AFRICAN DEVELOPMENT BANK · african development bank niger development and implementation of the national action plan for integrated water resources management (pangire) of niger

AFRICAN DEVELOPMENT BANK

NIGER

DEVELOPMENT AND IMPLEMENTATION OF THE NATIONAL ACTION

PLAN FOR INTEGRATED WATER RESOURCES MANAGEMENT

(PANGIRE) OF NIGER

PROJECT COMPLETION REPORT

(PCR)

RDGW/AWTF/AHWS

March 2019

Translated document

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A Report data

Report date

Date of report: September 2018

Mission date (if field mission) From: 13/08/18

B Responsible Bank staff

Positions At approval At completion

Regional Director Franck J.M. PERRAULT Marie-Laure AKIN-OLUGBADE

Sector Director Mohamed ELAZIZI Gladys Wambui GICHURI

Sector Manager Akissa BAHRI Jean Michel OSSETE

Task Manager Jean Michel OSSETE Ousseynou GUENE

Alternate Task Manager

PCR Team Leader Ousseynou GUENE

PCR Team Members Francis Daniel BOUGAIRE, Adolphe

TITIKPEU

C Project data

Project name: Development and Implementation of the National Action Plan for Integrated Water Resources

Management (PANGIRE) of Niger

Project code: P-NE-EAZ-004 Grant No.: 5600155003602

Project type: Institutional support Sector : Water

Country : Niger Environmental category (1-3): 3

Processing milestones (grant) Key events (grant) Disbursement and closing dates (grant)

Date approved: 20 December 2013 Cancelled amounts: Nil Date of 1st disbursement: July 2014

Date signed: 16 April 2014 Supplementary financing:

Swiss-Luxembourg Coop:

(CFAF 252 600 000)

DANIDA (CFAF 220 000 000),

OXFAM-GB: (CFAF 60 000 000)

Government of Niger: CFAF 249 919 617

Original closing date: 31 October 2016

Date of entry into force: 12 June 2014 Restructuring (specify date & amount

involved): -

Revised (if applicable) closing

disbursement date: 30 November 2018

Date effective for 1st disbursement:

July 2014

Extensions (last disbursement): 30/11/18 Revised (if applicable) closing date: 30

November 2018

Date of actual 1st disbursement: July

2014

Financing source (Euros):

Committed amount

(Euros):

Percentage

Committed

(%):

Uncommitted

amount (Euros):

Percentage

uncommitted

(%)::

AWF 876 650.77 88 121 349 12

I BASIC DATA

PROJECT COMPLETION REPORT (PCR) FOR PUBLIC SECTOR OPERATIONS

AFRICAN DEVELOPMENT BANK GROUP

DEVELOPPEMENT

2

DANIDA 335 388 100 0 0

Swiss-LUX DEV Coop* 385 082 100 0 0

OXFAM* 91469 100 0 0

Government of Niger 381000 100 0 0

TOTAL 2 069 589.77 98 121 349 12

Financing source(UA): Disbursed amount

(amount, Euros ):: Percentage

disbursed (%):

Undisbursed

amount (Euros):

Percentage

undisbursed

(%):

AWF 876 650.77 88 121 349 12

DANIDA-LUX DEV* 335 388 100 0 0

Swiss-Lux DEV Cooperation 385 082 100 0 0

OXFAM* 91 469 100 0 0

Government of Niger 381 000 100 0 0

TOTAL 2 069 589.77 98 121 349 12

Co-financiers and other external partners: DANIDA-Lux Dev and OXFAM

Executing and implementing agency: Ministry of Water and Sanitation through the PANGIRE Management Unit

D Management review and comments

Report reviewed by Name Date reviewed Comments

Peer Review

Division Manager

Sector Director

Resident Representative

Regional Director

3

II Project performance assessment

A Relevance

1. Relevance of project development objective

Rating* Narrative assessment (max 250 words)

4 The development objective of the project is to improve the country's socio-economic situation and reduce

the incidence of poverty through sustainable management and rational use of Niger's water resources.

This development objective was defined on the basis of the Government’s vision to reduce the country’s

poverty threshold from 50% in 2012 to 40% by 2025. The project is consistent with Niger’s various

strategy papers and programmes: the Poverty Reduction Strategy Paper (PRSP 2008-2012), particularly

its focus area No.2 relating to the development of productive sectors and job and income creation, the

Water and Sanitation Sector Policy and Strategy Paper (2000), the Rural Development Strategy (SDR

2011-2015), Economic and Social Development Plan (PDES 2012-2015), the National Environmental

Plan for Sustainable Development (PNEDD 1998), and the various instruments of the water and

sanitation sector, namely: the Water Code, the National Water and Sanitation Commission and the

Regional Water and Sanitation Commission (CNEA and CREA 2006), and the 2007 instrument relating

to the establishment of the Ministry of Water and Sanitation (MHA) and the implementation of water

policy in 2013.

The project is aligned with the first Millennium Development Goal (MDG 1) which aims to reduce

extreme poverty and hunger. It is also aligned with the Government’s 3N strategy, and the various

sustainable development goals (SDGs).

