Independent Development Evaluation African Development Bank From experience to knowledge... From knowledge to action... From action to impact Country Strategy Evaluation Madagascar: An IDEV Evaluation of the Bank's Assistance to Madagascar (2002–2012) Summary Report September 2014 Evaluation Syntheses IDEV conducts different types of evaluations — to achieve its Impact Evaluations Sector Evaluations (Public Sector) strategic objectives Project Performance Evaluations Thematic Evaluations Project Cluster Evaluations Project Performance Evaluations (Private Sector) Corporate Evaluations Regional Integration Strategy Evaluations Country Strategy Evaluation Country Strategy Evaluations Independent Development Evaluation African Development Bank From experience to knowledge... From knowledge to action... From action to impact Country Strategy Evaluation Madagascar: An IDEV Evaluation of the Bank's Assistance to Madagascar (2002–2012) Summary Report September 2014 Acknowledgements This report was prepared by Herimandimby Razafindramanana, Chief Evaluation Officer, under the supervision of Samer Hachem, Division Manager, with the support of a team comprising Clement Banse, Evaluation Officer, Bilal Bagayoko, Research Assistant, and three Consultants – Mamadi Camara, Laurence Jacquet and Alain Rakotomavo. Publication of the report was coordinated by Felicia Avwontom, Principal Knowledge Management Officer. Comments and contributions were received from colleagues in other Bank departments, including the Madagascar Field Office (MGFO) and country team. The report was validated and further inputs made during the approval and donor consultation workshop held in Antananarivo on 18 November 2013. The workshop was attended by all stakeholders, including the Minister of Finance and Budget, senior officials of Ministries (Secretaries-General and Directors-General), as well as representatives of civil society, the private sector and Technical and Financial Partners. The Operations and Evaluations Department (IDEV) thanks all individuals and institutions who contributed to the preparation of the report and takes full responsibility for its contents. Rakesh Nangia Rafika Amira Samer Hachem Karen Rot-Munstermann Evaluator General Division Manager Division Manager Division Manager [email protected] [email protected] [email protected] [email protected] © 2014 African Development Bank Group All rights reserved – Published September 2014 Madagascar: Country Strategy Evaluation (2002–2012) – Summary Report IDEV Country Strategy Evaluation, September 2014 Disclaimer Unless expressly stated otherwise, the findings, interpretations and conclusions expressed in this publication are those of the various authors of the publication and are not necessarily those of the Management of the African Development Bank (the “Bank”) and the African Development Fund (the “Fund”), Boards of Directors, Boards of Governors or the countries they represent. Use of this publication is at the reader’s sole risk. The content of this publication is provided without warranty of any kind, either express or implied, including without limitation warranties of merchantability, fitness for a particular purpose, and non- infringement of third-party rights. The Bank specifically does not make any warranties or representations as to the accuracy, completeness, reliability or current validity of any information contained in the publication. Under no circumstances including, but not limited to, negligence, shall the Bank be liable for any loss, damage, liability or expense incurred or suffered which is claimed to result directly or indirectly from use of this publication or reliance on its content. This publication may contain advice, opinions, and statements of various information and content providers. The Bank does not represent or endorse the accuracy, completeness, reliability or current validity of any advice, opinion, statement or other information provided by any information or content provider or other person or entity. Reliance upon any such opinion, advice, statement, or other information shall also be at the reader’s own risk. About the AfDB The overarching objective of the African Development Bank Group is to spur sustainable economic development and social progress in its regional member countries (RMCs), thus contributing to poverty reduction. The Bank Group achieves this objective by mobilizing and allocating resources for investment in RMCs and providing policy advice and technical assistance to support development efforts. About Independent Development Evaluation (IDEV) The mission of Independent Development Evaluation at the AfDB is to enhance the development effectiveness of the institution in its regional member countries through independent and instrumental