World Bank Documentdocuments.worldbank.org/curated/en/520691468757209377/pdf/multi0page.pdfANTANANARIVO UXBAN WORKS PROJECT FEBRUARY 25, 1994 MICROGRAPHICS Report No: 12587 MAG Type:

Document of

The World Bank

FOR OFFICIAL USE ONLY

Report No. 12587-NAG

STAFF APPRAISAL REPORT

AZDAAASCAR

ANTANANARIVO UXBAN WORKS PROJECT

FEBRUARY 25, 1994

MICROGRAPHICS

Report No: 12587 MAGType: SAR

infrastructure DivisionCountry Department IIIAfrica-Soath Central & Indian Ocean

This docment has a restrided dstibudoa and may be used by recipients only in the performance oftheir officiil duties. Its contens may not otheinse be disclosed without World Bank authonzation.

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CURRENCY EOUIVALENTSCurrency Unit = Malagasy Franc (Fmg)US$ 1.00 = Fmg 1,962 (Dec 31, 1993)SDR 1.0 = US$ 1.38107 (Dec 31,1993)

WEIGHTS AND MEASURESMetric System

MIALAGASY FISCAL YEARJanuaxy 1 -December 31

ABBREVIATIONS AND ACRONYMS(Enghjh/French Translation)

AGETIP Agency for the Execution of Public Agence dExa- Lion des TravauxWorks and Employment d'Iteret PubhL. et pour l'Emploi

AGETIPA Agency for the Execution of Agence dEx4cution des TravauxInfrastructure Works in d'Infirastructure d'AntananarivoAntananarivo

AMEXTIPE Mauritanian Agency for the Agence Mauritanienne dExecutionExecution of Public Works and des Travaux dnter& Public et pourEmployment l'Emploi

AUWP Antaanarivo Urban Works Project Projet des Voires Urbaines dansl'Agglomeration dAntananarivo

CETE Technical Studies Center of Centre dEtudes Techniques duthe Ministry of Equipment Ministere de lEquipement

CNFTP National Council for Technical Conseil National de Formationand Professional Training Technique et Professionnelle

CTNDU National Technical Committee Comite Technique Nationalfor Urban Development pour le Developpement Urbain

FAC French Cooperation Fund Fonds d'Aide et de CooperationFMG Malagasy Franc Franc MalgacheGNP Gross National Product Produit National Brut (PNB)GOM Government of Madagascar Gouvernment de MadagascarWASO Inter-Agency Procurement Agence d'Achat des Nations

Services Office UniesIDA International Development Association Internationale de

Association Developpement (IDA)MAT Ministry of National and Ministere de rAmenagement du

Regional Development TerritoireMTP Ministry of Public Works Ministere des Travaux PublicsPIP Public Investment Program Programme des Investissements

PublicsPPF Project Preparation Facilitation Avance de Prdparation de ProjetSMATP Malagasy Company of Public Societe Malgache de Travaux Publics

WorksSMEs Small and Medium Enterprises Petites et Moyennes Entreprises (PME)

FOR OMFCIAL USE ONLY

TABLE OF CONTENTS

CREDIT AND PROJECT SUtMMAY ............................ iiiProject Objecdves. iiiProject Description. iiiProject Benefits .ivProject Risks .ivProject Cost Summary .vProject Financing Plan. vProjected Disbursement Schedule .vi

SECTORAL BACKGROUND.. 1Population and Urbanization ....................... 1Macro-Economic Background .1The Case of Antananarivo. 2

Institutional Arrangement. 2Roads Management ................................................................. 2Transport Conditions ........................ 3

The Construction Industry ....................... 4IDA's Previous Role and Lessons Leared. 4Rationale for IDA Involvement. 6

THE PROJECT. 7Project Objectives .7

Main Project Objective .7Development Objectives. 7Associated Objectives. 7

Project Description. 7Program of Sub-projects.s 3Package of Technical and Managerial Assistance, Training & Information 9Technical Studies .11

Status of Project Preparation .12Project Cost and Financing Plan .12Project Implementation .14Disbursements .15Accounting, Auditing and Reporting .16Procurement .17Supervision Plan .19Environmental Impact. 19Social Impact .20

This report is based on the findings of a Bank apprais mission which visited Madagascar in July 1993,compising Messrs. Alain Labeau (Senior Highway Engineer). Hugues CasWainz (Consultant, expert in SMEsdevelopment). Philip Moeller (Consultant, expert in institutional building and environmental issues). Ms.Mernaz Teymourian is the Financial Analyst for this project. Mr. Leslie Pan was Lead Advisor, and Mr.Govindan Nair was Peer Reviewer. Mr. Marc-Antoine Saglio (Research Assistant) and Ms. Maria Dreyfus mademajor coutributions to the preparation of the Manual of Procedures. Ms. Brdnagh Murphy also provided supportin the prepamtion of the report and manual. Ms. Maryvonne Plessis-Fraissard and Mr. Francisco Aguirre-Ssaare, respectively, managing Division Chief and Deparment Director for the operation.

This document has a nstricted distribution and may be used by recipients only in the performanceof their official duties. Its contents may not otherwise be disclted without World Bank authorization.

ii MADAGASCAR Antananarivo Urban Works Proic

Economic Analysis ........................................... 21Onership .21Capacity Building .21Benefits andRisks .lRk 21

AGREEMENTS REACH3ED AND RECOMIMENATION ................................ 24Prior to Negotiations ......................................... 24Legal Documents ......................................... 24Board Presentation ......................................... 25Effectiveness ........................................ 25

BIBLIOGRAPHY ........................................ 27Participation ......................................... 28Tran ........................................ 29Environment ........................................ 29Institutionlal and Other ......................................... 29

TABLES IN THE MAIN TEX1. Project Cost Summary ......................................... v2. Foreign/Local/Taxes by Financiers ......................................... v3. Disbur nt by Sester ..................... v................................. vi4. Activities by Source and Target ..................... 115. Local and Foreign Inflation Rates ..................... 126. Plroject Cost Summary ..................... 137. Financing Plan ..................... 138. Progressive Contributions to Counterpart Funding and Maintenance Cost Requirements. 159. Disbursements by Category ..................... 1610. Prcurement .1811. Key Performance Indicators. 2012. Compirison Between Disbursement as Scheduled Vs. the Standard Disbursement Profile 23

ANNEXESA. Madagascar : Economic Data. 3 1B. Institutional Setup. 32C. Project Costs. 34D. Disbursement Profile Comparison .41E. Extracts of the Maumal of Procedures' .. 42F. Status of Project Preparation. 86G. Studies. 90H. Training for local SME's and Consultans in the Constuction Industry .94I. Audits. 110J. Supervision Plan.115K. Sub-Projects Summaries .118L. List of D ncuments in the Project File. 119M. Environment .121

tThe Manuel of Procdure ('wl de Procdww) is hereto attced as a seif-contained document

Credit and Project Summary ii

CREDIT AND PROJECT SUMMARY

Bofrower: Republic of Mad 'gascar

Implementfng Agency: Ministry of Fi anal and Regional Development

Credit Amount: SDR 13.3 million (US$ 18.3 million equivalent)

Tenns: Standard IDA terms, with 40 years maturity

Cofinancing: France (US$ 170,000 equiv.) contributed toproject preparation.

Project Objectives

The main objective of the Antananarivo Travaux d'Infrastrucure PubliqueUrban Works Project (AUWP) is to d'Anananvo (AGETIPA), the executiondemonstrate the merits of using a of sub-projects for improving thecontracting-out approach for the inhfsucture in Antananarivo, a trainingmanagement and mantenance of program for SMEs and public institutions,infrastructure works. The project will serve and the provision of services to inform theas a model for subsequent broad use, and as public about the approach of the project anda means of familiarizing the govermment the work program. The sub-projects will bewith the efficiency of this new instrument. ideified by the municipality and other

public agencies, will be revieweed by theThere are two central development execting agency according to clearobjectives - to rapidly bring the eligibility criteria, and packaged forinfrastructure of Antananaivo to a incorporation into an annual work program.satisfactory level, and to develop formal Sub-projects wil include primarily urbandomestic Small and Medium Enterprises road and street repair, as well as the(SMEs) in the construction and engineering rehabilitation of public areas. AGETIPAindustry. will oversee the contracting of about 25 sub-

projects a year with an average value ofThe associated objectives are: to strengthen about US$ 200,000.the management capacity of themunicipality, to create jobs by encouraging The Agency will be headed by a broadlythe use of labor-intensive technologies, empowered General Manager to be recruitedwhenever economically efficient, and to from the private sector, whosestimulate growth in the construction industry responsibilities will be clearly defined in theand in the economy as a whole. The project Statutes of the Agency (Manue dewill use participatory methodology to Procedures, Annexe 6; also in Amnex E).increase the voice of users and stakeholders He/she wil report to a General Assemblyin maintenance planning and better link the including representatives of the municipalitymunicipality to popular interests. F of Atananarivo, the water and electricity

company, associations of domesticProject Descilption contractors and consultants, road

transporters, and labor unions. User andThe project will include the creation of an stakeholder ownership will be promotedexecuting agency, Agence d'Exkution de

iv MADAGASCAR Antananarivo Urban Works Proiect

through participatory methodology. The out of infrastructure maintenance; (ii) thegovernment and AGETIPA wiAl sign a development of about one hundred finns inconvenLon whereby AGETIPA will have the the constuction industry in Anltnanarivo;full and exclusive responsibility to: (i) (iii) the rehabilitation of about 300 kn ofreview and approve proposed sub-projects essential urban roads; (iv) the creation offor execution; (ii) invite tenders from jobs in an amount of about 70,000 man-domestic SMEs; (iii) evaluate tenders and months, and (v) the building of the capacityaward contracts (engineering studies, works of the municipality.and supervision); (iv) administer contractsefficiently and in a timely manner; and (v) Pioject Risksprovide technical assistance to SMEs andconsult with public institutions. These There are five potential risks: (i) the risk ofresponsibilities will be carried out according insufficient funding will be addressed by theto a detailed Mamnal of Procedures, requirement that govermnent provide itsacceptable to IDA, including sample bidding contribution up-front and progressivelydocuments, and will be verified on the basis increase the proportion of its cost sharing ofof monthly progress reports and technical works during project implementation-theand financial audits carried out by external overall issue of resource allocation in theauditors-acceptable to IDA-every quarter transport sector will be dealt with under afor the first six months and bi-annually concurrent transport sector project; (ii) thethereafter. risk of government interference in the

management of AGETIPA witl be reducedThe traning program for SMEs will cover by establishing adequate procedures forexecution of sub-projects and basic business decision making early in the praject's life;management; it will be coordinated with the (iii) the risk of poor performance by thenewly established National Center for executing agency is negligible as a trackTechnical and Vocational Training (CNFTP) record will have been established at all stepsand the ongoing APEX project. Promising leading to credit effectiveness; (iv) the riskconsulting firms will be trained to become of failure to maintain works alreadyfuture executing agencies in their own right, undertaken under the project will bewho will be entrusted with similar mitigated by making such maintnance aresponsibilities. The provision of condition for the approval of subsequentinformation services will mainly consist of annal work program; and (v) finally, theusing mass media. prompt payment for works and services by

the agency will reduce the risks of poorProject Benefits performance from small firms in the

constuction and civil engineering industry.The benefits would be: (i) the availability ofa tested model for the efficient contracting-

Credit and Project Sumary v

Project Codt Sumnmay

Table 1: Project Cost Smmaqy (net of taxes and dufties) (US$ million)

Rzpeniiture Accounts Breakdown For. Local ToWa %Exeh (ExoL Tases)

1. CostsA. Cii Worba 0.00 15.32 15.32 76.4%B. Goods 0.00 0.05 0.05 0.3%C. Conulte_ny Services

1. Local Consultnt 0.00 1.66 1.66 8.3%2. Local & Forein Consuta 0.22 0.22 0.44 2.2%3. Poreign Consultant 0.49 (..06 0.55 2.7%

Subtotal Conlta SevIes 0.71 1.94 2.65 13.2%Total hnestnt Cust 0.71 17.31 18.02 89.9%IL Recurnt Costs

A. AGETIPA Operatig Costs 0.00 0.96 0.96 4.8%B. Opermting costs under PPF 0.00 0.23 0.23 1.2%C. Technical & Financiel Audits 0.19 0.08 0.27 1.4%D. Monitoring of Socia Impact 0.00 0.20 0.2P 1.0%E. Monitor. of Bay. Ip. 0.00 0.02 0.02 0.1%

Total RecuWnte Costs 0.19 1.49 1.68 8.4%IIL(&u§sg a 0.04 0.31 0.35 1.8%

TOrAL 0.95 19.10 20.05 100.0%

Project Jhidandg Plan

Table 2: FoeikglLocaxes by Fnanders

IDA FAC Gaoontr Mdagascar TOWa

_ Ping millin) . . Amoun b Amout % Amoum % Amont %

L Foreign 1,527 82.1 333 17.9 0 - 1,860 4.1

. Local (EBxI. TAxs) 34,316 91.6 0 - 3,159 8.4 37,475 81.8

ImL Taxes 0 - 0 - 6,493 100.0 6,493 14.2

Todal Peqject 35,843 78.2 333 0.7 9,652 21.1 45,828 100.0

(U9Smmb Amami % Amou_t % Amount % Amunt %

L Foreign 0.78 e.. 0.17 17.9 0.00 - 0.95 4.1

IL Local (Exci. Tanxs) 17.49 91.6 0.00 - 1.61 8.4 19.10 81.8

m. TaxS 0.00 - 0.00 - 3.31 100.0 3.31 14.2

Totd Project 18.27 78.2 0.17 0.7 4.92 21.1 23.36 100.0

(See charts next page)

vi MADAGASCAR Antananarivo Urban Works Project

Foreign Local (excd taxes)FAC G ov

82.1% MA

Total (excd taxes)GOV

PAC 8#

inDA91.1%

Projected Disbursement Schedule

Table 3: DIsbursement by Semester

(US$ million)Semester 1 2 3 4 5 6 7 8 9IDA

by Semester 2.77 1.50 2.56 2.91 2.62 2.33 1.95 0.81 0.81Cumulative 2.77 4.27 6.82 9.74 12.36 14.70 16.65 17.46 18.27

FACby Semester 0.05 0.05 0.02 0.01 0.01 0.01 0.01 0.01 0.01Cumulative 0.05 0.10 0.12 0.13 0.14 0.14 0.15 0.16 0.17

Goveament (Excl. taxes)by Semester 0.14 0.14 0.20 0.22 0.24 0.27 0.23 0.09 0.09Cumuanve 0.14 0.27 0.47 0.69 0.93 1.20 1.43 1.52 1.61

Taxesby Semester 0.39 0.19 0.38 0.45 0.50 0.56 0.46 0.19 0.19Cumulative 0.39 0.58 0.96 1.41 1.91 2.47 2.93 3.12 3.31

Totiaby Semester 3.35 1.87 3.16 3.58 3.38 3.17 2.65 1.10 1.10Cumulative 3.35 5.22 8.38 11.96 15.34 18.51 21.16 22.26 23.36

Section 1 - Sectoral Background I

SECTORAL BACKGROUND

POPULATION AND URBANIZATION growth" scenario, to be achieved throughdaring and innovative economic policies3.

1.1 With a population of 12.4 million, This ihplies a full utilization ofgrowing at 3% a year, and a declining per Madagascar's naural and human resources,capita income of about US$ 230 in 1992, and requires, among others, about 10%Madagascar is one of the poorest countries in growth in the industrial sector, whichthe world (Annex A). Yet, it has ample accounts for 14% of GTDP, and 6% growth inresources: abundant, cheap and easily trained the service sector. Upgrading human capital-labor, and a wide variety of soils, climates -for example, training workers in improvedand natural resources. its capital, technical and management skills-can helpAntnanarivo, with a population of about 1.5 develop future etrepreneurs and canmillion growing at 7% a year, is the major contribute to productivity gains across alleconomic center, with 21% of GDP, 24% of sectors. With the first order of businesstotal consumption, and 35% of total imports comes the lifting of present constraints toconcentrated in this area'. About 60% of the such growth-oriented strategy. These major500 km road network which serves the city is constrains are:in i condition, severely constraining thesupply response to a collective transport u inadequale itrasruct,e felrdemand of 450,000 passengers per day urban and rural ectriort, tele-growing at 21% per year2 . With a vehicle cokaunicatio, electric power, andfleet growing at a steady 8% a year, this markets;sitation has dramatically increased traffic * poor social conditions;congestion, time losses and accident rates,and constiuites a major obstacle to any * inefficiency of govermentattempt to reverse economic distress towards instiwfions;sustinable growth.

M ; fRmo-EcoNoMIc BAcKGROuND shortage of foreign exchange.

1.3 This sustainable growth scenario1.2 Madagascar is a striking example wil feed on sustained investments comingof unfullfilled growth potential. The recent from national and international savings. Instart of a new political era forged with the short run, national savings will comedemocratic institutions promoting a market- exclusively from public savings generated bybased economy has resulted in a rethinking the good management of public expenditures.of the national economic strategy. The new More irmediately, the major share ofgovernment has opted for a "6% sustained investments will come from external savings,

______________________ i.e., public aide for development and privateinvestments. In the long run, domino effects

'World Bank, (16). The numbers in panthesis will trigger private domestic savings. Forrefers to the sequence within the Bibliographysection (p. 27) of the refence material used.

2MTMT, (10) 3World Bank, (12)

2 MADAGASCAR Antananarivo Urban Works Project

example, a better working enviromnent in recomiendations of this studies have beenurban areas, coupled with job creation, will adopt ;. However, the city still lacks aincrease the urban purchasing power, which metropolitan master development plan5.in turn will generate increased revermues inproductive rural areas and will lead to 1.6 U1.zif 1988 there was no centralsavings and surpluses4. authority responsible for urban

development6. A major step toward fillingTBE CASE OF ANTANANARIVO this gap was then taken with the creation of

the National Technical Committee for UrbanInstitutional Arrangement Development (Comite technique national

pour le development urbain, CIYVDU under1.4 Local authorities, public the authority of the office of the Primeenteprises, and the central govermnent all Minister. Then, in 1991 the Ministry ofstruggled during the 1980s to bring direction Urban Development and Tourism (MDUT)and management to urban growth. Few was created. It drew in parts from severaltangble results were achieved during the existing ministries and served as thedecade. Although part of the problem arises secretariat for the CTNDU. The staffimg offrom the limited availability of resources, the the MDUT posts was still in a state of fluxgreater problem concerns the need for when, in 1993, it was absorbed by the newlycoordination between different agencies and established Ministry of National andjurisdictions. For example, the greater Regional Development (MAT), which is tometropolitan area of Antananarivo includes be the sponsoring agency for tk_: proposeduot just the municipality (Fivondronana) of Antnnarivo Urban Works Project (AUWP).Antananarivo Renivohitra, but also four othermunicipalities. Estimates in the late 1980s Roads Managementindicated that 16% of the metropolitanpopulation lived outside the centralmunicipality; projections suggest that by theturn of the century the metropolitanpopuation will have doubled and almost halfof this total will live in the outlyingmunicipalities.

1.5 None of these municipalities havethe institutional capacity to cope with theprojected growth, and there are nocentralized coordinating mechansms for thenmetopolitan area. The situation is -- -exacerbated by congestions, poor levels or Sidewalk and paventw in Raindriamampandry St.maintenance, and recurrent problems withdrainage and flooding. A series of studies 1.7 Despite substantial donor financingfunded by the UNDP has examined such and extensive technical assistance, the basicmajor problems. Some of the urban and transport infrastucture has not

5World Bank, (17).4Economist Intelligence Unit, (4); World Bak(13). 6MTP, (9)

Section 1 - Sectoral Background 3

been adequately managed, particularly operations than the municipality.throughout the past decade. Poormaintenance has especially pronounced 1.10 All other road sections areeffects in the Antananarivo area. From a managed exclusively by the municipality,total of 500 km of classified urban streets, under its force account operation. The vastabout 300 km are in bad condition7. This majority of the municipal budget is used tostems from an inadequate allocation of pay staff salaries, leaving little funds forresources-about US$ 5 million equivalent- actual execution of works. Improving theand institutional weaknesses, including maintenance of urban infrastructure willlengthy administrative procedures, the lack of require a reassessment of the allocation ofmonitoring and leadership, the low resourc s for road mtenance, amotivation of staff, and the poor structural redefinition of the role of the government inand functional organization of operations. A the provision of maintenance services, and amajor obstacle to adequate maintenance, greater involvement of the private sector.however, is the cumbersome institutional set The first issue is being addressed through ourup. The municipality, the MTP, and the dialogue with the government, the secondMAT share the management of roads with will be addressed through the next transportunequal and insufficient resources or sector project, and the third issue is beingcapacities8. addressed in the proposed project.

1.8 The maintenance of all urban Transport Cnditionssections of national roads is delegated by theMTP to the municipality. In compensation, 1.11 Antnanarivo was built on severalthe MTP provides the municipality with hills in the middle of a ferdle plain. Thesome gravel, bitumen and gas to topography has resulted in a web-likeaccommodate its force account Operations. network of narrow streets and ;teewThe amount supplied, however, is gradients. Little can be done to widen dheinsufficient and does not solve the streets or build bypass arteries. Theorganizational problems met by the abundance of stone and the close proximitymunicipality when rumning its force account of several quares has led to the use ofoperations. paving stones as a surface dressing material

for streets. During the mid-1960s,1.9 The urban sections of national bituminous pavement techniques wereroads, although carrying the heaviest traffic, introduced, and the use of high performanceare excluded from the rehabilitation program equipment progressively replaced themanaged by the MTP, which systematdcally craftsmen skilled in stone paving andbegins from the city limits out. From time to maince techniques. Many streetstme, when road sections deteriorate originally paved in stone have been coveredcompletely, an emergency rehabilitation by a layer of asphalt to improve the rideprogram, most often extenially financed, is comfort. The lack of maintenance andlaunched by the MAT, which, as a central resources, combined with ever-increasingbody, has easier access to such invet lent traffic, has led to the deterioration of many

asphalt layers and bituminous streets. Thosestreets left paved in stone have better resisteddeterioration and need ondy reshaping and

7MTMT, (10) minor patching.

8MTMT, (10) 1.12 Traffic congestion has become a

4 MADAGASCAR Ai_ananarivo Urban Works Project

serious issue. The vehicle fleet continues to 1.15 A detailed assessment of SMEs ingrow at 8% a year; the ride speed of nine the construction industry was conducted inbus lines out of fifteen decreased by 1X% the Antananarivo area during projectbetween 1988 and 1991. The number of preparation'O. About 200 enterprises belongaccidents increased by 11% annually between to the formal sector, including 7 large, 101986 and 19899. The bad condition of roads medium, 50 intennediate and 133 smalland tU poor design of critical street fims. With the exception of one state-crossinp make it even worse. Additional owned company (SMATP), all 7 largecomplications include the lack of discipi.ne enterprises are local branches of foreignof drivers and pedestrians, the many broken companies. Their combined turnover isdown vehicles, the lack of street and traffic about twice that of the other 193 domesticsigns, and the limited capacity of city police. enterprises. Altogether, the enterprises ofAt peak hours-four times a day-traffic in the construction industry contribute to aboutthe city becomes a gridlock. 1.6% of the GNP. In the road sector, the

public market is by far the largest market.1.13 Pedestrian traffic is difficult and Less than 7% of this market is madedangerous. Where sidewalks do exist, they accessible to domestic SMEs. Such a smallare narrow and uneven, and cross-walks are market forces most domestic consultants torisky. Pedestrians rely extensively on public diversify their skills and most domesticstairs which ascend from street to street and conacors to operate as providers of low-provide welcome shortcuts in a hilly city. qualified manpower.These stairs are often in bad shape; stonesare missing or have shifted. Some serve as 1.16 The domestic private sector in thepublic latrines. When in good condition, constuction industry includes manythey are lined by street merchants who sell determined and well-educated entrepreneurswares out of portable boxes set under in search of s.istainable markets, affordablecollapsible cloth canopies and awnings. equipment, and recognition from public

institutions. These people are moreTHE CONSTRUCrlON INDUSTRY successful abroad where their skills are

sought after and msket priced. In the1.14 The local private sector is country, however, there is a critical lack ofembryonic, mostly because only a small qualified manpower to serve as theportion of the public works market is open to transmission belt between the well-educateddomestic small and medium-scale enterprises executives and the abundant unqualified(SMEs). Bidding procedures are complex, manpower. To develop these craftsmenlengthy payment delays are the norm, and requires on-the-job and targeted technicalcontract management is unresponsive. training, both of which are in short supplyBecause the managerial capacity of the today in Madagascar.government to contract-out civil works isoverstretched, works are seldom broken into IDA's PREvIous RoLE AND LESSONSsmall sub-projecs ensuring timely LEADmaintenance and which would fit the capacityof the SMEs. 1.17 The experience of IDA in the

country has shown that when government

9MTMT, (10). t 0Csting, (1) and (2).

Section 1 - Sectoral Background

rely on force account operations to provide design and includes the participation ofmaintenance services, the rationale for its beneficiaries, the contracting-out to theoperations often becomes subverted in order private sector, the use of key monitoringto justify and shelter its staff. As a indicators, the preparation of anconsequence, few efficient maintenance implementation manual (Manual ofoperations are achieved, and its consolidated Procedures) as part of appraisal, the use ofcosts are high. Therefore, though the domestic consultants, selectively targetedmunicipality budget is substantial, few worls training programs, the use of sample biddinghave been completed and the municipality has documents, recruitment of key staff beforelost its credibility among city dwellers"1 . effectiveness, the financing of incremental

recurrent costs by government, and1.18 A previous project, Utban arrangements to secure sufficient counterpartDevelopment12 , attempted to improve the funding. As experienced in Senegal, thisinstitutional capacity of the municipality of approach has enabled pronpt payment ofAntananarivo. However, the project was invoices presented by contractors, in turnunable to introduce sustainable reforms, and resulting in a 15% reduction in biddingfailed to streamline the bloated structure of prices. Similarly, experiences in Senegal,the municipality-staffed by about 2,000 Niger and Mali, indicate that the adoption ofemployees-or increase the productivity of its a Maal of Procedures encouragesservices. competition. The AUWP seeks to

demonstrate the efficiency of private sector1.19 The limited educational operations. This requires competitiveachievement of the staff of the municipality bidding on the basis of maximizing costs,severely limits the contracting-out of works. including balancing labor utilization.The innovation offered by the proposed Experiences gained so far in other AGETIP-AUWP of delegating contract management to like projects show that prerequisitean independent executing agency builds on percentages of labor put an economicthe lessons of the past and provides a constraint on contractor operation andmechanism for both getting works done, and efficiency. Therefore, in contrast withalso by-passing the deficiency of the current social-fund type projects, the project does notstaff. It may open the door for eventual establish restrictive percentages of labor toreductions in staff. total costs. In the long-run, however, the

promotion of employment will be a definite1.20 This proposed project follows secondary outcome to the development ofregion-wide recommendations to improve the strong private participation in infrastructureentry quality of projects, and draws largely construction and mantenance operations infrom the experience of similar projects using Madagascar.the AGETIP (Agence d'Ex&uwion de Travd'IntirA Public pour l'Emploi) approach 1.21 The AGETIP approach must bewhich has been successfully introduced in six tailored to the realities of each country,West African countries13 . It is simple in taking into account the output of small

contractors, the essentially unlimited supplyof laborers, the weak sub-project

'lMDUT, (8) supervision, packaging, and managementcapabilities of local governments, and the

12World Bak, (16). disparate availability of consultants andconsulting engiteers. These parameters are

3World Bank, (5 1-58). evaluated in order to design and package

6 MADAGASCAR Atanivo Urban Works Project

works in such a way as to promote 1.23 The experience gained by IDA incompetition and facilitate access to small the development of public work organizationscontractors. Open competitive bidding with makes it the natural leader to promote thispre-qualification weeds out wasteful and approach in Madagscar. The project will beinefficient operators. The AGETIP approach processed in conjunction with the transportalso carries out measures to help sector project, which will support the broadmunicipaities, contractors, consulting update of policies, the rationalization ofengineers, and the population at large to resource allocation in the sector, and theparticipate in sub-project implementation14. restructuring of the railway. Tha AUWP

will serve as a pilot for future highwayRATioNALE FoR IDA INVOLVEMENT projects. It will promote the development of

small contractors and engineering firms1.22 The country assistance strategy for which should be able to take on theMadagascar includes: removing the physical responsibility for larger infrasuurconstraints to growth by rehabilitating and projects later on. Finally, it will helpdeveloping transport infrastructure through improve the disbursement performance ofinvestment lending; streamlining the role of IDA's portfolio in Madagascar by increasinggovernment; strengtheing the service the absorptive capacity for civil works in alldelivery capacity of the government; and sectors.ptoviding support for private sectordevelopment, with special attention to SMEs.The Antanavo Urban Works Project fitsvery well within this strategy. On a broaderbasis, the project fits well with the regionalassistance straw which aims to encouragethe private sector, and to build human andinstitutional capacities. Increased reliance onthe private sector-i.e., market forces free toallocate resources and respond to marketsignals-is now considered a key to Africa'sfuture in general, and Madagascar's inparticular.

14 p&, (48)

Section 2 - The Project 7

THE PROJECT

RWoEcrODJECrI project, will let contracts for infrastructureMain Project Objectve rehabilitation and/or maintenance sub-

projects on behalf of the government. The2.1 The main objective of the AUWP agency is expected to be a model inis to demonstrate the merits of using a Madagascar for the subsequent developmentcontracting-out approach for the management of private sector firms, which would beand maintenane of infrastructure works. entrusted with simflar responsibilities. TheThe location of the project in the nation's project docuinents, mainly the Manual ofcapital wil intensify the visibility of project Procedures, would therefore become theresults for ministries and other stakeholders. basis for the government to contract to theseThe approach will be applicable to the firms.services provided by a wide range of 2.5 The project conti three mainagencies. The project will serve as a modelfor subsequent broad use and as a means offamiliarizing the government with theefficiency of this new instrument.

Development Objectives

2.2 There are two cental developmentobjectives. These are to rapidly bring the -infrsctue of Anuanarivo to asatisfactory level, with a priority given to -roads, and to develop formal domestic SMEsin the construction and enginring industry,strgthening their capacity to design,execute, and supervise a wide range of publicworks.