The project is fully in line with the shared vision and the Sustainable Development Action Plan (PADD)

of the Niger River Basin adopted in 2007 and updated in 2012, the Water Resources Policy in West

Africa (ECOWAS), developed in collaboration with WAEMU and CILSS (2008), the Regional Strategic

Plan for Concerted Management of Water and Land Resources of the Lake Chad Basin, adopted in 1998

and revised in 2008, the AfDB's 2013-2022 Long-Term Strategy which seeks to achieve inclusive

growth and transition to green growth.

The project is also consistent with the African Water Vision 2025 and the Regional Plan of Action

(PARGIRE/WA, 2000), the World Water Fora, the goals of the World Summit on Sustainable

Development, which was held in Johannesburg in 2002 and focused on the development of integrated

plans for the management and rational use of water resources to accelerate economic and social

development. The project helps to effectively combat poverty stemming from the effects of climate

change and to boost the climate resilience of water sector development operations.

In term of the relevance of its development objective, the project remains fully aligned with the various

strategies outlined above

For all ratings in the PCR use the following scale: 4 (Highly satisfactory), 3 (Satisfactory), 2 (Unsatisfactory), 1 (Highly unsatisfactory)

4

2. Relevance of project design

Rating* Narrative assessment (max 250 words)

3 The project consists in developing PANGIRE and its investment programme, as well as the Priority

Investment Programme (PIP). The project contributes to addressing the challenges pertaining to the

sustainable management of the country's water resources. The project prepares investment projects in

the water sector. The technical activities are accompanied by capacity building. All these activities

should lead to sustainable socio-economic development, while enabling the achievement of the

objectives of PANGIRE. The diagnosis led to the development of PANGIRE from which the Priority

Investment Plan (PIP) was drawn. The implementation mechanism, in particular the institutional

framework (the Project Management Unit (PMU), attached to the Directorate of Water Resources (DRE)

of the Directorate General of Hydraulics (DGH) at the Ministry of Water and Sanitation (MHA), as well

as the multi-stakeholder and interinstitutional Steering Committee), the procurement arrangements (in

line with the Bank's current provisions), and the monitoring and evaluation system are relevant.

However, reducing Niger’s poverty threshold by 10 percentage points between 2012 and 2025, as

estimated at project design, was deemed too optimistic.

3. Lessons learned related to relevance

B Effectiveness

1. Progress towards the project’s development objective (project purpose)

Comments

The project's development objective is to help reduce poverty reduction, particularly from a threshold of 50% in 2012

to 40% by 2025. The project will not make it possible to achieve this rate by 2025, given the failure to mobilize financing

for PANGIRE at the round table of the Economic and Social Development Plan (PDES) that was organized in place of

the originally planned PANGIRE donors’ roundtable. This delayed the implementation of PANGIRE activities. Even

though financing was secured and the infrastructure built, this project’s outcomes may not achieve the goal of reducing

the poverty threshold by 10 percentage points, from 50% in 2012 to 40%, by 2025. Other factors and projects may help

achieve this goal.

All the products of components 1 and 2 were achieved. Important project documents, including the document on

PANGIRE and the one on PIP, have been produced and approved. These flagship products of the project are available.

Regarding component 3, the project completion report is yet to be produced, but will be at the end of the project. Only

the financing for PANGIRE projects is still to be mobilised. Once the documents are produced and approved, the

Government can at any time seek financingfinancing from the main development partners.

Key issues (max 5, add rows as needed)

Lessons learned Target audience

1. Project’s alignment with the

country strategy

1. The project is fully aligned with the water and

sanitation sector strategy developed by Niger’s authorities,

the IWRM strategy and its adoption, and addresses the

country's needs with respect to the effects of climate

change. It is an indispensable element for ownership of the

outcomes by the authorities and the donors.

1. The technical

services of the

MHA, the people

of Niger

5

2. Outcome reporting

Outcome indicators (as

per RLF; add more rows as

needed)

Baseline

value (2013)

Most recent value

(A)

End target (B)

(expected value at

project completion)

Progress

towards

target (% realized)

[A/B) ]

Narrative assessment (indicative max length: 50 words per outcome)

Core

Sector

Indicator (Yes/No)

Indicator 1:

The sector-based and

cross-cutting

programmes developed

are in line with IWRM

principles.

0

programme

60% 60% of sector-

based and cross-

cutting

programmes at

end-2016

100

Three sector-based programming documents are

adopted by the Government and available at the

PMU: PROSEHA and PANGIRE (09/05/2017) and

SOPHAB 1/07/2014. Preparation of the Water

Development and Management Master Plan

(SDAGE) and installation of IWRM bodies at the

sub-basin level are still to be done.

Yes

Indicator 2:

Rate of mobilization of

financingfinancing for

the implementation of

PANGIRE

0

programme

1% 80% of the

financing

mobilized in

2016

0.01 Priority Investment Plan (PIP) developed, validated

and made available in May 2017 for a total of CFAF

74.36 billion to be mobilized for 40 projects over the

2017-2030 period. The portion of financingfinancing

actually mobilised is very small: Swiss Cooperation:

CFAF 333 million, MCF-PROSEHA CFAF 40

million for 2018; CFAF 150 million for 2019.

Nothing has yet been mobilised from PIDEC /AfDB,

EU, WB, OXFAM, Mercy Corp, and MCC Compact

1. These donors have shown interest in financing the

PANGIRE.

