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Document of

The World Bank

Report No: ICR00003968

IMPLEMENTATION COMPLETION AND RESULTS REPORT

(P128427-TF-12412) ON A

JAPAN SOCIAL DEVELOPMENT FUND (JSDF) GRANT

IN THE AMOUNT OF US MILLION

OF US$ 2.87 MILLION

TO THE

REPUBLIC OF TUNISIA

FOR A

COMMUNITY WORKS AND LOCAL PARTICIPATION PROJECT

November 10, 2016

Social Protection and Labor Global Practice

Middle East and North Africa Region

Public Disclosure AuthorizedPublic Disclosure AuthorizedPublic Disclosure AuthorizedPublic Disclosure Authorized

CURRENCY EQUIVALENTS

(Exchange Rate Effective as of November 10, 2016)

Currency Unit = Tunisian Dinars (TND)

TND 1=US$0.44

US$1=TND2.265

FISCAL YEAR

January 1 December 31

ABBREVIATIONS AND ACRONYMS

ALMP Active Labor Market Program

ANETI National Agency for Employment and Independent Work (Agence Nationale de

épendant)

ISR Implementation Status and Results Report

JSDF Japan Social Development Fund (Fonds Japonais de Développement Social)

M&E Monitoring and Evaluation

MVTE Ministry of Vocational Training and Employment (Ministère de la Formation (MFPE))

MIS Management Information System

MOSA Ministry of Social Affairs

NEF National Employment Fund

NGO Nongovernmental Organization

ONEQ National Observatory for Employment and Qualifications

PAD Project Appraisal Document

PCU Project Coordination Unit (for central level)

PDO Project Development Objective

PIU Project Implementation Unit (for regional level)

POM Project Operations Manual

PPP Public-Private Partnership

RfP Request for Proposal

SIGSEP Management Information System for Implementing, Monitoring, and

Evaluating the Project (

TA Technical Assistance

Senior Director: Michal Rutkowski

Practice Manager:

Task Team Leader:

Hana Polackova Brixi

Diego Angel-Urdinola and Rene Antonio

Leon Solano

ICR Team Leader: Diego Angel-Urdinola and Yuko Okamura

TUNISIA

Community Works and Local Participation Project

CONTENTS

Contents

A. Basic Information ........................................................................................................ i

B. Key Dates .................................................................................................................... i

C. Ratings Summary ....................................................................................................... i

D. Sector and Theme Codes ........................................................................................... ii

E. Bank Staff ................................................................................................................... ii

F. Results Framework Analysis ...................................................................................... ii

G. Ratings of Project Performance in ISRs ................................................................... iii

H. Restructuring (if any) ............................................................................................... iii

1. Project Context, Development Objectives and Design ................................................... 1

2. Key Factors Affecting Implementation and Outcomes .................................................. 6

3. Assessment of Outcomes .............................................................................................. 14

4. Assessment of Risk to Development Outcome ............................................................. 19

5. Assessment of Bank and Borrower Performance ......................................................... 19

6. Lessons Learned............................................................................................................ 21

7. Comments on Issues Raised by Grantee/Implementing Agencies/Donors................... 23

Annex 1. Project Costs and Financing (SAP system) .......................................................... i

Annex 2. Outputs by Component...................................................................................... 26

Annex 3. Economic and Financial Aanalysis ................................................................... 27

Annex 4. Implementation Arrangements by Component (As approved) ......................... 28 Annex 5. Grant Preparation and Implementation Support/Supervision Processes ........... 33

Annex 6. Beneficiary Survey Results ............................................................................... 34

Annex 7. Stakeholder Workshop Report and Results ....................................................... 35

Annex 8. Summary of Grantee's ICR and/or Comments on Draft ICR ............................ 36 Annex 9. Comments of Cofinanciers and Other Partners/Stakeholders ........................... 40

Annex 10. List of Supporting Documents ........................................................................ 41

i

A. Basic Information

Country: Tunisia Project Name: Community Works and

Local Participation

Project ID: P128427 L/C/TF Number(s): TF-12412

ICR Date: 11/22/2016 ICR Type: Core ICR

Lending Instrument: Specific Investment

Loan Grantee: REPUBLIC OF

TUNISIA

Original Total

Commitment: US$2.87 million Disbursed Amount: US$2.58 million

Revised Amount: US$2.87 million

Environmental Category: B

Implementing Agencies: Ministry of Vocational Training and Employment (MVTE)

Cofinanciers and Other External Partners: N/A

B. Key Dates

Process Date Process Original Date Revised / Actual

Date(s)