evaluations and partnerships for sharing knowledge. Independent Development Evaluation (IDEV) African Development Bank Group Statutory Headquarters: Immeuble du Centre de commerce International d’Abidjan (CCIA) Avenue Jean-Paul II 01 BP 1387, Abidjan 01 Côte d’Ivoire Phone: +225 20 26 20 41 Fax: +225 20 21 31 00 E-mail: [email protected] idev.afdb.org Design & layout: CRÉON – www.creondesign.net IDEV Layout and Design Task Manager: Felicia Avwontom Contents Acknowledgements ii Abbreviations and Acronyms v Executive Summary 3 Management Response 9 Introduction 17 Evaluation Objectives 17 Methodological Approach 17 Report Limitations and Structure 17 Country Context 18 Economic and Social Context and Trend 18 Key Development Challenges 19 Country Development Policies and Strategies 20 Bank Intervention Strategies and Programmes 21 Bank Strategies 21 Bank Strategy Implementation: Financial Operations 22 Bank Strategy Implementation: Non-Financial Activities 23 Evaluation of Outcomes and of the Bank’s Contribution to the Country’s Development 25 Relevance of Strategies 25 Effectiveness of Bank Strategies 26 Sustainability and Impact on Institutional Development 31 Cross-Cutting Areas: Environment, Gender and Regional Integration 33 Efficiency of Bank Assistance 34 Performance of Development Partners 37 Bank Performance 37 Government Performance 37 Lessons and Recommendations 39 Annexes 41 Contents List of figures Figure 1 Sector Breakdown of Projects 22 List of tables Table 1 Poverty Trend in Figures between 2001 and 2012 19 Table 2 Relevance Rating 25 Table 3 Effectiveness Rating 26 Table 4 Sustainability Rating 32 Table 5 Rating of Cross-cutting Areas 33 Table 6 Efficiency Rating 34 Table 7 Trend of Bank Portfolio Performance in Madagascar 35 List of boxes Box 1: Some socio-economic impacts of the Toliara Province Road Project (PRPT) 28 Box 2: Delay factors due to the design of certain projects 35 Abbreviations and Acronyms v Abbreviations and Acronyms ADB African Development Bank ECG Evaluation Cooperation Group ADF African Development Fund EFA Education for All ADOA Additionality and Development NGO Non-Governmental Organization Outcomes Assessment NR National Road AIDS Acquired Immuno-Deficiency OECD Organization for Economic Syndrome Cooperation and Development AIRIS Support for Regional Initiative on ONE National Environment Authority Sexually Transmitted Infections OPEC Organization of Petroleum Exporting ANDEA National Water and Sanitation Countries Authority ORCE Regional Department Centre ARM Madagascar Road Authority PABRP Tulear Fishing Communities Support ASYCUDA UNCTADD-designed Customs Project Management Software PACPT Operations Evaluation Department AU African Union PAGI Institutional Governance Support BC Building and Construction Programme BIANCO Independent Anti-Corruption Office PAIR Road Infrastructure Development Project CAE Country Assistance Evaluation in Atsimo Andrefana Region CFAA Country Financial Accountability PALMT Communicable Disease Control Support Assessment Project CHD District Hospital Centre PANAGED National Gender and Development Action CPIA Country Policy and Institutional Plan Assessment PIU Project Implementation Unit CODE Committee on Operations and PRSP Poverty Reduction Strategy Paper Country Strategy Evaluation Development Effectiveness PCIU Project Coordination and Implementation COMESA Common Market of East and Unit An IDEV Southern Africa PDS Health Master Plan CRTS Regional Blood Transfusion Centre PEFA Public Expenditure and Financial CSB Health Data Centre Accountability CSP Country Strategy Paper PHAGDIS General District Pharmacy DAC Development Aid Committee PLPA Preventive Locust Control Project DGB General Directorate of the Budget PLWH Person Living with Human DGE General Directorate of the Economy Immunodeficiency Virus DGI General Directorate of Taxes PN2D National Programme on Decentralization and Devolution DPE Provincial Directorate of Education PNM National Maize Programme DTCP Diphtheria, Tetanus, Whooping Cough, Poliomyelitis PNS National Health Policy DWS Drinking Water Supply PPF Project Preparation Facility DWSS Drinking Water Supply and Sanitation PPP Public-Private Partnership PPP Purchasing Power Parity vi Madagascar: Country Strategy Evaluation (2002–2012) – Summary Report PRER Road Rehabilitation and Maintenance MFB Ministry of Finance and Budget Project MGFO Madagascar Field Office PRIASO Agriculture Infrastructure Rehabilitation MIC Middle Income Country Project in the South West MTEF Medium-Term Expenditure Framework EITI Extractive Industries Transparency MW Megawatt Initiative PROJER Young Rural Entrepreneurs Project ENSOMD Economic and Sector Work PRBM Bas-Mangoky Scheme Rehabilitation ESW World Health Organization Project ESIA Environmental