Asodated Objectives

2.3 The associated objectives are: tostrengten the management capacity of the Drainage system to be rehabilitated in Besaretymunicipality, to create jobs by encouraging (test sub-projet No. 4, AmemRthe use of labor-intensive technologies,whenever economically efficient, and to mponents: (i) a program of sub-projecs forstimulate growth in the construction industry improving the infrastructure in theand in the economy as a whole. The AUWP on t are(xoi are (nnexmat,on a packagewill use participatory methodology to of training and information for publicincrease the voice of users and stareolders institutions, SMEs, the agency, and thein maineenance planning and beter link the public at large (Annex H), and (iii) technicalmanicipa ptymtg anularinterests, and sectoral studies to sharpen the impact of

municipality to popular interests. the two other components (Annex G). ThePROJECrDESCRIPTON project will allow for adjustments as

2.4 The Agence d'Ex&cuton des implementation goes along, which BankTravua d'srastru es P bXu experience indicates is the surest way ofd'Antaadvo (AGETIPA), autonomous getting the strongest and most sustainableand nonprofit agency to be created under the impact. During the mid-term review,


consideration will be given to the possible 300 km streets through the followingincrease in the range of sub-project types to interventions: laying new stone pavng (stonebe undertaken (pan. 2.8), the technical quarries are abundant in the Antananarivostudies will be reviewed and possibly vicinity), resetting existing stone pavement,supplemented, and the adequacy of patching potholes on bituminous roads,coordination with the forthcoming IDA- cleaning ditches and pipes, and improvingsupported transport sector project will be street crossings. In addition, other sub-assessed. projects will aim at the rehabilitation of

Progam of Sub-projects public areas and pedestian surfaces throughthe revampipg of city parks and playgrounds,

2.6 Selection Process. AGETIPA will improving or creating market places,be empowered by the government through a improving bus and freight terminals, andConvention (Manuel de Procires, Annexe rehabilitating side-walks and public stairs.8; also in Annex E) to act on its behalf in At the time of the mid-term review,developing the work program. This work consideration will be given to the inclusionprogram wil be built in threephases. of sub-projects addressing light maienanceDurng the first phase the sub-projects will for public buildings or repairs to the intermalbe identifed by the municipality in plumbing and electrical systems of suchcoordination with the MAT; the MTP wil structures in the portfolio of AGETIPA.also be consulted whenever segments of thenational road network are included. Each 2.8 Packaging of Works.subproject will follow an agreed format. Approximately 25 sub-projects, with anAbGETIPA will p the sub-projects average value of about US$ 200,000, will beon an individual basis using a list of handed each year, along a progressiveonlanindycriteria (Masiel de a list O, anna sequence of 20-25-30. On average,eligibili y edteria also de Aoex Es. each sub-project will be packaged into 2.5Ohapitre IV, Section IL, A; also in Annex E). cMat o ok n ota oIn the second phase, every quarter AGETIPA contracts for works and 3 contracts forwill present a list of eligible sub-projects to consuting in order to maximize the use ofits General Assembly (para 2.9) for review the varous categores of enterpises (MaweOn this basis, in the third phase, AGETIPA, de Procdres, Annexe 6; also in Aonex E)ctaking into account the availability of finds, This will bring the total number of cotswill select, sequence, and package sub to about 300 during the three year life of theprojects into a viable work program in fi proect. This level of activity conforms withcompliance with the project objectives (par the estimate of private sector absorptive2.2 and 2.3, and Manuel de Proc&dres, capacity identified in the private sector

lwpitre IV, SectionJII, C, also inoAnnex E). survey preaed in conjunction with theDuring this phase AGETIPA, at its Anne appraisal of the project' (Annex E). Sub-initiative, will consult closely with the projects will be selected, packaged, andmunicipality and the MAT sequenced throughout the life of the project

*micipalit and theMAT.to optimize the number and size of street2.7 Nature of Works. A projected work which can be carned outwork program has been developed on the simultaneously without excessivelybasis of both demand and supply constraining the flow of traffic in the city.considerations, as well as the need tostimulate small, intermediate, and medium- 2.9 of Wobrs. AGETIPAsized firms. The majority of sub-projects will be headed by a broadly empoweredwill be road-related. The objective of theproject is to rehabilitate and maintain about 1Castaing, (1) and (2).


General Manager, whose responsibilities will acceptable to IDA.be clearly defined in the Statutes of the Package of Technical and ManagerialAgency (Mamel de Prockdures, Annae 7, Trai and Informationalso in Annex E), recniited on the basis ofcompetitive advertisement from the private 2.10 The project will provide technicalsector. This search will be based on a and managerial assistance to AGETIPA, theposition profile to be jointly approved by the SMEs and the public institutions involved,government and IDA. He/she will report to including the MAT, the MTP, and thethe General Assembly, including municipality. Training sessions will berepresentatives of the local administrative organized for SMEs on a regular basis.units of the municipality of Antananarivo, the Information workshops will be heldwater and electricity company (J1AMA), regularly, in particular before executingassociations of domestic contractors and important works. Participatory seminarsconsultants, and road transporters, according with representative groups of the variousto the Statutes of AGETIPA. The recipients will be carried out regularly togovernment and AGETIPA will sign a ensure that sub-projects are well targetedConvention (Manuel de Procedures, Annexe (Annex H)2. Finally, the project will use8; also in Annex E) whereby AGETIPA will media campains to inform the public athave the full and exclusive responsibility to: large and specific modem communication(i) review and approve proposed sub-projects means to reach various audiences (able 4).for execution (para 2.6); (ii) invite tenders AGETIPA will be responsible forfrom domestic SMEs; (iii) evaluate tenders administering the whole package of technicaland award contracts (engineering studies, and managerial assistance, training, andworks and supervision); (iv) administer informaton. Progress achieved on this frontcontrs efficiently and in a timely manner; will be reported in the monthly reports (paraand (v) organize the technical assistance to 2.29).SMEs and the provision of information 2.11 Technical and Mgeraservices, and consult with public institutions. A Technical and managerialFor each sub-project, or batch of sub- assistance will be specifically targeted to theprojects, the municipality and AGETIPA Will ned of three separate groups: SMEs, Publicsign a Contrat de Matrise d'Owrage Institutions, and the agency itself. Formaldelguee (Manuel de lrcures, Amxe 9; TOR were prepared for interventions on thealso in Annex E) whereby the municipality basis of documents prepared duringwill delegate to AGETIPA the complete appriaadinistion of contracts for these sub-projects. These responsibilities will be For SMEs:carried out according to a detailed Mamnal of * A foreign consultant specializing inProcedures-acceptable to IDA-including SMEs development will follow-up projectsample bidding documents, and will be implementation in the field on a thriceverified on the basis of monthly progress annual basis for the first year and on a bi-reports and technical and finacial audits anmual basis thereafter. This follow-upcarried out by external auditors-acceptable will be scheduled in conjunction with theto IDA-every quarter for the first six months combined supervision missions toand bi-anmually thereafter (parm 2.29). At all maximize cross-fertilization (para 2.38). Ittimes during project implementation the will supplement the sessions offered in theStatutes, the Convention, the Contrat deMattrise d'Ouvrage dMlguie, the Manual ofProcedur and the General Manager wfll be Bhatnagar (20)


training program with specific counseling For Public Institutionsin financial and organizational * AGETIPA will primarily assist publicmanagement, check the relevance of the institutions in packaging and presenting thetraining sessions, and correct any deviance sub-projects. It will also provide themfrom the desired objectiveS3, with updated lists of classified contractors* AGETIPA will answer specific questions and consultants, price lists, and allpertaining to procurement and make documentation regarding prourmntavailable a technical library on a consulting procedures, including sample biddingbasis. Question and answer sessions will documents and contracts.be organized for unsuccessful bidders toexplain why they failed. AGETIPA will * CETE will review existing standards forurban infastructures to make themalso provide on-the-job counseing during accessible to SMEs. It will also assistsupervision visits whenever deemed Public Instiotutons, including the Nationalnecessary4. Soil Testing Laboratory, in implementing

* AGETIPA will ensure that payments will these new standards and their relevantbe made without delays-probably the tests.single most important contribution that For AGETIPAcomparable investment project would maketowards the development of small * A foreign consultant will also assistentemrprises. AGETIPA in constantly fine tuning its

* AGETIPA will make well designed supporting actions to SMEss. He wiconduct reviews in conjunction wit theefforts to convince local banks that, under supevisn ssions an pidethe project, the commercial risk of lending AGeTiPA w ionmend follwuto conactors will be acceptable, hopefully actions. AGETIPA will also keep aafleting consfant in obtainig credit acin. AGTP.d loke aliat wingb constraint inre obiningcredit i communication line open with the foreignwhbich will be all the more important in cnutnmewe hsvst nodrtview of the expected development of maximietheenefito the te

leasm actitues On te bass Of maximize the benefit of the technicalleasing activiies. On the basis of asitnepos.synergistlc consultation, the ongoingAPEX project will provide a line of credit 2.12 Tralig for SMEs. A localto SMEs and where necessary, use of its consultant will organize targeted shortSME technical assistance component which training sessions for contractors andis being administered by private consulting engineers. The training programinstitutions. will cover execution of sub-projects, as well

as basic business management, and will be*CETE will provide technical support to arngdicosltonwhtenwyconsulting engmeers m sod testmg for angd csttonvhtenwlconsultring engineers ind soi testing for established National Council for Technicalsupervising purposes and in s and Vocational Training (CNFrP) (Annexdesign for detailed engineering purposes. H).oi.g osligfim ilb'g"""g PuP * H). Promising consulting firms will beThe granting of licenses by the NationalSoil Testing Laboratory to firms who have rinatu exetig agenciesuintin

receive triigt.odutsml .ol own right, competing with or supplantingreceived trang to conduct simple SOIIS AGETIPA.and materials tests will be considered.

3Castahig, (3), pp 21-25.4Castaing, (3), pp 21-25. 5Castaing, (3), pp 21-25.

Section 2- The Project 11

Table 4: Activities by source and target

BY

F.Cons. (4) Cons. | Cons.2 Cons.3 AGETIPA CEIE (1)F AGETIPA T/MA(2) _ T/MA0 SMEs T/MA training seminar media. T/MA T/MAR Public Ist. seminar media. TIMA

Recipients seminar media.

Mode periodic continued information PR(3) upon periodicfollow up in taining & program request follow up

the field program participator through mass counseling in they seminars media and & field

publications workshops

(1) CETE: Centre d' Etdes Techniques de P Equlpement (Para 2.20)(2) T/MA: Technical and Managerial Assistance(3) PR: Participatory(4) F. Cons.: Foreign Consultant.

2.13 Org on of Information and Techical StudiesParticipatory Workshops. On request from 2.15 Various technical studies will beAGETIPA, a specialized local consultant wi carried out, either during project preparationset up information and participatory or during project implementation (Annex G):workshops as needed. The first workshopswill serve as an interactive means of Durina Project Preparation:chazzeling information to a specific invited * output and efficiency of production ofaudience of stakeholders (contractors, paving stones in the Antananarvo area;consultants, trade and professionalorganizations, etc.). The second type * Ambohijatovo park;ofworkshops will be used mostly by the * dainage pattern of the uppermunicipality to discuss infrstucture options Antananarivo;with the end beneficiaries (Annex H).

* traffic map of Antnanarivo;2.14 information Services. Theprovision of information services will be * environmental assessment of a sample ofmade mainly by using mass meia. representative sub-projects;Specialized local consultants wil be used by * economic rate of return of a sample ofAGETIPA to conduct project launch representative sub-projects;workhops, to provide informationcampaigns through mass media, and prepare * accounTIg system and prores ofthe dissemination of any specific item of AGETIPA;information by various media. For example, * design and provision of training services;video tapes will be developed to be used for * urban road design standards;joint information/training purposes, andperiodic flyers informing of urban * classification criteria of SMEs;achievements under the project will be * definition of tests to be used forreleased (Annex H). acceptnce of works;


* software needs; and AGETIPA has been appointed and is

* format for technical and fincial audits. acceptable t3 IDA. The implementingagency AGETIPA has been registered and

During Proiect mnlementation: granted the status of a public utility (Manuel

* assessment of social impact of the de Procedures, Annexe 7; also in Annex E).project. A draft convention between AGETIPA and

the government (Manuel de Proacdures,After the Mid-term Review: Annexe 8; also in Annex E) has been signed,

* improvement of Municipal police; and as well as between AGETIPA and themunicipality (Manuel de Proc6dures, Annexe

* streamlining municipality services and 9; also in Annex E). Eight test sub-projectsincreasing revenue collection, are currently underway (Annex F).

STATUS OF PRoECr PREPARATiON Technical studies are under way (Annex G).Various working documents for the agency,as well as the implementation manual(Manuel de Procedures, extracts in AnnexE), have been finalized. An extensiveanalysis of the private construction industryhas been conducted, and a survey has beenmade for the rehabilitation and maintenancerequirements for road infratructure in theproject area. The detailed satus of ProjectPreparation is given in Annex F.

PRojEcr Cosr AND FINANCING PLAN

2.17 The project cost is estimated atUS$ 20 million equivalent (Fmg 39 billion)net of taxes and duties. The foreignexchange component of the program isestimated at 4.1% of the total cost. Basecost estimates, in US$, are in July 1993prices. Annual inflation rates have beenesfimated as shown in table 5 below.

Rehabiitation of Rli}andrit 2.18 Provision has not been made forITe sub-project No. 1, Annex F) price contingencies in costing the civil works

for the project, the major cost component of

2.16 An appraisal mission was the project. It is expected that higherconducted (July 1993) and a PPF advance inan amount of US$ 300,000 was granted. As Table 5: Local and Foreign Inflation Ratesa result of the positive outcome of the test 199-sub-projects and the reconstruction needs in 1994 1995 1996 1997 |the aftermath of Hurricane Giralda, an Loca 1 9.3 8.5 8.4 8.4 1increase of US$ 975,000 to the PPF advance - --I1has been made. The General Manager of Foreign 3.9 3.8 3.8 3.8 |

Section 2 - The Proiect 13

Table 6: Project Cost S _nuay (net of taxes and duties) (US$ '000)

Expendiu Accoults Breao For. LO Total %Exch (EXL Txes)

1. YestiUt CosaA. Civg Works 0.00 15.32 15.32 76.4%B. Goods 0.00 0.05 0.05 0.3%C. Co eatany ices

1. Local Consdltant 0.00 1.66 1.66 8.3%2. Local & Foreign Consult 0.22 0.22 0.44 2.2%3. Foreign Consultant 0.49 0.06 0.55 2.7%

Subtotal Cnsult Servies 0.71 1.94 2.65 13.2%Total invesment Coets 0.71 17.31 18.02 89.9%B. Recurred Costs

A. AGETlPA Operating Costs 0.00 0.96 0.96 4.8%B. Operingcosts under PPF 0.00 0.23 0.23 1.2%C. Technical & Financial Audits 0.19 0.08 0.27 1.4%D. Monitorng of Socal Impact 0.00 0.20 0.20 1.0%E. Monitor. of EBuv. Imn. 0.00 0.02 0.02 0.1%

TotadRecurntCosts 0.19 1.49 1.68 8.4%M. 0.04 0.31 0.35 1.8%

TOTAL 0.95 19.10 20.05 100.0%

inflation rates for local prices will be resources anmnally on average. Besides, thiscompensated for by adjustments m the project would amount to about 2% of theforeign exchange rate. Similarly, since the total PIP annually. France has accepted tovolume of works will be adjusted according partially finance the project preparationto available fuids, physical contingencies under its Fonds d'Aide et de Coop raionhave not been applied to the cost of the (FAC) up to an amount of US$ 169,700works under the project. Contingencies on equivalent. This contribution covers thethe remaining components (US$ 4.4 million) technical assistance provided by the CETE.amount to US$ 352,200, or 1.8% of the totalcost excluding taxes. A summary ofestimated costs is presented in table 6 above. Table 7: Pndncing Plan (US$ '000)Detailed project costs are provided in Amnex Tot Project % of Project

Cost Cost

2.19 The proposed IDA credit of US$18.3 million equivalent will finance 91% of Government 805 4project costs net of duties and taxes over a Municipality 805 4four-year period, beginning in July 1994. IDA 18,270 91Globally, the local financial contnrbution wl8be US$ 1.6 million equivalent, or 8% of the FAC 170 1total project cost. This local contribution T Cwill be shared by the municipality and the Total Cost ______10

MAT, and will be progressively increasedfrom 5% to 15% during the project. For the 2.20 Sub-projects will be eligible forsake of comparison, the total contribution to financing if their counterpart fuding isthe 1994 Public Investment Program is US$ included in the annual budget of the100 million equivalent, which indicates that government and/or the municipality.this project would tap 0.5% of local Government/municipality conribution will be


deposited up-front for each sub-project or test the implementation mechanisms of thebatch of sub-projects (Manuel de Procedures, project. The General Manager of AGETIPAChapitre IV, Section II, A; also in Annex E). participated in the negotiations. DuringSimilar arrangements are being implemented negotiations, the Convention, the Contrat desatisfactorily in Mauritania since March 1993 Mafttse d'Ouvrage delhgu6e, the Manual ofunder the AMEXTIPE project6. Procedures, including the accounting system,

2.21 The proposed government and the Statutes were agreed upon (seecounterpart funding and the maintenance Mantl de Procadures, or Aou ex Et.spending will amount to US$ one million by Agreements have also been sought on:year three of the project. This is sufficient to (i) the size, budgeting, and paymentcover recurrent annual maintenance costs for procedures of the financial contibutionthe entire urban road network (Table 8). to be made by the government andThis amount could be tapped from user fees beneficiaries (para. 2.28);and fuel taxes collected in the urban area, (ii) the periodicity and the terms ofalong with savings from the functional reference for financial, managerial andbudget of the municipality, which-if the technical audits (2.29);AGETIPA approach were to be continued-would no longer have to support personnel (iii)the scope and date for the mid-termcosts for force account operations (para review (para 2.24);1.10). (iv) the results of economic rate of return

2.22 AGETIPA will not be set as a of the sample of sub-projects; andpermanent body and the use of consulting (v) the lessons learned from thefirms, trained during project implementation execution of the test sub-projects.to become executng agencies in their ownright, will be encouraged. The cost of these The conditionality for Board review willagencies would be covered by a fee of 6-8%, include the signature of the Convention, thewhich would be included in the average approval and signature of the contract ofmaintenance costs of US$ 2,000 per km used AGETIPA's General Manager, and thein project cosDig. adoption of the Manual of Procedures, the

Contrat de Maitrise d'Ouvrage dftugue, thePRWJE:CT IMPLMENTATON Statutes as amended at negotiations. The

2.23 An essential feature of project conditionality for credit effectiveness willimplementation is the fast-tracking of certain include:project components as a test in advance of (i) the approval by IDA of the batch ofeffectiveness (para. 2.16). Under the draft sub-projects submitted by AGETIPAManual of Procedums made applicable to be implemented during the firstthrough Convention Anil entre le yearGouvern rme et AGE7IPA, AGEi'IPAbenefits from a large degree of autonomy, (ii) the deposit into the project accountand arrangements have been made to speed by the govermnent and municipalityup the decision process even before project of at least US$ 300,000 equivalenteffectiveness. Eight sub-projects, (taxes and duties included)representative of future operations, have been representing one-third of theimplemented before negotiations in order to counterpart finding for the calendar

_______________________ year 1994;

6World Bankc (49). (iii) an adequate budgetary allocation by

Section 2 - The Projeqt ,15

the government and the municipality, from two accounts located in a commercialin their respective annual budgets, bank acceptable to IDA, one special accountrepresenting the total estimated in US$ and one project account in Fmg. Thecounterpart funding for the first year project account will serve for the counterpartof project implementation; and funding deposits and the special account for

(iv) the appointment of auditors for a the IDA credit deposits.period of three years. 2.26 At all times, the special account

Table 8: Progressive Contributions to Counterpart Funding

and Mainteance Cost Requirements (US$ '000)

Year 1 Year 2 Year 3 After Project

Coumterpart Funds (Taxes Excluded) 500 530 600 0

Maintenance Costs (1) 0 200 400 1,000

Total 500 7300 1,000 1,000

(1) assuming that annual maintenance cost per km is USS 2,000 equivalent and that about 100 km would berehabilitated each year of project inplementation.

2.24 The project is expected to be will be maintained and operated on terms andimplemented in three years, with an average conditions acceptable to IDA. Theannual volume of works and services of authorized allocation will be US$ 1.5about US$7 million equivalent. Subsequent million, representing eligible expendituresannual work programs, including financed by IDA over a four-month periodcorresponding counterpart funding according to the 4-year disbursement periodarrangements and batch of sub-projects, will adopted (para. 2.50). Upon effectiveness, anbe presented to IDA by AGETIPA for initial amount of US$ 750,000 will beapproval no later than September 30 of each deposited to the special account. Theyear. The operating costs of the Agency are remaining balance will be made available asestimated to be about 6% of total costs, needed. The special account will beexclusive of audits, training, and services. replenished monthly provided requestsAt the mid-term review, agreement will be exceed US$ 100,000 equivalent.sought to improve the use of the

munciplitts esorcs; he deqacyof 2.27 Replenishmenlt requests will bemunicipality's resources; the adequacy of prepared monthly by AGETIPA upon receiptarrangements for selection, financing and of the bank statements from the commercialimplementation of sub-projects, and the cost bank maintaining the special account. Theserecovery reviewed. replenishment requests will be fully

DISBURSEMENTS documented, except in the case of contracts

2.25 The Manual of Procedures allows for (i) civil works valued at less than US$AGETIPA, represented by its General 100,000 equivalent, and (ii) goods andManager, to order payments by signing services valued at less than US$ 20,000checks and transferring orders without being equivalent for which disbursements will besubmitted to prior clearances and without made on the basis of Statements ofsurrendering actual execution of payments to Expenditures (SOEs). In such cases, thethe Treasury. Payments will be withdrawn relevant documentation will be retained by

AGETIPA for review by IDA supervision

16 MADAGASCAR Antananarivo Urban Works Proiect

missions and the external auditors of the project and the operating costs of AGETIPAprojcct. Because the project is hinged on fast will be paid to AGETIPA at the signing ofdisbursements, AGETIPA will dispatch the the respective Contrat de Maii4se d'Ouvragereplenishment requests to IDA directly and d6legu6e with the municipality (Manuel desend a copy to the Ministry of Finance at the Procedures, Annexe 9; also in Annex E).same time. This procedure has been adopted to ensure

2.28 The IDA credit will be disbursed the independence of the executing agency inon the basis of the categories shown in Table making payments to contractors, who have9. The closing date will be December 31, had bad experiences with disbursement1998. For categories 1-3, disbursements will procedures pertning to payments frombe made on the basis of declining percentages counterpart funds.of total expenditures over time. These ACCOUNTING, AUDITNG & REPORIINGdeclining percentages will be 95% up to 2.29 The accounting system will be setDecember 31, 1995, and 85% thereafter. up as described in the Manual of ProceduresFor categories 4, 5 and 6 (equipment and (Chapitre VI). A computerized accountingfurniture for public institutions involved,consulting services, and all expenditures sytmwl.eusd hssse wilprovide all the accounting and auditingincu during project preparation) infornation required by IDA. Consolidateddisbursements will be made on the basis of project accounts will be maintained by100% of total expenditures. Conversely, the AGETIPA. These accounts will be auditedgovernment/municipality will disburse 5% up quarterly for the fir six month ofto December 31, 1995, and 15% thereafter of implementation and every semester thereaftertheir common share of civil works, by independent auditors acceptable to IDA,corresponding design and supervision, and according to terms of reference agreed uponexecuting agency operating costs (categories by IDA (Annex I). Auditors will express1-3). The estimated curmulative conrtibution by.A(ne I. Auioswlexrsseparate opinions on SOEs and specialof the government/municipality for each sub- accounts. Project accounts and auditors

Table 9: Disbements by Category

CATEGORY AMOUNT PERCENTAGE FINANCED(SDR '000)

1) Civil Works 9,640 95% of total expenditures for(sumee repairs, rehabilitation of public mm) individual sub-projects initated

up to Dec. 31, 1995; 85% forexpenditures initiated thereafter

2) Design and Supervision of Civil Works 770 idem

3) Executing Agency Operating Costs 720 idem

4) Equipment and Fumiture for public 10 100% of ependituresinstitutions involved.

5) Consulting Services (excl category 2) 1,230 100% of expenditures

6) PPF refinancing 930 100% of expenditures

TOTAL 13,300


reports will be submitted to IDA within three Local advertising will also appearmonths of the close of each period audited. periodically, to inform the privateBesides financial audits, AGETIPA will be construction industry about tendering forsubject to management and technical audits forthcoming projects. The roster will becarried out over the same period. Following divided into four categories: large; medium;its Manual of Procedures and By-Laws, the intermediate; and small enterprises. Theagency will submit monthly progress reports evaluation process will assign engineeringto IDA. Yet, a flexible wording in all firms and contractors ine rested in biddingproject documents and agreements regarding for contracts under the AUWP to a particularthese reports will allow a review of this category under which they will be rankedrequirement, including both format and according to the score they have received.frequency. Within three months of the The actual performance of enterprises whichclosing date, the agency will prepare a are awarded contracts will be assessed, andclosure and assessment report. This report on the basis of this evaluation theirwould precede the preparation of the formal classification may be revised upward orIDA Project Completion Report (PCR). The downward, either in terms of theirappointment of the auditors for a period of classification with the four-fold category orthree years is a condition of effectiveness their rank within a category. Both the initial(para 2.23). evaluation and subsequent reassessment

ftOCUREMENT processes will be transparent and applicantswill be informed of any decision and their

2.30 The procurement procedures were motivation; IDA will review both thediscussed at appraisal and agreed upon processes and selections and satisfy itself thatduring negotiations as part of the Mamnal of procurement has been conducted inProcedures. It is anticipated that all civil conformance with the Manual of Procedures.woris contracts will be under Fmg 390 2.32 The purpose of the roster wi be tomilion (about or less than US$ 200,000). In identify firms wpsch can demonstrate theircase any contract is higher than this value, ility to ch ont the irthe "Bank Sample Bidding Documents for capability to carry out the propose workSmaller Contracts--which apply to contracts effectively and to ensure fair competitionup to US$ 10Omillion in value, greater by far among eligible enterprises. Minimuupa tohe$ valueofany contracts to be tendered classifications will be assigned to proposedthan the value of any oolaowe under cts and all registered contractors willunder AUWP-will be followed under ICB be invited to bid for the highest or lowerprocedure* levels of work for which they have been2.31 AGETEPA will maintain a roster of classed. Notices will be published in thecotractors eligible for Local Competitive local press so as to inform potential biddersBidding (LCB' under the project. Firns who have yet to be registered by AGETIPA.wishing to be registered will be evaluated on Large firms, foreign and local, usingthe basis of fixed, objective criteria following technology-intensive equipment anda process described in the Manual of metiodologies are not likely to be interestedProcedures (Chapter IV, Section I; also in in the type and size of these contracts, butAnnex E). Only the firms registered in the they will not be precluded from bidding.roster will be qualified to participate in the Any firm wishing to sub-contract work undertendering process. Firms can apply for a contact may do so by selecting eligibleregistration at any time. Local advertising, firms, but the intention to do so must beinforming the enterprises of the existence of stated in any bids submitted to AGETIPA.the roster will be made before each contract. The roster will also eliminate the need for

18 MADAGASCAR Antananarivo Urban W,orl Project

SMEs to recurrently prepare complex contract awarding committee, composed ofproposals, compensating for the low lev.el of the Director General of the agency and thesophistication of these finns and opening the Technical and the Financial Directors willdoor to their participation in the bidding for have full authority to select thc winner. Itpublic contracts, an important objective of will have to justify in writing, however, inthe AUWP. They will be required, however, the minutes of the meeting and in referenceto prepare detailed price calculations in to the explicit criteria listed in the biddingpresenting their bid. AGETIPA will orient documents, any decision not to select thethe SMEs in the requirements of bidding and lowest bid. This may happen when the totalassist them in costing through a mnix of bid price is lower than the estimated price byinformation and training programs, including more than 15% and the bidder is unable toin-house consultations, run by specialized provide a credible explanation, or when unitconsultants under the proposed project. prices are erratic or unrealistic. The contract

2.33 Concise bidding documents awarding committee will open the bids inreferring to technical documents and public and the bidding firms or theirstandards available at the AGETIPA library representatives may attend the meeting.(para 2.1 1) will propose a reference price 2.34 For all contracts for which therewith some straightforward explanations about are less than five bidders or for contractsits calculation (unit prices and quantities). with an estimated cost equal to or greaterContractors will be invited to bid by way of than Fmg 390 millions (about or less thandiscounts both on the total price and on the US$ 200,000), or when the lowest bid is notunit prices. Among eligible bidders, the selected, the awarding committee will submitwinner will be selected on the basis of the its decision to IDA for approval prior toproposed discounts and other criteria (such as notifying the wiming bidder. Biddingtimeliness of performance)-if any is documents and bid evaluations of all test sub-specified in the bidding documents-and projects fumded by the PPF and of the firstinvited to sign the proposed contract. The for each type of works or activities will be

Table 10: Procrmeut (US$ '000)

Procurement Method

Local Compettive Bidding Other Consuling N.B.F. TotalServices (lmcl. Taxes)

CONSULTANT - 3,692.9 - 3,692.9(3,037.8) (3,037.8)

CIVIL WORSs 17,997.5 - - 17,997.5(13,946.9) (13,946.9)

EXQ111lEUllGST ~ 63.6 - - 63.6(54.3) (54.3)

RECURRENUT 1,433.9 - - 1,433.9(1,229.6) (1,229.6)

FAC - - 169.7 169.7

Tota 17,997.5 1,497.5 3,692.9 169.7 23,357.6(13,946.9) (1,283.9) (3,037.8) - (18,268.5)

Amounts in parnthesis indicate IDA financing


subject to review by the IDA prior to and the average time needed for the paymentawarding notification to the winning of invoices. Table 11 below indicates thecontractor. A post review of all procurement target set for each year of projectoperatich of the first year of the project will implementation. As for other aspects of thebe carried out by the IDA. Management project, performance of AGETIPA will beaudits will review the compliance of monitored under a 3 year scenario (para.AGETIPA with bidding procedures described 2.50). However, performance indicatorsin the Manual of Procedures and (for ICB) in reflected in the Credit AgreementIDA guidelines and sample bidding (Supplementary Letter NO. 2) will bedocuments. designed for a 4 year disbursement scenario.

