Document of The World Bank Report No: ICR2373 IMPLEMENTATION COMPLETION AND RESULTS REPORT (Credit 4281-BUR) ON A CREDIT IN THE AMOUNT OF SDR 49.7 MILLION (US$ 74 MILLION EQUIVALENT) TO BURKINA FASO FOR A SECOND COMMUNITY BASED RURAL DEVELOPMENT PROJECT IN SUPPORT OF THE NATIONAL PROGRAM FOR DECENTRALIZED RURAL DEVELOPMENT (APL) November 30, 2013 Agricultural Rural Development and Irrigation Unit (AFTA1) Sustainable Development Department Country Department AFCF2 Africa Region CURRENCY EQUIVALENTS (Exchange Rate Effective November 2013) Currency Unit = FCFA US$ 1.00 = FCFA 485.91 FISCAL YEAR January 1 – December 31 ABBREVIATIONS AND ACRONYMS AFD Agence Française de Développement (French Development Agency) AN Assemblée Nationale (National Parliament) APL Adaptable Program Loan ARD Agences Régionales de Développement (Regional Development Agencies) CAS Country Assistance Strategy CBRD 1 First Community Based Rural Development Project CBRD 2 Second Community Based Rural Development Project CCAM Commission Communal d’Attribution des Marchés (Municipal Procurement Commission) CCC Cadre de Concertation Communal (Municipal Consultative Group) CCP Cadre de Concertation Provinciale (Provincial Consultative Group) CCR Cadre de Concertation Régional (Regional Consultative Group) CRAM Commissions Régionales d’Attribution des Marchés (Regional Procurement Commission) CSLP Cadre Stratégique de Lutte contre la Pauvreté (Poverty Reduction Strategy) CVD Conseil Villageois de Développement (Village Development Council) CVGT Conseils Villageois de Gestion des Terroirs (Village Land Management Councils) DGFOMR Direction Générale du Foncier, de la Formation et de l’Organisation du Monde Rural (General Directorate for Land Administration, Training, and Rural Organization) DGFROP Direction Générale du Foncier Rural et des Organisations Paysannes (General Directorate for Rural Land Administration and Farmer Organizations) DREP Direction Régionale de l’Economie et de la Planification (Regional Directorate of Economic Planning) ERR Economic rate of return ESMF Environmental and Social Management Framework FIP Forest Investment Program FPDCT Fonds Permanent pour le Développement des Collectivités Territoriales (Permanent Fund for Local Development) FRR Financial rate of return GEF Global Environment Facility ha Hectare ICR Implementation Completion and Result Reports IFR Interim Financial Report IRR Internal rate of return ISR Implementation Status Reports km Kilometer ii LDF Local Development Financing m Meter M&E Monitoring and Evaluation MATDS Ministère de l’Administration Territorial de la Décentralisation et de la Sécurité (Ministry of Land Administration, Decentralization and Security) MEF Ministry of Economy and Finance MCA Millennium Challenge Account NCU National Coordination Unit NGO Nongovernmental organization NPFD National Portfolio Formulation Document NPV Net present value PACT Projet d’Appui aux Collectivités Territoriales (Local Government Support Project) PAI Programme Annuel d’Investissement (Annual Investment Plan) PCD Plan Communal de Développement (Municipal Development Plan) PDO Project Development Objective PFM Public Financial Management PIM Project Implementation Manual PNDRD Programme National de Développement Rural Décentralisé (National Program for Decentralized Rural Development) PNGT Programme National de Gestion de Terroirs (National Program for Land Management) PNSR Programme National du Secteur Rural PRD Projet Pôles Régionaux de Développement (Decentralized Urban Capacity Building Project) PRSP Poverty Reduction Strategy Paper PSC Project Steering Committee RFR Régime foncier rural (Rural land tenure regime) SFR Services fonciers ruraux (Rural land tenure services) SILEM Sahel Integrated Lowland Ecosystem Management t Metric ton Vice President: Makhtar Diop Country Director: Madani M. Tall Country Manager Mercy Miyang Tembon Sector Manager: Martien Van Nieuwkoop Project Team Leader: Emmanuel Nikièma ICR Team Leader: Elisée Ouédraogo ICR Co-Team Leader: Erick Abiassi iii BURKINA FASO Second Community Based Rural Development Project Table of CONTENTS Data Sheet A. BASIC INFORMATION ........................................................................................................................................ VI B. KEY DATES......................................................................................................................................................... VI C. RATINGS SUMMARY ......................................................................................................................................... VI D. SECTOR AND THEME CODES ............................................................................................................................ VII E. BANK STAFF ..................................................................................................................................................... VII F. RESULTS FRAMEWORK ANALYSIS .................................................................................................................... VIII G. RATINGS OF PROJECT PERFORMANCE IN ISRS ................................................................................................... X H. RESTRUCTURING (IF ANY) .................................................................................................................................. X I. DISBURSEMENT PROFILE ................................................................................................................................... XI 1. PROJECT CONTEXT, DEVELOPMENT OBJECTIVES, AND DESIGN ...........................................................................1 1.1 CONTEXT AT APPRAISAL ............................................................................................................................................. 1 1.2 ORIGINAL PROJECT DEVELOPMENT OBJECTIVES (PDO) AND KEY INDICATORS (AS APPROVED) ................................................. 2 1.3 REVISED PDO (AS APPROVED BY ORIGINAL APPROVING AUTHORITY) AND KEY INDICATORS, AND REASONS/JUSTIFICATION ............ 3 1.4 MAIN BENEFICIARIES ................................................................................................................................................ 3 1.5 ORIGINAL COMPONENTS (AS APPROVED) ...................................................................................................................... 3 1.6 OTHER SIGNIFICANT CHANGES ..................................................................................................................................... 5 2.1 PROJECT PREPARATION, DESIGN, AND QUALITY AT ENTRY ................................................................................................ 6 2.2 IMPLEMENTATION .................................................................................................................................................... 8 2.3 MONITORING AND EVALUATION (M&E) DESIGN, IMPLEMENTATION, AND UTILIZATION ........................................................ 9 2.4 SAFEGUARD AND FIDUCIARY COMPLIANCE .................................................................................................................. 10 2.5 POST-COMPLETION OPERATION/NEXT PHASE .............................................................................................................. 12 3. ASSESSMENT OF OUTCOMES ............................................................................................................................ 12 3.1 RELEVANCE OF OBJECTIVES, DESIGN, AND IMPLEMENTATION .......................................................................................... 12 3.2 ACHIEVEMENT OF PROJECT DEVELOPMENT OBJECTIVES ................................................................................................. 13 3.3 ACHIEVEMENT OF TRIGGERS FOR PHASE 3................................................................................................................... 16 3.4 EFFICIENCY ............................................................................................................................................................ 16 3.5 JUSTIFICATION OF OVERALL OUTCOME RATING ............................................................................................................ 17 3.6 OVERARCHING THEMES, OTHER OUTCOMES, AND IMPACTS ........................................................................................... 17 3.7 SUMMARY OF FINDINGS OF BENEFICIARY SURVEY AND/OR STAKEHOLDER WORKSHOPS ....................................................... 20 4. ASSESSMENT OF RISK TO DEVELOPMENT OUTCOME ........................................................................................ 22 5. ASSESSMENT OF BANK AND BORROWER PERFORMANCE ................................................................................. 24 5.1 BANK PERFORMANCE .......................................................................................................................................... 24 5.2 BORROWER PERFORMANCE .................................................................................................................................. 25 iv 6. LESSONS LEARNED ............................................................................................................................................ 26 7. COMMENTS ON ISSUES RAISED BY BORROWER/IMPLEMENTING AGENCIES/PARTNERS .................................. 27 ANNEX 1. PROJECT COSTS AND FINANCING .......................................................................................................... 28 ANNEX 2. OUTPUTS BY COMPONENT .................................................................................................................... 29 ANNEX 3. ECONOMIC AND FINANCIAL ANALYSIS .................................................................................................. 34 ANNEX 4. BANK LENDING AND IMPLEMENTATION SUPPORT/SUPERVISION PROCESSES ...................................... 39 ANNEX 5. BENEFICIARY SURVEY RESULTS .......................................................................................................................... 40 ANNEX 6. STAKEHOLDER WORKSHOP REPORT AND RESULTS (FULL REPORT IN FRENCH) ..................................... 52 ANNEX 7. BORROWER'S ICR (FULL TEXT IN FRENCH) ............................................................................................. 63 ANNEX 8. COMMENTS OF COFINANCIERS AND OTHER PARTNERS/STAKEHOLDERS .............................................. 71 ANNEX 9. LIST OF SUPPORTING DOCUMENTS ....................................................................................................... 72 v A. Basic Information Second Phase Country: Burkina Faso Project Name: Community-Based Rural Development Project, Project ID: P098378 L/C/TF Number(s): IDA-42810 ICR Date: 11/30/2013 ICR Type: Core ICR GOVERNMENT OF Lending Instrument: APL Borrower: BURKINA FASO Original Total XDR 49.70 M Disbursed Amount: XDR 49.62M Commitment: Revised Amount: XDR 49.70 M Environmental Category: B Implementing Agencies: Cofinanciers and Other External Partners: B. Key Dates Revised / Actual Process Date Process Original Date Date(s) Concept Review: 05/23/2006 Effectiveness: 07/13/2007 07/13/2007 Appraisal: 01/08/2007 Restructuring(s): Approval: 03/27/2007 Midterm Review: 02/26/2010 03/10/2010 Closing: 11/30/2012 05/31/2013 C. Ratings Summary C.1 Performance Rating by ICR Outcomes: Satisfactory Risk to Development Outcome: Low Bank Performance: Satisfactory Borrower Performance: Satisfactory C.2 Detailed Ratings of Bank and Borrower Performance (by ICR) Bank Ratings Borrower Ratings Quality at Entry: Satisfactory Government: Satisfactory Implementing Quality of Supervision: Satisfactory Satisfactory Agency/Agencies: Overall Bank Overall Borrower Satisfactory Satisfactory Performance: Performance: vi C.3 Quality at Entry and Implementation Performance Indicators Implementation QAG Assessments (if Indicators Rating Performance any) Potential Problem Project at Quality at Entry No None any time (Yes/No): (QEA): Problem Project at any time Quality of Supervision No None (Yes/No): (QSA): DO rating before Satisfactory Closing/Inactive status: D. Sector and Theme Codes Original Actual Sector Code (as % of total Bank financing) Adult literacy/non formal education 17 16 General agriculture, fishing, and forestry sector 13 13 Other social services 25 36 Sub-national government administration 28 21 Water supply 17 14 Theme Code (as % of total Bank financing) Decentralization 25 7 Land administration and management 13 3 Municipal governance and institution building 24 21 Participation and civic engagement 25 6 Rural services and infrastructure 13* 63 E. Bank Staff Positions At ICR At Approval Vice President: Makhtar Diop Hartwig Schafer Country Director: Madani Tall Mats Karlsson Sector Manager: Martien Van Nieuwkoop Mary A. Barton-Dock Project Team Leader: Emmanuel Y. Nikiema Emmanuel Y. Nikiema ICR Team Leader: Elisee Ouedraogo ICR Co-Team Leader Erick Abiassi ICR Primary Author: Elisee Ouedraogo * Original amount for rural services and infrastructure has been significantly underestimated as water supply (17%), other social services (25%) and general agriculture, fishing, and forestry sector (13%) together amounts 55% instead of 13%. As a result, the the relative weight of the other Theme Codes has been overestimated. If the original proportions were adjusted based on this, the gap between the Actual and the Original estimates would be less than actually shown. vii F. Results Framework Analysis Project Development Objectives (from Project Appraisal Document) The objective of the Project is to support the Recipient's rural communes (municipalities) in planning and implementing local development activities in a participatory and sustainable manner. The Project contributes to the second phase of the National Program for Decentralized Rural Development. Revised Project Development Objectives (as approved by original approving authority) NA (a) PDO Indicator(s) Original Target Actual Value Values (from Formally Revised Achieved at Indicator Baseline Value approval Target Values Completion or documents) Target Years % of households in supported villages using basic services 55 65 - 76 (primary schools, health center, water source) Date achieved 2005 March 27, 2007 May 31, 2013 Comments This suggests that 76% of rural households had access to at least one basic (incl. % achievement) service; global achievement represents 117% of the target. % of investment maintained in a 75 95 - 98 satisfactory way Date achieved 2006 March 27, 2007 - May 31, 2013 Many management comitees have been set-up to oversee, apply rules and Comments collect contributions of beneficiaries to maintain investments. Achievement (incl. % achievement) represents 103% of the target. % of producers in supported villages using natural resource management techniques—e.g., 60 75 - 74.5 compost pits (fosses fumières) and stone rows (cordons pierreux) Date achieved 2006 March 27, 2007 - May 31, 2013 Compost pits represent 50%, stone rows 25%, and Zaï (planting pits) 11%. In 100% of rural municipalities, natural resource management has been taken into Comments account in Municipal Development Plans (PCDs), and at least 20% of rural (incl. % achievement) municipalities’ budgets were allocated to activities related to natural resource management. % of Rural Municipal Councils with (at least) a satisfactory rating during 0 60 - 88 the annual performance review Date achieved 2006 March 27, 2007 - May 31, 2013 Comments 88% of citizen surveyed were satisfied with the way their municipality was (incl. % achievement) functioning and with activities implemented. Achievement represents 147% of the target. viii (b) Intermediate Outcome Indicator(s) Original Target Formally Actual Value Achieved Baseline Values (from Indicator Revised at Completion or Value approval Target Values Target Years documents) Number of people living in rural areas (area of project intervention) with - - - 511,500 access to potable water sources Date achieved 2005 March 27, 2007 - May 31, 2013 Comments (incl. % achievement) The standard ratio is one water point for 300 inhabitants. % of Municipal Councils where planning functions are carried out 38 80 - 100 satisfactorily Date achieved 2006 March 27, 2007 - May 31, 2013 Overall, the CBRD 2 project supported the development of 201 PCDs and Comments (incl. % achievement) updated 196 PCDs. % of expenses planned in PA1 executed 60 90 - 93 annually Date achieved 2006 March 27, 2007 - May 31, 2013 772 contracts were signed with municipalities and 5,873 microprojects Comments (incl. % achievement) derived from the Annual Investment Plans (PAIs) were implemented. Achievement represents 103% of the target. % of physical investments financed by 90 100 - 96 the project of good technical quality. Date achieved 2006 March 27, 2007 - May 31, 2013 Achievement represents 96% of the target. Training on procurement was Comments (incl. % achievement) instrumental in improving the municipalities’ overseeing of contract execution. % of Village Development Councils (CVDs) annually organize public meetings during which they report on 65 90 - 93 their activities (Assemblée générale bilan) Date achieved 2006 March 27, 2007 - May 31, 2013 Public meetings organized by CVDs mainly focused on the implementation Comments (incl. % achievement) of the municipalities’ annual investment plans, the execution of contracts, and the handling of conflicts. % of Rural Municipal Councils which organized quarterly public meetings 0 75 - 98 during which they report on their activities Date achieved 2006 March 27, 2007 - May 31, 2013 Public reports focused mainly on PCD and implementation of the PAIs. Comments (incl. % achievement) Ordinary meetings and extraordinary meetings represented, respectively, 73% and 21% of meetings in 2012. The law on land tenure is passed NA - - Achieved Date achieved 2006 March 27, 2007 - May 31, 2013 Comments (incl. % achievement) The new law (No 034/2009/AN) passed in June 2009. 50% of rural Municipal Councils members have received training on the 0 50 - 99 new law Date achieved 2006 March 27, 2007 - May 31, 2013 ix Comments (incl. % achievement) . % of financial and procurement audits 100 100 - 100 are unqualified Date achieved 2006 March 27, 2007 - May 31, 2013 The final rating for project financial management was Satisfactory. The project contributed extensively to raising capacity at the municipality level to Comments (incl. % achievement) deal with procurement. Members of 3,780 Municipal Procurement Commissions (CCAMs) were trained in procurement. % of Rural Municipal Councils submit 0 75 - 100 quarterly M&E reports on time Date achieved 2006 March 27, 2007 - May 31, 2013 The project promoted the creation and training of 302 local M&E teams in all rural municipalities to report on the progress of project implementation. A total of 2,443 persons, including members of Rural Municipal Councils and secretaries general of municipalities, were also trained in participatory M&E. G. Ratings of Project Performance in ISRs Date ISR Actual Disbursements No. DO IP Archived (US$ millions) 1 07/24/2007 Satisfactory Satisfactory 0.00 2 01/22/2008 Satisfactory Satisfactory 1.47 3 10/24/2008 Satisfactory Satisfactory 17.53 4 05/29/2009 Satisfactory Satisfactory 23.70 5 12/10/2009 Satisfactory Satisfactory 30.57 6 06/23/2010 Satisfactory Satisfactory 33.07 7 05/22/2011 Satisfactory Satisfactory 55.13 8 11/30/2011 Satisfactory Satisfactory 55.34 9 01/04/2012 Satisfactory Satisfactory 64.14 10 06/30/2012 Satisfactory Satisfactory 70.26 11 02/13/2013 Satisfactory Satisfactory 76.63 H. Restructuring (if any) Not Applicable x I. Disbursement Profile xi 1. Project Context, Development Objectives, and Design 1.1 Context at Appraisal 1. Poverty and rural population. Burkina Faso is a low-income, landlocked, sub-Saharan country with approximately 14 million inhabitants. This population is predominantly rural (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 1. The population relies upon agriculture and is affected not only by poverty but by limited development outcomes. Since 1997 Burkina Faso’s average growth rate of 5.5 percent per year has exceeded the subregional average, yet positive growth has not significantly reduced poverty or improved development outcomes. The country’s per capita income of US$430 represents less than half the sub-Saharan average, Burkina Faso’s poverty rate is estimated at 43.9 percent, and the country ranked 161 of 169 countries in the United Nations Development Programme’s Human Development Index in 2010. 2. Decentralization as the government strategy to reduce poverty. The June 1991 constitution highlighted decentralization as a key element to promote development and democracy and to reduce poverty in Burkina Faso. The Government of Burkina Faso formulated a 15-year National Program for Decentralized Rural Development (Programme National de Développement Rural Décentralisé, PNDRD, 2001–15), to put its vision of decentralized rural development into action. 3. In August 2000, the Government’s Policy Letter on Decentralized Rural Development (Lettre de Politique de Développement Rural Décentralisé) outlined a vision for the rural sector through 2010, which was one of participatory and representative local governments and institutions planning and managing their own development programs, and mobilizing the necessary resources through increased local revenues and government fiscal transfers. The Policy Letter was based on the following principles: (i) total engagement of rural populations in the local development process; (ii) access for rural populations to essential social services; (iii) the contribution of the private sector, including nongovernmental organizations (NGOs) and associations, in implementing local development plans; (iv) enlarging the menu of activities eligible for financing; (v) co-financing activities, both through external and internal revenue sources; (vi) flexibility to adapt to particular needs and strengths of given localities; and (vii) fungibility to enable different donors to better streamline and harmonize approaches, rules, and procedures related to decentralized rural development. 4. In sum, the Policy Letter encapsulated the national approach to rural development and formulated strategies to support that approach. The Policy Letter serves as the primary reference point for conceptualizing, implementing, coordinating, monitoring, and evaluating projects and programs related to rural development. It promotes the harmonization of projects and programs and describes the mechanisms that Burkina Faso intends to put in place to assure the coordination, monitoring, and evaluation of activities related to decentralized rural development. 5. Shortly before appraisal, in April 2006, local elections for the councils of the 302 newly created rural municipalities (communes) were held for the first time. The major challenge for the government in addressing poverty at the local level lay in fostering a spirit of partnership and collaboration among the newly elected local governments, communities, and sectoral staff. Local 1 Burkina Faso, Cadre Stratégique de Lutte contre la Pauvreté (CSLP 2004-2006). 1 capacity building at the village and municipality level led to the adoption of a participatory process for managing local community affairs. 6. Rationale for World Bank involvement. Several development partners modified their support to rural development to align their support for the implementation of the vision for decentralized rural development outlined in the Government’s Policy Letter. The World Bank's response was to develop an Adaptable Program Loan (APL) to finance a Community-Based Rural Development (CBRD) Program. The World Bank's programmatic support to rural development was grounded in the realization that a transformation from supply-driven to demand-driven approaches to rural development required institutional change and time and would benefit from sustained, long-term support to the government's vision for rural development. The first phase of the World Bank’s commitment spurred significant policy reform to foster decentralized rural development. The local government elections of 2006 promoted political decentralization, and development of the Local Government Code (Code Général des Collectivités Territoriales) supported administrative decentralization. 7. The Country Assistance Strategy (CAS) approved by the Board on May 12, 2005, envisaged continued support for the government’s decentralized rural development agenda (PNDRD). The CAS highlighted the role of administrative and political decentralization in reducing poverty, explicitly identified the need to maintain support for local development in Burkina, and noted the successful community-driven development approach followed to date. As mentioned, Phase 1 of the CBRD project made major contributions to decentralization reforms, and the CAS emphasized the importance of continuing to build political will and leverage support for the reforms through well-sequenced analytical work, Poverty Reduction Strategy Credits, and related capacity-building operations. Support for Phase 2 of the CBRD project would make a key contribution to the evolution of decentralization in the rural sector. 8. Compared to other donors, the World Bank was in a unique position to provide Burkina Faso with long-term, programmatic financing and nationwide support. Such long-term, nationwide support could supplement and help harmonize bilateral donors' interventions (based in limited geographical areas across the country) and serve as a unique instrument for the Government of Burkina to better coordinate, monitor, and manage all interventions related to decentralized rural development. As a key contributor to the PNDRD, the World Bank was positioned as a leading supporter of decentralized rural development in Burkina. That programmatic leverage enabled the Bank to advocate further reforms, assist the government in identifying additional resources to implement the PNDRD, and help guide the dialogue surrounding the phasing, content, and reforms associated with the program. Such a role was appropriate, given the World Bank’s broad experience related to decentralized rural development globally and in Africa. 1.2 Original Project Development Objectives (PDO) and Key Indicators (as approved) 9. The project development objective was the following: In support of the National Program for Decentralized Rural Development, rural municipalities plan and implement local development activities in a participatory and sustainable manner. Key result indicators (to be disaggregated by gender and age group when possible) included: 65 percent of households in supported villages using basic services (such as primary school, health center, water source); 95 percent of investment maintained in a satisfactory way; 75 percent of producers in supported villages using natural resource management techniques, such as compost pits (fosses fumières) and stone rows 2 (cordons pierreux); and 60 percent of Rural Municipal Councils with (at least) a satisfactory rating during the annual performance review. 