Document of
The World Bank
Report No: ICR00002676
IMPLEMENTATION COMPLETION AND RESULTS REPORT
(IDA-39510, IDA-44920)
ON A
CREDIT
IN THE AMOUNT OF SDR 31.1 MILLION
(US$45 MILLION EQUIVALENT)
AND
AN ADDITIONAL FINANCING IN THE AMOUNT OF SDR 4.3 MILLION
(US$7 MILLION EQUIVALENT)
TO THE
REPUBLIC OF BENIN
FOR AN
ENERGY SERVICE DELIVERY PROJECT
IN SUPPORT OF THE FIRST PHASE OF THE
ENERGY SERVICES DELIVERY PROGRAM
September 30, 2013
Energy Practice 2
Sustainable Development Department
Country DepartmentAFCF2
Africa Region
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CURRENCY EQUIVALENTS
Exchange Rate Effective August, 13, 2013
Currency Unit= CFAF
US$1.00 = 493CFAF
US$ 1.00= SDR 0.66
FISCAL YEAR
January 1 – December 31
ABBREVIATIONS AND ACRONYMS
ABE Agence Béninoise pour l'Environnement (Benin Environmental
Agency)
AFIC Agence Forestière Inter-Communale (Inter-Communal Agency for
Forest Resource Management)
AfDB
APL
African Development Bank
Adaptable Program Lending
BOAD Banque Ouest Africaine de Développement
CAA Caisse Autonome d’Amortissement
CAS Country Assistance Strategy
CPS Country partnership Strategy
CDM Clean Development Mechanism
CEB Communauté Electrique du Bénin (Benin-Togo Generation and
Transmission Power Company)
CENATEL Centre National de Télédétection et de Surveillance du Couvert
Forestier (National Forest Remote Monitoring Center) CIE Compagnie Ivoirienne d’Electricité
CNCD Commission Nationale des Combustibles Domestiques (National Forest
Cover Remote and Monitoring Center COFORMO Communauté Forestière de la Région du Moyen Ouémé
DGE Direction Générale de l'Energie (Directorate of Energy)
DGFRN Direction de Gestion des Forêts et des Ressources Naturelles
(Directorate of Forests and Natural Resources) ECOWAS Economic Community of West African States
EIB European Investment Bank
ESDP Energy Services Delivery Project
ERR Economic Rate of Return
FCFA Franc de la Communauté Financière d’Afrique (Local Currency)
GEF
GoB
Global Environment Facility
Government of Benin
GWh Giga Watt Hour
HV High Voltage
IAME Increased Access to Modern Energy
IDA
IP
International Development Association
Implementation Progress
iii
kWh Kilo Watt hour
LPG Liquified Petroleum Gas
MDG Millennium Development Goal
MERPMEDER Ministère de l’Energie, des Recherches Pétrolières et Minières, de
l’Eau et du Développement des Energies Renouvelables)
MW MegaWatt
NDF Nordic Development Fund
NEPA Nigerian Electric Power Authority
NGO Non-Governmental Organization
NPV Net Present Value
PDO Project Development Objective
PRSP Poverty Reduction Strategy Paper
SBEE Société Béninoise d’Energie Eléctrique (Benin Distribution
Power Utility)
SDR Special Drawing Rights
SIEF Système d’Information Ecologique et Forestière
SIEP Système d’Information et d’Evaluation Permanente
SIGFIP Système Intégré de Gestion des Finances Publiques (Finance and
Accounting System for Public Finance)
SME Small Medium Enterprise
SSA Sub-Saharan Africa
WAGP West African Gas Pipeline
WAPP West African Power Pool
Vice President: Makhtar Diop
Country Director: Madani M. Tall
Sector Manager: Meike van Ginneken
Project Team Leader: Franklin Koffi S.W. Gbedey
ICR Team Leader: Vonjy M. Rakotondramanana
iv
v
BENIN
ENERGY SERVICE DELIVERY PROJECT
CONTENTS
Data Sheet
A. Basic Information
B. Key Dates
C. Ratings Summary
D. Sector and Theme Codes
E. Bank Staff
F. Results Framework Analysis
G. Ratings of Project Performance in ISRs
H. Restructuring (if any)
I. Disbursement Profile
1. Project Context, Development Objectives and Design ............................................................... 1
2. Key Factors Affecting Implementation and Outcomes .............................................................. 8
3. Assessment of Outcomes .......................................................................................................... 14
4. Assessment of Risk to Development Outcome ......................................................................... 21
5. Assessment of Bank and Borrower Performance ..................................................................... 22
6. Lessons Learned........................................................................................................................ 25
7. Comments on Issues Raised by Borrower/Implementing Agencies/Partners........................... 26
Annex 1. Project Costs and Financing .......................................................................................... 27
Annex 2. Outputs by Component.................................................................................................. 28
Annex 3. Economic and Financial Analysis ................................................................................. 33
Annex 4. Bank Lending and Implementation Support/Supervision Processes ............................. 37
Annex 5. Summary of Borrower's ICR and/or Comments on Draft ICR ..................................... 39
Annex 6. List of Supporting Documents ...................................................................................... 60
vi
Data Sheet
A. Basic Information
Country: Benin Project Name: BJ-Energy Service
Delivery APL (FY05)
Project ID: P079633 L/C/TF Number(s): IDA-39510,IDA-44920
ICR Date: 09/30/2013 ICR Type: Core ICR
Lending Instrument: APL Borrower: GOVERNMENT OF
BENIN
Original Total
Commitment: XDR 31.10M Disbursed Amount: XDR 29.61M
Revised Amount: XDR 35.40M
Environmental Category: B
Implementing Agencies:
Communauté Electrique du Bénin (CEB)
Société Béninoise d’Energie Electrique (SBEE)
Ministère de l'Energie, des Recherches Pétrolières et Minières et de l'Eau
Cofinanciers and Other External Partners: Government of Benin
West African Development Bank (WADB)
Nordic Development Fund
Société de Gestion Intérimaire
B. Key Dates
Process Date Process Original Date Revised / Actual
Date(s)
Concept Review: 10/08/2002 Effectiveness: 04/25/2005 04/25/2005
Appraisal: 02/23/2004 Restructuring(s):
06/02/2008
06/28/2010
12/30/2011
Approval: 07/06/2004 Mid-term Review: 07/01/2007
Closing: 12/31/2008 12/31/2012
C. Ratings Summary
C.1 Performance Rating by ICR
Outcomes: Moderately Unsatisfactory
Risk to Development Outcome: Moderate
Bank Performance: Moderately Satisfactory
Borrower Performance: Moderately Satisfactory
vii
C.2 Detailed Ratings of Bank and Borrower Performance (by ICR)
Bank Ratings Borrower Ratings
Quality at Entry: Moderately
Unsatisfactory Government: Moderately Satisfactory
Quality of Supervision: Moderately Satisfactory Implementing
Agency/Agencies: Moderately Satisfactory
Overall Bank
Performance: Moderately Satisfactory
Overall Borrower
Performance: Moderately Satisfactory
C.3 Quality at Entry and Implementation Performance Indicators
Implementation
Performance Indicators
QAG Assessments (if
any) Rating
Potential Problem
Project at any time
(Yes/No):
Yes Quality at Entry
(QEA): None
Problem Project at any
time (Yes/No): Yes
Quality of Supervision
(QSA): None
DO rating before
Closing/Inactive status: Satisfactory
D. Sector and Theme Codes
Original Actual
Sector Code (as % of total Bank financing)
Central government administration 24 24
Sub-national government administration 12 11
Transmission and Distribution of Electricity 64 64
Theme Code (as % of total Bank financing)
Infrastructure services for private sector development 20 20
Land administration and management 20 20
Regulation and competition policy 20 20
Rural services and infrastructure 20 20
Urban services and housing for the poor 20 20
viii
E. Bank Staff
Positions At ICR At Approval
Vice President: Makhtar Diop Callisto E. Madavo
Country Director: Madani M. Tall Pedro Alba
Sector Manager: Meike van Ginneken Yusupha B. Crookes
Project Team Leader: Franklin Koffi S.W. Gbedey Said R. Mikhail
ICR Team Leader: Vonjy M. Rakotondramanana
ICR Primary Author: Vonjy M. Rakotondramanana
F. Results Framework Analysis
Project Development Objectives (from Project Appraisal Document)
The development objectives are to: (a) accelerate, in a commercially viable manner, the use of
electricity for economic growth and social services and thus improve the quality of life in un-
served and underserved areas (peri-urban and rural); (b) improve governance and ensure the
financial sustainability of the sector, through the involvement of the private sector in partnership
with the public sector; (c) reduce deforestation and increase access and diversify choice to
renewable and cleaner fuels to the household and SME sectors; and (d) promote regional
cooperation while protecting the environment in a sustainable manner.
Revised Project Development Objectives (as approved by original approving authority)
The PDOs were not revised throughout the project implementation.
(a) PDO Indicator(s)
**NB. In the table below, the indicators which have been monitored throughout the life of the
project have been disaggregated to better reflect the results for the purposes of the analysis.
Although the data is the same, the presentation below differs from the manner in which the
results have been captured in implementation status reports.
Indicator Baseline Value
Original Target
Values (from
approval
documents)
Formally Revised
Target Values
Actual Value
Achieved at
Completion or
Target Years
Indicator 1 : Reliable electricity supply available for northern Benin through the interconnected grid
from the South.
Value
(quantitative or
qualitative)
Limited power
availability in northern
Benin through diesel
power plant at Parakou
and Djougou which is
often not able to operate
due to lack of diesel.
0GWh supplied from the
Reliable electricity
supply available
for northern Benin
through the
interconnected
grid from the
South.
Reliable power
supplied to northern
Benin through the
interconnected grid
as measured in
GWh supplied from
southern grid and
through higher
89GWh supplied from
the South to northern
Benin through the
newly interconnected
grid.
ix
southern grid. stability of overall
grid as southern
transmission loop
can be fully
operated.
Date achieved 07/31/2004 07/31/2004 06/30/2008 12/31/2012
Comments
(incl. %
achievement)
This target has been achieved.
Indicator 2 : The number of outages in Parakou and Djougou shall amount to an average of no more
than two per month/two hours per outage.
Value
quantitative or
Qualitative)
Inability to manage
southern transmission
loop leading to frequent
outages and under supply
of electricity as power
cannot be jointly
imported from Ghana,
Côte d’Ivoire, and
Nigeria.
Reliable electricity
supply available
for northern Benin
through the
interconnected
grid from the
South.
Reliable power
supplied to northern
Benin through the
interconnected grid
as measured in
GWh supplied from
southern grid and
through higher
stability of overall
grid as southern
transmission loop
can be fully
operated.
Southern transmission
loop fully operated but
the average of less
than two per
month/two hours per
outage in Parakou and
in Djougou has not
been achieved due to
CEB supply capacity
constraint.
Date achieved 07/31/2004 07/31/2004 06/30/2008 12/31/2012
Comments
(incl. %
achievement)
This outcome has not been achieved, although the more loosely defined corresponding
target has been reached.
Indicator 3 : Off-grid strategy completed and approved by MMEH and SBEE concession agreement
signed and implemented.
Value
quantitative or
Qualitative)
SBEE fully publicly
owned and low financial
and technical
performance. No studies
available to expand the
electricity system. No
strategy or policy for off-
grid electrification
Off-grid strategy
completed and
approved by
MMEH and SBEE
concession
agreement signed
and implemented.
Strategy for off-
grid developed and
policy plan for
implementation
endorsed. SBEE
outsources key
areas and its
financial and
technical
performance
improved. Higher
reliability of power
supply in Cotonou
and Porto Novo.
Key feasibility
studies completed
to facilitate closing
the generation/
transmission gap.
Off-grid strategy
developed and
endorsed. SBEE
technical and financial
performance has
improved. Higher
power supply
reliability established
in Cotonou and Porto
Novo as per voltage
fluctuations and power
outage records.
Economic Viability
Study for Adjarala
hydro plant completed.
The update of the
ESIA/RAP is ongoing.
The panel of experts
has been recruited.
Date achieved 07/31/2004 07/31/2004 06/30/2008 12/31/2012
x
Comments
(incl. %
achievement)
This target was partially achieved. The off-grid electrification strategy was completed by
the Government outside of the project and has been implemented. In addition, SBEE
situation has improved. Most planned studies and Adjarala preparatory work were
completed. Nevertheless, SBEE’s financial performance has not improved as much as
initially planned, such that privatization was not pursued and the utility has failed to
outsource significant areas of operation to the private sector. In addition, some studies
were only partly completed under the project before being dropped or financed directly
by the Government at project closing.
Indicator 4 : Power provided to northern Benin through the Togolese power grid, as measured in GWh
supplied
Value
quantitative or
Qualitative)
No power provided to
northern Benin through
the Togolese power grid
The construction
of the transmission
line in Bénin and
in Togo will be
completed and
operational
Power provided to
northern Benin
through the
Togolese power
grid, as measured in
GWh supplied
In 2012, 89GWh was
supplied to the
Northern Benin from
the Togolese power
grid
Date achieved 07/31/2004 07/31/2004 06/30/2008 12/31/2012
Comments
(incl. %
achievement)
This target has been achieved.
Indicator 5 : Establishment and effective functioning of the CNCD
Value
quantitative or
Qualitative)
No institutional
frameworks exists
CNCD established
and effective.
CNCD established and
effective.
Date achieved 07/31/2004 07/31/2004 12/31/2012
Comments
(incl. %
achievement)
This target has been achieved.
Indicator 6 : Establishment and effective functioning of the AFIC
Value
quantitative or
Qualitative)
No institutional
frameworks exists
Inter-Communal
Agency for natural
resource
management
established and
effective
Inter Communal
Agency for natural
resource management
(AFIC) established
and effective.
Date achieved 07/31/2004 07/31/2004 12/31/2012
Comments
(incl. %
achievement)
This target has been partially achieved. AFIC has been established but was only
intermittently effective under the project.
Indicator 7 : Natural resource management rights effectively devolved to rural communities
Value
quantitative or
Qualitative)
No institutional
frameworks exists
Natural resource
management rights
effectively
devolved to rural
communities
Natural resource
management rights
effectively devolved.
Date achieved 07/31/2004 07/31/2004 12/31/2012
Comments
(incl. %
achievement)
This target has been achieved.
xi
(b) Intermediate Outcome Indicator(s)
Indicator Baseline Value
Original Target
Values (from
approval
documents)
Formally
Revised Target
Values
Actual Value
Achieved at
Completion or
Target Years
Indicator 1 : Power sector reform completed
Value
(quantitative
or qualitative)
No private sector
engagement in SBEE. No
regulatory agency
intervening. No
communication activity or
strategy in place.
There is a private
sector partner in
SBEE business. A
regulatory
framework is
established.
The Benin public is
well informed about
the power sector
reform restructuring.
SBEE
outsources key
areas of
operation. The
regulatory
agency is set
up. Public well
informed about
GoB energy
policy.
Regulatory agency
has been established
by decree.
Communication and
PR activity on sector
reform has been
completed. SBEE has
opened the
manufacturing and
supply of utility poles
to the private sector.
Date achieved 07/31/2004 07/31/2004 06/30/2008 07/31/2012
Comments
(incl. %
achievement)
This intermediate outcome has been partially achieved. While some reforms have taken
place, significant outsourcing of operations has not yet been achieved and the originally
anticipated private sector participation in SBEE is still under discussion.
Indicator 2 : Engineering studies completed
Value
(quantitative
or Qualitative)
No technical information or
feasibility studies available
on key energy infrastructure
to be developed.
All studies are
launched within the
first year of project
implementation.
The following
studies
completed:
Onigbolo-
Parakou
transmission
line (TL);
Sakete-Porto
Novo TL; Load
management
and energy
efficiency for
government
buildings;
preparatory
studies for
Adjarala; study
for Maria Gléta
as site for
regional power
plant.
The following have
been completed:
Feasibility and
safeguard studies for
Onigbolo-Parakou
and Sakete-Porto
Novo; load
management and
energy efficiency
study for government
buildings; economic
analysis of the
Adjarala hydro
generation project;
terms of reference for
Adjarala engineering
consultant; study for
Maria Gléta site.
Date achieved 07/31/2004 07/31/2004 06/30/2008 12/31/2012
Comments
(incl. %
achievement)
This intermediate outcome has been partially achieved. The preparation of standard
bidding documents for IPPs initially envisaged under the project was started under the
project but dropped at closing, while the establishment of a panel of experts and hiring
of an engineering consultant for Adjarala is still underway, now financed directly by
CEB.
xii
Indicator 3 : Investment component (Transmission and distribution system expanded)
Value
(quantitative
or qualitative)
No 161kV transmission
system in place. Southern
transmission ring cannot be
operated leading to frequent
outages. Voltage
fluctuations above +/- 7%
leading to frequent tripping
of LV network
161kV transmission
system completed
by end 2006. The
Benin Gas turbine
ready to run on
WAGP. Voltage
fluctuations are
within +/- 7%
161kV
transmission
link in place
and fully
operational.
Southern
transmission
ring can be
fully operated
leading to
higher
reliability and
lower frequency
of outages.
Voltage
fluctuations
below +/-7% at
5 substations in
Cotonou and
Porto Novo.
Additional
Financing
allows for the
rehabilitation of
1 sub-station in
addition to the 4
targeted under
the original
project.
161kV transmission
link constructed and
fully operational.
Southern
transmission ring
fully operational with
higher reliability and
lower frequency of
outages. Operator
logs showed voltage
fluctuations were
below +/-7% at 5
substations in
Cotonou and Porto
Novo
Date achieved 07/31/2004 07/31/2004 06/30/2008 12/31/2012
Comments
(incl. %
achievement)
This intermediate outcome has been achieved.
Indicator 4 :
Environmental and social component: populations affected by the transmission line are
compensated and environmental audit is carried out
Value
(quantitative
or Qualitative)
Affected population not
compensated. No
environment audit report for
SBEE. No environmental
audit report for Sèmè Oil
field.
Affected
populations are
satisfied.
environmental audit
report for SBEE is
prepared
Affected
populations are
satisfied.
Environmental
audit report for
SBEE is
prepared.
Environmental
audit for Sèmè
Oil field is
prepared
Compensation has
been completed and
the affected
populations are
satisfied.
Environmental audits
for SBEE and Sèmè
Oil field were
incomplete at project
close.
xiii
Date achieved 07/31/2004 07/31/2004 06/30/2008 12/31/2012
Comments
(incl. %
achievement)
This intermediate outcome has been partially achieved. While affected populations were
satisfied with compensation, the environmental audit for SBEE was dropped at project
closing that of the Sèmè Oil Field remains unfinished.
Indicator 5 : Institutional strengthening and capacity building improved
Value
(quantitative
or Qualitative)
Staff at CEB and Ministry
of Energy is lacking key
technical skills needed to
plan, maintain, and operate
a power system. The
Ministry of energy is
lacking staff in core
competency areas.
Minimum number
of trained staff.
Vacant positions are
filled up.
Minimum
number of
trained staff in
core technical,
planning and
maintenance
areas. Ministry
of energy
disposes of staff
in key areas of
competence
160 trained staff in
core technical,
planning and
maintenance areas.
Ministry of energy
has adequate staff in
key areas of
competence
Date achieved 07/31/2004 07/31/2004 06/30/2008 12/31/2012
Comments
(incl. %
achievement)
This intermediate outcome has been achieved.
Indicator 6 : Biomass and inter-fuel substitution management : effective sound management of the
domestic combustible sub-sector
Value
(quantitative
or Qualitative)
No institutional framework
is in place
CNCD effective by
June 2004.Effective
sub-sector reform by
mid-term. SIEP is
set-up and operates
by year 2. AFIC is
created and operates
within 4 months.
DFRN capacity to
regulate is effective
by year 1.SIEP is
set-up by end of
year1 and operates
by year2
CNCD
effective.
Effective sub-
sector reform.
SIEP is set up
and fully
operational.
AFIC is
established and
operates
effectively.
DFRN capacity
to regulate
private and
public forest
resources
management is
effective.
CNCD setup under
project and now
effective with support
from Bank-financed
IAME project. Sub-
sector reform was
successful by virtue
of the devolution of
forest management to
rural communities.
SIEP tools have been
developed. AFIC is
established and
operates effectively.
Date achieved 07/31/2004 07/31/2004 06/30/2008 12/31/2012
Comments
(incl. %
achievement)
This intermediate outcome has been partially achieved. While CNCD was setup under
the project, the body was only able to stay effective with financing from the IAME
project. Furthermore, capacity development for DFRN commenced under the project
but not completed.