2.35 Consultant services for training, 2.38 Supervision Missions. Thetechnical assistance, and project monitoring AUWP will be supervised every fourwill be procured according to IDA guidelines months. Supervision missions will consist ofspelled out in the "Use of Consultants by field trips to visit work sites to reviewWorld Bank Borrower and by the World financial and management practices, bidding,Bank as Executing Agency". However, and payments procedures, as well as theBank's prior review would limit to $ 20,000 development process of small, intennediateor more. For the mode of selection of and medium-scale enterprises. Supervisionconsultant services, the Agency will use missions will also carefully monitor theshort-listing of firms or individuals. The number of registered firms, the mmber ofhiring of indlviduals will be done on the firms bidding and winning contracts and thebasis of adequate advertising and the hiring number of firms receiving technicalof firms will follow the guidelines (Manual assistance. The supervision plan will provideof Procedures, Chapitre IV, Section III, A for combined supervision missions in whichand C). auditors, World Bank supervisors and

2.36 The procurement of goods will be foreign consultants responsible for technicaldone by local shopping. Goods to be and managerial assistance would participate.procured are limited to office equipment and Consultation will include discussions withlight equipment. In the case of AGETIPA, it representatives of core ministries directly oris intended that vehicles will be leased indirectly involved in transport and urbaninstead of purchased. In case of a lack of affami to reforce widespread goveanuentcompetition, the use of Inter-Agency to the objectves and approachProcurement Services Office (LAPSO), would of the project.be considered as an alternative to shopping. ENVIRONMENTAL IMPACT

SUPERVISION PLAN 2.39 On the basis of the expectedenvironmental impact of the sub-projects, the

2.37 Perfonnaee Monitoring. AUWP has been designated a category BPerformance areas include: the establishment project. Its direct impact on theof new firms, the strengthening of exisdng environment-drainage works, sanitation, treefirms, the volume/value of work executed, planting, garbage collection-is expected tothe time required for the processing and be positive, and its indirect impact-forexecution of sub-projects, the fee of example, the dumping of refuse-will beAGETIPA as a percent of the value of works regulated under specific provisions in theexecuted, the mnmber of man-months of bidding documents. A review of the impactemployment created, the nmber of concts of the various types of sub-projects will besigned and completed in time and on budget, conducted in the field by local environmental

20 MAa)AGASCAR Antananarivo Urban Works Project

specialists (Annex M). Following the time, increased access to services andapproach used relative to the ERR of employment, and, at least theoretically,individual sub-projects, prior to reduced prices for transport and transportedeffectiveness, the viability of twenty goods and dependent services. Localrepresentative sub-projects will be communities may also benefit by theestablished. The project will provide a increased cohesion resulting fromreview of the assessment format to be used, participatory interaction, the improvedand a methodology workshop will be held to facilities for community events, and evenstrengthen local capacity in environmental benefits to health. Arrangements are beingassessment. sought to contract local specialists associated

SOCIAUL JPACT with the University to design a survey to beadministered at the outset of the project and

2.40 The AUWP will have direct and at one or more later date to provide someindirect benefits on the residents and end index of social impact and the extent ofusers of transport services in Antananarivo. change.These benefits will include reduced transport

Table 11: Key Performac Indicators

Indicator Year 1 Year 2 Year 3

No. of "Contrats de Maltrise d'Ouvrage d6l6gu6e- 20 25 30

Corresponding cumulated amounts (US$ million) 4.8 6 7.6

No. of conacts signed (design/spervion + worb) 90 110 130

No of contracts completed (cumlated) 70 180 300

Percentageof contracts completed in time 80 90 90

Percentage of contracts completed on budget 80 90 90

No. of Medium enterprises promoted 4 4

No. of Small enterprises promoted 8 8

No. of Small enterprises created 6 6

No. of Micro enterprises created 24 24

No. of man-months of employment created 19,000 23,000 28,000

Average time for processing contracts (calendar days)l 30 21 15

% of payments witiin 30 days of invoice receipt 90 95 95

Prorated fee of AGETIPA (% opating costs/ design, 6 6 6supervision and works)

dme betwen bid opening and contact award


ECONOMIC ANALYSIS than that of most other projects; the approach

2.41 The improvements provided by the taken-the project itself serving as asub-projects will reduce vehicle operating demonstration-is considered critical to thecosts, decrease the number of accidents, and building of effective capacity in the provisionshorten travel time, providing a package of of public services. Rather than applyingan economic return sufficient to justify technical assistance to a narrow target of civilinvestmoent, re vicient o tify servants, it seeks to promote ainvesnent subThe viability of twenty comprehensive reform based on a resultsrepresentative sub-projects, including eight orientation and the utilization of the privatetest sub-projects has been detennined and has sco.Tepoe ek opoieareturned an average ERR of 30% (Annex G, sector. The project seeks to provide an1.6). On this basis, there will be no need to enabling environment conducive to thecalculate the ERR for the remaining sub- contracting of municipal services from theprojects to be identified by the municipality, private sector by removing the tendering andprovided they are basically similar in scope supervision processes from existingand impact. bureaucratic constraints. At the same time

and impact. the capacity of the municipality to representOWNERSHIP community interests and technically identify

2.42 The promotion of commitment and sub-projects for consideration by AGETIPAlocal ownership of the project through will be strengthened. Within this context,participatory methodology is central to the cointerests of multiple stakeholders will bedesign of the AUWP. This began during considered.initial consultations with government but was 2.44 Local beneficiary participation willespecially highlighted in the conduct of a be demonstrated as vital to communitylaunch workshop (October 1993) which was satisfaction and support of maintenancechaired by the MAT and in which the programs; the strengthening of the ability ofmmicipality also participated. This approach the municipality to plan on the basis ofhas resulted in a wide range of actions community preferences and to articulateindicating government ownership of the specific rehabilitation needs will promote itsproject. For example, the timely deposit of linkage to the community and provide it alocal counterpart funds-which has been more mningful role; upgrading the capacityeffected-required reallocations in the of small and medium scalenational budget. The MAT and the design/supervision consultants as well asmunicipality have jointly collaborated in construction firms will enable them tousing the advise of the General Manager of support larger works at more competitiveAGETEpA to provide improved sub-project prices; and strengthening the generalidentification, resulting in a loose leaf articulation of interests by stakeholders in theportfolio (Annex L, 7.). The municipality community will provide the basis forhas proposed the establishment of an in- pressure groups to ensure continuedhouse senior management committee to budgetary support for the contracting offacilitate liaison with the Fokontany. The services in the future. This more balancedMinistry of the Inerior, moreover, is approach to capacity building is necessary ifinterested in the project as a means of project results are to be viable andfiurhering decentralization. sustainable.

CAPACITy BUILDING BENEFTrs AND RISKS

2.43 In terms of capacity building, the 2.45 The benefits would be: (i) theAUWP stands from a different perspective availability of a tested model for efficient


contracting-out of infrastructure maintenance, by the agency will reduce the risk of poorleading to lower costs of execution than performance from small firms in thepossible under the force account operations construction and civil engineering industry.of the nmnicipality; (ii) development of about Promptly payment will work as an incentiveone hundred firms in the construction and provide short term cash-flow which oftenindustry in Antananarivo; (iii) rehabilitation constraints effective performance by smallof about 300 km of essential urban roads in firms.turn yielding immediate user savings; (iv) the 2.48 The project contains optinisticcreation of Jobs in an amount of about assumptions concering the rate of70,000 person-months; and (v) the building

of. caact wihntemncplt. disbursements. These assumptions are thebasis for undertaking the project, ie. the

2.46 The project yields economic benefits approach of using an independent agency toin the most productive area, as well as social contract work counterbalances the existingbenefits among the poor. First, it targets the bureaucratic and systemic constraints onarea which generates the majority of GDP in disbursement. These assumptioas wouldthe country and where, because of the high seem strongly validated by the fact that: (i)level of urban congestion, the return on during the nine month test phase-and priorinvestment will be the highest. Second, the to effectiveness-about US$ 900,000 wilimpact on the productivity of the urban poor have been disbursed, and (ii) the average ratewhose incomes are especially constrained by of disbursement of ongoing AGETIP-likeinefficient transport will be large. Many of projects in other African countries isthe sub-projects-for example, markets, comparable (Annex D). Should any delay inparks, sidewalks, and public stairs-direcdy implementing the project occur, due foraffect the social as well as economic well instance to unexpected political interference,being of the poor. non compliance with eligibility criteria, lack

2.47 There are five potential risks: (i) the of maintenance of works already undertakenrisk of insufficient funding will be addressed under the project, or lack in the provision ofby requiring the government to provide its counterpart fimding, it would result in acontribution up-front and progressively lesser volume of works and correspondinglyincrease the proportion of its cost sharing of in an increase in the cost of using AGETIPAworks during project implementation-the (para 2.50).overall issue of resource allocation in the 2.49 A simulation has been carried outtransport sector will be dealt with under a assuming that the project would disburseconcurrent transport sector project; (ii) the according to the longer standardrisk of government interference in the disbursement profile for transport projects inmanagement of AGETIPA will be reduced by Madagascar. Table 12 below shows the mostestablishing adequate procedures for decision relevant changes that would be inferred bymaking early in the project's life; (iii) the the application of the standard disbursementrisk of poor performance by the executing profile (5.5 years versus 4 years) to theagency is negligible since a track record will project. This would result in an increase inhave been established at all steps leading to the recurrent costs of 55% and in thecredit effectiveness; (iv) the risk of failure to contingencies of 160%. Civil works wouldmaintain works already undertaken under the be cut by 10 sub-projects, reducing theirproject will be mitigated by making such number from 75 to 65. In summation, themaintenance a condition for the approval of use of the standard disbursement profile forsubsequent annual work program; (v) finally, the project would result in:the prompt payment for works and services


Table 12: Project Cost Summary (net of taxes and duties)Comparison between disburs as scheduled Vs. the standard disbursement profile

(US$ molion)Expenditure Accounts Brekdown scheduled disbursement standard disbursement

Total TotalL. Investment Costs

A. Civil Works 15.4 13.4B. Goods 0.1 0.1C. Consultancy Services 2.6 3.0

Total Investment Costs 18.0 16.4I. Recurrent Costs

A. AGETIPA Operating Costs 1.0 1.7B. Operating costs under PPF 0.2 0.2C. Technical & Financial Audits 0.3 0.4D. Monitoring of Socia Impact 0.2 0.2E. Monitor. of Env. Imp. 0.0 0.0

Total Recurrent Costs 1.7 2.6m. Contingencies 0.4 0.9TOTAL 20.0 20.0

(i) a cut of US$ 2 million in the 2.50 Although any delay in theinvestement in infrastructure. implementation would not jeopardize the

(ii) a likely loss of 9,000 man-months viability of the project, the project-in the jobs to be created. particularly its contracting-out approach-

(iii) a corresponding increase of US$ 2 will be monitored against the 3-yearmillion in the recrrent and investment scenario with the correspondingconsulting services costs (including expected benefits and allocation ofcontingencies). counterpart finding. However, in order tr

(iv) a doubling in the cost of using reflect both the conservative IDA policy onAGETIPA per dollar invested, disbursement and the special design of theincreasing from 6.2% to 12.5%. project, a mid-range 4-year profile has been

used for intemal portfolio management(Annex D).

24 MADAGASCAR Anananivo Urban Works Project

AGREEMENTS REACHED AND RECOMMENDATION

3.1 The ability of the implementing DUING NEGOTATIONSagency to demonstrate a new way of doingbusiness, as well as the aptitude of the 3.3 The General Manager ofgoverunent to take advantage of this, was AGETIPA participated in the negotiations.tested prior to negotiations. The work During these negotiations, the Convention,program for the first year of project the Contrat de Maftrise d'Ouvrageimplementation will be approved and well dtgu6e, the Manual of Procedures,under way at credit effectiveness. Issues including the accounting system (Chapterrelated to resource allocation in the VI, and Annexes 14-16), and the Statutesinfrastructure sector will be addressed under were agreed upon. Agreements were alsothe transport sector project, which is being sought on (para. 2.23):processed in conjunction with the proposedurban works project. Most conditions will (i) the size, budgeting, and paymentbe met up-front. By the mid-term review, procedures of the financial contributionthe urban infrastructure of Auamanarivo to be made by the government andwill already be substanially improved. beneficiaries (para. 2.28);This will greatly facilitate reachingagreement with the govermnent on the (ii) the periodicity and the terms ofsensitive issues of the use of the reference for fiancial, managerial andmunicipality's resources and cost recovery. technical audits (2.29);

PIuOR TO NEGOTIATIONS (iii) the scope and date for the mid-term review (para 2.24);

3.2 The following events took place (iv) the resuts of economic rate ofprior tonegotiations(para 2.16): tv h eut feooi aeo

return of the sample of sub-projects; and(i) a PPF advance in an amount ofUS$ 300,000 has been granted; (v) the lessons learned from the

execution of the test sub-projects.(il) the General Manager ofAGETIPA has been appointed and is 3.4 As a result of the positiveacceptale to II)A. The implementing outcome of the test sub-projects and theagency AGETIPA has been registered reconstuction needs in the aftermath of theand granted the status of a public utility; cyclone Giralda, an increase of US$and gmnted the status of a pubhc utihty; 975,000 to the PPF advance was been made

soon after negotiations.(iii) a draft Convention betweenAGETIPA and the government (Manuel IdGALde Procidures, Annexe 8; also in AnnexE) has been signed, as well as a 3.5 The fllowing assurances areConventon de Mattrise d'Ouvrage reflected in the legal documents:deleguee between AGETIPA and the (i) at al tines dui project

n lity (Manuel de )oc es, implementation the Statutes, theAnnexe 9; also in Annex B). Conventions, the Manual of Procedures

and the General Manager will beacceptable to IIDA (para. 2.9);

Section 3 &- reements Reached and Recommendation 25

(ii) the local contribution will be cost of the sub-project (includingshared by the municipality and the operating costs) have been depositedMAT, and wi1l be progressively into the project account (para. 2.28);increased during the project's life asfollows: 5%, and 15% (para. 2.19); (ix) project accounts and auditors

reports will be submitted to IDA witiin(iii) sub-projects will be eligible forfimancing if their counterpart funding is three months of the close of each periodincluded in the annual budget of the audited (para. 2.29).government and/or the municipality.Government/municipality contribution (x) except as IDA may otherwisewill be deposited up-front for each sub- agree, AGETIPA shall submit monthlyproject or batch of sub-projects (para. reports on the progress of the project to2.20); IDA (para 2.29).

(iv) subsequent aual work BOARD PRESENTATIONprograms, including correspondingcounterpart funding arrangements and 3.6 The conditionality for Boardbatch of sub-projects, will be presented review will include the signature of theto IDA by AGETIPA for approval no Convention, the approval and signature oflater than September 30 of each yea the contract of AGETIPA's General(para. 2.24); Manage., and the adoption of the Manual of

Procedures, the Contrat de Maftrise(v) at the mid-term review, aeement d'Ouvrage deleguee, and the Statutes aswill be sought on a plan to insure the amended at negotiations (Para. 2.23).best use of the resources of themunicipality; the adequacy of EE Varragements for selection, financing 3.7 The conditionality for creditand implementation of sub-projects, and The include for 2 reditcost recovery will also be reviewed effectivenesswill include(para. 2.23):(para. 2.24); (i) the approval by IDA of the batch

(vi) payments will be withdrawn from of sub-projects submitted by AGETIPAtwo accounts located in a commercial to be implemented during the first year;bank acceptable to IDA (para. 2.25); (ii) the deposit into the project

(vii) at all times, the special account account by the government and thewill be mainhined and operated on municipality of at least US$ 300,000terms and conditions acceptable to IDA. equivalent (taxes and duties included),The special account will be replenished representing one-third of the counterpartmonthly, provided requests exceed US$ funding for the calendar year 1994;100,000 equivalent (par. 2.26); (iii) an adequae budgetary allocation

(viii) no sub-project shall be considered by the government and the municipality,forfinancing undertheproject, unless a in their respective annual budgets,forn rat de Mgutse d'Owrage dunlessa representing the total estimatedhas been signed beuween the counterpart fiuding for the first year ofmunicipality and AGETIPA, and the project implementation; andcounterpart funds required to cover the

26 MADAGASCAR An_aivo Urban Works Project

(iv) the appointnent of auditors for a of SDR 13.3 million or US$ 18.3 millionperiod of three years. equivalent (Fmg 36 Lillion) to Madagascar

on standard IDA terms.3.8 Subject to the above conditions,the proposed project is suitable for a credit

BiblioRavh 27

BIBLIOGRAPHY

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9. R6publique D6mocratique de Urban Sector Review, World Bank ReportMadagascar, Ministere des Travaux No. 8835. Washington D.C., June 1991.Publics, Direction de l'Architecture, de

28 MApAGASCAR Antananarivo Urban Works Project

PARTICIPATION

18. Abed, F.H. "Promoting Popular 26. Moeller, Philip W. HumanParticipation: Some Issues", Paper Resource and Institutional Developmet inpresented at the Workshop on Participatory the Road Sector: Modal Summary Report,Development, The World Bank, February HRID Project, SSATP Program, The26-27, 1992. World BanklUNDP, 1990

19. Bhatnagar, Bhuvan. "Participatory 27. Moeller, Philip W. Guide toDevelopment and the World Bank: Workshop Design. Implementation PaperOpportunities and Concerns," Paper for Malawi Commercial Transport Project.presented at the Workshop on Participatory Blantyre: USAID, 1985.Development, The World Bank, February26-27, 1992. 28. Picciotto, Robert. Participatory

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People: Participant-Observer Evaluation of21. Cemea, Michael. -The Building Development Projects. New York: OxfordBlocks of Participation: Testing A Social University Press, 1987.Methodology," Paper presented at theWorkshop on Participatory Development, 30. Silverman, Jerry M. et. al.The World Bank, February 26-27, 1992. Action-Planning Workshops for

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Community Participation: A Mamal for23. Chambers, Robert. Rural Training Trainers in ParticipatoryAppraisal: Rapid, Relaxed, and Techniques. PROWWESS/UNDPParticipatory, Discussion Paper No. 311, Technical Series. New York, UNDP,Institute of Development Studies, October 1990.1992.

32. Uphoff, Norman. "Approachees24. Dichter, Thomas "Demystifying and Methods for Monitoring andPopular Participation: Institutional Evaluation of Popular Participation inMechanisms for Popular Participation," World Bank Assisted Projects," PaperPaper presented at the Workshop on presented at the Workshop on ParticipatoryParticipatory Development, The World Development, The World Bank, FebruaryBank, February 26-27, 1992. 26-27, 1992.

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BiblioWraph_ 29

TRAINING

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ENVIRONET

37. Engelstad, Sam. Reflections on 40. Kamugasha, B.B. Nganwa, LocalNGOS, the Bank, and the Environment in Participation in Environmental AssessmAfrica. AFTEN Technical Note No. 2, The in Africa. APrEN Technical Note No. 10,World Bank, May 1989. The World Bank, Septmber 1990.

38. Heggie, Ian. Designing 41. Opsal, Knut and Kirk Talbott. TheEnvironmentally Sound Transport Projects. Implementation of the Madagascarlnfasttucutre Notes, No. OT-1. The Environmental Action Plan: PossibilitiesWorld Bank, Washington, D.C. March, and Constains for Local Participation.1990. AFTEN Technical Note No. 9, The World

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World Bank, March 1, 1991.

INSTITUTIONAL AND OTEER

43. Israel, Arturo. Issues for Setfting Up a Plant Pool, December, 1991;Infftruc Management in the 1990s, Vol. 4. Small Contracts Management.The World Bank Disussion Paper No. April, 1993). The World Bank and the171. Economic Commission for Africa,

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No. 9684-BEN. Washington, D.C.,Janary 21, 1992.

Annex A - Econo_ic Data 31

ANNEX A. MADAGASCAR: ECONOMIC DATA

Economic Indexes

1980 1983 1986 1989 1990 1991 1992

GDP (1984= 100) 110 98 103 112 116 109 110GDP/cap. (1984=100) 122 101 97 96 96 87 86

In % of GDPimports 29.70 17.50 14.10 21.40 26.90 26.20 24.50Expots 13.30 10.60 12.00 18.00 15.90 17.30 16.10Investments 15.00 8.40 9.00 13.40 17.00 10.60 8.80Domestic Savings -1.40 1.40 6.90 10.00 6.00 -0.80 0.40Current Balnce 1) -15.70 -8.60 -6.30 -8.70 -12.90 -11.40 -10.10Budgetary Deficit 2) -12.80 -4.70 -8.00 -14.00 -9.30 -12.60 -13.10

1) grants not inchlded2) grants not included, rescEhedulin interests since 1987 incuded

Source: Malagasy Government and World Bank Assessment

Comparative Sodo-Economlec Indexes

population GDP/cap GDP non agric. life % lIteracy % km ofgrowth in (US$) growth employm. expec. men litracy roadssq

% in % in % pop. women kmn

1980-91 1991, 1980-91 1991 1991 1991 1991 1991Malaysia 2.6 2490 5.6 27 71 87 70 122Thailand 1.8 2580 7.8 17.4 69 96 90 143Indonesia 1.8 610 5.8 18.5 60 84 68 115Chli 1.7 2160 3.4 unknown 72 94 93 105Mauritius 1 2420 7.2 21.5 70 86 76 966Madagscar 3 210 0.5 2.7 51 88 73 84Source: World Bank, ILO, UNDP

MADAGASCAR Antananarivo Urban Works Proect

ANNEX B. INSTITUTIONAL SETUP

LEGAL SETUP

f I ~~~~~~~~~~OeSAgvum~~~~~~~( ) M A -

,i tio

OUT FLOW

;? SkgdCo~ndo

Cm~ 3ComADetale eaglae.,g Swd*a

I - ~~~~~~~S4P*1enk

ceuwIsatien Sper#izien 4

Annex B - Institutional Seup 33

CASE FLOW

( MAT, Mudlity

FAGhMA pf*a - - . mm*I-omanewakae

-- eSod~~~*a impmem

34 MADAGASCAR Anananrivo Urban Works Project

ANNEX C. PROJECT COSTSAllocation of Loan Proceeds

IDA(US$ '000)

Suggested Allocation ofLoan Proceeeds

Disbuisement Total Prolect CostLoan Amount % Total Local Forelbn

1. CML WORKS 13,229.9 77.1 17,155.0 17,155.02. DESIGN AND SUPERVISION 1,058.4 77.1 1,372.4 1,372.43. OPERATING COSTS OF AGETIPA 997.6 84.2 1,184.5 1,184.5 -4. EQUIPMENT AND FURNITURE 11.3 93.0 12.2 12.2 -5. CONSULTANCY SERVICES 1,696.4 78.4 2,162.9 1,312.2 850.76. PPF REFINANCING 1,275.0 86.7 1,470.6 1,3735 97.1

Una oatd _ _ _ __ _ _ _ __ _ _ _ __ _ _ __ _ _ _ __ _ _ _

Total 18,268.5 78.2 23,357.6 22,409.8 947.8

Loan amout fianced by IDA continued below.Loan Amuo

Average Disbursement % AllocatedTotal Local Fofelgn Total Unallocated Total Local Foreign

1. CML WORKS 77.1 77.1 - 13,229.9 - 13,29.9 13,229.92. DESIGN AND SUPERVISION 77.1 77.1 - 1,058.4 - 1,058.4 1,058.4a OPERATING COSTS OF AGETIPA 84.2 84.2 - 997.6 - 997.6 997.64. EQUIPMENTAND FURNITURE 93.0 93.0 - 11.3 - 11.3 11.3 -6. CONSULTANCY SERVICES 78.4 77.4 80.1 1,606.4 - 1,696.4 1,015.4 681.06. PPFREFINANCING 86.7 85.8 100.0 1,275.0 - 1,275.0 1,177.0 97.1

Unaoated - -

Total - - - 18,268.5 - 18,288.5 17,490.4 778.1

Loean amts flinanced by IDA

Procuremenlt Arngments(US$ '000)

Prourent MetiodLocal

Compettive Local Direct ConsultingBIdOing tLolna Caontacting Serdces NBLF. Total

CONSULTANT 0.0 0.0 0.0 3692.9 0.0 3692.9(3037.8) (3037.8)

CML WORKS 17997.5 0.0 0.0 0.0 0.0 17997.5(13948.9) (13948.9)

EQUIPMENT 0.0 63.6 0.0 0.0 0.0 63.6(54.3) 54.3

RECURRENT 0.0 0.0 1433.9 0.0 0.0 1433.9(1229.6) (1229.6)

FAC M0 0.0 0.0 0.0 169.7 169.7

Total 17997.5 63.6 1433.9 3692.9 169.7 23357.6(1394.9) (54.3) (1229.6) (3037.8) (0.0) (18268.5)

Note FIges In parenthesis afe the respecte amurts financed by IDA

Procurement Accounts by Fnanciers(Fmg '000)

Goveinm ofIDA FAC Madascar Total Local (Sai. Dutes &

Amount % Amoun % Amount % Amown % For. Exch. Taxes) Taxes

CONSULTANT 5,960,139 823 - 1,285,350 17.7 7,245,489 15.8 1,520,608 4.683,739 1,041.142CML WORKS 27,363,750 77.5 - - 7,947,296 22.5 35,311,046 77.1 - 30.061,954 5,259,092EQUIPMENT 106,564.6 85.4 - - 18,247.6 14.6 124,812.2 0.3 6,003.7 100,759.1 18,049.4RECURRENT 2.412,398 85.8 - - 400,872.9 14.2 2,813,271 6.1 - 2,638,309 174,961AFAC - - 332,9514 100.0 - - 332,951.4 0.7 332,951.4 - -

Total 35,842,851 78.2 332,951.4 0.7 9,651.766 21.1 45,827,569 100.0 1,859,563 37,474,761 6,493,245

Procurement Accounts by Financiers(U1S$ '000)

Govennnet of LocalIDA FAC M_Sar Tota For. (Ead. Dutes &

Amount % Abount % Amowunt % Amount % Each Taos) Taxes

CONSULTANT 3,037.8 82.3 - - 655.1 17.7 3,6929 15.8 775.0 2,387.2 530.7CMLWORKS 13,9.9 77.5 - - 4,050.6 22.5 17,997.5 77.1 - 15,317.0 2.690.5EQUIPMENT 543 85.4 - * 9.3 14.6 63.8 0.3 3.1 51A 9.2RECURRENT 1,229.6 85.8 - 204.3 14.2 1,433.9 6.1 - 1,344.7 89.2FAG - - 169.7 10.0 - - 169.7 0.7 169.7 - -

Total 18,288.5 78.2 169.7 0.7 4,919.4 21.1 23,357.6 100.0 947.8 19,100.3 3,309.5

w

36 MADAGASCAR Antnanaivo Urban Works Prqject

Detaied Costs(US$ '000)

Base 0.81 Totals Ineldint19S4 1996 1SS 1897 TOe 19S4 1996

L Investmnt CoatsA SubProjects

EngieeingStudis & SupeVsion 244.4 526.4 451.2 150.4 1,372.4 244.4 S26.4Street Repair 2,350.0 5,100.0 4,465.0 1,410.0 13,396.0 2,350.0 6170.0Rehabiiafton of Fublcea . 705.0 1,410.0 1,175.0 470.0 3,760.0 706.0 1,410.0

Subtotal Sub-Projects 3;299.4 7,106.4 0,091.2 2,030A 1,S27A.4 3,299.4 7,106.4EL Trining

Training fw SMEs 78.1 104.2 104.2 26.1 312.7 80.7 114.62. Traing¢ VrAGETIPA 104.9 63.9 83.9 21.0 293.8 107.5 90.03. Traking fr Pubgc lnstfiuns 21.0 16.8 16.8 4.2 58.9 2t.7 18.5

Subtotal Training 204.1 204.9 204.9 51.3 665.3 209.9 223.1C. Inrmation Servic 111.6 61.1 61.1 15.3 249.1 116.0 68.4D. Furnme for Public inst. 43 3.2 2.2 1.1 10.8 4.5 . 3.6E. Compementry Technical Studes

1. Otr studies 70.5 50.8 47.0 - 176.3 73.3 65.72. Sectonal Studies 47.0 35.3 35.3 117.5 60.4

Subtotl Comp plm Technlcal Stude 70.5 105.8 82.3 35.3 293.8 73.3 116.2F. PPF refinandng

1. Test Sub-ProjectsExcution of Tet Sub-Prjects 842.5 - - - 842.5 842.5Supervison of Test Sub-Projet 24.7 - 24.7 24.7Engebing studies of test SP 13.8 $- 18. 18.8 -

Subtotal Test Sub-Projects 886.0 - 888.0 86s.02. FurnItures and Equipmnt

Imp. Fum. for AGElIPA 14.9 - - - 14.9 14.9Laoc. Fum. or AGETIPA 28.0 * 28.0 2&0 -

Equpmernt for Publc Indsito 8.6 - - 8. 8.8Subtotal Fumiturs and Equpnt 51A * -I- 51.4 51A.. Training First TncheTrang for Publc Insuos 18.8 - * - 18.8 18.8Tbrann for SMEs 47.0 - - 47.0 47.0

ciad impactnitong Fist Trnhe 18.8 - - 18.8 18.8VisWt mission AGETIP 30.0 - - - 30.0 30.0infnation Svces stftanche 16.8 _ - 18.8 18.8

Subtoal Training First Tnwhe 133.4 _ 1334. Technical Studies

Supply cf Paving Stones 18.8 * - - 18.8 18.8 -

Accounting 9.4 , , , 9.4 9.4Ernironmental Aesmt 54 - - 56.4 58.4Economic Analsis of Ut Proct 28.2 - * - 28.2 28.2Legal Consultation 9.4 - 9.4 9.4Tnfllc 28.2 - - - 28.2 28.2

Subtotal Tehnical Stude 150.4 * * 150.4 160.4Subtotal PPF reinancing 1221.2 1,221.2 1,221.20. FAC Assis for Proj. Prep.