10. The key indicators of intermediate outcomes for Component A were: (i) 80 percent of Rural Municipal Councils in which planning functions are carried out satisfactorily; (ii) 90 percent of expenses planned in Annual Investment Plans (Programmes Annuels d’Investissement, PAIs) executed annually; and (iii) 100 percent of physical investments financed by the project of good technical quality. For Component B, the indicators were: (i) 90 percent of Village Development Councils (Conseils Villageois de Développement, CVDs) annually organize public meetings (assemblées générales bilan) during which they report on their activities and (ii) 75 percent of Rural Municipal Councils organize quarterly public meetings during which they report on their activities. For Component C, the indicators were: (i) the law on land tenure is passed and (ii) 50 percent of rural municipal council members have received training on the new law. For Component D, the indicators were: (i) 100 percent of financial and procurement audits are unqualified and (ii) 75 percent of Rural Municipal Councils submit quarterly monitoring and evaluation reports on time. 1.3 Revised PDO (as approved by original approving authority) and Key Indicators, and reasons/justification 11. The PDO and key indicators were not revised. 1.4 Main Beneficiaries 12. The project targeted all 302 rural municipalities nationwide and expected to benefit a population of over 6.5 million. 2 The rural municipalities were situated in all 13 of Burkina’s administrative regions. Groups of beneficiaries included local communities and households, specific populations (the poor, women, and youths), municipal councilors, CVD representatives, civil society, service providers and decentralized technical services, as well as private contractors, NGOs, and ministry staff. 1.5 Original Components (as approved) 13. The original project had four components: (A) Strengthened Capacity for Decentralized Rural Development, (B) Local Development Financing, (C) Rural Land Tenure Reform, and (D) Project Coordination, Monitoring, and Evaluation. 14. Component A: Strengthened Capacity for Decentralized Rural Development (US$l6.7 million). Activities were geared toward achieving the component’s stated objectives of: (i) rural municipalities and villages formulating and updating their development plans and investment programs in a participatory manner and (ii) rural municipalities and villages receiving quality support from service providers. Capacity-building activities were expected to address the technical and fiduciary skills needed at the different decentralized levels to implement local development activities. 2 The estimated current population in the 302 rural municipalities, based on the 1996 National Census. 3 15. By doing so, component A focused on reinforcing several core competencies: • Strengthening the ability of the 302 newly created rural municipalities to take the lead in local development by elaborating development plans (PCDs) and overseeing investment activities contained in their investment plans (PAIs). • Supporting targeted villages to elect representative development councils (CVDs), articulate simplified village development and investment plans, and implement the activities identified therein. • Ensuring that natural resource management, as the base of economic development in rural areas, is taken into account in a robust manner when elaborating both PCDs and PAIs. • Ensuring that local development is an inclusive, transparent, and accountable process. • Stimulating effective communication among and between diverse stakeholders involved in local development. 16. Component B: Local Development Financing (US$68.3 million). The objective of this component was to provide financial resources to rural municipalities to implement their local investment plans, while promoting transparent management of those funds and timely implementation of the plans. For the newly created local governments, access to financial resources would not only support investments but would give local governments an opportunity for “learn by doing,” build credibility among their constituents, and create the critical linkages (downstream to villages and upstream to government agencies) that make local development a reality. 17. Under this component, local governments would be required to transfer a minimum percentage of resources to villages within their localities to support development activities identified in the village development and annual investment plans. All participating municipalities and villages would develop a strategic development plan outlining the locality’s development vision for a four-year period. Those development plans would be the basis for annual investment plans that would outline all capital investments to be undertaken within the locality during the fiscal year. Funds would be allocated annually based on a population-based formula that reflected investment funds made available by other development partners, and a list of activities excluded from support would be developed. This amount of funding available was to be publicly disclosed each year. Local governments were expected to meet specific criteria to access funds under the Local Development Financing (LDF) component, and a sample of rural municipalities would be selected for an annual performance review. 18. Component C: Rural Land Tenure Reform (US$2.2 million). The objective of this component was to put in place a legal framework for land tenure, understood by the different stakeholders. Activities would extend along two axes: (i) putting an institutional and legal framework in place for the effective management of rural land tenure and (ii) creating the conditions to implement the framework. Specific activities included, inter alia: supporting the government’s formal validation of the draft Rural Land Tenure Policy; developing a Rural Land Tenure Law and the associated regulations, along with an action plan for implementing the law; and supporting the functioning of a Round Table composed of development partners and government ministries involved in rural land tenure issues. The General Directorate for Rural Land Administration and Farmer Organizations (Direction Générale du Foncier Rural et des Organisations Paysannes, DGFROP) would manage this component, with active support and supervision by the project’s administrative structure. 4 19. Component D: Program Coordination, Monitoring, and Evaluation (US$l7.8 million). This component aimed to promote efficient monitoring and coordination of project components by supporting: (i) the coordination and efficient administrative, technical, and financial management of the project and (ii) monitoring and evaluation of the performance, results, and impacts of the project and overall program. Under this component, the project would continue its support to the national forum on decentralized rural development—Cadre National de Coordination et de Concertation du Développement Rural Décentralisé—to guide overall programmatic support to local development. It would also support a National Coordination Unit (NCU) for the overall management and coordination of the project. 1.6 Other significant changes 20. The original closing date for CBRD 2 (November 30, 2012) was extended by six months to May 31, 2013, to allow the government to complete all project activities. Municipal and legislative elections, as well as by the socio-military crisis, had delayed completion of microprojects and some key capacity-building activities. 21. Two food crises also affected implementation. Drought and floods in the 2007–08 agricultural cycle led to food insecurity in 2008. At the government request to support efforts to mitigate the food crisis, the project provided 6,800 tons of improved seed to the 302 municipalities to enable 300,000 households in affected areas to reestablish agricultural production. In 2012, another food crisis affected 166 municipalities just as 50,000 refugees from the war in Mali moved into Burkina Faso’s northern and western municipalities. In the 172 municipalities and seven refugee camps affected by these events, the project (within the scope of the actions it was eligible to take under the circumstances) provided 5,161 tons of cereals, which supported government efforts to alleviate mounting food scarcity and enabled the population to remain in the affected zones. The government appreciated the project’s flexibility, not only for support in coping with the food crises but especially for extending the project closing date to allow the project’s numerous achievements to be consolidated in those municipalities. 22. At project appraisal, the overall financing scheme also envisaged the Global Environment Facility (GEF) and the International Fund for Agriculture Development (IFAD) as parallel co- financiers with a total contribution of US$16.9 million. Unfortunately, funding from these two partners never materialized. Indeed, after the approval of CBRD 2, the project was informed that due to the delay of the country’s submission of request for GEF financing, the GEF 4 resources were exhausted. Although, the request of the government has been timely submitted to IFAD, the preparation of IFAD component was delayed. When IFAD funding was finally approved, it was the Ministry of Environment that was chosen as the implementing agency instead of CBRD 2 as initially planned and even with the later IFAD funding never materialized. 5 2. Key Factors Affecting Implementation and Outcomes 2.1 Project Preparation, Design, and Quality at Entry 23. The project’s design was appropriate for achieving the long-term goal, agreed upon with the Government of Burkina Faso, of a harmonized, decentralized rural development framework. Implementation arrangements in the second phase of the project built on successes of the first phase to further incorporate sustainable, decentralized administrative structures throughout the country, including the newly elected rural municipal councils. Lessons learned from Phase 1 and reflected in the design of Phase 2 included: • It is critical to harmonize approaches around government policies. Phase 1 put the government’s vision for decentralized rural development into action. At this juncture, it is vital to place renewed emphasis on coordinating support to the decentralized development program, particularly with respect to geographic coverage and the appropriate nature and scope of support for the newly established local rural governments; • In Burkina, natural resource management and land tenure make critical contributions to sustainable decentralization. Given the scarce resources in the country, an emphasis needs to be placed on those that do exist and that underpin economic development in rural areas, in order to ensure their conservation and/or efficient and sustainable utilization. For that reason, the program will strengthen the abilities of rural municipalities to incorporate natural resource management issues both in their development plans and their annual investment programs; • Champions in government and civil society will need to continue to push the decentralization reform agenda. Putting the Local Government Code into practice will require significant changes in the power balance within Burkina’s political and bureaucratic structures. A clear vision for this transformation needs to be put forward, and the World Bank’s support will need to combine high-level dialogue with strengthened technical skills at central and local levels to make such reforms a reality; • Capacity is built more effectively through learning by doing. Experimental learning at the village level was one of the key successes of Phase 1. Phase 2 will continue to espouse learning by doing, though the emphasis will shift to the newly created municipalities, where local development is centered but experience and capacity are weak; • Place strong emphasis on transferring skills to sustainable structures. Phase 1 successfully and closely partnered with existing legally mandated entities (such as the Village Management Councils) 3 and with decentralized public sector staff, civil society, and the private sector. Phase 2 will build on this foundation and gear support toward developing technically and fiscally viable rural municipalities; and • Make monitoring and evaluation (M&E) meaningful and results oriented. The strong M&E system developed for Phase 1 will be refined and simplified. It will gather high-quality data that stakeholders can use for real-time management, in addition to being useful at the policy- making, programmatic level. The M&E system will focus more closely on identifying results and outcomes that can be attributed to the project and overall program. 3 Conseils Villageois de Gestion des Terroirs (CVGTs). 6 24. Preparation of the project’s second phase started in 2006, and approval came in less than one year, on March 27, 2007. The project was prepared by an experienced team assembled by the Bank to ensure good documentation and swift processing of clearances and approval. The team consulted widely with the prospective beneficiaries, including the new elected Municipal Councils, CVDs, government technical staff (at the central, regional, and provincial levels), development partners involved in decentralization, and civil society organizations. Consultation with other development partners ensured that the Bank’s intervention conformed to national priorities identified in the Poverty Reduction Strategy Paper and was consistent with the Bank’s Country Assistance Strategy. Based on the achievements of Phase 1, the project’s stakeholders virtually unanimously recognized the program’s relevance and recommended ways of improving the project’s design and implementation arrangements. 25. The Project Implementation Document, M&E Manual, Environmental and Social Management Framework, and fiduciary arrangements were all prepared in good time to speed implementation once the project came into effect on July 23, 2007. The official launch on April 28, 2007 was placed under the leadership of the Prime Minister, showing the government’s high- level commitment. Information and communication campaigns on the project’s implementation arrangements have been instrumental in facilitating inclusive participation and endorsement across the spectrum of stakeholders. 26. Regarding risks, the financial capacity assessment during preparation confirmed that the financial management arrangements in Phase 1 had been generally satisfactory and that the coordination capacity of the NCU was good, providing a sound foundation on which Phase 2 could build. The assessment of the financial performance of DGFROP was however, identified as a weakness. It recommended that appropriate training be given on financial management before disbursement, a condition that the project fulfilled. 27. Also, an assessment of procurement capacity at preparation concluded that the project had acceptable procurement capacity at the national level but poor capacity at the municipality and village levels, where the procurement risk was considered high. Several corrective measures were agreed upon to mitigate that risk (as indicated in the Project Manual of Procedures): (i) preparing and signing a written agreement with the National Procurement Directorate to support municipal capacity-building activities; (ii) building specific capacity in procurement for rural municipalities and villages in the first year of Phase 2; (iii) recruiting an independent consultant to perform an annual procurement audit related to activities financed by Component B; (iv) setting a procurement threshold approval limit between councils and mayors during the first year; (v) including a provision that the first three contracts, first two national competitive bidding procedures, and first two consultant selections by each municipality would be submitted to the NCU; (vi) ensuring that different persons are in charge of selecting and approving suppliers; and (vii) including training on filing and archiving to facilitate incoming audits. 28. Consequently, the project adapted and simplified training modules on procurement and used the newly designed materials to train all Municipal Procurement Commissions (Commissions Communales d’Attribution des Marchés, CCAMs) in the 302 municipalities. As a result, 3,780 CCAM members—encompassing mayors, secretaries general of the municipalities, decentralized staff of technical services, regional auditors, and municipal councilors—received procurement training. 7 2.2 Implementation 29. The first year of implementation focused on information, communication, and capacity building among the stakeholders. The municipalities initiated development planning in 2008 with the completion of the first 96 PCDs. Implementation of the LDF component was launched in 2009. The project allocated US$12,349,630 to an initial group of 169 municipalities to implement microprojects. That same year, an additional 117 municipalities fully completed their PCDs. Overall, CBRD 2 supported the development of 201 new PCDs and the updating of 196 PCDs. The remaining municipalities benefited from financial support provided by other development partners. In 2010 and 2011, the LDF component was extended to all 302 rural municipalities. Given that a total of three years of LDF support could be allocated to each municipality, 2011 was the final year for the first 169 municipalities to receive that funding, whereas the remaining 133 municipalities received their last allocation in 2012. Overall, US$56,874,000 was allocated to the 302 municipalities to support local development, capacity building, natural resource management, and land tenure legislation. 30. Several major events affected implementation. First, the two food crises mentioned previously, combined with the arrival of refugees from the war in Mali, complicated implementation and called for other forms of support by the project. A second series of major events—the municipal and legislative elections of 2012—prevented some enterprises from completing microprojects, forcing the government to request a six-month extension of the project. Some municipalities experienced instances of mismanagement, whereas others experienced social unrest after the elections (such as demonstrations against the legitimacy of the mayor in Boussouma, Kantchari, Korsimoro, Koubri, Loumbila, Matiacoali, Nasséré, Pissila, Tibga, and elsewhere), which significantly delayed implementation of their investment plans. All regions and municipalities were exposed to the effects of the socio-political and military crisis that Burkina Faso faced in 2011. 31. The communication campaigns conducted to build awareness of the project’s implementation arrangements were instrumental in facilitating inclusive participation and endorsement by all stakeholders. Another feature of the project that provided a strong foundation for implementation was the well-designed materials and training courses used to build procurement capacity among 3,780 CCAM members of 302 municipalities. That training was a vital contribution to improving the execution rate of PAIs. 32. Similar thorough groundwork and inclusive communication characterized the efforts related to land tenure, which in turn contributed positively to the implementation of other activities under the project. The commitment of the project team and DGFROP staff, alongside government involvement at a high level, led to the adoption of the Rural Land Tenure Policy 4 in October 2007 and the new Rural Land Tenure Law in July 2009. 5 This effort also involved information and sensitization workshops organized in the 44 provinces for 351 rural and urban municipalities, the publication of the Rural Land Tenure Policy and text of the new law in several languages (including the three main national local languages), and the dissemination of that information through various communication tools and training workshops organized in the 13 regions. 4 Decree No. 2007-610/PRES/PM/MAHRH. 5 Law No. 034/2009/AN. 8 33. The midterm review of the project in February 2010 assessed that it was premature to rely on the newly created Permanent Fund for trigger 1 (integration of rural municipalities’ investment activities into the Permanent Fund for Local Development), 6 so that trigger was removed. At the same time, the intermediate outcome indicator related to the “percentage of physical investments financed by the project of good technical quality” was readjusted from 100 percent to 90 percent. The midterm review also added a core indicator related to the “number of people living in rural areas (area of project intervention) with access to potable water sources” into the results framework. 2.3 Monitoring and Evaluation (M&E) Design, Implementation, and Utilization 34. At the start of the project, the implementation team updated and adopted the Monitoring and Evaluation Manual. The project’s M&E system had three components: (i) monitoring the project’s performance to report periodically on the progress of physical and financial implementation (project outputs); (ii) monitoring the intermediate results, and (iii) reporting on the project’s outcomes (impact assessment). 35. To monitor outputs, the project implemented an impressive range of reporting and activities, including: (i) 82 reports (quarterly and semi-annual reports, quarterly activity planning reports, and consolidated annual reports); (ii) 14 quarterly meetings to report on project results; (iii) 10 steering committee sessions to validate project reports and annual work plans and budgets; (iv) development of methodological tools for participatory M&E; (v) creation and training of 302 local M&E teams in all rural municipalities to report on the progress of project implementation; (vi) capacity building for the 13 regional M&E specialists and 13 regional staff of the Ministry of Economy and Planning on Tecpro software, database creation and management, and geographic information systems; (vii) training of 2,443 municipal councilors and secretaries general of municipalities on participatory approaches to M&E; (viii) training of 1,800 Provincial Consultative Group (Cadre de Concertation Provinciale, CCP) members on M&E and environmental and social safeguards; (iv) training of 4,519 CVD members on the use of participatory M&E tools; (x) recruitment and training of 72 facilitators to assist the rural municipalities in the M&E activities; (xi) monitoring of impact assessment studies; and (xii) M&E database operationalization. 36. Two countrywide surveys collected data on intermediate results in the field in 2010 7 and again in 2011. 8 In 2010, the sample included 29 provinces, 98 municipalities, 256 villages, and 293 microproject investments; 1,684 individuals were surveyed on natural resource management, capacity building, and the functioning of municipal councils. The 2011 survey covered all 45 provinces and 302 rural municipalities under the project and included 1,500 villages and all socioeconomic infrastructures developed through microprojects between 2009 and 2010. The survey of individuals covered 901 persons. 6 Fond Permanent pour le Développement des Collectivités Territoriales (FPDCT). 7 PNGT 2, 2011a, “Rapport de suivi des résultats intermédiaires de 2010 du PNGT2 2 Phase II.” 8 PNGT 2, 2012a, “Suivi des résultats Intermédiaires du PNGT2 phase II, Effets des investissements réalisés par les communes rurales de 2009 à 2011 avec l’appui du PNGT2.” 9 37. The University of Ouagadougou conducted the impact assessment, focusing on harmonizing the methodology and tools used to assess the impact of microprojects and the program as a whole. Assessment of the project’s impact on living conditions, income, and rural poverty used monetary and nonmonetary (human) poverty indicators. Monetary poverty has been evaluated using the poverty incidence, depth, severity, and inequality (estimated by the Gini index). 9,10 38. Data to measure project outcomes were collected through two studies. The first study, conducted in 2008, 11 gathered baseline data, and the second study, conducted in 2012, 12 gathered data to assess the project’s contribution and impact on living conditions in villages and on governance in rural municipalities. Furthermore, the progress made and the results achieved by the project were summarized in semi-annual and annual reports provided to the Ministry of Agriculture, Water, and Fisheries, 13 and were also shared with all project stakeholders. 39. The performance of CBRD 2 in M&E was recognized by supervision missions as crucial to the efficiency of project implementation and the development agenda in Burkina Faso. Among all of the projects fielded nationally by the World Bank and other agencies, CBRD 2 was publicly acknowledged as having the strongest operational M&E system, and the government cited the systems as a model of best practice. 2.4 Safeguard and Fiduciary Compliance 40. From an environmental and social safeguards standpoint, the CBRD project received a B classification, given that the project’s environmental and social impacts were expected to be minimal, site-specific, and manageable to an accepted level. The project triggered two World Bank safeguard policies: Environmental Assessment (OP 4.01) and Involuntary Resettlement (OP 4.12). An important consideration was that the project’s natural resource management efforts were expected to improve environmental conditions and thus provide a net benefit with respect to environmental wellbeing. 41. Safeguards. Throughout project implementation, the Environmental Assessment and Involuntary Resettlement as well as Overall Safeguard Compliance were rated satisfactory. At preparation, three key documents were developed: (i) an Environmental and Social Management Framework (ESMF), (ii) an Involuntary Resettlement Policy Framework, and (iii) a Procedure Framework to reduce potential negative social impacts arising from restrictions on access to protected areas. 42. The implementation of the ESMF involved a number of activities. Information on the ESMF was diffused widely among stakeholders and published in local newspapers. The project’s Regional Coordination Units (RCUs) received training on the ESMF to ensure consistency in environmental screening for the project. The database of microprojects with potential negative risks was updated, and budgeted mitigation plans were prepared. An environmental screening checklist was integrated into the funding agreements for all cofinanced microprojects, and a list 9 PNGT2 2011b, “Les conditions et le niveau de vie des ménages ruraux au Burkina Faso dans le contexte de la décentralisation : Résultats de l’enquête de base PNGT2 2010,” Université Ouaga II, Ouagadougou. 10 PNGT2 2012b, “Les conditions et le niveau de vie des ménages ruraux au Burkina Faso dans le contexte de la décentralisation : Résultats de l’enquête de base PNGT2 2010, ” Université Ouaga II, Ouagadougou. 11 PNGT2, 2008, “Etude de base sur le capital Social et la gouvernance Locale au Burkina Faso.” 12 PNGT2, 2012c, “Etude sur le capital social et la gouvernance locale dans les communes rurales du Burkina Faso en 2012.” 13 Ministère de l'Agriculture, de l'Hydraulique et des Ressources Halieutiques. 10 of environmental requirements was added to contracts signed between municipalities and services providers. A safeguards section was added to the reporting template for regional project coordination units. A number of tools were designed to enable rural municipalities to implement safeguards, including a project categorization sheet, microproject selection grid, an updated grid for assessing community microprojects, and a simplified template to report on meetings for ceding land tenure of microproject sites. Social and environmental safeguards training modules were adapted to the needs of rural municipalities, and the corresponding training was provided to 1,269 municipal councilors and secretaries general. In addition, the project provided training in environmental and social safeguards to the 13 M&E specialists and held training workshop for 45 CCP members. 