Indicator 7 :
Biomass and inter-fuel substitution management : improved biomass energy production
and supply and effective sustainable community based natural resources management in
the Moyen Ouémé region
xiv
Value
(quantitative
or Qualitative)
No community based
management of forests in
place. Non-classified forest
not managed sustainably,
and 0% of household
demand for fuel wood
produced in a sustainable
manner
AFIC effective by
June 2004.Effective
transfer of
unclassified forests
management to local
government in the
Moyen Ouémé by
June 2004.
300,000ha of forests
under community
based by end of
implementation.
30% of current
household demand
for fuel wood
produced
sustainably.
AFIC effective;
effective
transfer of
unclassified
forests
management to
local
government in
the Moyen
Ouémé;
300,000ha of
forests under
community
based
sustainable
management;
30% of current
household
demand for fuel
wood produced
sustainably.
AFIC established;
effective transfer of
unclassified forests
management to local
government in the
Moyen Ouémé; A
management plan for
295,295 ha of forest
was developed under
the project.
Date achieved 07/31/2004 07/31/2004 06/30/2008 12/31/2012
Comments
(incl. %
achievement)
This intermediate outcome has been partially achieved. AFIC was established but not
always effective under the project. The management plan for the transfer of 295,295 ha
of forest land to community based sustainable management was agreed under the
project and implemented. The production of sustainably produced woodfuel has not yet
begun.
Indicator 8 : Biomass and inter-fuel substitution management : Private sector /NGO based energy
end-use efficiency (stoves) and inter fuel substitution options are effectively introduced
Value
(quantitative
or Qualitative)
Private sector not
significantly involved in
distribution of substitution
equipment for fuel wood;
no private sector
engagement in production
of cashew nut shells and
charcoal briquettes
Private partner in
distribution of
substitution
domestic energy and
equipment;4,800
LPG stoves, 18,000
kerosene stoves, and
30,000 improved
fuel wood stoves
produced and
marketed by end of
project; Feasibility
studies successfully
completed; Private
sector investments
by 2006
Private partner
in distribution
of substitution
domestic
energy and
equipment;
4,800 LPG
stoves, 18,000
kerosene stoves,
and 30,000
improved fuel
wood stoves
produced and
marketed;
Feasibility
studies
successfully
completed;
Private sector
investments in
production and
The procurement of
4,800 LPG stoves
was launched and
30,000 improved
cookstoves have been
purchased. However,
the stoves were not
distributed to
households before
project closing. The
study for the
promotion of the use
of biofuel was
completed. Private
sector has invested in
LPG and fuel wood
stoves.
xv
marketing of
charcoal
briquettes (caju
shells) and
ethanol (caju
apples)
Date achieved 07/31/2004 07/31/2004 06/30/2008 12/31/2012
Comments
(incl. %
achievement)
This intermediate outcome has been partially achieved. The procurement of 4,800 gas
stoves remains to be completed, and the distribution of 30,000 improved cookstoves
procured under the project has yet to occur.
G. Ratings of Project Performance in ISRs
No. Date ISR
Archived DO IP
Actual Disbursements
(US$ millions)
1 06/13/2005 Satisfactory Moderately Unsatisfactory 1.46
2 12/21/2005 Satisfactory Moderately Unsatisfactory 1.57
3 06/30/2006 Satisfactory Moderately Satisfactory 3.56
4 12/28/2006 Satisfactory Moderately Satisfactory 4.72
5 06/28/2007 Moderately Satisfactory Moderately Unsatisfactory 5.81
6 12/14/2007 Moderately Satisfactory Moderately Satisfactory 7.83
7 06/24/2008 Satisfactory Satisfactory 11.67
8 12/22/2008 Moderately Satisfactory Moderately Satisfactory 22.24
9 06/01/2009 Satisfactory Satisfactory 27.34
10 12/23/2009 Satisfactory Moderately Satisfactory 31.62
11 06/22/2010 Satisfactory Moderately Satisfactory 35.34
12 03/27/2011 Satisfactory Moderately Satisfactory 37.56
13 01/08/2012 Satisfactory Satisfactory 40.23
14 06/12/2012 Satisfactory Satisfactory 41.86
H. Restructuring (if any)
Restructuring
Date(s)
Board
Approved PDO
Change
ISR Ratings at
Restructuring
Amount
Disbursed at
Restructuring
in US$ millions
Reason for Restructuring & Key
Changes Made DO IP
06/02/2008 N MS MS 11.67
Provide Additional Financing
credit of SDR 4.3 million (US$ 7
million equivalent), revise the
results framework, and extend the
closing date from December 31,
2008 to June 30, 2010
06/28/2010 N S MS 35.34 Extend the closing date from June,
30 2010 to December 31, 2011
12/30/2011 N S MS 40.23
Extend the closing date from
December 31, 2011 to December
31, 2012
xvi
I. Disbursement Profile
1
1. Project Context, Development Objectives and Design
1.1 Context at Appraisal
1. The 2002 census estimated Benin’s population to be 6.6 million with a per capita income
of US$ 380. Agriculture contributed over one third of Gross Domestic Product (GDP) and
employed two-thirds of the active population. Although lower than expected, real GDP growth
was substantial in 2001 and 2002 (5.0 percent and 5.8 percent, respectively). With the
increasing population and GDP, the Government of Benin (GoB) recognized that stimulating
private sector development would be essential to sustain economic growth. However, limited
competitiveness due to inadequate infrastructure, increased transaction costs, and an insufficient
supply of skilled workers hampered private sector development.
2. The GoB acknowledged that energy services would play a crucial role in strengthening
economic competitiveness and improving the economic and social indicators. At the time of
project preparation, the Benin energy sector faced the following key challenges:
Low electricity access rate: Although slightly above the Sub-Saharan Africa (SSA)
average, the electricity access rate in Benin was low at only 24 percent nationwide and
much lower in rural as compared with urban areas.
Limited generation capacity and dependence on imports: The electricity generation
capacity in Benin was low and the supply system weak. Benin largely depended on
imports from a single transmission line from Ghana which had limited available capacity.
To address this issue, the GoB planned to reinforce the transmission line between Togo
and Benin, and initiate several generation projects in cooperation with neighboring
countries such as the Adjarala Hydropower plant, the West African Gas Pipeline and the
construction of the NEPA/CEB transmission line between Nigeria and Benin.
Poor performance and financial management of CEB (responsible for generation and
transmission) and SBEE (responsible for distribution): CEB’s financial situation
deteriorated mainly due to the non-payment of electricity bills by both Benin’s and
Togo’s state owned companies and foreign exchange losses associated with foreign debt.
CEB was unable to make timely payments to its electricity suppliers. The situation
worsened during rainfall shortage, which strongly influenced the hydropower generation
supply in Benin from the Nangbeto Hydroelectric plant and the importation from the
Volta River Authority (VRA) in Ghana. SBEE’s poor technical and financial
performance was due to: (i) high operating cost and poor quality of services, particularly
in the northern part of the country which used diesel generation; (ii) inefficiency of the
networks due to high level of system losses; (iii) inappropriate tariff regime and
accumulated government arrears; and (iv) inadequate accounting system.
High dependence on traditional biomass fuels: Traditional biomass energy constituted
90% of total national energy consumption and more than 95% of aggregate household
energy consumption. Households depended on fuel wood (charcoal) for cooking and
2
deforestation trends were observed, particularly in the Moyen Ouémé region of Benin.
The country did not have a sustainable system for the management of natural resources,
such as ensuring a sustainable supply of wood fuels.
Poor sector governance and weak institutions: The sector’s critical institutions,
including the Ministry of Mines, Energy and Hydraulics (MMEH), lacked capacity to
implement a reform and investment program. The legal framework was not sufficiently
robust to promote private sector participation in the energy sector.
3. Against this backdrop, the GoB adopted strategies to address energy sector challenges. In
its Letter of Sector Policy (2001-2002), the GoB outlined the following approaches: (i)
diversifying generation sources, e.g. interconnect Benin and Nigeria; (ii) increasing electricity
service coverage in the north of Benin by extending the transmission line from the southern
system already connected to Ghana, Côte d'Ivoire, and Nigeria; and (iii) extending the
distribution network to supply peri-urban and rural areas as well as all villages and towns in the
proximity of the transmission system. In addition, the GoB approved the following measures:
(a) the separation of the water activities from the electricity activities of SBEE in order to
develop each sector independently; (b) the establishment of an energy sector regulatory agency
to oversee and ensure equity among all stakeholders; (c) the opening of the electricity sector for
private sector participation, preferably through a long term concession with a qualified investor;
and (d) the creation of a rural electrification agency to promote and supervise rural
electrification activities.
4. Given the high dependence on biomass, the GoB planned to take the following steps to
better oversee the use of the country’s bio-energy: (i) establish a National Household Energy
Commission (CNCD) to coordinate the development of the household biomass energy sectors;
(ii) establish a permanent sectorial information and monitoring system (SIEP); (iii) transfer the
management responsibilities over the existing protected forests to the rural communities; (iv)
establish an Inter-communal Agency for the Management of Natural Resources (AIC-GRN); (v)
introduce energy demand management and inter-fuel substitution options for the household and
small and medium enterprise (SME) sectors; and, (vi) identify and evaluate the existing bio-
energy potential in the country.
Rationale for Bank assistance:
5. At the time of appraisal, the GoB adopted a Poverty Reduction Strategy Paper (PRSP)
based on strategic objectives that included private sector led-growth, improved access to quality
basic services, and improved governance. To achieve these objectives, the GoB planned to
accelerate private sector involvement in the energy sector and to implement rural electrification
strategy. The planned reforms aimed at (i) increasing sector efficiency; (ii) enhancing the
sector’s regulatory framework and institutions; and (iii) fostering private sector participation
particularly in electricity generation as well as distribution. It was acknowledged that a strong
power sector in Benin would strengthen the development of the West Africa Power Market and
thereby promote the Millennium Development Goal (MDG) of strengthening the global
partnership for development, given Benin's geographical location between Nigeria and the rest
of West Africa.
3
6. The 2003 Country Assistance Strategy (CAS) for Benin supported the implementation of
the PRSP and envisaged an eight year Adaptable Program Loan, the Energy Service Delivery
Program (ESDP). The Energy Services Delivery Project (APL1) would support: investments
needed to increase electricity service coverage in the North of Benin by extending the Southern
transmission system, which is interconnected with Ghana, Côte d'Ivoire, and Nigeria; power
sector reform through technical assistance and capacity building to improve sector governance
and encourage private sector participation; and a combination of investments and technical
assistance to rationalize the use of biomass energy and promote effective inter-fuel substitution.
1.2 Original Project Development Objectives (PDO) and Key Indicators (as approved)
7. The original development objectives of the Energy Services Delivery Project (APL1)
were to: (a) accelerate the use of electricity for economic growth and social services in a
commercially viable way to improve the quality of life in un-served and underserved areas
(peri-urban and rural); (b) improve governance and ensure the financial sustainability of the
sector through the involvement of the private sector in partnership with the public sector; (c)
reduce deforestation, and diversify as well increase access to renewable and cleaner fuels for the
household and SME sectors; and (d) promote regional cooperation while protecting the
environment in a sustainable manner.
8. The key outcome indicators of the first phase of the program (APL1) were:
Reliable electricity supply is available for northern Benin through the interconnected grid
from the south;
In the first year of service of the transmission line (2007), the number of power outages
in Parakou and Djougou shall amount to an average of no more than two per month with
an average duration of no more than two hours per outage;
By midterm review, the study to prepare for the off-grid electrification will be completed,
as well as the bidding process for the selection of a private sector operator for SBEE will
be launched. By the end of the Project, the off-grid electrification strategy shall be
completed and approved by MMEH, and the SBEE concession agreement shall be signed
and the private sector operator shall be operating the electricity distribution system;
By midterm review, the construction of the transmission line in Togo will be completed
and by January 2007, the construction of the transmission line in Benin will be completed
and operational;
Establishment and effective functioning of CNCD and coordination of domestic energy
sub-sector by June 2004;
Establishment and effective functioning of Inter-Communal Agency for Natural Resource
Management by December 2004;
Effective devolution of natural resource management rights to rural communities.
1.3 Revised PDO (as approved by original approving authority) and Key Indicators, and
reasons/justification
9. The PDOs were not revised during the project. However, during the processing of the
Additional Financing, units of measure were introduced for some and other results indicators
4
were refined to improve PDO measurement capacity and to reflect the expected results of the
Additional Financing.
10. The results indicators were revised as follows:
Reliable power supplied to northern Benin through the interconnected grid as measured
in GWh from the southern grid and through higher stability of overall grid;
Strategy for off-grid electrification and policy plan for implementation endorsed;
SBEE outsources key areas and financial and technical performance of the power utility
improved as a result.
Higher reliability of power supply through SBEE in Cotonou and Porto Novo;
Key feasibility/safeguard studies prepared and project planning completed to facilitate
closing the generation/transmission gap;
Power provided to northern Benin through the Togolese power grid, as measured in GWh
supplied;
CNCD established and functioning effectively;
AFIC established and functioning effectively;
Natural resource management rights effectively devolved.
1.4 Main Beneficiaries
11. The beneficiaries of the project were:
Urban and rural households and businesses;
Isolated rural households and businesses not yet connected to the grid along the right-of-
way of the transmission lines;
The population at large with the improved economic conditions in Benin;
Individuals providing and receiving services at rural health facilities in 93 towns and
communities provided with electricity under the project;
Individuals providing and receiving services at rural schools in 93 towns and
communities provided with electricity under the project;
Rural communities in the Moyen Ouémé region, with an emphasis on women; and
Urban and peri-urban fuel wood consuming households due to receive improved cook
stoves under the project.
12. The direct benefits of the project include: a) the access by Northern Benin to the
interconnected transmission grid which will provide a considerably more reliable supply at a
reduced cost, compared with the operation of diesel plants, with limited capacity, in a number of
households and businesses of towns to be connected to the grid; and b) the reinforcement of
Benin-Togo cooperation in the power sector, as the power to Northern Benin will be supplied
through the Togo grid which would support the development of the West Africa Power Market
(WAPM).
13. The indirect benefits include: a) improved social development through the growth of
industrial and commercial activity, through the extension of the existing distribution systems in
urban and rural areas to increase electricity access; b) significant new employment and income
generation opportunities for the participating rural communities, through the proposed
community-based sustainable fuel wood supply management systems, together with the rural
5
development support activities and the inter-fuel substitution activities of the project; and c)
positive impact on gender development, given that women contribute significantly to fuel wood
production process in the country, through the implementation of the proposed community-
based sustainable fuel wood supply management systems; and d) the empowerment of local
communities by transferring to them responsibility for wood fuel resources management,
thereby helping them to increase their income and ensuring the environmental sustainability of
the forest resources; e) the enhancement of the relationship between local communities and the
central government and among themselves by the establishment of community based natural
resource management systems.
1.5 Original Components
14. The project, which was co-financed by the West African Development Bank (BOAD)
and Nordic Development Fund (NDF), comprised the following six components:
15. Component 1: Power Sector Reform (US$ 5.40 million, of which IDA US$ 5 million):
This component was to support the improvement of the governance and financial sustainability
of the sector through the involvement of the private sector. This component consisted of three
parts: (i) encouraging private sector participation in the electricity activities of SBEE, the
distribution power company; (ii) setting-up a regulatory authority for the power sector and a
training program for its staff; and (iii) dissemination to the public, through the media, of the
power sector reform agenda for education and information.
16. Component 2: Engineering Studies (US$ 2.80 million, of which IDA US$ 2.55 million):
This component was to support the strengthening of the technical performance of the electricity
system and to assist the GoB in determining future investments for the development of the sector.
This component comprised five engineering studies as follows: (i) a study to define the strategy
for off-grid electrification; (ii) a feasibility study for the Sakété-Parakou 161 kV transmission
line; (iii) a load management and energy efficiency study of the administration buildings; (iv)
detailed engineering studies including preparation of bidding documents for the rehabilitation,
reinforcement and expansion of the distribution system; and (v) an environmental assessment, an
engineering study and the preparation of bidding documents for the construction of the 161 kV
transmission line between Sakété and Porto-Novo.
17. Component 3: Investment Component (US$ 71.70 million, of which IDA US$ 26
million): The activities under this component were designed to expand the transmission and
distribution system. The component was financed jointly with CEB, BOAD and NDF, with the
Bank financing construction supervision. This component comprised two sub-components: (i) a
transmission sub-component (North Togo-North Benin interconnection); and (ii) a distribution
sub-component. The project co-financiers participated mainly in financing the transmission
subcomponent.
(i) North Togo- North Benin Transmission Line
This sub-component consisted of extending the southern 161 kV grid to the North of
Benin in order to provide the North with reliable and lower cost electricity. At the time of
appraisal, the North was supplied through isolated small diesel generating units. The
6
transmission line consisted of about 436 km of 161 kV connecting Atakpamé in Togo
with Parakou in Benin, and passing by Kara in Togo and Djougou in Benin; and the two
lateral transmission lines in Benin connecting Djougou to Natitingou, 76 km, and
Parakou to Bembereke, 106 km.
(ii) Distribution
The distribution sub-component included: (i) supply and erection of the equipment
needed for energy efficiency improvement in the administrative buildings; and (ii) supply
of goods and execution of urgent works needed to maintain the distribution system
functioning until a private sector partner took its place.
18. Component 4: Environmental and Social Component (US$ 3.50 million, of which IDA
US$ 1.75 million): This component was designed to address all the environmental impacts that
were identified in the Environmental Assessment (EA) for the project. This component
comprised: (i) the Environmental Assessment for the relocation of the existing 20Mw gas turbine
from Cotonou to a new site outside Cotonou; (ii) the compensation scheme for the high voltage
transmission line; and (iii) an environmental audit of SBEE.
19. Component 5: Institutional Strengthening and Capacity Building (US$ 6.10 million,
of which IDA US$ 4 million): This component aimed at strengthening the electricity institutions
under the Ministry of Mines Energy and Hydraulics (MMEH), and helping the
establishment/operationalization of their role and function in the sector. This component
consisted of: capacity building activities at the Ministry of Energy, the Directorate of Energy and
the CEB; the purchase of vehicles and office equipment for the PCU and the implementation of
an Information Technology (IT) strategy for DGE and SBEE; and the purchase measuring
equipment for CEB substations.
20. Component 6: Biomass Energy and Inter-fuel Substitution (US$ 6.20 million, of
which IDA US$ 5.70 million): This component aimed to rationalize the biomass energy sector
and to promote effective inter-fuel substitution options for the household and SME sectors,
including endogenous renewable fuels. The component entailed four complementary and cross-
supporting sub-components: (i) Institutional Development; (ii) Community-based Sustainable
Wood Fuel Supply; (iii) Biomass Energy Efficiency and Inter-fuel Substitution; and (iv) Rural
Community Development Support.
1.6 Revised Components
21. Project components did not change. However, the Additional Financing processed in
June 2008 supported additional activities under components two, three, four, and five of the
original project as detailed below.
22. Component 2: Engineering Studies (US$ 1 million): Under this Component, the
following additional studies were financed: a feasibility study for Maria Gléta (400MW thermal
power plant) as a site for WAPP Regional Power Plant and preparatory studies for Adjarala
Hydro-electric Plant.
7
23. Component 3: Transmission and Distribution System Expansion (US$4.5 million):
Under this component the following works and additional equipment were financed: SBEE’s
rehabilitation of switchgear and protection equipment at the substation of Akpakpa power plant;
SBEE’s construction of a distribution line in Cotonou; CEB’s installation of protection
equipment at substations to allow for operation of the southern transmission ring in Benin;
CEB’s provision of cable potheads to link up the Djougou and Parakou substations with the
Medium Voltage (MV) lines and related communication equipment; and extension of the
supervision contracts to accommodate additional tasks above.
24. Component 4: Environmental and Social Component (US$ 0.50 million): financed the
Environmental Audit of Sèmè Oil Field.
25. Component 5: Institutional Strengthening and Capacity Building (US$ 0.50 million):
financed technical assistance on financial management and training for SBEE.
Table: Original IDA Allocation and Additional Financing
Category Initial IDA
Allocation
(SDR million)
Initial IDA
Allocation
(US$ million) [1]
Additional
Financing
(US$ million) [1]
(1) Goods and Works for supply
and erection contracts
13.4 19.39 4.00
(2) Goods and Vehicles 2.35 3.40 -
(3) Consultants’ services 9.35 13.53 2.30
(4) Training 2.15 3.10 0.20
(5) Operating costs 0.60 0.87 -
(6) Refunding of project
preparation advance
0.55 0.80 -
(7) Unallocated 2.70 3.91 0.50
Total project costs (including
unallocated)
31.10 45.00 7.00
[1] Figures based on the Table 1 of the Additional Financing project paper
1.7 Other significant changes
26. The ESDP project, in the amount of SDR 33.10 million (US$45 million equivalent) was
approved on July 06, 2004. The Credit became effective on April 25, 2005. The project benefited
from an additional IDA credit in the amount of SDR 4.30 million (US$7 million equivalent)
which was approved on June 26, 2008 and became effective on May 4, 2009. The closing date of
the original project was extended during the processing of the Additional Financing from
December, 31 2008 to June, 30 2010. The project was extended for an additional 30 months
cumulatively (see paragraph 2.2 for more details) as a result of two additional restructurings in
June 2010 and December 2011 respectively, resulting in December 31, 2012 being the final
closing date of the project. The Additional Financing and project restructurings did not change
the project development objectives or the original components of the project. However, during
8
the processing of the Additional Financing, new activities were added under the existing
components of the original project as described in section 1.6.
