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Republique Federale Islamique Des Comores Document of The World Bank FOR OFFICIAL USE ONLY Public Disclosure Authorized Report No,: 17939 IMPLEMENTATION COMPLETION REPORT Public Disclosure Authorized FEDERAL ISLAMIC REPUBLIC OF COMOROS HIGHWAY MAINTENANCE PROJECT (Credit 2207-COM) Public Disclosure Authorized June 2, 1998 Transport I Eastern and Southern Africa Region Public Disclosure Authorized 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. CURRENCY EQUIVALENT Monetary unit = Comorian Franc (FC) (FC/US$, period average) 1989 1990 1991 1992 1993 1994 1995 1996 1997* 319.0 272.3 282.1 264.7 283.2 416.4 374.4 383.7 441.9 (*) As of October Source: InternationalFinancial Statistics, IMF WEIGHTS AND MEASURES 1 Kilometer (km) 0.62 mile I square Kilometer (km') 0.386 sq. mile FISCAL YEAR OF BORROWER January I - December 31 ABBREVIATIONS AND ACRONYMS DCA Development Credit Agreement DGTP General Directorate of Public Works (Direction Gdndrale des Travaux Publics DRTP Regional Directorate of Public Works (Direction R6gionale des Travaux Publics EU European Union FAC French Aid and Cooperation Fund (Fonds d'Aide et de Coop6ration) FER Road Maintenance Fund (Fonds d'Entretient Routier) GOC Government of Comoros ICR Implementation Completion Report IDA International Development Association IsDB Islamic Development Bank PAD Project Appraisal Document PIP Priority Investment Program (Programme d'Investissement Prioritaire) RN National Road (Route Nationale) SAR Staff Appraisal Report SDR Special Drawing Rights UNDP United Nations Development Program WFP World Food Program Vice President: Mr. Callisto E. Madavo Country Director: Mr. Michael Sarris Sector Manager: Mr. Yusupha B. Crookes Task Team Leader: Mr. Abdelmoula Ghzala IMPLEMENTATION COMPLETION REPORT FOR OFFICIAL USE ONLY FEDERAL ISLAMIC REPUBLIC OF COMOROS HIGHWAY MAINTENANCE PROJECT (CREDIT 2207-COM) Table of Contents PREFACE EVALUATION SUMMARY iii PART I - PROJECT IMPLEMENTATION ASSESSMENT 1 A. Background 1 B. Statement and Evaluation of Project Objectives 2 C. Achievement of Project Objectives 3 D. Major Factors Affecting the Project 8 E. Project Sustainability 9 F. Bank Performance 10 G. Borrower Performance 10 H. Assessment of Outcome 11 I. Future Operations 12 J. Key Lessons Learned 12 PART II - STATISTICAL TABLES 15 TABLE 1: Summary of Assessments 15 TABLE 2: Related IDA Credits 16 TABLE 3: Project Timetable 16 TABLE 4: Credit Disbursements: Cumulative Estimated and Actual 17 TABLE 5: Key Indicators for Project Implementation 18 TABLE 6: Studies Included in the Project 21 TABLE 7: Project Costs 22 TABLE 8: Project Financing 22 TABLE 9: Economic Costs and Benefits 23 TABLE 10: Status of Legal Covenants in Credit Agreement 24 TABLE 11: Bank Resources: Staff Inputs 24 TABLE 12: Bank Resources: Missions 25 APPENDICES A. Implementation Completion Mission's Aide Memoire B. Borrower Contribution to the ICR C. Maps IBRD 22135, 22136 and 22137 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. IMPLEMENTATION COMPLETION REPORT FEDERAL ISLAMIC REPUBLIC OF COMOROS HIGHWAY MAINTENANCE PROJECT (CREDIT 2207-COM) PREFACE This is the Implementation Completion Report (ICR) for the Highway Maintenance Project, for which Credit 2707-COM in the amount of SDR 4.6 million (US$6.57 million equivalent) was approved on January 22, 1991 signed on March 1, 1991 and made effective on March 2, 1992. The Credit was closed on December 31, 1997 two years later than the original closing date. Final transaction took place on May 7, 1998 at which time a balance of SDR 117,731.17 was canceled. The ICR was prepared by Gualberto Lima-Campos, Consultant, and reviewed by Abdelmoula Ghzala, Task Team Leader for the Project and Yusupha B. Crookes, Sector Manager, AFTT 1. Preparation of the ICR started during the Bank's implementation completion mission in September 1997. The report is essentially based on material in the project file and data provided by the Government of the Federal Islamic Republic of Comoros. The Borrower contributed to the preparation of this ICR and prepared its own evaluation of the Project's execution, which is included as Annex to the ICR. The ICR was sent to the cofinanciers (FAC and UNDP) for comments, if any, on May 11, 1998. No comments were received. IMPLEMENTATION COMPLETION REPORT FEDERAL ISLAMIC REPUBLIC OF COMOROS HIGHWAY MAINTENANCE PROJECT (CREDIT 2207-COM) EVALUATION SUMMARY A. INTRODUCTION i. Bank operations in the transport sector in Comoros began with the First Highway Project (Credit 852-COM, US$5 million) which became effective in January 1979. The objectives of this Project were to assist the Government of Comoros (GOC) in