The mobilisation rate is 0.07%, which is very low.

The total PDES budget is CFAF 6,300 billion, while

PANGIRE's share stands at CFAF 74.36 billion or

0.01% of the PDES allocation.

Yes

RATING

All important documents, including the three sector-based programming documents, have been adopted by the Government and are available.

These documents are of great importance and may be used at any time by the Government to seek financingfinancing for activities. Out of a total

of two targets, one has been fully achieved (at 100%), while the other is well below 1%. The financing is not yet secured. With the PIP document,

the Government can at any time seek the necessary financing.

The outcomes are rated at 3.

3

6

3. Output reporting

Outcome indicators (as per

RLF; add more rows as needed) Most recent value

(B)

End target (B)

(expected value at project completion Progress

towards

target (% realized)

(A/B)

Narrative assessment (indicative max length: 50 words per outcome)

Core

Sector

Indicator (Yes/No)

Component 1: Development of PANGIRE

Indicator 1:

Number of documents

adopted relating to the

conceptual and

methodological

framework

1 document

developed and

approved

1 document produced in 2014 100%

All documents are developed and approved in a

participatory manner. PANGIRE and PIP,

financingfinancing mobilization strategy,

communication and monitoring and evaluation

system. The monitoring and evaluation system was

adopted at the end and not at the start of the

project.

Yes

Indicator 2:

Number of awareness

meetings held, number

of training

workshops/seminars

3 sharing and

feedback

workshops,

5 awareness meetings in 2014, 6 in

2015, 1 in 2016 (0 in 2013)

- 2 training workshops/seminars in

2014, 1 in 2015 and 1 in 2016 (0 in

2013)

100% Reports of the various workshops available

PANGIRE and PIP, three sharing and feedback

workshops relating to the three strategy papers

(mobilisation of financingfinancing,

communication, monitoring and evaluation)

-One feedback workshop was organized

The PMU grouped awareness meetings into the

sharing and feedback workshops, and the training

seminar on feedback workshops

Yes

Indicator 3: Number of

reports on the status of

water resources, number

of thematic studies

carried out

- 1 report on the

status of water

resources,

-6 thematic studies

carried out

1 report on the status water resources

produced in 2014 (0 in 2013)

- 6 thematic studies carried out in

2014 (0 in 2013)

100% 1 report on the status of water resources is available

-6 thematic reports are available

-a study on the status of water resources was carried

out (started in 2014 and completed in 2016)

Yes

7

Indicator 4:

Number of SESA

reports, number of

Environmental and

Social Management

Framework (ESMF)

reports produced;

number of documents

produced relating to

PANGIRE and its

implementation

1

- 1 SESA report produced in 2014 (0

in 2013)

-1 ESMF report produced in 2014 (0

in 2013)

100% The various validated documents are available

1 SESA report accompanied by the Environmental

and Social Management Framework (ESMF)

produced and validated

Yes

Indicator 5

Number of documents

produced relating to

PANGIRE and its

implementation

1 1 document relating to PANGIRE

and its implementation produced in

2015

100% The PANGIRE document and its annexes are

available

The PANGIRE document was approved in a

participatory manner involving all IWRM

stakeholders of Niger in 2017

Yes

Output indicators (as

specified in the RLF; add more rows as needed)

Most recent value

(A)

End target (B)

(expected value at project completion)

Progress

towards target (% realized)

(A/B)

Narrative assessment (indicative max length: 50 words per output)

Core

Sector

Indicator (Yes/No)

Component 2: Development of the investment programme (PANGIRE and PIP)

Indicator 1:

Number of investment

programme document

produced

1 1 investment

programme document

produced in 2015 (0

in 2013

100% Document available

The PIP document is produced and validated in 2017

Yes

Indicator 2:

Number of reports on the

preliminary technical

evaluation of 10

sites/projects prepared

15 1 technical report on

the preliminary

technical evaluation

of 10 sites/projects

produced in 2015 (0

in 2013)

150% Report available

15 reports on evaluated project sites available

Yes

8

Indicator 3:

Number of preliminary

design (PD) reports

prepared on priority

infrastructure projects

8 5 PD reports prepared

in 2016 (0 in 2013) 160% PD documents available

Yes

Output indicators (as

specified in the RLF; add more

rows as needed)

Most recent value

(A)

End target (B)

(expected value at project

completion)

Progress

towards target (% realized)

(A/B)

Narrative assessment (indicative max length: 50 words per output)

Core

Sector

Indicator (Yes/No)

Component 3: Project coordination and management

Number of project

structures put in place

1 Steering

Committee (SC),

1 Project

Management Unit

(PMU)

1 multi-stakeholder

and inter-institutional

steering committee set

up at the end of the

first quarter of 2014

100% Two MHA orders concerning the establishment, composition and

operation of PMU and Steering Committee (SC)structures are

available,

- PMU set up and functional since 2014

- SC set up and functional since 2014

Yes

Indicator 2:

Number of progress

reports, number of

completion reports

8, then 0 8 quarterly progress

reports

-1 project completion

report

75% All the documents are available

8 progress and management reports have been produced and are

available

- Completion report not produced (but will be at the end of the

project)

Yes

Indicator 3:

Donors’ roundtable

organised, rate of

mobilisation of financing

required for priority

operations

0 ;

1%

1 donors’ roundtable

in 2016

- Financial resource

mobilisation rate of

100% in 2017

0

0.1%

There was no specific donors' roundtable for the financing

PANGIRE. However, a donors' roundtable for the Economic and

Social Development Plan, of which PANGIRE is a major

component, `was organized in Paris in December 2017. The

document on the PDES financing roundtable is available, but there

is no mention of the amount allotted to PANGIRE. In addition,

MHA is planning to organize a meeting to mobilize financing for

PANGIRE in 2019 in Luxembourg.