2. Key Factors Affecting Implementation and Outcomes
2.1 Project Preparation, Design and Quality at Entry:
27. Project preparation: Project preparation benefited from a number of studies and broad
consultations with power sector stakeholders to take stock of the main sector issues and the
government strategies as well as policies. The preparation of the project was undertaken by the
Bank team jointly with: (i) the Directorate of Energy (Direction Générale de l'Energie, DGE)
within the Ministry of Energy, the policy making body of the energy sector; (ii) the distribution
utility, SBEE, and the generation and transmission company, CEB; (iii) the Ministry of
Environment; and (iv) local communities in the Moyen Ouémé region, particularly on the
biomass aspect.
28. A project preparation facility advance was used to finance preparatory work and
background analysis on legal frameworks, distribution networks, and environmental impact
assessment. The GoB showed strong commitment during project preparation and effectively
coordinated with commercial financial institutions and development partners to secure the
financing of priority investments of the sector and reform agenda. A reflection of the
Government’s commitment to power sector reform was that it took upon itself the financing of
the institutional studies that led to the decision taken by the Council of Ministers, in 2001, to
approve the privatization of SBEE. At the time of preparation, several donors indicated their
interest in financing the power sector expansion to meet economic demand in rural and peri-
urban areas in Benin, especially in the northern part of Benin.
29. The project was prepared over 24 months between FY03 and FY04. At that time, the
West African Gas Pipeline was expected to be operational in 2006, bringing online sufficient
additional thermal generation capacity to stabilize Benin’s power supply while lowering costs.
This in turn was expected to lead to an improvement in the utilities’ financial condition and
appeal to private sector investors at a time when private sector participation was a common
theme across the region. Many utilities in neighboring countries had been/were in the process of
being privatized with apparent gains in management efficiency.
30. Project design: The Project Development Objectives and activities responded to the
needs of the country and supported the Government’s strategy, outlined in its Letter of Sector
Policy of 2001-2002, to address existing sector issues. Additionally, the PAD delineated the
lessons learned that were reflected in the program design. The project included six components
supporting a variety of interventions, including investments, capacity-building, technical
assistance, and policy formulation to bring about sector reform. There was also a multiplicity of
actors involved, particularly on the government side. In hindsight, the project design was
complicated, which led to delays and complications during project implementation. Specifically,
9
the project attempted to tackle an ambitious agenda of complex issues without fully defining
them, while the outcome indicators remained mostly qualitative.
31. Assessment of risks: The overall risk rating of the project was moderate at the time of
appraisal. Of the risk factors assessed, the following risks materialized:
Government's commitment to implement the necessary measures could weaken: Although
the Government had issued the Letter of Sector Policy and established the legal and
regulatory framework necessary for private sector participation in the sector, it neglected
to take other steps necessary to carry out the privatization process, such as hiring a
transaction advisor and initiating the bidding process. There was a lack of private sector
interest in participating in distribution utilities. Further where privatization of distribution
utilities had been tried, for e.g. in Guinea, Togo, Senegal, and Mali, concessionaires were
not investing as promised and governments were reluctant to raise tariffs as required by
the concessionaires. These factors discouraged the GoB from actively pursuing the
privatization agenda further.
Inability to implement the project within budget and in accordance with schedule: This
risk was assessed low during the preparation of the project due to the fact that some of
the involved agencies had experience implementing similar projects either with IDA or
other donor-financed projects. The CEB’s implementation of the Nangbeto Hydroelectric
Project (Cr. 1507-BEN and Cr. 1508-TG) was rated highly satisfactory as the project was
commissioned below cost and on schedule. However, the hiring of consulting engineers
was still identified as a mitigation measure. The ESDP was implemented within the
budget (about 88.38% of the project proceeds was disbursed) but it was not completed in
accordance with schedule, despite a cumulative 4 year extension from the original closing
date. The inability to implement the project in accordance with the schedule was mainly
due to the design of the biomass component (component 6), where the length of time
needed to complete key activities was underestimated, for example the establishment of
the forestry agencies (AFIC and COFORMO) took more than four years.
Heavy reliance on electricity imports from neighboring countries: This risk was rated as
substantial at the time of the preparation of the Additional Financing and the preparation
of the projects for the development of the Adjarala Hydropower Plant as well as the
Regional Power Plant at Maria Gléta were identified as mitigation measures. Since 2012,
reliance on electricity imports from neighboring countries has significantly increased.
The ESDP has financed feasibility studies for both plants which, once operational, should
reduce Benin’s high dependency on imports.
Weak financial management capacity at SBEE: This risk was rated substantial at the time
of the preparation of the Additional Financing. The recruitment of a high level financial
expert to assist SBEE to improve its financial management was identified as a mitigation
measure. At the end of the project, the billing and accounting systems were not
integrated, the control environment was still weak, and timely recording of transactions
was lacking.
10
32. The PAD identifies the following “controversial aspects”, as distinct from “critical risks”
which for the purpose of this exercise, are analyzed as additional risk factors and which both
materialized: (i) unsuccessful participation of the private sector in SBEE, and (ii) problem of
availability of power import from neighboring countries. The participation of the private sector
in SBEE was not completed during the implementation of the project and the availability of
power for importation by CEB from neighboring countries was reduced, given the capacity
constraints faced by its suppliers. Both of these had implications on the economic return of the
project which has been revised downward. However, despite this the project remains profitable
from an economic point of view.
2.2 Implementation
33. Project implementation had a slow start. Due to the late fulfillment by the Government of
Benin of the effectiveness conditions, the project became effective approximately 10 months
after Board approval. While the large quantity of conditions (ten) was a factor, the delay was
primarily attributable to the ratification of the subsidiary agreement at the parliament level. After
effectiveness, disbursement was initially slow, reaching only 26% four years after Board
approval.
34. Project implementation encountered challenges at a number of levels due to factors that
were often outside of the project’s control and sometimes hard to predict. Unanticipated delays
in the construction of the West-Africa Gas Pipeline led to waning enthusiasm for distribution
utilities in the sub-region. At the time of project preparation, the WAGP was under construction,
the price of gas stood at US$10 cent per mmbtu, and most of the associated and non-associated
gas in Nigeria was being flared. The completion of the construction of the pipeline was
scheduled in 2006 with the expectation that Benin would close its power generation/demand gap
using gas-powered generation using gas from Nigeria. This low costs power generation capacity
would reduce costs and improve utility financial performance – making it more attractive for
private sector participation. The completion of the WAGP was delayed. In addition, the
incentives for Nigerian gas producers to export gas decreased as the demand for gas in Nigeria
increased. As a result, foundation volumes of gas have yet to become available. In 2012, the gas
pipeline was damaged in an attack in Cote d’Ivoire and gas supply was suspended for a year.
35. Shortcomings in the gas supply were not the only reason for generation costs staying high.
The volatility in the price of oil as well as the unreliability of power imports from neighboring
countries also pushed generation cost upwards. As a consequence, and despite some
improvements in SBEE’s technical performance, the utility’s financial performance did not
improve as hoped. While private sector interest in the distribution utility concession decreased
tariffs lagged cost increases and as the global financial crisis reduced foreign direct investment.
Most of the distribution concession contracts across the sub-region were also terminated at this
time because of an inability to attract private sector investment as governments refused to
increase tariffs to meet cost recovery. In Benin, the Government’s focus shifted to solving the
generation deficit in a worsening power crisis.
36. Implementation of the biomass component was slow to start, as the Ministry in charge of
forest management and many of the local authorities concerned were not involved in the project
preparation process which was led by MMEH. In addition, the legal and institutional frameworks
11
supporting the devolution of responsibility for various biomass activities and resource
management were too weak to enable coordination between MMEH and stakeholders concerned.
As a result, establishing the biomass and resource management agencies took more than four
years.
37. However, not all the delays are due to external factors that were not under the control of
the government of Benin. Frequent changes in public administration resulted in change of
interlocutors at the ministry levels. Limited quantity and quality of handovers between
administrations, along with lack of ownership of the project by new officials, slowed the
implementation of the project. The procedure for approval of counterpart funding was very
cumbersome and had to be repeated for each and every contract approved, leading to significant
delays in project implementation. After the restructuring of the project, this procedure was
addressed whereby SBEE and CEB provided funding instead of the government.
38. The processing of contracts with Government co-financing by the Ministry of Finance
was slow and the national integrated system for the management of public contracts was used
intermittently. This situation created important delays in terms of providing approval to
procurement documents including bidding documents, bid evaluation reports, and contracts.
39. The mid-term review of the project was conducted in October 2007 to assess the overall
status of project implementation. The review revealed that while the project development
objectives remained relevant and achievable, the overall implementation of the project -
particularly the biomass component - was significantly delayed. The level of disbursement at the
mid-term review was only about 15.3%. But there were reasons to expect that disbursement
would pick up, as about 60% of the financing was committed. The mid-term review
recommended actions to allow for the improvement of progress including (i) the acceleration of
the hiring of technical staff to work on the biomass component, (ii) the restructuring of the
project which included: extension of the closing date, reallocation of funding, revision of the
results framework and disbursement forecast.
40. In early 2008, it was decided that the APL structure as originally designed was no longer
applicable to the changed context. The project was the first phase of an eight year Adaptable
Program Loan (APL) divided in two phases; the second phase was to be triggered if the reforms
planned in the first phase, particularly measures to improve power sector performance, were
adequately implemented. However, in the context of serious power supply shortages in Benin
since early 2007, a focus on further network extensions without regard to the source of the
required power supply, as foreseen under APL-2, was not feasible. Secondly, analysis conducted
under APL-1 indicated that there was no private sector interest in SBEE, and therefore
privatization, which was considered an important sector reform, could not proceed.
41. In June 2008, an additional financing of USD 7 million equivalent was approved to scale-
up project activities. Activities were added under components two, three, four, and five, the
closing date was extended by 18 months, and the results framework was revised. The decision
was formalized not to pursue the second phase of the APL. The project development objectives
remained the same.
12
42. Despite the restructuring in 2008, delays continued. The project implementation was
steady though slow and two additional restructurings occurred in June 2010 and December 2011
to extend the closing date for an additional cumulative 30 months in order to complete critical
project activities.
2.3 Monitoring and Evaluation (M&E) Design, Implementation and Utilization
43. The original M&E framework was overly complex, reflecting the high number
components and actors involved in the project’s implementation. The resulting outcomes were
not well defined and the indicators were largely qualitative, making it hard to track and measure
results. In addition, some of the indicators were not matched by effective collection methods or
available baseline to monitor progress. At the time of approval of the Additional Financing, the
original outcome indicators in some of the project components were revised to better capture the
expected results. Target values and units of measurement were still not introduced in all cases.
Appropriate indicators to measure the impact of the project on economic growth in accelerating
the use of electricity were still absent.
44. The project used quarterly reports based on the results framework included in the PAD
and Financing Agreement to monitor progress. In addition, a comprehensive assessment of
project’s achievements was carried out at the mid-term review. The M&E specialist within the
Project Coordination Unit gathered data and calculated figures for indicators.
2.4 Safeguard and Fiduciary Compliance
Environmental and social safeguards
45. The safeguard category of the project was B (partial assessment). The project triggered
the Bank policy on environmental assessment (OP/BP4.01) and involuntary resettlement (OP/BP
4.12). No major environmental risks were identified during the preparation of the project. The
project included an Environmental and Social Component which financed activities aimed at
addressing all the environmental impacts that were identified in the Environmental Assessment
(EA). This component included financing for an environmental audit for the relocation of the
existing Gas Turbine in a substation at Cotonou to a new site where gas from the West Africa
Gas Pipeline would be delivered in Benin. However, the gas pipeline was ultimately not
relocated rendering the audit unnecessary.
46. An Environment and Social Management Framework (ESMF) and a Resettlement Policy
Framework (RPF) were prepared and disclosed on February 3, 2004 before project appraisal.
The preparation of the Additional Financing did not change the safeguard category of the project,
nor did it trigger additional safeguard policies. The ESMF and RPF were updated, reviewed and
approved by the Bank. Both updated ESMF and RPF were re-disclosed in-country and in the
Info Shop on May 20, 2008.
47. The project financed the compensation provided to persons affected by the
implementation of some of project’s components, particularly the building of access roads and
right-of-way for the North Togo – North Benin transmission lines. A comprehensive
13
Resettlement Action Plan (RAP) was developed and implemented, and the compensation issues
were successfully addressed.
Procurement and Financial Management
48. An assessment of the procurement capacity and systems of CEB and SBEE was
undertaken in accordance with IDA procedures during project preparation. Both CEB and SBEE
had already implemented IDA-funded projects in the past and had carried out procurement using
World Bank guidelines and procedures. The Ministry of Energy handled consultancy contracts
under the project and was responsible for all the procurement activities of the Biomass Energy
and Inter-fuel Substitution component (goods and services, civil works and equipment).The
Ministry of Energy had adequate number of qualified staff to handle its limited procurement
responsibility, which was further supported by a qualified consulting firm in major procurement
matters.
49. Procurement performance was rated Satisfactory or Moderately Satisfactory in ISRs
during project implementation. Thirty three contracts (works, goods, and consultancy services)
were procured using competitive bidding procedures during project implementation. Substantial
progress was made with respect to pre- and post-procurement procedures, record keeping, and
quality of bidding documentation and evaluation reports. All the activities of the project were
implemented following the Bank’s procurement guidelines for goods, works, and consultancy
services.
50. Financial Management (FM) performance was also rated Satisfactory or Moderately
Satisfactory in ISRs and the related FM risk was rated Moderate during the implementation of
the project. The client had adequate staffing throughout the implementation of the project. In
addition, proper bookkeeping and supporting documents for the justification of all
expenditures were maintained and most of the audits were submitted on time and reviewed.
The interim un-audited financial reports were submitted in a timely manner and the quality of
those reports improved over the years of implementation. FM requirements were met in
budget planning and expenditure tracking, accounting, reporting, auditing, and disbursement.
Moreover, recommendations of supervision missions and of audit reports were mostly taken into
account.
2.5 Post-completion Operation/Next Phase
51. Post-completion operation and maintenance of investments financed by this project,
including transmission and distribution lines and substations, are under the responsibility of the
two utilities – CEB and SBEE. While both these institutions have qualified staff to carry out the
maintenance and operation of newly installed infrastructures, securing adequate financial
resources remains an issue that requires attention. On the distribution side, SBEE has improved
its financial situation following the two tariff increases that were implemented between 2010 and
2011 which allowed the utility to secure budget in order to undertake the maintenance of
distribution lines and substations. However, SBEE could still do more to: (i) improve its
commercial performance, particularly improving billings and collection rates to reduce the non-
technical losses, and (ii) increase its collection rate. The financial viability of SBEE could be
14
maintained through the application of the tariff indexation mechanism. In addition, SBEE could
certain aspects of its operations to the private sector, including the billing and collection to
increase its performance. On the transmission side, and despite continuing poor performance,
CEB should be able to secure the budget necessary for the maintenance and operation of
transmission lines and substations.
52. To sustain the achieved outcomes under the biomass component of the project, the newly
established AFIC and COFORMO would need to be permanently functioning to supervise the
maintenance and operation of installations which were handed over to local communities and to
ensure the management of natural resources in the long run. Capacity strengthening activities for
COFORMO and AFIC was initially funded by the ESDP and thereafter by the ongoing IAME
project. The agencies are changing their status to permit them to function autonomously in the
future. In addition, to support the maintenance and operation of infrastructure related to the
production of honey, local communities have considered the allocation of part of their revenue.
53. Next phase/follow up operation: Initially, phase two (APL2) of the program (APL) was
supposed to be prepared in order to continue and sustain the results achieved in the phase one
(APL1). By 2008, it was clear that the triggers for the preparation of the phase two of the APL
were not going to be met because of change of sector context and environment, in particular the
lack of interest from the private sector to participate in the privatization of SBEE. In its stead, the
Government and the Bank agreed in 2008 to prepare a free standing follow-on investment
operation. The Increased Access to Modern Energy Project (P110075) was approved in 2009.
The IAME project provides supports to the two utilities CEB and SBEE and to the two
institutions AFIC and COFORMO.
3. Assessment of Outcomes
3.1 Relevance of Objectives, Design and Implementation
54. Overall, the project development objectives, design and implementation remain relevant
to the current sector priorities of the country and support high level priorities, including MDGs.
The development objectives of the project remain highly relevant, while specific aspects of the
design and implementation turned out to be no longer fully relevant.
55. The development objectives of the project, though broadly defined, are in line with the
current Country Partnership Strategy and remain highly relevant to the development priorities of
Benin. The 2011-2015 poverty reduction strategy is based on five strategic pillars which are: (i)
acceleration of growth; (ii) development of infrastructure; (iii) human capital building; (iv)
promotion of good governance; and (v) and balanced and sustainable regional development. The
Government of Benin recognizes infrastructure’s contribution to growth and the improvement of
living conditions by: linking economic agents to markets, reducing factor costs, improving the
competitiveness of the economy, and also offering essential services to the public which
determine the quality of life. The Government has identified energy as a priority area in the
infrastructure sector. Further, the achievements under this project contribute to the realization of
the objectives of the Benin Country Partnership Strategy (CPS) FY13-17 on the increased access
15
to and quality of electricity services under the pillar: “Increasing Sustainable Growth,
Competitiveness and Employment”.
56. The installation and commissioning of the transmission lines financed under the project
in the northern part of Benin has facilitated the electrification of more than one hundred and
twenty villages in rural areas. In this way, the project supported the Government’s effort toward
the achievement of MDGs on the reduction of child mortality and improvement of maternal
health, through the increased coverage of electricity to rural health facilities; and the
achievement of universal primary education through the provision of electricity to rural schools
which would enable evening classes to take place and improve the living conditions of teachers,
thus reducing turnover. Moreover, the use of grid electricity from interconnected transmission
lines to substitute for electricity produced by small- and medium-sized diesel power plants
helped to support environmental sustainability.
57. As it concerns the project’s design, the transmission and distribution system expansion
support component that financed the rehabilitation and expansion of electricity infrastructures
(generation, transmission, and distribution) is still highly relevant to the sector context in Benin.
It also remains relevant to include a power sector reform component given the financial
challenging situation of the utility as a result of a high investment gap, commensurately high
system losses, and chronic non-technical losses. At the outset, however, the project was very
focused on private sector participation. This approach – which was common at the time of
project appraisal - is no longer relevant in a changing sector landscape. Also, the project failed to
appropriately assess the risks of construction delays of the WAGP. While relevant to the
country’s priorities, the biomass also diluted the focus of the project and would have been better
suited in a multi-sectoral community development operation. The Monitoring and Evaluation of
the project design is not up to the current more stringent standards.
58. Bank assistance was responsive to the Government’s changing needs, particularly on the
need to develop additional generation capacity as the import of gas was not as reliable as
expected. The feasibility study of the Adjarala hydropower plant was included in the project’s
activities under the component “Engineering Studies” during the preparation of the additional
financing and the study were completed under the project. As a result, the Adjarala hydropower
generation is under preparation and is expected to be financed by the Bank and other donors. In
addition, the feasibility study for the development of the regional power plant Maria Gléta
(400MW gas power plant) was completed under the project. This study aimed at closing an
important gap in the understanding of power sector planning in Benin.
3.2 Achievement of Project Development Objectives
Rating: Moderately Unsatisfactory
59. The achievement of the PDOs is overall rated as Moderately Unsatisfactory given that
the not all PDO indicators were achieved, despite the fact that many of their targets were.
Persistent disconnect between PDOs and targets in the results framework has complicated the
ICR analysis. See Annex 2 for a description of outputs by project component.