Systfnme e'agrmnt des PME 6.5 - - - 8.5 8.5Dimenlonmt 35.0 - - - 35.0 35.0 -

Ouil indimaquw 11.0 - - - 11.0 11.0 -

Essis de Reaption 32.2 - - - 32.2 32.2Audit TechnIlue 28.0 19.0 19.0 19.0 85.0 28.0 19.0

SubtotalFACAssist for Proj.Prep 112.7 19.0 19.0 19.0 169.7 112.7 19.0Tota investment Cost 5,023.8 7,500.4 6,460.6 2,152.3 21,137.2 5,037.0 7,536.0L RecurnA Costs

A. Opeang Costs ofAGETIPA 279.5 322.5 341.9 84.9 1,028.8 291.6 364B. Opatng Costs under PPF 249.4 - - 249A 249.4C. Tedunica & Finicl Audits 91.7 91.7 91.7 45.8 320.8 94.2 99.3D. Motrngto Scal impact 14.1 80.6 71A 98.7 235.0 14.7 68.8

E. Mentoing of Enironentimpeet 2.4 5.9 5.9 3.5 17.6 2.4 O8

Toa Recurrent Costs 63.0 470.8 510.8 233.0 1,5.6 623 56TOWa 5,66108 7,971.2 6,971.4 2,85.3 22,988.8 5,S69.3 6,063.6

Annex C - Project Costs 37

Breakdown Of Totas t CantL

Confinuencies par. xdl. Outes &193 1997 Total £xch Taxes) TaSs TOl

4512 160.4 1,372A - 1,8s.0 204.4 1,372A4,466.0 1,410.0 133W5.0 - 11,400.0 1,995.0 13.395.01.175.0 470.0 3,760.0 3,200.0 560.0 3.?70.06,091.2 2,030,4 18,527.4 t5.768.0 2,759.4 18.5l.4

121.7 32.3 349.3 142.3 155.0 52.0 349.394.3 24.7 3165 217.7 51.7 47.1 316.519.6 5.2 65.1 26.8 26.8 9.7 e5.1

235S. 63 730.9 366.6 235.4 108o. 70.973.4 19.7 277.4 - 240.3 37.1 7.4

2.6 1A 12.2 11.4 0.8 12.2

56.4 1ssA. 169.2 26.3 196.439.6 41.5 131.5 65. 22.1 16.6 131.596.0 41.5 327.0 89.8 191.3 45.S 327.0

- - 42.5 - 717.0 125.5 642.5- * 24.7 - 21.0 3.7 24.7- - 18.8 * 16.0 2.8 18.8- - 866.0 3 154.0 132.0 866.0

- - 14.9 3.1 5.9 5.9 14.9- - 26.0 - 26.0 2.0 28.0- 6 9.6 - .0 0.6 8.- - 51.4 3.1 39.9 8.4 51A

- - 18s 8.0 8.0 2.8 16-. * 47.0 20.0 20.0 7.0 47.0* 18.6 - 16.0 2.8 18.8- - 30.0 30.0 - 30.0- - 16.8 - 16.0 2.8 18.8- * 133.4 58.0 60.0 15.4 133.4

- - 18.8 - 16.0 2.8 18.8* - 9.4 - 8.0 1.4 94

- - 56.4 24.0 24.0 8.4 56.4- - 28.2 12.0 12.0 4.2 282- - s9A.4 8.0 1A 9.4- - 28.2 * 24.0 4.2 26.2* _ - 150. 36.0 92.0 22.4 150.4- - 1,221.2 97.1 M45s 17s.2 1,2212

- - 6.5 6.5 * s.5- - 35.0 35.0 35.0* t11.0 11.0 * 11.0- - 32.2 32.2 . 32.2

19.0 19.0 65.0 85.0 - 5.019.0 19.0 106.7 169.7 - - 169.7

6,617.8 2,174.3 21,265.7 743.2 17.392.4 3,130.l 2126.7

4168 111.7 1,184.5 - 1,112.7 71.8 1,184.5- * 249.4 232.0 17.4 249.4

104.5 55.0 352.9 204.6 95.7 52.6 352.585.8 127.2 284A4 249.4 35.0 284.47.1 4.5 20.6 * 18.0 2.6 20.6

614.1 298.5 2.091.s 204.6 1,707.9 179.4 2,091.87,131.9 2,472.6 23,357.6 947.8 19,100.3 3,309.5 23,357.6

w00

Expenditure Accoumts by Thisuers(US$ '000)

Goverment of LocalMDA FAC Madeaswr Total For. (Exc. DUt"es

Amount % Amount % Amount % Amount % Exch. Taxes) Taxes

1. Investment CostsA. CMI Wade 13946. 77.5 - - 4,050.6 22.5 17,997.5 77.1 - 15,317.0 2,80.5EL Goods

Local goods 45.3 93.0 - - 3A 7.0 48.7 0.2 - 45.4 3.3Impotted Goods 9.0 60.4 - - 5.9 39.6 14.9 0.1 3.1 5.9 5.9

Subtotal Goods 54.3 85.4 - - 9.3 14.6 63.6 0.3 3.1 51.4 9.2C. Consultancy Services

1. Local Consubln 1,585.9 79.6 - - 406.3 20.4 1,992.2 8.5 - 1,702.S 289.62. Local & Foreign Cosutwnt 480.6 85.1 - - 84.1 14.9 564.7 2.4 232.9 247.8 84.13. Foregn Consultant 411.3 63.5 169.7 26.2 66.7 10.3 647.8 2.8 507.3 73.8 887.

Subtotal Cansultancy Services 2.477.8 77.3 169.7 5.3 557.1 17A 3,204.6 13.7 740.1 2,024.1 440.5Total Investment Costs 16,479.0 77.5 169.7 0.8 4,617.0 21.7 21266.7 91.0 743.2 17,392.4 3,130.1L Reurrent Codst

A. AGETlPAOpeatlng Cods 997.6 84.2 - - 186.9 15.8 1,184.5 5.1 - 1,112.7 71.8S. Operaing Costs under PPF 232.0 93.0 - - 17.4 7.0 249.4 1.1 - 232.0 17.4C. Technical 8 Financil Audih 300A 85.1 - - 52.6 14.9 352.9 1.5 204.6 95.7 52.6D. Monitg of Sodal mpact 242.1 85.1 - - 42.4 14.9 284.4 1.2 - 249.4 35.0E. Monritr. of Env. Imp. 17.5 85.1 - - 3.1 14.9 20.6 0.1 - 18.0 2.6 0

Totl Recurrent Costs 1.789.5 85.5 - - 302.3 14.5 2,091.8 9.0 204.6 1,707.9 179ATotal Disbursement 18,268.5 78.2 169.7 0.7 4,919.4 21.1 23,357.6 100.0 947.8 19,100.3 3,309.5

0

S2.

Expendture Accunts by Fn cers(Pig '000)

Govemrnmnt ofMA FAC Madagascar Total Local (Exd. Duties &

Amourt % Amourt % Amount % Aunout % For. Exch. Taxes) Taxes

L Investment CostaA. Cii Works 27,36W750 77.5 0 - 7.947,296 22.5 35,311,046 77.1 0 30,051,964 5.259.092IL Goods

Local goods 88,908 93.0 0 6,671 7.0 95,579 02 0 89,105 8,475Imported Goods 17.67 60.4 0 - 11.576 39.6 29.233 0.1 6,004 11.654 11.57

Subktal Goods 10,565 85.4 0 18;248 14.6 124.812 0.3 6,004 100,759 18,049C. Consultancy Sevices

1. LoWa Cnsulant 3,111,454 79.6 0 - 797,156 20.4 3,08,610 8.5 0 3,340,366 568.2442. Local & Fosign Consutwt 942,984 85.1 0 - 165,022 14.9 1,108,008 24 456,873 486,111 165,0223. Foreign Consultant 078 63.5 332.951 2.2 13098 103 1270897 2.8 995226 144.743 130,928

Subtotal Consutaney Senvices 4_861.456 77.3 332.951 5.3 1.30 17.4 6,287.513 13.7 1_42.099 3.971.220 884.194Total hwestmentCosts 32,331,770 77.5 332,951 0.8 9,058,649 21.7 41,723,371 91.0 1,458,103 34,123,933 6,141,3351 Recurrent Costs

A. AG iPAOpeat Costs 1,957,230 842 0 - 368,718 15.8 2,323,948 5.1 0 2,183,125 140,8238. OperaIng Costs urder PPF 455,168 93.0 0 - 34,155 7.0 489,323 1.1 0 455,184 34,139C.Techlc&FhlanclAudits 589,301 85.1 0 - 103,128 14.9 692,428 1.5 401,460 187,840 103,128D. MorJoreg ofd Saw Impaot 474,892 85.1 0 - 83,095 14.9 558.057 1.2 0 489,387 68.670E. Monitor. of Enr. Imp. 34.420 85.1 0 - 6.022 14.9 40,441 0.1 0 35,291 5,150

Total RecurrentCosts 3.511.081 85.5 0 593.117 14.5 4,104.198 9.0 401,460 3350.828 351,909Total Disburement 35,842,851 78.2 332,951 0.7 9,651,768 21.1 45,827,569 100.0 1,859.563 37,474,761 6,493,245


Procuement Accounts by Years(US$ '000)

Totals IncludingContingencies

1994 1995 1996 1997 Total

Consultant 1,082.2 1,098.6 1,063.4 460.7 3,692.9CMi Works 3,897.5 6,580.0 5,640.0 1,880.0 17,997.5Equipement 55.9 3.6 2.6 1.4 63.6Recurrent 541.0 364.3 416.8 111.7 1,433.9FAC 112.7 19.0 19.0 19.0 169.7

5,689.3 8,063.6 7,131.9 2,472.8 23,357.6

Disbemt by Quarters

Oftm ndM) (USSmiln)

Fad d 1DA PAC Gay TOM Totl IDA FAC GeV Tax Tota(Ritaxes) (I taxes)

Jun-94 2.902 0 0 384 2,885 1.28 0.00 0.00 0.20 1.47Sep-94 1,650 55 151 213 2.069 0.84 0.03 0.08 0.11 1.05Dec-94 1.650 55 151 213 2,069 0.84 0.03 0.08 0.11 1.05tat 94 5S802 111 301 811 7,024 2.96 0.06 0.15 o0.l 3.58Mar.95 1,650 55 151 213 2,069 0.84 0.03 0.08 0.11 1.05JUD-95 1,650 55 151 213 2,069 O.F 0.03 0.08 0.11 1.05sep-9 5 3,216 9 239 491 3,955 1 s 0.00 0.12 0.25 2.02Dec-95 3,216 9 239 491 3,955 i.64 0.00 0.12 0.25 2.02to 95 9,732 129 779 1,409 12,049 436 0.07 0.40 0.72 6.14Mar-96 3,216 9 239 491 3,955 1.64 0.00 0.12 0.25 2.02Jun.9 3,216 9 239 491 3,955 1.64 0.00 0.12 0.25 2.02Sep-96 2,576 9 299 614 3,498 1.31 0.00 0.15 0.31 1.78Dec-96 2,576 9 299 614 3,498 1.31 0.00 0.15 0.31 1.78tot%9 11,53 37 1,076 2,211 14,907 5.90 0.02 0.55 1.13 7.60Mar-97 2,576 9 299 614 3,498 1.31 0.00 0.15 0.31 1.78Ju-97 2,576 9 299 614 3,498 1.31 0.00 0.15 0.31 1.78Sep9 7 894 9 101 208 1,213 0.46 0.00 0.05 0.11 0.62DecI97 894 9 101 208 1,213 0.46 0.00 0.05 0.11 0.62tot97 6,939 37 8e0 1,645 9,422 354 0.02 0.41 0.84 4.80M-98 894 9 101 208 1,213 0.46 0.00 0.05 0.11 0.62Jun-98 894 9 101 208 1,213 0.46 0.00 0.05 0.11 0.62ttgo 1,788 19 203 417 2,426 0.91 0.01 0.10 0.21 1.24Toed 35,843 333 3,159 6,493 45,828 18.27 0.17 1.61 3.31 23.36

Annex D - Disbursement Proffle Comparson 41

ANNEX D. DISBURSMNT PROFLE CoMPAAuoN

As for other AGETIP-type projects, and especially because of a formative preparation phase,this project is likely to follow a fast disbursement pattern (Section 2, para 2.48-2.50).

Antananarivo Urban Works ProjectVs.

Three year investment scenario, other AGETIP projects, Transportation sector in Madagascar,Transportation & Urban sectors in Afica

Semester 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16Urban Works Project IS 23 37 53 68 80 91 96 100Three yearinvestment 14 29 44 60 78 96 100Other AGETIP proects 18 21 49 66 - - -Transport-Madagascar 0 3. 10 14 26 46 54 62 70 78 90 94 96 98 100Transort-Africa 0 3 10 18 26 38 54 62 74 82 86 94 96 98 100Urban-Africa 0 6 10 14 22 30 38 50 58 70 7882909498 100

100so60J4 01

20

Antnanavo Urban Works Project

100.090.080.0 AGFP disbursement profile.

70.0 Threeyear inmstment scenario60.0

'It 50.040.0 . / > Scheduled disbursement30.0 - / St rddisbursement profile (see Section 2,2.49)20.010.0

1 2 3 4 5 6 7 8 9 10 11

Semeste

Comparnson between the disbursement as scheduled, the standard disbursement profile, theAGETIP disbursement profile, and the three year invesatnent scenario

(Section 2, para 2.48 and 2.49)

42 MADAGASCAR Antananadvo Urban Works Project

ANNEX E. EXTRACTS FROM MANUEL DE PROCEDURES

CHAPrrRE I. RAISON SOCILE

Section I. Rappel des objectifs de l'Agence

A) Objectifs gindraux

Le gouvremement de la R6publique de Madagascar, avec le concours de 'I0DA et du FAC,participe au financement d'un projet de r6habilitation de la voirie urbamne, des espaces verts,escaliers et autres flieux publics de l'agglomeration du gand Antananarivo.

Ce projet a recours i une structure de type priv6, qui agit comme maitre d'ouvrage d&61gu6. IIs!agit de rAgence d Ex6cution des Travaux d'Infastructures Publiques d'Antananvo (AGE1IPA).

Les objectifs g6ndraux du projet sont les suivants:

(i) r&abilitation de la voirie et lieux publics d'Antananarivo par l'execution deprogrammes annuels de travaux;

(ii) d6veloppement et renforcement du secteur prive du biatiment et des travaux publics(bureaux d'6tudes et PME locales), en leur confiant les 6tudes et lrex6cution destravaux d'entretien d'infrastructures;

(fiii) am6lioration, a travers rex6cution des travaux finances dans le cadre du projet, dusavoir-faire de la main-d'oeuvre employee, de la competitivite des entreprises quiseront charg6es des chantiers, et de refficacit6 des institutions publiquesimpliqu6es;

(iv) cr6ation d'emplois,

(v) renforcement des perfomances des administrations publiques; et

(vi) participation des communaut6s locales et des usagers dans le processus de d6cisiondes autorit6s municipales.

B) Object[fs spEclfiques

Dans la poursuite de ces objectifs g6n&raux, les objectifs specifiques de l'AGETIPA en tant quebureau de mettrise d'ouvrage d6l6gu6e se traduisent par les actions suivantes:

(i) introduire des proc6dures simplifiees et moins contraignantes, mais n6eanmoinstransparentes et controlables qui puissent servir plus tard de r6f6rence d'efficacit6pour 1Administration dans la gestion des march6s publics;

Annex E - Extracts from Mansuel de Procedures, Chapitre I 43

(ii) encourager lbsage des m6thodes a haute intensit* de main d'oeuvre, chaque foisqu'elles presentent une efficacit6 6conotique, en contribuant sinsi i la creationd'emplois;

(iii) informer sur le projet les parties int6ressees, par des moyens de large diffusion, etpar des s4minaires touchant une audience plus specifique;

(iv) organiser des seances de formation pour les PME sur les sujets de la constructionet du management; et

(v) assurer lrex6cution d'6tudes d'impact et d'6tudes techniques liees au projet.

Section H. Pr*ogatives et responsabilitEs de l'Agence

A) Approche propos6e

Pour r6pondre a ces objedfs, rAgence s!appuiera essentiellement sur le secteur priv6, enfavorisant la participation de bureaux d'etudes et d'entrepreneurs aux marches de travaux derehabilitation et d'entretien d'infitructures urbaines sous sa responsabilite.

Les proc6dures appliquees par rAgence, agissant en tant que bureau de ma"trise d'ouvragedeleguec pour amenager et gerer un marche de travaux urbains, serviront de reference d'efficacitepour rAdministraion.

Le statut et les responsabilites de l'Agence, et d'une facon gdnerale, ses rapports avec les maitresd!ouvrage sont fixes dans une convention entre le gouvernement et rAgence.

Cette convention d6ternine avec precision:

Le domaine et les modalites dintervention de rAgence dans le cadre de travauxurbains;

* Le mode de financement de rAgence;

* Le personnel de direction, rassistance technique et les moyens humains a mettre enplace; et

* Les obligations et avantages rEciproques des parties sur la rEalisation de travaux etle soutien aux P.M.E.

Les modalites d'application de cette convention et les conditions associees a la participation desP.M.E. aux marches de rEhabilitation et d'entretien dinfrastructures urbaines souligneront lespoints suivants:

* Statut autonome et prive, avec une remuneration liee aux marchEs exEcutEs;

* Direction de 'Agence confiee a une equipe recrut6e panni des cadres superieurs denationalit6 malgache, issus du secteur prive;


* Assistance technique ponctuelle aupres de la direction de l'Agence, compos6e deconsultants;

* Autonomie de fonctionnement pour la gestion des march6s;

* I6l6gation du pouvoir de PEtat l'autorisant a signer les marches;

* Autorit6 entiere sur les decisions concernant ragriment et le reglement descontractants;

* Gestion de ses ressources et de la r6muneration des contractants;

B) Fonctions de l'Agence

L'Agence assure comme fonctions principales:

(i) Evaluation et classement des entreprises et des bureaux d'6tudea et de supervsion;

(i) Classement et repartition en lots des travaux de rehabilitation et d'entretien;

(iii) Pr6paration et attribution des march6s de travaux, d'etudes et de supervision;

(iv) Suivi et contr8le des travaux et des prestations de service des bureaux d'6tudes etde supervision;

(v) Conseil et formation des P.M.E. en gestion-organisation-financement et dans desdomaines techniques, au besoin par le biais de consultants;

(vi) Mission d'information sur le projet de voine urbaine d!Antananarivo;

(vii) Organisation de seances ou les communautes locales et des usagers participent auprocessus de decision des autorit6s municipales;

(viii) Suivi des etudes techniques et d'6tudes d'npact liees au projet; et

(ix) Gestion comptable autonome pour le reglement des contrats, et pour subvenir ises frais de fonctionnements.

Ces difftetes fonctions ne pourront Otre remplies que dans la mesure oi l'autonomie delAgence, consacree par les statuts et par les conventions qui lient rAgence au gouvernement etaux b6n6ficiaires, sera respect6e.

Pour mener a bien sa mission, 'Agence disposer de moyens humains dont reffectif sera reduit, etde moyens mat6riels strictement indispensables.

Le programme des travaux ainsi que la liste actualis6e des P.M.E. agr6es (entrepreneurs etbureaux d6tudes et de supervision) seront regulierement publi6s.

Enfin, les op6rations de lAgence seront contr8l6es piriodiquement au moyen d'audits, A la foistechniques, et financiers, qui entraineront le cas ech6ant, des sanctions et r6siliations de march6s.

Annex E - Extracts from Manuel de Procedures, Chapitre I 45

C) DfInItIons et abr4vlatlons

Los teomes suivants seront utilises dans le Manuel de Procedures:

- pour la programmation des activites ,

Un programme est defini comme un ensemble de sous-projets ayant une certaine complementariteet soumis a PAgence pour accord.

Un 3ous-projet est une activite singuliere et bien definie, par exemple: la r6habilitation dun reseaud'assanissement, la reparation et rentretien de voies urbaines, le curage de collecteurs etc...

- pour rexecution des sous-projets:

Mitre de lOuvrage pour designer les proprietaires6neficiaires des ouvrages construits

Maitre de l'Ouvrage delguE pour d6signer le deldgataire de la responsabilite des maitresd'ouvrage pour les directives de construction et le paiement des entreprises.

Maitre d*Oeuvre pour designer les operateurs (bureaux d6tudes et de supervision) chargEstechniquement de la conception, de la direction et du contr8le de la bonne execution des travaux.

Entrepreneur pour designer l'entrepzise de construction chargee de la realisation technique destrvaux

BE Bureau d'etudes et de supervision

DAO Dossier d'appel d'offles

CAE Conuission d'agrEment des entreprises et B.E.

PME Petites et moyennes entreprises

ONG Organisation non gouvernementale

AT Assistance Technique

BTP B&timent et Travaux Publics

46 MADAGASCAR Antnanarivo Urban Works Poect

Section II. Contllts d'lnterts et obligations du personnel de l'Agencevis-Avis de l'estErieur

Le personnel de rAgence ne peut d6tenir, directement ou par personne interposee, aucun int6retdans des entreprises ou exercer des responsabitit6s dans des institutions publiques ou priviesappel6es a entretenir des relations commerciales avec lAgence ou a b6neficier de 1'activit6 decelle-ci.

11 ne peut percevoir aucune r6mun6ration, comniission ou honoraire sous quelque forme de la partde ces mnmes entreprises ou institutions.

Tout agent est tenu lors de son recrutement par l'Agence, de remplir une declaration etablissant lalste de ses enf.agements, inter&s ou participations susceptibles d'entrer en conflit avec la rVgleci-dessus. 11 dispose alors dun d6lais dun mois pour se lib6rer de tels engagements, int6rts ouparticipations. Laccomplissement de cette obligation eat une condition expresse de sonrecrutement d6finitif.

En application de la Convention qu'eile a sign6e avec l¶Etat, rAgence est investie dune mnission deservice public.

A ce titre, le personnel est soumis a une obligation de r6serve, d'impartialit6 et de disciplineshnilaire a celle qui s'inpose aux agents de la Fonction Publique. Le personnel de 'Agence nepeut publiquement se livrer A une critique ouverte de ses sup&rieurs hi6rarchiques ou des autoritdspubliques. De meme, il no peut pas se livrer A des propagandes politiques ou religieuses dansrexercice de ses fonctions.

Le personnel de lAgence est tenu a une impardalite absolue et il doit traiter de maniere 6gale lesusagers du service public et les contractants en relation avec rAgence. Le personnel de l'Agencedoit enfin faire preuve onvers IEtat de la loyaut6 exig6e des concessionnaires de service public.

Amnex E - Extrcts from Manuel de ProcEdures, Chapitre I 47

CHAPiTRE nV. GESTION AMONT DES SOUS-PROJEMS

Section 1. S6ection des entreprises et des Bureaux d'Etudes (B.E.)

A) S6lection d'entreprises et B.E.

* Au debut de ses activites l'Agence mettra en oeuvre une campagne dOinformation, sousforme de conmunications r6gulieres aux m6dias sur les missions de l'Agence et les march6s alancer (ournaux, radios, t6l6vision)

* On proc6dera i une distrbution de tracts et de brochures simples dans le bureaud'accueil de rAgence et on mettra en place un systeme d'affichage dans les bureaux desadminstrations concernmes et des organisations professionnelles du secteur.

* A tout moment une entreprise ou BE pourra pr6senter sa candidature a ragr6ment der'Agence, pour figurer sur son fichier.

* 11 sera effectu6 une evaluation prelininaire de chaque entreprise ou B.E. candidate, aumoyen d'un questionmaire et de fiches normalis6es comportant 10 rubrques ainsi que desdocuments suivants:

1) la raison sociale de I'entreprise, son statut, son siege social, son num6ro dinscription aurogistre du commerce, le montant de son capital social et le nom et Padresse de la personnehabilit6e & repr6senter rentreprise,

2) une attestation bancaire pr6cisant sous queUes conditions rentreprise peut beneficier d'unecaution,

3) une declaration certifiant que les dirigeants do la soci6t6 ne tombent sous le coup d'aucuneinterdiction d'exercer,

4) la d6limitation de la zone urbaine ou peri-urbaine sur laquelle r'entreprise est pr&e kintervenir,

5) une liste de r6f6rences relatives aux cat6gories de travaux pour lesquels rentreprisedemande son classement comme entreprise qualifie; chaque r6f6rence sera accompagnee desindications suivantes:

(a) description sommaire des travaux et corps d'etat traites par rentreprise,(b) partie contractante et propri6taire des ouvrages,(c) montant du marche et type de march6,(d) duree du chantier depuis l'ordre de service initial,(e) statut du chantier (en cours, termine, r6ceptionn6 provisoire, r6ceptionn6 d6finitif),(f) date pr6vue ou constatee de fin de chantier,(g) statut du narche (sold6 ou non),

48 MADAGASCAR AntaDanarivo Urban Works Project

6) deux derniers bilans et comptes de r6sultats lorsqu'une tenue de la comptabilit6 existe,

7) liste du personnel avec fonctions et CV du ou des cadres dirigeants, i r'aide dt un pro-formadistribue,

8) liste du materiel et des equipements avec age, date et valeur d'acquisition, a laide duu pro-forma distribu6,

Un exemplaire du questionnaire et d'une fiche d'entreprise sont joints en annexes.

B) Criteres d'agr&nent pour les entreprises ou les B.E.

* Dans le cadre de travaux, rexamen des entreprises candidates a l'agr6ment de rAgencesera mene par une Commission d&Agr6ment des Entreprises - C.A.E. - compos6e du DirecteurGen&al de l'Agence, de son Directeur Technique et de son Directeur Financier.

* Cette commission dressera un proces-verbal a l'issue de chacune de ses reunions.

* Cette commission statuera sur racceptation ou le refus de la demande d'agr6ment duneentreprise candidate, et notifiera cette entreprise sur sa decision dans un delais d'un moismadmum.

En cas de reflis, les motifs du rejet sont fournis a rentreprise qui ne pourra presenterune nouvelle demande pour la mEme categorie avant un delai de 6 mois.

* Les entreprises seront regroup6es en quatre classifications, en fonction de leur chiffed'affaires moyen sur les 3 dernieres ann6es ( 1 US $ _ 2 000 FMG):

(a) micro-entreprises de CA > 50 MFMG soit CA > US $ 25 000 /an(b) petites entreprises de CA > 250 MIFMG soit CA > US $ 125 000 /an(c) moyennes entreprises de CA > 1 250 MFMG soit CA > US $ 625 000 /an(d) grosses entreprises de CA> 6 250 MFMG soit CA > US $ 3 125 000 /an

* Les criteres retenus pour agreer les entreprises d'une classification donnee, dans une ouplusieurs categorie(s) de travaux seront au nombre de trois, par ordre hiearchique:

1) Structuration en personnel et mat6riel (pond&r6 par 40)2) Professionnalisme (pond6r6 par 30)3) R6frences g6n6rales sur les 3 derniers exercices (pond&6 par 30)

Un score sera calcuIl pour chaque entreprise, a partir d'une addition des notes de 0 i 5obtenues pour chaque critere et pond6rees de 30 a 40, la fourchente des scores se situant entre50 minimum et 500 maxmum.

* Ce score pernetra d'6valuer les entreprises A l'int6rieur d'une m me sification,pour les rattacher a des categories de travaux (voir section II.B & C).

* Le calcul des notes obtenues dans chacun des trois critres sera le meme pour lesentrepnses et les bureaux d'etudes, et sera fonction des CA et Valeurs Nettes Comptables -

Annem E - Eacts from Manuel de Procedures, Chaptire IY 49

VNC - compar6s aux seuils de CA dans chaque classification, des effectifs des ingdnieurM,cadres et directeurs dune part et de reffectiftotal d'autre part, compar6s a des effectifs minimadans chaque classification.

* La note du critere de structuration sera obtenue par le calcul suivant:

N.struct. = (VNC / CAmin. ) x 0,25 + (EFFECTIF TOTAL I EFFECTIF min.) x 0,25

* La note du critre de professionnalisme sera obtenue par le calcul suivant:

N.prof. = (EFFECTIF INGENIEURS + CADRES + DIRECTEURS) x 0,25

* La note du critere de r6f6rences sem obtenue par le calcul suivant:

N.rf = (CA92 / CAmin. ) x 0,5 + (NOvBRE DE REFERENCES) x 0,25

* Dans le cadre de services, un bureau d'etudes pourra a tout moment demander a &treagre6 sur le registre des BE de l'Agence.

* La m&ne commission statuera sur les demandes d'inscription des bureaux d'etudesapr3 avoir pris Pavis des operateurs ayant passe des contrats avec eux, et ele redigera unproces-verbal de chaque reunion.

* A cet effet, le bureau d'etudes constituera un dossier comportant les donneessuivantes:

1) donnees gen&ales sur le bureau d'tudes (raison sociale, adresse, etc.),

2) noms et qualifications du personnel du BE (niveau d'instruction, ann6e d'obtentiondes dipl8mes, references personnelles),

3) l'exprience specifique du BE et liste des refeences,

4) d6limitation de la zone urbaine ou p6ri-urbaine dans laquele le BE acceptedintervenir.

* Le Directeur Gen6ral notifiera la d6cision de la commission et, le cas 6ch6ant, lesmotifs du rejet dans un delai dun mois a compter de la r6ception de la demande.

& Un bureau d'6tudes ayant fait lrobjet d'un rejet ne peut presenter de nouvelle demandeavant un d6lai de six mois.