43. The efforts made it possible to secure land for 100 percent of the sites for building schools, modern markets, and bus stations and 84 percent of the land for livestock infrastructure. Hygiene for 94 percent of the water infrastructure developed under the project was rated satisfactory, and 93 percent of communities respected the rules governing the protection of diversity in forests and rural municipalities were observed. Local management committees were established for at least 79 percent of the lowlands developed under the project. 44. Procurement. Procurement under the project was satisfactory. A procurement plan was prepared every year, regularly updated, and approved. The filing of procurement documents within the NCU was good and permitted procurement processes to be tracked easily. Overall, 42 procurements of furniture, two procurements of works, and 133 procurements of consultant services were executed at the central level. 45. At the local level, municipalities were responsible for procurement when implementing their annual investments. To facilitate that process, the government established a procurement commission (CCAM) in each municipality, but the capacity of the commission was weak. As discussed, a major contribution of CBRD 2—and a prerequisite for sound local governance and successful implementation of municipal microprojects—was to develop simplified tools and provide training in procurement for all CCAM members in the 302 municipalities, in addition to a number of provincial and regional staff. This step was extremely important, especially in light of the fact that Burkina’s complex public procurement procedures were not well adapted to the needs and capacities of rural municipalities. 46. Aside from the factors just mentioned, the challenges to procurement under the project included low technical qualifications among local service providers, which occasioned delays and failures in executing contracts, as well as long delays in paying service providers. The limited number of qualified human resources provided to municipalities, as well as the lack of basic equipment and facilities (computers, electricity, and so on), presented further challenges. 47. Financial management. The NCU managed the project’s financial, administrative, and accounting arrangements. The unit provided the required information on financial management to the Bank through quarterly Interim Financial Reports (IFRs) that were of adequate quality and responsive to the Bank’s recommendations. The final IFR was received with no comment from the Bank. All external financial audits were carried out regularly, audit reports were submitted yearly before the deadline, and all of the audit reports were unqualified. The final external audit of the project’s Designated Account is ongoing (the report is expected before November 30, 2013). 11 48. Virtually all (99.85 percent) of the loan proceeds were disbursed at project closing on May 31, 2013. The final rating for project financial management was satisfactory, taking into account the good management of the Designated Account and the NCU’s efficiency in implementing the action plan for improving the financial management system. 2.5 Post-completion Operation/Next Phase 49. The Community-Based Rural Development Project is supported by the World Bank through an APL divided into three phases of five years each. Each of the phases is expected to be designed flexibly to adapt to the country's decentralization choices, the pace of resulting institutional reforms, and the need to harmonize various approaches. 50. The achievements of CBRD 2, which built on those of CBRD 1, are many and impressive, and they need to be consolidated and deepened across the municipalities and regions. Communities require additional capacity building and investments to build a sustainable basis for decentralized rural development, which should provide the foundation for a true socioeconomic transformation. Municipal elections at the end of 2012 brought a new cohort of municipal councilors with limited or no experience in local governance (70 percent of councilors), necessitating a focus on transferring knowledge from experienced to new councilors. The commitment and dedication of local communities need to be strengthened, particularly in prioritizing development investments and in actively monitoring the performance of their elected local governments and service providers. 51. The third and last phase of the CBRD APL program was designed and approved by the World Bank on December 20, 2012, signed on February 25, 2013 (prior to the closing date of CBRD 2), and became effective on June 21, 2013. This third phase is blended with GEF resources to integrate sustainable land and forest management, which will also serve as follow-up to a project funded by GEF (SILEM). 14 The third phase of the CBRD project constitutes a cornerstone operation for the World Bank portfolio, given its extensive territorial coverage and its close linkages to other World Bank–financed operations in rural development, natural resource management, and decentralization. 3. Assessment of Outcomes 3.1 Relevance of Objectives, Design, and Implementation 52. The project’s objectives, design, and implementation are highly relevant. They are entirely consistent with the major strategic policy orientation and mechanisms for implementation articulated in the Government of Burkina Faso’s Policy Letter for Decentralized Rural Development. The CBRD 2 project has effectively helped to implement mechanisms to make decentralized rural development operational at the municipal, provincial, and national levels. 14 Sahel Integrated Lowland Ecosystem Management. 12 53. In December 2010, the government adopted its Strategy for Accelerated Growth and Sustained Development for 2011–15, 15 which covers the first five years of the government’s “Burkina 2025” vision. The strategy provides the framework for achieving the government’s medium-term goals, including the incremental decentralization of fiscal and administrative operations (emphasized in the Strategic Framework for Implementing Decentralization.) 16 54. The World Bank’s CAS approved by the Board on May 12, 2005, explicitly mentioned the need for further support for local development in Burkina. It noted the success of the community- driven development approach in Burkina to date and envisaged continued support to the government’s decentralized rural development program (PNDRD). Administrative and political decentralization also are also featured in the CAS, given the important role they play in poverty reduction. The CAS clearly notes that decentralization represents an important opportunity for promoting community participation in decision making and monitoring service delivery, particularly for the poor. Moreover, an additional evidence of the relevance of CBRDII to country needs is the fact that the third phase of the project was prepared, approved and signed before the completion of Phase 2. 55. The implementation of CBRD 2 has helped to further consolidate and anchor effective local governance. Local institutions are functioning and are increasingly implementing accountability principles. The percentage of municipalities reporting to their constituents each year rose from 67 percent in 2009 to 98 percent in 2012. The municipalities have reinforced their ability to lead local development by adding new capacity (including skills in planning local development), building socioeconomic and administrative infrastructure, and promoting greater gender equality and better natural resource management. 3.2 Achievement of Project Development Objectives 56. The overall PDO was achieved. In line with the government’s decentralized rural development program (PNDRD), the PDO of Phase 2 was to enable rural communes to plan and implement local development activities in a participatory and sustainable manner. Phase 2 was expected to: (i) strengthen the capacity of villages and local governments to prioritize, plan, implement, and maintain community-based investments; (ii) provide decentralized funding for demand-driven and community-managed rural investments and services; and (iii) support the ongoing decentralization process. 57. In brief, the project empowered rural municipalities to take responsibility for local planning, steering local development, managing local development investments, and monitoring activities at the local level. The project also contributed to a range of important institutional and legal reforms aimed at promoting more secure rural land tenure. All four of the key performance outcome indicators for the PDO were fully achieved, as discussed next (for additional details, see Annex 2). 15 Stratégie pour la Croissance Accélérée et le Développement Durable. 16 Cadre Stratégique de Mise en Œuvre de la Décentralisation. 13 58. Indicator 1: 65 percent of households in supported villages using basic services (primary schools, health center, water source). The national survey of household living conditions showed that 75 percent of rural households had access to at least one basic service. 17 In 2011, 75 percent of the villages in each municipality had at least one school, and net school enrollment had increased from 31 percent in 2005 to 44 percent in 2011. Investments in education expanded school capacity, enabling an additional 19,167 children to attend every year, of whom 43 percent were female. At present, 96 percent of children in the project area travel less than 5 kilometers to school. 59. Modern healthcare was available to 73.7 percent of households. Quantitative and qualitative improvement of health facilities enabled an additional 124,202 patients, of whom 37 percent were women, to access healthcare. Beneficiaries indicated that project interventions had reduced mortality and the distance to healthcare facilities. Less travel to obtain healthcare meant that farm families could assist their relatives without spending days outside the village and could devote more time to their agricultural activities. 60. At the end of the project, nearly all villages (96 percent) had at least one borehole, and improved wells were available to 49 percent of villages surveyed. Access to potable water in rural municipalities increased from 52 percent in 2005 to 80 percent en 2011. Through the LDF, 1,499 boreholes were constructed, 111 improved wells were installed, and 19 small-scale water supply networks were built, improving drinking water quality, reducing water-borne diseases, reducing the distance women traveled to collect water, and providing access to clean drinking water for an additional 511,500 persons. 61. Indicator 2: 95 percent of investments maintained in a satisfactory way. The survey indicated that 98 percent of investments were maintained in a satisfactory way. Hygiene was adequate in 95 percent of boreholes and wells. Many management committees were set up to oversee investments, enforce rules for their operation, and collect beneficiaries’ contributions for maintenance. 62. Indicator 3: 75 percent of producers in supported villages using natural resource management techniques (such as compost pits and stone rows). The CBRD 2 project built the capacity of 6,693 stakeholders to mainstream natural resource management in their municipalities’ PCDs. As a result, natural resource management has been taken into account in 100 percent of PCDs, and at least 20 percent of rural municipalities’ budgets was allocated to natural resource management activities. 18 Of 2,620 producers surveyed, 90.5 percent reported using natural resource management techniques (compost pits to produce organic matter, stone rows to control land erosion, and Zaï planting pits to reclaim degraded land and restore soil fertility). Furthermore, degraded river banks were restored, natural forests fenced and protected, degraded lands reforested, and rules formulated for their management. Beneficiaries surveyed in 2012 confirmed that the project’s intervention helped to increase crop production by 46 percent, to reclaim 33 percent of degraded lands, and to reduce land erosion by 19 percent. 17 PNGT2, 2012b, “Les conditions et le niveau de vie des ménages ruraux au Burkina Faso dans le contexte de la décentralisation : Résultats de l’enquête de base PNGT2 2010,” Université Ouaga II, Ouagadougou. 18 PNGT 2, 2012a. Suivi des résultats Intermédiaires du PNGT2 phase II, Effets des investissements réalisés par les communes rurales de 2009 à 2011 avec l’appui du PNGT2 14 63. Indicator 4: 60 percent of Rural Municipal Councils with (at least) a satisfactory rating during the annual performance review. The project assessment survey showed that 88 percent of citizens surveyed were satisfied with how their municipalities were managed and with the activities implemented. The evaluation of municipalities’ performance revealed that 85 percent of municipal councils had a satisfactory rating (a rating greater than or equal to 60 percent) after the fourth year of project implementation. 19 64. Table 1 summarizes progress against the PDO indicators, and Table 2 presents achievements for the intermediate result indicators. In most cases, the results exceeded the targets. Table 1: Performance of Key PDO Indicators Key PDO Indicators Objectives Baseline Target Realized Values Value May 31, 2013 and Comments 1 % of households in supported Provide decentralized funding for 55 65 76 villages using basic services demand-driven and community- Access to potable water : 80 (primary schools, health center, managed rural investments and Gross school enrollment : 73 water source) services Access to modern healthcare: 74 2 % of investment maintained in a Strengthen the capacity of villages and 75 95 98 satisfactory way local governments to prioritize, plan, implement, and maintain community- based investments; 3 % of producers in supported villages Provide decentralized funding for 60 75 74.5 using natural resource management demand-driven and community- techniques (e.g., cordons pierreux, managed rural investments and fosses fumières) services 4 % of Rural Municipal Councils with Support the ongoing decentralization 0 60 88 (at least) a satisfactory rating during process the annual performance review Table 2: Achievement of Key Intermediate Outcome Indicators Key Intermediate Outcome Indicators Objectives Baseline Target Realized Values, Value December 2012, and Comments 1 Number of people living in rural areas Provide decentralized funding for - - 511,500 demand-driven and community- (area of project intervention) with access The standard ratio is one to potable water sources managed rural investments and water source for 300 services inhabitants 2 % of Municipal Councils where planning Support the ongoing decentralization 38 80 100 functions are carried out satisfactorily process 3 % of expenses planned in PA1 executed Strengthen the capacity of villages and 60 90 93 annually local governments to prioritize, plan, implement, and maintain community- based investments; 4 % of physical investments financed by Strengthen the capacity of villages and 90 90a 98 the project of good technical quality local governments to prioritize, plan, implement, and maintain community- based investments; 5 % of CVDs organize annually public Support the ongoing decentralization 65 90 93 meetings during which they report on process their activities (assemblée générale bilan) 19 PNGT2, 2012c. Etude sur le capital social et la gouvernance locale dans les communes rurales du Burkina Faso en 2012. 15 6 % of Rural Municipal Councils organize Support the ongoing decentralization 0 75 98 quarterly public meetings during which process they report on their activities. 7 The law on land tenure is passed Support the ongoing decentralization NA - Achieved process 8 50% of Rural Municipal Council Support the ongoing decentralization 0 50 99%b members have received training on the process new law 9 % of financial and procurement audits Support the ongoing decentralization 100 100 100 are unqualified process 10 % of Rural Municipal Councils submit Support the ongoing decentralization 0 75 100 quarterly M&E reports on time process a Target revised from 100% to 90% at midterm review. b However, survey indicated that more information still needed for full knowledge of the law 3.3 Achievement of Triggers for Phase 3 65. The status of triggers from Phase 2 to Phase 3 is summarized in Table 3. Table 3: Status of trigger, Phase 2 to Phase 3 Trigger Status Trigger 1: Modalities have been adopted by Government of The midterm review of Phase 2 considered it premature to rely on Burkina Faso that permit World Bank financing for rural the newly created Permanent Fund, and this trigger was therefore municipalities’ investment activities to be integrated into the removed.a The improvement in functioning of the Fund will be Permanent Fund for Local Development (Fonds Permanent monitored for Phase 3. pour le Développement des Collectivités Territoriales). Trigger 2: Monitoring and evaluation of the Program’s Under CBRD 2, Regional Directorates of Economic Planning activities are sufficiently integrated into the Government (Directions Régionales de l’Economie et de Planification, DREPs) systems and structures. under the Ministry of Economy and Finance (MEF) are being provided with all data produced or collected, and are regularly using the data for carrying out their different activities. DREP also runs the permanent Technical Secretariat for regional and provincial coordination groups (CCRs and CCPs). Annual and quarterly reports of CBRD 2 are all transmitted to the Regional Governors. Trigger 3: Each Rural Municipality (Commune) has a Secretaries General are in place since 2008. Secretary General (Secrétaire Général) in place. Trigger 4: Local elections are foreseen to be held by the end Municipal and legislative elections were held on December 2, 2012 of 2012 to renew the mandate of Municipal Councils; if and considered “free and fair” by independent election observers.b,c conducted before the close of Phase 2, they should be considered ‘‘free and fair” by independent election observers. a Aide-mémoire, Revue à mi-parcours du PNGT2, February 2010. b Rapport de la mission d’observation de l’Union Africaine aux élections couplées (législatives et municipales) du 2 décembre 2012 en République de Burkina Faso, December 2012. c Rapport du Réseau des Journalistes Observateurs des Elections (RJOE) sur élections législatives et municipales couplées au Burkina Faso, December 2012. 3.4 Efficiency 66. The costs involved in achieving the objective of the CBRD 2 project were reasonable in comparison with the benefits. In preparing the third phase of the project, an economic analysis in April 2012 examined the project’s portfolio in the second phase (2007–13). The analysis covered six regions and ten types of microprojects on social and economic infrastructure that the project financed. It found that communities generally chose investments that had a high rate of return and 16 were cost efficient. On average, high financial rates of return were found in productive investments such as compost pits (199 percent), stone fences (97 percent), animal vaccination facilities (18 percent), and animal slaughtering facilities (19.4 percent). Positive economic rates of return were also seen in microprojects that developed basic social infrastructure and similar social investments. For example, the average economic rate of return (ERR) for water supply microprojects was around 19 percent. The costs of these microproject investments also appear to be low compared to similar microprojects realized by different partners or government institutions. For example, the municipal procurement system for building social infrastructure (under Component B, Local Development Financing) tended to be more efficient than alternative procurement channels. On average, unit costs were lower for infrastructure installed under CBRD 2 than for similar infrastructure installed by public ministries and government agencies. The unit costs of housing built for community nurses under the CBRD 2 project, for example, were 31.5 percent lower than the unit costs of similar facilities provided through the FPDCT, and they were 28.6 percent lower than the unit costs of such facilities provided through the Ministry of Health (see details in Annex 3). 67. In summary, the project achieved substantive outcomes and impacts with considerable efficiency. Under the project’s community-based approach, the savings in infrastructure costs were significant. This conclusion was echoed by local officials and community members. The quality of infrastructure was also good. Some local officials and community members estimated that the completed works were likely to have a longer lifespan than equivalent government-built works. 68. Several of the project’s features contributed to these positive findings on efficiency. Community-led investments to develop infrastructure and build skills achieved cost efficiencies through cost savings. Community selection meant greater ownership of works prioritized and supervised by communities themselves. Overall, strict adherence to rules, accountability, and community decision making and inclusion reduced delays and waste of money. 3.5 Justification of Overall Outcome Rating 69. Rating: Achievement of the overall project objective is rated satisfactory. Based on the ICR mission team’s findings, the project achieved a satisfactory overall outcome, remaining highly relevant throughout and attaining most of its objectives with satisfactory efficiency. Phase 2 outcomes were also satisfactory with respect to institutional change, developing stronger community institutions, and contributing to the consolidation of the government’s decentralization policy. 3.6 Overarching Themes, Other Outcomes, and Impacts (a) Poverty Impacts, Gender Aspects, and Social Development 70. By supporting microproject investments based on priorities established locally, through an inclusive process that engaged even the poorest community members, the CBRD 2 project delivered investments that met the needs of those members of the local population. Women benefited from the project’s approach as well. The project’s notable positive gender results were highlighted by a range of local authorities, communities, and other stakeholders. The addition of water and healthcare infrastructure considerably reduced the time that women spent fetching 17 water and obtaining health services, and the project’s support for revenue-generating activities increased women’s options for gaining financial autonomy. At the same time, the project opened additional opportunities for women to participate in village associations and share in the community decision-making process. Women who participated in municipal councils mentioned the greater respect and self-confidence they experienced as a result of their participation and the project’s capacity-building activities. Women and youths particularly valued the opportunity to stand up and effectively voice their views and choices during meetings. 71. In conclusion, remarks by beneficiaries to the ICR mission team and at the stakeholders’ workshops showed that the project consistently supported rural communities in target areas to identify opportunities to improve local livelihoods. Microproject identification and design were highly inclusive of the poor, women, and young people. Infrastructure microprojects identified and implemented by communities met their acute needs, especially for clean water and better healthcare. More generally, project activities had a beneficial effect on relationships among communities by promoting peaceful conflict management strategies between social groups with different interests. The project’s efforts to improve the security of land tenure and natural resource management (discussed in the next section) are also laying the groundwork to reduce conflicts over land and improve socioeconomic well-being, as secured land tenure enables this valuable asset to be protected and improved. Box 1: Impact of CBRD 2 activities on women CBRD 2 activities had a positive impact on women especially in the area of empowerment, access to social services, access to land and income generating activities. Women empowerment: The training provided by the project benefited 647,260 people out of whom 30.71% were women. Some of those trainings were specifically tailored to fit specific needs of women. It included: training on the responsibilities of female councilors in the management and decision-making process of municipalities (2,616 women) and on HIV/AIDS (1,491 women). Through these training women were better empowered to participate actively in the deliberations of municipalities’ councils. In addition, the literacy program of the project has been especially beneficial for women. Women who were members of municipal councils reported during the stakeholders’ meeting that it had become easier for them to speak in public, report on meetings in their own language, and actively participate in the dialogue on the council. For instance in 2009 and 2010, literacy sessions have benefited 22,437 trainees of whom 55 % were female. Women access to social services: Investments in the area of social services under the project included health, education as well as water and sanitation facilities. For instance, the number of people who attended these health centers in 2009 was about 10,474 out of which 3,768 (36 %) were women. This proportion rose to 51% (22,502 attendants) in 2010 and to 53% (34,229 attendants) in 2011. In the area of education, built and renovated schools accommodated additional 19,167 students each year out of which 43 % were girls. Concerning water and sanitation, the 1,499 boreholes, 111 modern wells and 19 small scale water supply networks constructed had a positive impact on women living conditions. For example, (i) they travelled less to fetch potable water (thereby reducing the burden of housework) and also saved time to undertake other activities including income-generating activities. Women access to land: On the 978 ha of lowlands developed under the project, 3,706 plots have been allocated for cereals and vegetable production. About 1,572 plots were attributed to women representing 42 % of the total area. Income generating activities for women: The increased access to land for women under the project especially on the developed lowlands and gardens increased income and improved both access and quality of food for women. For example, for rainfed rice production and horticultural crops (grown during the dry season), the average gross margin generated is CFAF 71,000 per ha and 60,400 per ha respectively. The income generated helped women diversify their source of income by engaging in petty trade and animal production. Many women reported that this increase in their income improved their contribution to household expenditures and financial autonomy. 