16
60. The achievement of the first project development objective, namely to “accelerate, in a
commercially viable manner, the use of electricity for economic growth and social services and
thus improve the quality of life in un-served and underserved areas (peri-urban and rural)” is
rated as Moderately Unsatisfactory. Both of the targets set out in the results framework were
achieved, but the project was not able to sustainably achieve one of its initial indicators, namely
the reduction of power outages to an average of less than two outages per month and two hours
per outage. Nevertheless, the energy supplied in the North reached 89 GWh by the end of 2012
and has increased since project closing. The power supply is more stable and reliable. The
southern loop became fully operational, while the upgrade of distribution transformers in urban
and peri-urban areas in Cotonou and Porto Novo increased supply capacity across the
distribution system (50 MW additional transformer capacity added). The availability of
electricity supply in the northern part of Benin has significantly increased from 5-6h/24h to an
average of more than 18h/24h. The utility was consequently able to terminate costly power rental
agreements. Furthermore, the Transmission and Distribution System Expansion component was
highly successful and engineering studies were completed.
61. Increased electricity supply has augmented the energy consumption in target
communities and villages in the northern part of the country. This has contributed to the quality
of life in these peri-urban and rural areas. The substations of Djougou and Parakou installed
under the ESDP powered the electrification of twelve villages and ten communes in rural areas
that was completed in 2009 under other projects. Similarly, the electrification of an additional
one hundred and five villages under the Energy Facility of the European Union is ongoing and
will be completed in 2013 and these villages will also be supplied by the transmission lines built
under the ESDP. The completion of the distribution works in Cotonou and Porto Novo, including
the installation of substations and underground cables and lines, has also increased the capacity
of the networks and reduced the frequency of unplanned interruptions. Since both Cotonou and
Porto Novo are industrial and commercial zones, these improvements have led to enhanced
productivity of industrial and commercial customers.
62. The achievement of the second objective which is “to improve governance and ensure
the financial sustainability of the sector, through the involvement of the private sector in
partnership with the public sector” is considered as Moderately Unsatisfactory. The Electricity
Regulatory Authority was established and the recruitment of its staff is ongoing by the
Government. The functioning of the entity is an important step for strengthening the governance
of the sector and promoting public private partnership. Although the Government established the
legal and regulatory framework necessary for private sector participation in the sector, given the
lack of interest from private sector and the unsuccessful attempts at privatization of power
utilities of countries in the region including Guinea, Togo, Senegal, and Mali, the Government
did not actively pursue the privatization agenda further. Despite the fact that the introduction of
private sector participation in SBEE was not successful, the Government was able to implement
two tariff increases between 2010 and 2011 which has improved the financial situation of SBEE.
Prior to 2011, SBEE encountered financial losses but the utility has since turned a profit by
rehabilitating distribution infrastructure and implementing tariff adjustments to cover costs. The
current Government has again shown a willingness to pursue privatization of SBEE and has
recently sent terms of reference to the Bank on the establishment of a “Société de Patrimoine”
that would allow SBEE to have autonomous management and access to financial markets. The
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Government is also considering collaborating with the private sector on certain aspects of
SBEE’s operations including the billing and collection, and electrification of undeserved peri-
urban areas.
63. The achievement of the third PDO, to “reduce deforestation and increase access and
diversify choice to renewable and cleaner fuels to the household and SME sectors”, is rated
Moderately Satisfactory. The three indicators of this PDO were achieved or partially achieved
despite the slow start up of the implementation of the biomass component: the CNCD was
established, the AFIC was set in place and functioning, and forest management of 295,295 ha
was effectively devolved to rural communities. Nevertheless, some of the planned activities in
support of this PDO remain unfinished. The procurement of 4,800 gas stoves was begun under
the ESDP but not completed, while 30,000 cookstoves have been purchased but these have yet to
be distributed.
64. On the reduction of deforestation, the project started with the establishment of legal
framework and the setting in place of key institutions, the COFORMO and the AFIC, to ensure
the sustainable management of forest in the region of Moyen Ouémé. COFORMO developed an
action plan for 2008-2012 and approved it in 2009. The AFIC was established in 2010 and the
institution became well-functioning in August 2011. Under the project, the government approved
a development plan for the sustainable management and production of woodfuel on 295,295 ha
of forest which was devolved to communities.
65. The strategy for the promotion of gas and biofuel in Benin was adopted. In addition, the
recruitment of an NGO was completed in 2011 to undertake a social intermediation. The
establishment of legal framework related to the promotion of biofuel was prepared but was not
adopted during the implementation of the ESDP project.
66. The strategy for the promotion of gas and biofuel in Benin was adopted. In addition, the
recruitment of an NGO was completed in 2011 to undertake social intermediation. Moreover,
due to delays in finalizing the contract, the purchasing of gas stoves was launched but not
completed, while cookstoves were purchased but not distributed by project closing. The
establishment of legal framework related to the promotion of biofuel was prepared but was not
adopted during the implementation of the ESDP project.
67. Regarding rural community development support, the project supported 120 apiarists in
12 villages who have established 840 hives. Twelve facilities for the processing of honey were
constructed and twelve water drilling systems were constructed and commissioned in January
2011 in Dassa, Save, and Tchaourou districts.
68. The achievement of the project development objective of promoting regional cooperation
while protecting the environment in a sustainable manner is rated Moderately Satisfactory. The
project achieved most but not all of its targets in support of this PDO. The project clearly
promoted regional integration although this is an ongoing process. The completion of the North
Togo – North Benin transmission line has enhanced cooperation between Togo and Benin. This
interconnection has also facilitated power exchange with Ghana, as it connects further to the
BOAD financed transmission line from Nangbeto hydropower plant to northern Togo. Benin’s
18
power imports from Ghana have therefore increased and the interconnectivity will continue to
enhance regional power trade. The commissioning of the Togo-Benin transmission line has
enabled the Government to shut down all thermal plants that previously supplied the North of the
country, which has reduced generation costs and limited negative environmental impacts. The
ESDP also improved regional cooperation through the feasibility study for the Adjarala
hydropower site. This has enabled Togo and Benin to jointly prepare for the development of a
site that will facilitate renewable energy development and augment the constrained capacity of
electricity suppliers throughout the region. The unreliability of the gas and power imports are a
testimony that regional integration in the energy sector remains a challenge, despite the
important contributions of the project.
69. To ensure that the environmental impact of the planned development for the sector was
mitigated and adequate protections implemented going forward, the environmental was designed
to provide compensation to residents displaced to accommodate the right of way from the high
voltage transmission lines, as well as to carry out a number of environmental studies and audits.
While the component financed a resettlement action plan (RAP) and successfully compensated
the affected population, it has only disbursed approximately 25% at project close as
environmental audits for SBEE and the Sèmè Oil Field were not implemented. The
environmental assessment for the relocation of a 20MW gas turbine outside of Cotonou was also
not implemented as the gas turbine was no longer being relocated.
3.3 Efficiency
70. Efficiency is rated Substantial due to the efficiency gain of the transmission line North
Togo - North Benin as compared to the alternative of expensive isolated thermal power plants.
The cost of decentralized thermal power generation would have been increased because of
steadily climbing oil prices, particularly since mid-2009.
71. Beyond the savings made by avoiding the costs related to isolated thermal generation, the
project helped to improve SBEE’s efficiency at three levels: (i) the transmission lines financed
under the project resulted in the decreased thermal generation for Atacora and Borgou plants
from 65.1 GWh in 2008 to 6.6 GWh in 2012, resulting in an average savings of US$ 10 million
per year in diesel fuel and lubricating oil costs; (ii) the grid upgrades financed under the project
have allowed SBEE to save US$ 1 million per year in power rental costs; (iii) energy efficiency
improvement measures included the installation of capacitor banks in 14 buildings for power
factor improvement, and installation of energy efficient equipment in 80 buildings. However, the
impact of improvements resulting from the project’s activities was mitigated by factors outside
of the project’s control. Specifically, unforeseen delays in the completion of the WAPG led to a
continued reliance on thermal generation in the South, compounded by increasing oil prices
previously noted. Therefore, while the project successfully met many of its output targets and led
to efficiency gains on specific segments of the utility, it did not fully achieve the desired
outcome overall as SBEE’s overall financial condition has not improved to the extent initially
planned to enable privatization.
72. Economic analysis for the North Togo - North Benin Transmission Line (161kV). An
economic analysis was carried out comparing the economic benefits of the North Togo/North
19
Benin Transmission line, to the alternative solution based on isolated diesel power plants. The
economic return of the project is 19% while net present value dropped US$ 16 million. This is
considerably below the projected rate of economic return of 35% and the NPV of US$ 65 million
in the project appraisal document. This decrease in economic returns is explained in large part by
the halving of the actual energy supplied by the project to Benin’s northern region in comparison
with was projected at appraisal stage. Despite this lower demand, the project is still considered to
be beneficial from an economic standpoint. The details of the economic and financial analysis
can be found in Annex 3.
73. Financial analysis of CEB and SBEE. At appraisal, CEB had very little margin for
maneuvering in an environment of rising costs. Losses in 2001 were 11.1 billion FCFA. In April
2002, CEB was allowed to raise tariffs; as a result the situation improved. CEB’s financial
projections for the period 2004-2010 were based on decreasing power generation cost driven by
the supply of cheaper gas from Nigeria through a gas pipeline as of 2005 and the operation of
hydropower plant at Adjarala as of 2008. However, the construction of the Adjarala plant has
been delayed and is now expected to be commissioned by 2017/2018. Furthermore, the gas
supply from Nigeria only began in 2011 and is more expensive than expected (US$ 9/mmbtu).
The contractual gas volumes are not usually met and the supply has been erratic. In 2012, the gas
pipeline was damaged in a terrorist attach and services were suspended for a year. For all of
these reasons, the expected drop in generation cost did not materialize, at least not at the
magnitude projected. Hence, CEB remains in a difficult financial situation. While it had a
positive net result in 2009 and 2010 (US$ 4.4 million and US$ 3.8 million), the situation
deteriorated in 2011 (deficit of US$ 6.2 million) and CEB now forecasts a large deficit for 2012
(US$ 49 million) and 2013 (US$ 34 million).
74. On the other hand, SBEE’s financial situation has improved following the 10 FCFA/kWh
April 2010 tariff increase. SBEE losses have decreased relative to the period from 2007 to 2009.
After a 1.4 FCFA billion loss in 2010, SBEE has a profit of 2.6 FCFA billion for 2011 and
forecasts 3.3 FCFA billion for 2012. The average tariff is now slightly higher than the average
operating cost. The reduction in SBEE’s own expensive thermal generation also explains the
improving financial situation. In 2011, SBEE imported 99% of the energy supplied from CEB
against 91% in 2010. This higher demand is the result of new connections in previously isolated
areas and the end of contracts with Aggreko and MR International in August 2010.
75. Compliance of CEB and SBEE with financial covenants. Overall, CEB and SBEE
complied with the project’s financial covenants. CEB gradually reduced its accounts receivable
from electricity sales to an average amount equivalent to two months of electricity sale by
January 1, 2006. The Government also ensured that its arrears due to SBEE for electricity
consumption as well as all cross debts between SBEE, CEB and CAA as of December 31, 2003,
were fully settled by September 30, 2004 through cash payments or through offsetting the arrears
against SBEE’s and CEB’s indebtedness to CAA.
3.4 Justification of Overall Outcome Rating
Rating: Moderately Unsatisfactory
76. The overall outcome is rated Moderately Unsatisfactory for following reasons: (i) the
project development objective were relevant, though the design was not always so; (ii) the
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overall rating of the achievement of development objectives is moderately unsatisfactory; and
(iii) there were substantial efficiency gains derived from investments made under the project
components, but not to the extent expected during project preparation.
3.5 Overarching Themes, Other Outcomes and Impacts
(a) Poverty Impacts, Gender Aspects, and Social Development
77. In view of the relationship between electricity and economic development as recognized
in the PDO, the project contributed to poverty reduction through the increase in the supply of
electricity. In addition, increased availability of the supply and improved reliability of electricity,
positively influenced productivity and income generation. Moreover, the completion of the
transmission lines and substations has triggered the boom of rural electrification in the northern
part of the country. Thus, the improvement of distribution networks in Cotonou and Porto Novo
in terms of capacity and reliability would increase the productivity of industrial and commercial
customers in those areas. Moreover, the biomass component of the project supported income
generating activities including the production of honey which reduced deforestation and
alleviated poverty in rural communities. The project supported 120 apiarists in 12 villages who
have established 840 hives. Twelve facilities for the processing of honey were constructed in
Dassa, Save, and Tchaourou districts and twelve water drilling systems were constructed and
commissioned in January 2011 in the same areas.
78. The project also contributed to social development through the construction of five
substations and establishment of COFORMO, a collective decision-making platform. Increased
energy availability through the substations financed under ESDP enabled other projects to
finance grid extensions for the electrification of rural villages, including health facilities and
schools, thereby directly improving quality of life in those areas. The creation of COFORMO
enabled the promotion of collective decision-making at the community level for the management
of forest lands. This participatory approach fostered the empowerment and self-confidence of
beneficiary communities in managing their own development while providing them with an
opportunity to have their views heard at regional and national levels.
(b) Institutional Change/Strengthening
79. The project supported activities to strengthen the institutional capacity of various actors
involved in the sector, including the General Directorate of Energy within the Ministry; the
utilities, CEB and SBEE; and the Directorate of Forests and Natural Resources in the areas of
corporate planning, renewable energy, administration and regulation, environmental
management and control. The project also supported the establishment of: (i) the Electricity
Regulatory Authority, that is expected to contribute to the promotion of public private
partnership; (ii) the COFORMO and the AFIC, for decentralizing the sustainable management of
natural resources; (iii) the CNCD, for the promotion of gas and biofuel for increasing the access
to cleaner fuels for households and SME sectors; and (iv) an environmental unit within CEB.
80. In the biomass sub-sector, the SIEF and SIEP management tools were developed under
the project to help municipalities and community associations improve the management of
21
natural resources particularly to monitor the implementation of the management plan related to
the 300,000 hectares under sustainable woodfuel management in order to reduce deforestation.
81. The task of implementing the project itself enhanced the project management and
fiduciary as well as safeguards operational capacity of the institutions involved. This will likely
positively impact the preparation and implementation of future projects. Lastly, public
institutions were among the beneficiaries of energy efficiency training programs, and awareness
campaigns that are expected to yield long-term behavioral change toward the rational use of
energy.
(c) Other Unintended Outcomes and Impacts (positive or negative)
82. Not applicable
3.6 Summary of Findings of Beneficiary Survey and/or Stakeholder Workshops
83. Not applicable
4. Assessment of Risk to Development Outcome
Rating: Moderate
84. In light of the identified risks and available mitigation measures, the sustainability of the
ESDP’s development outcomes depends primarily on three factors: (i) inability to maintain the
electricity infrastructures properly due to insufficient budget resulting from a poor financial
situation and/or lack of ownership; (ii) inability to sustain the functioning of the newly created
institutions including the CNCD, COFORMO, and AFIC; and (iii) reduction of imported
generation. The risk to the development outcome is rated Moderate. Adequate measures to
mitigate the identified risks have been put in place, as explained below. However uncertainty
remains as to whether SBEE and CEB will be able to continuously maintain the transmission
lines and substations, the COFORMO and AFIC would be functioning autonomously, and the
generation from suppliers would not be decreased significantly, in the near future.
85. On distribution, SBEE has improved its financial situation following the two tariff
increases that were implemented between 2010 and 2011 which would allow the utility to secure
budget to undertake the maintenance of distribution lines and substations. However, SBEE
would need to: (i) improve its commercial performance particularly the billing system to reduce
the non-technical losses, and (ii) implement measures to increase the collection rate. On the other
hand, the utility CEB has shown during past years its ability to operate and maintain transmission
lines and substations. Despite its projected growing deficit, CEB should be able to allocate
budget for the maintenance and operation of transmission lines and substations in the future.
86. The project did not address the risks to imported generation. Given the country’s reliance
on importing increasingly expensive oil for domestic generation, any reduction in power imports
would likely have significant negative impacts the financial performances of both CEB and
SBEE. To mitigate this risk, CEB and SBEE are actively seeking foreign sources from which to
22
import electricity, though they remain highly dependent on Ghana. Both CEB and VRA, the
Ghanaian utility, are exposed to erratic and unreliable gas supplies that are subject to frequent
disruption or even temporary shut-downs due to pipeline ruptures in Benin and Togo, or
sabotage in neighboring Nigeria. Though the pipeline’s daily capacity now stands at 470mmbtu,
foundation volumes under the contract are a mere 133mmbtu (of which Benin’s share is only
5mmbtu) and only 70% of foundation volumes are being supplied. Although Benin is in
negotiations with Nigeria to increase gas and energy imports, the country faces a worsening
power crisis and is developing more expensive liquid fuel generation solutions to close the
generation gap.
5. Assessment of Bank and Borrower Performance
5.1 Bank Performance
(a) Bank Performance in Ensuring Quality at Entry
Rating: Moderately Unsatisfactory
87. The performance of the Bank during the identification, preparation, and appraisal of the
project is rated Moderately Unsatisfactory. The Bank facilitated a participatory process in the
sector, bringing knowledge and tools that could be adapted to the Benin context. This included
leveraging Bank safeguards policies in the dialogue to improve resettlement processes. In
addition, the project was consistent with the development priorities of the country and was
designed based on the lessons learned from other projects in Sub Saharan Africa. Moreover, the
project design was informed by previous projects such as the Nangbeto Hydroelectric Project
and the Power Rehabilitation and Extension Project. Regular stakeholder consultations ensured
that there were agreements on project design, scope, and activities.
88. However, outcomes show that there were also significant shortcomings in the scope and
design of the project. The project was overly ambitious on institutional development, and
specifically private sector participation. The formulation of the PDO was overly broad and
included higher level objectives that could not easily be attributed to project outputs, making
assessment of the project’s impact difficult. In addition, the design of the M&E framework
suffered a number of deficiencies. Indicators, target values and units of measurements could
have been better defined.
89. In hindsight, risks were not properly identified. The project design did not sufficiently
recognize the dependency of its success on other segments in the energy value chain, such as
delays to the WAPG on generation costs. This undermined the PSP strategy.
90. The design of the biomass energy and inter-fuel substitution component and institutional
strengthening and capacity building component also underestimated the time required to build
institutions. The ministry in charge of forest management was insufficiently consulted during
project preparation. This led to substantial delays in implementation and only partial
achievement of those objectives.
23
(b) Quality of Supervision
Rating: Moderately Satisfactory
91. The Bank performance during supervision is rated Moderately Satisfactory. After initial
delays on project effectiveness and implementation, the Bank stepped up supervision which
helped to speed implementation and the achievement of project outcomes. The move to a task
team leader based in Cotonou further increased the implementation support and reactiveness of
the Bank, including additional technical missions on an ad-hoc basis. Fiduciary and safeguards
supervision missions were conducted to regularly review compliance and ensured that
recommended actions were properly implemented. Field-based fiduciary and safeguards
specialists also proactively contributed to mitigating risks, as reflected by the project’s good
performance in financial management and administering the resettlement compensation
mechanism. During the initial years of project implementation, the Bank team did not include a
specialist to support the implementation of the biomass component which led to delays in
responses to client requests and contributed to slow implementation progress.
92. Throughout the project, the Bank team remained flexible. As the operating environment
evolved, the team collaborated closely with the Government and Project Coordination Unit to
revise work plans, add or drop activities in line with emerging needs and priorities, and focus on
problematic segments such as the protracted delays in the implementation of Component 6,
where additional resources eventually led to an acceleration in implementation of key activities
and the achievement of most targets. This flexibility was also reflected in the design of the
Additional Financing, including added activities supporting the preparation of the Adjarala
hydropower site in response to power crisis, and two other extensions to the project.
93. While the M&E framework was modified during the restructuring/additional financing of
June 2008, the changes made were not sufficient to properly monitor the progress towards
achievement of the PDOs.
(c) Justification of Rating for Overall Bank Performance
Rating: Moderately Satisfactory
94. The overall Bank performance is rated as Moderately Satisfactory. The Bank team
worked closely and continuously with the client throughout preparation and implementation,
ensuring that the project responded to changing client needs. Three task team leaders led the
project from identification to evaluation. Confronted with unexpected delays in the WAPG and
lack of interest in SBEE from the private sector, the Bank worked with the Government to adjust
the focus of the project mid-implementation from one that aimed at utility privatization to one
that aimed at closing a growing power generation gap. This was accommodated under the same
broad PDO.As the WAGP’s gas supply did not become as dependable as foreseen, integration of
other activities (such as the Adjarala preparatory studies) has helped to speed the Government’s
progress in developing alternative generation options to sustainable address the power crisis.
24
5.2 Borrower Performance
(a) Government Performance
Rating: Moderately Satisfactory
95. The government performance is assessed based on the performance of central
government including: the Ministry of Energy and Petroleum; the Ministry responsible for
Forestry and of Environment, and the Ministry of Finance as borrower on behalf of the
Government of Benin. The Government effectively coordinated with stakeholders involved in
the sector on the design and implementation of the project. Additionally, the Government of
Benin displayed strong committed to the development objectives of the project including the
introduction of private sector participation in SBEE before and during the project preparation.