Yes

Indicator 4:

Number of capitalization

documents produced

1 document 1 capitalization

documents produced

in 2016

100% The capitalization document with the IWRM Guide is available.

OXFAM has started disseminating the printed Guide in Great

Britain. The Guide has been translated into English

All stakeholders have the document

Yes

RATING

3

Out of a total of 12 targets, 8 targets have been achieved 100%, one target 160%, one to the tune of 150%, one to the tune of 75% and

lastly one to the tune of 0.1%, representing a general output rate of 93%.

The output score is 3

9

4. Development Objective (DO) rating

DO rating (derived from

updated IPR)* Narrative assessment (indicative max length: 250 words

3 The operations carried out to achieve the project's development objective are satisfactory (3).

Indeed, one of the project’s objectives was achieved with the adoption of PANGIRE and its

implementation instruments. On the other hand, the mobilization of financial resources for

implementation of the PANGIRE investment programme has not yet been achieved.

5. Beneficiaries (add rows as needed)

Planned (A) Actual (B) Progress towards

target (% realized) (A/B)

% of women Category (eg. farmers,

students)

The people of Niger

The people of Niger

100% 49.4 Not Applicable

The State, through the

administrative services of

ministries (central and

devolved services), Water

Management Units

(WMUs), the National

Water and Sanitation

Commission (CNEA) and

its regional branches

(CREA), public water

supply (SPEN and SEEN)

and sanitation services,

local authorities, the

private sector

(consultants, water works

companies, etc.), the

National Water

Partnership (NEP), NGOs

and water users’

associations.

Public administrative

services and devolved

services, all associations,

the private sector and

NGOs involved in water

management

100%

Not Applicable Not Applicable

Basin agencies (NBA,

LCBC);

- Regional and sub-

regional organizations

(ECOWAS, WAEMU and

CILSS;

Basin agencies (NBA,

LCBC);

- Regional and sub-

regional organizations

(ECOWAS, WAEMU and

CILSS)

100% Not Applicable Not Applicable

Technical and financial

partners

Technical and financial

partners

100% Not Applicable Not Applicable

10

6. Unanticipated or additional outcomes (add rows as needed)

Description Type (e.g. gender,

climate change, social,

other)

Positive or

negative

Impact on

project (High,

Medium, Low)

There were no unanticipated outcomes

7. Lessons learned related to effectiveness

Key issues (max 5, add rows as needed) Lessons learned Target audience

1. Proper preparation of the project-specific donor

roundtable

2. Preparation strategy

3. Project coordination

1. Proper preparation and organization of a

roundtable dedicated specifically to the

financing of a project or programme helps

to secure the commitment of the various

donors for the financing of activities

2. The preparedness strategy adopted allowed

the effective participation of all IWRM

actors

3 The establishment of project coordinating

bodies including the PMU and the SC was

effective in enabling the production and

approval of the various documents

Bank and donee

Bank and donee

Bank and donee

C Efficiency

1. Timeliness

Planned project duration – years (A)

(as per PAR) Actual implementation time – years

(B) (from effectiveness for 1st disb.) Ratio of planned and actual

implementation time (A/B)

Rating*

30 months 52 months 0.57 2

Narrative assessment (indicative max length: 250 words)

The total duration of the project initially planned is 30 months, with effect from the date of signature of the Grant

Agreement. It took long for the counterpart financing to be made available because of cash flow issues, and there were

also long delays in the processing of files at the Bank, justifying extension. Prior to the Bank's first disbursement, the

project received significant financing from Swiss and Luxembourg Cooperation, which was not originally planned.

DANIDA also increased its contribution from CFAF 20 million planned to CFAF 219 million. These contributions made

it possible to finance such activities as the situation analysis of water resources prior to the signing of the grant. A

substantial balance was left, in addition to the savings on the procurement process. So the Government of Niger requested

permission from the Bank to use the remaining funds to finance additional activities (PD in other regions). The Bank gave

its consent for the use the funds. This justifies the second extension, given that the activities were not part of the original

project. The grant was initially scheduled to close on 13 October 2016, but this date was extended to 30 November 2018

to allow the completion of all project activities. The turnaround time from the effectiveness of the first disbursement until

the project completion is 52 months. The delays observed at the start of the project and during its implementation are not

related to the design, but to other factors (effectiveness conditions, additional activities undertaken thanks to the savings

made on the procurement process, and the funds contributed by DANIDA at the start of the project).

The rating is 2.