18 (b) Institutional Change/Strengthening 72. The CBRD 2 project has fulfilled its aim to promote significant institutional change in the area of decentralization in Burkina Faso. It substantially reinforced the sustainability and commitment of the community institutions at the heart of the government’s efforts to promote decentralized rural development (as seen in the summary of intermediate outcomes presented in Section 3.2). Beneficiaries felt that the major institutional changes brought about by the project included more transparent, accountable local governance and better capacity among stakeholders in rural areas, especially in various community councils. The project’s capacity-building activities enabled town councils to satisfactorily perform all of the activities and duties pertaining to local development. Consequently, a majority of the population endorsed the decentralization process (88 percent) and believed that it had a positive impact on their communities. 73. Many specific achievements in institutional change and strengthening are worth highlighting as well. Critical steps to build capacity in local institutions included the literacy program, which reached 26,729 persons out of which 55 % were women; training in procurement for 3,780 CCAM members of all the 302 municipalities; and greater familiarity with principles and practices of decentralization and local governance among the 603,200 members of CVDs. For example, accountability has been accepted as a key principle of local governance, enabling the implementation of municipal investment plans to increase from 67 percent in 2009 to 98 percent in 2012. 74. All of the 302 rural municipalities are better equipped to take up their duties in planning for local development. Data collected during the ICR mission showed that communities appreciate the strategic orientation of their village councils. The rural municipalities’ monitoring of infrastructure and works was regarded as effective and was valued for enabling a range of stakeholders to acquire knowledge related to implementing, monitoring, and evaluating various types of microprojects. The municipalities are also developing capacity to bring their major concerns into the wider national arena. In partnership with the Association of Municipalities of Burkina Faso, 20 the project raised the issue of local procurement challenges to spur debate at the national level on strategies to improve decentralized procurement. 75. Another important aspect of institutional strengthening under the project was its support for the government’s efforts to develop an enabling policy framework for land tenure, complemented by a stronger legal framework for land management in rural areas. This joint effort by the General Directorate for Land Administration, Training, and Rural Organization (Direction Générale du Foncier, de la Formation et de l’Organisation du Monde Rural (DGFOMR), the CBRD 2 project, and the Millennium Challenge Account enabled Burkina Faso to lay the foundation for a national policy on land security in rural areas by passing a Rural Land Tenure Law and issuing decrees and developing tools to implement the law. 76. The revitalization of the Provincial Technical Consultative Groups (Cadres de Concertation Technique Provinciaux) has been an important step towards capacity building activities in favor of different public and private service providers whose business consists in assisting communities to plan, implement, and monitor their development programs. A range of important new skills 20 Association des Municipalités du Burkina Faso. 19 and capabilities have been built up in the project communities, from business management to resource mobilization. This wide range of community skills has created a base for local entrepreneurs to provide services that were once the exclusive domain of external service organizations. (c) Other Unintended Outcomes and Impacts (positive or negative) 77. As discussed in Section 1.6, during implementation the project contributed to the government’s efforts to mitigated unforeseen crises—including two severe food shortages and the effects of the war in Mali—and safeguard the numerous achievements of the project in the municipalities that were affected. In 2008 the project provided improved seed to renew agriculture in drought-stricken zones, and in 2012 it provided cereal grain to alleviate hunger in areas affected once again by drought and to relieve food shortages in the refugee camps. The government valued the project’s flexibility in adapting to these circumstances. 78. The technical expertise of the CBRD staff proved instrumental to another Bank-funded project—the Local Government Support Project (Projet d’Appui aux Collectivités Territoriales, PACT)—approved in November 2011. For that project, CBRD staff aided in the design of Institutional Development Plans for 140 municipalities in 6 regions and in building capacity in procurement, M&E, and social and environmental safeguards in institutions involved in implementing PACT at the municipal level. That same expertise was also valuable for the preparation and financial management of the World Bank–financed Forest Investment Program (FIP), implemented by the Ministry of Environment and Sustainable Development. 21 CBRD 2 also helped municipalities apply for the Bank’s yearly local governance award. The expertise of project staff is recognized outside the project; 13 staff members have been nominated for high positions in the administration, and others accepted new positions in international institutions. 79. The Government has acknowledged and praised the project’s performance and expertise in the form of an official letter of congratulation from the Prime Minister, a letter of appreciation letter from Association of Municipalities of Burkina Faso, and others. For their commitment and the quality of services they delivered, 10 of the project’s technical staff members were decorated by the Government (receiving the Medal of Honor of Local Governments, Chevalier of National Order, and National Order of Merit). 3.7 Summary of Findings of Beneficiary Survey and/or Stakeholder Workshops 80. Regional stakeholders’ workshops were organized at Ouahigouya (Northern Region), Fada N’Gourma (Eastern Region), and Dédougou (Mouhoun Region) on September 5, 2013 and at Manga (Center-South Region) on September 6, 2013. Those events were followed by the national stakeholders’ workshop on September 10, 2013 at Ouagadougou. The national workshop was co- chaired by the governors of Central Plateau, Center-North, Cascades, and Center-South Regions. The 120 participants included governors, mayors of municipalities, municipal councilors, and representatives of decentralized government technical services, NGOs, and the project’s National and Regional Coordination Units. The main conclusions emerging from the workshops are summarized here. 21 Ministère de l'Environnement et du Développement Durable. 20 81. Capacity building transformed behavior and fostered more active participation in implementing Municipal Development Plans. Stakeholders emphasized that without the capacity-building program, municipalities would have been challenged to achieve the impacts reported under CBRD 2. The training was timely and appropriately adapted to rural municipalities’ needs. The transfer of skills and knowledge that enabled municipalities to create and update their development plans was one of the project’s greatest achievements. Stakeholders found the diversity of training modules, which covered a wide range of local development activities, to be useful and relevant. They also regarded the capacity building as instrumental in enhancing collaboration among all of the stakeholders in the decentralization process and improving their understanding of their corresponding roles and duties. 82. Stakeholders recommended that future development and updating of PCDs should be planned systemically during the dry season to avoid conflicts with agricultural activities. They also suggested that literacy training be extended and that its budget include the cost of food for participants. They felt that municipalities should be able to include disaster risk management in their yearly investment plans to mitigate recurrent crises related to natural disasters. 83. Stakeholders reiterated the value of training in procurement, which had an extremely positive effect on the speed with which municipalities implemented their investment plans. Capacity building also equipped stakeholders at the local level with tools for successful operations, such as templates and steps to establish investment management committees, issue land cession reports, plan annual activities, and so on. Some mayors indicated that training in leadership and fund raising was beneficial, because it enabled them to develop new financial partners and raise more money for development activities for their municipalities. 84. The literacy program has been beneficial, especially for women. Women who were members of municipal councils reported that it had become easier to speak in public, report on meetings in their own language, and actively participate in the dialogue on the council. The survey found that 27 percent of reports were written in local languages. 22 Even so, stakeholders indicated that illiteracy remains a serious constraint to implementing local development initiatives. They observed that the literacy program would have yielded more substantial achievements and been better attended if the project had provided lunch for the participants, many of whom traveled some distance to reach the literacy center and many of whom were lactating. 85. Local Development Financing (LDF) is a pertinent, pro-poor investment instrument for rural municipalities. Stakeholders praised CBRD 2 for its vision in integrating the LDF component in the project design. Many mayors reported that school enrollment had risen in their municipalities and that more people had access to potable water and modern healthcare. People had to travel less to fetch potable water and attend school. The investments in soil and forest conservation improved rural livelihoods. From a political perspective, the mayors also mentioned that in the absence of the LDF they would have found it difficult to finance their local development plans and demonstrate that they had achieved something for their voters. 22 PNGT2, 2012c, “Etude sur le capital social et la gouvernance locale dans les communes rurales du Burkina Faso en 2012.” 21 86. Improve the criteria for determining the amount of LDF allocated to municipalities. Stakeholders suggested that the project increase the amount of LDF for municipalities. They requested the project to consider other criteria in addition to the size of the municipality’s population to more closely match the level of financing to the specific context of each municipality. 87. Procurement procedures could be adapted to fit the needs of municipalities. Stakeholders recognized that intense capacity building had improved their knowledge of procurement practices and reduced the impact of complex national procurement procedures on rural municipalities’ procurement performance. Nevertheless, stakeholders still think that national procurement procedures could be simplified and better adapted to the needs of rural municipalities and suggest that the project advocate the development of such procedures. 88. More information and communication are still needed on the newly passed Rural Land Tenure Law and on the land tenure strategy. Stakeholders recognized that the project involved an extensive effort to support the government’s development of the new land tenure law and strategy and to inform the public about them. Even so, they felt that more training and information sessions should be organized to improve rural stakeholders’ understanding of the new law and the mechanisms for its implementation. 89. No environmental or social issues were reported in relation to the implementation of microproject investments. 4. Assessment of Risk to Development Outcome Rating: Low 90. Risks to development outcome and sustainability of project achievements are assessed against institutional, economic/financial, environmental, and social criteria. Overall, risk to development outcome is evaluated as low, given: (i) the high ownership of project at all institutional levels (by government and municipalities), (ii) the moderate financial risks linked to sustainability of the different investments, (iii) the relatively minor negative and even positive environmental impacts associated with the kinds of microprojects that were implemented; and (iv) the high social relevance of project activities (targeting poverty issues, inclusion of vulnerable groups, and gender equity). 91. The institutional risk to development outcome is low. Institutional structures have already been put into place at the regional level to support to local development—namely, the Regional Directorates of Economic Planning (Directions Régionales de l'Economie et de la Planification, DREPs)—and the RCUs will continue to support these structures by transferring skills related to planning, M&E, financial management, and capacity building. The government also appointed one Secretary General to each municipality to strengthen its administrative and fiduciary capacities. The first municipal elections were held in 2006; new elections were contested for the mayoralties of all 302 municipalities in 2012. The 2012 elections were judged transparent and fair by independent observers, which resulted in minimal if any institutional risk to project development outcomes. 22 92. The Government of Burkina Faso intends to create a legal framework for the establishment of regional development agencies (Agences Régionales de Développement, ARDs). The ARDs will report to Regional Councils and will be staffed with specialists capable of providing support to municipalities to implement local development activities. If the ARDs are created and rendered operational by the Regional Councils, the technical expertise and responsibilities of the RCUs will be progressively transferred to them, so that the experience developed through CBRD remains anchored in sustainable institutions. 93. The economic and financial risk to development outcome is moderate. The LDF implemented during the CBRD 2 project directly supported local investments that improved the living conditions of rural populations. Productive local investments enable municipalities to generate their own resources, which empower them to sustain and expand local development activities autonomously. The technical quality control of proposed investments and the monitoring of their execution ensured that investments supported by the project are of sound quality and environmentally sustainable. The high economic/financial rate of returns of sub- projects and ownership by communities are important enabling conditions to ensure sustainable management and maintenance of investments made under the local development financing arrangements. Moreover, the devolution of powers to communities as part of the decentralization process provides them more resources and internal generated revenues to pay for operations and maintenance costs of community infrastructure. 94. A weakness of the project’s financial management identified at appraisal was a misunderstanding of the terms of reference for internal auditing. The action plan to mitigate the corresponding risk suggested that Regional Administrative and Financial Controllers and Regional Public Financial Controllers be appointed to insure (respectively) ex post control and ex ante control in rural municipalities. The government has fulfilled these requirements. Although national procurement procedures are not well adapted to the needs of the municipalities, training in procurement for CCAMs and municipal councilors has lessened the impact of national procedures on the municipalities’ procurement performance. 95. The environmental risk to development outcome is low. Based on the environmental and social assessment, the project was rated as a category B project and triggered two safeguard policies, Environmental Assessment (OP 4.01) and Involuntary Resettlement (OP 4.12). In the event, project activities have had negligible environmental effects, and in fact the project’s natural resource management activities should yield a net benefit on environmental impact. 96. The social risk to development outcome is low. The capacity-building component of the CBRD 2 project has played a major role in creating social capital in municipalities and has been instrumental to mainstreaming gender and social equity in the local development agenda. Female members of municipal councils reported during the ICR stakeholders’ workshop that they can now easily speak in public and contribute actively to the council’s dialogue. The literacy program gave participants confidence in reporting on meetings in their own language had a great impact in their day-to-day lives. The project’s support for the establishment and functioning of local institutions, such as the Rural Land Tenure Services (Services Fonciers Ruraux, SFRs) and the Village Land Tenure Commissions (Commissions Villageoises de Conciliation Foncière) to implement the Rural Land Tenure Law will positively impact land security at the local level, which in turn will influence social cohesion and stability and stimulate investments in agricultural productivity and sustainable rural development. 23 97. Based on these assessments and considerations, the overall risk to development outcome is rated as low. 5. Assessment of Bank and Borrower Performance 5.1 Bank Performance (a) Bank Performance in Ensuring Quality at Entry Rating: Satisfactory 98. The project started on a strong footing because its design incorporated experiences and lessons from Phase 1. Extensive consultation with partners made it possible to harmonize views on suitable approaches to project design and implementation arrangements. The process ensured that the project, aside from meeting the requirements for a second phase, included the foundations to design a third phase. 99. To prepare the project, Bank management mobilized a multisectoral team 23 that received high-level support on fiduciary, legal, disbursement, and safeguard concerns. All parties within the Bank, up to and including the Region’s Front Office, made the arrangements (including an effective backup system) to ensure continuity and maintain the momentum of project preparation. An appraisal mission to discuss the government’s request reached agreement on the project design. The expedited preparatory phase concluded with Board approval of the project on March 27, 2007 and signing on April 16, 2007. The project became effective on July 13, 2007. 100. The inclusion of representatives of civil society organizations, development partners, and municipalities in the project’s steering committee and implementation process was beneficial. These stakeholders made significant contributions to the project’s strategic orientation, voiced the concerns of their respective constituents, and facilitated participation in and ownership of the project at all levels. (b) Quality of Supervision Rating: Satisfactory 101. Supervision was proactive throughout implementation. Eight supervision missions effectively supported implementation and achievement of the PDO. The midterm review of the project in January 2010 proposed adjustments to the project’s key performance indicators and triggers. Task management was shifted to the field during implementation, allowing continuous interaction between the Bank team and the project team. The team also benefitted from regular support from experienced safeguards, financial management, and procurement staff. 102. Beginning in April 2011, supervision missions for all of the Bank’s projects in the rural sector in Burkina Faso were conducted jointly for CBRD 2, the Agricultural Diversification and Market Development Project, the Agricultural Productivity and Food Security Project, and the West Africa Agricultural Productivity Project. These missions offered a great opportunity to share experiences, identify lessons, and develop synergies in the rural sector portfolio. For example, through those missions, the CBRD 2 project’s efforts in M&E and in promoting more secure land tenure were recognized for their exemplary contributions to the efficiency of project implementation and the development agenda in the rural sector in Burkina Faso. 23 Drawn from the Country Management Unit (CMU), Sustainable Development Network (SDN), and Human Development (HD). 24 (c) Justification of Rating for Overall Bank Performance Rating: Satisfactory 103. The World Bank’s performance can be rated satisfactory. The project’s quality at entry was satisfactory owing to good leadership by an experienced team that took on the lessons emerging from Phase 1. During implementation, the Bank team paid great attention to the quality of supervision and intervened with appropriate recommendations that improved implementation. Supervision from the field reinforced the project’s hands-on approach and enabled problems to be solved rapidly. The midterm review elicited sound decisions on the project’s approach and measures of performance. 5.2 Borrower Performance (a) Government Performance Rating: Satisfactory 104. To ensure timely implementation, the government quickly established a Project Steering Committee. The 20 committee members were drawn from the government administration, civil society (including NGOs), farmer organizations, mayors of municipalities, similar projects involved in decentralization, and development partners. 105. The government has fully played its role by quickly operationalizing the project’s institutional arrangements. It strengthened the enabling environment for the project by issuing a series of legal instruments 24 that eased implementation in line with the government’s decentralization and development objectives. One of the government’s outstanding achievements in this respect was the new law on rural land tenure and its corresponding decrees, passed in July 2009. A committed DGFOMR team, reinforced by government involvement at a high level, led to this achievement. In each of the 13 regions, a project coordination staff was quickly put in place, consisting of a regional project coordinator and specialists in M&E, environmental safeguards, and capacity building. Finally, the government met all triggers for Phase 3 the project, notably those related to providing each municipality with a secretary general organizing transparent legislative and municipal elections on December 2012. (b) Implementing Agency or Agencies Performance Rating: Satisfactory 106. The implementing agency consists of the NCU and RCUs. The NCU delivered on its commitments. It was responsive to Bank requests related to monitoring project performance and expeditiously implemented recommendations from missions and reviews. Compliance with the Bank's financial management requirements was satisfactory, with regular and timely submission of financial reports and annual audits. The implementing agency established an outstanding M&E system (recognized as an example of best practice) to track project activities and progress against output and outcome indicators. 24 Those instruments included: Circulaire N° 2009-2175/MEF/CAB du 8/9/2009 du Ministère de l’Economie et des Finances invitant ses services déconcentrés à appuyer les communes dans le processus de passation des marchés; Circulaire N°2009- 2700/MEF/CAB du 12/11/2009 du Ministère de l’Economie et des Finances sur l’élaboration conjointe (PNGT2 et DGMP) de dossiers types d’appel d’offre à l’usage des communes rurales; Lettre n° 328 en date du 17 juin 2009 du Ministre chargé de l’Agriculture, de l’Hydraulique et des Ressources Halieutiques au Ministre de l’Administration Territoriale relative aux difficultés éprouvées par le PNGT2- Phase II dans la mise en œuvre du FDL dans les communes rurales et la nécessité de trouver des solutions idoines y afférentes; and the Presidential Decree of 16 February 2012, which gives regional treasurers the right to audit the accounts of rural municipalities. 25 (c) Justification of Rating for Overall Borrower Performance Rating: Satisfactory 107. The Borrower’s overall performance is rated satisfactory. As noted, the government at all levels demonstrated a high level of commitment to the project’s objectives. It moved expeditiously to prepare the project, put an enabling legal framework into place, and meet all triggers. All financial audits were unqualified and submitted on time (before June 30 every year). Compliance with all legal covenants was satisfactory as well. 6. Lessons Learned 108. Major lessons arose from the implementation of the CBRD 2 project. Most have been incorporated in the design and implementation arrangements for the project’s third phase. 109. Effective harmonization of approaches around government policies is critical. The sustained success of the CBRD program as a whole reflects its efforts to support the government’s evolving vision on decentralization. In Phase 1, the operation supported the existing Village Management Councils (CVGTs) in developing and implementing their annual investment plans. With the election of local councils in rural areas in 2006, CBRD 2 supported local municipalities in developing and implementing their PCDs. Phase 3 seeks to ensure continued alignment with government policy on decentralization, rural development, and land security. 110. Achieving effective decentralization requires sustained and holistic support to champions within government and in civil society. Putting the Local Government Code into practice will bring significant changes to Burkina Faso’s political and administrative structures. A clear vision for this transformation needs to be developed, and World Bank support will need to combine high-level dialogue with strengthened technical skills at central and local levels to make such reforms a reality. The lessons of the fifth programmatic Poverty Reduction Strategy Credit (PRSC) series are instructive in this regard. In part, the measures on fiscal decentralization that were included in the development policy lending series had limited effectiveness because their design was not adequately linked with operational technical and financial support to the government to develop the architecture for fiscal transfers. The fiscal decentralization triggers were also hamstrung by central government reluctance to devolve resources to local governments with weak capacity. The CBRD program will therefore complement the PACT in providing operational support to strengthen the capacity of municipalities to manage resources effectively. 111. Capacity building is more effective when it focuses on sustainable institutions and occurs through learning by doing. The CBRD program’s close partnership with legally mandated entities such as CVDs, local municipalities, decentralized agencies, civil society, and the private sector has enabled the program to transfer skills to established institutions. Providing training through local expertise (civil society organizations) has also enabled capacity building to reach the micro level (villages) throughout the country. Experimental learning at the village level was one of the key capacity-building successes of Phase 1. Phase 2 also espoused “learning by doing,” shifting the focus to the newly created municipalities. 26 112. Involvement of the whole community, especially the poor and marginalized, is essential to ensure that ownership and commitment to local development efforts are maintained. Inclusion is vital to reach the people who need to benefit most and to strengthen the quality of outcomes. The approach to decentralized development embodied in the project must be supported by simple and clear principles (participation, inclusion, transparency, accountability, and cost sharing), which are agreed upon from the start with communities. 