strengthening road administration and upgrading and expanding the main road network. These objectives were only partially achieved. The Bank also co-financed the Second Highway (Maintenance) Project (Credit 1188-COM, US$6.3 million) which became effective in February 1982. The Project aimed at improving the condition of the existing road network, ameliorating accessibility to isolated areas and increasing the institutional capability of road maintenance. These objectives were also partially achieved. B. SUMMARY OF IMPLEMENTATION EXPERIENCE AND RESULTS ii. The Highway Maintenance Project (Credit 2207-COM) was conceived as a further effort to expand the experience of the two previous transport operations in improving the road network and strengthening the Government's road maintenance and rehabilitation capability. According to the Staff Appraisal Report (SAR) the main objectives of the Project were: (i) stemming the deterioration of the paved road network; (ii) improving road safety; (iii) ensuring continued access to markets to and from isolated areas; (iv) continuing the efforts started under the first and second highway projects to strengthen the government's road maintenance operations and establish appropriate road planning and budgeting with help from technical assistance; and (v) promoting private sector development in the area of road maintenance. iii. All the objectives were important for the country and relevant for the transport sector. The objectives were very explicit in the SAR and in the Development Credit Agreement (DCA). They were appropriate for a country where the vast majority of population lives in rural areas and, therefore, important for the development and sustainability of the agriculture activity and for poverty alleviation. They were fully consistent with GOC priorities for the transport sector and supported Bank's country strategy at the time of Appraisal. iv ICR - Comoros: Highway Maintenance Project iv. The Highway Maintenance Project merits a rating of Satisfactory as do Bank's and Borrower's performances. Project objectives were overall achieved since: (i) the condition of the paved road network was substantially ameliorated, (ii) the access to markets for small farmers and consumers in isolated areas was facilitated, (iii) institutional capacity was strengthened, and (iv) private sector in the area of road maintenance works was developed. The life of the Project was initially set at four years. The Credit closing date was extended twice and by two years. Although Credit proceeds have been disbursed 98 percent, the Project remained inactive for almost three years since effectiveness, due to factors such as political instability, underestimation of costs, noncompliance with procurement procedures, as well as long delays in the preparation of the bidding documents for the periodic maintenance works. v. Physical objectives were substantially achieved. Under both the Core and the Additional Programs for Periodic Maintenance, 169 km of paved roads were maintained on the three islands. Under the Program of Routine Maintenance, 478 km of paved and unpaved roads were maintained. Fourteen bridges were also restored. The Project financed also the acquisition and rehabilitation of various types of equipment. vi. Institutional development and public sector management objectives were achieved to a large extent. GOC implemented a comprehensive restructuring plan for DGTP and DRTP including: (i) creation of a Planning and Studies Unit; (ii) staff rationalization; (iii) adoption of new methodologies and organizational procedures; (iv) training of different categories of personnel. The training program was overall adequately carried out and contributed to substantial improvement in the technical and managerial skills of local staff. vii. Sector policy objectives were partially achieved. GOC prepared and discussed with the Bank, the transport sector strategy and PIP. In addition, the study on the development of environmentally sustainable tourism provided GOC with a basis for the design of a tourism sector strategy and the accompanying measures for infrastructure development and environment protection and improvement. However, in 1995, GOC decided to carry out construction of roads, which were not inscribed in PIP and were not in accordance with transport sector policy objectives. viii. Financial objectives were substantially achieved. GOC promulgated new regulations regarding the Road Maintenance Fund (Fonds d'Entretient Routier) (FER) and opened a FER account at the Central Bank. FER contributed to the financing of both Road Maintenance Programs. Expenditures financed by FER
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