11

2. Resource use efficiency

Median % physical implementation of RLF outputs financed by

all financiers (A) (see II.B.3)

Commitment rate (%) (B) (See table 1.C – Total commitment rate

of all financiers)

Ratio of the

median percentage

physical

implementation

and commitment

rate (A/B)

Rating*

Component 1: Development of PANGIRE

(i) All PANGIRE and PIP documents prepared and

approved, financing mobilization and communication

strategy, and the monitoring and evaluation system,

prepared; (ii) Three sharing and feedback workshops were

organized for PANGIRE and PIP, a feedback workshop was

organized for the three strategy papers (mobilization of

financing, communication, monitoring and evaluation); (iii)

a study on the status of water resources was carried out, a

report covering six thematic areas was produced and

approved; (iv) a SESA report complete with the

Environmental and Social Management Framework

(ESMF) was produced and approved; (v) the PANGIRE

document was approved with the participation all IWRM

stakeholders in Niger.

Overall implementation rate: 100%.

Budget at appraisal =

EUR 390,000

Actual expenditure =

EUR 390,000

Disbursement rate = 100 %

100% 3

Component 2: Preparation of the Investment Plan (PIP)

(i) The PIP was prepared on the basis of PANGIRE and

approved; (ii) the technical evaluation of 15 project sites

was conducted; and (iii) feasibility studies on 8 priority

infrastructure projects was carried out (PD level).

Implementation rate for activities: 100%


EUR 479,000

Actual expenditure =

EUR 479,000

Disbursement rate = 100%

100%

Component 3: Project Coordination and Management:

(i) All project steering, supervision, monitoring,

coordination and management structures have been set up

and are functioning; (ii) progress and management reports

are prepared on a regular basis; (iii) a PDES donors’

roundtable was organized, but the amount allocated to

PANGIRE does not seem to be clearly specified in the final

document; (iv) a capitalization document along with an

IWRM Guide was developed and approved with

dissemination of this Guide. There is also an English

translation of the Guide.

The beneficiary's completion report has not yet been

prepared. No donors' roundtable was organized for

PANGIRE, but a PDES roundtable was held. The financing

of PANGIRE is not complete.

Implementation rate for activities: 50%


EUR 81 000 Euros

Actual expenditure = EUR

81 000

Disbursement rate =100%

50%

12


Resource use efficiency is satisfactory. Overall, with the exception of the beneficiary’s completion report that has not yet

been produced, the project has achieved the expected outputs within the limits of the available AWF budget, although the

donnee had to provide additional resources to cover the operation expenses of the PMU and the salaries of its team

members, following the extension of the project's closing deadlines. The disbursement rate stands at 88% and will increase

to 99.8% by the end of the project. A grant of about CFAF 219 million was also provided by DANIDA (Danish

Cooperation), while Swiss Lux-Development Cooperation (Lux-Development) granted approximately CFAF 252,600,000

at commencement. The grant from DANIDA enabled the conduct of the diagnostic study on water resources (CFAF 20

million). The balance of the DANIDA and the Swiss Lux-Development grants and savings on the procurement amounted

to CFAF 383 million. The reallocation of this amount made it possible to finance studies on the preparation of the Water

Development and Management Master Plan (SDAGE) for four sub-basins and studies on the improvement of the new

MHA database. The DANIDA and Swiss Lux Development Coorp grant funds have been disbursed in full.

3. Cost benefit analysis

Economic Rate of Return

(at appraisal)

Updated Economic Rate of Return

(at completion)

Rating*

Not applicable(NA) NA -


4. Implementation progress (IP)

IP Rating (derived from

updated IPR) *

Narrative comments (commenting specifically on those IP items that were rated Unsatisfactory or Highly

Unsatisfactory, as per last IPR). (indicative max length: 500 words)

3

Two MHA decrees relating to the establishment, composition and functioning of the Project Management

Unit (PMU) and the Steering Committee (SC) were issued in 2013 and are available. The PMU and the

Steering Committee have been operational since 2014. The actors involved in the PANGIRE

development process took part in sharing, feedback and awareness workshops that were held for the three

strategy documents (mobilization of financing, communication and monitoring and evaluation). The

project start-up workshop was held on 15 January 2015.

The first disbursement of EUR 100,590 from the AWF was made on 13 July 2014. The consultants were

paid directly by the Bank.

The implementation of the project’s three components lasted a total of 52 months instead of the 30 months

initially planned, following a second extension that was made with the agreement of the Bank to allow

the implementation of additional activities. These activities were financed with the contribution from

Swiss and Luxembourg Cooperation – not included in the original project financing - and the contribution

from DANIDA, which increased its grant from CFAF 20 million to CFAF 219 million. There was a delay

in the release of counterpart financing due to cash flow problems and also long delays in the processing

of files at the Bank.

More than 80% of the activities have been completed and the disbursement rate stands at 88%. By the

end of the project, 0.2% of the grant will be left. Still to be finalized are: (i) studies on the preparation of

the Water Development and Management Master Plan (SDAGE) for four sub-basins. The contract, worth

EUR 89,937, was approved by the Bank. AGHECRA consulting firm was told to start work on 15 August

2018 for period of four months; (ii) the remaining part of the balance was used to finance studies on the

improvement of the new MHA database. The contract of the consortium, worth EUR 28,340, was

approved by the Bank. NAZAN-Building Business Practice Group was asked to start work on 15 August

2018, lasting a period of three months. By the financing closing date set for 31/11/2018, only 0.02% of

the financing was to be cancelled. All other financing was disbursed 100%.