113. Communication and collaboration are critical for ensuring community ownership of project activities and social cohesion. The project’s approach, including the procedures used to implement local financing (LDF), were critical to give more responsibility to the different actors involved—not only in government institutions but particularly in the communities themselves. This orientation fosters greater ownership of local investments and should increase awareness of what must be done to maintain and sustain those investments appropriately. These positive achievements can be undermined by ineffective communication and conflict, which occur more frequently in villages and municipalities that lack sound mechanisms for collaboration and communication. For that reason, the CBRD 2 project strengthened the local capacity to communicate effectively based on tools for conciliation and mediation. With such tools, communities can manage local problems before they escalate into conflicts. 114. M&E information flows can become overwhelming as a project’s scale increases, its activities evolve, and new lessons continually emerge. An intensive effort must be made to clearly allocate ownership and responsibilities for information collection and processing, tied as closely as possible to the related management responsibilities and interests, from the community level up. From the start, it is essential to consider how M&E information will be gathered, processed, and used in the long term as institutions develop and change (federations, local governments and government’s agencies). In Phase 2, the M&E system was simplified to focus on obtaining data of good quality that stakeholders could use as a real-time management tool, in addition to serving as an instrument at the policy-making, programmatic level. 115. A programmatic approach, with adequate flexibility to incorporate innovations and sufficient technical assistance for piloting and testing at each stage, is a key success factor for building the confidence of staff and communities, helping to fine-tune the model, and enhancing the prospects for achieving development outcomes. At the level of the Borrower and World Bank, the long-term (12-year) commitment (in the form of an APL) and consistency in team leadership were without doubt critical for providing detailed technical and goal-oriented support for programmatic learning. Such commitment and support have been shown globally to be essential for successful scaling up. 7. Comments on Issues Raised by Borrower/Implementing Agencies/Partners (a) Borrower/implementing agencies 116. The Government’s ICR is presented in Annex 7. (b) Cofinanciers 117. N/A 27 Annex 1. Project Costs and Financing (a) Project Cost by Component (in US$ million equivalent) Second Phase of the Community-Based Rural Development Program Actual/Latest Appraisal Estimate Percentage of Components Estimate (US$ millions) Appraisal (US$ millions) Component A: 16.70 9.78 59% Component B: 68.30 57.02 83% Component C: 2.20 2.20 100% Component D: 17.70 17.66 100% Unallocated 0 0 0 Total 104.90 86.66 83#% Total Baseline Cost 104.90 86.66 83% Physical Contingencies 0 0 0 Price Contingencies 0 0 0 Total Project Costs 104.90 86.66 83% PPF 0 0 0 Front-end fee IBRD 0 0 0 Total Financing Required 104.90 86.66 83% # The US$18.24 million difference between appraisal estimate and actual expenditure is mainly related to the last-minute withdrawal of the Global Environment Facility (GEF) and the International Fund for Agriculture Development (IFAD) from the financing scheme. (b) Financing Second Phase of the Community-Based Rural Development Program Appraisal Actual/Latest Type of Percentage of Source of Funds Estimate Estimate Financing Appraisal (US$ millions) (US$ millions) Borrower 7.00 4.12* 59% International Development Association 74.00 74.00 100% (IDA) Beneficiaries 7.00 8.54 122% GEF (TerrAfrica Country Pilot Partnership) 1.90 0.00 0% IFAD 15.00 0.00 0% Total 104.90 86.66 83% *The disbursement from the borrower was based on annual work plan and budget following a funding request submitted by the project to the government. The activities initially earmarked in the Costab to be funded by the borrower have actually costed less than originally planned. As a result, all earmarked activities planned have been fully implemented at a lower cost so that amount effectively disbursed by the borrower is less than originally pledged. CBRD 2 was one of the project for which the government has never failed to fulfill its commitment as far as a counterpart funding is concerned. 28 Annex 2. Outputs by Component Component A: Strengthened Capacity for Decentralized Rural Development Rating: Achievements under this component are rated Satisfactory Output Indicator Target Achievements (Selected Outputs) Number of newly created rural municipalities (communes) 302 397 PCDs developed/updated that take the lead in local development by elaborating Municipal Development Plans (PCDs) Number of PCDs where natural resource management, as the 302 302 PCDs mainstreamed natural resource base of economic development in rural areas, is taken into management account in a robust manner when elaborating both PCDs and 302 landscape maps provided Annual Investment Plans (PAIs) Effective communication among and between diverse NAa 1,688 municipal councilors trained in stakeholders involved in local development is stimulated developing a communication plan 2,406 communication leaflets disseminated 603,200 municipal councilors trained in decentralization and on local governance 897 municipal councilors trained in fund-raising techniques 26,729 persons learned to read 7,970 members of rural commissions received training on cross-cutting themes, including gender and HIV/AIDS a Demand-driven. This component aimed to enable the 302 newly created rural municipalities to take the lead in local development by elaborating PCDs and overseeing the investment activities in their PAIs. To achieve these results, the project supported the development of 201 PCDs and updating of 196 PCDs (thus it supported 397 PCDs). The project also provided training in developing communication plans to 1,688 municipal councilors; subsequently 2,406 leaflets on local governance were disseminated. Technical training and sensitization training on decentralization and local governance was provided to 603,200 municipal councilors, and 897 municipal councilors were trained in fund-raising techniques and approaches to partner efficiently and effectively with technical and financial institutions. Through support for literacy programs in rural municipalities, 26,729 persons learned to read in their local languages, which helped them to report on meetings, write quarterly reports, and collect data for M&E. Moreover, 7,970 members of rural commissions received training on cross-cutting themes such as gender and HIV/AIDS. To strengthen rural municipalities’ capacity in natural resource management, 6,693 municipal councilors were trained on mainstreaming natural resource management in PCDs, 1,490 municipal councilors were trained on integrated natural resource management, and 172,554 members of CVDs were sensitized on climate change. The project provided 302 maps showing the evolution in land cover over time in each municipality to give stakeholders a deeper understanding of the effects of land degradation and the need for skillful action to protect and restore this important resource. Training in procurement procedures was offered to 3,780 CCAM members of the 302 rural municipalities. The training modules included a review of national procurement procedures, the elements of bidding documents, and procedures for evaluating bids, executing contracts, and handling conflicts. Training for decentralized technical partners and staff of municipalities covered a number of topics, including office software, results-based management, database management, and civil society’s contributions to decentralization. Overall, 2,770,255 man-days of training enabled project stakeholders at all levels (municipal, provincial, regional, central) to participate successfully in local development and decentralization in rural areas. 29 Component B: Local Development Financing Rating: Achievements under this component are rated Satisfactory Output Indicator Target Achievements (Selected Outputs) Rural municipalities receive and manage NAa 174 new health facilities funds transparently to undertake local 133 healthcare centers equipped development investments in a timely manner 453 new classrooms 161 new literacy centers 587 classrooms equipped 325 houses for teachers and nurses 48 new modern markets 97 slaughtering facilities 30 new livestock markets 9 new bus stations 563 new public restrooms 707 boreholes equipped with hand pumps 792 repaired boreholes equipped with hand pumps 111 wells constructed or repaired 19 small-scale water supply networks 48,861 compost pits (fosses fumières) 11,218 ha of stone rows (cordons pierreux) 1,523 ha developed with Zaï techniques 174,400 m of protected river banks 212 ha fenced natural forests 3,477 ha of degraded lands reforested 1,081 ha forest reserves delimited 175 animal vaccination facilities 1,283 km of animal transhumance corridors 25,434 ha of pastures lands delimited 978 ha lowlands developed a Demand-driven. The objective of this component was to provide financial resources to rural municipalities to implement their local investment plans while promoting transparent management of the funds received and timely implementation of investment plans. This component accounted for 65.79 percent of the project budget (US$57,020,000). The project achieved impressive results in making basic services available in rural areas, with 75 percent of rural households having access to at least one basic service by the end of the project. Microprojects in agroforestry covered a range of investments. Investments in soil and water conservation techniques included 116 hectares of earthen bunds, 48,861 compost pits, 11,218 hectares of stone rows, 1,523 hectares developed with Zaï techniques, and 174,400 meters of protected river banks. Investments in reforestation and forest management activities included fencing of 212 hectares of natural forests, reforestation of 3,477 hectares of degraded land, and the delimitation of 1,081 hectares of forest reserve, along with corresponding rules to manage that land. Investments related to livestock included the construction of 175 animal vaccination facilities, 1,283 kilometers of animal transhumance corridors, and the delimitation of 25,434 hectares for pasture. Agricultural investments included the development of 978 hectares of lowlands to grow rice and vegetables. 30 Microprojects to improve access to potable water equipped 707 boreholes with hand pumps, repaired 792 boreholes and installed hand pumps, built or repaired 111 wells, and built 19 small-scale water supply networks. The project also supported the construction of 170 kilometers of improved rural roads, rehabilitated 78 kilometers of rural road, and built 23 bridges, culverts, and inverts. Socioeconomic investments to improve basic economic infrastructure as well as health and education services included the construction of 174 new health facilities (health clinics, maternity clinics, medical waste incinerators, pharmacies, and improved hospital housing). Investments were also made to equip 133 healthcare centers; build 453 new classrooms, equip 587 classrooms, and rehabilitate 42 schools; build 161 new literacy centers and equip 134 existing literacy centers; build or rehabilitate 325 houses for teachers and nurses; and build 48 modern markets, 30 livestock markets, 97 slaughtering facilities, 9 bus stations, and 563 public restrooms. Moreover, 137 solar lighting units were installed in healthcare centers, literacy centers, and public premises. The LDF component also supported mitigation of the 2008 and 2012 food crises. To do so, the project procured 8,583 kilograms of improved seed of forage crops, 6,811,112 kilograms of improved cereal seed for farmers in the affected areas, and 5,400 tons of cereals to alleviate hunger in 172 municipalities and seven refugee camps in drought-stricken areas. Component C: Rural Land Tenure Reform Rating: Achievements under this component are rated Satisfactory Output Indicator Target Achievements (Selected outputs) Activities to draft Rural A Rural Land Tenure Decree of the Rural Land Tenure Policy adopted on October 4, 2007 Land Tenure Policy Policy is adopted (N°2007-610/PRES/PM/MAHRH) 5,000 copies of the Rural Land Tenure Policy issued in basic French 6,290 copies of the Rural Land Tenure Policy issued in local languages, including 1,425 in Moore, 1,750 in Dioula, 1,115 in Fulani, and 2,000 in French Activities to draft Rural A legal framework for Decree creating the National Committee for Rural Land Tenure Land Tenure Law and the land tenure, understood (CONA/SFR) adopted on November 14, 2008 (N° 2008- legal instruments to make it by the different 704/PRES/PM/MAHRH/MEF/MATD/MRA) operational stakeholders The new law is passed on July 2009 (N° 034/2009/ADP) with all its application decrees and operationalization tools 10,000 copies of the new law issued in French, 2,000 copies in Moore, and 1,500 in Dioula and Fulani Adoption of guidelines and tools for rural land tenure in December 2010 511 information and sensitization workshops on the new law and regulation organized in 44 provinces for 351 rural and urban municipalities Information and communication workshops organized in the 13 regions This component supports the operationalization of the national policy on rural land tenure (Politique Nationale de Sécurisation Foncière en Milieu Rural, PNSFMR) and its implementation by the General Directorate for Land Titling, Training, and Rural Organization (Direction Générale du Foncier et de l’Organisation du Monde Rural, DGFOMR). The intermediate outcome for this component was to put a legal framework for land tenure in place and ensure that it was well understood by the stakeholders. Activities implemented under this component consisted of finalizing the legal and technical instruments for the new land tenure law and promulgating the law in a number of local languages. Committed project team and DGFOMR staff, benefiting from 31 high-level government support, worked to ensure adoption of the Rural Land Tenure Policy on October 4, 2007 and passage of the new Rural Land Tenure Law in July 2009. Additional outputs of this component included the organization of 511 information and sensitization workshops on the National Strategy for Rural Land Tenure in 44 provinces for 351 rural and urban municipalities. Information and communication workshops were also organized in the 13 regions and in 15 provinces on the new law. Information was also disseminated in local languages and French in a range of outlets, including participatory theater (theâtre forum), leaflets, magazines, and micro-programs for radio. The capacity of rural land tenure services and the Regional Chambers of Agriculture was strengthened through training in the new law, its application decrees, and its operational tools. The project also supported the development of a simplified version of the National Strategy for Rural Land Tenure. Overall, 18,583 persons, including 2,980 women, were sensitized on the new strategy, and 20,276 on the new law. The project disseminated 36,500 leaflets on the strategy, the law, and operational tools for rural municipalities. Component D: Program Coordination, Monitoring, and Evaluation Rating: Achievements under this component are rated Satisfactory Output Indicator Target Achievements (Selected Outputs) Manage the work program at the national level NA 82 reports including quarterly and semi-annual reports, quarterly activity planning, and consolidated annual reports 14 quarterly meetings to report on project results 10 steering committee sessions to validate project reports, annual work plans, and budgets 8 supervision missions organized 1 midterm review organized Oversee flow of funds to local governments and villages NA 772 contracts signed 5,873 microprojects derived from PAIs were implemented External audits were unqualified Undertake necessary procurement activities at the central NA 42 procurements of furniture level 2 procurements of works 133 procurements of consultant services Provide technical support to the government’s regional NA 3,780 CCAM members from the 302 municipalities administrations, organize national and regional workshops trained related to the program 2,770,255 man-days of training provided 302 local M&E teams created 13 regional M&E specialists trained 13 regional government staff trained in Tecpro software, database management, and GIS 2,443 municipal councilors and secretaries general of municipalities trained in participatory M&E 1,269 municipal councilors and secretaries general trained in environmental and social safeguards Monitor and evaluate the overall project implementation and NA Intermediate outcome survey in 2010 covered 29 results provinces, 98 municipalities, 256 villages, and 293 32 Output Indicator Target Achievements (Selected Outputs) microproject investments Intermediate outcome survey in 2011 covered all 45 provinces, all 302 rural municipalities, and 1,500 villages 72 facilitators recruited to assist rural municipalities in M&E 2 impact assessment studies supervised The project M&E database created and operationalized This component supported the coordination and administrative, technical, and financial management of the project as well as efforts to monitor and evaluate its performance, results, and impacts. Over the years, the NCU has demonstrated high ability and an appropriate level of autonomy in managing and implementing the CBRD program, including the activities under Phase 2. Project management quickly identified and hired skillful training providers, selected candidates for training among the wide range of stakeholders, and organized practical activities to build capacity. Beneficiaries received funding within the established deadlines to realize their microprojects. Altogether, 772 contracts were signed and 5,873 microprojects were implemented with a disbursement of US$55,521,666. Project management also skillfully contributed to the highly sensitive process of developing and enacting the rural land tenure strategy and legal framework. All stakeholders were sensitized to the issues involved in the process, which culminated in passage of the Rural Land Tenure Law by the parliament. A sound M&E system was put in place to ensure regular monitoring of the project’s economic, environmental, and institutional impacts. Supervision missions were organized with professionalism and contributions to aide-memoires done on time. The M&E system, which was cited by the Government as an example of best practices to be replicated by the government and development partners, furnished comprehensive data for real-time monitoring and management of the project’s physical and financial execution. Financial audits were carried out on regular basis, submitted on time each year, and unqualified. As of May 31, 2013, the project disbursement rate was 99.85 percent. 33 Annex 3. Economic and Financial Analysis Ex Post Economic Analysis of the CBRD 2 Project Because the range of microproject investments could not be identified prior to the project’s implementation, the PAD for the second phase of CBRD could not attempt a detailed ex ante economic cost-benefit analysis of the project. Nor did the project’s demand-driven and evolving nature lend itself to standard financial analysis. In 2012, to serve as an ex post economic evaluation of the second phase of CBRD and an ex ante evaluation for the third phase, an economic analysis was conducted for the 2007–13 portfolio of microprojects in six regions of Burkina Faso. Table A3.1 presents an overview of investments funded under Phase 2. The types of microprojects financed included a mix of productive and social investments. For some types of investments, ERRs could be calculated; for others, cost-effectiveness analysis was more appropriate, because their benefits could not be measured fully in monetary terms or were difficult to measure. The ERR for the entire investment portfolio depends on the relative weight assigned to certain types of investments. Table A3.1: Distribution of CBRD 2 project investments, 2007–13 Type of Investment Quantity /Number Cost Percentage of (FCFA 000s) Investments, 2007–13 Soil and water conservation (stone rows, Zaï earth bunds, 13,192 1,408,716 5.06 vegetative barriers, half-moons, and so on) (ha) Compost pit 48,861 2,711,425 9.73 Water supply/gardening wells (no.) 2,173 5,897,541 21.16 River bank protection (m) 174,400 115,883 0.42 Reforestation and forests fenced (ha) 3,689 573,343 2.06 Forest delimitation (ha) 1,081 210,867 0.76 Other forestry investments 190,031 0.68 Transhumance corridors (km) 113 58,508 0.21 Livestock access to resource roads (km) 1,170 99,340 0.36 Other livestock investments 236,263 0.85 Lowland agriculture (ha) 1,027 1,574,553 5.65 Seed of improved varieties (kg) 6,811,112 3,410,491 12.24 Seed, fertilizer, and pesticide (t) 609 255,081 0.92 Cereals for municipalities and refugee camps affected by food 5,161 800,058 2.87 crises (t) Classroom construction (no.) 453 2,259,356 8.11 Equipment of classrooms and health centers (no.) 720 1,179,842 4.23 Construction/repair of housing for nurses and teachers (no.) 650 1,787,485 6.41 Pharmacies (no.) 18 87,414 0.31 Hospital wards (no.) 30 165,507 0.59 Animal vaccination facilities (no.) 175 946,015 3.39 Animal slaughtering facilities (no.) 130 487,093 1.75 Livestock markets (no.) 30 412,885 1.48 Modern markets (no.) 48 533,460 1.91 Bus stations (no.) 9 189,574 0.68 Public restrooms (no.) 563 384,725 1.38 Solar lighting units (no.) 137 251,330 0.90 Rural roads built/rehabilitated (km) 248 221,962 0.80 Other investment in roads (bridges, inverts, culverts) (no.) 53 200,150 0.72 Literacy training centers (no.) 161 577,142 2.07 Equipment for literacy training centers (no.) 134 98,836 0.35 Information and sensitization sessions (no.) 1,635 6,470 0.02 Other 536,155 1.86 TOTAL 27,867,501 100.0 34 The analysis used data collected by SOGEDAT in April 2012 and covered 10 types of microprojects on social and economic infrastructure financed through the project. Because the analysis relied on a standard methodology and sufficiently covered the microproject portfolio, the ICR team conducted no other economic analysis of investments under the CBRD 2 project. Methodology Of the 13 regions covered by the project, 6 were randomly selected, ensuring that at least 1 region was selected per zone and that, for each type of microproject, the selected region accounted for at least 10 percent of the total number of microprojects financed under CBRD 2. The final sample covered 6 regions (Center-West, Center-East, Center-North, North, Boucle du Mouhoun, and Hauts-Bassins), 13 provinces, 22 rural municipalities, 58 villages, and 10 types of microprojects. The selected microprojects included water supply, animal slaughtering facilities, animal vaccination facilities, classrooms, housing for nurses, literacy training centers, public restrooms, compost pits, stone fences, and lowland agriculture. The microprojects included in the sample represented more than 65 percent of all microprojects financed under the project (Table A3.2). Table A3.2: Sampled microprojects as a share of all microprojects financed under the CBRD 2 project Microproject Number of Microprojects Number of Sampled Sampled Microprojects as Financed Microprojects a Percentage of (1) (2) Microprojects Financed (2)/(1) Stone fences (ha) 7,644 5,356 70.1% Compost pits 31,558 22,117 70.1% Water supply 302 173 57.3% Classroom 197 139 70.6% Literacy training center 80 41 51.3% Housing for nurses 68 43 63.2% Animal vaccination facilities 85 47 55.3% Public restrooms 228 159 69.7% Animal slaughtering facilities 63 44 69.8% Lowland agriculture (ha) 440 361 Source: World Bank estimates, derived from SOGEDAT, Economic and financial analysis of CBRD 2 project, 2012. Rates of return were calculated for water supply, stone fences, compost pits, and animal vaccination facilities, which accounted for about 53 percent of the portfolio. Project costs included in the analysis comprised direct costs (the initial cost of the investment plus contributions from municipalities) and indirect costs associated with community facilitation and operating and monitoring the infrastructure. The valuation of benefits considered both monetary benefits and nonmonetary benefits to which an economic value could be assigned. Economic and financial rates of return were computed for the sample of microprojects using the following assumptions: (i) for every microproject, the full benefit is realized in year 1 and every year thereafter, throughout the life of the project; (ii) a discount rate of 10 percent is used to compute net present value (NPV) and internal rate of return (IRR); and (iii) the expected benefit stream ceases immediately after the microproject’s lifespan is complete. For environmental and natural resource management investments, the study used SILEM data, reports, and analysis.25 25 Economic and financial analysis of SILEM projects (2009) and ICR of SILEM project (2011). SILEM (now closed) was a long- term Bank-financed project supporting the government’s efforts to reduce deterioration of the natural resource base. 35 The analysis showed that the microprojects yielded positive returns overall, even when a sensitivity analysis was done. On average, financial rates of returns were high for productive investments such as compost pits (199 percent), stone fences (97 percent), animal vaccination facilities (18 percent), and animal slaughtering facilities (19.4 percent). ERRs were also positive and high for microprojects related to basic social infrastructure and other social investments; for example, the average ERR for water supply projects was around 19 percent. Cost-efficiency Analysis and Unit Cost Comparison An important finding is that the municipal procurement system for building social infrastructure under the project’s LDF component tends to be more efficient than alternative procurement channels (Table A3.3). Except for animal vaccination facilities and literacy training centers, on average infrastructure built through CBRD 2 microprojects was built at a lower unit cost than similar infrastructure built by public ministries and government agencies. The unit cost of housing for nurses was 31.5 percent and 28.6 percent less expensive than housing supplied by the FPDCT and Ministry of Health, respectively. To build a classroom cost around 9 percent less under CBRD 2 than through the national education ministry. Table A3.3: Estimated unit cost savings for selected types of CBRD 2 microprojects Projects CRBD 2 Unit Cost Comparison with Ministries and Other Programs Cost Education MRAa FPDCTb Health Water supply 7,260,702 +3.1% Literacy training centers 5,974,726 -0.7% Classrooms 6,103,590 +8.7% Animals slaughtering facilities 3,450,749 +11.4% Animal vaccination facilities 7,299,657 -3.2% Housing for nurses 5,452,659 +31.5% +28.6% Public restrooms 468,376 +4.2% Source: World Bank estimates, derived from SOGEDAT, Economic and financial analysis of CBRD 2 project, 2012. a Livestock Ministry (Ministère des Ressources Animales). b Permanent Fund for Local Development. The relatively lower unit costs of investments in social infrastructure made under the project could be explained by beneficiaries’ involvement in implementing and overseeing microprojects. The project also relied on other factors that contributed to its cost-efficiency. First, the productive microprojects (such as compost pits, stone fences, and animal slaughtering and vaccination facilities) were well selected and particularly profitable. Second, decentralized procurement appears to have reduced microprojects’ unit costs compared to those of similar publicly funded projects elsewhere in the country, suggesting that public resources employed in CBRD 2 were not wasted. Economic Analysis by Type of Investment Water supply. Water supply microprojects were among the most requested investments, and the project financed about 300 of them, generally wells and boreholes fitted with hand pumps. Based on survey data and various assumptions, the overall ERR for water supply projects was estimated to be about 17.7 percent with a payback period of 11 years (Table A3.4). The average ERR ranged from –4.2 percent in Kouroukan 2 (West-Center Region) to 84.3 percent in Bourasso, but generally returns were positive except for three projects based in Siglé and Kouroukan Municipalities). Benefits to which it is difficult to attach a monetary value (such as reduced infant mortality) and indirect benefits (such as stronger community participation) were not included in the quantifiable benefits but are likely to be important to beneficiaries nonetheless. 