* Les bureau d'tudes seront regroup6es en trois ctassifications, en fonction de leurchiffe daffairs moyen sur les 3 dernieres ann6es ( 1 US $ _ 2 000 FMG):

(a) petits bureauxd'etudesde CA> 5 MFMG soit CA US $ 25 000 /an(b) moyens bureaux d'6tudes de CA> 250 MFMG soit CA> US $ 125 000 /an(c) gros bureaux d'ftudes de CA >1 250 MFMG soit CA > US $ 625 000 /an


* Les criteres retenus pour agr6er les bureau d'etudes dune classification donn6e, dansune ou plusieurs categorie(s) de services seront au nombre de trois, par ordre hi6rarchique:

1) Professionnalismne (ponder6 par 50)2) References generales sur les 3 derniers exercices (ponder6 par 30)3) Structuration en personnel et materiel (ponder6 par 20)

* Un score sera calcul6 pour chaque bureau d'6tudes de la meme facon queprecedemment, a partir dune addition des notes de 0 i 5 obtenues pour chaque critere etpond6rdes de 20 A 50, la fourchette des scores se situant entre 50 minimum et 500 maximum.

* Ce score permettra d'evaluer les bureaux d'etudes i rint6rieur d'une memeclassification, pour les rattacher a des cat6gories de services (voir section IIB & C).

* En regle g6nerale, la correspondance entre seuils minima de CA et effectifs minimasera la suivante:

a) CA niin. =6 250 M.FMG correspond a un effectif minimum de 300 personnesb) CA min. =1250 M.FMG correspond A un effectif minimum de 60 personnesc) CA min. =250 M.FMG correspond a un effectif minimum de 30 personnesd) CA min. =50 M.FMG correspond a un effectif minimum de 15 personnes

C) Evaluation des performances des enteprises et B.E. en fin de marchde

* L'6valuation des entreprises sera actualis6e a lrissue de chaque march6 et servira a lafois de point de depart du conseil a apporter aux P ME. et de test final d'auto-6valuation dur6sultat de rappui de l'Agence apport6 aux P.M.E.

* Lanalyse des aptitudes des entreprises bas6e sur les performances constatees au coursdes chantiers permettra de reclasser ou declasser ces entreprises pour des marches futurs.

* Dans le cas de d6fillances reconnues en cours de march6, rAgence pourra etre amen6eA r6silier ce march6, ce qui entrainera automatiquement la suppression de ragr6ment accord6 il'entreprise.

* Les entreprises ayant ex6cute des travaux pour le compte de rAgence, dans desconditions de coCt ettou de d6lai d6passant 30% des estimations initiales concemnant lestravaux definis dans le march6 seront declassees, sauf si l'Agence estime que les d6passementssontjustifis. Le reclassement de rentreprise concern6e pourra 8tre r6examind apres un an.

* Les crit&es dW6valuation des performances des entreprises sur chantier seront basessur:

a) qualit6 des travaux selon les normes exig6esb) respect des d6lais d'ex6cution fix6sc) utilisation rationnelle et entretien du mat6rield) organisation et gestion du personnel de Pentreprise sur chantier

Ann= E - Extracs from Manuel de Procedures, Chapitre IV 51

La note finale de 0 A S viendra remplacer la note initiale du critere de professionnalisme.

* L'6volution des notes relatives aux r6f6rences et a la structuration en personnel etmateriel permettra d'evaluer l'impact des chantiers r&iis6s.

* La promotion des entreprises sem mesuree par F6volution du score a la suite desdifferents march6s de travaux, d'etudes ou de supervision.

* JUne entreprise ou un bureau d'etudes dont le score aura progresse de f&ton notablepourra etre pr6qualifle(e) pour une ou des cat6gorie(s) de travaux ou d'6tudes superieures eteventuellement changer de classification au vu de son chiffie d'affaires.

D) Gestion et mise a jour de la base de donnEes sur les entrepris et B.E.

* Le personnel de l'Agence b6n6ficiera d'un materiel nicro-informatique simple pourg6rer des bases de donnees a la fois sur les entreprises, les march6s et les donn6es6conomiques du secteur.

* La notion d'entreprise agree par lAgence correspondra a une cat6gorie de prestationsd6termin6e, et serira de r6ference pour r6laboration de la liste des pr6qualifi6s sur un march6donn6.

* La base de donnees des entreprises sera compos6e des entrepises de travaux et desbureaux d'6tudes et de supervision, et sera croisee avec le classement des travaux et desprestations de service correspondant & la classification de 1'entreprise.

e La gestion de cette base de donnees permettra, grace a une actualisation penianente,de produire les informations contenues dans les rapports trimestriels parni lesquelles:

a) entreprises sous contrat sur des marches en coursb) prestations de conseil et formation apport6es aux entreprisesc) performances des entreprises a l'issue des deniers march6s ex6cut6sd) cumul des montants des march6s gagnese) promotion d'une entreprise au cours des differents march6s

* La liste des entreprises agreees sera publiee chaque mois en annexes du rapportmensuel, pour 6tre mise i profit par le MAT et les administrations concernees, ainsi que parles differents projets d'aide aux;PME et les organismes financiers.

* Le fichier des bureaux d'6tudes et de supervision agr6es sera mis i jour avec l'aide dunbureau intemational d'ingeni6eie routiere qui sem charg6 de raudit technique de lAgence etdes bureaux d'etudes et de supervision sous contrats de maitrise d'oeuvre avec elle.

52 MADAGASCAR Antananauivo Urban Works Prqect

SECTION UI. SElection et classement des travaux

A) Critbres I retenir pour lo classement des travaux

* L'Agence en tant que Maittre d'Ouvrage delegue et les bureaux d'etudes et desupervision recrutes par rAgence en tant que Maitres d'Oeuvre delegu6s sur des marchEs detravaux d6finis, joueront pleinement leurs r8les et assureront totalement les responsabilit6s quileur incombent, en jouissant des prerogatives qui leur reviennent.

* Tous les travaux d'entretien d'infstructures y compris les chantiers pilotes, auxquelsparticiperont les entreprises agr*es par rAgence en tant quEntrepreneur, seront mendsconform6ment au code des marches publics (exception faite des exonerations de cautions).

* Les travaux susceptibles '&tre ex6cutis dans le cadre de rAgence, sont classEs parordre croissant de technicit6 et comprendront pour le niveau I de faible technicit6:

(A) Travaux manuels de dEbroussaillage de talus et trottoirs, curage de buses, caniveauxet regards,

(B) Ramassage ponctuel d'ordures et detritus accumules, nettoyage de fosses, canaux,collecteurs,

(C) Travaux de d6broussaillage et de tenrassement (accotement, talus, gabions), facinagede talus,

(I)) Travaux de cantonage manuel et de point a temps manuel des voies en terre(E) Travaux de plantation d'arbres et de creation d'espaces verts,

3 Les travaux susceptibles detre executes dans le cadre de rAgence, comprendront pourle niveau II de moyenne technicite, les huit categories suivantes:

(F) REhabilitation ou construction de petits ouvrages urbains en maconnerie simple telsquo bordures, avaloirs, caniveaux, regards.

(G) Constructions d'edifices simples, et amdnagement do places publiques et de carrefours(H) Travaux de ressouflage et pose de paves recuperes ou provenant de carrieres(1) Entretien periodique des votes revetues avec de petits echelons mEcanises pour

revetement, et r6habilitation de voies en terre.(J) REhabilitation ou construction de petits et moyens ouvrages de drainagel

assainissement et de franchissement.(K) Rehabilitation et entretien de moyens ouvrages d'art metalliques ou en beton arme(L) REhabilitation d'ouvrages importants de fianchissement en zone urbaine ou pEd-

urbaine,( Rehabilitation ou construction de gros ouvrages hydrauliques, tels que gros

coloecteurs, stations de pompage, regulateurs de niveau etc...

Lorsqu'il propose un sous-projet, le beneficiaire fournit au moins les ronseignementssuivants:

(a) identification du sous-projet. description sommaire, localisation sur carte 1/10 000,serie de photos et dans le cas d'amenagement de carrefour, enregistrement video idifftrentes heures de la journ6e,

(b) objecff et justifications du sous-projet,

Annex E - Extacts from Manuel de Procedures, Chapitre IV 53

(c) evaluation sonmmaire quantitative et qualitative des avantages ou benefices attendusdu sous-projet,

(d) contenu du sous-projet: composantes, description des ouvrages A realiser, phasagepropose,

(e) etat d'avancement des etudes etlou dossiers techniques prealables; date a laquelletoutes les conditions techniques pourraient etre remplies pour demarrer les travaux;

(f) informations concemant tous autres travaux pr6vus a realiser par d'autres recours quelAgence: JIRAMA G.E. p.ex.,

(g) copie des dossiers techniques disponibles,(h) coOt estim6 du sous-projet et decomposition sommaire de ce coOt par nature et le cas

ech6ant par phase,(i) compte rendu des ateliers participatifs avec les recipiendaires et les repr6sentants des

localites vis6es, lorsqu'ils ont et organises.

Un format de presentation est en cours de pr4paration et sera dispornble en decembre 1993.

0 Pour etre eligible au financement de IIDA, le sous-projet doit remplir les conditionssuvantes:

(a) etre inclus dans le classement des travaux ci-dessus,(b) presenter une justification economique et sociale certaine sur la base, par exemple, de

sa similarite avec un sous-projet dont le taux de rentabilit6 interne, calculI lors de lapr6paration du projet, est superieur a 12%,

(c) le coOt total doit 8tre inferieur au reliquat des credits disponibles de rAgence,(d) la duree moyenne des emplois cr,6s par rex6cution du sous--projet doit etre superieure

A deux semaines(e) il doit exister dans ragglomeration d'Antananarivo, au moins deux entrepises

possedant la qualification requise pour executer les travaux,(f) le sous-projet ne fait pas double emploi avec un autre sous-projet dont le financement

est deja assure,(g) le sous-projet na pas te elimine du programme dinvestissement de IVEtat ou de la

collectivit6,(h) le b6neficiaire possede les capacites techniques et financieres pour payer sa

contribution obligatoire au financement du sous-projet, entretenir le resultat destravaux et assurer la maintenance des equipements mis en place,

(i) le beneficiaire peut justifier du degre de participation des populations concernees danslidentification et la conception du sous-projet propose, qui pourrait etre appr6ci6 surla base, notamment, de compte rendu de reunions de concertation avec cespopulations ou de requ&es presentees par eles,

0) le sous-projet n'a pas dcimpact negatif sur renvironnement, ce qui peut etre mesur6 parsa similarite avec un sous-projet qui aura fait l'objet d'une etude environnementale lorsde la preparation du projet.

Chaque type de travaux fera Pobjet d'un marche et constituera un sous-projet gere parrAgence et prealablement evalue au regard de criteres correspondant aux indicateurs suivants:

(i) CoOt total estim6 du sous-projet avant 6tude de prix approfondie,

(id) Delai d'exdcution et programmation des travaux,

54 MADAGASCAR Antananaivo Urban Works Project

(iii) Part de la main d'oeuvre dans le coat estime du sous-projet et dur6e moyenne desemplois cre6s,

(iv) Nature et disponibilit du materiel a mettre en oeuvre pour rex6cution des travaux,

(v) Part des materiaux locaux a fournir pendant la duree des travaux (ciment, fer i beton,bois, bitume, granulats etc),

(vi) Part eventuelle des materiaux import6s dans le coOt total estim6 du sous-projet,

(vii) Niveau de qualification requis des entreprises appel6es a executer les travaux.

B) Relations entre classification des entreprises et cat0gories de travaux

* A chaque classification d'entreprise correspondra une serie de categories de travauxbien definie, a la fois par le degre de technicite requis et par le montant des travaux.

* Les entreprises reparties en quatre classifications seront agreees pour les. cat6goriessuivantes (voir tableau du decoupage des marches pour les P.M.E.en categorie travaux,Annexe 6):

(a) micro-entreprise: tres faible qualification technique, pas de materiel mecanise, seuls lestravaux des categories A - B - C - D - E leurs seront confies d'une maniere generale.

(b) petite entreprise: faible qualification technique, tres peu de materiel mecanise, lestravaux des categories A - B - C - D - E - F - G - H leurs seront confies d'une manieregin6rale.

(c) moyenne entreprise: qualification technique, peu de materiel mecanise, les travauxdes categories A - B - C - D - E - F - G - H - I - J - K - L leurs seront confi6s d'une manieregenerale (meme si les categories A - B - C - D - E ne les concement pas a priori), avec dessous-traitances prevues pour les cat6gories J et K.

(d) grosse entreprise: bonne qualification technique, materiel mecanis6 suffisant, rensembledes travaux des 13 categories A - B - C - D - E - F - G - H - I - J - K - L - M pourront leursetre confi6s d'une maniere generale (meme si les categories A - B - C - D - E ne les concernentpas a priori) avec des sous-traitances prevues pour les categories J et K.

C) Agr&ment des entreprises pour des catdgories de travaux dEfinies

* Differents types de marches seront affectes a rinterieur d'une classification d'entrepriseen fonction du classement des entreprises agreees dans la classification donn6e.

* Ce classement qui reflete le potentiel des entreprises A rinterieur d'une classification,permettra de d6terminer le montant maximum des marchEs pour lesquels les entreprisespourront soumissionner dans leur classification.

a) Micro-entreprises

Les marches interesseront un effiectif de rordre de 60 entreprises agrEecs et seront soit:

Annex E - Extracts from Manuel de Proc6dures, Chapitre IV 55

- attribu6s par appel d'offies dans le cas de petits march6s de duree 3 mois et de budgetde 50 MFMG environ

- rdserv6s dans le cadre de sous-traitance par les P.M.E.: 4 mois et 70 M FMG environ.

- attribu6s par appel d'offres dans le cas de petits marches d¶E.V. de dur6e 3 mois et debudget de 70 MNFMG environ

La moitie superieure du classement des niicro-entreprises sera agr6e pour rensemble des Scat6gories A - B - C - D - E, alors que la moiti6 inferieure sera agree uniquement pour lescat6gories A et B, dans un premier temps.

b) Petites entreprises

Les march6s int6resseront un effectifde rordre de 30 entreprises agr66es et seront soit:

- attribues par appel d'offres dans le cas de marches de duree de 4 a 6 mois et budget de140 et 150 MFMG,

- r6serves dans le cadre de sous-traitance par les moyennes PM.E. et G.E.: 4 mois et100 MEMGet 6 mois et 150 .FMG.

Le classement des petites entreprises dans leur classification pernettra de reserver les soustraitances a la moitie inferieure du classement et les marches des catigories G et H a la moitiesuprieure du classement dans la classification.

c) Moyennes et grosses entreprises

Les march6s int6resseront un effectif de rordre de 10 entreprises agriees et seront attribu6ssur la base d'appels d'offres restreints a des preselections pour des chantiers de 8 mois et de300 MFMG de montants, pour rensemble des cat6gories I - J - K - L, la cat6gorie M 6tantr6servee a la classification des grosses entreprises.Des clauses de sous-traitance au b6n6fice des petites et des nicro-entreprises seront pr6vuespour des pourcentages pouvant atteindre 50%, sur la base des budgets de 300 FMCG.

SECTION III. PrEparation des appels d'otfres et attribution des marchEs

A) Consultation des entreprises et des B.E.

* Dans le cadre d'un marche de travaux, les entreprises seront consult6es sur la based'une pr6s6lection opere, grie a la base de donn6es de l'Agence, a partir de la classificationrequise pour la ou les cat6gorie(s) de travaux, sans toutefois exclure la ou les classification(s)sup6rieure(s).* Toute entreprise r6guliirement inscrite, i la date de lancement d'une consultation estinvit6e par lettre a venir retirer un dossier de consultation au si4ge de rAg.ince.* L'entreprise peut renoncer i presenter une offre sans que ceci ne remette en question nison agrement, ni son classement dans sa classification.* Dans le cadre d'un marche d'tudes et de supervision, les BE seront presdlectionndsgrice au registre de la base de donnaes de rAgence, parmi ceux appartenant i une des troisclassifications suivantes:

56 MADAGASCAR Antanativo Urban Works Project

(a) Gros bureaux d'etudes et de supervision intemationaux et malgaches dont le CA estsup6rieur i 1 250 MFMG ou 625 000 US$.

(b) Bureaux d'etudes et de supervision malgaches de taile moyenne dont le CA est superieur A250 MFMGou 125 000 US$.

(c) Petits bureaux d'6tudes et de supervision malgaches dont le CA est superieur a50 MFMG ou 25 000 US S.

Le registre des bureaux d'etudes, tenu par l'Agence, sera regulierement actualis (au moinstous les six mois) en fonction des prestations de services effectu6es pour elle.

Les bureaux d'etudes n'ayant pas donn6 satisfaction dans le cadre de precedents contrats deprestations de services financ6s par rAgence seront ray6s du registre des bureaux d'etudes.La proc6dure applicable a la selection des consultants individuels etlou bureaux d'6tudes estcelle qui est d6crite dans les "Directives pour l¶Emploi des Consultants" publiees par la BanqueMondiale et rIDA en aoOt 1981.

Les contrats aux bureaux d'etudes relatifs a la maitrise d'oeuvre sont conclus sur la base ducontrat-type en annexe.

La remuneration des prestations des Maitres d'oeuvre au titre de la r6alisation des 6tudes, der6tablissement des dossiers d'appel d'offres, et du controle et du suivi des travaux, est fix6e enfonction du bar&me figurant i Particle 7 du contrat-type.

B) Proc6dures de preparaton des appels d'offres

LAgence doit pr6parer avec raide du Maitre d'oeuvre un dossier d'appel d'offes quicontiendra tous les renseignements dont un sounmissionnaire eventuel peut avoir besoin pourpr6parer une ofiTe concemant les travaux.

Le dossier d'appel d'offres doit ere redig6 de fion i encourager la concurrence; il doitindiquer clairement et precisement les travaux a realiser et leur emplacement, les d6laisdexecution, les conditions de garantie ainsi que toute autre disposition opportune.

En outre, le dossier d'appel doffres precisera, le cas echEant, les essais, les normes et lesmethodes qui serviront a determiner si les travaux executes sont conforimes aux prescriptionsdes pieces contractuelles.Les pieces principales consfituant le dossier d'A.O. sous une forme simplifie, i destination desP.M.E., sont (voir en annexe) 4,5,6, et 7):

* Conditions et formulaires d'appel d'offies. Conditions et formulaires du contrat-type. Prescriptions techniques* Bordereau de prix unitaires et devis quantitatif et estiuatif

Elies comportent les ElEments suivants:

(a) Un projet de contrat conforme au modele-type (oe. annexe S "Dossier-type d'A.O.");

Annex E - Extracts from Manuel de Procddures, Chapitre IV 57

(b) le cadre de d6composition du prix global, indiquant le bordereau des prix unitaires et lecadre du devis estimati£ qui est un document contractuel prioritaire sur les autres; il yfigure une description precise des prestations et services compris dans chacune des tachesfaisant l'objet d'un prix particulier lie A une unit6 de r6f6rence (ml, n2, m3, etc.);

(c) Le devis quantitatif des travaux, assorti d'un metr6 des quantit6s, d'un planning destravaux, de plans de situation ou de plans types eventuels. Le montant estim6 figurant auprojet de contrat r6suke de l'application des prix unitaires aux quantitatifs;

(d) Le cahier des dispositions d'appel d'ofres mentionne notamment:

(i) la liste des criteres que la commission d'attnbution des marches prendra enconsid6ration pour faire son choix lors du d6poAilIement des ofafes;

(ii) la date limte et le lieu de dep8t des offles;

(fii) la date de r6union de la commission d'attn1bution;

(iv) le devis quantitatif et une fourchette de prix de r0f6rence fournis auxsoumissionnaires, A titre d'information, avec une note leur recommandant d'trecapable de justifier chaque prix;

(v) que dans une situation ou' le prix est au-dessous dune marge de 15% pour lemontant global ou 30%/o pour un prix unitaire, la soumission doit inclure unejustification de l6cart observ6.

Les appels d'offires s'adresseront en priorite aux PME locales, originaires d'Antananarivo, maisles autres entreprises, y compris des entreprises plus importantes ou meme 6trangeres, serontautoris6es a participer aux appels d'offres si elies le d6sirent.

Le pix de vente du dossier d'appel d'offles sera de ................ FMG (A fixer).

Les plans doivent etre conformes aux donn6es des prescriptions techniques.

Le dossier devra 4galement indiquer tous les 6l6ments - tmis A part le prix - qui serontconsid6r6s lors de Ievaluation des offres et pr6ciser comment ces 6l6ments seront quantifi6s ouevalu6s.

Si les soumissionnaires sont autoris6s A pr6senter des variantes pour les plans, les mnat6riaux,les delais d'achevement, les conditions de paierments, etc., le dossier devra indiqueroxpress6nent a quelles conditions eUes seront accept&es et decrire la m6thode qui sera retenuepour les evaluer.

Les renseignements compl6mentaires, pr6cisions, rectifications ou modifications relatifs audossier d'appel d'offres devront etre communiqu6s A tous ceux qui auront demande i recevoirle dossier initial suffisamment A Ilavance avant la date de souniission des offles pour permettreaux soumissionnaires de prendre les dispositions voulues.

58 MADAGASCAR Ant=ananvo Urban Works Project

C) Procddures d'Evaluation des offres et d'attribution des marchds

La soumission prend la forme dune Lettre de Soumission dont le modele est en annexe"Dossier-type d' O.", elle est sign6e par le repr6sentant autoris6 de }'entrepdise etaccompagnee des trois pieces contractuelles (projet de contrat, bordereau des prix, detailestimatif) paragraphees apres amendement Eventuel.

La souniission est deposee sous pli cachete dans les d6lais pr6vus et doit obligatoirementpr6ciser:

(a) le montant du rabais 6ventuellement propose par Pentreprise sur le prix de r6f6rence pourrenmnble des travaux;

(b) toute proposition 6ventuelle de modification des prix unitaires mentionn6s dans lebordereau des prix;

(c) toute proposition hventuelle de modification de la dur6e ou du planning du chantier et/oude l'ch6ancier des paiements;

(d) la description des modifications 6ventuelles proposees par rapport t lrorganisation et auplanning des travaux, en fonction des quantit6s de travaux du detail estimatif

Toute disposition du contrat ou des autres documents figurant au dossier d'appel d'offres quine ferait pas robjet d'une proposition de modification dans la soumission est considereecomme acceptee par l'entrepzise.

Seules sont autorisees a soumissionner a rappel d'offres les entreprises inscrites auregistre des entreprises qualifi6es pour ex6cuter des travaux dans la cat6gorie concern6e.

Les procedures concernant lOuverture des plis, I'evaluation des offres et rattibutiondu marche sont les suivantes:

(a) Modalites d'ouverture des pHs.

La seance d'ouverture des plis doit avoir lieu a la date limite fix6e pour la remise des offies outres peu de temps apres. Les plis doivent etre ouverts au moment fixe, en seance publique,c'est & dire que les soumissionnaires ou leurs reprEsentants peuvent ere presents.

Le nom de chaque soumtissionnaire et le montant de chaque offre et de chaque variante quilaura *e autorise ou invite i deposer doivent &tre lus i haute voix et consignes au proces-verbal de la seance. Les offles regues apres le delai fixe doivent Otre rejet&es.

(b) Eclaircissemtents et modifications t apporter aux soumissiomaires.

Aucun soumissionnaire ne peut etre invite ni autorise a modifier son offre apres rouverture dupremier pli. il peut etre demande a tout soutissionnaire de preciser tel point de son ofe, mxfins de l'valuation, mais il ne doit pas etre invite ni autorise a en modifier la teneur ou le prixapres rouverture.

Annex E - Extracts from Manuel de Procedures, Chapitre 1Y 59

(c) Caractere confidentiel de la Proc6dure.

Apres l'ouverture des plis en seance publique, aucun renseignement concernant l'examen desplis, les precisions demandees et revaluation des offTes ainsi que les reconumandations relativesa l'attribution du marche ne doit etre communiqu6 aux sounmissionnaires ou a toute personnen'ayant pas qualite pour participer a la proc6dure de selection tant que le nom du titulaire n'apas ete annonce.

(d) Examen des offres.

Apres la seance d'ouverture des plis, la Commission 'Attributic. doit verifier si les offres:(i) sont dament signees;(ii) sont accompagn6es des cautionnements demand6s;(iii) correspondent pour ressentiel au dossier d'appel doffres;(Iv) ne comportent pas de graves erreurs de calcul;(v) sont, par ailleurs, recevables.

Toute offre qui n'est pas conforne pour l'essentiel aux conditions et specifications du dossierd'appel d'offies, soit qu'elle presente avec celles-ci des differences considerables, soit qu'ollecomprenne des reserves trop importantes, est rejetee. Une fois que les plis ont et6 ouverts, lesoumissionnaire n'est plus autoris6 a corriger ou a supprimer les diffirences ou reservesimportantes.

(e) Evaluation et comparaison des offres.

L'6valuation doit permettre de determiner le cout de chaque offre et de comparer les offresentre elles sur cette base. Le prix de l'offre lu a haute voix lors de la s6ance d'ouverture desplis doit etre ajust6 pour tenir compte de toute erreur de calcul. Si un prix global et des prixunitaires sont respectivement au-dessous de 15% ou 30% des prix de reference, et si lesexplications fournies pour justifier ces ecarts de prix ne sont pas acceptables, cette soumnissionsera rejetee.

La Commission d'Attribution doit etablir un rapport d6taillN sur l'valuation et la comparaisondes offres indiquant les el6ments precis sur lesquels elle s'est fbnd6 pour recommanderrattribution du marche.

(f) Selection des soumissionnaires.

La Commission d'Attribution doit d6ternminer si le sounissionnaire dont loffre a et6 jug6e lamoins disante a la capacite et l'assise financiere voulues pour executer le marche. Les critiresa remplir auront 6te precises dans le dossier d'appel d'offres et, si le soumissionnaire ny repondpas, son offre sera rejetee.

(g) Attribution du marche.

Les marches doivent etre attribues pendant la periode de validite des offres. I ne peut etredemand6 au soumnissionnaire d'accepter, comme condition d'obtention du march6, de secharger de travaux ne figurant pas dans le devis descriptifni de modifier son offire.

60 MADAGASCAR Antnanarivo Urban Works Project

(h) Prorogation de la validite des offTes.

Si des circonstances exceptionnelles justifient une prorogation de la validit6 des offres, unedemande 6crite doit Ctre pr6sent6e A tous les soumissionnaires avant la date d'expiration. Lessoumissionnaires ne doivent pas 8tre invit6s ni autoris6s a cette occasion & modifier leur prixou d'autres conditions de leur offre.

(i) Rejet de toutes les offres.

II n'est pas pefnis de rejeter toutes les offres et d'en demander de nouvelles sur la base desmemes prescriptions techniques aux seules fins d'obtenir des prix inferieurs, sauf au cas odr'offle jugee la moins disante d6passe consid6rablement les estimations de coQts. Au lieu delancer un nouvel appel d'offres, I'Agence peut alors entamer des discussions avec lesoumissionnaire ayant pr6sente rofe la moins disante (ou sAil n'obtient pas de reponseinteressante, avec le soumissionnaire se placant immediatement apres) pour essayer d'obtenirun marche satisfaisant. Le rejet global des offies peut egalement se justifier lorsque celles-cane sont pas conformes pour ressentiel au dossier d'appel d'offres ou qu'il n'y a pas jeu efficacede ia concurrence.

Quand ele rejette toutes les offres, rAgence doit en 6tudier la raison avant de lancer un nouvelA.0. et doit envisager de r6viser des clauses techniques et 6ventuellement de modifier le sous-projet.

Annex E - Extracts from Manuel de Procidures, Chapftre V 61

CHAPIME V. GESTION DES SOUS-PROJETS

Section I. Etudes et Supervision des travaux

A) Etudes

Les contrats d'etudes seront conclus sur la base du contrat-type joint en annexe.

B) Supervision des Travaux

1) Fiches d'Avancement du Chajltier et Relations avec la Comptabilit6 du March6.

A partir des situations de travaux etablies mensuellement par les entreprises et contr6lees parles r.aStres d'oeuvre, la Direction Technique dent a jour pour chaque marche une Fiched'Avancement du Chantier.

Les Fiches d'Avancement du Chantier alimentent les etats recapitulatifs fournis tous les moispar rAgence dans le cadre de ses rapports d'activites.

Apres chaque mise a jour, une copie de la Fiche d'Avancement du Chantier est transmise i laDirection Admnistrative et Financiere qui opere le rapprochement avec la fiche March6 odsont enregistr6s les d6caissements effectu6s sur le marche consid6re.

2) Contr8le des Travaux

Le contr8le direct des travaux par rAgence est une proc6dure exceptionnelle.

La procedure normale consiste i confler par contrat a un maitre d'oeuvre ou a un prestatairede services exterieurs a rAgence l'ensemble des missions relatives a la supervision desentreprises et au contr8le des travaux

Un contrat type de supervision des travaux est joint en Annexe; le maitre d'oeuvre design6 parrAgence assure notamment les fonctions suivantes:

(a) Avant r'attribution du marche:

(i) pr6paration des pieces a caractere technique du dossier de consultation enliaison avec la Direction Technique de rAgence,

(ii) participation en qualite d'observateur a la Commission d'attnbution desmarches,

(b) En cours de chantier:

(i) surveillance continue des travaux par lintermediaire d'u sunveiliant de travauqui est son representant permanent sur le chantier,

(lu) visite hebdomadaire du chantier avec le representant de P'entreprise en vued'identifier les difficult6s rencontrees, de contr8le la qualit6 des ouvrages en


cours d'execution et de donner toutes instmctions n6cessaires pour assurerl'efficacit6 de la poursuite des travaux; cette visite fait l'objet d'un bref compterendu, consign6 dans un cahier de suivi de chantier,

(iii) controle et certification des situations de travaux,

(iv) r8le dfinterlocuteur permanent de rentreprise pour toute question interessantl'execution des travaux,

(c). En fin de chantier:

(i) Assistance technique au maitre d'ouvrage pour la reception provisoire etdefinitive des travaux

3) Contr6le direct des Travaux par l'Agence.

Tres exceptionnellement, r'Agence peut decider d'tre son propre maitre d'oeuvre.

La decision est prise par le Directeur GenEral, sur proposition du Directeur Technique, lorsqueles conditions suivantes sont reunies:

a) II n!existe pas dans le fichier de mai^tre d'oeuvre disponible pour le sous-projetconsiderE, et le projet ne peut 8tre differe,

b) le sous-projet est suffisamment simple pour pouvoir etre contr8le par la directiontechnique,

c) la localisation du sous-projet ntimpose pas au personnel de ragence des deplacementsincompatibles avec l'execution de ses taches habituelles.