13

5. Lessons learned on efficiency


1. Setting up of the PMU

2. Provision of counterpart financing

3. Fulfilment of grant conditionalities

6. Processing of files at the Bank

1. The establishment of a PMU with various skills

helped to ensure the success of project activities. It

comprised

Project Coordinator, Water Specialist (hydrogeologist

and IWRM), 1 Monitoring and Evaluation Expert

(hydraulics and IWRM); 1 Socio-economist and

Gender Expert (socio-planner), 1 Environmentalist

(environmental sector executive), 1 Communication

Expert (journalist and MHA press officer), 1 Manager-

Accountant (treasury inspector).

2. The timely provision of counterpart financing helped

to avoid delays in the commencement of the project.

3. The expeditious fulfilment of grant conditionalities

enabled the timely commencement of project activities

4. The expeditious processing of files at the Bank made

it possible to avoid delays in the implementation of

project activities

1. Bank and

Donee

2. Donee

3. Donee

4. Bank

D Sustainability

1. Financial sustainability

Rating * Narrative assessment (indicative max length: 250 words)

2 A Priority Investment Plan (PIP) for 40 projects worth CFAF 74.36 billion has been approved and is available.

The MHA has programmed activities for a six-year period (2019-2024). The PIP is already being used for the

programming of the activities for 2019. However, the mobilisation of financing for the budget, which depends

largely on donors, remains low (less than 1%). The Government of Niger plans to make up for the shortfall by

organizing a PANGIRE financing meeting in 2019 in Luxembourg. A monitoring mechanism for financing the

PANGIRE is also not available. The financial sustainability of the project upon completion does not seem

guaranteed as yet.

2. Institutional sustainability and capacity building


3 The Ministry of Water and Sanitation (MHA) has taken ownership of PANGIRE. All documents relating to the

design and implementation of PANGIRE were prepared and adopted in a participatory manner with the

involvement of all IWRM stakeholders in Niger, who took an active part in exchanges and discussions relating

to the preparation of documents on the situation of water resources, development of the IWRM Action Plan,

priority operations and the implementation arrangements of that plan. The various working sessions with the

authorities at all levels, as well as all available documents, attest to the strong political will and commitment of

14

the Government of Niger with regard to the preparation of PANGIRE. The preparation of PANGIRE is founded

on legal and institutional bases. To ensure institutional sustainability, the Government issued two decrees: one

establishing the Ministry of Hydraulics and Sanitation, and the other transforming the PMU into the Permanent

Secretariat (PS) of PANGIRE, headed by a Permanent Secretary appointed by decree of the Council of

Ministers and ranking as Director General at the Ministry. The staff of the Permanent Secretariat (PS) is

appointed by an MHA order. PS/PANGIRE relies on a committee of experts for support in various research

activities (identification, design and validation of research themes or scientific studies). However, the thematic

summary report document notes the lack of technical skills in terms of quantity, especially at the level of

devolved services, even though there are existing and new vacancies created as part of the decentralization

effort. In terms of quality, the regional and central services lack technical skills in such specialised areas as

hydrogeology, hydrology and sanitary engineering. The project also addresses all water-related aspects by

providing a plan that is consistent with national and regional policies and priorities (ECOWAS, WAEMU,

NBA and LCBC). Capacity building was also provided to key players involved in the PANGIRE preparation

process through awareness and training activities. The capitalization document, along with an IWRM Guide,

has been prepared and approved. The Guide has been translated into English, and its distribution has also begun.

Lastly, the IWRM process is steered and partly implemented by national executives with the support of

experienced and competent consultants recruited through a competitive call.

3. Ownership and sustainability of partners


3 The Ministry Water and Sanitation (MHA) has forged and strengthened partnerships with the National Water

and Sanitation Commission (CNEA) and the Regional Water and Sanitation Commission (CREA). The IWRM

is now an instrument on which donors must rely in providing the subsidies needed for the implementation of

sustainable water management operations in Niger. In addition, PANGIRE will promote regional integration

by strengthening cross-border cooperation on shared waters (NBA and LCBC). Different partnerships have

already been established with the partners who made commitments to finance PANGIRE (Swiss Cooperation

and Danish Cooperation). Other partnerships will also be forged with other partners after they must have

fulfilled their commitments (PIDEC/AfDB, EU, BM, OXFAM, Mercy Corp and MCC Compact1). The IWRM

implementation process involves a large number of governmental and non-governmental actors and now relies

on the expertise and know-how of the private sector and national NGOs for the reorganization of the water

sector.

4. Environmental and social sustainability


NA The PANGIRE preparation project is not likely to generate any negative environmental and social impacts, but

environmental and social concerns have not been overlooked. A SESA report accompanied by the ESMF was

produced and validated.

5. Lessons learned related to sustainability


1- Financial sustainability

2- Conduct of the SESA

1- A permanent IWRM financing mechanism

is needed to consolidate the gains of the

project and ensure its continued existence.

