i) reduce

transport cost and sustainably improve accessibility, especially in rural areas and (ii) environmental and

social protection. In fact, what is stated in the logframe reflects the purpose of the whole program. For the

purpose of the ICR, the team chose the objectives as stated in the PAD's PDO description as it reflects

more the outcomes to be assessed.

A second difficulty stems from the fact that the TSRRP emphasized more on institutional reforms, but the

outcomes reflect the entire APL program rather than just the first APL itself.

However, all these objectives reflected the priorities for the transport sector development in Madagascar at

that time, as identified by both the GOM and by the Bank's Country Assistance Strategy (CAS). They are

still relevant to the Borrower's priorities, as described in its Poverty Reduction Strategy Paper (PRSP),

aiming at: (i) improving governance; (ii) promoting broad based growth; and (iii) providing human security,

and the Bank's CAS, which supports the implementation of the government's priorities. As a matter of

fact, poverty reduction can only be achieved if the whole population can benefit from growth. Inadequate

access to transport is the main obstacle to higher agricultural productivity, the provision of basic services

and a greater impact of growth on the entire population. These objectives were also focused and limited in scope. The project could make a comprehensive and

global approach to include: (i) sector policies and institutional reforms, (ii) capacity building, (iii)

multimodal perspective, and (iv) infrastructure improvements. It was also reasonably demanding on the

Borrower.

3.2Revised Objective:

The original development objectives of the project did not change during implementation.

3.3Original Components:

The project consisted of the following components, which were reasonably related to achieving the objectives: A. Regulatory Reform and Private Sector Development.

This component included the following activities:

Strengthening the newly established civil aviation authority, Aviation Civile de Madagascar a. (ACM); Reforming the port sector and setting up an autonomous port and shipping regulatory agency;b. Spinning-off of the public works force account activities and commercialization of the MOPW's c. productive activities; Developing the domestic private sector (road transport entrepreneurs; construction contractors); d. and Establishing a facilitation audit/facilitating foreign trade through transport-related measures. e. B. Organizational Restructuring and Sector Policy.

This included the following activities:

Restructuring of the MOTM and the MOPW;a.

Preparation of social mitigation plans for ministry staff made redundant by the creation of the b. autonomous sector agencies;

Capacity building; andc.

- 3 -

Reform of the road sector policy.d.

C. Environmental Protection.

This included the following activities:

Implementing a sector environmental assessment and follow-up framework;a. Developing a strategy on preventing and mitigating the impact of natural catastrophes;b. Strengthening emergency coastal protection to preserve economic and social activities in c.

Toamasina and Morondava;

Ratification and implementation of the MARPOL and OPRC Conventions;d. Removing shipwrecks and the subsequent disposal of wreckage materials in the port of e.

Taolagnaro, as a pilot operation; and

Acquisition of prefabricated metallic bridges and other temporary structures, to strengthen f. emergency reserves for mitigating natural catastrophes.

D. Improvement of Economic Infrastructure.

This component included the following activities:

Rehabilitation and other improvement works in the ports of Toliara and Mahajanga and the rivers a. Tsiribihina and Sofia as a pilot operation for the improvement of river navigation and cargo transfer facilities; Road works, including periodic maintenance, on about 530km of national roads, including RN b.

25/45, RN 6, RN 34 and RN 44/3a;

Infrastructure feasibility studies and technical advisory services (for selected ports, maritime c. signaling, rehabilitation of national roads, improvement of rural roads, improvement of railways, secondary and tertiary airports); and Supervision of civil works for roads, rivers, and ports under the project. d.

The design of the four components was clearly linked to the objectives described above: the credit could

focus on the Government's main sector priorities, i.e. sector reforms and critical investments. Moreover,

APL1 was an instrument for capacity building in the ministry and agencies and also helped prepare APL2

and 3.

3.4Revised Components:

The project was formally restructured and confirmed by the DCA amendment letter of January 17, 2004 to

include civil works for the rehabilitation of RN43 and improvements to the airports of Ivato and Nosy Be,

including the provision of security and airport handling equipment. These changes were reasonably related

to the project objectives and responded to emerging government priorities.

The shipwreck removal was dropped from the project because offers received were three times the expected

costs, and plans were emerging for the construction of a new port, which would render the existence of the

wreck a lesser problem. Due to delays resulting from the political crisis of 2002, periodic maintenance of

the RN25 was reprogrammed and included in APL2. These changes in activities did not alter the

components in a substantial way and did not interfere with the project achieving its development objective.

The final credit allocations are provided in Annex 2.

3.5Quality at Entry:

The quality at entry is rated satisfactory, for the following reasons:

As mentioned earlier, the project objectives were consistent with the Government's priorities in the a.

transport sector, the Bank's CAS, and met the critical needs of the transport sector; The implementation agency, Executive Secretariat of the Transport Sector Program (SE-PST), b.

demonstrated the required administrative, financial and technical capacity during the first two years

- 4 - of the project, with adequate staff and discharge of its responsibilities;

The project took in consideration lessons learned from other earlier Bank transport projects (from c.