However, project effectiveness was delayed because of the GoB’s slowness in fulfilling
effectiveness conditions, for example ratification of the subsidiary agreement by the Parliament
took 10 months. The government procedures for approving counterpart funding were
cumbersome, causing delays during the implementation of the project. However, this challenge
was handled adequately after the restructuring of the project, in which SBEE and CEB were able
to provide funding in lieu of the Government. Government approval of documents faced delays.
Although the Government took the necessary steps to implement the legal and regulatory
framework for private sector participation in the sector to improve governance and the financial
viability of the sector, ultimately it did not actively pursue the privatization agenda due to lack of
interest and the difficulties experienced by neighboring countries attempting to make the same
reform.
(b) Implementing Agency or Agencies Performance
Rating: Moderately Satisfactory
96. The implementing agencies which were involved in the implementation of the project
included the Project Coordination Unit within the General Directorate of Energy; the distribution
utility, SBEE and the generation and transmission company, CEB. The overall performance of
the coordinating and implementing agencies is rated Moderately Satisfactory. Despite problems
encountered at the beginning of the project and challenges faced during implementation such as
the lack of flow of information between the Project Coordination Unit and other key players of
the ESDP which caused delays, the implementation of the project was successfully managed
throughout the lifetime of the project. In addition, the project was fully compliant with fiduciary
and safeguards policies throughout implementation. Progress reports, audits, and financial
reports were submitted to the Bank in a timely manner.
(c) Justification of Rating for Overall Borrower Performance
Rating: Moderately Satisfactory
97. In light of the performance of the Government and of implementing agencies, the overall
performance of the Borrower is rated as Moderately Satisfactory. After a slow start, the pace of
25
implementation improved as the Government and the implementation agencies found solutions
to identified bottlenecks. The Borrower also showed flexibility in reacting to changing
circumstances.
6. Lessons Learned
98. Despite many competing needs in the energy sector, projects should remain selective in
their objectives and simple in their design. The combination of power sector reforms,
transmission/distribution investments, and biomass energy activities reflected an overly
ambitious and diffuse approach that could have benefited from further reflection on sector
priorities and risks. This led to implementation delays and to divided attentions both in the
Implementation Agencies and the Bank. Especially the relatively small biomass component
resulted in high transaction costs.
99. Expectations for Private Sector Participation need to be realistic and necessary pre-
conditions should be clearly identified and achievable. Private participation in SBEE was
unsuccessful due to the fact that there was no interest from private sector to undertake the
management of the utility SBEE mainly due to the following reasons: poor technical and
financial performances of the utility; insufficient customer base; and inadequate legal
framework. Similar gaps between expected and realized PSP emerged across the region during
the 1990s and early 2000s as multilaterals and Governments overestimated sector readiness
levels and private sector risk appetites. Privatization could eventually be successful though the
following conditions would need to be satisfied: improved legal framework, particularly as it
concerns concessionary terms; full-fledged and effective regulatory entity in place; suitable size
and financial and technical condition of the utility to attract target investors; sound investment
plan in place for the rehabilitation and/or expansion of networks and for the development of
medium/long term energy infrastructures; adequate tariffs to enable cost recovery; and a
transparent bidding process. It is important to note that the privatization of a state owned
electricity utility, such as SBEE, should therefore be based on its specific condition rather than
on a structural liberalization or privatization program.
100. Project objectives and targets should account for endogenous and exogenous risks
potentially impacting outcomes and recognize inherent interdependency in the value chain. The
project achieved many of its targets, including the completion of the North Togo – North Benin
transmission line and stabilization of the southern distribution loop. Nevertheless, delays in the
completion of the WAGP and pervasive supply constraints from neighboring countries (Ghana,
and Nigeria) impacted the volumes of power being transmitted through these connections. The
project could – and future project should – sufficiently take into account the interdependency
inherent in the value chain to assess risks to project outcomes that may not be under the control
of the project. Where necessary, the project could then put in place a contingency plan to respond
to exogenous shocks in a timely and adequate manner.
101. Institutional development is a transaction-intensive and time-consuming process and
such activities should be advanced as much as possible during project preparation while being
given sufficient priority in project design and implementation. During the implementation of the
ESDP project, it was acknowledged that the setting in place of the AFIC and the COFORMO
26
took more time than anticipated and significantly delayed the implementation of the biomass
component. The project could not have achieved these targets within the initial timeframe
envisaged. In addition, the establishment of the Electricity Regulatory Agency under the reform
component of the project was completed within the project timeframe but the agency was not
effective at project closing due to the fact that key staff remains yet to be appointed. The lengthy
process to complete the appointment of key members of the Project Coordination Unit also
underscores the challenges in setting up national institutions.
7. Comments on Issues Raised by Borrower/Implementing Agencies/Partners
(a) Borrower/implementing agencies
102. The Bank received the Borrower’s Final Draft Completion Report (in French). The
Borrower undertook an evaluation of: the project design and its relevance, the outputs of the
project per component, and the Bank’s and the Borrower’s performance. In addition, the
Borrower highlighted measures for the sustainability of the achieved outcomes and lessons
learned relative to the biomass component. The report did not provide ratings. See Annex 7 for
the summary of the report.
103. Consultations with stakeholders were conducted during the ICR preparation mission, and
the Implementing Agencies noted that the Bank was slow in providing No Objections to
procurement documents during the first years of implementation. However, they confirmed that
delays were reduced since the appointment of a field-based Task Team Leader.
(b) Co-financiers
There were no issues raised by Co-financiers.
(c) Other partners and stakeholders
Not applicable
27
Annex 1. Project Costs and Financing
(a) Project Cost by Component (in US$ Million equivalent)
Components Appraisal Estimate
(US$ millions)
Actual/Latest
Estimate
(US$ millions)
Percentage of
Appraisal
Power sector reform 5.00 5.50 110.00%
Studies 2.60 1.44 55.38%
Investment 66.40 66.70 100.45%
Environmental and social 3.20 0.08 2.50%
Institutional strengthening and
capacity building 5.64 5.66
100.35%
Biomass energy and inter-fuel
substitution 5.75 5.41
94.09%
Total Baseline Cost 88.59 84.79 95.71%
Physical Contingencies 3.55
Price Contingencies 3.56
Total Project Costs 95.70
Total Financing Required 95.70
(b) Financing
Source of Funds Type of
Co-financing
Appraisal
Estimate
(US$ millions)
Actual/Latest
Estimate
(US$ millions)
Percentage of
Appraisal
Borrowing Agency 0.50
Borrower 1.80
International Development
Association (IDA) – Original
credit
45.00 42.6
94.67%
International Development
Association (IDA) – Additional
Financing
7.00 3.22
46.00%
Nordic Development Fund (NDF) 12.00 18.79 156.58%
Société de Gestion Intermédiaire 28.00
Sub-borrower(s) 0.40
West African Development Bank 8.00 8.44 105.50%
28
Annex 2. Outputs by Component
Component 1: Power Sector Reform
Sub-component Outputs
Private sector participation in SBEE Private participation in SBEE was not achieved
due to the fact that no private sector was
interested in the management of SBEE. The
feasibility study for the establishment of a
“Société de Patrimoine” is ongoing.
Regulatory capacity set up and training The Regulatory Agency was set up. Training was
not completed within the project timeframe due to
delays in hiring of key staff, which resulted from
an unsuccessful hiring process through a
recruitment firm.
Media communications and PR activities This activity was completed.
Component 2: Engineering Studies
Sub-component Outputs
Strategy for off-grid electrification This study was not completed under the ESDP
project but was completed by the GoB outside the
project.
Feasibility study for Onigbolo-Parakou
transmission line
This study was completed. It was included in the
feasibility study for the construction of the 161kV
Onigbolo-Parakou and Sakété-Porto Novo
transmission line.
Load management & energy efficiency in
administrative buildings
This study was completed. Energy efficiency
improvement measures for administrative
buildings successfully enabled the sensitization of
consumers on the efficient use of energy,
upgrading of the RESUCIEL software for the
monitoring of energy consumption, installation of
capacitor banks in 14 buildings for power factor
improvement, and enhancement of the wirings
and installation of equipment for the efficient use
of energy in 80 buildings.
Studies for distribution expansion,
reinforcement and rehabilitation
This study was started under the ESDP and was
completed after project closing in March 2013.
EA, engineering & preparation of bidding
documents for Sakété - Porto Novo
transmission line
Two studies were completed. The first study was
the feasibility and preparation of bidding
document for the construction of the 161kV
Onigbolo-Parakou and Sakété-Porto Novo
transmission line. The second study concerned
the environmental assessment related to the
construction of the 161kV Onigbolo-Parakou and
29
Sakété-Porto Novo transmission line.
Update the CEB tariff study The update was completed.
Preparation of standard bidding document
for IPPs
This study was started under the ESDP but was
not completed.
Additional Financing Outputs
Economic analysis of the Adjarala hydro
generation project
This study was completed in October 2012.
Panel of experts in the context of
preparation of the Adjarala hydro
generation project
The setting in place of the panel of experts
commenced but was not completed under the
ESDP project.
Hiring of an Engineering Consultant for the
preparation of the Adjarala hydro
generation project
Terms of Reference were elaborated under the
ESDP project. This activity is now financed by
CEB.
Component 3: Transmission and Distribution System Expansion
Sub-component Outputs
North Togo-North Benin Transmission
Line:
Lot 1b Substation in Djougou-Parakou
(Benin);
Lot 3 161 kV line from the Togo-Benin
border to Djougou Parakou;
Lot 4 63 kV lines to Natitingou and
Bembèrèkè.
The three activities were completed as follows:
The two transmission substations at Parakou and
at Djougou were constructed and commissioned
in April 2011. 163km of 161kV lines between
Natitingou and Djougou and 106km of 161kV
lines between Bembèrèkè and Parakou were
constructed and commissioned.
Energy Efficiency in administrative
buildings
This sub-component was fully implemented. The
following activities were completed: sensitization
of consumers on the efficient use of energy in
administrative buildings; upgrading of the
RESUCIEL software for the monitoring of
energy consumption in administrative buildings;
installation of capacitor banks in 14
administrative buildings to improve the power
factor; enhancement of the wirings and
installation of equipment for the efficient use of
energy in 80 administrative buildings; purchase
of materials and equipment for the undertaking of
energy audit.
Urgent distribution work This sub-component was completed. The 5MVA
distribution substation at Sèmè and the extension
of the Akpakpa, Gbégamey, and Ouando existing
substations were completed in December 2011. In
addition, the installation of 15kV underground
cables and the construction of distribution
stations were commissioned in October 2010.
30
Additional Financing Outputs
SBEE Rehabilitation of switchgear and
protection equipment at the substation of
Akpakpa power plant
This activity was completed in September 2012.
SBEE Construction of a distribution line in
Cotonou
The installations of distribution cables and of a
distribution station in Cotonou were completed in
September 2012.
CEB Installation of protection equipment at
substations to allow for operation of the
southern transmission ring in Benin
Bidding documents were prepared but the
installation of protection equipment at CEB
substations was not completed under the project.
CEB Provision of cable potheads to link up
the Djougou and Parakou substations with
the Medium Voltage (MV) lines and
related communication equipment
This activity was completed.
Extension of the supervision contracts to
accommodate additional tasks above
The implementation of this activity progressed
but was not completed under the ESDP project.
Component 4: Environmental and Social Component
Sub-component Outputs
Environmental Assessment for relocation
of Gas turbine of 20MW to a site outside of
Cotonou.
This activity was dropped because the GoB
decided to not relocate the Gas turbine.
Compensation scheme for the HV lines
The compensation scheme was established. The
environmental management plan and the
resettlement of populations were fully
implemented.
Environmental audit for SBEE The audit was not completed.
Environmental study of the Adjarala hydro
generation project
The study was not completed. The procurement
process started under the ESDP project.
Additional Financing Outputs
Environment Audit of Sèmè Oil Field
The audit was not completed.
Component 5: Institutional Strengthening and Capacity Building
Sub-component Outputs
Capacity building at the Ministry, and DGE
This sub-component was completed. The
institutional diagnostic of the Ministry of Energy,
the training of its key staff and of staff from the
Project Coordination Unit were undertaken.
Capacity building at CEB
The implementation of this activity was done.
Training of CEB staff on planning, financial
management, and environment was conducted.
31
Vehicles and office equipment
The purchase of vehicles and office equipment
was completed.
Measuring equipment at CEB substations Measuring equipment including energy meters
were installed at CEB substations.
CEB human resource management audit The audit was not completed.
SBEE human resource management audit The audit progressed under the ESDP project.
Additional Financing Outputs
Technical Assistance on Financial
Management for SBEE
Technical assistance was started under the project
but not completed.
Training for SBEE A hundred staff from SBEE received training.
Component 6: Biomass Energy and Inter-fuel Substitution (US$6.20 million, IDA:
US$5.70million)
Sub-component Outputs
Establishment of the National Household
Energy Commission (CNCD);
Establishment of the Permanent Sectorial
Information and Monitoring System
(SIEP); Establishment of the Ecological
and Forestry Information System (SIEF);
Rural Community Capacity Development
in Moyen Ouèmè region; and Capacity
building at General Directorate of Forest
and Natural Resources
The achieved outputs of this sub-component are
as follows: The National Household energy
Commission (CNCD) was established and is
functioning; the Ecological and Forestry
Information System (SIEF) was set up and is
functioning; the CoForMo(Communauté
Forestière du Moyen Ouèmè) and the AFIC
(Agence Forestiere Inter-Communale) were
established and are functioning. Capacity
building for the General Directorate of Forests
and Natural Resources commenced under the
ESDP project and was partially completed.
Support to Community-based forest
management and strengthening of Forestry
Service
A forest management covering 295,295 ha was
developed under the project. The procurement
process of a technical assistance for the
promotion of improved carbonization systems to
maximize wood to charcoal conversion efficiency
has started under the project but was not
completed. The transfer of unclassified forests
management to local government in the Moyen
Ouémé is effective and 295,295 ha of forests are
under community based sustainable management;
The production of sustainable woodfuel has not
yet started.
Biomass Energy Efficiency and Inter-fuel
substitution
The procurement process for the purchase of
4,800 gas stoves was launched but not completed.
The purchase of 30,000 improved cook stoves
was completed under the project. In addition, the
study for the promotion of the use of biofuel was
completed.
32
The promotion of private sector based LPG and
kerosene inter-fuel substitution programs, and
identification and evaluation of the potential to
produce and market other renewable biomass
fuels started under the project but was not
completed.
Rural community development support
The project promoted 120 apiarists in 12 villages
who have established 840 hives. 12 facilities for
the processing of honey were constructed in
Dassa, Save, and Tchaourou districts. In addition,
12 water drilling systems were constructed and
commissioned in January 2011in the same areas.
33
Annex 3. Economic and Financial Analysis
Economic Analysis
1. During appraisal, the task team carried out an economic assessment of the
interconnection North Togo / North Benin by means of a comparative analysis in which the
transmission line solution is measured against an alternative solution based on isolated diesel
power plants. The net economic benefits thus expressed the benefits gained of choosing the
interconnection over the alternative. Economic rate of return was then estimated at 35% while
net present value reached US$ 65 million.
2. The updated assessment of this ICR replicates the same methodology while using actual
values instead of expected values for the period 2004-2012. The main data modified are: supply
in Northern Benin1; breakdown of capital expenditure for the transmission line over the period
2005-2011; bulk energy charge; diesel charge and exchange rate.
Original PAD Updated
Bulk Energy Charge 37.5 FCFA /kWh 50 FCFA /kWh
Diesel Charge 13 US cents /kWh 20 US cents /kWh
Cost of power failure 1US$/kWh 1 US$ /kWh
Exchange rate 550 FCFA/US$ 493 FCFA/US$
Discount Rate 10% 10%
Supply shortage % under
Interconnection Scenario
1.5% 1.5%
Supply shortage % under
Isolated Plants Scenario
4.5% 4.5%
3. Investments for isolated diesel plants in the Isolated Plants Scenario were cut by half.
The underlying rationale to this assumption is that actual energy supplied to CEB northern region
is almost half what was projected at appraisal stage; hence the need for investments in isolated
diesel plants would have been also cut in half (while transmission investment is unchanged).
This has significant implications on the economic return of the project which was revised
downwards from 35% down to 19%. Net Present Value dropped from US$ 65 million down to
US$ 16 million. However, the project remains profitable from an economic point of view despite
serving a lower demand.
4. Economic cost of supply in interconnection scenario is 24 US$ cents per kWh versus 28
US$ cents per kWh in isolated plants scenario. Again, had the demand been higher, the spread
between the two costs would have been larger than 4 US$ cents per kWh
1 Demand is expected to grow at 8% per annum as of 2013.
34
Energy Supply to the northEnergy Demand - GWh NPV 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020
CEB Northern Region 384.8 0.0 0.0 0.0 20.7 44.2 52.1 53.2 60.0 63.0 68.0 73.4 79.3 85.7 92.5 99.9 107.9 116.5
Supply Shortage - GWh
interconnection 5.8 0.0 0.0 0.0 0.3 0.7 0.8 0.8 0.9 0.9 1.0 1.1 1.2 1.3 1.4 1.5 1.6 1.7
isolated power stations 17.3 0.0 0.0 0.0 0.9 2.0 2.3 2.4 2.7 2.8 3.1 3.3 3.6 3.9 4.2 4.5 4.9 5.2
interconnection linecosts in MUSD NPV 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020
total investment transmission lines $45.47 0 7.9 14.4 18.6 20.3 1.5 1.1 3 0 0 0 0 0 0 0 0 0
total energy charge from the grid $35.48 0.0 0.0 0.0 2.1 4.5 5.3 5.4 6.1 6.4 6.9 7.4 8.0 8.7 9.4 10.1 10.9 11.8
total O&M $7.06 0.0 0.0 0.0 0.2 0.6 1.0 1.5 1.6 1.7 1.7 1.7 1.7 1.7 1.7 1.7 1.7 1.7
economic cost of energy supplied 23 US cents per kWh
Economic costs of TL power failure $5.25 0.0 0.0 0.0 0.3 0.7 0.8 0.8 0.9 0.9 1.0 1.1 1.2 1.3 1.4 1.5 1.6 1.7
economic cost of energy supplied inc. shortage 24 US cents per kWh
isolated power stations in northern towns2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020
total investment power plants $23.86 0 0.5 20 2.5 0 3.5 0 0 3 0 2.5 0 3.5 0 1 2.5 4
total O&M $69.96 0.0 0.0 0.0 4.1 8.8 10.4 10.6 12.0 12.6 13.6 14.7 15.9 17.1 18.5 20.0 21.6 23.3
economic cost of energy supplied 24 US cents per kWh
Economic costs of TL power failure $15.74 0.0 0.0 0.0 0.9 2.0 2.3 2.4 2.7 2.8 3.1 3.3 3.6 3.9 4.2 4.5 4.9 5.2
economic cost of energy supplied inc. shortage 28 US cents per kWh
Cost Difference excl. shortage $5.82 $0.00 ($7.40) $5.60 ($14.26) ($16.50) $6.11 $2.62 $1.35 $7.54 $5.03 $8.07 $6.15 $10.27 $7.45 $9.18 $11.47 $13.82
ERR excl. cost of shortage 14%
Cost Difference incl. shortage $16.31 $0.00 ($7.40) $5.60 ($13.64) ($15.18) $7.67 $4.21 $3.15 $9.43 $7.07 $10.27 $8.53 $12.84 $10.23 $12.18 $14.70 $17.31
ERR including incl. cost of shortage 19%
35
Financial Situation of CEB
5. The appraisal team had found that CEB had very little margin for maneuvering in an
environment of rising costs and continuous deterioration of CEB’s financial position. Losses in
2011 had reached 11.1 billion FCFA. In April 2002, CEB was allowed to raise tariffs and this
improved the situation. As a result, the rate of return on average net fixed assets increased from a
negative 11% in 2001 up to a positive 9% in 2002.
6. CEB’s financial projections by the team for the period 2004-2010 were based on the drop
in power generation cost driven by the supply of cheaper gas from Nigeria through a gas pipeline
as of 2005 and the operation of hydropower plant at Adjarala as of 2008. Nevertheless, Adjarala
plant has been delayed and now expected to be commissioned by 2017/2018. Furthermore, the
gas supply from Nigeria began in 2011 and is more expensive than expected. (9 US$ /mmbtu).
The contractual gas volumes are not usually met and the supply has been erratic (one year
suspension from 2012 to 2013). For all of these reasons, the expected drop in generation cost did
not materialize; at least not at the magnitude projected.