2. The production of a SESA complete with

the Environmental and Social Management

Framework (ESMF) is important to ensure

the environmental and social sustainability

of the project.

1. Bank and

Donee

2. Donee

15

III Performance of stakeholders

A Relevance

1. Bank Performance

Rating* Narrative assessment by the Borrower on the Bank’s performance, as well as any other aspects of the project

(both quantitative and qualitative). See guidance note on issues to cover. (indicative max length: 250 words)

3 AfDB/AWF has ensured compliance with Bank procurement rules and procedures. It has made arrangements

to facilitate the project’s implementation, particularly by carrying forward the date of project closure in order

to allow the PMU to complete all the activities. The grant beneficiary indicated that the project was

implemented in collaboration and with the support of the AfDB/AWF, but noted that the time taken to process

files at the Bank was rather long. The donee also reported that the AfDB/AWF carried out only one supervision

mission during project implementation, instead of at least one mission per year. So there is a project monitoring

problem. Also, the mission team was limited to one person, and had no financial expert. A mid-term audit of

the project was conducted and approved by the Bank. The final audit has not been performed, but is planned

for the end of the project.

Key issues (related to Bank performance, max 5, add rows as needed) Lessons learned

1. Consistency of supervision missions

2. Processing of files

1. The composition of supervision missions must be

multidisciplinary to address the concerns of the project

team

2. It is imperative to expedite the processing of files at the

Bank to avoid project implementation delays.

2. Borrower performance

Rating* Narrative assessment on the Borrower performance to be inserted by the Bank (both quantitative and qualitative,

depending on available information). See guidance note. (indicative max length: 250 words)

3 The donee set up the Project Management Unit (PMU) to manage the project. The donee took steps to ensure

the involvement of stakeholders in all stages of the project, including in the conduct of studies and in their

approval, but failed to provide the counterpart financing on time because of cash flow difficulties. Also, the

donee took a long time to start the project because it needed to fulfil the grant conditionalities to avoid a repeat

of problems, especially the difficulty of opening the foreign exchange account. The donee failed to approve the

monitoring and evaluation of the project at the beginning but did so at the end of the project. It has taken steps

to ensure the sustainability of the project, including by issuing the decree on PANGIRE and transforming the

PMU of PANGIRE into a Permanent Secretariat responsible for project implementation. The donee has

responded in a timely manner to the requests and implemented the recommendations of the start-up and

supervision missions. It is making every effort to ensure that the last studies are conducted and approved before

the close of the project, scheduled for 30 November 2018. It plans to produce the beneficiary’s project

completion report at the end of the project. Key issues (related to Borrower performance, max 5, add rows as needed) Lessons learned

1. Project counterpart financing

2. Fulfillment of grant conditionalities

1. The provision of counterpart financing at the start of

the project makes it possible to avoid delays in the

implementation of the project

2. Expeditious fulfilment of grant conditionalities

allows for timely commencement of project activities

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3. Performance of other stakeholders

Rating* Narrative assessment on the performance of other stakeholders, including co-financiers, contractors and service

providers. See guidance note on issues to cover. (indicative max length: 250 words)

3 The project’s implementation involved the PMU, DANIDA, Swiss Cooperation/Lux Development,

OXFAM and STUDI, SOFRECO and FGC consulting firms, and the consulting firm group comprising

BERD Burkina and SQUEN Niger. DANIDA and Lux Development have each fully disbursed the initial

and additional financing which was increased to Euro 335,388 following the resource reallocation. OXFAM

also disbursed its financing of Euro 91,469. The performance of STUDI consulting firm, which produced

PANGIRE and PIP documents, was entirely satisfactory. This consulting firm produced good quality

documents within the contractual deadlines. It produced the 3 APS following an amendment to its initial

contract. The SOFRECO and FGC group carried out studies on the status of water resources, and BERD-

Burkina Faso and SQUEN-Niger consulting firms conducted the strategic environmental and social

assessment (SESA). Two studies are still to be carried out: (i) studies on the preparation of the Water

Development and Management Master Plan (SDAGE) for four sub-basins. The contract worth Euro 89,937

(CFAF 58,995,000) won by AGHECRA was approved by the Bank. AGHECRA was requested to start

work by 15 August 2018, for a period of four months; (ii) the remaining portion was used to finance studies

on the improvement of the new MHA database. The contract totalling EUR 28,340 (or CFAF 18,590,000),

won by NAZAN-Building Business Group, was approved by the Bank. NAZAN-Building Business group

was requested to start work on 15 August 2018 for a period of three months. The project's Regional Steering

Committee has met six times since the start of the project.

Key issues (related to performance of

other stakeholders, max 5, add rows as

needed)

Lessons learned (max 5) Target audience (for

lessons learned)

1. Finalisation of studies 1. It is necessary to finalize all the planned studies within the

allotted time so that they may be available for use in establishing

a coherent investment project

1. Donee.

IV Summary of key lessons learned and recommendations

1. Key lessons learned

Key issues (max 5, add rows as needed) Key lessons learned Target audience

1. Financial sustainability

2. Delay in the implementation of project

activities

3. Donor coordination

4. Project monitoring by the Bank

1. A permanent mechanism for monitoring the

commitments of the various donors is

needed to consolidate the project’s gains

2- The processing of files at the Bank needs to

be expedited to save time in the

implementation of project activities

3. The Bank's participation in the donor group

strengthens coordination and prevents the

same project from being financed by several

donors

4. Regular contact with the project team makes

it possible to resolve any difficulties that

may arise during project implementation.