C) Superv;ison des Mitr d'oeuvr

* Lune des fonctions essentielies de la direction technique de ragence est de superviser lesbureaux d'etudes agissant pour son compte en tant que maitres d'oeuvre delegues pour lecontr8le des travaux.

* A cet effet, elie proc6dera sans prEavis a des visites inopin&es de chantier auxquelles seraconvoqu6 le maitre d'oeuvre concern6, robjet de ces visites etant de contr8ler la bonneexecution des obligations contractuelles du maitre d'oeuvre.

* L'Evaluation des prestations du maitre d'oeuvre devra donc se referer exclusivement aucontrat de maitrise d'oeuvre qui comprend notamment Pobligation de portee generale faite aumaitre d'oeuvre de respecter les rtg1es de rart.

* Un bureau international d'ingenierie routiere apportera sa caution et certiflera la qualite desprestafions et la rigueur des essais in situ rEalisEs par les maitres d'oeuvre, au cours d'auditstechniques trimestriels qui feront suite a 'evaluation initiale des bureaux d'6tudes et desupervision, effectuee par lui avant le demarrage de ragence.

Annex E - Extracts from Manuel de Proc6dures, Chapitre V 63

Section I. Evaluation des travaux

A) PrEsentation et contr6le des decomptes

* L'agence aura une entiere autorit6 sur le reglement des decomptes mensuels des entreprises

signataires d'un marche avec elle.

* Les marches de travaux seront admnstres suivant les regles du code des marches Publics:

1) Les reglements des P.M.E. seront effectues par ragence-Matre d'Ouvrage DelEgue, ipartir des dEcomptes etablis par elle et correspondant & des situations mensuelles de travauxcertifiees par le bureau de contr8le.

2) Les situations mensuelles de travaux reprendront les quantites cumulees reUllementexecutees et les appliqueront aux prix unitaires qui sy rattachent et qui figurent dans leBordereau de Prix contractuel.

3) Le calcul de ces prix unitaires sera mene a partir du sous-detail de Prix de la tachecorrespondante qui comprendra ou pas les fournitures de materiaux et d'equipernents parlAgence suivant les cas.

* Le visa du bureau de supervision sur les situations mensuolles devra declencher le processusde reglement des entreprises par une simplification de procedures, pour aboutir au paiementeffectif des P.M.E sur compte bancaire au plus tard i J + 30 de la date du visa pour accordsur les situations.

- Les differentes procedures et etapes permettant de respecter ce delai maximum de 1+30seront:

(i) Presentation - examen - contr8le du decompte mensuel i rAgence (avec lasituation) => J+ 5

(d) Visa de la direction technique et transmission i la direction financiere pourpaiement => J + 8

(idi) Controle de la direction financiere, formalites administratives (base de donnees)=>J+ 12

(iv) Signature de rordre de virement par le Directeur Financier et le DirecteurGeneral => J + 15

(v) Montant credite sur le compte bancaire de rentreprise (banque de ragence)=> J+22

B) REception provisoire - vErification

II reviendra i rentrepreneur d'aviser la direction technique de rAgence-et le bureau decontrole agissant en tant que maitre d'oeuvre, de la date d'achevement des travaux pourproceder a la reception provisoire.

64 MADAGASCAR Antananarivo Urban Worss Project

* Une retenue de garantie sera ainsi d6duite de chaque acompte i hauteur de 10% du budgetdu march6.

L'Agence, repr6sent6e le cas 6ch6ant par le mattre doeuvre, convoque alors rentreprise auxop6rations de reception qui ont lieu dans les meilleurs d6lais.

Les vrifications portent sur un ensemble dboprations qui se deroulent chronologiquementcomme suit:

1) La constatation de l'achevement ou de Iinex6cution partielle da travaux et la constatation6ventuelle d'imperfections ou de malfacons,

2) Dans le cas de malfagons ou defaillances graves, I'Agence peut refuser de prononcer lareception provisoire et enjoindre par ordre de service a l'entreprise de demolir les ouvragedefectueux ou non conformes aux stipulations du contrat et de refaire les travaux.

3) le repr6sentant de l'Agence, accompagn6 le cas 6ch6ant du Maitre d'oeuvre et lerepr6sentant de Pentreprise etablissent un proces-verbal de r6ception provisoire des travauxquils signent,

4) au cas ou le representant de Pentreprise refuse de signer, ce refus est mentionne auproces-verbal. Au vu de ce proces-verbal, rAgence decide de prononcer soit la r6ceptionprovisoire sans r6serves, soit la r6ception provisoire des travaux avec r6serves,

5) il notifie alors sa dtcision a rentreprise en lui enjoignant d'executer ou d'achever les travauxomis ou incomplets et de remdier aux imperfections et malfagons constat6es,

6) il fixe un delai a rentreprise pour proceder aux travaux requis. Le d6lai de garantie stipul6au contrat court a compter de la r6ception provisoire. Pendant ce d6lai, rentreprise est mise endemeure par rAgence d'ex6cuter les travaux qui lui incombent au titre de la garantie. Pass6 ced6lai rAgence est en droit de faire executer les travaux mentionnes au proces-verbal der6ception provisoire par une entreprise de son choix aux frais et risques de rentreprise titulairedu march6,

7) le solde des sonunes dues a Pentreprise est normalement pay6 lors de la r6ception provisoiresous d6duction d'une eventuelle retenue au titre des travaux onis, incomplets oud'imperfections et malfacons constatees.

8) Le bureau de supervision etablit alors un proces-verbal de reception provisoire sign6 par luimeme et rentrepreneur, qui permet i Pagence soit de prononcer la r6ception provisoire destravaux, soit la r6ception avec r6serves dans le cas 6ventuel de travaux inacheves ou demal*ons constat6es.

9) Dans ce dernier cas, le d6W de garantie stipule dans le march6 prendra effet a compter decette reception pour la mise en demeure de Ientreprise par r'Agence pour ex6cuter les travauxinachev6s ou recommencer les travaux d6fectueux.

Annx E - Extacts from Manuel de Procedures, Chapitre V 65

10) En cas de refus ou d'inex6cution, I'Agence est en droit de recourir a rex6cution d'office etde pr6lever sur des sommes retenues au titre de la garantie, les sommes necessaires aurernboursement des d6penses engagees.

C) RdEeption d6finitive

-La reception d6finitive est prononcee a la fin du d6lai de garantie par un proces-verbal notifiei 1entreprise.

* Le b6n6ficiaire des travaux peut assister a leur r6ception d6finitive dont la date lui est notifi6epar rAgence au moins cinq jours ouvwables avant cette reception. LVavis du representant delAgence est prepond6rant pour accepter ou refuser la r6ception d6finitive.

* LAgence lib6re alors la retenue de garantie sous r6serve de rextcuion des travaux quiincombent a rentreprise au titre de la garantie.

* II sera important a ce stade, de proc6der avec la contribution du bureau de supervision i unexamen a posteriori du deroulement complet des travaux dans le but d'valuer la performancede rentreprise concern6e, ses progres ou ses d6fililances, pour un reclassement ou und6classement le cas 6ch6ant.


ANNEXE 4. MATRICE DE CORRESPONDANCE ENTRE CLASSIFICATIONSDE P.M.E. ET CATEGORIES DE TRAVAUX

CLASSICATION CATEGORIES 1 CATEGORIES DESIGNATION DES TRAVAUX

DES ENTERISES DE TECHNICITE I DE TECHNICITE 1

Grosmeasre Enmetien/Rabilittion de gms Ouvrs Hydr. ,

CA > 62S0MFMG A-B-C-D-E F-G-H-1-J-K-L(tows us#emeats)

"MyMmes reph A-B-C-D-E L EntredentR6habilitaion de gs O.A

CA > 1 2S0 MFMG K Entretien/Rhabiitation d'O.A moyens

(toN clas_sments) I EntretlenRdhab. d'Ouvrges hydrauliques

I Point I temps urvoie revetue - s6habilit. voies

F

redtesnE_reprl A-B-C-D-E H Ressouflage/Pavage de voies asphalt6es

CA > 250 MFMG a Constuction d'difices simples, amdnag. de carrefours

cassenent danm b

moi superius

caasementdans la A-B-C-D-E F - ST(IQ Sous Traitance ur l'entretien d'O.A moyens

o infdrieure F - ST() Sous Trahace sur 'entretien d'Oovmges hydrauliques

P Rehabilitation/construction de petits Ouvrages Urbains

ficro- Eaitrejwdsu B Travaux de plntations et creation d'espaces veds

CA > S0 MFMO D Cantonage et poinm & temps manuels des voies en term

classe mnt dans Is C Terrassements manuels, talus, gabions

moiti superdeure

classet dan la B CoUecte ponctuell de dechets, detidus accunuls,nettoyage de fosses

mide infiedere A Ddbroussailage de tdus, curages de buses, caniveaux,-__ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ regards.

Annex E - Extracts from Manuel de Procedures, Annexe 5 67

| FCHE INDWIDUELLE D'ENTtREPRISEPage 1

1- DESIGNATION | DK DEBUT D'ACTrVTE: 19..REGISTRE DU COMMERCE: ....... .1

2 - NOM DU GERANT M. Yyy

3- ADRESSE

4 - TELEPHONE TELEX N:FAX N:

5- CAPrIAL SOCIAL ... FMg STATUT JURIDIQUE: S.A.

6 - MOYENS HUMAINS M.O. Travaux Admniastt. Ing6n. & C-ades Directeur & ASS. Effeoif total

300 2 10 2 314

7- MATERIEL-EQUIP-BAT. YVhicules aidiel Mobilier Terrains & Bk Totat Immo.

Valeur neue comptable ==> 120 175 15 | 310au 31112/ 1991

8 - CHIRE DAFFAIRES 1992 | 1991 1990

Production vendue en M. FMG 2500 150 1 - I

9 - TYPES DE SERVICES

rdaliss en 92-91 = - > Usines (LECOFRUIT - PINE SA) Morananga 1Dalobts BDPAISOGEA 1BAtiments divers 1Terrassemnents & VRD I Nosy-Be 1

en cours et k venir en 93 = = > Terrassements & VRD I Nosy-Be 1Dalots BDPAISOGEA 1

Travaux projetds au delk = = > Aquaculture a Nosy-BdUsine-Atelierlnimecuble

10 - REFERENCES ET CONTACTS

Entreprises dtrangres SOBEACOLAS

Orgauismes d'assistance techn. BCEOM

Organismes instiutionnels MTP

Projets de Ddveloppement BDPA

68 MADAGASCAR Anananarivo Urban Works Project

FICHE INDIVIDUELLIS D'ENTREPRISEPage 2

PREVISIONS A 6 MOIS

11 - COMPTE DE RESULTATS SIMPLIPIE 92 12 - BILAN SIMPLIFIE au 31/12/92

Production vendue 2500.0 ACTIFVariat. de Production stock6c 250.0

IMMOBILISATIONS CORP. NETFE 310.0PRODUCTION on 92 2750.0

* VYicules 120.0Matiures & foumit. consom. 1390.0 * Matiel et Equpent 175.0.tansports conaommds 10.0 * Mobilier de bureau 15.0Autres services consommds 320.0 * TarIai

Totl des consommations 1720.0 STOCKS & TRAV. EN COURS 260.0

VALEUR AJOUTEB 1030.0 * Cautons et immo. inoorp. & financ. 10.0* Matwriid et fourniu 200.0

Charges de personnal 520.0 * Travaux en cours 50.0

Iwmts et taxes 8.0 REALISABLES & DISPO. 300.0

Sous traaku tcherons 0.0 * Cr&ances cliens 210.0* Lquisdits & autres rdances 90.0

EXEDENT BRUT D'EXPLOrT. 502.0TOTAL ACTIP 870.0

Chargs et pertes d'exploktion 150.0PASSIF

Charges financitres 0.0Produits financiers 10.0 CAPITAUX PROPRES 377.0

Dotationsuxamotssemnts 70.0 * Capital social 110.0Dotations pour Provisions 0.0 * Report I nouveau & rdseves -13.0

* Rdsultat de l'exeroice 280.0RESULTAT AVANT IMPOT 292.0

DETfES A MOYEN TERME 0.0Resukat xoepionnel -12.0

DETTES A COURT TERME 493.0bnp8t sur les socids (I.S) 0.0

* Dettes fournisseurs 443.0RESULTAT NET COMPTABLE 280.0 * Dettes fises & sociaes S0.

• Concours bancairs & CT 0.0marge sur Production 10.18%marge sur C.A. 11.20% TOTAL PASSIF 870.0

NOTE FINALE DE CLASSEMENT 2.7

Nbre Points Pbidsr Dtail des note13 - Crkitre de strucuration 110 40 2.7 (VNC/1250)0,S + (EFP./60)*0,S14 - Critbre de professionnalisme 90 30 3.0 0,25*(ING. + CADRES + DIR.)1S - Critre de rdferences 75 30 2.5 (CA92/1250)*0,S+0,25*NBRE.REF.

Total 275 100

g >

TAIIIsW CA _i. par Nblre 4 .b1D uation des Catgod Mmot" monjon Mel Nomlm NoCh' Traux MM TrV*- (WS) 'kEflRWUISW cIaa~~~flcaUos tHE ~Tratag dens 1.. mea4sh6 dept e du mereb6 ibs4 fdlslids ja mMV&eIli

apr44. Trey= meebd marc merdad put 1.M rcs to oM___ .FMG p_l'Ag__ deAAM e mob 4 n. a3 ASn3. M atites& Am

P.MJL

Moy_ 1.250 10 Rdbltuam vole. tentm (1) I SO.000 300 S nmo 2 20 2,30.000 700.0 bEblrib (0.625 IL;o s) PoinA & t_1ps at voie rev4 I I 3 a.000 30 8 mob 2 20 3.000e000 0

ivtiaa b. d'Ouna hdsq- (2) J ISO.000 300 8 mob 2 20 2.000.000 eeoI..000 |

Rienb. d' O.A doya t gm (3) K&L&M 150.000 300 Sm oiL 1.5 1i 1.12S.000 1.125,00075 4S, 2M,.000

Peine FAr 250 30 Eandm/R&ab. d'O.Hyad ullqe Str F- . so.000 1o0 4m0. 0.667 20 1000.000 < Sa t de (2)(0.125 Mio S) A__agcont psag. apa vac B 70,000 140 4 mob 0.1 24 1.680ooo

Raeoufige/P.es de vokl *pbhekt H 7S.000 150 6 moll 0.7 21 I.575,000Rablllsai R- depe Is.A.cm Sf P*- STM 75.000 SO 6 maoi 0.5 15 1.12s.000 < -Strdc (3)CoSuISC d'Atifics .upls, catefom 0 a 75,000 150 5 ma 0334 10 750,000

Colede ponceUe ddeddchet B 2s,000 so 3 mois 0.75 45 1.125.000

Micro.Fnuqvh. so 60 Cugso do bum. caneaux. regard.. d&br. A 2S,000 SO 3 mole 2 60 t ,s00.000(0 02S Mbes) CaiWa et po l _temp nmslba SIT D SI(D 35.000 70 4 mois 0.334 20 700.000 <- SMdT(l)

Tume _emet waeel, %k pala_m eHV. C & B 35.000 70 3 mole 0.05 3 10S,IOO

ENSEMBLE DESnR SES to- 293 17M j _

70 MADAGASCAR Atananarivo Urban Works Project

ANNEXE 7. STATUTS DE L'AGENCE

Tr'R I

GENERALITES

ARTIL 01: DENOMINATION

II est cree, conformement aux dispositions de l'ordonnance 60133 du 13 Octobre 1960, entreles personnes physiques et morales ayant adher6 aux statuts, une Association d6nonunee "AGENCE D1EXECUTION DES TRAVAUX D1NFRASTRUCTURES PUBLIQUESDANTANANARIVO (AGETIPA).

ARTICLE 1: SEEGE

Le siege de lAssociation est fix6 a 5, Rue Rainitovo, Antsahavola - 101 ANTANANARIVO.

ARTICLE 03: DUREE

L'Association est constitu6e pour une duree ind6terminde a compter de la date de signaturedes presents statuts.

Elie pourra toutefois fre dissoute en tant que de besoin par decision de rAssemblde Generalesuivant les modalites pr6vues a rArticle 16 des presents statuts.

ARTIC 04: OBlETS

AGETIPA a pour objet de faire ex6cuter des travaux d'utilite publique dans le domaine desinfiastructures et reseaux urbain selon des procedures et techniques qui facilitent Iemergenceet le renforcement des Petites et Moyennes et Entreprises et Bureaux d'6tudes locaux (PME),favorisent la cr6ation d'emplois, et pourront servir de mod6le a d'autres agences a caract6retotalement priv6 pour atteindre des objectifs de mime nature dans le cadre dun contrat demiatrise douvrage d6l6gu6e pass6 avec les Services Publics competents.

A ICLE 05: COMPOSITION

LAssociation se compose des membres fondateurs suivants

1. M. RAJAOBELINA Mamy, Architecte, 13, rue Ratsimilaho - BP 3339;

2. M. RAMANDIMBIARISON Zaza Manitranja, Ing6nieur Civil des Ponts et Chausees,Lot II T 15 B Bis Betongolo - 101 ANTANANARRVO;

3. Groupement des Ing6nieurs Entrepreneurs - Lot VK 73 D Fenomanana - MahazoarivoBP 3126 - 101 ANTANANARIVO;

Annx E - Extracts fom Manuel de Procedures, Annexe 7 71

4. Association des Consultants Malgaches, 33 Lalana Andriba Mahamasina Sud, 101ANTANANARIVO.ARTICLE 06: ADMISSION - COOPTATION

L'adh6sion de nouveaux membres se fait par cooptation sur proposition dune personne dejamembre de l'Association. Es doivent presenter au Pr6sident une demande suivant d'uneformule d'admission dans laquelle notamment il declare adherer sans r6serve aux statuts.

Ladhdsion dune personne morale doit etre demand6e au President de lAssembl6e prewe arArticle 1I des presents statuts. La personne morale doit communiquer par ecrit au Presidentle nom et Padresse de son representant dans les instances de rAssociation.

LAssemblee GEnerale, pr6vue A rArticle 10 des presents statuts, statue sur la demande.

Le President de l'Association notifie par ecrit a linteress6 rapprobation de rAssemblEeGenerale et radhesion ne devient effective qudapr6s versement de la cotisation du nouveaumembre.

En cas de non admission, le nouveau membre ne peut pr6tendre a aucune explication.

ARTICLE 07: PERTE DE LA OUAL1TE DE MEMBRE

La qualite de membre se perd par:

- le d6ces dun membre, personne physique;

- la dissolution dun membre, personne morale;

- la denission ou

- la radiation pour motif grave prononcEe par rAssembl6e Generale.

ARTICLE 08: MODALlTES DE LA PERTE DE LA QUALITE DE MEMBRE

Un membre peut d6missionner i tout momert en avisant le Pr6sident par Ecrit, un pr6avis dun(01) mois.

Si i rexpiration de cette periode, le preavis na pas ete anule, le membre qui l'a introduit cessede faire partie de lAssociation.

72 MADAGASCAR AntAndivo Urban Works Project

TrrRE U

ADMMIISTRATION ET FONCTIONNEMENT

ARTICLE 09: BME_SSORES

Les ressources de l'Association se composent

- des cotisations anmuelles de ses membres, i verser le 31 Janvier de chaque annee etdont le montant sera fixe par rAssemblee Gdn6rale;

- des subventions et/ou liberalites qui pourraient lui Otre versdes par l'Etat deMadagascar ou par tout organisme ou pays etranger,

- des revenus destin6s a etre reinvestis dans rAssociation et provenant des - placementseffectues et des contreparties pergues par rAgence;

- des dons et legs.

ARTICEJ 10: ASSEMBLEE GENERALE

LAssociation est adninistr6e par une Assemblee G6n&rale composee des membres a jour deleur cotisation.

ARTICLE I1: DE L'ASSEMBLEE GENERALE

La Pr6sidence de rAssemrble G6n6rale est assuree par Monsieur Mamy RAJAOBELINA,membre fondateur de 1'Association.

Le Pr6sident convoque les membres de rAssemblde et dirige les debats. En cas de partage, lavoix du President est pr6pond6rante.

Le President peut inviter a assister a PAssemblee toute personne autre que ses membresdont il estime la presence necessaire en raison de ses connaissances ou competences. Cettepersonne toutefois ne participe pas au vote.

Le President doit faire rediger apres chaque seance un proces-verbal de la r6union derAssembl6e.

Toutes les d6cisions de rAssembl6e Gen6rale sont prises dans les conditions de quorum et demajorit6 6gales aux deux tiers des voix des membres pr6sents ou representes.

AflCLE-12: POUVOIRS DE L'ASSEMBLEE GENERALE

L'Assemblie est lPorgane souverain de PAssociation.- Elle d6termine et fixe les orientations n6cSssaires a la realisation de robjet social delAssociation;

Elle nomme et r6voque le Directeur G-n6ral dans les conditions prevues a. rArticle 14;- Elle nomme un Comnimssaire aux comptes et approuve les comptes de lAssociation,

Annex E - Extracts from Manuel de Proc&dures, Annexe 7 73

- Elle approuve le Reglement Int6rieur,- Elle statue sur le rapport moral et financier qui est annuellement 6tabli par le Directeur

General;* Elle statue sur l'adhesion de nouveaux membres.

L'Assembl6e se reunit sur convocation de son Pr6sident au moins (1) fois par an et en tant quede besoin. Les convocations sont envoy6e au moins (15) jours a l'avance par lettrerecommandee avec accus6 de r6ception ou par cahier de transmission et indiquent la date, lelieu et rordre du jour de la reunion.

Au cas o4, pour des raisons independantes de rAssociation, un membre n'aurait pas recu aconvocation, il ne pourra pas declencher de procedure d'annulation des d6cisions prises lors deladite reunion.

Un membre de rAssociation peut donner procuration 6crite a un autre membre a l'effet de lerepresenter aux r6unions de l'Assemblee.

ARTICLE 13: GESTION DES ACTIVITES DE L'ASSOCIATION - LE DIRECTEURGENERAL

l'Association nomme RAMANDIBIARISON Zaza Manitranja, Directeur General avecpour mission d'assurer la gestion des activit6s de l'Agence.

En dehors du Directeur General, aucun membre de rAssociation ne peut intervenir dans cettegestion.

Le Directeur General est nomm6 pour une dur6e indetermin6e.

Les fonctions de Directeur G&ndral sont ins6parables de la qualit6 de membre de l'Association.

Le Directeur General presente & I'Assemblee Generale, lorganigramme de la DirectionG6n6rale qui doit regrouper les services techniques, administratifs et financiers n6cessaires alex6cution de la mission de l'Agence.

ARTICLE 14: REVQCATION DU DIRECTEUR GENERAL

En cas de manquement grave a ses obligations, le Directeur Gen6ral est revoqu6 par decisionde lAssembl6e Generale.

A cette seance, l'Assemblee 6lit avant toute decision un Pr6sident int6rimaire.

Le Pr6sident int6rimaire est Slu au scrutin aux conditions de quorum et de majorit6 pr6vues AlArticle 11 in fine des pr6sent statuts.

Lors du vote de la decision, la voix du Directeur G6n6ra1 n'est pas prise en compte.


La r6vocation est signifiee au Directeur G6neral par lettre recomrnandee avec accus6 dereception par le President int6rimaire.

La revocation entraine d'office la perte de la qualite de membre de l'Association,conformement a r'Article 13 in fine.

ARTILE j15: POUVOIRS DU DItECTEUR GENERAL

Sous r6serve des pouvoirs explicitement r6serv6s a rAssembl6e Generale, le DirecteuirGeneral, dans les limites des presents statuts du reglement int6rieur et des conditions liantl'Association, a les pouvoirs les plus etendus pour assurer le bon fonctionnement de I'Agenceet pour l'execution de la mission qui lui est confiee par l'Assemblee.

Le Directeur Geneal peut confier i des consultants externes sp6cialis6s les missions qui luisemblent n6cessaires pour rex6cution des differentes taches qui lui sont assignees.Le Directeur G6n6ral a Penti6re responsabiit6 des fonds mis A la disposition de l'Association.

11 doit tenir conform6ment aux normes comptables g6n6ralement admnises et aux usagesuniform6ment appliqu6s, des livres de comptes et des dossiers relatifs A sa gestion.

La gestion de l'Agence par le Directeur Gin&ral doit etre conforme aux dispositions duManuel de Procedures qui sera ulterieurement mis en place.

Le Directeur General est charg6 de veiller a la bonne application du r6glement int6rieur.

II peut proceder au transfert du siege social de l'Association.

II procede au recrutement du personnel de l'Association.

II ordonne les d6penses, signe les contrats et les conventions entrant dans le cadre deraccomplissement de sa mission.

ARTICLE16: MODIFICATION DES STATUTS ET DISSOLUTION

Les pr6sents statuts ne peuvent etre modifi6s que par rAssembl6e G6n6rale dans les conditionsde quonum et de majorit6, des deux tiers (2/3) des membres presents ou representes pr6vues article 11.

En cas de dissolution, lAssembl6e Generale d6signe parni ses membies une personne charg6ede la liquidation des biens de rAssociation.

Tous les biens acquis par lAssociation seront par elle mis a disposition de l'ETAT DEMADAGASCAR en cas de dissolution.

Annex E - Extracs from Manuel de Procedures, Annexe 7 75

ARTICLE 17: AGREMIENT DE LASSOCIATION EN TANT O'ASSOCIATIONRECONNUE PIIILITE PUBLIOUE

Conform6ment aux dispositions de I'Article 12 et sur t'Ordonnance 60133 du 03 Octobre 1960et aux dispositions de Decret 63.346 du 11 Juillet 1963, lAssociation des sa constitutiondemandera a etre reconnue d'utilitW publique.

Fait A Antananarivo, le 19 AOUT 1993

Pak~~ I Amrh,l 1 9 ACU 199

)4aap WAOBtLINA

RlIte R4A NORI WfANtW 2,,~ ~~~Ol K/WRIANOMMANDIMSY

76 MADAGASCAR Antanarvo Urban Works Project

~~ i.u ~u

*Q~U . .'flZ1U±BSG?_O duiiti ablqi- . de1' asuciation d6nommde 1'AoI*oe d 'E0ttgton doesK'- f trarau d4uTfrasirmo'jured PubUlia d't r

is PRDU3 RI8MP!S, CEZ DVt OOUVEiI

- V. la Constitution et 1a Convention du 31 Ooteb.o 1991,- v'i a rti n*63*015 duu 13.Juillot 1963 -owrtezt die8toatiori

g&4ndw*t1ea 8 lee fwaCosY pablif.s I-u tO0:ofnames0 :e-133 du 03 Oalobre 15O rwotant ?giu

g6atal2 deg ezscoaticns:-Vu lo 4-rret ioE6O-383 du 5 Octbore pworI pwtat Ap4pi,ation

de l'rlomanoao d*6C-i33 da 03 Ooto'br 1960- tV. ;* ddzsu-t C9 ;l-..32 dcu 8 Zoift 1991 Nrtaut toz tiuatf cn du

P r i'eIixr Sri7iiro d;& dLL ; ;- V. ie 'Ddcrot n09'-549 du 13 rovombro 1991 rodifid.par .s iersote

K*91-614 do. 19 Mkeirbre 1*91 ot S492-369 du 18 lzers 1992 pcrtant taz ondoes Iombres &ui 3ouveicmori,

- On (:eseil g -a OouverLsouc,

*D 3ST 3 t

ARTICI l1a.- Eat reooonue dluttilit4 publiue llswoscation0.6r.o363e fTZjiZ_e VSzxcutioa don Trv=ux d.'Tnfristracturo* 1ibliqiesd.'SnLanazariva pu AM' ,L

±RTrICtr! 2.- L'Z4ernco d'tE=duticA doe frrvwxz d'IxnfrastructwresPublique-i d'Z.r.:ar'nivo o_ M .FIMP eat matot_aeo' k recevoir toites octnri-t'..tioz, rl-te niocns d4ns ot lops n6coeaires au 'Out qu.'olIs propoet ani-pli ^tie: lis dispositionr do la Lot r63-o15 et de 1'Or4on4vmo20 N°60-133

contrairos c31103 isu pz6eont dQort.

Annex E - Extracts from Manuel de Procedures, Annexe 7 77

et lao lisftr d±4u bw.i . *mkt^,iu eot dzu To'wiu- , sout ObazgGg~~h.o'ui ca ee # 10 obneiom O, 10ez4Oit@zu dUi prGamt d40ost, q-i xpu1b14 au Jirwa1 O1f.1tel de lei R4ypmbque.

?PtI n1 zn=.arivr, le 20 :Uillot 1993

Lw aPRO Xf{I:STE:, cm

za LwaS.wa Z! L'IU75-Ta, * 2 IrJS5TI3 LS3 itC;,

:olcaol S71va±n L3OiVIS0L;RMW.MSOI.. .. ROJH e* *A~SQN 3= SImto.

t^an V..-L092 ....... £v.-rnzax4vo, 1; ' -t25 SoMEIe LV V },

5 or Some;

78 MADAGASCAR Antnanarivo Urban Works Project

ANNEXE 8. CONVENTION NO. 1 ENTRE LE GOUVERNEMENTET L'AGENCE

CONVENTION

ENTRE:

Le MINISTERE DES FINANCES agissant au nom et pour le compte duGouvemement et appel* dans ce qui suit: I'AMNISTRATION,

d'une part;

ET:

L'AGENCE DEXECUTION DES TRAVAUX DTNFRASTRUCTURESPUBLIQUES D'ANTANANARIVO (AGETIPA), repr6sent6 par son DIRECTEURGENERAL, ci-apr6s denomm6 l'AGENCE,

d'autre part;

IL A ETE CONVENU CE QUI SUIT:

PREAMBULE

Vu la lettre d'agrnment No PPF 800.0 en date du 24 F6vrier 1993 entre la R6publique deMadagascar (LEmprunteur) et rAssociation Intemationale de D6veloppement (L'Association)aux termes duquel lAssociation a accept6 d'accorder a l'Emprunteur une avance de fonds pour lapr6paration du projet voiiies urbaines d'Antananarivo ex6cut6e par rAGETIPA,

Vu la lettre No BM/373/374 du 25 Juillet 1993 de non objection de lIDA relative a la nominationdu Directeur Ge6nral de l'AGETIPA,

Vu les arrfets No 3220/93 et No 3221/93 du 09 luillet 1993 portant nomination du regisseur descomptes et de ses suppl6ants,

Vu le d6cret de d6claration d'utitit6 publique No 396 du 20 Juillet 1993 de l'AssociationAGETIPA,

Le Ministere des Finances et rAgence AGETIPA sont convenus ce qui suit:

Annex E - Extracts from Manuel de Proc&dures, Annexe 8 79

TnTRE I: GENERAL1TES

ARTICLE PREMIER: MISSIONS DE L'AGENCE

L'objectif de cette premiere mission de rAgence est de poursuivre les activites n6cessaires arachavement de la preparation du projet.