1966 to 1996), and incorporated them into the project design. Thus, particular attention was paid

to ensuring a better dialogue, further commitment to project objectives, shared view on key issues, such as the importance of road maintenance, improvement of information sharing, and the improvement of the institutional capacity of the implementing agency; and The government, with technical assistance, prepared a project implementation plan and a project d. procurement plan prior to effectiveness. Even though no baselines were available at project appraisal, a system of monitoring and evaluation was in place when the project became effective, but there was a lack of follow up from the government and the sector monitoring unit.

4. Achievement of Objective and Outputs

4.1 Outcome/achievement of objective:

Overall assessment:

The overall outcome of this first phase of the APL was satisfactory, as the Project achieved most of its objectives, even though the implementation problems of the APL program shortly before the Project's closing tended to overshadow its achievements. The most significant shortcoming was the weakness in monitoring and evaluation which means that performance indicators lacked baseline data and often quantitative targets. Nevertheless, the following achievements can be observed:

(i) Strengthening transport sector policy and management.The strengthening of the transport sector policy and management was satisfactory.

The government reinforced its focus on strategic planning, sector oversight and coordination: -it created a competitive environment in the transport sector, and withdrew from transport services. In the air transport sub-sector, key bilateral air services agreement were revised to allow further competition; -it promoted public/private partnerships through: (i) concessioning agreements (northern rail network was concessioned in October 2002; the container terminal of the main commercial port of

Toamasina was concessioned in June 2005); and (ii) the management contract for the national airline was

signed in October 2002); -the private sector and transport users are represented on the oversight boards of the road maintenance fund (FER, Fonds d'entretien Routier), ACM, and APMF; -some of the ministry's staff were recruited by the regulatory agencies (ACM and APMF) as a first phase of the ministry's social mitigation plan; -the setting-up of the Land Transport Agency (ATT, Agence de Transport Terrestre) and Road Authority (AR, Autorité Routière) is in progress, even though with delays.

(ii) Strengthening road sector management.The strengthening of road sector management was satisfactory.

Road sector management was strengthened through various measures supported by IDA and other donors, especially the European Union. The Administration's capacity to carry out road planning and programming, monitoring road construction/rehabilitation and road maintenance was enhanced through capacity building, provision of computer equipment and software. Staff was trained in the use of the equipment. The ministry elaborated a mid-term road improvement program (2002-2008) for which it

obtained support and funding from the donors. This road program had various positive impacts, including a

better visibility for private sector contractors and engineering offices of upcoming tenders; international

contractors entered the market; and, jobs were created, as illustrated below. - 5 - Table 1. Number of job created by road works in Madagascar in 2003 and 2004

Designation

Type of works

Roads main-

tained/ rehabilitated, kmNumber of job createdRoads main- tained/ rehabilitated, kmNumber of job created

6 0007 2006 2248 745

1 6705 5001 0123 340

1805404821 446Total7 85013 2408 78213 531Rehabilitation /

Periodic

maintenance of paved roads2003 2004

Routine maintenance

Rehabilitation of

rural roads

The Project also assisted the ministry to introduce transparent procurement processes, manage the new

competitive contracting system, incorporate the provincial departments in project management, and

increase participation of the local private sector in civil works and provision of transport services. Among

the measures applied in the road transport are the following: beginning of axle road control on the main

national road, RN2; improvements in road safety for data collection, which is now centralized at the

MPWT; effort to create a database for all transport modes, even though no implementation was carried out.

Regarding the road maintenance system, the Road Maintenance Fund (FER,

Fonds d'Entretien Routier)

was reformed and started to operate as a second-generation RMFs. Internal controls and administration

were greatly strengthened and the fund could effectively mobilize resources allocated to maintenance.

Further details on the operation of the FER are provided below.

(iii) Support to the implementation of an environmental and social mitigation strategy for the transport sector.

The support to the implementation of an environmental and social mitigation strategy for the transport

sector was moderately unsatisfactory. The project supported the elaboration of the social mitigation plan to benefit staff affected by the

restructuring of the ministry. The plan is now being implemented under APL3. Despite sustained efforts,

the project was unable to set-up a functioning environmental and social safeguards unit in the ministry. A

unit has been created within the MPWT recently which has benefited from capacity building from the

Bank's safeguards specialist at the country office; however, the unit is still unable to operate effectively.

Given the ongoing restructuring of the ministry it was recently decided to strengthen the safeguards - 6 -

capacity of the large works unit, (CGGTX-Cellule de Gestion des Grands Travaux), and hiring of a local

expert and international technical assistance are being finalized.

(iv) Restoring infrastructure facilities.The objective of restoring infrastructure facilities was satisfactory.

The project fully achieved its objective of restoring selected, high priority infrastructure. Traffic has

increased at the ports of Mahajanga and Tulear and cargo handling has become more efficient and safer.

Periodic maintenance of the national roads has reduced transport costs and travel time. These benefits are

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