7. However, CEB was still able to navigate through this environment posting positive results
up until 2010 (except for 2005 where net income was -2.2 billion FCFA). Tariff has gradually
increased during this period from 50 FCFA /kWh in 2004 up to 56 FCFA in 2010.
8. CEB is today in a difficult financial situation. While it had a positive net result in 2009
and 2010 (respectively 4.4 and 3.8 US$ million), the situation deteriorated in 2011 (deficit of 6.2
US$ million) and CEB now forecasts a large deficit for 2012 (49 US$ million) and 2013 (34
US$ million).
9. The reason for this degradation is that CEB’s average cost is increasing while the average
tariff is stable (see graph below). The main reason for this evolution is the lack of gas supply
from the WAPCo pipeline since a loss of pressure incident in August and temporary shutdown.
As a consequence CEB has to buy expensive HFO based power from Contour Global, an IPP
which was originally developed to run on natural gas. Demand growth also has an impact albeit
smaller in the short term. As demand grows, CEB has to increasingly resort to energies with high
marginal cost.
36
Figure 1: CEB’s Average Tariff, Average Cost (FCFA), and Net Result (FCFA billion)
Source: CEB financial statements and forecasts
10. While the key problem lies with the increase in average cost of generation, the efficiency
of the CEB and its 488 staff should be increased, CEB’s productivity increased in 2012 (from 3.8
to 4.4 GWh sold/staff) but it is way below other similar companies such as Ghana’s GRIDCo
(14.0 GWh sold/staff) and French’s RTE (59.9 GWh sold/staff).
11. As a result of the financial difficulties, CEB and the governments of Togo and Benin
agreed on an increase from the current CEB tariff from 56 FCFA/kWh to 58 FCFA/kWh (less
than what CEB asked for). CEB also asked for an annual automatic adjustment (upwards or
downwards) instead of the 5 year average cost methodology that cannot take into account
unexpected changes (the governments have not agreed on this yet).
1.5 3.0 2.2 1.9
(3.1)
(24.6)(17.0)
51 51 58 56 54
54 56
40 41
51 50 52
63 67
(40.0)
(20.0)
-
20.0
40.0
60.0
80.0
2007 2008 2009 2010 2011 2012 2013
FCFA
/kW
h f
or
aver
age
cost
/rev
enu
esFC
FA b
illio
n f
or
net
res
ult
an
d s
ub
sid
ies
Net result
Average tariff
Average operating cost
37
Annex 4. Bank Lending and Implementation Support/Supervision Processes
(a) Task Team members
Names Title Unit Responsibility/
Specialty
Lending
Supervision/ICR
Sylvain Adokpo Migan Sr Water & Sanitation Spec. TWIAF
Hugues Agossou Sr Auditor IADVP
Itchi Gnon Ayindo Senior Procurement Specialist AFTPW
Mohamed Arbi Ben-Achour Consultant AFTN2
Manuel Berlengiero Energy Specialist AFTG2
Jean-Charles De Daruvar Senior Counsel LEGAM
Rahmoune Essalhi Procurement Assistant AFTG1
Stephan Claude Frederic
Garnier Sector Leader AFTSN
Franklin Koffi S.W. Gbedey Energy Specialist AFTG2
Daria Goldstein Senior Counsel LEGLE
Thanh Lu Ha Senior Program Assistant AFTG2
Alain Hinkati Sr Financial Management Specia AFTMW
Helena Mamle Kofi Consultant AFTG1
Astrid Manroth Senior Energy Specialist ECSEG
Said R. Mikhail Consultant AFTG1
Fanny Kathinka Missfeldt-
Ringius Senior Energy Economist MNSSD
Pepita Hortense C. Olympio Program Assistant AFMBJ
F. Alain Onibon Agric. Economist AFTA1
Alain Ouedraogo Energy Specialist SEGES
Robert A. Robelus Consultant AFTN2
Cheikh A. T. Sagna Senior Social Development Spec AFTCS
Awa Seck Senior Economist AFTG2
Abdoul-Wahab Seyni Senior Social Development Spec AFTCS
Katherine Deaton Steel Energy Specialist AFTG2
Tjaarda P. Storm Van
Leeuwen Consultant AFTG1
Sylvie Charlotte Ida do Rego Program Assistant AFMBJ
38
(b) Staff Time and Cost
Stage of Project Cycle
Staff Time and Cost (Bank Budget Only)
No. of staff weeks US$ Thousands (including
travel and consultant costs)
Lending
FY03 150.68
FY04 181.78
FY05 36.11
FY06 0.00
FY07 0.00
FY08 0.00
Total: 368.57
Supervision/ICR
FY03 0.00
FY04 0.00
FY05 147.64
FY06 101.17
FY07 112.20
FY08 181.36
Total: 542.37
39
Annex 5. Summary of Borrower's ICR and/or Comments on Draft ICR
(Full text in French)
Dans le souci de mettre en place un meilleur environnement pour les activités économiques,
culturelles et sociales; le Gouvernement a engagé une série de réformes notamment la fourniture
de services énergétiques de qualité et le développement des réseaux de distribution. C’est dans
cette logique que le Projet de Fourniture de Services d'Energie (PFSE, projet d'envergure
nationale a été initié suite à plusieurs constats. Il s’agit entre autres de la mauvaise qualité des
services énergétiques, de l'utilisation à grande échelle de la bioénergie traditionnelle, de l'abandon
de l’ancien projet d'interconnexion du réseau électrique du Nord-Benin et du Nord-Togo pour
faute de financement, de la nécessité de réaliser des travaux urgents sur les réseaux électriques de
Cotonou, Porto-Novo et Abomey Calavi pour améliorer la qualité et la disponibilité de l'énergie
électrique, du besoin de formation des cadres du secteur de l'énergie dans certains domaines. Pour
apporter des solutions à ces différents problèmes et proposer aux entreprises et aux ménages des
services énergétiques de bonne qualité et à un coût réduit et de favoriser la production et
l'utilisation de biocombustibles modernes, le Gouvernement du Bénin a négocié avec les
partenaires au développement le financement du projet pour un coût initial de52, 635 milliards
de francs CFA sur une durée de quatre ans. En 2008, le projet a bénéficié d’un crédit additionnel
d’un montant de 3,5 milliards de francs CFA (soit 4 300 000 DTS), portant ainsi le coût total du
projet à56, 135 milliards de francs CFA.
L'objectif principal du projet est d'élargir l’accès des zones urbaines, périurbaines et rurales à
l'énergie moderne et ce faisant d'améliorer la qualité de vie des communautés concernées.
Description et démarrage du projet
Historique
La politique économique adoptée par le Bénin vise à terme le rétablissement des équilibres
macro-économiques et une meilleure efficacité dans tous les secteurs de l’économie nationale.
Avec l’avènement du renouveau démocratique, le Bénin est passé d’une économie planifiée à une
économie libérale dont la croissance économique a été en 2002 environ de 6,4%. Mieux avec le
développement du commerce international et la mondialisation de l’économie, le Bénin se doit
tenir compte des règles et normes établies par une économie internationale de plus en plus
concurrentielle. Dans une stratégie de développement durable où la lutte contre la pauvreté sera
une priorité, le secteur de l’énergie occupera une place de choix pour le développement socio-
économique de la Nation.
L’économie béninoise est extrêmement sensible aux problèmes énergétiques au regard de la
facture énergétique contraignante, de la faiblesse de la compétitivité des entreprises de production
liée entre autres à des problèmes de disponibilité de l’énergie électrique de qualité et au coût
relativement élevé de l’électricité, de l’importance de la consommation de la biomasse énergie
(67% de la consommation totale d’énergie en 2002) par rapport aux autres formes d’énergie et de
la faible efficacité énergétique entraînant un impact considérable sur l’environnement
(déforestation, pollution de l’air, etc.).
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C’est face à ces contraintes, que le Projet de Fourniture de Services d'Energie, est initié en vue
d’apporter des solutions urgentes devant impulser l’économie Nationale, offrir de meilleures
conditions de vie au sein des ménages et préserver l’environnement.
Objectifs du projet
L'objectif principal du projet est d'élargir l’accès des zones urbaines, périurbaines et rurales à
l'énergie moderne et ce faisant de contribuer à l’amélioration de la qualité de vie des
communautés concernées.
A cet effet, quatre objectifs de développement ont été définis pour le projet à savoir :
1. Accélérer de manière commercialement soutenable, l'utilisation de l'électricité pour la
croissance économique et les services sociaux afin d'améliorer la qualité de vie dans les
zones non desservies ou mal desservies (périurbaines et rurales) ;
2. Renforcer la capacité du Bénin à étendre ses services énergétiques ;
3. Promouvoir la cooperation régionale ;
4. Améliorer la gouvernance du sous-secteur de la biomasse-énergie et renforcer les
capacités des institutions intervenant dans la gestion du sous-secteur.
Composantes du projet
Le projet comprend six composantes à savoir, (i) la Réforme du secteur de l’énergie, (ii) les
Etudes d’ingénierie, (iii) les Investissements, (iv) les Aspects environnementaux, (v) le
Renforcement institutionnel et développement des capacités et (vi) la Biomasse-énergie et
énergies de substitution.
Objectifs par composante
La composante « Réforme du secteur de l’énergie » vise à assurer l’assistance conseil à la
SBEE pour la création d’un partenariat public-privé pour la distribution de l’électricité, et
l’aide à l’établissement d’un système réglementaire et d’un Organe de régulation du secteur
de l’électricité.
La composante « Etudes d’ingénierie »vise la réalisation des études d’ingénierie dans le
but de renforcer la distribution électrique au Bénin dans les zones rurales et urbaines.
La composante « Investissements » est la plus importante du projet. Elle comprenddeux
sous-composantes à savoir : (i)Sous-composante Transport: Interconnexion Nord-Togo
et Nord-Bénin dont le but est de permettre aux villes du nord du Bénin d’être connectées
au réseau de la CEB et de bénéficier d’une électricité dont le coût de revient est inférieur à
celui des groupes diesels isolés actuels ; (ii)Sous-composante Distribution pour d’une
part la fourniture et la pose d’équipements nécessaires pour améliorer l’efficacité
énergétique des bâtiments administratifs et d’autre part pour la réalisation des travaux de
renforcement et d’extension des réseaux électriques de Cotonou, Porto-Novo et Sèmè
pour le bon fonctionnement du système de distribution.
La composante« Aspects environnementaux » vise à prendre en compte les aspects
environnementaux et sociaux du projet.
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La composante « Renforcement institutionnel et développement des capacités » vise à
renforcer les capacités des structures intervenant dans le secteur de l’énergie, sous tutelle
du Ministère en charge de l’énergie et les aider à établir et à opérationnaliser leurs rôles et
fonctions dans le secteur.
La composante « Biomasse-énergie et énergies de substitution » vise la rationalisation
du sous-secteur de la biomasse énergie et la promotion des énergies alternatives efficaces
de substitution au bois-énergie pour le secteur des ménages et les PME, y compris des
combustibles endogènes renouvelables.
Le PFSE a bénéficié, en 2008, d’un Fonds Additionnel d’une valeur de sept (07) millions de
dollars soit environ trois milliards cinq cent millions (3 500 000) de francs CFA. Ce Fonds est
destiné à financer les activités étendues du projet qui ont augmenté proportionnellement le
programme du projet en vue d’améliorer l'impact de développement du projet de façon rentable.
Organisation et réalisation du projet au sein du Ministère de tutelle, des autres ministères et
des agences partenaires dans l’exécution du projet
Les organes de mise en œuvre
Le PFSE est placé sous l’autorité du Ministère de l’Energie, des Recherches Pétrolières et
Minières, de l’Eau et du Développement des Energies Renouvelables (MERPMEDER) et sous la
responsabilité de la Direction Générale de l’Energie (DGE).
La Coordination Générale du projet est assurée par une Unité de Coordination du Projet (UCP)
logée à la DGE. Plusieurs structures sont impliquées dans la mise en œuvre des différentes
composantes du projet. Il s’agitde :
la Direction Générale de l'Energie (DGE) ;
la Communauté Electrique du Bénin (CEB) ;
la Société Béninoise d'Energie Electrique (SBEE);
la Direction Générale des Forêts et des Ressources Naturelles (DGFRN);
le Centre National de Télédétection et de surveillance du couvert végétal (CENATEL);
la Communauté Forestière du Moyen-Ouémé regroupant les Communes de Dassa-Zoumé,
de Savè, de Ouèssè, de Glazoué et de Tchaourou.
Le système de suivi-évaluation
Pour la mise en œuvre du projet, il est prévu selon le manuel de procédure, un cadre logique par
composante et un système d’information qui sous-tend les rapports trimestriels, semestriels et
annuels.
Système de gestion des risques
Il est à noter que dans le cadre du présent projet, plusieurs outils ont été élaborés notamment le
manuel d’exécution du PFSE. Seulement, parmi ces outils, il n’est apparu à aucun niveau l’outil
relatif au tableau des risques.
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Conception, exécution, réalisation et impact du projet
Evaluation de la conception et de la pertinence du projet
L’évaluation de la pertinence vise deux priorités. Il s’agit de porter un jugement sur la mesure
dans laquelle les objectifs du PFSE :
(i) s’inscrivent dans le cadre de la politique globale et de la stratégie de développement
du secteur de l’énergie au Bénin (cohérence externe) ;
(ii) correspondent aux besoins et aux priorités des bénéficiaires (cohérence interne).
L’évaluation de la pertinence s’intéresse également à la quantité et à la qualité des ressources
(humaines et financières) allouées au programme pour la réalisation de ses activités ainsi qu’à la
pertinence des stratégies et des procédures de mise en œuvre (cohérence interne).
Le projet, de par son organisation à travers la conception des six composantes, est bien pensé. En
effet, de l’analyse des informations recueillies auprès des acteurs du projet, il ressort que la
Banque Mondiale (BM), avant le démarrage, a procédé à une pré-évaluation des agences
d’exécution, notamment en ce qui concerne leur capacité technique, leur capacité en matière de
gestion financière et en matière de passation des marchés. Sur cette base le projet a, par exemple,
dévolu la responsabilité de la passation des marchés à chaque agence d’exécution à savoir la
SBEE et la CEB.
Au niveau de l’UCP, l’équipe complète n’était pas en place au démarrage, c’est au cours de la
mise en œuvre que la nécessité de mettre en place telle ou telle équipe s’est fait sentir.
Par ailleurs, certaines composantes du projet ont fait l’objet de critique de par leurs insuffisances
au plan structurel et ayant freiné la mise en œuvre. Il s’agit du caractère complexe de la
composante Biomasse qui a été souligné avec pour corollaire plusieurs difficultés de mise en
œuvre de certaines activités de cette composante.
Il est également noté que dans la structuration du projet, le positionnement de la cellule
« Efficacité Energétique » n’a pas facilité l’exécution des activités parce que noyé dans les
composantes, ingénierie et investissement. Elle ne dispose pas d’une autonomie fonctionnelle lui
permettant de mettre en œuvre convenablement son plan de travail.
La Composante « Aspects environnementaux », bien que prévue, il manquait un responsable
chargé d’exécuter le travail de façon formelle car le cadre de gestion environnementale et sociale
du projet a été tardivement mis en place.
Dans l’ensemble, la conception du projet est satisfaisante dans la mesure où elle a permis :
la fourniture d’énergie électrique fiable (à plein temps) provenant du réseau interconnecté
du Nord du Togo pour les localités du Nord-Bénin, suite à la réalisation des travaux
d’interconnexion électrique du Nord-Bénin et du Nord-Togo;
la promotion de l’efficacité énergétique au niveau de l’administration publique ;
le renforcement des réseaux de distribution de la SBEE dans les villes de Cotonou, Sèmè
et Porto-Novo ;
la promotion des conditions favorables à la substitution énergétique dans le sens d'une
meilleure efficacité énergétique ;
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le développement des capacités techniques de gestion durable des ressources forestières
du domaine protégé de l’espace CoForMO pour la production du bois-énergie basée sur
des plans d’aménagements ;
le renforcement des capacités des acteurs du secteur énergie.
Principaux résultats obtenus par composante du projet
Au 31 décembre 2012, le PFSE a atteint un niveau d’exécution physique des activités satisfaisant.
Par composante, les détails sur le niveau d’exécution montrent ce qui suit :
Composante« Réforme du secteur de l’énergie »
Les résultats obtenus au niveau de cette composante sont structurés en trois points :
Mise en œuvre d’un plan de redressement technique, financier commercial et
organisationnel de la SBEE sur décision du Gouvernement. Ce qui a permis (i) la
diminution de la production thermique (arrêt des locations de groupes, diminution de
combustibles utilisés) à la faveur du développement des interconnexions ; (ii) le relèvement
des tarifs (en 2009 et en 2010) qui ont mis fin à la vente à perte du produit ; (iii)
l’actualisation de la formule d’indexation tarifaire en vue de son application et (iv) la prise
en charge par l’ABERME des investissements relatifs à l’électrification des zones rurales
(qui ne sont pas rentables).
Elaboration et mise en œuvre par le Cabinet TROPIC COMMUNICATION des plans de
communication sur les composantes du projet PFSE.
Composante « Etudes d’ingénierie »
Au niveau de cette composante, les résultats obtenus se résument comme suit :
Réalisation des études pour l’efficacité énergétique et la gestion de la puissance appelée
dans les bâtiments administratifs : il s’agit des audits énergétiques réalisées sur 44 sites
administratifs, d’une étude relative à l’élaboration de la stratégie d’économie d’énergie dans
le secteur public, d’une étude relative au code d’efficacité énergétique dans les bâtiments :
Normes relatives aux bâtiments administratifs, ainsi qu’une étude relative à l’évaluation des
projets pilotes d’économie d’énergie réalisés sur 5 sites administratifs ;
Réalisation de l’étude de faisabilité pour les lignes d’interconnexion 161 kV Onigbolo-
Parakou et Sakété-Porto/Novo ;
Réalisation de l’évaluation environnementale relative à la construction des lignes
d’interconnexion 161 kV Onigbolo-Parakou et Sakété-Porto/Novo ;
Composante « Investissements » .Les résultats obtenus se présentent comme suit par sous-
composante :
Sous-composante Transport, avec la réalisation de l’interconnexion du réseau de transport de
l’énergie électrique du Nord-Togo à celui du Nord-Bénin par la construction des six grands
ouvrages ci-après : (i) 254 km de ligne 161 kV entre la frontière du Togo jusqu’à Parakou en
passant par Djougou (ii) deux (02) postes de transformation HT/MT (Djougou et à Parakou), (ii)
deux (02) lignes parallèles de 20 kV reliant le nouveau poste de Parakou à la centrale thermique
et au poste de 20 kV existant, (iv) 76 km de ligne 33 kV raccordant Natitingou à Djougou, (v)
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106 km de ligne 33 kV raccordant Bembèrèkè à Parakou, (vi) deux (02) postes de transformateurs
HT/MT à Natitingou et Bembèrèkè.
Sous-composante Distribution : les résultats suivants au niveau du volet Efficacité Energétique
sont obtenus :
o Des matériels et supports de sensibilisation à l’utilisation rationnelle de l’énergie (dépliants,
affiches, étrennes, panneaux, autocollants, spots, films audio-visuels) ont été conçus,
réalisés et diffusés dans les structures administratives (ministères et institutions de l’Etat)
ainsi qu'au niveau des différentes chaînes de télévision et de radio (ils ont également servi à
l’organisation des campagnes de sensibilisation à l’utilisation rationnelle de l’énergie) ;
o Quatorze (14) armoires de batteries de condensateurs à compensation automatique, de
capacité totale 770 KVAr, ont été acquises et posées au niveau de 14 abonnés de la
moyenne Tension de l’administration publique pour corriger les mauvais facteurs de
puissance précédemment diagnostiqués au niveau des installations électriques intérieures.