ITrRE I: PROGRAMME - FINANCEMENT ET PROCEDURES

ARTLCLE 02: PROGRAMME

Les activites necessaires a rach6vement de la preparation du projet pour laquelle lAvance estaccordee sont les suivantes:

- finalisation des documents juridiques portant creation de l'Agence d'execution, ycompris le Manuel de Procedures et les diverses conventions avec l'Admirnistrationet les beneficiaires;

- definition du programme d'assistance technique et de formation a destination de laMunicipalite d'Antananarivo et de Petites et Moyennes Entreprises (PME) dusecteur du BTP (entreprises et bureaux d'etudes);

- identification de cinq (05) projets de travaux representatifs des projets futurs, etpr6paration des documents d'appel d'offres.

- recherche des m6thodes et moyens n6cessaires pour favoriser la participation descommunautes directement interessees, lors de ridentification des projets, lors destravaux d'entretien et lors de l'utilisation des infrastructures;

- etude d'un plan de recouvrement des cotts d'entretien des infrastructures urbainesaupres des utilisateurs, avec propositions de collecte des revenus;

- twise en place de PAgence y compris recrutement de personnel et acquisitiond'6quipements;

- execution de cinq (05) projets de travaux et demarrage des composantes assistancetechnique et formation;

- mission dinformation aupres de 1AGETIPE de DAKAR au SENEGAL et visite aANTANANARIVO de deux (02) cadres en provenance d'une AGETIPE duContinent Africain.

ARTICLE 03: FINANCEMET DU PROGRAMME

L'Adninistration s'engage a mettre a la disposition de rAgence, sur une base nonremboursable, les fonds de PAvance PPF Na 800.0 pour le projet Piolte de voiries urbainesd'Antananarivo, signe avec la Banque Mondiale et sa contrepartie, pour la realisation desactivit6s de preparation du projet.


BRTICLE 04: MODALlTES DE MISE A DISPOSITION DE FONDS

La nise a disposition de fonds se fera par versement a un compte special ouvert a cet effet parIAgence aupres de la Banque Malgache de rOcdan Indien (BMOI), Si6ge social : Place del'Independance Antaninarenina - Antananarivo.

ARTICLE 05: UTILISATION

L'Agence n'utilisera les fonds que pour lex6cution des activites de preparation du projet detravaux d¶nteret Publics dans ragglomrration d'Antananarivo.

ARTICLE 06: PROCEDURES

Le Programme sera gere conform6ment aux dispositions de la lettre d'Agrement No P.800.0

TIrE I: PERSONNEL DE DIRECTION

ARTICLE 07: EMPLOI DU DIRECTEUR GENERAL

LAgence a robligation d'employer le Directeur General pendant la p6riode de preparation duprojet.

ARICLE 08: NOMINATION ET REVOCATION DU DIRECTEUR GENERAL

La gestion de rAgence est confiee a un Directeur General.

Le Directeur General est obligatoirement une personne physique membre de l'AssembleeG6nrale de l'Agence. 11 est designe par V'Assembl6e &enerale aprEs accord de l'Administrationet de lIDA. Les fonctions de Directeur General et de memnbre de rAssembl6e Generale sontinseparables.

Le Directeur Gen6ral n'est revoque que pour manquement grave & ses obligations etconform6ment aux dispositions statuaires.

ARTICLE 09: POUMI_RS DU DIRECTEUR GENERAL

Le Directeur General a tous les pouvoirs pour la gestion de rAgence conforrnment auxdispositions des statuts de celle-ci.

II doit notamment:

- lancer toutes les 6tudes de preparation, et les suiwe;

- recevoir les sous-projets pour les chantiers tests:

- examiner et 6valuer lesdits dossiers afin de verifier qute la fois le projet presenter6pondent aux critdres d'6igibiIit6;

- passer les marches et commandes;

Annex E - Excs from Manuel de Procidures, Annexe 8 81

- faire superviser, contr8ler les travaux et etudes;- payer les entreprises et les consultants;

- proceder a la r6ception des ouvrages et etudes.

TIrE IV: LES OBLIGATIONS DE L'AGENCE

ARTICLE 10: OBLIGATIONS

L'Agence s!engage a veiller a lexecution des activites et a la r6alisation des objectifs de cettepremiire mission de rAgence.

L'Administration a robligation de transferer des fonds de rAvance PPF sur une base nonremboursable, a rAgence au titre du Financement, des d6penses a engager pour la preparationdu projet.

L'Agence a robligation

a) de prendre toutes les mesures necessaires pour que le Programme soit execute avecla diligence et refficacit6 voulues et selon des m6thodes administratives, techniqueset financieres appropri6es;

b) d'observer les dispositions 6nonc6es dans la lettre d'Agr6ment No PPF No 800.0;

c) de maintenir le systeme de comptabilit6 agr66 par rAdministration et rIDA;

d) d*employer un auditeur independant dans le cadre de Termes de Reference jugesacceptables par l'IDA

L'Agence a Iobligation de mener ses affaires dune maniere rentable et d'examinerperiodiquement, avec I'Administration et l'IDA, la structure de ses co&ts administratifs.

L'Agence a Pobligation d'informer l'Emprunteur et rIDA, dans les meille irs d6lais, de toutecondition qui met en danger ou risque de mettre en danger

a) ravancement de la preparation du projet;

b) la r6alisation des objectifs de l'Avance sur le credit;

c) Pex6cution par rAgence des obligations qui lui incombent au titre de la Convention.

L'Agence a robligation de fournir a rIDA et a l'Emprunteur:

1) tous les deux (02) mois, et au plus tard dans les quinze (15) premiers jours du moissuivant, un rapport d'activites dont la port6e et le degre de detail dont eteraisonnablement fix6s par l'Emprunteur et lIDA; et

82 MADAGASCAR Aunanmarivo Uoban Works Project

2) deux (02) mois suivant la date de cl6ture un rapport final conform6ment auxdispositions 6nonc6es.

Vobligation de rAgence de rembourser i 'Emprunteur tous les montants du credit qui naurontpas et6 utiis6s aux fins d'ex6cution du Projet, a moins que lEmprunteur et PIDA neenconviennent autrement.

AM=TI 1: ENTREE EN VIGUEUR ET DVREE DE LA CONVENTION

L'Adnmnistration et rAgence agissant chacun par linterm6diaire de son representant dOmentautoris6, ont conclu la presente Convention pour une dur6e de six (06) mois. Elle prend effet acompter de la date de signature.

Une autre convention sera mise en oeuvre apres la date d'entr6e en vigueur de l'Accord decr6dit pour le projet voirie urbaine si les r6sultats de la pr6paration sont concluants.

Fait a Antananarivo, le 19 AUG 1993

Pour rAdmnstation, Pour l'Agence,LE MIISTRE DES FINANCES, LE DIRECTEUR GENERAL,

R..M&t4OIMUI~tRSO bzmMa^t.4to^2 u$ON tw

8*A 3 AOW 1293

Annex E - Extracts from Manuel de Procidures, Annexe 9 83

ANNEXE 9. CONVENTION ENTRE LA MUNICIPALIMET L'AGENCE

CONVENTION DE MMTUSE D'OUVRAGE DELEGUEEENTRE L'AGENCE ET LE FIVONDRONANA

D'ANTANANARIVO RENIVOHIlltA

ENTRE:

le Fivondronana d'ANTANANARIVO repr6sent6 par le Pr6sident de la D61gation Sp6ciale,denommme ci-apres "le Bdnrficiare";

ET:

IAgence d'Ex6cution des Travaux dlnrastructures Publiques d'ANTANANARNO(AGETIPA), repr6sent6e par son Directeur Gen6ral, Monsieur RAMANDIMIARISON ZazaManitranja, d6nommne ci-apres "I'Agence";

11 a et6 convenu ce qui suit:

AR1fLE 1:

La presente convention fixe les conditions d'ex6cution des travau tests pr6vus dans le cadredu Projet Pilote de voiries urbaines d'ANTANANARIVO. les sous-projets prvus sont:

1. Rue Rainandrianianpandry (Galli6ni Basse et Haute) allant du caffefour Soamno acelui du J1AMA (Ambohijatovo), y compris la bretelle rue Andriandahfotay

2. La route circulaire a partir du carrefour d'Ambanidia jusqu!au BPPA

3. Le carrefour faisant face a l'Immeuble des Anciens Combattants situe a Anosy

4. Le jardin dAmbohijatovo

5. La rue du pere Radley - Antanimena

6. L'escalier reliant la place Antaninarenina et la rue Rainitovo.

ART-CLE 2:

Le Ben6ficiaire d6legue a rAgence qui accepte, rensemble des pr6rogatives, droits etobligations afferent a la maiftrise d'ouvrage des travaux, 6tudes et autres prestations n6cessairesA r'ex6cution du Projet. L'Agence assume en particulier A ce titre les responsabilit6s suivantes:choix des mattres d'oeuvre et supervision des dtudes prealables, passation des dossiers deconsultation des entreprises ou d'appels d'offres, cholx d entreprises (sous rEserve des


dispositions de PArticle 3 ci-apres), signature des marches, controle et r6c6ption des travaux,paiement des entreprises.

ARTICLE 3:

Le Beneficiaire peut se faire representer en qualite d'observateur aux travaux de la commissiond'attribution des marches relatifs au Projet. La date et le lieu de reunion lui sont notifies parlAgence au moins cinq jours ouvrables avant la reunion. Toutefois, rabsence du repr6sentantdu B6neficiaire nlempeche pas la commission de si6ger et de faire valablement son choix.

ARTICLE 4:

Le Benificiaire doit assister a la r6ception definitive des travaux dont la date est notifi6e parlAgence au moins cinq jours ouvrables avant cette r6ception. L'avis du representant derAgence est toutefois pr6pondtrant pour accepter ou refuser la r6ception. Toutefois, lesr6serves 6ventuelles du Beneficiaire doivent etre portees sur le proces-verbal de reception.

ARTCLE .

L'Agence ou les mattres d'oeuvres engages par elle pour rexcution du Projet peuvent a toutmoment consulter le Beneficiaire ou requerir l1exercice des prerogatives administratives decelui-ci pour des questions int6ressant rex6cution du Projet. Le Beneficiaire fait diligencepour repondre a des consultations ou requ&es.

ARTICLE 6:

Le Beneficiaire s'interdit toute intervention autre que celles mentionn6es aux Articles 3, 4 et 5ci-dessus dans Pex6cution du Projet et notamment dans le d6roulement des travaux et lesrelations avec les entreprises.

ARTICLE 7:

Le Beneficiaire sengage A se doter des moyens financiers et techniques n6c6ssaires A rentretiendu r6sultat des travaux, a la continuation des services sur fonds propres, et i la maintenancedes 6quipements mis en place. En cas de manquement a cet engagement, le Beneficiaire prendacte qu'il ne sera plus 6ligible pour d'autres travaux ou services dans le cadre de lAgence.

ARTICLE 8:

L'Agence est seul responsable vis-a-vis des tiers impliques dans l'execution du Projet. Elleprend ou fait prendre toutes les assurances n6cessaires pour couvrir les risquescorrespondants.

ARTICLE 9:

La pr6sente convention prend fin lors de la remise des ouvrages au Beneficiaire prevue a titreindicatif au mois de Mars 1994. Au cas ob cette date serait report6e de plus de trois mois,rAgence en avise le Ben6ficiaire dans les meilleurs dtlais. Le BUn6ficiaire est tenu d'accepter la

Annm= E - Exrats from Manuel de Procedures, Annexe 9 85

remnise des ouvrages en 1'6tat. Les garanties 6ventuelies en vigueur a la date de remise desouvrages sont transfer6es au Ben6ficiaire.

ARTICLE 10:

Les costs d'ex6cution de ces sous-projets s'levant A 783.400. 000 FMG (SEPT CENTQUATRE VINGT TROIS MILLIONS QUATRE- CENT MILLE FRANCS MALAGASY)sont couverts par les apports suivants du Gouvemernent, du BUnMficiaire et de I'AssociationIntemationale pour le D6veloppement (IDA):

- Gouvemement : 72.400.000 FMG (SODXANTE DOUZEMILLIONS QUATRE CENT MILLEFRANCS MALAGASY)

- BWn6ficiaire : 18.000.000 FMG (DIX HUIT MILLIONS DEFRANCS MALAGASY)

- IDA : 693.000.000 FMG (SIX CENT QUATREVINGT TREIZE MILLIONS DE FRANCSMALAGASY)