Concept Review: 08/23/2011 Effectiveness: 27/09/2012

Appraisal: N/A Restructuring(s): 13/07/2015

Approval: 05/14/2012 Midterm Review: 08/15/2014 07/01/2014

Closing: 06/18/2016 06/18/2016

C. Ratings Summary

C.1 Performance Rating by ICR

Outcomes: Moderately Satisfactory

Risk to Development Outcome: Moderate

Bank Performance: Moderately Satisfactory

Grantee Performance: Satisfactory

C.2 Detailed Ratings of Bank and Borrower Performance (by ICR)

Bank Ratings Borrower Ratings

Quality at Entry: Moderately Satisfactory Government: Satisfactory

Quality of Supervision: Satisfactory Implementing

Agency/Agencies: Satisfactory

Overall Bank

Performance: Moderately Satisfactory Overall Borrower

Performance: Satisfactory

C.3 Quality at Entry and Implementation Performance Indicators

Implementation

Performance Indicators QAG Assessments

(if any) Rating Potential Problem Project No Quality at Entry None ii at any time (Yes/No): (QEA):

Problem Project at any

time (Yes/No): No Quality of

Supervision (QSA): None

DO rating before

Closing/Inactive status: Satisfactory

D. Sector and Theme Codes

Original Actual

Sector Code (as % of total Bank financing)

Other social services 100 100

Theme Code (as % of total Bank financing)

Participation and civic engagement 20 20

Social Safety Nets/Social Assistance & Social Care

Services 80 80

E. Bank Staff

Positions At ICR At Approval

Vice President: Hafez M. H. Ghanem Inger Andersen

Country Director: Marie Francoise Marie-Nelly Neil Simon M. Gray

Practice

Manager/Manager: Hana Brixi Yasser Aabdel-Aleem Awny El-

Gammal

Project Team Leader: Diego Angel-Urdinola/Rene

Antonio Leon Solano Diego Angel-Urdinola

ICR Team Leader: Diego Angel-Urdinola/Yuko

Okamura

ICR Primary Author: Yuko Okamura

Fatima El Kadiri El Yamani

F. Results Framework Analysis

Project Development Objectives (from Project Appraisal Document) -skilled and long-term unemployed citizens, through their participation in labor-intensive community works, to be

selected and implemented in a highly participatory manner by civil society associations in

Jendouba.

Revised Project Development Objectives (as approved by original approving authority)

Not applicable

(a) PDO Indicator(s) and (b) Intermediate Outcome Indicator(s)

Indicator Baseline

value

Original

Target value

Formally

revised target value

Actual

value achieved at completion iii *Actual value achieved at completion refers to the information from the last ISR.

G. Ratings of Project Performance in ISRs

No. Date ISR

Archived DO IP Actual Disbursements

(US$, millions)

1 08/08/2012 Satisfactory Satisfactory 0.00

2 05/17/2013 Moderately

Satisfactory

Moderately

Satisfactory 0.10

3 02/18/2014 Moderately

Satisfactory

Moderately

Satisfactory 0.62

4 10/15/2014 Satisfactory Satisfactory 1.70

5 04/30/2015 Satisfactory Satisfactory 2.15

6 10/22/2015 Satisfactory Satisfactory 2.60

7 04/27/2016 Satisfactory Satisfactory 2.87

H. Restructuring (if any)

In February 2015, the Government of Tunisia requested a restructuring to reallocate US$150,000 out from total grant proceeds between two components from (a) component 1 to complement Vocational Training and Employment (MVTE) to provide increased technical support and or target years

Project Development Objective Indicator

Share of low-skilled and

long-term unemployed (out of 3,000) who receive temporary income support through community works projects financed under this grant. (Percentage,

Custom)

Value 0 90 104.00 104.00

Date achieved

30-Jul-

2012

18-Jun-2016 01-Oct-

2015

01-Oct-

2015*
Comments Final results exceeded original targets by 4 percentage points.

Intermediate Results Indicators

Percentage of direct

beneficiaries who are female (Percentage,

Custom)

Value 0 30.00 54.00 54.00

Date achieved

30-Jul-

2012

18-Jun-2016 01-Oct-

2015

01-Oct-2015

Comments Final results exceeded original targets by 24 percentage points.

Percentage of local

associations that successfully rehabilitate and/or upgrade infrastructure and services in the selected communities. (Percentage, Custom)

Value 0 80.00 98.00 98.00

Date achieved

30-Jul-

2012

18-Jun-2016 01-Oct-

2015

01-Oct-

2015*
Comments Final results exceeded original targets by 18 percentage points. The project initially set a conservative but challenging target (80%), considering the capacity of nascent associations. As a result of hands-on support, almost all associations to successfully delivery and complete public work sites. iv oversight during the implementation of the projects approved under the second request for proposals (RfPs). The World Bank approved a Level 2 restructuring which was communicated to the Government on July 13, 2015.