36 Table A3.4: Financial and economic analysis of CBRD 2 water supply microprojects Elements Baseline Results High Cost (20%) Low Revenues High Cost and Low (20%) Revenues Direct and indirect costs 7,306,729 8,574,592 7,306,729 8,574,592 Total benefits 22,522,057 22,605,870 21,121,338 21,205,151 B/C 3.1 2.6 2.9 2.5 Economic IRR 17.7% 13.1% 15.8% 11.6% Economic NPV (FCFA) 3,143,325 1,875,463 2,360,489 1,190,984 Payback period (years) 11 13 12 14 Source: World Bank estimates, derived from SOGEDAT, Economic and financial analysis of CBRD 2 project, 2012. Animal slaughtering facilities. The analysis focused on three animal slaughtering facilities located in Gonkin, Dassui, and Tensobentenga. Financial and economic returns were estimated using costs and monetized benefits (fees paid by butchers for the slaughtering of their animals). The findings showed that the construction of slaughtering facilities was financially and economically viable. The average ERR was 33.5 percent and ranged from 46 percent in Dassui to 28 percent in Gonkin. The overall average financial rate of return (FRR) was 19.4 percent and ranged from 25 percent in Tensobentenga to 11 percent in Gonkin. Table A3.5: Financial and economic analysis of CBRD 2 microprojects to build animal slaughtering facilities Elements Baseline Results High Costs (20%) Low Revenues High Cost and Low (20%) Revenues Direct and indirect costs 3,603,714 4,093,369 3,603,714 4,093,369 Total benefits 12,164,612 12,164,612 9,731,690 9,731,690 B/C ratio 3.4 3.0 2.7 3 Economic IRR 33.5% 28.0% 27.5% 22.3% Financial IRR 19.4% 16.2% 14.1% 10.7% Economic NPV (FCFA) 4,838,489 4,338,196 3,699,283 3,010,729 Financial NPV (FCFA) 2,039,125 1,538,831 899,918 211,364 Payback period (years) 4 5 5 5 Source: World Bank estimates, derived from SOGEDAT, Economic and financial analysis of CBRD 2 project, 2012. Animal vaccination facilities. The analysis was conducted on 10 vaccination parks in 5 regions, 9 municipalities, and 10 villages. On average, these microprojects are financially sustainable and generate revenues for municipalities, butchers, and local veterinarians. The overall FRR was around 18 percent and ranged from 44.5 percent in Kangr-tenga Vaccination Park to 1.2 percent in Tougouri Vaccination Park. This result reflected in the positive and significant estimated NPV of FCFA 10 million. Table A3.6: Financial analysis of CBRD 2 microprojects to build animal vaccination facilities Elements Baseline Results High Costs (20%) Low Revenues High Costs and Low (20%) Revenues Direct and indirect costs 7,387,427 8,639,217 7,387,427 8,639,217 Total benefits 39,379,178 39,237,148 31,525,634 32,596,777 B/C ratio 5.6 4.8 4.5 4.0 Financial IRR 17.8% 14.4% 13.2% 11.4% Financial NPV (FCFA) 10,449,353 9,302,049 7,096,587 6,495,047 Payback period (years) 24 29 30 32 Source: World Bank estimates, derived from SOGEDAT, Economic and financial analysis of CBRD 2 project, 2012. 37 Compost pits and stone rows. These microprojects helped to increase productivity of natural resources and improve pasture quality, which led to higher incomes and improved food security. 26 For example, farmers using compost pits saw significant increases in millet, sorghum, and maize production, whereas stone rows increased the returns to cowpea and millet production by 66–71 percent. 27 Compost pits and stone fences are financially and economically sustainable. These investments generated a high FRR (around 200 percent for compost pits and 100 percent for stone fences), and initial investments were recovered before two years. TableA3.7: Financial analysis of CBRD 2 microprojects to construct compost pits and stone fences Elements Baseline Results High Cost Low Revenues Compost Stone Compost Stone Compost Stone Pits Fences Pits Fences Pits Fences Total cost 75,854 204,040 91,025 244,848 75,854 204,040 Total benefits 657,031 1,384,857 657,031 1,384,857 532,500 1,107,886 B/C ratio 5.6 5.4 4.6 4.5 4.5 4.3 IRR 198.9% 97.0% 165.0% 82.2% 159.8% 79.2% Financial NPV (FCFA) 422,279 775,232 407,108 734,424 327,605 579,378 Payback period (years) 1 2 1 2 1 2 Source: World Bank estimates, derived from SOGEDAT, Economic and financial analysis of CBRD 2 project, 2012. Lowland agriculture. Microprojects on lowland agriculture were not financially beneficial, and their profitability was relatively sensitive to revenues (cereal prices for rice, millet, sorghum, and maize) and costs. A 20 percent increase in costs or a 20 percent decline in revenues reduced profitability. In other words, for investments in lowland agriculture to be financially viable, prices of agricultural products and productivity would have to remain relatively stable or increase. An alternative for future microprojects in lowland agriculture would be to diversify into the production of high-value crops such as vegetables. Table A3.8: Financial analysis of CBRD 2 lowland agriculture microprojects Elements Baseline Results High Cost Low Revenues Total cost 1,559,683 1,871,619 1,559,683 Total benefits 3,508,074 3,508,074 2,806,459 B/C ratio 1.6 1.3 1.3 IRR 7.8% 5.4% 4.9% Financial NPV (FCFA) - - - Payback period (years) 13 16 16 Source: World Bank estimates, derived from SOGEDAT, Economic and financial analysis of CBRD 2 project, 2012. Other Economic Benefits The CBRD 2 project directly and indirectly improved rural employment and incomes. Direct improvements arose from the increased productive capacity of the natural resource base and the involvement of local artisans and village workers in building basic infrastructure funded through LDF. Indirect improvements resulted from the additional economic opportunities generated by improved roads and greater capacity for economic activity arising from better health and water supplies. Additional income from the productive activities supported by the project caused more income to flow into the local economy, with a positive impact on spending on local goods and services that could possibly lead to the creation of new opportunities that could generate fiscal revenues for the communities. 26 Economic and financial assessment of SILEM’s microprojects (2009). 27 SILEM ICR (2011). 38 Annex 4. Bank Lending and Implementation Support/Supervision Processes Task Team members Name Title Unit Responsibility/ Specialty Lending Emmanuel Nikiema Sr. Natural Resources Mgt. Specialist AFTS4 TTL Daniel Murphy Consultant AFTS4 Local Dev’t Special. Dirk Prevoo Sr. Operations Officer AFTS4 HClkne Bertaud Sr. Counsel LEGAF Julien Labonne Monitoring and Evaluation Specialist SDV Consultant Julie Van Domelen Consultant AFTS4 CDD Expert William Dakpo Procurement Specialist AFTPC Mamadou Yaro Sr. Financial Mgt. Specialist AFTFM Wolfgang Chadab Finance Officer LOAG Abdoulaye Touré Sr. Rural Development Specialist AFTS4 Ibrahim Nébié Sr. Agricultural Extension Specialist AFTS4 Hubert Ouedraogo Consultant AFTS4 Land Tenure Expert Per Ryden Consultant NRM Expert Env. Virginie Vaselopulos Language Program Assistant AFTS4 Gwladys Kinda Program Assistant AFMBF Celestin Bado Sr. Operations Officer AFTPR Amadou Konare Sr. Environmental Specialist AFTS 1 Supervision / ICR Elisee Ouedraogo Agricultural Economist AFTA1 ICR TTL Erick Herman Abiassi Agricultural Economist AFTA1 ICR Co-TTL Kofi Nouve Sr. Agricultural Economist AFTA1 Ousmane Megnan Kolie Sr. Financial Mgt. Specialist AFTFM Financial Manag. Boubacar Diallo Procurement Specialist AFTPC Maman-Sani Issa Sr. Environmental Specialist AFTEN Abdoul-Wahab Seyni Sr. Social Development Specialist AFTCS Begnadehi Claude Bationo Operations Officer AFMBF Monitor. and Eval. Aissatou Diallo Sr Finance Officer CTRLA Disbursement Suzane Essama Operations Officer AFTDE Oper. Qual. & Know. Edith Zannou Tchoko Financial Mgt. Specialist AFTMW Marie-Claudine Fundi Program Assistant AFTA1 Andrew Asibey Sr. M&E Specialist AFTDE Nicolette Dewitt Lead Counsel LEGAF Corinne Ilgun Social Development Specialist SDV Gender Bronwyn Grieve Governance Specialist AFTP4 Governance 39 Annex 5. Beneficiary Survey Results Résumé synthèse des résultats de l’enquête sur le capital social dans les communes rurales du Burkina Faso en 2012 La première phase du PNGT2 a permis de tester à l’échelle nationale la capacité des communautés à la base d’assurer la maîtrise d’ouvrage dans la conduite du processus de développement local. En outre, cette première phase a permis la réalisation d’infrastructures productives et socio-économiques qui ont, ensemble, contribué à l’amélioration des conditions de vie des populations. Elle a aussi permis de promouvoir le dialogue pour l'élaboration de la politique foncière en milieu rural. Quatre ans après, une nouvelle évaluation du capital social et de la gouvernance locale permettra, d’une part, de faire l’état des lieux sur l’état de la gouvernance locale et le niveau de capital social dans les villages et communes rurales du Burkina Faso et, d’autre part, de disposer d’informations de référence pour apprécier les changements intervenus suite aux interventions du Programme entre l’année 2008 et l’année 2012. D’où la présente enquête qui a pour objectif de conduire une étude afin d’établir pour l’année 2012, à partir de la liste d’indicateurs et variables proposée dans le document méthodologique développé au cours de la première phase du PNGT2, la situation du capital social, les dynamiques sociales et la gouvernance locale dans les communes rurales et villages du Burkina Faso. Ce document synthèse, après avoir rappelé la méthodologie de l’étude, fait l’analyse comparée des résultats de 2008 avec ceux de 2012 et présente un tableau comparatif des indicateurs de 2008 et ceux de 2012. DEMARCHE METHOLOGIQUE La mise en œuvre d’une opération d’investigation d’envergure nationale demeure toujours quelque chose de complexe car elle nécessite la mobilisation de moyens matériels, humains et financiers assez importants. L’échantillon est constitué de 100 communes rurales réparties dans l’ensemble des 13 Régions du Burkina et de 09 villages par communes, soit un total de 900 villages. Le tirage des échantillons s’est déroulé conformément à la méthodologie proposée (tirage aléatoire systématique à probabilité égale). Avec les aspects institutionnels, la collecte des données a touché l’ensemble des 302 communes. L’enquête a intéressé 300 élus municipaux, 11 392 membres des communautés et 2 700 membres des Conseils Villageois de Développement (CVD). 40 PRINCIPALES CONCLUSIONS DE L’EMQUETE Dans l’ensemble, les domaines dans lesquels le capital social et les dynamiques sociales se sont améliorés ou sont restés constants en 2012 par rapport à 2008 sont plus importants que ceux où il y a eu recul. Ainsi la taille du réseau social individuel s’est élargie de même que la moyenne des contacts opérés par catégorie de personnes. Les catégories socio- professionnelles représentées dans le réseau gardent leur pertinence de 2008. Ce sont les agriculteurs, éleveurs, artisans, commerçants, salariés du public, chômeurs/élèves. Le taux d’adhésion aux organisations a augmenté nettement au cours de la période de 2008 à 2012. La répartition entre différents types d’organisation (paysanne, politique, religieuse, sociale, etc.) est restée quasiment constante. Constante aussi est restée l’efficacité du leadership de ces organisations. Plus que par le passé, des actions concertées ont pu être menées par les membres de la communauté en vue d’interpeller les autorités locales sur le développement de leur village dont plusieurs ont abouti à des résultats positifs. L’organisation en vue du soutien mutuel a été améliorée. La confiance à ceux qui peuvent se mettre ensemble pour trouver une solution à un problème du village a été réaffirmée aux parents d’élèves, au CVD, à tout le village, etc. Les raisons explicatives de l’exclusion de certaines personnes des services fournis par la commune ou l’État sont perçues de la même manière en 2008 et en 2012, à des degrés différents. Ce sont : Le niveau de revenu, le manque d’éducation, le statut d’activités, l’âge et le statut social qui sont mises en avant. Le choix entre les modes de travail collectif ou individuel a fléchi en faveur du mode de travail individuel mais sans lui donner l’avantage sur le mode collectiviste. C’est en quelque sorte la coexistence virtuelle de deux modes opposés dans un système libéral. L’envers du décor de l’élargissement de la taille du réseau social, c’est que le degré de connaissance entre les personnes du réseau a baissé par rapport à 2008. Ont fléchi aussi : (i) la confiance en matière de prêt et de remboursement d’argent ; (ii) le niveau d’appréciation du degré de confiance dans le village par rapport aux villages alentours ; (iii) la participation sociale, civique et économique. Enfin au niveau des organisations, la prise de décision est jugée moins collégiale que par le passé. Sur les aspects relatifs à la gouvernance locale en 2012, l’appréciation est plus positive qu’en 2008, car là où les données existent pour faire des comparaisons, les variables qui ont été améliorées ou qui sont restées constantes, sont nettement supérieurs à celles qui ont connu une dégradation. En matière de gouvernance politique : (i) le niveau de connaissance des paramètres de la démocratie n’a pas varié hormis le scepticisme marqué pour le contrôle de l’action de la 41 municipalité ; (ii) le choix d’un homme fort à la tête de la commune ou que les fonctionnaires prennent les décisions à la place des élus n’est pas naturellement accepté par les populations ; (iii) le poids accordé aux différentes entraves dans le développement des communes est beaucoup plus important en 2012 qu’en 2008 à classement égal [faiblesse des ressources naturelles, mauvaise gestion des dirigeants de la commune, mentalité/comportement de la population, poids du passé (coutumes, religion, histoire coloniale, politique, etc.), effets néfastes des interventions étrangères (projets, commerçants, députés, préfet)]. En matière de gouvernance administrative, l’appréciation de la clarté et de la crédibilité des orientations stratégiques du Conseil municipal est favorable autant en 2012 qu’en 2008. Le jugement des populations par rapport au fonctionnement des nouvelles institutions (CVD, CM, administration) est qu’elles fonctionnent bien en 2012 mais pas autant qu’en 2008. Le nombre de mécontents a augmenté de près de 15 points. Autant en 2008 qu’en 2012, les enquêtés apprécient bien la crédibilité et la clarté des orientations stratégiques du Conseil municipal. De même ils estiment que les taux de tenue des sessions, ordinaires, extraordinaires, les réunions de commissions et les autres rencontres sont bons, avec cependant un poids nettement plus importants pour les autres rencontres en 2012 qu’en 2008. Le taux moyen de participation des élus aux sessions, autant chez les hommes que les femmes est resté contant, de même que le rapport femme/hommes au sein des conseils municipaux. Des différentes sessions tenues, la planification et de suivi des activités ont prédominé en 2012. En 2008, les contributions et le niveau d’exécution des plans n’ont pas pu être documentés. En 2012, les contributeurs aux plans ont été, par ordre d’importance, les communes, le PNGT, les autres partenaires et les populations. Les taux d’exécution des activités ont été faibles, que les activités aient été inscrites au plan, au budget, au deux à la fois (moins de 40%) ou même non inscrites dans aucun des documents officiels (20%). Les questions de mobilisation des ressources financières et de la maîtrise des dépenses n’ont pas pu être documentées en 2008. En 2012, il apparaît que le taux de réalisation des recettes fiscales, revenus du patrimoine, transferts de l’État, autres transferts et autres revenus ont été satisfaisants. L’évolution des recettes de 2009 à 2012 est également satisfaisante. Dans l’ensemble les recettes totales ont cru de près de 66% entre 2009 et 2010 et de 26,6% entre 2010 et 2011. Les enquêtes de 2012 montrent, sauf erreurs ou omissions, que les recettes communales sont formées de recettes fiscales, revenus du patrimoine, transferts État, et autres transferts. Au chapitre du fonctionnement des CVD, il ressort de l’enquête de 2012 que les CVD se réunissent à plusieurs occasions ; les rapports qui en découlent sont estimés bons à 51%, passables à 47% et médiocre à 2% en ce qui concerne leur lisibilité. Ils sont réputés avoir été 42 rédigés en français (62%), et en langues nationales (32%). Ils sont rédigés par le bureau CVD (80%), une personne ressource du village (11%), le PNGT (5%). Et leur état de conservation a été jugé bon à 34,6%, acceptable (60,4% et médiocre à 5%. Sur l’aspect intéressant le suivi des activités des CVD, des comités de gestion ont été mis en place en vue d’un meilleur suivi contrôle des travaux. Ainsi, la durabilité des résultats a été bien appréciée (81,5%). Dans les villages, le respect des délais d’exécution des travaux est mitigé. Le respect des cahiers des charges est satisfaisant. Le schéma d’implication des institutions communales et infra communales correspond globalement à la réalité de la planification et la mise en œuvre des actions au niveau communautaire : L’identification des actions est assurée par les populations concernées organisées dans les CVD et les Conseil municipaux ; le choix des prestataires se fait avec l’appui du partenaire d’appui, en l’occurrence le PNGT2 ou toute autre ; le suivi évaluation, la réception et la budgétisation associent les élus locaux et le partenaire d’accompagnement, le tout dans le cadre d’un dispositif d’appui bien compris par tous. Le niveau de satisfaction des citoyens en 2012, il est presque similaire globalement à celui de 2008 pour le respect des droits du citoyen, la prise en compte des préoccupations des citoyens, le soutien aux instances dirigeantes et les compétences des autorités communales. Cependant le niveau de fonctionnement de la démocratie et de prise en compte des aspirations des citoyens a baissé mais demeure toujours à un niveau acceptable. 43 TABLEAU COMPARATIF DES INDICATEURS DE 2008 ET CEUX DE 2012 1. INDICATEURS DU CAPITAL SOCIAL ET DES DYNAMIQUES SOCIALES Domaine Indicateurs Variables 2008 2012 Présence et Nombre de personnes rencontrées manifestation en une semaine 10 15 du capital Taille du réseau personnes proches (parents, 5 10 social amis) 6 12 personnes moins proches 8 12 simples connaissances 4 8 voisins collègues de travail Degré/intensité Degré de connaissance entre les de connaissance personnes rencontrées : 44,60% 39,97% des membres La plupart de personnes 52,40% 49,89% rencontrées se connaissent : 3,00% 10,14% Beaucoup se connaissent : Très peu se connaissent Diversité du Catégories socio- réseau : professionnelles représentées 1: 1: catégories dans le réseau : Agriculteurs agriculteurs socio- 2 : Éleveurs 2. Eleveurs professionnelles 3 : Artisans 3: des membres du 4: Commerçants réseau Salariés/public 4 : Salariés 5: public /privé Commerçants 5 : Elèves 6 : Chômeurs 6 : Artisans 7 : Chômeurs Moyenne des contacts hebdomadaires 5,20 6,93 Fréquence et Avec les voisins 5,00 7,17 intensité des Avec les personnes proches 3,05 5,01 relations Avec les simples connaissances : 2,54 4,95 Avec les personnes moins 2,23 4,74 proches : Avec les collègues de travail : 44 Solidarité La personne sur laquelle on peut Fonctionnement compter en cas d’évènement du capital social malheureux est : 71,7% 56,4 - La famille : 49,4% 21,3 - Les voisins : 46,5% 14,6 - Les amis : - 5,1 - Leaders religieux : - - Autorités coutumières: 3,7 - - Autres (CVD, Conseillers, 2,4 Maires, CM,…) : Confiance en matière de prêt et de Confiance et remboursement d’argent : 78,5% 74,34% fiabilité - Oui, les gens se font confiance : 21,5% 25,66% - Non, les gens ne se font pas confiance : 49,9% 32,21% Évolution du degré de confiance dans 30,6% 44,94% leur village avec le temps 19,5% 22,85% - La confiance s’est améliorée : - Le degré de confiance est resté contant : - Le degré de confiance a baissé : 57,7% 67,25% 35,4% 27,78% Appréciation du degré de confiance 6,9% 10,97% dans leur village par rapport aux villages alentours - Même que les villages alentours : - Meilleur que dans les villages alentours : - Moindre que dans les villages alentours : Coopération Impression d’efficacité communautaire : 72,4% 54,24% - Posséder et exploiter 25 ha à 27,6% 45,76% deux : - Posséder et exploiter 10 ha tout seul : 45 Fonctionnement Participation Consacrer du temps pour un projet du capital social sociale, civique communautaire dont on n’est pas et économique bénéficiaire : 77% 53,24% - Oui, on y consacrera du temps : 23% 46,76% - Non, on n’y consacrera pas du temps : Consacrer de l’argent pour un projet 71% communautaire dont on n’est pas 29% 45,91% bénéficiaire : 54,84% - Oui, on y consacrera de l’argent : - Non, on n’y consacrera pas de 54,9% l’argent : 45,1% 71,96% 28,04% Appartenance à une organisation : - Membre d’une organisation : - Non membre d’une organisation : 79,90% 30,80% 71,58% 17,30% 26,34% Type d’organisations dont les 16,00% 33,06% enquêtés sont membres : 30,07% - Organisations paysannes : 14,10% 35,60% - Organisations politiques : 21,02% - Associations de Parents 7,40% 6,52% d’Élèves : 1,00% 4,65% - Organisations socio- civiques : 0,20% - Organisations religieuses : - Coopératives : - ONG : - Syndicats : Soutien Etes-vous d’accord que les habitants communautaire des villages se soucient plus du bien- être de leur famille que de celui de l’ensemble de la communauté 25,39% - Parfaitement d'accord : 15,4% 26,9% 47,55% - D'accord : 22,10% - Pas d'accord : 36,6% 21,0% 4,96% - Pas du tout d'accord : Fonctionnement Fonctionnement Processus de prise de décision du capital social des De façon collégiale : 70% 56,86 organisations Par le leader qui informe ensuite les 3% 6,99 locales autres : Appréciation du leadership au sein 74,7% des organisations 24,4% Très efficace : 0,9% Peu efficace : Pas du tout efficace : 46 Réseau et Ceux qui peuvent se mettre ensemble organisation de pour trouver une solution à l’absence soutien mutuel d’un instituteur dans un village 92,4% 96,43% - Les parents d’élèves : 83,3% 86,18% - Le CVD : 74,9% 75,23% - Tout le village : 24,7% 33,41% - Autre : 2,8% 7,14% - Personne : Ceux qui peuvent se mettre ensemble pour trouver une solution à un 91,7% 96,54% problème qui affecte tout le village 88,8% 93,43% - Le CVD/CM : 78,3% 78,92% - Les leaders : 47,0% 57,95% - Tout le village : 17,3% 39,29% - Les voisins entre eux : 10,9% 41,71% - Autre : - Chacun individuellement : 47 Fonctionnement L’exclusion Les raisons explicatives de l’exclusion du capital social sociale de certains membres des services fournis par la commune : 82,40% 75,05% - Le niveau de revenu : 59,00% 40,15% - Le manque d’éducation : 36,00% 55,46% - Le statut d’activités : 25,40% 37,26% - L’âge : 20,20% 42,83% - Le statut social : 18,40% 31,26% - Le sexe : 16,40% 35,65% - L’affiliation politique : 7,00% 17,13% - L’ethnie : 3,60% 13,38% - La religion : Actions Souvenance d’actions concertées collectives menées par les membres de leurs passées communautés l’an passé en vue d’interpeller les autorités locales sur le 42,4% 44,41% développement de leur village 34,5% 3,31% - Plusieurs fois : 13,1% 49,49% - Jamais : 10,0% 2,80% - Une fois : - Fréquemment : 74,5% 65,51% Des actions concertées qui ont abouti 20,5% 23,90% - Certaines ont abouti : 0,9% 10,59% - Non, aucune n’a abouti : - Oui, elles ont toutes abouti : 48 2. INDICATEURS DE LA GOUVERNANCE LOCALE Domaine Indicateurs Variables 2008 2012 Gouvernance Connaissance Ce que représente pour les enquêtés la politique de la démocratie : 95,2% 93,32% démocratie - Exprimer librement ses opinions : 88,5% 85,17% - Désigner librement ses représentants : 80,4% 60,35% - Possibilité de contrôler l’action du conseil municipal : Choix des Appréciation des dirigeants dirigeants - n’apprécient pas avoir à la tête de la mairie 92,5% 84,04% un homme autoritaire 90,1% 88,77% - n’apprécient pas que les fonctionnaires décident à la place des élus Les entraves au Poids des différentes entraves dans le développement développement des communes 89,3% 93,37% des communes - La faiblesse des ressources naturelles de la 85,9% 88,47% commune : 81,3% 88,24% - La mauvaise gestion des dirigeants de la 32,4% 53,43% commune : 8,5% 44,01% - La mentalité/comportement de la population : - Le poids du passé (coutumes, religion, histoire coloniale, politique, etc.) : - Les effets néfastes des interventions étrangères (projets, commerçants, députés, préfet) : État de Taux d’adhésion aux nouvelles institutions : fonctionnement CVD, CM, administration communale 95% 82,34% des nouvelles - estiment qu’elles fonctionnent bien 5% 17,66% institutions - estiment qu’elles ne fonctionnent pas bien Clarté et Appréciation des enquêtés sur la crédibilité et la crédibilité des clarté des orientations stratégiques du CM 84,5% orientations - estiment que les orientations sont crédibles et 15,1% 84,17% stratégiques du claires 0,4% 15,83% CM - pensent le contraire - - non déterminés 49 Fonctionnement Tenue des Taux de tenue des sessions, des conseils sessions - sessions ordinaires 70,9% 77,15% municipaux - sessions extraordinaires 20,4% 16,38% - réunions de commissions 3,6% 3,88% - autres rencontres 98,25% 5,1% Participation Taux moyen de participation des élus aux des élus aux sessions 73% 73,7% sessions - hommes 27% 26,3% - femmes Rencontres de - Planification des activités 43,7% 67,97% suivi des - Rencontres destinées au suivi des activités 9,4% 56,03% activités, de - Rencontres destinées au contrôle physique 16,6% - contrôle d’exécution - - d’exécution et - Rencontres destinées au contrôle financier - 12,90% de contrôle - Renouvellement des instances financier Existence d’un - Rencontres ont un procès-verbal 92,1% 98,29% procès-verbal de rencontre - % moyens des contributions par sources o Financement propre de la - 42% commune - 1% o Cotisation des populations - 34% o Contribution du PNGT - 23% Financement et o Contribution des autres partenaires exécution du - Taux d’exécution des activités