Ainsi par la suppression des pénalités antérieurement facturées, une économie financière
annuelle de 36 millions de F CFA au moins a été réalisée pour un investissement de 46
millions F CFA environ ;
o Des dispositifs de limitation de la durée de fonctionnement des équipements électriques en
absence des usagers dénommés « économiseurs d’énergie » sont acquis et posés à titre
expérimental dans quatre-vingt (80) bureaux administratifs : 20 à 40% d’économies
d’énergie sur les consommations d’électricité de ces bureaux sont attendues ;
o Des travaux d’implantation de projets pilotes en efficacité énergétique ont été réalisés sur
cinq sites administratifs. D’après l’évaluation justifiée faite par la firme canadienne
Econoler, une économie annuelle d’énergie de plus de 382 MWh, soit un gain financier de
plus de 41 millions de F CFA par an est réalisé sur les dépenses liées aux consommations
d’électricité de l’administration publique suite aux mesures mises en œuvre et qui peuvent
se généraliser sur les autres bâtiments administratifs ;
o Au niveau du volet Renforcement du réseau de distribution, les résultats ont porté sur la
réalisation de travaux d’amélioration de réseau de distribution d’électricité dans les villes de
Cotonou, Porto-Novo et Sèmè avec notamment : (i) la construction dans la Zone Franche
Industrielle de Sèmè d’un poste de transformation 63/15 KV de capacité 5MVA, (ii)
l’extension de plusieurs sous-stations existantes (Akpakpa et Gbégamey à Cotonou,
Ouando à Porto-Novo), (iii) le renforcement de la liaison 63 KV entre les postes de Vèdoko
et de Gbégamey par la pose de 4,6 km de câbles souterrains, (iv) le renforcement de réseau
de distribution à Cotonou et Porto-Novo par la construction de 18,4 km de ligne MT et de
postes de transformation.
Composante « Aspects environnementaux ». Au niveau de cette composante, deux (2)
principaux résultats sont à retenir : (i) le dédommagement des populations touchées le long de la
zone d’emprise de la ligne d’interconnexion Nord-Togo Nord-Bénin, (ii) la réalisation du schéma
de compensation pour la ligne d’interconnexion électrique Onigbolo-Parakou et Sakété-
Porto/Novo.
Composante« Renforcement institutionnel et développement des capacités ».A ce niveau six
(6) principaux résultats : (i)réalisation de l’étude relative au diagnostic institutionnel du Ministère
en charge de l’Energie, (ii) formation des membres de l’Unité de Coordination du PFSE et de
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certains cadres du secteur de l’énergie et de l’Administration centrale du Ministère, (iii)
formation des cadres de la CEB dans les domaines de planification, de la gestion financière et
environnementale, (iv) acquisition des équipements de mesure pour les sous-stations de la CEB
en vue d’améliorer la facturation et le développement d’une structure tarifaire plus efficace, (v)
réalisation en cours de l’audit de gestion des ressources humaines de la CEB, (vi) démarrage de la
réalisation par le consultant GECA Prospective de l’audit de gestion des ressources humaines de
la SBEE. Les activités qui n’ont pu être achevées ont été transférées au projet DAEM.
Composante « Biomasse-énergie et énergies de substitution ». Les résultats obtenus se
présentent comme suit par sous-composante :
Sous-composante Développement des capacités institutionnelles du sous-secteur de la
biomasse-énergie avec : (i) la création et la mise en place de la Commission Nationale des
Combustibles Domestiques (CNCD) qui a démarré ses activités le mardi 07 juillet 2009, (ii) la
conception et la mise en place à la Direction Générale de l’Energie (DGE) du Système
d’Information pour l’Evaluation Permanente des combustibles domestiques (SIEP), (iii) la mise
en place à la DGE d’un Système d’Information Géographique (SIG), (iv) la conception et la mise
en place au CENATEL du Système d’Information Ecologique et Forestier (SIEF), (v) la
construction de quatre postes forestiers dans le cadre de l’appui du projet à l’administration
forestière pour une surveillance plus efficace des activités de production du bois-énergie dans la
région du Moyen-Ouémé, (vi) l’appui technique et financier à cinq (05) communes des
départements des Collines et du Borgou (Dassa, Glazoué, Ouèssè, Savè et Tchaourou) pour la
création d’une Association dénommée la Communauté Forestière du Moyen Ouémé (CoForMO)
en vue de mettre en place des systèmes de gestion planifiée et écologiquement soutenable des
ressources forestières exploitables pour la production du bois-énergie (bois de feu et charbon de
bois). Le processus de mutation de la CoForMO en un Etablissement Public de Coopération
Intercommunale (EPCI) est en cours. La CoForMO est dotée d’une structure technique
dénommée Agence Forestière Inter-Communale (AFIC). Avec l’appui du projet, le personnel de
cette agence a été mis en place le 27 janvier 2011 et a intégré en août 2011 les locaux de ladite
agence construite sur financement du projet, (vii) la conception d’un cadre d’assistance de l’Etat
aux communes de la CoForMO par l’élaboration d’un Contrat-plan entre l’Etat et la CoForMO.
Toutefois, suite aux dispositions prévues par la loi N°2009-17 du 13 août 2009, portant modalité
de l’intercommunalité en République du Bénin, qui prévoie que l’association entre communes en
République du Bénin ne peut se faire que dans le cadre d’un Etablissement Public de Coopération
Inter-commune EPCI, le PFSE a appuyé la CoForMO à entreprendre le processus de sa mutation
en un EPCI.
Sous-composante Appui à la gestion communautaire du domaine protégé du Moyen Ouémé.
Cette sous-composante a permis de réaliser en décembre 2012 les études socio-économiques et
d’élaborer cinq plans d’aménagement sur 300.000 ha de massifs forestiers du domaine protégé de
la zone du Moyen-Ouémé, de lancer le processus de sélection de consultant devant former les
paysans aux techniques améliorées de carbonisation et de bûcheronnage. Cette formation a été
reprogrammée dans le projet DAEM.
Sous-composante Appui au développement des communautés rurales. Ici, trois points
essentiels sont à retenir : (i) les activités de promotion apicole et fruitière ont déjà permis de
promouvoir 120 apiculteurs, dans 12 villages, qui ont implanté 600 ruches et 240 ruchettes, et ont
planté 120 ha d’anacarde, (ii) la construction de douze mielleries dans les communes de Dassa,
Savè et Tchaourou dans le cadre de l’appui du projet aux communautés rurales présentes dans
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l’espace CoForMO, (iii) la construction par l’entreprise FORAG de 12 forages d'eau dans quatre
villages de chacune des communes de Dassa, Savè et Tchaourou. Deux forages se sont révélés
négatifs. Ces deux ouvrages négatifs seront repris dans le cadre des travaux de construction de
forages planifiés sur le projet DAEM.
Le fonds additionnel au crédit initial du PFSE, a permis d’obtenir les résultats suivants : (i) la
réalisation de l’étude d’analyse économique dans le cadre de la préparation de la centrale hydro-
électrique d’Adjarala, (ii) le recrutement du Panel d’experts sur l’énergie hydraulique dans le
cadre de la préparation de la centrale hydro-électrique d’Adjarala, (iii) la réhabilitation des
organes de coupures et de protection de la sous station de la centrale d'Akpakpa, (iv) la
construction d'un câble d’énergie dans la ville de Cotonou et d’un poste d’étoilement, (v)
renforcement des capacités du personnel de la SBEE.
Au regard de toutes ces activités développées, comment est organisée la coordination et la gestion
du projet.
Coordination et gestion du projet
Les responsabilités de la Coordination Générale du projet et des représentants sectoriels
concernés
L’Unité de Coordination du Projet (UCP) est chargée de l’exécution et du suivi des activités
quotidiennes du projet y compris la passation des marchés, les décaissements, la gestion
administrative, comptable et financière du projet. L’UCP comprend : un Coordonnateur Général
du Projet, un Directeur Administratif et Financier, un Spécialiste en Passation des Marchés, un
Responsable Suivi-Evaluation, un Responsable chargé des aspects environnementaux et sociaux,
un Coordonnateur de la composante Biomasse, un Responsable du volet Efficacité Energétique,
un Coordonnateur du volet mis en œuvre par la CEB et un Coordonnateur du volet mis en œuvre
par la SBEE.
Les agences d’exécution des différentes composantes du projet, sont représentées par la Direction
Générale de l'Energie qui s’occupe de la mise en œuvre de la composante Biomasse et du volet
Efficacité Energétique, la Communauté Electrique du Bénin et la Société Béninoise de l'Energie
Electrique. Les équipes de coordination des agences d’exécution (SBEE, CEB) sont composées
d’un coordonnateur, assisté d’un spécialiste en gestion financière, d’un spécialiste en passation
des marchés et d’un spécialiste aux aspects environnementaux et sociaux. Il y a également la
Direction Générale des Forêts et des Ressources Naturelles qui apporte son appui au projet dans
le cadre de la mise en œuvre des activités de la composante Biomasse-énergie et énergie de
substitution, le Centre National de Télédétection chargé d’animer le Système d’Information
Ecologique et Forestier et les Communes de Dassa-Zoumé, de Savè, de Ouèssè, de Glazoué et de
Tchaourou qui interviennent au niveau du projet dans la sous-composante appui à la gestion
communautaire du domaine protégé du Moyen Ouémé de la composante Biomasse-énergie et
énergies de substitution.
Relation entre le comité de suivi et les décideurs politiques
Les relations de l’Unité de Coordination du Projet avec le Ministère en charge du Développement
et le Ministère de l’Economie et des Finances à travers leurs structures techniques sont souvent
bonnes. Toutefois, la mise en œuvre du projet a souffert des retards dans le traitement des
dossiers soumis aux structures du Ministère de l’Economie et des Finances (DNCMP, DGB, CF).
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Relations entre le comité de suivi et les responsables sectoriels des composantes
Bien que l’exhaustivité de l’équipe de l’Unité de Coordination du Projet n’a été effective que
trois (3) ans après le démarrage du projet, elle est parvenue à fonctionner de manière satisfaisante
selon les acteurs avec les équipes de gestion au niveau des agences d’exécution des composantes.
Les relations entre les différentes composantes et l’unité de gestion du projet ont été des relations
fonctionnelles en ce sens que chaque structure technique du projet dispose de compétences
avérées pour la mise en œuvre des actions prévues dans un but commun à savoir les objectifs du
projet. Tandis que la partie administrative, financière et suivi-évaluation est gérée par l’unité de
gestion.
Principalesleçons à tirer
Nécessité d’accorder des facilités dans le processus de passation de marchés en vue d’accélérer
l’exécution des activités programmées dans le cadre des financements extérieurs de la Banque
Mondiale.
Eviter une contrepartie béninoise dans la définition des coûts des contrats de marchés signés avec
des prestataires car la définition d’une contrepartie béninoise à imputer au coût du marché
rallonge la durée du processus d’attribution du marché.
Analyse critique de l’action de la Banque mondiale, du Gouvernement et de l’assistance
technique
Appréciation de l’action de la Banque Mondiale au cours de l’exécution du projet
L’action de la Banque est appréciée à travers les principales décisions ayant contribué à
l’exécution du projet, celles ayant freiné son évolution et la stratégie de suivi mise en place pour
veiller au bon déroulement du projet.
Principales décisions ayant favorisé l’exécution du projet
Prorogation de la durée d’exécution du projet. Cette autorisation a permis au projet d’avoir un
meilleur niveau de décaissement avant sa clôture.
Principales décisions ayant freiné l’exécution du projet
Autorisation en mai 2010 du chargé du projet à la Banque relative à la reprise du processus de
constitution de la liste restreinte des consultants pour la réalisation de l’étude pour le
renforcement du réseau de distribution de la SBEE suite à la demande de la Direction Générale de
la société. Cette décision a retardé la réalisation de l’activité pour laquelle le processus de
sélection était déjà très avancé. Au total, la réalisation de cette étude dans le cadre du projet PFSE
a accusé plus de 15 mois de retard. La conséquence de cette situation dans le cadre du projet
DAEM est le grand retard accusé dans le démarrage du processus de passation de marché pour le
recrutement des entreprises qui auront à réaliser les travaux de renforcement des réseaux. Cette
situation est en partie à la base des difficultés de décaissements au niveau du volet A du projet
DAEM.
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La leçon à tirer de cette situation est que certaines interventions des Autorités
hiérarchiques, à divers niveaux, dans la gestion quotidienne des projets peuvent créer des
préjudices aux projets.
Suivi du projet par la Banque Mondiale :
o Organisation des missions de supervision du projet par l’équipe de la Banque
Mondiale deux fois par an;
o Organisation des vidéo/audio conférences entre l’UCP, les équipes de gestion des
composantes et l’équipe de supervision du projet au niveau de la Banque ;
o Echanges réguliers entre le Coordonnateur général du projet et le Chargé du projet
à la Banque.
Principalesleçons à tirer:
o En cours d’exécution d’un projet d’envergure nationale, les décisions positives ou
négatives doivent tenir compte des documents de base du projet et de l’avis d’un
certain nombre d’acteurs clés (Coordonnateurs des composantes, Responsables de
structures bénéficiaires, structure de financement);
o la mise en place d’un espace de concertation périodique de tous les acteurs du
projet pour d’éventuels réajustements techniques en vue d’une bonne exécution
des activités ;
o le plan de suivi et de celui de gestion des risques apparaissent comme des éléments
essentiels au démarrage d’un projet pour une gestion efficace et efficiente ;
Appréciation de l’action du Gouvernement au cours de l’exécution du projet
L’appréciation de l’action du gouvernement est évaluée à travers trois données : les principales
décisions ayant contribué à l’exécution du projet, celles ayant freiné sont évolution et la stratégie
de suivi mis en place pour veiller au bon déroulement du projet.
Principales décisions ayant favorisé l’exécution du projet :
o Désignation en 2012 des points focaux des structures du Ministère de l’Economie
et des Finances (DNCMP, DGB, SI, CF, DGTCP) pour le compte du
MERPMEDER pour un meilleur suivi des dossiers du ministère au niveau de ces
structures.
Principales décisions ayant freiné l’exécution du projet :
o L’ouverture et la fermeture intermittentes du Système Intégré de Gestion des
Finances Publiques (SIGFiP) surtout pour les ressources du Budget National ;
o Le chargement en 2009 à hauteur de 40% au plus des crédits de la contrepartie à
cause des difficultés de trésorerie qu’a connu le pays au cours de cette année ;
o L’abattement en 2010 des crédits de la contrepartie du projet à cause des
difficultés de trésorerie qu’a connu le pays au cours de cette année ;
o La mutation des cadres à la tête des structures impliquées perturbe la gestion. Le
fait que la coordination du volet exécuté par la SBEE n’a pas eu une coordination
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stable, a été une difficulté dans la gestion du projet et dans la passation des
marchés.
o La nomination en décembre 2006 du Coordonnateur du projet au Poste de
Conseiller Technique à l’Energie du Ministre en charge de l’Energie et la tentation
de le remplacer par le Directeur Général de l’Energie d’alors a constitué une
nouvelle contrainte dans la gestion du projet.
Suivi du projet au niveau des Ministère de l’Energie, des Recherches Pétrolières et
Minières, de l’Eau et du Développement des Energies Renouvelables et du Ministère du
Développement, de l’Analyse Economique et de la Prospective
D’une manière générale pour le suivi de la mise en œuvre des activités des projets, il y a :
o L’organisation au niveau du MERPMEDER des revues trimestrielles des PTA de
tous les projets du ministère ;
o L’organisation de la revue annuelle conjointe Gouvernement–Banque Mondiale du
portefeuille de la Banque ;
o L’organisation chaque deux mois et depuis le 12 décembre 2011 sous la
présidence du Ministre en charge du Développement et en présence du
Représentant Résident de la Banque Mondiale de la revue des projets financés par
la Banque Mondiale au Bénin.
o Principales leçons à tirer : deux principales leçons à tirer (i) l’implication effective et la
mobilisation générale de tous les acteurs du projet ont été déterminantes pour l’atteinte des
objectifs fixés, (ii) la présence régulière sur le terrain du bailleur de fonds permet de réaliser
un suivi régulier des activités et à identifier avec la coordination du projet, les responsables
des volets CEB et SBEE les problèmes qui se posent et les solutions pour les surmonter.
Evaluation de l’efficacité et de la qualité des relations entre la Banque mondiale et le
Gouvernement durant l’exécution du projet
Les relations entre la Banque mondiale et le Gouvernement durant la durée du projet sont
globalement bonnes. Les actions de la Banque mondiale au cours de l’exécution du projet
concernent : a) Le décaissement des ressources IDA, b) l’émission des avis de non objection, c) la
réalisation des missions de supervision et d’appui de la Banque Mondiale
La Banque a régulièrement effectué les décaissements de fonds selon les procédures et émis les
avis dans les délais relativement requis. Il faut souligner néanmoins que jusqu’en 2010 le projet a
souffert des retards significatifs dans l’émission des avis de non objection.
Sur le plan des missions de supervision, deux missions s’effectuaient par an et le suivi et la mise
en œuvre des recommandations qui en découlent ont été régulièrement assurés par la Banque
Mondiale et la partie béninoise.
Les performances du Gouvernement concernent essentiellement : a) la coordination du projet à
travers la mise en place et le fonctionnement de l’UCP, b) la mise en place des fonds de
contrepartie et c) les procédures de passation des marchés.
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Pour la coordination, l’UCP mise en place par le Gouvernement a su coordonner l’exécution du
projet, suivre les activités quotidiennes du projet y compris la passation des marchés, les
décaissements, la gestion comptable et financière du projet.
Toutefois, le bon fonctionnement est entaché par deux difficultés majeures : il y a d’une part la
mobilisation des fonds de contrepartie sur des projets de financement extérieur. Au démarrage du
projet, il y avait déjà une difficulté majeure concernant l’accord du crédit où il était prévu que le
Bénin mette en place une avance initiale de 150 000 000 qui devait servir de contrepartie pour le
financement du projet qui était la conditionnalité de mise en vigueur du projet n’était pas inscrit
au PIP. Les deux principaux bénéficiaires du projet (la SBEE et la CEB) ont été sollicités pour
mettre en place respectivement cinquante (50) millions et cent (100) millions chacun pour
satisfaire à la conditionnalité de mise en vigueur. D’autre part, il y a les problèmes d’ordre
systémiques de passation des marchés. Ces problèmes concernent les délais relativement longs
pour le traitement des dossiers par les structures du MEF plus particulièrement la DNCMP, le
délai relativement long pour l’approbation des contrats par le MEF et surtout les grèves des
agents du MEF pendant huit mois environs au cours de l’année 2010.
Evaluation des performances des différentes institutions, bureaux d’études et leurs effets
L’évaluation des performances des structures impliquées dans la mise en œuvre du projet
concernera essentiellement la DGE (à travers l’équipe Biomasse et l’équipe Efficacité
Energétique), la SBEE, la CEB, la DGFRN, le CENATEL, l’AFIC et certains bureaux d’études
ayant offert des prestations de service dans le cadre de ce projet.
Performance de l’équipe Biomasse-énergie et combustibles de substitution
Cette équipe est chargée de la mise en œuvre de la composante Biomasse. Malgré son caractère
complexe et le retard observé dans la mise en place de l’équipe (2008), le développement des
activités prévues dans cette composante a été relativement satisfaisant car trois des quatre
composantes prévues ont été entièrement mises en œuvre, la quatrième partiellement.
En termes d’effet, au niveau du CENATEL l’installation du SIEF, le Système d’Information
Ecologique et Forestier permet de mesurer la dynamique de la végétation notamment sur le
couvert végétal concerné par le projet. Il y a également la CoForMO, l’association des communes
du Moyen-Ouémé pour la gestion durable des ressources forestières qui est doté d’un organe
technique appelé AFIC, intervient de façon opérationnelle sur le terrain. Par ailleurs, des activités
génératrices de revenu sont introduites au niveau des communes bénéficiaires du projet à travers
la formation, l’encadrement des apiculteurs dans douze villages. Ces apiculteurs ont bénéficié
d’équipements appropriés pour la production et la commercialisation de miel. Un impact
économique est insufflé dans ces villages.
Il faut cependant faire observer qu’en raison de certaines contraintes, quelques activités n’ont pas
pu être achevées par l’équipe Biomasse-Energie dans le délai d’exécution du projet. Il
s’agitprincipalementde:
la prise de certains documents de base pour la CoForMO (Contrat Etat-CoForMO,
Convention de partenariat entre la DGFRN et la CoForMO) dont le processus n’a pas pu
être conduit à terme ;
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la promotion de 4000 équipements de cuisson à gaz et de 20 000 foyers améliorés dans les
communes de Cotonou, Porto-Novo, Abomey-Calavi et Parakou.
Performance de l’équipe Efficacité Energétique et effets induits
Bien que noyé dans les composantes, ingénierie et investissement et le retard dans la mise en
place de l’équipe de gestion, les objectifs qui étaient poursuivis par ce volet ont été largement
atteints à la fin du projet, même si cela a été possible après le prolongement du projet. Ainsi, les
résultats obtenus notamment la suppression des mauvais facteurs de puissance et les autres
mesures d’économie d’énergie au niveau des administrations ayant bénéficié des actions du
projet, permettent aujourd’hui d’envisager la nécessité de développer ces genres d’activités à
grande échelle sur l’ensemble des administrations publiques en République du Bénin. Les actions
de communication menées par l’équipe ont amené l’Etat (principal bénéficiaire de ce volet) à
prendre conscience de la nécessité de gérer efficacement l’énergie en officialisant les comités de
gestion de l’énergie mis en place dans tous les Ministères par le projet.