I. DISBURSEMENT PROFILE

1

1. Project Context, Development Objectives and Design

1.1 Context at Appraisal

Country Context

1. Tunisia showed consistent economic growth between 2000 and 2008, averaging an

annual growth of 4.8 percent in gross domestic product per year during this period. Such growth rates rendered Tunisia a lead economic performer in the Middle East and North Africa. After

2008, as a result of the financial, food, and fuel crises.

The financial crisis had a deep and profound effect on the real economy, with trade being the main channel of transmission. Depressed external demand (particularly from the European Union,

in export value in the first seven months of 2009. This ultimately translated into stagnant

economic activities which resulted in the loss of existing jobs as well as in failure of creating new jobs. At the same time, prices of staple foods, such as rice and vegetable oil, doubled between January and May 2008 and continued to rise in 2009 and 2010. For countries whose population relies largely on staple foods, as it is the case with Tunisia, higher food prices can petroleum and fertilizer prices. At the end of 2010 and in early 2011, a new spike in international fuel and food prices hit the fragile Tunisian economy. As a result, performance was weak in 2011, with an economic growth of for the year.

2. In January 2011, a wave of protests ended the 23-year rule of President Zine El Abidine

Ben Ali, ushering a new political, economic, and social era in Tunisia. High unemployment, poor working conditions and a weak economic growth, coupled with persistent challenges in

governance and other political freedom, were significant factors contributing to the Jasmine

Revolution.

food and financial crises. Major investment decisions were postponed, along with a a drastic drop in tourism, which is one of the main sources of hard currency and jobs, and signs of economic recovery became weak. Consequently, this resulted in significant damage to local infrastructure, disruption to social services, dissolution of some local governments, and the emergence of a strong demand for effective participation and involvement in local development.

Sector Context

3. Coping with a large number of unemployed individuals became one of the main

challenges afflicting the post-revolution Government. Given that overall unemployment increased from 13 percent to 18 percent between 2010 and 2011, job creation and coping with an increasing number of unemployed (about 678,000 at the end of 2011), became one of the main challenges for the post-revolution Tunisian Government. One of the most salient features of the Tunisian labor market is the high rate of unemployment (56.3 percent in 2011) among high- skilled young individuals, defined as those in the age group 1529 years and who have attained tertiary education. Yet, while unemployment rates are highest among this group, the cohort of the unemployed in Tunisia (69 percent) is made up of workers with no university education. At the same time, the labor market in Tunisia faces important structural problems such regulatory 2 rigidities, skills mismatches, a large public sector that distorts incentives, and sluggish labor demand (Angel-Urdinola, Nucifora, and Robalino 2015).

4. In response to the aforementioned challenges, Tunisia has developed a large system of

Active Labor Market Programs (ALMPs), which have long been at the core of the Tunisian labor market policy. The ALMPs in Tunisia are mainly financed through the National Employment Fund (NEF). In 2011, the NEF resources amounted to approximately 0.8 percent of gross domestic product) financing primarily (a) regional employment programs such as public works (about 10 percent of total fund allocations; (b) microcredits (about 10 percent of total fund allocations); and (c) the ALMPs delivered by the National Agency for Employment and Independent Work (ANETI) (about 80 percent of total fund allocations). Despite availability of financing, after 2011, the Government lost its capacity to implement these programs at the local level. Following the revolution, many local authorities were dismantled and regional employment programs (notably public works) displayed a general lack of governance and accountability frameworks. Programs operated on an ad hoc basis (operation manuals did not exist or were not enforced), monitoring and evaluation (M&E) systems were largely lacking, and civil society did not participate in these programs. In this context, many public works sites were never completed and/or payment of wages to workers were made even for those who would not show up for work. In addition, the selection of sites and workers was mainly conducted at the clientelistic. In summary, while funding for public works programs was available, localities lacked the capacity to implement them (see Belghazi 2012).

Rationale for World Bank Assistance

5. As translated into the PDO, the project had a strong rational in Tunisia just after the

revolution. low-skilled workers while restoring some local infrastructures and services that had been damaged or deteriorated as a result of the revolution through supporting locally labor-intensive public works projects proposed and implemented by civil society and/or community groups. First,

short-term employment opportunities and the rehabilitation of infrastructure could provide a

temporary relief to the negative impact of both the crises and the revolution on vulnerable

households. Second, the project aimed at responding to widespread demand for increased

transparency, governance, and voice in the local development processes. Third, the project

intended to create a demonstration effect on how to effectively empower citizens in local

communities, thus supporting the decentralization and regionalization of the process.