inscrites plan o Budget communal - 30,48% o PCD - 18,10 o PCD et BC - % o Hors PCD et BC - 31,43 % 20,00% Prise en compte - Représentativité des femmes aux conseils 27% 27% Amélioration du genre du cadre Communication La mairie diffuse au public : institutionnel et avec la o Suffisamment d’information 36,6 organisationnel population o Pas assez d’information 41,9 o Trop peu d’information 21,5 Amélioration Capacité de - Taux de réalisation des recettes totales Moins 74,87% des finances mobilisation - recettes fiscales de 75,30% locales des ressources - revenus du patrimoine 25% 88,98% financières - transferts État - 92,31% - autres transferts - 81,30% - autres revenus - 77,44% - 50 Composantes - recettes fiscales /aux recettes totales - 13% des recettes - revenus du patrimoine /recettes totales - 8% communales - transferts État /recettes totales - 43% - autres transferts/recettes totales - 43% Maîtrise de la Maîtrise de la - taux d’absorption des ressources - 94% dépense dépense Auteur des - le bureau CVD - 80% Fonctionnement rapports - une personne ressource du village - 11% des conseils - le PNGT - 5% villageois de État de - bon - 34,6% développement conservation a - acceptable - 60,4% été jugé - médiocre - 5,0% Satisfaction des Fonctionnement - % des enquêtés qui pensent que la 95% 84,76% citoyens de la démocratie fonctionne bien démocratie Respect des - % des enquêtés qui pensent que les droits 93,3% 88,35% droits du des citoyens sont respectés 98,9% 93,30% citoyen - % des enquêtés qui pensent que la liberté 93,1% 85,27% de religion est respectée 90,9% 86,16% - % des enquêtés qui pensent que la liberté politique est respectée - % des enquêtés qui pensent que la liberté d’expression est respectée Prise en compte - % des enquêtés qui pensent que ce que fait 93,2% 75,70% des leur mairie prend en compte leurs préoccupations préoccupations des citoyens Le soutien aux - % des enquêtés qui jugent inacceptable le 97,5% 91,71% instances non-respect des décisions du Conseil dirigeantes municipal Prise en compte - % des enquêtés qui pensent que les actions 87,6% 88,13% des aspirations de la mairie prennent en compte les des citoyens aspirations des populations Compétences - % des enquêtés qui pensent que les 91,6% 90,47% des autorités autorités communales sont compétentes communales 51 Annex 6. Stakeholder Workshop Report and Results (Full report in French) Atelier national sur la perception des acteurs et des bénéficiaires des interventions du PNGT2 Phase 2 (2007-2012) INTRODUCTION Le mardi 10 septembre 2013 s’est tenu dans la salle de conférence de la Compagnie Burkinabé des Chargeurs (CBC), un atelier national sur la perception des bénéficiaires et des autres partenaires sur la mise en œuvre du PNGT2 phase II (2007-2012). Cet atelier national fait suite aux quatre ateliers régionaux tenus le 5 septembre 2013 à Dédougou (Boucle du Mouhoun), Ouahigouya (Région du Nord), Fada N’Gourma (Région de l’Est) et le 6 septembre 2013 à Manga (Région du Centre-Sud). La rencontre a réuni cent vingt (120) participants parmi lesquels, des Gouverneurs de régions, des Maires et conseillers municipaux, des responsables de services techniques déconcentrés régionaux, des représentants d’ONG, une équipe de la coordination nationale du PNGT2 et des représentants de la Banque Mondiale (cf, liste de présence). Le présent rapport fait la synthèse des travaux de l’atelier et s’articule autour des points suivants : (i) cérémonie d’ouverture, (ii) déroulement des travaux, (iii) clôture de l’atelier. I. CEREMONIE D’OUVERTURE La cérémonie d’ouverture a été présidée par Monsieur le Gouverneur de la région du Plateau Central, Monsieur. Il avait à ses côtés un représentant de la Banque Mondiale, le Coordonnateur National et le Coordonnateur Régional-Est du PNGT2 phase II. Deux étapes fondamentales ont marqué la cérémonie d’ouverture. Il s’agit successivement des interventions du Coordonnateur National du PNGT2 phase II, Monsieur Suleymane NASSA, du représentant de la Banque Mondiale chargé du PNGT2 au Burkina, Monsieur NIKIEMA Emmanuel et du discours d’ouverture prononcé par Monsieur SAWADOGO K Pascal, le Gouverneur du Centre Ouest. • Le coordonnateur National du PNGT2 a tout d’abord souhaité la bienvenue à l’ensemble des participants et salué les efforts que les uns et les autres consentissent dans le cadre du partenariat et de la concertation. IL a rappelé les raisons qui ont conduit sa structure a financé la relecture de 190 PCD en 2013 ; en effet au regard des reliquats de fonds disponibles, il fallait permettre à certaines communes de pouvoir disposer des financements de leurs PAIC à travers le fonds de développement local en 2014. Or sans une relecture des PCD, cela était pratiquement impossible. IL a aussi remercié les Maires des communes rurales pour la qualité du partenariat qui lie les collectivités au PNGT2. • Le représentant de la Banque mondiale à l’atelier : tout comme ses prédécesseurs, Monsieur Emmanuel NIKIEMA remercié les participants d’avoir répondu de façon effective à l’appel et le PNGT2 pour l’organisation de l’’atelier. Il a précisé que le PNGT2 est l’un des Programmes phare de la Banque Mondiale qui est en fin de phase et des rapports d’achèvement ont été déjà produits par le PNGT2 et le gouvernement du Burkina Faso. Cependant, l’appréciation des bénéficiaires est des acteurs sur la mise en œuvre du Programme est très important, a-t-il soutenu d’où le présent atelier. Il a ensuite attiré l’attention des participants que ce qui va compter pour ledit atelier est de pouvoir connaître « ce qui n’a pas marché et comment faire pour corriger cela et du côté de ce qui a marché, quelle approche utilisée pour renforcer les acquis ». L’atelier doit permettre de mettre en exergue les changements opérés au niveau des communes sous l’effet des interventions du PNGT2, a-t-il conclu. 52 • Dans son discours d’ouverture, Monsieur le Gouverneur a d’abord souhaité la bienvenue à l’ensemble des participants et remercié la Banque Mondiale et le PNGT2 pour la tenue de l’atelier. Tout en rappelant l’objectif du PNGT2 phase II qui est « d’aider les communautés rurales à planifier et mettre en œuvre les activités de développement local de manière participative et viable à long terme », il a précisé que le Programme exécuté de 2007 à 2012 est à vocation nationale car, couvrant les 302 communes du Pays. Le thème de l’atelier, à savoir « la perception des bénéficiaires et des partenaires sur la mise du Programme» est pertinent car il y va de soi qu’un bilan se fasse à la fin de la phase dans une perspective de tirer des leçons pour le futur. Le Gouverneur a ensuite témoigné la reconnaissance de l’Etat Burkinabé à la Banque Mondiale pour cette initiative qui vient parachever un long processus. Avant de déclarer ouvert les travaux, il a salué la disponibilité de l’ensemble des acteurs et a souhaité plein succès aux travaux. Après le discours d’ouverture, une suspension de cinq (05) minutes été observée afin de permettre aux travaux de démarrer. Monsieur Oumarou TRAORE, chef du Service de l’Appui Technique du programme à la coordination nationale a invité les deux (02) co-modérateurs de l’atelier, Monsieur Tony Delwindé KUELA et Monsieur Mahamadou BOKOUM, tous deux Directeurs Régionaux de l’Economie de la Planification (DREP) respectivement des régions du Centre-Est et du Sahel à assurer l’animation l’atelier sous la présidence de Monsieur le Gouverneur du Centre Ouest. II. DEROULEMENT DES TRAVAUX En préalable à la mise en œuvre proprement dite des travaux de l’atelier, il a été procédé à des formalités d’usage. Il s’agit de : • La vérification de la présence des acteurs invités. Après la mise à disposition du programme de l’atelier, les modérateurs ont fait la situation des personnes invitées. Ensuite, dans le but de permettre l’instauration d’une certaine familiarité au sein des participants, une épellation des différentes communes bénéficiaires des interventions a permis aux participants et aux facilitateurs de se présenter. A la suite de la présentation des participants, les modérateurs de l’atelier se sont adressés à l’assemblée. • La présentation des objectifs, des résultats attendus de la formation et l’adoption du programme de travail. Le contexte ayant été déjà situé dans le discours d’ouverture et par le coordonnateur régional du PNGT2, Monsieur Mahamadou BOKOUM, un des co- modérateurs a présenté les objectifs et les résultats attendus de l’atelier. Ensuite, s’en est suivi une lecture commentée du programme de travail puis son adoption (cf. contenu à l’annexe 2). 2.1 DES TRAVAUX EN PLENIERE L’essentiel des travaux de l’atelier s’est déroulé en 3 phases ; une première phase durant laquelle, les travaux en plénière a porté sur des exposés suivi d’échanges, une deuxième phase où des travaux de groupes ont été organisés pour amender les synthèses des résultats issus des ateliers régionaux et enfin une dernières phase en plénière pour la restitution des résultats des travaux de groupes, les témoignages et la clôture de l’atelier. 53 2.1.1 De la présentation du PNGT2 phase II et du bilan des réalisations Cette présentation a porté sur : • le rappel des objectifs du PNGT2 phase II et sa zone d’intervention ; • le domaine, les axes et la stratégie d’intervention ; • le bilan des réalisations qui prend en compte les réalisations physiques, financières, les effets et impacts obtenus ainsi que les difficultés rencontrées. 2.1.2 De la présentation du SEPO A la suite de la présentation du PNGT2 et du bilan des réalisations, les participants ont eu droit à un exposé préparatoire à l’utilisation de l’outil SEPO pour les travaux de groupe. Cet exposé est fait par le second co-modérateur, Monsieur Tony Delwindé KUELA. Le modérateur a introduit le sujet en faisant la genèse de l’outil, son application dans le cadre du suivi-évaluation des projets. La suite de l’exposé a permis d’échanger avec les participants sur ce que c’est que le SEPO, le concept et les étapes de l’utilisation de l’outil et son utilité. L’Abréviation « SEPO » signifie : Succès – Echecs – Potentialités – Obstacles. La méthode SEPO consiste à faire une analyse du passé (regard rétrospectif) et du futur (regard prospectif) en renseignant une grille à 4 fenêtres en respectant l’ordre sui suit: 1. Le Succès d’un Programme qui est les points forts 2. Les Echecs d’un Programme qui sont les points faibles et les difficultés 3. Les Potentialités qui sont les atouts, les capacités inexploitées 4. Les Obstacles à la réussite d’un Programme qui sont handicaps, les limites objectives La procédure permettant l'enregistrement de perceptions différentes, et dirige l'attention de tout le monde vers l'action commune. Sur base des conclusions de l’analyse SEPO, des stratégies et actions peuvent être définies. A la fin de l’exposé, des exemples ont permis d’attirer l’attention des participants sur les succès et les échecs. La différence entre échecs et obstacles. En effet, « succès et obstacles » sont de résultats négatifs, des situations non voulues. Cependant : • les échecs concernent des situations où ce sont les acteurs qui sont responsables ; • les obstacles sont des situations qui ne dépendent pas des acteurs. Après l’exposé, la parole a été donnée aux participants pour d’éventuelles questions d’éclaircissement. Alors, ce que l’on puisse retenir est que la présentation du bilan a permis de rafraichir la mémoire des acteurs qui ont salué à sa juste valeur le Programme. Selon les participants, le PNGT2 est l’un des Programmes qui touche directement les populations à la base et a réellement contribué à l’encrage du processus de la décentralisation dans la région de l’Est. Du reste, ils ont trouvé que les investissements ont touché la plupart des secteurs d’activités des communes (Education, santé, formation, agriculture, environnement etc.) et l’intervention a provoqué des changements notables dans les conditions de vie des populations. 2.1.3 De la constitution des travaux de groupe Les Maires et les conseillers des différentes communes ont été répartis en quatre(04) groupes suivant les quatre thématiques correspondants aux quatre composantes du programme. 54 2.2 RESULTATS DES TRAVAUX DE GROUPE Il s’agissait pour chaque groupe et sur la base des synthèse des rapports des ateliers régionaux réalisées par les deux modérateurs et remises aux différents groupes, de faire ressortir en fonction du thème, les succès, les échecs, les potentialités et les obstacles en rapport avec l’intervention du Programme. Les résultats présentés ci-dessous ont fait l’objet de restitution et de consolidation en plénière. 2.2.1 Synthèse de la perception des différents groupes d’acteurs sur les quatre composantes Cette synthèse est constituée de quelques aspects significatifs qu’on les différents bénéficiaires ; les détails présentés sous forme de fenêtre SEPO sont présentés par composante par la suite. 2.2.1.1 Renforcement des capacités Les formations ont permis le renforcement des capacités des CVD, des Conseillers Municipaux, des Secrétaires Généraux de mairies et des comptables. Les thèmes dispensés étaient bien adaptés aux besoins des acteurs (rôle du CVD, suivi évaluation, passation des marchés…). Ces formations ont permis la participation plus active des conseillers et CVD dans les activités des communes. Comme effets induits, on peut citer entre autres: • un changement de comportements et de méthodes dans les actions ; • une bonne collaboration entre les acteurs de la décentralisation grâce à une meilleure connaissance de leurs rôles ; • une instauration de la culture du compte rendu aux populations ; • un suivi évaluation des activités des communes renforcé ; • une réduction des conflits de compétence grâce à la meilleure connaissance du rôle du CVD et du CM ; • un meilleur exercice de la maitrise d’ouvrage par les communes ; • une participation plus active des conseillers et CVD dans les activités ; • une amélioration des performances (Maires, SG, Comptables) ; • une création de « brigade verte » dans certaines communes grâce aux formations sur les changements climatiques, la Gestion intégré des ressources naturelles.) ; La conduite de l’alphabétisation appuyée par le PNGT2 a permis l’acquisition de capacités par les alphabétisés pour la rédaction des rapports ainsi que la lecture des documents en langue nationale. Au nombre des insuffisances, l’ignorance de l’importance du PCD par certains conseillers avant son élaboration. La période d’élaboration de certains PCD était inadéquat (en hivernage) ce qui a joué sur l’aspect de leur qualité. Par ailleurs bien que le PCD ait été élaboré suivant une démarche participative, certains partenaires ne le considèrent pas comme document de référence. S’agissant des formations et de l’alphabétisation, leur programmation à des périodes non propices (hivernage) et la non prise en charge de la restauration des apprenants sont souvent été cités dans les insuffisances. Dans l’ensemble la perception de la mise en œuvre de cette composante est bonne. 55 2.2.1.2 Financement du Développement Local (FDL) Les différents bénéficiaires apprécient positivement la démarche instaurée pour bénéficier du FDL, car disent-ils, elle responsabilise les communautés, assure la transparence dans la gestion et renforce l’appropriation des investissements par les bénéficiaires. La maîtrise d’ouvrage locale a renforcé l’appropriation des investissements par la communauté. Au nombre des insuffisances, les bénéficiaires directs et partenaires impliqués dans l’accompagnement, relèvent que la mise en œuvre du FDL occasionne des désagréments liés a la lourdeur des procédures et la lenteur des paiements. Par ailleurs le montant de la subvention par commune est jugé faible au regard des capacités assez limitées de mobilisations des ressources propres de chaque commune pour financer les investissements nécessaires pour impulser le développement. Concernant les investissements, l’incompétence de certains prestataires a pour conséquence la mauvaise qualité de certains ouvrages; cette situation est favorisée également par un suivi insuffisant des chantiers par manque de compétences au sein des communes et la faible délégation de la maîtrise d’ouvrage. Comme effets induits des formations, on peut citer entre autres : • une contribution à l’amélioration du niveau d’équipement des communes (Ecoles, Aires d’abattages, infrastructures sanitaire, augmentation du taux de scolarisations….) ; • une contribution à l’amélioration du taux d’alphabétisation ; • une contribution à l’amélioration des conditions de travail des élèves et du personnel enseignant ; • une contribution à l’amélioration des conditions d’accès aux services sociaux de base (Santé, Education, Eau et Assainissement) ; • une contribution à l’amélioration de la production Agro-sylvo-pastorale ; • une contribution à la protection de l’environnement ; • une contribution à l’amélioration des recettes budgétaires des communes par la réalisation d’infrastructures économique (marchés, gares routières, parcs de vaccination, aires d’abattage etc.) ; • une contribution à l’amélioration des revenus des femmes grâce à l’aménagement des bas-fonds et des jardins ; • une contribution à la réduction des conflits entre agriculteur et éleveurs à travers l’ouverture de piste à bétail, couloirs d’accès ; • une contribution au renforcement de la cohésion sociale ; • une contribution à l’amélioration des recettes communales. 2.2.1.3 Réforme du Régime Foncier Rural (RRFR) Le fait qu’il existe une politique et une loi sur le foncier rural et que des sessions d’information et de sensibilisation soient organisées un peu partout est bien apprécié par les acteurs et bénéficiaires. Seulement l’absence de délimitation des territoires communaux et d’échéancier pour la mise en œuvre de la politique et de la loi explique les difficultés et lenteur constatées sur le terrain ; a cela s’ajoute la faible appropriation de la politique et de la loi par les populations. Les suggestions recueillies sont : • renforcer l’information sensibilisation sur la politique et la loi sur la sécurisation foncière en milieu rural ; • appuyer la mise en place les Commissions Foncières Villageoises dans toutes les communes ; 56 • multiplier et vulgariser tous les textes sur la politique et la loi ; • que l’Etat met à la disposition des communes et prenne en charge un personnel qualifié pour les Services Fonciers Ruraux (SFR) ; • doter les communes en matériel et moyens logistiques pour les SFR ; • mettre en place les cellules de gestion des conflits et les former ; • aider chaque lignage à identifier ses terres et obtenir son titre foncier ; • appuyer les communes à construire les locaux du SFR ; • delimiter les communes rural ; • diffuser les textes fondamentaux de base en langue nationale ; • identifier et impliquer les propriétaires terriens dans toutes les activités de sécurisation foncière dans les villages ; 2.2.1.4 Concertation Les réflexions en ce qui concerne cet axe ont porté sur l’appréciation des participants sur le financement de la concertation, l’animation de la concertation et enfin leur point de vue quant à la collaboration ente URC/PNGT2 et la DREP d’une part, et entre URC/PNGT2 et CCR/CCP d’autre part. Ce sont principalement les autorités locales et les Directions régionales de l’Economie et de la planification qui ont le plus exprimé leurs opinions par rapport à la concertation. Comme aspects positifs : • Il y a Effectivité du financement des sessions des cadres de concertation (CCR, CCP, certains CCCo) • Simplicité de la procédure de mobilisation des financements • Tenue régulière des sessions des cadres de concertation. Comme faiblesse, les participants relèvent la faiblesse de l’enveloppe financière des cadres de concertation ; d’où les suggestions suivantes : • Poursuivre le renforcement des capacités des points focaux ; • Équiper conséquemment la DREP en matériel informatique et logiciel pour la capitalisation des acquits ; • Doter les DREP en carburant pour l’animation et le suivi des cadres de concertation. 2.2.2 Recommandations • Considérant la mobilité du personnel ; • Considérant le taux de renouvellement à près de 70% des CM; • Considérant le renforcement des capacités des CM comme outil indispensable à l'amélioration du taux d'exécution des PAIC ; • Considérant l’importance des espaces de concertation dans la synergie d’action, l’harmonisation des approches et la circulation de l’information • Les participants recommandent : • la poursuite des actions de renforcement des capacités des élus et les agents des services communaux ; • la prise en charge intégrale de la tenue des sessions statutaires des cadres de concertation ; • la mise en place et le fonctionnement d’un dispositif de suivi des recommandations des sessions de cadre de concertation ; • Revoir les montants des subventions du PNGT en soutenant davantage les communes à faible capacité d’investissement. 57 2.2.3 Témoignages sur les effets et impacts des interventions du PNGT2 phase II Après la restitution des résultats au niveau de chaque thème, des débats forts enrichissants ont permis aux participants de donner plus de précision à partir de témoignages sur les types de produits qui ont été mis à la disposition des communautés par le Programme et relever les changements (effets et impacts) induits de l’intervention du Programme. • Dans le domaine du renforcement des capacités Les témoignages révèlent qu’il y a : - Plusieurs initiatives locales sont prises suite à la valorisation des connaissances acquises en alphabétisation et en formation ; - Meilleure gestion des communes par une meilleure planification des activités et une concertation avec la base ; - Durabilité des investissements grâce aux renforcements des compétences. • Dans le domaine du Financement du Développement Local Les témoignages ont relevé : - Qu’au moins chaque commune a pu construire ou réhabiliter une école et plusieurs infrastructures et équipements scolaires ont été mis en place et cela à contribuer à augmenter l’offre éducative, la réduction des distances, le taux de scolarisation ; - Que la réalisation des forages ont permis d’augmenter le taux de desserte en eau potable, la consommation de l’eau potable de plus en plus par la population et la réduction des maladies hydriques ; • Dans le domaine du foncier Au regard de la nouveauté de la loi et la non effectivité de son application sur le terrain, il n’ya pas eu de témoignage. • Dans le domaine du partenariat Les sessions de concertation dans certaines communes ont permis de comprendre le processus d’élaboration des plans locaux de développement. Cela a permis aux acteurs d’être opérationnels dans l’élaboration des plans annuels d’investissements. Les travaux ont pris fin aux environs de 16 h avec le mot de clôture de Monsieur le Gouverneur. En effet, Il a tout d’abord remercié le PNGT2 et la Banque Mondiale pour l’organisation et les efforts fournis pour la tenue et la réussite de l’atelier. Ensuite, Il a remercié les animateurs de l’atelier qui n’ont ménagé aucun effort pour faciliter le déroulement des travaux, et féliciter les participants pour la qualité du travail et les résultats obtenus. Pour clore son propos, il a souhaité que les résultats des réflexions puissent être valorisés dans le sens de l’amélioration des actions future sur le terrain. Sur ce, il a souhaité un bon retour aux participants dans leurs localités. 58 CONCLUSION L’atelier national du 10 septembre 2013 sur la perception des bénéficiaires et des partenaires sur la mise en œuvre du PNGT2 phase II a été bien accueilli par les bénéficiaires et partenaires. D’une façon générale, la dynamique du groupe est à apprécier car les participants au cours des échanges ont fait montre d’intérêt passionnant. Le niveau des débats était satisfaisant en témoigne la qualité des interventions qui ont permis de consolider les résultats des travaux de groupe. La méthode SEPO utilisée, a permis d’atteindre les objectifs de l’atelier. Les participants ont apprécié le processus de mise en œuvre du PNGT2 phase II à travers les quatre composantes en mettant en exergue les réussites et les échecs et en formulant des recommandations pour une amélioration des actions futures. 