1. Donee

2. Bank

3. Bank

4. Donee/Bank

17

3. Key recommendations (with particular emphasis on ensuring sustainability of project benefits)

Key issue (max 10, add rows as needed) Key recommendation Responsibl

e

Deadlines

1. Completion of project activities

1. Complete the last studies required for

preparation of the Water Development and

Management Master Plan (SDAGE) for four

sub-basins, and for improvement of the new

database of MHA

Donee Immediate

2 Maintenance of the project coordination

and management system.

2. The coordination and management system

established during the project

implementation has worked well and been

successful. This system will need to be

maintained in implementing PANGIRE

activities.

Donee Medium

term

3. Permanent mechanism for monitoring

donor commitments

3. Establish a permanent system for

monitoring the commitments of the various

donors for the financing of PANGIRE

activities.

Donee

Immediate

4. Project monitoring and evaluation 4. Adopt the monitoring and evaluation system

at the start of the project

Donee Medium

term

5. Storage of project documents

5. Electronically and physically archive

project documents

Donee Immediate

6. Mobilization of resources for the

financing of PANGIRE

6. Organize the specific meeting in

Luxembourg scheduled for 2019 to mobilize

financing for PANGIRE and inform the

Bank of the outcomes of that meeting.

Donee /

Bank

Short term

V Overall PCR rating

Dimensions and Criteria Rating*

DIMENSION A: RELEVANCE 3.5

Relevance of project development objective (II.A.1) 4

Relevance of project design (II.A.2) 3

DIMENSION B: EFFECTIVENESS 3

Development Objective (DO) (II.B.4) 3

DIMENSION C: EFFICIENCY 2.66

Timeliness (II.C.1) 2

Resource use efficiency (II.C.2) 3

Cost-benefit analysis (II.C.3) -

Implementation Progress (IP) (II.C.4) 3

DIMENSION D: SUSTAINABILITY 2.66

Financial sustainability (II.D.1) 2

Institutional sustainability and capacity building (II.D.2) 3

Ownership and sustainability of partnerships (II.D.3) 3

Environmental and social sustainability (II.D.4) -

OVERALL PROJECT COMPLETION RATING 3

18

VI Acronyms and abbreviations

Acronym (add row as

needed)

Description

3N Les Nigériens Nourrissent les Nigériens (Nigeriens Feed Nigeriens)

ADF African Development Fund

AfDB African Development Bank

AWF African Water Facility

CILSS Permanent Inter-State Committee for Drought Control in the Sahel

CNEA National Water and Sanitation Commission

CREA Regional Water and Sanitation Commission

CRP Regional Project Steering Committee

CSP Country Strategy Paper

DANIDA Danish International Development Agency

DGH Directorate General of Hydraulics

DRE Directorate of Water Resources

ECOWAS Economic Commission of West African States

ESMF Environmental and Social Management Framework

IWRM Integrated Water Resources Management

LCBC Lake Chad Basin Commission

LCBC Lake Chad Basin Commission

MDGs Millennium Development Goals

M&E Monitoring and Evaluation

MHA Ministry of Water and Sanitation

NBA Niger Basin Authority

NBA Niger Basin Authority

PADD Sustainable Development Action Plan

PANGIRE National Action Plan for Integrated Water Resource Management

PCR Project Completion Report

PDES Economic and Social Development Plan

PIP Priority Investment Programme

PMU Project Management Unit

PROSEHA Water, Hygiene and Sanitation Sector Programme 2016-2030

PRSF Poverty Reduction Strategy Framework

PRSP Poverty Reduction Strategy Paper

RAT Quarterly Progress Report

SDAGE Water Development and Management Master Plan

SDR Rural Development Strategy

SDRP Accelerated Development and Poverty Reduction Strategy

SESA Strategic Environmental and Social Assessment

SG Secretary General of the Ministry of Water and Sanitation of Niger

SISEAN Integrated Monitoring and Evaluation System for Water and Sanitation in Niger

SOPHAB Operational Strategy for the Promotion of Hygiene and Basic Sanitation

19

TFP Technical and Financial Partner

TOR Terms Reference

WAEMU West African Economic and Monetary Union

WR Water Resources

WSS NP Water Supply and Sanitation National Programme

ANNEXES

List of persons interviewed

Full Name Function Contact Number

Atahirou Karbo SG MHA +227 90 07 04 40

Khamada Baye Director in charge of

Studies and

Programming, MHA

+227 96 97 33 26

Dr Sandao Issoufou Coordinator, PMU +227 96 96 77 54

Abdou Sani Expert Monitoring and

Evaluation Expert,

PMU

+227 97 10 08 88

Mahamadou Magé Accountant +227 90 96 06 87

Oher Persons Interviewed

Full Name Function Contact Number

Kané Dia Nouridine AfDB Resident

Representative in Niger

+227 90 11 26 99

AFRICAN DEVELOPMENT BANK · african development bank niger development and implementation of the national action plan for integrated water resources management (pangire) of niger

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