6. Beyond the PDO, this project strongly focused on rebuilding the G

to implement public works at the local level, especially in the poorest localities. It is in this context, in collaboration with the Tunisian Ministry of Vocational Training and Employment (MVTE) and with the support of a Japan Social Development Fund (JSDF) grant, that the World Bank designed and implemented the Community Works and Local Participation project in Jendouba, one of the poorest and most underserved governorates in the Republic of Tunisia.

7. The project became a pilot to experiment and establish new institutional mechanism and

delivery approach that aimed to improve governance and efficiency of public works programs while revamping the capacity of local authorities to implement them. The grant introduced, for 3 the first time in Tunisia, the ministry contracting out civil society associations for the identification and implementation of subprojects. The project also supported the development of a robust M&E system to track expenditures, wage payments, and the successful completion of

sites. In this regard, although the geographic coverage of the project was limited to one

governorate, the project was positioned as an innovative pilot developing a know-how which could be scalable to other regions.

8. The project was coherent with the G to foster a more balanced

regional development and complemented policies being launched at the time of project preparation to support regional development, namely: (a) the creation of the Ministry of Regional and Local Development; and (b) the decision to carry out an institutional assessment of effectiveness of the budget transfers made to localities by the NEF, mainly to finance the wages of workers participating in public works and local development projects. Finally, the project aimed at supporting the emerging civil society organization movement in Tunisia after the

revolution, by increasing their capacity to manage and deliver development projects and by

providing them with financing to implement small subprojects in Jendouba. Subsequently, the number of new associations increased greatly right after since the revolution as a manifesto of aimed to support such movement in Jendouba.

9. The project built upon analytical work previously carried out under the Employment TA

Package for Tunisia (P126485). The main objective of the technical assistance (TA) was to increase the capacity of the Government (MVTE; ANETI; and the Ministry of Social Affairs [MOSA]) to improve the effectiveness of ALMPs and regional employment programs in Tunisia. The project design also capitalized from a strategic evaluation of the NEF (which financed the ALMPs and regional employment programs), and aimed to address some of the design and implementation gaps of the ongoing public works programs financed by the NEF. Additionally, given the limited delivery capacity of the public sector at the local level, the project proposed an alternative delivery mechanism for public works (never used before in Tunisia) through

contracting out to local associations. The project design, and the proposition of alternative

delivery models through contracting-out, also benefited from the main recommendations of a regional review of the ALMPs and regional programs in the Middle East and North Africa (Angel-Urdinola, Kuddo, and Semlali 2013).

1.2 Original Project Development Objectives (PDO) and Key Indicators (as approved)

10. The original PDO of the project was to provide direct income support to low-skilled and

long-term unemployed citizens, through their participation in labor-intensive community works, to be selected and implemented in a highly participatory manner by civil society associations in

Jendouba.

Table 1. Key Indicators and Quantitative Target

Key Indicators as Approved Quantitative Target

PDO Indicator

Share of low-skilled and long-term unemployed who receive temporary income support through community works projects financed under this 90
4 grant

Intermediate Results Indicators

Percentage of direct beneficiaries who are female 30 Percentage of local associations that successfully rehabilitate and/or upgrade infrastructure and services in selected communities 80

1.3 Revised PDO (as approved by original approving authority) and Key Indicators, and

reasons/justification

11. N/A

1.4 Main Beneficiaries

12. The project financed 72 subprojects in Jendouba which were implemented by 59 different

associations. On average, each subproject employed 40 persons for 2.5 months (or 50 days). A total of 3,111 persons (of which 54 percent were women) were temporarily employed through the project. The grant benefited 3,111 low-skilled and long-term unemployed individuals (each beneficiary received a maximum total amount of TND 825 (roughly US$550 at the time of project design) and 100 skilled workers charged with supervising the subprojects (each beneficiary received a maximum total amount of TND 1,175 (roughly US$775 at the time of project design). The total project cost per beneficiary was approximately US$925. In addition, the socioeconomic infrastructures rehabilitated through the project widely served the population

using these services (notably schools and roads). It is also noteworthy to mention that the

associations and regional Project Implementation Units (PIUs) hired additional staff, particularly highly educated youth and women, as they implemented the subprojects for this projectthus creating positive spillover effects on local jobs.

Ratio of salaries over total cost

Initial

Allocation

Allocated Disbursed Disbursem

ent Rate

Salaries unqualified and qualified workers

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