59 Annex 6, Appendix 1: List of Participants N° NOM ET PRENOMS FONCTION STRUCTURE/LOCALITE 1 AGALI AG Ousmane Conseiller municipal Oursi 2 BADINI Adama Maire Bourzanga 3 BAMOGO Nabonswendé Conseiller municipal Pibaoré 4 BARRY Moussa Conseiller municipal Diguel 5 BAWAR Ousmane Directeur Régional DREP Centre-Nord 6 BAYILI Bali Maire Kordié 7 BELOUM Mamadou Maire Séguénéga 8 BEOGO P. Pascal Maire Yondé 9 BOKOUM Mahamadou Modérateur DREP Dori 10 BOUDA/TOE Marie Hélène Maire Bakata 11 BOUGMA Issaka Conseiller municipal Tanghin-Dassouri 12 COMPAORE Athanase Maire Koubri 13 COMPAORE Koudougou Conseiller municipal Koubri 14 CONGO O. Anatole Maire Boudry 15 COULIBALY Souleymane Maire Sanaba 16 DABONE Sambo Maire Bagré 17 DABRE Inoussa Maire Komtoéga 18 DADJOARI Seguidia Conseiller municipal Madjoari 19 DAO Abdoulaye Maire Sono 20 DEMBELE Nafalé Conseiller municipal Koloko 21 DIALLO Ousmane Maire Niou 22 DICKO Idrissa Hamadou Maire Diguel 23 DIOLOMPO Sié Marcel Conseiller municipal Périgban 24 DJANE Bamorifin Directeur Régional DREP B. Mouhoun 25 DOAMBA Anatole Désiré Maire Pabré 26 DOFINI Adama Maire Békuy 27 DOLI Bébé Ignace Maire Bouroum-Bouroum 28 GUIGMA Hamidou Conseiller municipal Zimtanga 29 GUIRA T. Léonard Gouverneur Cascades 30 HAMIDOU Boubacar 1er Adjoint Maire Tankougounadié 31 HEBIE S. François 1er Adjoint Maire Bérégadougou 32 IDANI Boukari Conseiller municipal Diapangou 33 IDANI Motandi Conseiller municipal Diapangou 34 ILBOUDO Bibata Representante Haut- Kadiogo 35 ILBOUDO Bila C i i municipal Conseiller Bindé 36 ILBOUDO Harouna Conseiller municipal Dapelogo 37 ILBOUDO K. Paul Maire Bindé 38 ILBOUDO Talato Etienne Conseiller municipal Méguet 39 KABORE Adama Representant ONG Assoc. VENEGRE 40 KABORE Issiaka Directeur Régional DREP Sud-Ouest 41 KABORE R. Pierre Maire Méguet 42 KABORE Sandaogo Conseiller municipal Sourgou 60 N° NOM ET PRENOMS FONCTION STRUCTURE/LOCALITE 43 KABORE T. S. Hervé Maire Sourgou 44 KABRE/ZOUNGRANA Y. Josiane Maire Saaba 45 KAMBIRE S. Stephane Conseiller municipal Legmoin 46 KAMBIRE Sié Conseiller municipal Bouroum-Bouroum 47 KAMBONE Issa Conseiller municipal Bagré 48 KAMBOU T. Marcel Maire Iolonoro 49 KANWE Babiné Maire Boura 50 KONFE Boureima Conseiller municipal Pobé-Mengao 51 KONFE Inoussa Maire Pobé-Mengao 52 KONSEIGA François Maire Sapone 53 KOUDOUGOU Guiébrila Maire Lalgaye 54 KUELA Tony Delwindé Modérateur DREP Tenkodogo 55 LOFO Pémou Conseiller municipal Bekuy 56 MDRAMED AG WANANOUR Maire Oursi 57 MOURFOU Abséta Conseiller municipal Lalgaye 58 NANA Ousmane Directeur Régional DREP Centre-Sud 59 NANA/KABORE P. Marie Madeleine Maire Kokologho 60 NAPON B. Hermès Conseiller municipal Boura 61 NASSA François de Salles Conseiller municipal Saaba 62 NIAMPA K. Edmond Conseiller municipal Bourzanga 63 NIKIEMA Barthélémy Conseiller municipal Bakata 64 NIKIEMA Pascal Winliam Conseiller municipal Komsilga 65 NONGUERMA Julien Maire Komsilga 66 OUATTARA Amadou Conseiller municipal Niankorodougou 67 OUATTARA Arouna Directeur Régional DREP Est 68 OUATTARA Brama 1er Adjoint Maire Niankorodougou 69 OUATTARA Doulaye Maire Mangodara 70 OUATTARA Moussa Zan Maire Toussiana 71 OUATTARA Seydou Conseiller municipal Mangodara 72 OUATTARA Zoumana Conseiller municipal Toussiana 73 OUBDA Achille T. Maire Dialgaye 74 OUBDA Cyprien Conseiller municipal Dialgaye 75 OUEDRAOGO Blaise Corneille Gouverneur Plateau Central 76 OUEDRAOGO D. Lazar Conseiller municipal Niou 77 OUEDRAOGO Moussa Conseiller municipal Saponé 78 OUEDRAOGO N. Hélène Maire Bagaré 79 OUEDRAOGO S. Macaire Maire Zimtanga 80 OUEDRAOGO Saïdou Maire Pibaoré 81 OUOBA Mamadou Maire Madjoari 82 PACODI T. Barthélémy Conseiller municipal Zitenga 83 PODA Nata Conseiller municipal Iolonoro 84 SADOU Hamidou Conseiller municipal Tankougounadié 85 SANDAOGO Boukari Conseiller municipal Kordié 86 SAVADOGO Emmanuel Directeur Régional DREP Nord 61 N° NOM ET PRENOMS FONCTION STRUCTURE/LOCALITE 87 SAWADOGO Antoine Conseiller municipal Pabré 88 SAWADOGO B. Richard Conseiller municipal Ziga 89 SAWADOGO Danini François Maire Ziga 90 SAWADOGO K. Pascal Gouverneur Centre-Ouest 91 SIB Bébé Justin Maire Périgban 92 SIMPORE Abdoulaye Maire Karangasso-Vigué 93 SINARE Soumaïla O Maire Zitenga 94 SOMDA Jacques Maire Koper 95 SOMDA Rébecca Conseiller municipal Koper 96 SOME Dari N° 1 Maire Legmoin 97 SOME Ferdinand Conseiller municipal Karangasso-Vigué 98 SON Yaya Maire Wolokonto 99 SON Yonemane Conseiller municipal Wolokonto 100 SOUGUE Camille Conseiller municipal Sanaba 101 SOULI Lagmanimba Conseiller municipal Kokologho 102 SOUNTRA Sidiki Maire Morolaba 103 SOURABIE K. Martin Maire Bérégadougou 104 TAMBOURA Hama Mamadou Conseiller municipal Sampelga 105 THIOMBIANO Maïmouna Gouverneur Centre-Sud 106 THIOMBIANO Soampa Conseiller municipal Madjoari 107 TINDANO Mamadou Maire Sampelga 108 TRAORE N'Golo Conseiller municipal Morolaba 109 TRAORE Salou Maire Koloko 110 YADA Salif Maire Diapangou 111 YANOGO Salif Conseiller municipal Boudry 112 ZIDOUEMBA Zambendé Jean Maire Dargo 113 ZILGO Tilado 2ème Adjoint Maire Dargo 114 ZOETTIN Etienne Conseiller municipal Yondé 115 ZONGO Adama Maire Tanghin-Dassouri 116 ZOUBA Issaka Conseiller municipal Komtoéga 117 ZOUNGRANA Marc Maire Dapelogo 118 ZOUON Siembou Conseiller municipal Sono 62 Annex 7. Borrower's ICR (full text in French) RAPPORT D’ACHEVEMENT DU DEUXIEME PROGRAMME NATIONAL DE GESTION DES TERROIRS – PHASE 2 INTRODUCTION Le Deuxième Programme National de Gestion des Terroirs (PNGT2) phase II a été préparé pour accompagner les 302 communes rurales dans l’accomplissement de leur rôle d’animation du développement local harmonieux. Après la mise en vigueur de l’accord de financement intervenue le 13 juillet 2007, le Deuxième Programme National de Gestion des Terroirs (PNGT2) phase II a démarré effectivement ses activités en novembre 2007. L’atelier de lancement technique du projet a eu lieu du 9 au 11 janvier 2008 à Bobo Dioulasso. Le lancement officiel du projet a eu lieu le 25 avril 2008, quatre mois après le lancement technique, par Son Excellence Monsieur le Premier Ministre Tertus ZONGO, dans la commune rurale de Zitenga dans la Région du Plateau Central. La phase II du PNGT2 a été mise en œuvre sur le terrain du mois de Novembre 2007 au mois de mai 2013. PRESENTATION DU PNGT2-PHASE II L’objectif du projet est : « Les communes rurales planifient et mettent en œuvre les activités de développement local de manière participative et durable, et ce, conformément aux recommandations du Programme National pour un Développement Rural Décentralisé ». Le projet comporte quatre composantes qui sont : • La Composante A : Renforcement des Capacités pour le Développement Rural Décentralisé (RCDRD) • La Composante B : Financement du Développement Local (FDL) • La Composante C : Réforme du Régime Foncier Rural (RRFR) • La Composante D : Coordination, Suivi et Evaluation du Programme (CSE) Le projet intervient dans les 302 communes rurales réparties dans toutes les 13 régions du Burkina Faso et touchera à terme environ 6,5 millions d'habitants. Sa durée d’exécution est de 5 ans. Les principaux résultats attendus à la fin du projet sont entre autres : • Les Plans Annuel d’Investissement (PAI) et PCD des Conseils Municipaux (CM) financés sont élaborés et mis à jour de manière participative ; • Les fonds reçus par les CM sont gérés dans la transparence ; • Le cadre légal de gestion du régime foncier est mis en place et bien compris par les différents acteurs ; • Les composantes du projet sont efficacement coordonnées et suivies. 63 Son dispositif de mise en œuvre comprend : • Le Comité de Pilotage qui est l’instance supérieure d’orientation du projet ; • L’Unité Nationale de Coordination chargée de la gestion administrative et financière du projet ; • Les 13 Unités Régionales de Coordination du projet sont installées dans toutes les régions du pays pour la mise en œuvre du projet à l’échelle régionale. La démarche de mise en œuvre s’est voulue participative, coordonnée, holistique et harmonisée, comportant : • L’information et la communication avec les acteurs ; • Le renforcement des capacités des acteurs du développement local ; • L’appui à la planification ; • Le financement des investissements avec : • Une subvention aux communes rurales basée sur la taille de la population ; • La maîtrise d’ouvrage communale; • Le transfert des ressources financière dans les compte des communes ouverts au trésor public ; • La liquidation des dépenses à travers le circuit de la dépense publique ; • La mise en œuvre du dispositif de suivi-évaluation (aux niveaux communal, régional et national); • L’appui à l’animation de la concertation entre les acteurs du développement local. PERFORMANCES OBTENUES Niveau d’atteinte des cibles des indicateurs Pertinence de l’objectif de développement du projet L’objectif, la conception et la mise en œuvre du projet restent pertinents. Le projet a permis aux communes rurales de s’approprier la fonction de planification locale et d’animation du développement local, d’exercer la maîtrise d’ouvrage des investissements ainsi que le suivi des activités au niveau communal. L’appui du projet a également permis d’importantes réformes juridiques et institutionnelles visant à promouvoir une meilleure sécurisation foncière en milieu rural. Niveau d’atteinte de l’objectif de développement Quatre indicateurs-clefs ont été identifiés pour suivre le niveau d’atteinte de l’objectif de développement du projet. Le niveau d’atteinte de ces indicateurs est satisfaisant et se présente comme suit : Indicateur 1 : 75,6% des foyers dans les communes rurales bénéficiaires du projet ont accès à des services de base (écoles primaires, centres de santé, points d'eau, etc.) ; la cible de 65% attendue en fin de projet est dépassée ; Indicateur 2 : 98% des investissements sont entretenus de manière satisfaisante, contre 95% visée comme cible ; Indicateur 3 : 75% des producteurs des villages ciblés utilisent des techniques de gestion des ressources naturelles (cordons pierreux, fosses fumières) et 90,48% pratiquent au moins une des techniques de gestion des ressources naturelles (fumure organique, cordons pierreux, zaï, etc.), la cible visée étant 75% ; Indicateur 4 : 88,13% des CM ont une notation (au moins) satisfaisante lors de l’évaluation annuelle des performances ; la cible de 60% est dépassée. 64 Déclencheurs Les indicateurs déclencheurs (annexe 1) ont également atteint un niveau très satisfaisant, ce qui a permis au Gouvernement et à la Banque Mondiale d’entamer la préparation de la troisième phase dès le mois de janvier 2012. Indicateurs de résultats intermédiaires Huit (8) indicateurs de résultats intermédiaires ont été identifiés dans le cadre des résultats du projet et leur situation à la fin du projet est contenue dans l’annexe 2. Tous les indicateurs ont atteint un niveau satisfaisant par rapport aux valeurs qui étaient ciblées. Aperçu d’ensemble des performances du projet Le graphique 1 ci-dessous indique l’évolution des taux moyens annuels d’exécution physique enregistrés depuis le démarrage du Programme. Encadré 1 : Aperçu de l’exécution du PNGT2 Phase II Nombre de communes rurales couvertes : 302 Nombre de PCD élaborés : 201 Nombre de PCD actualisés : 196 Homme-jour formés : 2 770 255 Nombre de Plan Annuel d'Investissement Communaux extraits des PCD : 772 Nombre de Conventions signés : 772 Nombre total des microprojets financés : 5 883 (1 245 en 2009, 2 011 en 2010, 1 703 en 2011, ,796 en 2012 et 128 en 2013) Nombre de microprojets réalisés 5 873 Montant des microprojets exécutés : 27 760 833 185 FCFA Exécution financière globale du Programme : 42 269 790 720 F CFA Figure 1 : Taux moyen d'exécution physique de 2007 à 2013 TMEP du PNGT2 de 2007 à 2013 94.87 85.45 83.34 88.29 74.36 72.73 100.00 56.44 80.00 60.00 79.35 40.00 20.00 0.00 2007 2008 2009 2010 2011 2012 2013 Moyenne Source : BD_SSE PNGT2 Phase II, 2012 65 Le tableau ci-dessous donne les taux moyens d’exécution physique du PNGT2 Phase II par composante et par année. Tableau 1: Taux moyen d’exécution physique par composante (2007 au 31 mai 2013) ANNEES RCDRD FDL RRFR CSE TMEP 2007 66,67 69,33 33,33 56,44 2008 89,97 100,00 45,84 97,54 83,34 2009 96,35 50,78 72,39 71,40 72,73 2010 98,24 85,98 57,59 100,00 85,45 2011 98,77 79,32 56,82 62,54 74,36 2012 100,00 80,13 84,73 88,29 2013 97,44 93,33 93,83 94,87 Moyenne 92,49 81,59 60,39 77,62 79,35 Source : BD_SSE PNGT2 Phase II, 2012 Renforcement des Capacités pour le Développement Rural Décentralisé Le renforcement des capacités se subdivise en trois volets qui sont : le renforcement des capacités en général y compris l’appui à la planification locale et à la communication, le renforcement des capacités en gestion des ressources naturelles et en passation des marchés. De novembre 2007 au 31 Mai 2013, les formations dispensées par le projet ont bénéficié à 647 260 personnes, dont 30,71% sont des femmes. Au total 2 770 255 H/J (homme/jour) de formation ont été dispensés avec l’appui du PNGT2 Phase II. Cet indicateur traduit l’importance des efforts fournis par le Programme pour outiller l’ensemble des acteurs (niveaux villageois, communal, régional et national) pour assumer la conduite du développement local et partant le processus de la décentralisation en milieu rural. Financement du Développement Local (FDL) Cette composante finance les investissements retenus dans les Plans Communaux de Développement. Au total, 5 873 microprojets ont été réalisés sous la maîtrise d’ouvrage des 302 communes rurales pour un coût d’environ 27,8 milliards de francs CFA. Les résultats obtenus dans les différentes catégories se présentent comme suit : Conservation des Eaux et Sols / Défense et Restauration des Sols (CES/DRS) • 48 861 fosses fumières ; • 11 218 ha de cordons pierreux ; • 1 523 ha de Zaï réalisés ; • 174 400 m de berges protégées ; • etc. Reboisement et gestion forestière • 212 ha de mise en défens ; • 477 ha reboisés ; • 1 081 ha de forêt délimités et mis sous gestion durable ; • Etc. 66 Appui structurant à l’amélioration de la production animale • 175 parcs de vaccination réalisés ; • 1 283 km de pistes ou couloirs de transhumance ouverts ; • 128 fourrières construites ; • 25 434 ha de zone de pâture délimitée. Appui structurant à l’amélioration de la production végétale • 978 ha de bas-fonds et périmètres à l’aval de barrage aménagés ; Au titre des actions visant à assurer l’accès des communautés aux services sociaux de base, le PNGT2 Phase II a financé la réalisation des infrastructures suivantes : Infrastructures hydrauliques pour l’accès à l’eau potable • 707 forages équipés de pompe réalisés ; • 792 forages équipés de pompe réhabilités ; • 111 puits à grand diamètre à usage eau potable réalisés ou réhabilités ; • 19 mini-adductions d’eau potable construites ou réhabilitées ou étendues. Infrastructures routières • 170 km de pistes inter-villageoises ouvertes ; • 78 km de pistes inter-villageoise réhabilitées ; • 23 radiers, ponts, dalots et 30 buses. En outre, 6 297 tonnes de semences améliorées ont été fournies aux 302 communes rurales pour être distribués à près de 300 000 ménages en 2008. En 2010, 9722 producteurs sinistrés à la suite des inondations du 1er septembre 2009, répartis dans trois régions, ont bénéficié d’appuis pour la remise en état de leur capital de production. En 2012, 5161 tonnes de céréales (maïs, riz) ont été distribuées à 43 666 ménages les plus vulnérables, suite à la crise alimentaire survenus dans 166 communes rurales en déficit céréalier. Réforme du Régime Foncier Rural L’appui du PNGT2 a permis au gouvernement de finaliser l’élaboration et l’adoption de la politique nationale de Sécurisation Foncière en Milieu Rural (PNSFMR)et le parachèvement des instruments juridiques et techniques pour la sécurisation foncière en milieu rural d’une part ainsi que la concertation et la communication y relatives d’autre part. Avec la promulgation de la loi sur la Politique Nationale de Sécurisation Foncière en Milieu Rural intervenue en juin 2009, certaines activités dont la mise en œuvre en dépendait ont connu un niveau d’exécution appréciable. Coordination Suivi-Evaluation, Gestion administrative et financière Au 31 mai 2013, l’exécution financière du PNGT2, Phase II pour les cinq années et demie se présente comme suit : un taux de décaissement de 99,85% ; un taux d’exécution financière de 97,79% ce qui correspond à une exécution financière cumulée de 42 269 790 720 FCFA sur une prévision quinquennale de 43 225 000 000 FCFA. Une consommation budgétaire de 65,68% pour les investissements physiques ; 12,81% pour le renforcement des capacités ; 2,57% pour la réforme du régime foncier et 18, 95% pour la concertation, le suivi-évaluation et la gestion du projet. 67 Suivi-évaluation Le système de suivi évaluation du PNGT2 phase II est construit sur 3 composantes : Le Suivi de performance dont l’objectif est de rendre compte régulièrement et périodiquement de l’état d’avancement de l’exécution physique et financière du projet; Le Suivi des effets (ou résultats intermédiaires), qui fait le point sur l’utilisation et la gestion des réalisations du projet au bénéfice des communes rurales ; Le Suivi d’impact qui vise à cerner “le changement” induit par la réalisation des différentes activités du Projet. Les résultats du suivi des performances ont permis de synthétiser les extrants de la mise en œuvre des activités du projet qui sont objet du point II du présent rapport. Les effets et les impacts générés par l’intervention du projet sont détaillés au point III. Conformité aux politiques de sauvegarde environnementale et sociale et fiduciaire L’exécution du projet s’est faite conformément aux politiques de sauvegarde environnementale et sociale. A partir de 2008, une stratégie opérationnelle a été développée et mise en œuvre en quatre volets, à savoir : (i) L’information et la sensibilisation des partenaires impliqués dans la mise en œuvre du projet, (ii) L’élaboration d’outils de mise en œuvre ; (iii) Le renforcement des capacités. La mise en œuvre de la stratégie a permis d’informer et de sensibiliser l’ensemble des acteurs impliqués (cadres du Projet, services techniques provinciaux, conseils municipaux) et d’affiner les outils prévus dans les documents. La quasi-totalité des infrastructures financées par le projet a été soumis à la grille de sélection environnementale et sociale. Les mesures de mitigation identifiées ont été mises en œuvre. Autres résultats Le projet a également engrangé des résultats satisfaisants dans le cadre de : • Mise en œuvre satisfaisante du projet SILEM • Préparation de la troisième phase du PNGT2 • Appui à la mise en œuvre du PACT • Organisation de Compétition Pour l’Excellence dans la Gouvernance Locale (COPEGOL) • Appui à la gestion du fonds de préparation du Programme d’Investissement Forestier (PIF) • Développement des ressources humaines et distinctions • Réponses aux situations de crises EFFETS ET IMPACTS La mise en œuvre des activités dans le cadre du PNGT2 a engendré des effets et des impacts dans les domaines ci-après, contribuant à consolider le processus de développement rural décentralisé et de gouvernance locale : Les acteurs locaux se sont appropriés les bases de la gouvernance locale : Grâce au renforcement des capacités des acteurs locaux, les conseils municipaux, bien qu’étant à leur première expérience, ont été capables d’assurer, de manière satisfaisante, l’animation du développement local. La redevabilité s’affirme de mieux en mieux comme principe de gouvernance et se traduit par l’augmentation du pourcentage des communes qui font un bilan de la mise en œuvre de leurs PAIC. En effet, ce taux est passé de 66,66% en 2009 à 97,7% en 2010. 68 Les Capacités des acteurs et la synergie se sont accrues : Les différentes formations ont permis aux différents acteurs des communes de renforcer des aptitudes et capacités. Par ailleurs il est à noter que le renforcement des capacités des partenaires ont également permis : l’impulsion de pools d’animateurs au niveau local (associations) dans le domaine de la décentralisation et de la gouvernance local, crée des compétences locales capables d’accompagner les communes ; l’accompagnement des communes par les différentes parties prenantes aux cadres de concertation. Toutes les 302 communes rurales sont désormais aptes à assumer leur fonction de planification du développement local et cela s’est traduit par l’élaboration et l’actualisation de leurs plans communaux de développement ainsi que l’élaboration régulière de leurs plans annuels d’investissement communaux, selon une démarche consensuelle. L’exercice de la maîtrise d’ouvrage par les communes rurales est effectif et a permis aux différents acteurs d’avoir des aptitudes et des savoir-faire en matière d’exécution, de suivi et d’évaluation de divers types de microprojets. Il a permis d’éprouver le dispositif en place en matière de passation des marchés et d’exécution de la dépense publique, puis de mettre en évidence les difficultés pratiques rencontrées par les communes rurales. Les constats et les difficultés capitalisés par le projet, en partenariat avec l’Association des Municipalités du Burkina Faso (AMBF), ont servi d’intrants aux autorités pour enclencher une dynamique de réflexion à l’échelle nationale, dans l’optique d’accroître l’efficacité de l’ensemble des acteurs en matière de passation de marchés publics. L’accès aux services sociaux de base s’est accru de manière significative : Dans le domaine de la santé, les infrastructures construites ou réhabilitées (CSPS, maternité) ont permis d’accueillir 124 202 patients, dont 37,1% de femmes en 2011. Dans le domaine de l’éducation, 84,05% des écoles construites /réhabilitées sont fonctionnelles et 82,61% d’entre elles sont jugées en bon état physique. Ces infrastructures permettent d’accueillir 19 167 élèves chaque année, dont 43,12% de filles. Grâce à ces investissements, 96,22% des élèves des zones couvertes parcourent moins de 5 km pour se rendre à leur école. Grâce aux 1 499 forages, aux 111 puits modernes à grands diamètre et aux 19 mini-adductions d’eau réalisés/réhabilités dans les villages et chef-lieu de communes rurales, 511 500 personnes ont accès à l’eau potable pour la consommation humaine et animale. La production agropastorale s’est améliorée pour les populations bénéficiaires des aménagements: Avec un taux de rentabilité interne économique de 8%, les bas-fonds aménagés génèrent en moyenne 70 979 FCFA/ha/an et permettent aux exploitants (dont 47,16% sont des femmes) d’avoir un revenu moyen de 92 273 FCFA/an. Les jardins / périmètres maraîchers exploités à 59,88% par des femmes, génèrent un revenu moyen par exploitant et par an de 86 420 FCFA contre une dépense moyenne de 17 016 FCFA. Le bénéfice net moyen est de 69 404 FCFA. Les parcs de vaccination réalisés sont fonctionnels à 95,1%, avec un taux de rentabilité interne financier de 14% et ont permis la vaccination de 214 948 animaux pendant l’année 2011. Les aires d’abattage d’animaux réalisées ont un taux de rentabilité interne financier de 18%. Les aptitudes et les pratiques de gestion des ressources naturelles se sont améliorées: La production de la fumure organique à travers les fosses fumières, les cordons pierreux et le zaï sont les principales techniques utilisées par les producteurs. Les bénéficiaires déclarent que les principaux effets sont l’augmentation de la production agricole (46%), la récupération des terres dégradées (33%) et enfin de la réduction de l’érosion (19%). L’analyse financière montre des taux 69 de rentabilité interne économique très élevés (199% pour les fosses fumières, 100% pour les cordons pierreux). Les instruments politiques, juridiques et techniques nécessaires à une meilleure sécurisation foncière des acteurs ruraux sont désormais disponible : L’appui concommitent mais coordonné du PNGT2 et du Millenium Corporation Account (MCA) à la DGFOMR, a permis au pays de disposer d’une part, d’une politique Nationale de sécurisation foncière en milieu rural, de la loi portant régime foncier rural et de ses textes réglementaires prioritaires ainsi que des outils opérationnels de mise en œuvre de la loi et d’autre part, d’avoir une opunion publique nationale et des acteurs ruraux assez bien informés des principales orientations politiques en matière de gestion foncière en milieu rural. Des emplois temporaires et des revenus ont été créés : En moyenne, 13 emplois temporaires ont été créés par commune et par an, dans le cadre des prestations fournies pour la réalisation des activités prévues dans leur plan annuel d’investissement. Ces emplois ont une durée moyenne de 57 jours par employé, soit 223 782 H/J employés au total pour l’ensemble des communes. Les prestataires employés proviennent des communes rurales (53,38%), de la province/région dont relève la commune (16,39%) et de Ouagadougou/Bobo-Dioulasso (24,82%). Les infrastructures économiques réalisées ont également généré des recettes aux profits des budgets des communes et des exploitants privés. Enfin, L’incidence de la pauvreté a régressé en milieu rural et est passée de 54% en 2005 à 44,6% en 2010, bien que des disparités importantes existent entre les régions. CONCLUSION De 2007 à 2013, le PNGT2 Phase II a engrangé des acquis, parmi lesquels on peut citer : • le renforcement des capacités des acteurs chargés de la mise œuvre du développement local au niveau communal ; • l’amélioration de l’accès des populations rurales aux services sociaux de base ; • l’amélioration du capital naturel ; • l’accroissement de l’accès aux infrastructures de production agro-sylvo-pastorale ; • la contribution au processus de décentralisation à travers les appuis aux structures nationales en charge de sa mise en œuvre ; • l’appui à l’animation de la concertation des différents acteurs à tous les niveaux ; • l’appui à la production de plusieurs guides méthodologiques sur diverses thématiques à l’usage des communes rurales ; • le reflexe de prendre en compte les mesures de sauvegarde environnementale et sociale; • la contribution à l’élaboration de la Politique Nationale de Sécurisation Foncière en Milieu Rural, la loi sur le régime foncier rural et les textes d’application ainsi que l’information des acteurs. La phase II du PNGT2 s’est achevée en « douceur », dans le respect des exigences requises par l’accord de financement et le manuel des procédures du projet. Toutes les conventions de cofinancements signées avec les communes ont été apurées et clôturées. La préparation et la levée des conditionnalités de mise en vigueur de la troisième phase du programme ont été conduites de façon satisfaisante, en valorisant principalement l’expertise interne au projet. La disponibilité de plans communaux de développement actualisés pour 190 communes ouvre des perspectives pour entamer les investissements des 2014 dans le cadre de la troisième phase du PNGT2. 70 Annex 8. Comments of Cofinanciers and Other Partners/Stakeholders N/A 71 Annex 9. List of Supporting Documents AN, 2009. Loi n° 034-2009 / AN portant Régime Foncier Rural au Burkina Faso, Assemblée National, Vendredi 24 juillet 2009. MAHRH, 2009. Lettre n° 328 en date du 17 juin 2009 du Ministre chargé de l’Agriculture, de l’Hydraulique et des Ressources Halieutiques au Ministre de l’Administration Territoriale relative aux difficultés éprouvées par le PNGT2- Phase II dans la mise en œuvre du FDL dans les communes rurales et la nécessité de trouver des solutions idoines y afférentes. MEF, 2009a. Circulaire N° 2009-2175/MEF/CAB du 8/9/2009 du Ministère de l’Economie et des Finances invitant ses services déconcentrés à appuyer les communes dans le processus de passation des marchés. MEF, 2009b. Circulaire N°2009-2700/MEF/CAB du 12/11/2009 du Ministère de l’Economie et des Finances sur l’élaboration conjointe (PNGT2 et DGMP) de dossiers types d’appel d’offre à l’usage des communes rurales. PNGT2, 2011a. Rapport de suivi des résultats intermédiaires de 2010 du PNGT2 2, Phase II. PNGT2, 2012a. Suivi des résultats Intermédiaires du PNGT2, Phase II, Effets des investissements réalisés par les communes rurales de 2009 à 2011. PNGT2, 2011b. Les conditions et le niveau de vie des ménages ruraux au Burkina Faso dans le contexte de la décentralisation Résultats de l’enquête de base PNGT2 2010, Université Ouaga II, Ouagadougou, 151p+annexes. PNGT2, 2012b. Les conditions et le niveau de vie des ménages ruraux au Burkina Faso dans le contexte de la décentralisation Résultats de l’enquête de base PNGT2 2010, Université Ouaga II, Ouagadougou, 191p+annexes. PNGT2, 2008. Etude de base sur le capital Social et la gouvernance Locale au Burkina Faso. PNGT2, 2012c. Etude sur le capital social et la gouvernance locale dans les communes rurales du Burkina Faso en 2012. PNGT2, 2012c. Etude sur le capital social et la gouvernance locale dans les communes rurales du Burkina Faso en 2012. PNGT2, 2009. Economic and financial analysis of SILEM projects. RJOE, 2012. Rapport du Réseau des Journalistes observateurs des élections (RJOE) sur Elections législatives et municipales couplées au Burkina Faso, 5 Décembre 2012. UA, 2012. Rapport de la mission d’observation de l’Union Africaine aux Elections couplées (législatives et municipales) du 2 décembre 2012 en République de Burkina Faso, 4 Décembre 2012. Word Bank, 2007. Project Appraisal Document, Second Community-Based Rural Development Program. Word Bank, 2012. Project Appraisal Document, Third Community-Based Rural Development Program. World Bank. 2011. Implementation completion and results report of the SILEM Project. World Bank, 2010. Aide-mémoire, Revue à mi-parcours du PNGT2, January 2010. World Bank, 2008. Implementation completion and results report of the community-based rural development project in support of the first phase of the national program for decentralized rural development 72 Appendix 1: Project ISR Ratings Rating items ISR Ratings- Sequence Numbers and Dates (1) (2) (3) (4) (5) (6) (7) (8) (9) (10) (11) July 24, 2007 January October May 29, December June 23, May 22, November January June 30, February 22, 2008 24, 2008 2009 10, 2009 2010 2011 30, 2011 4, 2012 2012 14, 2013 PDO Objectives Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Implementation performance ratings Overall IP Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Project Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory management Financial Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory management Counterpart Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory financing Procurement Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory M&E Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Project component ratings Strengthening Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Capacity Local Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Development Satisfactory Financing Rural Land Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Tenure Reform Coordination Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory M&E Overall safeguards Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory Satisfactory rating 73 74