Performance de l’équipe de gestion du volet CEB et des effets induits
Cette équipe a géré les plus gros investissements du projet. Les principales activités ont été
réalisées avec succès, notamment l’interconnexion du Nord du Bénin au réseau Nord du Togo. Le
projet des dix communes à travers lequel beaucoup de localités ont été connectées grâce à cette
interconnexion Nord Togo- Nord Bénin, aussi, le nombre des abonnés au niveau de la SBEE, a
augmenté. Ces différentes connexions électriques (construction de réseaux interconnectés) ont
permis d’arrêter l’exploitation des Centrales du Nord. Jusqu’en 2012, la CEB a fourni à la SBEE
sur le Nord environ 230 mégawatts. L’interconnexion a également permis de gagner non
seulement une fiabilité du réseau et de son renforcement au nord, mais aussi le coût de production
d’électricité a été considérablement réduit. Il y a par ailleurs le renforcement des capacités au
niveau des ressources humaines de la CEB, grâce à un important appui financier du projet pour la
formation des agents.
Performance de l’équipe de gestion du volet SBEE et des effets induits
Le projet PFSE s’est aussi occupé dans le cadre de ses interventions du réseau de distribution
d’électricité. Ses actions ont permis d’abord de rendre relativement fiable le réseau et aussi la
qualité des services à la population.
En ce qui concerne les activités prévues au niveau des travaux sur le réseau de distribution de la
SBEE, elles ont été réalisées, à la satisfaction de la société. Une seule activité, celle relative à
l’audit des ressources humaines n’a pu être menée à bout, mais sera poursuivie dans le cadre du
projet DAEM.
En termes d’effet, le projet PFSE pour la SBEE a été d’un très grand apport car avant le projet
toutes les sous stations étaient sollicitées à leurs puissances maximales, les transformateurs
étaient surchargés, ce qui entraînait des cas fréquents de délestage, non pas parce que la SBEE
manquait de disponibilité d’énergie mais parce qu’il manquait des équipements appropriés pour
écouler l’énergie vers les populations. A la fin des travaux, le premier gros effet obtenu fut l’arrêt
de la location des groupes AGREKKO et MRI par la rupture du contrat qui liait la SBEE à ces
deux structures. Cela a permis d’annuler non seulement les frais de location, mais aussi les coûts
d’investissement pour l’approvisionnement en carburant pour les groupes. Cela a également
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permis d’amoindrir les cas de coupure et de supprimer la baisse de tension à Akpakpa vers les
abonnés.
Un autre effet positif c’est l’installation d’une sous-station (poste de transformation) dans la zone
franche industrielle car avant le projet ; il n’y avait pas d’électricité dans la zone franche
industrielle. Ce projet a permis une meilleure souplesse d’exploitation et une meilleure
évacuation de l’énergie.
A côté de ses bons résultats, l’exécution du projet au niveau de la SBEE a toutefois enregistré une
contre-performance majeure. Il s’agit de la non réalisation dans le délai programmé de l’étude
relative à la réhabilitation et au renforcement du réseau de distribution d’électricité ; une situation
découlant du grand retard connu au niveau du processus de sélection du consultant.
Performance du CENATEL et des effets induits
Le CENATEL n’a pas été une Agence d’exécution dans le projet, mais il est désigné comme la
structure qui devait suivre la conception et la mise en place du Système d’Information Ecologique
et Forestier (SIEF). Cet outil qui était l’élément de base qui conditionne la réalisation des
activités touchant à la gestion durable des ressources forestières par les communes membres de la
CoForMO a pu être mise en place en 2009 malgré les difficultés technique (conditions
climatiques pour la prise des photos aériennes) et administrative (procédures administratives).
Cela a permis de développer les autres activités prévues (élaboration des plans d’aménagement
pour la gestion communautaire des ressources forestières etc.).
Performance de la DGFRN et des effets induits
La DGFRN a accompagné au plan technique tout le processus de création de la CoForMO pour
ce qui concerne l’élaboration de l’ensemble des documents techniques devant favoriser son
installation et son bon fonctionnement. Par ailleurs, la DGFRN a apporté son appui technique à
l’AFIC notamment en ce qui concerne le suivi des études socio-économiques et l’élaboration des
Plans d’Aménagement Participatifs Forestiers.
Performance de l’AFIC
L’AFIC bien que installée seulement en 2011, a largement contribué à la mise en œuvre des
actions de terrain notamment : (i) l’appui au développement des activités génératrices de revenus
et (ii) le suivi et l’appropriation du processus d’élaboration des plans d’aménagement.
A ce jour, cinq (5) plans d’aménagement sur 300 000 ha ont été élaborés bien que tous les
accompagnements prévus ne soient pas réalisés. Par ailleurs, on peut noter l’appui du projet aux
communautés rurales pour le développement des activités de l’apiculture et de plantations
d’anacarde qui accompagnent l’apiculture.
Performance des prestataires du projet
Plusieurs prestataires ont été impliqués dans la mise en œuvre des activités du PFSE. Quelques-
uns parmi eux ont été rencontrés pour apprécier les actions menées dans le cadre de leur contrat.
Il ressort des échanges que les différents marchés gagnés ont été tous exécutés avec succès.
Cependant, il est apparu qu’entre la date de soumission et le démarrage des travaux sur le terrain
on observe des périodes mortes qui ont duré jusqu’à deux années dans certains cas. Cette
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situation n’est pas toujours de nature à garantir des résultats optimaux surtout qu’aucun avenant
n’est intervenu et le coût des équipements ne sont pas toujours stables.
Niveau d’implication et de satisfaction des bénéficiaires
Deux catégories de bénéficiaires sont identifiées dans le projet PFSE : il s’agit des bénéficiaires
acteurs (CEB, SBEE, DGE, DGRNP, CENATEL) et les bénéficiaires non acteurs. En ce qui
concerne la première catégorie d’acteurs rencontrés, ils étaient tous impliqués dans l’exécution du
projet et maîtrisent parfaitement leur domaine d’intervention. Au regard des actions menées et
des résultats obtenus, la plupart des acteurs ont exprimé leur satisfaction tout en espérant une
amélioration de certaines actions avec la réalisation du DAEM. La deuxième catégorie des
bénéficiaires n’est pas directement impliquée dans la mise en œuvre, mais ont apprécié
favorablement les actions prévues et menées à leur profit. Compte tenu des acquis du projet, ils
apprécient unanimement l’initiative du Gouvernement à travers le PFSE et ont exprimé leur
sentiment de satisfaction.
Perspectives futures pour la pérennisation des acquis
Elles se présentent comme suit :
Sous-composante Développement des capacités institutionnelles du sous-secteur de la
biomasse. Il s’agit ici de Poursuite des actions de renforcement de capacités
institutionnelles du sous-secteur de la biomasse qui passe par :
o Le fonctionnement de l’Agence Forestière Intercommunale (AFIC) ;
o Le fonctionnement de la CNCD ;
o L’actualisation des données et le suivi du Système d’Information et d’Evaluation
Permanente des combustibles domestiques (SIEP) ;
o La poursuite du processus de mutation de la CoForMO en un Etablissement Public
de Coopération Intercommunale (EPCI).
Sous-Composante Appui à la gestion communautaire du domaine protégé du Moyen
Ouémé
o Existence et l’exploitation judicieuse des résultats de l’étude d’impact
environnemental et social ;
o Existence de tous les organes prévus dans la gestion des domaines protégés par la
communauté ;
o Mettre en place un système qui favorise le fonctionnement de ces organes et de
leur pérennisation ;
o Définir le mécanisme par lequel le fonctionnement et l’investissement de ces
organes seront une réalité ;
o Mettre en œuvre le mécanisme qui permet la recherche et la mobilisation des
ressources financières humaines et matérielles pour la capitalisation des acquis du
projet et la pérennisation des organes de gestion et d’exécution ;
Sous-Composante Efficacité de la biomasse et substitution énergétique
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o Régularisation du secteur par une loi sur la base des résultats de l’étude de
faisabilité sur la production, la commercialisation et l’utilisation des biocarburants,
ainsi que l’élaboration du plan de développement des filières de biocarburants ;
o Structuration des circuits de production, de commercialisation de foyers améliorés
et la labellisation/normalisation des foyers améliorés commercialisés au Bénin.
Sous-composante Appui au développement des communautés rurales
o Poursuite et extension des actions de promotion des activités génératrices de
revenus alternatives à l’exploitation des ressources forestières ;
o Renforcement des capacités des acteurs mobilisés pour la protection des
ressources forestières ;
Actions de pérennisation des acquis SBEE. Elle devra :
o investir dans la reconfiguration de son réseau moyenne tension pour respecter les
zones d’influence des postes ainsi renforcés ;
o instaurer au niveau de chaque poste un manuel de suivi des interventions ;
o investir dans la réhabilitation de son réseau de distribution assez vieillissant pour
évacuer l’énergie vers le consommateur final ;
o mettre un accent sur la maintenance et la formation des agents à l’exploitation des
postes.
Actions de pérennisation des acquis CEB. Elle devra :
o poursuivre le développement du réseau de transport d’énergie électrique pour la
construction des lignes : (i) d’Onigbolo-Parakou en 161 kV, (ii) de Sakété-Porto-Novo en
161 kV, (iii) de Natitingou-Tanguiéta-Porga en 161 kV, (iv) de Kandi-Benbèrèkè-
Malanville en 161 kV et de (v) Natitingou-Péhunco-Kérou-Banikoara-Kandi en 161 kV.
o mettre en place des équipements de protection et de mesure dans les sous stations pour
permettre le fonctionnement en bouclage du réseau sud de la CEB.
o Actions de pérennisation des acquis de la Cellule d’efficacité énergétique. La Cellule
d’efficacité énergétique devra : promouvoir l’efficacité énergétique dans les autres
secteurs d’activité (ménages et industries) ;
o promouvoir l’audit énergétique obligatoire dans les édifices gros consommateurs
d’énergie électrique ;
o poursuivre l’assainissement du parc de compteurs d’électricité de l’administration
publique et le redressement de la facturation par la pose des bactéries de condensateurs au
niveau des abonnés ayant un mauvais facteur de puissance ;
o adopter et vulgariser des normes relatives au code d’efficacité énergétique dans les
bâtiments.
Conclusion
L’évaluation du PFSE a permis d’aborder et d’examiner un certain nombre d’axes importants
entre autres : la durée réelle du projet par rapport à la durée prévue ; l’implication de beaucoup
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d’acteurs dans la gestion du projet ; l’atteinte des objectifs fixés ; le ratio résultats obtenus et
activités prévues ; la satisfaction des bénéficiaires et la capitalisation des acquis du projet compte
tenu des dispositifs mis en place ou en cours.
L’essentiel de ce qu’il faut retenir après la visite des chantiers et les échanges avec les acteurs
clés (gestionnaires et bénéficiaires) du projet, se résume comme suit : (i) le Projet de Fourniture
de Services d’Energie (PFSE) prévu pour durer cinq ans a connu une prorogation de ses activités
pour trois années supplémentaires. Il s’agit d’une prorogation du délai d’exécution avec ajout de
nouvelles activités et un fonds additionnel. Finalement cette prorogation n’a pas n’a pas permis
d’aller jusqu’au bout du planning des activités. Les activités qui n’ont pas pu être réalisées ont été
reporté sur le projet DAEM ; (ii) le niveau d’implication de la plupart des acteurs a permis une
gestion appréciable du projet avec des produits ayant induit des effets positifs auprès des
bénéficiaires ; (iii) au terme de l’exécution du projet l’objectif principal qui est l’accès à l’énergie
à moindre coût et de qualité n’est pas perceptible par les bénéficiaires non acteurs alors qu’il
parait être atteint par les acteurs bénéficiaires compte tenu des effets induits dans les réseaux de
transport et de distribution ; (iv) il ressort de la revue documentaire que le projet a atteint un
niveau d’exécution physique satisfaisant (90%) ; (v) dans l’ensemble, les bénéficiaires ont noté
une amélioration appréciable comparativement à leur situation antérieure tout en notant que la
satisfaction ne pourra être total qu’avec l’avènement d’une solution liée à la maîtrise et à la
disponibilité de la ressource énergétique ; (vi) au regard de la motivation des acteurs et des
intérêts suscités par les produits obtenus au cours de l’exécution de ce projet, tous les acteurs ont
exprimé l’engagement non seulement de mettre en place des mécanismes et systèmes permettant
de sécuriser les acquis, mais aussi de veiller à la réalisation de nouvelles activités afin de
renforcer celles déjà réalisées.
57
Annexes
Tableau des Indicateurs de performance des résultats du projet
Le point de ces indicateurs se présente comme suit :
Indicateurs Objectifs et valeurs Libellé des indicateurs
Indicateur 1
Objectif de
Développement du
Projet
Accélérer de manière commercialement
soutenable, l'utilisation de l'électricité pour la
croissance économique et les services
sociaux afin d'améliorer la qualité de vie
dans les zones non desservies ou mal
desservies (périurbaines et rurales)
Valeur de référence
Disponibilité limitée de l'énergie dans le
Nord-Bénin à cause de la production de
l'électricité à partir des générateurs (groupes
thermiques) fonctionnant au diesel et qui
subissent souvent des pannes fréquentes. La
fiabilité du service est faible à cause de l'état
des générateurs.
Valeur réalisée
Les travaux d'interconnexion Nord-Togo
Nord-Bénin sont achevés et les ouvrages sont
mis en service.
Valeur cible
Fourniture d'énergie électrique fiable pour le
Nord-Bénin provenant du réseau
interconnecté passant par le Nord du Togo.
Indicateur 2
Objectif de
Développement du
Projet
Renforcer la capacité du Bénin à étendre ses
services énergétiques
Valeur de référence
La SBEE, une société entièrement publique
avec une faible performance technique et
financière. Pas d'études pour l'extension du
réseau de distribution de l'électricité. Et
l’absence de politique ou de stratégie pour
l'extension des zones de desserte.
Valeur réalisée
Un plan de redressement technique financier
commercial et organisationnel de la SBEE
est mis en œuvre depuis quelques temps sur
décision du Gouvernement.
Dans le domaine de l'électrification rurale,
les modalités d’octroi de concessions pour
l’électrification rurale au Bénin sont définies,
et l'ABERME a bénéficié de l'assistance d'un
consultant pour l'élaboration du manuel du
Fonds d'Electrification Rurale (FER).
Valeur cible Un partenaire privé pour la distribution de
l'électricité est choisi dans le cadre de la mise
58
Indicateurs Objectifs et valeurs Libellé des indicateurs
en concession de la SBEE. La stratégie pour
l'électrification décentraliséeest développée
et soutenue.
Indicateur 3
Objectif de
Développement du
Projet
Promou voir la cooperation régionale
Valeur de référence
Pas d'énergie fournie au Nord-Bénin à partir
du réseau interconnecté de la CEB passant
par le Nord du Togo
Valeur réalisée
Les travaux d'interconnexion Nord-Togo
Nord-Bénin sont achevés et les ouvrages sont
mis en service.
Valeur cible
L'énergie électrique importée est fournie au
Nord-Bénin à travers le réseau électrique
togolais
Indicateur 4
Objectif de
Développement du
Projet
Améliorer la gouvernance du sous-secteur de
la biomasse-énergie et renforcer les capacités
des institutions intervenant dans la gestion du
sous-secteur
Valeur de référence
Inexistence de cadre institutionnel adéquat à
la bonne gestion du sous-secteur de la
biomasse-énergie
Valeur réalisée
La CNCD est créée et a démarré ses
activités. La Communauté Forestière du
Moyen-Ouémé (CoForMO) est créée. Son
organe technique l'AFIC est mis en place le
27 janvier 2011 (mise en place du personnel).
Des infrastructures de surveillance et de
gestion des ressources forestières sont mises
en place (postes de contrôle forestier). Le
Contrat Plan Etat-CoForMO est adopté par le
Conseil National de l’Aménagement du
Territoire (CNAT). Les dispositions finales
sont en cours pour la transformation de la
CoForMO en Etablissement Public de
Coopération Intercommunale (EPCI).
Valeur cible
Création et fonctionnement effectif de la
CNCD ; Création et fonctionnement effectif
de l'AFIC et Transfert de compétences aux
communes de la CoForMO pour la gestion
communautaire des ressources forestières de
leur espace.
59
Sigles et abréviations
ABERME : Agence Béninoise d’Electrification Rurale et de Maîtrise d’Energie
AFIC : Agence Forestière Intercommunale
BN : Budget National
CEB : Communauté Electrique du Bénin
CENATEL : Centre National de Télédétection et de surveillance du couvert végétal
CF : Contrôle Financier
CNAT : Conseil National de l’Aménagement du Territoire
CNCD : Commission Nationale des Combustibles Domestiques
CoForMO : Communauté Forestière du Moyen-Ouémé
DAEM : Développement de l’Accès à l’Energie Moderne
DAT : Délégation à l’Aménagement du Territoire
DGB : Direction Générale du Budget
DGE : Direction Générale de l’Energie
DGFRN : Direction Générale des Forêts et des Ressources Naturelles
DGTCP : Direction Générale du Trésor et de la Comptabilité Publique
DNCMP : Direction Nationale du Contrôle des Marchés Publics
EPCI : Etablissement Public de Coopération Inter-commune
FER : Fonds d'Electrification Rurale
IGM : Inspection Générale du Ministère
MERPMEDER : Ministère de l’Energie, des Recherches Pétrolières et Minières, de l’Eau et du
Développement des Energies Renouvelables
OMD : Objectifs du Millénaire pour le Développement
PAPF : Plans d’Aménagements Participatifs Forestiers
PFSE : Projet de Fourniture de Services d’Energie
PIP : Programme d’Investissement Public
PME : Petites et Moyennes Entreprises
PTA : Plan de Travail Annuel
SBEE : Société Béninoise d’Energie Electrique
SIEF : Système d’Information Ecologique et Forestier
SIEP : Système d’Information pour l’Evaluation Permanente des combustibles domestiques
SIG : Système d’Information Géographique
SIGFiP : Système Intégré de Gestion des Finances Publiques
UCP : Unité de Coordination du Projet
60
Annex 6. List of Supporting Documents
Project Appraisal Document of the original project
Project Paper of the Additional Financing
Mid-term Review
Project Legal Agreements
WB Implementation Status Reports
Aide Memoires
WB Memos
Progress Reports submitted by Borrower
Annual reports of SBEE submitted by Borrower
Annual reports of CEB submitted by Borrower
Final Completion Report submitted by the Borrower
This map was produced by theMap Design Unit of The World Bank.The boundaries, colors, denominationsand any other information shown onthis map do not imply, on the part ofThe World Bank Group, any judgmenton the legal status of any territory, orany endorsement or acceptance ofsuch boundaries.
TRANSMISSION LINES:
161 kV (PLANNED)
161 kV (PROJECTED)
63 & 66 kV
33 kV
20 kV
HYDRO POWER PLANTS
THERMAL POWER PLANTS
NATIONAL CAPITALS
INTERNATIONAL BOUNDARIES
Niger
Niger
Mék
rou
Pendjari
Ouém
é
Okp
ara
Zou Oué
mé
Kouffo
B i g h t o f B e n i n
Oti
Koumongou
Kara
Ogo
u
Mon
o
Mo
Anié
Mono
Volta
Lak
e
Vo
l ta
G u l f o f G u i n e a
4°3°2°
4°3°2°1°
11°
10°
7°
12°
11°
10°
9°
8°
7°
PORTO NOVO
N I G E R I A
B U R K I N A
F A S O
N I G E R
GHANA
1°LOMÉ
CÔ
TED
'IV
OIR
E
G H A N A
TOG
O
BURKINA FASO
BENIN
Porto Novo
M A L I
N I G E R I A
N I G E R
LoméAccra
Ouagadougou
Abuja
Niamey
9°
8°
Avakpa
CotonouMomehagou
TabligboLokossa
AdjaralaNotseKpalimé
Atakpamé
Nangbeto
Elavagnon
Blitta
Sotouboua
TchambaSokodé
Bassar
Kabou
Bafilo
Kara
Pya
PagoudaNiamtougou
Kandé
Natitingou
Djougou
Parakou
Savé
Savalou
Dassazouné
BohiconAbomayOnigbolo
Pobé
Sakété
Kétou
Bembéréké
0 20 40 60 80 100
KILOMETERS
BENINELECTRIC POWER SYSTEMS
EXISTING FUTURE
Akosombo
Avetonou
Kévé Tsévié
AnéhoAnfoin
Amlamé
Cinkassé
Bawku
Dapaong
Mango
IBRD 29502
MAY 1998