w~~~~~~~~~~~~~Fk AabUeIU,,

~~~~~- - RAW3wq0 e si+

86 MADAGASCAR Antananarivo Urban Works Proiet

ANNEX F. STATUS OF PROJCT PREPARATION

Legal Docment

A PPF advance in an amount of US$ 300,000 was granted in February 1993. AGETIPAhas been registered and granted the status of a public utility (Manuel de Procedures,Annexe 7; also in Annex i). A Convention between AGETIPA and the government1 hasbeen signed, as well as between AGETIPA and the municipality2. The model of Contratde Maitrise d'Ouvrage dilOgu&e2, to be used for each sub-project between AGETIPA andthe municipality, as well as the final Convention' between AGETIPA and the goverrnentwere completed during the negotiations of the project. As a result of the positive outcomeof the test sub-projects and the reconstruction needs in the aftermath of Hurricane Giraldawhich hit Antananarivo on February 1, 1994, an increase of US$ 975,000 to the PPFadvance was made soon after negotiations..

Test Sub-Projects

Eight sub-projects have been identified to be used as a test for AGETIPA's performanceduring project preparation. All of them are now under way and should be completed bythe end of February 1994.

SUB-PRO. WT Desr works, contac amout Consulng contra. amount

EXCL. UT TM TOAL ECL TOALrehabilitation of the pavement and 140,160,803 21,024,121 161.184,92 9,285, 1,392,810 10,678,210

St. the dainage systemAndtandahifotsy St rehabilitation of the sidewalk, and 16,562,860 2,484,42 19,047,28' 2,492, 373,935 2,866,835

removing of the bitumminoussuface layer

Betway streetfrom rehab. of the intersecion to inprove 164,210,266 24,631,53' 188,841,805 10,522,100 1,578,315 12,100.415anidia intersection traffic flow, the etining wans, and

o BPPA storM sewerstainage system in tehabilitation of culvert 51,784,535 7,767,681 59,552,215 7,920,000 1,188,00( 9,108,000

bohijatovo park Rebabilitation and lsping of the 70,866,895 10,630,0 81,496,929 4,600,000 690, 5,290,000entance to the garden, including a new

fence and gate s__tairs fim tehabilitation of the stairs and of the 8,138,97, 1,220, 9,359,823 1,412,700 211,905 1,624,605

taninarenina underground drainage systemo Rainitovo St.Pre Radley St. removing of the bitumen srface 42,897,95 6,434,693 49,332,65 7,361.345 1,104,202 8,465,54

layer, and restoration of underlyingstone paving

osy intersection revamping of the intersection. Creaton N.A. N.A. N.A. N.A. N.A. N.A._________________ of a traffic circle. I _

The contracts were awarded on November 5, 1993, except for the last sub-project,providing for the improvement of the Anosy intersection in front of the veterans' building,which was awarded on December 6, 1993. The delay in the launching of this sub-projectis due to a field simulation, which seeks the reactions of beneficiaries to the new design;this is reflective of the participatory approach being sought in the Project.

I see Manuel de Proc&dures, Amiee 8; also Annex E.2 see Manuel de Proc&1ures, Amiee 9; also Annex E.

Annex F - Status of Project Preparation 87

As a result of the positive outcome of the test sub-projects and the reconstruction needs inthe aftermath of Hurricane Giralda, an increase of US$ 975,000 to the PPF advance hasbeen made.

Studies

Thirteen studies have been identified and will be carried out during project preparation.Two studies are now completed, ten are under way, and one is to be launched soon. Thedetailed status of the studies is given in the following annex.

Settlement of AGETIPA

The General Manager has been appointed on a consultant contract on August, 1. Hiscontract, which was acceptable to IDA and MAT, stil has to go through a malagasycontract approval comittee.Hardware, (a computer, a printer, and a copying machine), and software have been bought.The search for an office location for the Agency is still in progress. Interviews for therecruitment of the staff of AGETIPA have been undertaken by the General Manager, andsome persons have been already identified.

Infonnaton

A one day seminar, aiming to inform the private construction industry, was held onOctober, 19, with the help of a consultant. The evaluation of this seminar has been doneby the consultant since then. A seminar designed for the municipality staff and organizedby AGETIPA was held on October, 28.A preliminary action plan on Information has been prepared by a consultant.AGETIPA has also initiated a media campain using newspapers, radio and television.

Pending

A short list for financial and technical auditors has already been carried out. Auditors willbe appointed as a condition to project effectiveness.

Detailed engineering studies for the sub-projects to be executed in 1994 will be carried outbefore Project effectiveness.

88 MADAGASCAR Antananarivo Urban Works Projet

RESULTS OF TEST SUB-PROJECTS

Test sub-project No. 1: Rainandriamampandry Street

I. Prior to works

- i11 1 | * | | i 3 s~~~9~,*

Sidewalk prior to the works.

11. Works in progress -Pavement prior to the works.

II. Works completed

_~~~~~~~~~~~~ s

Rehabilitation of the sidewalks and Rainandriamampandry Street today.wzderground drainage system.

Annex F - Status of Project Preparation - Photographs 89

Test sub-project No. 5: Ambohiatovo Park

Prior to works

E lv _ _ _ _ _ _ _ _ _ __f, W b T _ 7 |

-H. Works in progress

t : t ~~~~~- - _IZ,

Wooden fence and concrete pipes at t6eentrance to the park.

Construcwon of a grid. Removal of pipes.

mll. Works completed

Surroundings of the park after rehabilitation.

New grid of Ambohijatovo park

g0 MADAGASCAR Antanarivo Urbar. Works Project

ANNEX G. STUDIES

During Project Preparation

Thirteen studies have been identified and will be carried out during project preparation. Thestatus of these studies is:

1. Studies Related to the Sub-Projects

.1 .Output and efficiency of production of paving stones in the Antananarivo areaThis study, awarded on October 12. 1993, is now completed. Three subjects were to beinvestigated by the consultant: the local capacity to provide paving stones, a marketing study ofthe demand for paving stones by the construction industry in the Antananarivo area, andproposals to improve the efficiency of the production of paving stones. The study has beenplaced in the Project File.

1.2. Ambohijatovo -arkThe study was awarded on October 18. According to the Terms of Reference, the consultingfirm will have to set up a package of tendering documents for the contract of the renovation ofthe Ambohijatovo park. This park is located in the center of the city. The very small numberof parks in Antananarivo expWlains the great importance of Ambohijatovo.The preliminary engineering studies are now completed. The final engineering studies are newcompleted up to 85%. The consultant will also provide the tendering documents based on thestudies, and participate in the evaluation of the bids for the award of the contracts.

1.3. Drainage pattem of the up_er AntananarivoThis study is now completed. The consulting firm has divided the area of upper Antananarivoin seven sub-areas, independent in terms of drainage problems. It has designed separate workprojects for each of these sub-areas, and prepared a cost evaluation for each. The study hasbeen placed in the Project File.

1.4. Traffic study of AnanaarivoThis study was awarded on November 23 and is now completed. The objective of the studywas to prepare a traffic count of Antananarivo city. The consultant has provided a mapindicating the number of vehicles per day per specific routes. The counting of vehicles hasbeen done within one week and distinguishes between different types of vehicles. The studyincludes flow charts of main routes and prinary intersections; data is also provided in tables.The study has been placed in the Project File.

1.5. Environmental assessment of a sample of representaive suMprojectsThis study was awarded on December 15, 1993. According to the Terms of Reference, theobjective of the assessment is to ensure that there will be no adverse impact, within acceptablelimits, on the environment as a result of the execution of the sub-projects. The Consultant willhave to design and conduct the sub-project assessments, monitor the implementation of keysub-projects, evaluate the assessment process, and conduct a review workshop. Thepreliminary study is now completed.

Annex G - Studies 91

1.6. Economic rate of return of a sample of representative sub-proiectsThis study was awarded on November 23 and is now completed. The study analyzestechnically and economically twenty representative sub-projects, identified in the Terms ofReference. The objectives of the study are to:

- technically, describe the condition of each representative sub-project andsubmit various proposals for the works -,) be carried out. The cost of the works and therecurrent costs will be spelled out.

- economically, assess the benefits and costs of each representative sub-project.The economic rate of return and the social impact of the sub-projects will be determined fromthis analysis. The results of the study are given below. The average rate of return of theinvestigated sub-projects is about 30%.The study has been placed in the Project File.

TABLEAU RECAPITULATIF DES SOUS-PROJETS ET SOUS-PROJETS TESTS

Coets des travaux MR

____________________ miUion FMG_ pour lOans(%)I pour I5ans(%)

SOUS-PROJF1S TESTS

JARDIN D'AMBOHIIATOVO 665,78 14,97 19,05

AMENAGEMENT DES SYSTEMES DEDRAINAGE A BESARETY 24,68 4,29 8,66

ESCALIER reliant la place d'AntninareaimaA la rue Rainitovo 5,93 44,48 45,71

CARREFOUR D'ANOSY 7 > 12 > 15

RUE RAINANDRIAMAMPANIDRY 106,13 8,71 13,70

RUE ANDRIANIAHIPOTSY 20,03 13,14 17,55

RUE RADLEY 31,35 16,59 20,29

ROUTE CIRCULAIRE. 379,65 29,62 32,42


SOUS-IPROJETS

ANDRAVOAHANGY:

PLACE PUBLIQUE: MARCHE

Variante 1: plateforme sable stabilise 2 190,78 8,83 13,67

Vaiante 2: plateforme en b6ton arme 2 310,25 7,08 12,16

Sortie RN 3 188,06 144,79 144,82

ANOSIBE - Sortie RN 1 635,15 28,10 30,76

TROTTOIRS AVENUES:

Avenue de I'Ind6pendance 351,44 31,32 33,01

Avenue du 26 Juin

ROUTE D'AMBOHIPO 551,86 7,43 12,71

ESCALIER reliant la rue Andriandahifotsy A 1240 47,78 48,85Analalely

RUELLE Antaninandro - Ambondrona 12,03 48,45 49,49

RUELLE Andravoahangy - Ankadifotsy 24,50 47,56 48,56

ROCADE reliant la RN2 A la RN7

Variante I : avec couche de roulement 3 313,68 13,88 19

Variante 2: sans couche de roulement 1 961,93 20,18 24,76

AIRE DE STOCKAGE de containers 675,00 17,39 20,40

2. Other studies

2.1 Accounting system and procedures of AGETIPAA Procedure Manual for Accounting and an Accounting Plan has been carried out byAGETIPA's General Manager and is now completed. It has been reviewed during thenegotiations and placed in the Manual of Procedures.

2.2 Design and provision of training servicesThe study is now completed. The objectives of the study are to improve the capacity and skillsof firms in the sector, in order to not only perform current contractual requirements but also toprepare firms for expanded roles in the future. The Consultant has provided AGETIPA Staffwith a training program supporting the needs of sub-projects execution and prepared packages

Annex G - Studies 93

of training materials for the contracting firms and for the municipality. The Consultant wi'lmonitor and revise such training programs and materials, and support the Reference Center ofAGETIPA.

2.3 Urban road desien standardsThis study, currently under way, will provide AGETIPA with technical standards for civilworks, to be applied by the contractors, and with technical annexes for tendering documents.

2.4 Classification criteria of SMEsThis study, now completed, develops the already existing classification criteria for SMEs:definition of technical categories, improvement of the question forms for contractors andconsultants, adjustment of the coefficients used to rate the companies.

2.5 Definition of tests to be used for the acceptance of worl;sThis study, currently under way, will design simplified tests and analyses to be used on the siteof the works by the consultants to supervise the contractors, and acceptance procedures tocontrol the conformity of the finished works to the tenns of the contracts. The consultant incharge of this study will also set up training programs for local consulting firms, for theinstruction in these new tests and procedures.

2.6 Software needs for AGETIPAThis study, currently under way, will provide AGETEPA with the costs of implementing thesoftware needed for procurement processes and monitoring of the works. The costs willinclude the price of the software, the adaptation of the software to the needs of AGETEPA, andtraining of the users of the software.

2.7 Format for technical auditsThis study is currently under way. Two technical audits are programmed to be carried out in1994, and two in each following year. The consultant in charge of this study will define thecontent of the technical audit, and the schedule of the auditing missions. This includespreliminary work in common with the financial auditors, the audit itself, the proposal oftechnical measures to AGETIPA's management, and a final meeting with the financial auditorsto prepare a common report.

During Project Im ton

Assessm t of the social inmact of the project

After the Mid-term Review

Improvement of the Municipal policeStreamlining of municipality services and increasint of revenue collection

OA _M_ ADAGASCAR Antananarivo Urban Works roject

ANNEX H. TRAINING FOR LOCAL SME'S ANDCONSULTANTS IN THE CONSTRUCnON INDUSTRY1

I. INTRODUCTION

1.1 In conjunction with the preliminary design, appraisal, and support for the test phase ofthe Antananarivo Urban Works Project (AUWP), a series of working papers was prepared. Asynthesis of these papers is provided here for ease of rsferenc.. The original papers have beenplaced in the project files. A list of the titles of these papers is provided as Attachment A.

II. PREIXMINARY OVERVIEW OF TRAINING DESIGN ISSUES(Working Paper No. 2)

2.1 The AUWP can be said to have two sets of goals-long-term and short-term-whichrequire somewhat different sets of training actions. In the short-term, for example, theprimary objective is the execution of maintenance work through contracts to the private sector.Ile contracting firms selected for the initial sub-projects would bring with them a fair level oftechnical capability. The primary area of training required for their performance would berelated to the costing/processing of the sub-projects in order that they could bid on work. Inthe long-run, however, building the capacity of the private sector would require upgrading thesklls of the more marginal firms. There will need to a balance in the design of the trainingcomponent for the project between both sets of needs.

2.2 It will be necessary to provide training under the project for: (i) the staff of theexecuting agency-AGMIPA-; (ii) certain municipal employees; (iii) the consulting andcontracting industry; and (iv) community groups. Although the staff of AGETPA may play arole in the provision of training under the project-especially during the early phases-theprimary role of the executing agency should be the supervision of training and the assurance ofconsistency and quality control; such external sources as NMOs and existing vocationaltraining programs should be considered for the provision of training under contracts issued byAGETlPA.

2.3 The training to be provided under the project should be developed using the followinggeneral guidelines: (i) it should be practically oriented, keyed to the specific needs of learners;(ii) it should be designed on the basis of learners as adults; (iii) it should have an "out-put"/"capacity-building" orientation; and (iv) it should support the need to fast-track projectimplementation.

2.4 Training should be provided through a variety of settings which have little classroomstructure, for example: (i) self-taught/interactive training; (ii) group seminars and workshops;(iii) in-house instruction including groups and one-on-one consultation; and (iv) on-the-jobtraining. The training package for the AUWP should include printed materials-for example,specifying procedures or technology-and explanatory notes or explanations, trainer'sguidelines, workbook samples and exercises, demonstrations, and practical exercises. It shouldalso provide mechanisms for the evaluation of proficiency and for periodic reviews and

I As adapted from Working Papers No. 2-7, by Ph. Moeller.

Annex H - Training for Local SME's & Consultants in the Construction Industry 95

updates. The training should be structured on the basis of specific modules for inter-relatedconcepts or sub-topics. This would enable the trainer to select from the training package themodule which is most relevant to the specific need of the trainees without using the materialsfor the entire topic. Modules can be revised, moreover, without affecting the remainder of themodules.

2.5. An early assessment of the cost requirements for training will be necessary. Costs canbe substantially reduced if local resources are used for their production. Many activities or afull package of all training services can be contracted locally, but review and monitoring willbe essential for quality control and consistency. One of the members of the staff of AGElIPAshould have skills in training program design and implementation.

2.6. The experience of best practice in the Bank indicates that participants apply themselvesmost fully when they must pay a fee for receiving training. In this case it is suggested that theSMEs and the Design Consultants pay a small fee for training; the municipality should offer apayment in kind. In view of the different nature of training for the local communities theyshould be exempted from the payment of any fees. The design of the project calls for theinitiation of actions during the preparation phase, and it will be necessary to initiate certaintraining during this phase. The overall training package should be prepared and operational inadvance of implementation. Fast-tracking the training program can be facilitated by: (i)drawing upon existing materials where relevant; (ii) initiating preliminary, intensive instructionin selected key skills, and phasing-in more advanced instruction as needed; (iii) structuring thecurriculum on the basis of modules keyed to specific task performance and levels ofproficiency; (:v) using existing training capacities where appropriate; (v) using counter partsand/or on-the-job training; and (vi) early identification End hiring/contracting of trainingstaff/consultants.

2.7 The participation of local communities in the identification of sub-projects is anessential element of the design in the project. At the community level this element is intendedto promote empowerment, facilitate project effectiveness, and provide a bridge to the costsharing element of the project.2 The training required to support community participation inthe project may require attitude change, including the correct use of facilities, and in thatrespect it may differ from the training to be offered to other participant.

2 See also discussion in Working Paper No. 3.


Exhibit ISample Training Curriculum by Target Group

E Works Project Proposal Review* Tendering

EXECUTING AGENCY * Bid Evaluation and Award* Monitoring* Evaluation* Accounting

* User Participation Programming* Condition Assessment

MUNICIPALITY e Project Idendfication* Project Packaging and Processing

* Work Costing* Bid Preparation* Contract Negotiation* Accounting

CONTRACTORS * Invoicing* Work Supervision* Technical Training* Labor Based Technologies

.________________________________ * Credit Facilitation3

* Unit CostingDESIGN CONSULTANTS * Quantity Costing

• Design Standards* Technical Procedures

* Participation and GroupLOCAL COMMUNITIES Facilitation

* Sanitation/Self Help

2.8 In order to design the training program for the project, a training resource specialistshould be identified who can begin work in-ountry on the initial training package needed forthe set-up of AGETIPA and the first round of contracting under the sub-projects, including thetest sub-projects and the follow-on projects after project effectiveness. An early priority for

3 Contractors will need to be trained how to prepare applications for credit; creditinstitutions may also need training in the processing and servicing of credit accounts.


the acting Director General should be to recruit the training specialist for AGETIPA or tocontract for such services.

m. INSTITIUIONAL AND PARTICIPATORY DIMENSIONSOF PROJECT DESIGN (Working Paper No. 3)

3.1 The management of urban infrastructure in the Antananarivo metropolitan area isshared by a variety of public organizations. As a result of various institutional constraintsthese organizations are unable to keep abreast of maintenance requirements. Such constraintsinclude: cumbersome administrative procedures, a lack of accountability and monito.-ingsystems, and the compartmentalization of the provision of services. These organizations lackthe absorptive capacity, i-ioreover, to profit from additional technical assistance. Experience inSub-Saharan Africa has shown that the reform of public organizations is highly dependent oncomprehensive sector/macro reforms which must be initiated over a protracted period of time.The deteriorating state of urban infrastructure in Antananarivo, however, requires immediateattention. This suggests, therefore, the need to introduce a different approach which will de-link the provision of urban works from the constraints found in the existing system and have ademonstration affect for subsequent institutional reform and development in Madagascar.

3.2 Institutional capacity in Madagascar clearly must be seen within the administrativecontext of recurrent alternations in structure and policy. Parallel to such reorganization andrestructuring of goveinment ministries and agencies have been shifts in the centralization anddecentralization of decision-making and responsibilities within these organizations. Suchpolicy changes were sometimes rigorously applied, and in other cases they were not.Considerable confusion has resulted. Within this context the setting of national goals, thedevelopment of long-term plans, the specification of specific organizational missions, and theestablishment of priorities and performance standards has been almost impossible. Theprovision of maintenance for infrastructure has been placed primarily within an emergencycontext. The unreliability of service has seriously eroded the confidence of the population incentral, regional, and municipal government.

3.3 The administrative structure in Madagascar consists of four levels of decentralizedunits-referred to as a whole as collectivltes decentralisees (CD). The first level consists of sixprovinces (Paritany). Tle next level consists of 110 municipalities (Fivondronana). At thenext level are 1,250 urban districts (Firaisana). The lowest level consists of 11,401 wards(Fokontany). This system has yet to prove effective. First of all, the power and resources ofthe respective levels do not correspond to their functions and responsibilities. Secondly, inactuality the government has maintained close supervision over key issues and made availableonly limited funding for local activities. The overall result is not the promotion of localinitiative but a lack of empowerment resulting in the marginal performance of services.

3.4 The Fivondronana corresponds to a mu.icipality and the president of its delegationspeciale can be considered the Mayor. The administration of each municipality is broken downinto various directorates by function, each of which in turn is divided into services. Theprovision of maintenance in the fivondronana is primarily a function of the Direction desServices Techniques (DST). The Ministry of Finance is responsible for assisting the CDs withresource mobilization and the preparation of annual budgets. These budgets must also bereviewed by the Ministry of the Interior which has tutelary responsibilities for all localgovernment. The budgets of the municipalities, however, support little more than recurrent


costs, and the function of local government is mainly the provision of employment rather thanthe provision of services.

3.5 The greater metropolitan area of Antananarivo includes not just the Fivondronana ofAntananarivo Renivohitra but also four other fivondronana. None of the fivondronana havethe institutional mechanisms necessary to cope with current problems or the growth projectedfor the area. Equally limiting, moreo.-ir, is the absence of coordinating mechanisms betweenthe fivondronana and the lack of a metropolitan maste. plan. The situation is exacerbated bythe existing congesdon in the central area, recurrent problems with drainage and flooding, theterrain surrounding the area, and the already deteriorated state of infrastructure in the area.

3.6 Until 1988 there was no central authority responsible for the integradon of urbandevelopment. Although various government agencies held responsibilities for activities relatedto urban affairs-the Ministry of Public Works (MintstOre des Travaux Publics, MTP), forexample, was responsible for the application of urban policies by all central and localauthorities but had no clear guidelines in the Iorm of a statement of natonal policy-the controlof urban development was weak at best. This gap was filled in January of 1988 by the creationof the National Technical Committee for Urban Development (Comrti technique national pourle developpement urbain, CTNDU) to work as a consultative group, serving both as acoordination mechanism and a forum for the discussion of crucial urban-related issues.

3.7 Then in September of 1991 the Ministry of Urban Development and Tourism(MinistWre de developpement urbin et de tourisme, MDUT) was created. It drew in part ondirectorates from such existing ministries as the Ministry of Public Works and the Ministry ofTransport, Meteorology, and Tourism. Each of the directorates was subdivided into services.In early April of 1993 the structure and title of these services was under revision pending theissuance of another new decree. The MUDT in association with CTNDU offers considerablepotential as an agent of policy and coordination. Although the ministry is still defining itself,it contains the remnants of other govemment ministries, agencies, and operations most familiarwith urban development and the problems associated with urban development. It is the mostlikely partner for the project. 4

3.8 The project rationale of de-linking the provision of service from the constraints ofexisting governmental organizations and mechanisms through the establishment of AGETIPA iswell supported by the preceding institutional assessment. In summation this results from: (i)the breadth of the institutional issues which would need to be addressed; (ii) the time andresources required to address the institutional constraints; (iii) the continuing state offluctuation and modification in the institutional system; and (iv) the erosion of popularconfidence in government capacity.

3.9 Although the AUWP seeks to de-link the immediate needs for infrastructuremaintenance from the constraints of the existing bureaucracy, it should not be seen as bi-passing support for national policy reform and government restructuring. The project is a piloteffort to demonstrate that infrastructure maintenance and associated services can be providedby the private sector rather than through in-house, force account services. The project can beseen as a model for one of three outcomes: (i) As a model for the municipality (or othergovernment agencies) to follow in developing an in-house capacity to contract out services to

4 In mid 1993 the MUDT was reconstituted as the Minislle de P'Amenagenient du Territoire (MAT).

Annex HA - Training for Local SME's & Consultants in the Construction Industry 99

the private sector; (ii) As a model for the continued use of an external agency to contract forthe services from the private sector providers; or (iii) A mix of one and two, depending uponcomparative advantage. Thus, the life of the agency itself is an open question. It could be atemporary solution or a permanent resolution. Its context as a mutually beneflting pilot ormodel needs to be emphasized in discussions with agencies/individuals who might find itcompetitive to their established interests.

3.10 The success of the project will depend upon a high-level of commitment on the part ofthe various stake-holders concerned with the project, ranging from the government to theresidents of the Fokontany. The government has already evidenced strong interest In theproject, and this interest was manifest in discussion with other stakeholders as well. liitialcommitment must be reinforced and regenerated both over the life of the project and beyond.

3.11 The best means of ensuring commitment by the stake-holders is to ensure theirparticipation in all phases of project life, beginning with design and continuing through to finalevaluation. Project ownership will be especially important at the user and municipalgovernment levels in order to ensure the implementation of any cost-recovery mechanisms, inthe first instance, and to offset the potential for resistance in the second instance. A variety ofparticipatory mechanisms will be necessary, including working groups, general popularfbrums, workshops, and forms of information sharing. These mecharisms should build uponexisting mechanisms wherever possible unless such mechanisms are moribund.

Exibt2.Basic Administrative Structure in Madagascar

- Province)

I fiVONDONMANA---unicipalii0 -- ;---

FIRAISANA(Urban District)

FOKONTANYI (Ward)

100 MAMAAASCAR Antananarivo Urban Work Project

Exhibit 3.Administrative Units by Faritany (Province)

FARITANY Fivondronana Firaisana Fokontany

Antananarivo 19 285 2,817Antsiranana 9 128 908Fianarantsoa 22 34Y4 2,868Mahaianga 21 163 1,3S2Toamasina 18 162 1,809Toliara 21 210 1,647

TOTAL 110 1 ,250 110,401

IV. PARTICIPATORY WORKSHOP DEMONSTRATION(Working Paper No. 4)

4.1 In conjunction with the Appraisal Mission for the AUWP two workshops were held at theFokontany level. The objectives of the workshops were to: (i) introduce participatorymethodology into the design phase of the ALTWP; (ii) determine/validate the key concerns oftypical urban communities; (iii) assess the potential for the inclusion of participatorymethodology in the implementation phase of the project; and (iv) provide a methodologicalmodel for application during the implementation phase by AGETIPA.

4.2 The workshops were held on two consecutive days. The participants in the first workshopincluded representatives of the Comitd Local de Securitg (CLS) of the West-Central Fokontanyof 67 Hectares. On the second day the workshop was expanded to include representatives ofthe CLSs of the three other Fokontany in 67 Hectares.

4.3 The methodology for the workshops used participatory appraisal techniques. Central to theapproach is the use of open, non-directive mechanisms for obtaining data or determiningpreferenees. Non-directive techniques seek to enable participants to provide information in thecourse of group activities. Validity is cross-checked by the presence of several participants.The group works as a team with the facilitator providing only minimal guidelines or frames ofrefer3nce. This group experience in itself can be a first step toward strengthening communityidentification and linkage.

4.4 In this case, in the first workshop the participants were broken into two groups. Theywere asked to discuss and prepare a list of what they felt were the major infrastructureproblems in their immediate community. The two lists were then compared and discussed byall the participants jointly as a whole group. The participants then consolidated the two listsinto a single list of ten issues; the group then scaled the issues in terms of their importance.The group was then asked to jointly draw a map of their community. After the map had beenprepared, the participants were asked to indicate where the problems were located by usingcolors and symbols of their choice.

Annex H - Training for Local SME's & Consultants in the Construction Industry 101V

4.5 The ownership of the participants was reinforced wherever possible. Such terms as"your community", "your interests", "your needs" were emphasized. Where possible amoderator was selected by the participants to guide discussion. The lists and map were savedfor use during the second workshop, but after the second workshop they were given to thepresident of the CLS for retention and reference in the Fokontany office.

4.6 The second workshop was divided into two parts. In the first half the participantsdiscussed past efforts to address the problems identified on the consolidated list and then thepublic or private groups with whom they had sought resolution of the problems. The paths ofappeals and the relationships between the organizations were drawn on a large chart. Tlesuccess of their past attempts was evaluated in terms of short-term and long-term (sustainable)results. In the second half of the workshop a presentation was made by the facilitator aboutAGETIPA. The participants were encouraged to ask questions and make comments on theproposed approach.

4.7 The participants gave first priority to four problems: Drainage, garbage collection,housing/squatter settlements, and toilets. In the discussion of these primary problems and theothers they had listed the participants indicated that they understood the inter-relationshipsbetween the problems and also had a fair comprehension of what might be required to resolvethe problems. The participants were highly interested in providing further input in theIdentification of sub-projects. The issue of the structure and function of sub-committees at theFokontany level was also reviewed.5

4.8 The methodology used in the workshop for 67 Hectares provides a model for use in theproject. Although the priorities identified by the municipality and the fokontany were quitesimilar, the workshops would provide: (i) improved linkage between the municipality and theFokontany; (ii) improved information on specific problems found in any one Fokontany; (iii)improved understanding of the AGETIPA approach at the popular level; (iv) improvedorganizational interaction for the Fokontany; and (v) higher ownership/sustainability of projectresults.

4.9 Discussions with the Ministry of the Interior and the municipality during the pre-appraisal mission indicated considerable interest in the application of participatorymethodology under the project as a means of strengthening the relationship between theFokontany and the Fivondronana. This interest may need to be focused and regenerated.

4.10 Although the municipality feels it understands the general problems commonly foundthroughout the city, the workshop would allow specificity. The workshop would enable eitherthe collection of problem specific data or the determination of problems which specificallyrequire at-site visitations. The workshop would also advise the Fokontany on how to bestpresent their interests to the municipality, providing guidelines, formats, and samples for theinventory of Fokontany identified problems. Municipal policies and procedures could also beclarified. The workshops, finally would facilitate ownership by the Fokontany of the results ofthe project. Such ownerships would make th Fokontnay more interested in preserving theachievement made under the project and in undertaking local actions supportive of correct use

S As follow-up to this discussion but on their own initiative, the four fokontany subsequentlycoopeatively revised the structure of these sub-committees.

102 MADAGASCAR Antananarivo Urban Works Proleit

and preservation of such infrastructure as parks, market places, garbage collection bins, andeven streets.

4.11 At this point the municipality lacks the qualified personnel and associated resourcesnecessary to conduct such problem identification/information dissemination workshops. Theproject could offset this scarcity by funding a contract to a local consulting firm which wouldserve as the facilitators for the workshops. The sustainability of the approach would needcontinued resources, an issue requiring further consideration and commitment by themunicipal'

ExMbit 4

CONSOLIDATION ET EFFORTS AVEC DES PROBLEMS IDENTFhIESORDRE PROBLEME SYMBOL6 AClON QUI RES'u'LTATDIMPORTANCE7 I A COURT A

TERME LONG._____===______ _ _ _ _ _ .___ TERME

1 EVACUATION 0 oui FIV NON NON__________ |D'EAU ROUGE

2 INFRASTRUCTUR 0 OUI FIV OUI NON__________ IROUTIERE BLEU MDUT

1 COLLECTEUR + OUI FIV NON NON_________ |D'ORDURES ROUGE FIR

2 CENTRE SOCIO- + NON N.A. NON NONCULTUREL BLEU

I LOGEMENT/ O3 FlV NON NONBIDONVILLE ROUGE FIR

3 BUREAU DU 0 NON N.A. NON NONFOKONTANY VERT

3 MARCHE LOCAL + OUI FIV NON NONVERT

2 ECLAIRAGE A OUI FIV OUI NONBLEU

2 TROTITOIR 0 OUI FIV NON NONBLEU

1 TOILEITES a OUI FIV NON NON_ROUGE I_I

6 ON A UTILISE CES SYMBOLS-C SUR LA CARTE DU FOKONTANY.7 1-LE PLUS PORTANT, 2- DEUXIEME. 3-TROISIEME


V. INFORMATION PROGRAM: DESIGN, TARGETS, AND COSTS(Working Paper No. 5)

5.1 The experience of the Bank with project implementation Indicates the importance ofinitiating public information programs at an early date in the project cycle. Effective projectmanagement requires that the stakeholders associated with a project have access to sets ofinformation ranging from project objectives to the scheduling of activities under sub-projects.Access to information Is an especially important element in both the promotion of participatoryapproaches and the development of the private sector.

5.2 Projects supporting public works are especially visible to public scrutiny and are,therefore, highly vulnerable to public critique. When such projects are located in urban areas,then the issue of public inconvenience is intensified. Providing advance information in suchsettings can significantly reduce the likelihood of "bad press" as well as encourage the localownership of a project.

5.3 AGEIIPA must provide information to a range of stakeholders including, theFivondronana, the Fokontany, Design and Supervision Firms (DSFs) or consulting firms, andSmall and Medium Scale Enterprises (SMEs) as well as various govermment ministries andagencies, professional associations, NGOs, and the direct beneficiaries of the sub-projects.The information and training services to be provided by AGETIPA will be inter-related andmutually supportive. AGETIPA should consider having a local media specialist review theinformation program AGETIPA proposes or AGETIPA may wish to contract for a singlepackage of public relations services. In order to maximize the participation and developmentof the private sector, long-term technical assistance will not be considered for the provision ofinformation services. The information program discussed here is indicative of the componentswhich must be supported by the project. It is not a rigid structure, and one of the first tasks ofAGETIPA will be to review the fit of the proposed program to the evolving realities and needsin Madagascar.

5.4 World Bank experience has demonstrated the value of holding a project launchworkshop at the time of project start-up. These workshops ensure that there is a clearunderstanding of goals, approach, and strategy for a project as well as facilitate thecoordination and phasing of project elements. They also enable clarification of the specificroles and responsibilities of each agency or group associated with the project. Since the designof the AUWP calls for the advance test of a number of sub-projects before effectiveness it willbe necessary to separate the launch workshop into two phases, with, first, a preliminaryOrientation Workshop linked to the first test sub-projects and, later, a more comprehensiveImplementation Workshop closer to the time of project effectiveness.

5.5 AGETIPA will need to plan a general information strategy which builds upon thesuggested list of activities here. Such a strategy should include a more detailed list ofactivities, their content, and target audiences. The approach to the dissemination ofinformation must build upon a specific understanding of cultural values and norms and shoulddifferentiate betueen information dissemination for general audiences and more specifictargets. The range of activities under the information program is indicated below:

Fokontany Participation Worksltp Workshops enabling the Fokontany to identify theirconcens for repairs and rehablitation of infrastructure as well as to give priorities would be


provided through one-day workshops conducted by a local consulting firm in association withthe municipality.Agen Promotional Materials- AGETIPA will need a packet of promotional materialsincluding an agency brochure, posters, and such associated items as pins or stickers.

Agency Computer-Proiection Presentations- A series of up to six computer projectedpresentations on AGETIPA and procedures and processes relative to becoming short-listed orsubmitting proposals will be prepared by consultants using materials provided by AGETIPA.These will be on computer disks and can be upgraded or modified as needed.

Oua y Newsle- AGETIPA would publish a newsletter quarterly which would providedbasic information on project/sub-project status. It would also have a feature article jointlyprepared by AGETIPA and a consulting firm which would offer special advise and tips on theconsulting and contracting industries.

Sub-Project Schedules- Specific information on the schedule for work, especially when detoursmight be required or services temporarily discontinued, would be published for each sub-project.

General Mass Media Promotional Activities- AGETIPA will conduct a range of mass mediapromotional activities including advertisements on radio and television and the preparation ofarticles on AGETIPA and its activities for publication in the local press.

Reference Center- In order to assist the promotion of the private sector a small reference centerwill be operated by AGETIPA. This center will use either the facilities of AGETIPA orWaining site facilities at off hours in order to not disrupt the business operations of AGETIPA.A variety of materials would be available for public use, especially by the SMEs.

CQgUacting Industry Workshop- The development of the private sector contracting andconstruction industry requires the promotion of a supportive environment. Existing researchand country-specific issues will be reviewed at a one-day workshop by selected ministerial,municipal and industry representatives.

Consulting Profession Workshop- Similarly a workshop should also be held for the privateconsulting sector. An alternate would be to combined the focus of the two workshops into oneand to use the funding indicated for an expanded two day workshop.

Annex H - Training for Local SME's & Consultats in the Construction Industry 105

Exhibit 5Indicative Information Program 1993 1996 .. _..

ACTIVITY DATE UNITS | TARGETTest Phase Orientation Workshop Fall 1993 1-2 Day Test FOK

(Launch Workshop # 1) (Nov.) Workshop FIVMDUTDSFsSMEs

Implementation Workshop Spring 1994 1-2 Day FIV(Launch Workshop #2) Workshop MUDT

mlDSFsSMEsAssoc.SNFTPCredit Fac.

Information Strategy Fall 1993 Strt. Paper MultipleFokontany Participation Workshop 1994, 521 Day FOK

Then Workshops (FIV)Periodic

Agency Promotional Materials Ready by See Notes Multiple(Brochure, Posters) Fall 1993 Section mAgency Computer-Projection Presentations First by Fall 6 Programs Multiple

l _~~~~~~~~~~993Quarterly Newsletter Start 1994 11 Issues MultipleSub-Proiect Schedules Start 1994 140 Ads MediaGeneral Promotional Articles Start 1994 see III MediaReference Center Start 1994 Materials SME/DSFsContracting Industry Workshop Late 1994 1 Day SMElDSFsConsulting Profession Workshop Ealy 1995 1 Day_ SMEIDSFs

5.6 The table below provides projected cost information for the activities described above.The costs are based on general estimates for unit costs obtained during the appraisal missionand must be considered as indicative. The total cost of US$ 175,000 includes a base cost ofUS$ 160,000 plus US$ 15,000 for contingencies. This cost does not provide for inflation overthe three year life of the project.

8 Excludes interim, evaluation or other supervision-related wo*tshops.

106 MAD1AGASCAR Antananarivo Urban Works Project

Exhibit 6SUMMARY COST TABLE

ACTIVITY US$ COSTCombined Launch Workshops 50,000Information Strategy 7,000Fokontany Participation Workshops 31,200Agency Promotional Materials 6,000(Brochure, Posters)Agency Computer Projection Presentations 7,200Quarterly Newsletter 17,000Sub-Project Schedules Announcements 7,000General Mass Media Promotion 12,200Reference Center 10,500Construction Industry Workshop 6,000Consulting Profession Workshop 6,000

Subtotal 160,050Contingency 15,000

| TOTAL approx 175,000

VI. INDICATIVE TRAINING PROGRAM COMPONENTS(Working Paper No. 6)

6.1 AGETIPA will assist the development of the private sector in Madagascar bystrengthening the capacity of the Small and Medium Scale Enterprises (SMEs) and Design andSupervision/Consulting Firms (DSFs) associated with the execution of contracts under the sub-projects. Actions taken by AGETIPA will be targeted toward both the environment/marketand the very enterprises themselves9 . The primary targets for training include: staff ofAGETIPA; staff of the municipality; design and supervision consultants; small and mediumscale construction contractors; and credit facilities. Central to the support to be provided to theenterprises themselves will be a training package including a mix of such instructional andcounseling components as: written text; guidelines for trainers; expanded commentary; audio-visuals/handouts; samples, workbooks, exercises; one-on-one consultations; self-instructionalvideos; evaluations of proficiency; and reviews and/or updates. More limited training actionswill include in-house training for the staff of AGETIPA, training for credit organizations, andfor the municipality/community.

6.2. In general the training package will be based on topics or series which, in turn, arebroken down into modules. Each module will have specific components. Except for certaintopics most modules will be kept short, perhaps fifteen minutes, not including time forexercises. The evolution of training materials will be on an iterative basis. Initialpresentations will be evaluated by the trainees and/or use evaluations of trainee proficiency.These evaluations will be used by the training consultants to improve individual modules.

9 AGETIPA wiU also conduct information on the environment/market for SMEs and DSFs as part ofits information service. This may require some assistance by consultants but wil be largely supported by

the saffof AGETIPA. For discussion see Casting, July 1993.


Trainees may provide examples or present questions during a training session which can beincorporated usefully into the module.

6.3 Although AGETIPA will be responsible for the supervision of all training providedunder the program, the development of the training modules and associated materials will becontracted to a local firm. During the Appraisal Mission consultations were held with severalfirms which have had experience in this area. Because of the need to develop highi qualitymaterials quickly, the local firm awarded the contract will be required to associate with aninternational firm. The international firm will assist start-up during both the test phase in 1993and full implementation in 1994 as well as provide a recurrent review function. Thus, theTOR will require experience in the preparation and implementation of training activities bothin Madagascar and internationally.

6.4 The projected schedule for the AUWP indicates that work should start on the test sub-projects some time in October 1993. This leaves little time in which to prepare the TORs,tender, and award and will give the consulting fim awarded the contract very little start-uptime. With this constraint in mind, high priority should be given to recruiting theinformation/training specialist for AGETIPA. This specialist will have an especially activerole to play as a result of the fast-tracking which will be required.

6.5 The training program should be innovative and avoid a traditional class-roomapproach. Trainees will be provided information and techniques they need to know in order toboth perform and grow. From an early point the development of the training program hasbeen seen as an iterative process. As discussed above, this means that the training modules beused, evaluated-testing how well they meet the needs of the trainees-and improved asnecessary on a recurrent basis; each training action will have an evaluation mechanism todetermine both trainee achievement and satisfaction with the activity. Considerable attentionwill also be given to direct consultation with firms-both DSFs and SMEs-on an in-house andat-site basis. Building a complex, comprehensive curriculum is not the obJective of theproject: rather, capacity-building is.

6.6 Within this framework the training contract, therefore, wMl involve two phases.During the first phase the consultant will quickly prepare provisional training modules for thefirst lot of firms-SMEs and DSFs-to be award contracts; since these firms will be the moreexperienced firms, their needs for training will be less than will be required to assist the lessexperience firms which will be involved later. If necessary the provisional modules will berevised and upgraded.

6.7 The consultant will also be required to asses the needs of the SMEs and the DSFs; theassessment will use materials already produced as well as selective interviews. Based on theevaluation of the modules prepared and the assessment the consultant will prepare the overalltraining program for the implementation phases. This design will be more comprehensive,including not only supplemental training but also target groups not included during the testphase. This design will be reviewed by AGETIPA and the Institutional DevelopmentSpecialist provided by the Bank before the consultant will be authorized to proceed. Thetraining developed for the test sub-projects, therefore, will itself serve as a test and basis forexpanded program development.


6.8 During the second phase training modules will continue to be evaluated and revised.This will be based on end-of-session evaluations by the trainer and trainees as well as inconjunction with periodic technical audits. The consultant will be responsible for providingAGETIPA with a master file on disk and a print out for each iteration as revisions are made.'0

TORs will be prepared in accordance with the suggested curriculum and will require a revisionof the curriculum for the implementation phase based on the experience obtained in the testphase.

6.9 An indicative package of components by specific target has been prepared and will beprovided to AGETIPA as a guide for the preparation of the training package by theconsultants. Using this package as a base, costs have been estimated. These estimates arebased on general unit costs for training in Madagascar obtained during the appraisal missionand must be considered as indicative. The total cost of US$ 300,000 includes a base cost ofUS$ 271,600 plus US$ 27,160 for contingencies. This cost does not provide for inflation overthe three year life of the project.

Exhibit 7SUMMARY COST TABLE

BY TRAINING TARGETS US$ COSTGeneral Training and Planning Services 105,000(Assessment and Design) lAGETIPA 9,000Municipality 7,600Design and Supervision/Consulting Firms 35,500Small and Medium Scale Enterprises 56 500Credit Facilities 3,000Training Equipment 25,000Publications, Reference Documents 10,000Videos 20,000

Subtotal 271,600Contingency 27, 160

TOTAL 298,760__________ _________ _________ ____ (approx 300,000)

Excludes the cost of a training room

10 Consideration should be given to using the same two-phase contracting approach with theinformation program. A single firm could be used to provide both the information program and thetaining program The TORS will be designed so they can readily be handled either way.

Annex H - Training for Local SME'g & Consul-nts in the CQnstruction Industy 109

Attachment A

LIST OF WORKING PAPERS. AUWP

Working Paper No. IPRELIMINARY CONCEPT PAPER:Institutional Overview

Working Paper No. 2PROJECT RELATED TRAINING DESIGN ISSUES:Preliminary Overview

Working Paper No. 3PARTICIPATORY DIMENSIONS OF PROJECT DESIGN:Preliminary Institutional Overview

Working Paper No. 4PARTICIPATORY DIMENSIONS OF PROJECT DESIGN:Worksbhop Demonstration

Working Paper No. 5INFORMATION PROGRAM:Design, Targets, and Costs

Working Paper No. 6TRAINING PROGRAM:Review of Design and Indicative Components

Working Paper No. 7ENVIRONMENTAL REVIEW:Development of Local Assessment Capacity


ANNEX I. AUDITS

I. TERMES DE REFERENCE DE L'AUDIT FINANCIER

A. .itibduction et PrEsentation du Projet

1. Objectifs du Projet (voir le Rapport d'Evaluation No. 12587-MAG).

2. Description du Projet (voir le Rapport d'Evaluation No. 12587-MAG).

B. Services I fournir par I'auditeur

1. GEndrailtds

L'auditeur examinera les etats financiers du projet pour la periode ........conformement aux normes internationales d'audit, aux principes comptablesgdneralement admis et aux directives publiees par la Banque Mondiale pourP'etablissement des rapports fianciers et la revision des comptes des projets qu'ellefinance. L'examen de l'auditeur comprendra, mais ne sera pas limite a:

(a) la determination que les etats financiers presentent fidelement et sincerement lasituation financiere du projet conformement aux principes comptablesgeneralement admis et applicables aux circonstances y compris l'examen de laconformit6 de l'execution des transactions du projet avec les termes del'Accord de Credit et les rEglementations applicables;

(b) 1'examen de la conception, la gestion et la mise en oeuvre du systemecomptable;

(c) 1'examen des proc6dures administratives suivies pour la prise des decisionsfinancieres, I'etablissement du budget et les autorisations de d6penses;

(d) 1'examen de l'efficacit6 des systemes et des procEdures connexes en matiere degestion des stocks et de traitement des donn6es;

(e) 1'examen de l'efficacit6 des systemes de contr8le interne;

(t) l'examen du choix et de la compEtence du personnel comptable.

Le controle se fait par observation, confirmation ou sondage des operations financibresavec les pieces justificatives qui peuvent etro n6cessaires pour s'assurer de la r6alite etde l'exactitude des op6rations, de leur enregistrement complet et r6gulier dans leslivres comptables et de leurs effets sur la situation et les rdsultats financiers.

L'auditeur contr8lera egalement le bon enregistrement des postes d'actif et de passif,ainsi que les m6thodes suivies pour leur evaluation. 11 s'assurera par sondage de lar6alit6 de ces elements et de leur evaluation. Parmi les elEments I vErifier, s'il y alieu, figurent le matEriel, l'outillage, les stocks (y compris la comptabilisation des

Annex I - Audits (Terms of Reference) 111

provisions pour obsolescence, deterioration ou pertes), les soldes en banque (y comprisl'efficacite du systeme de gestion de la banque gerant les comptes sp6ciaux) et lessonumes dues a des tiers. L'auditeur consultera entre autres, les documents suivants:

Accord de Credit No .... MAG entre la Republique de Madagascar etI'Association Internationale de Developpement (1.D.A.);

Rapport d'Evaluation I.D.A. No. 12587- MAG;

* Rapports mensuels du projet;

* Correspondances,...etc.

2. Objectifs

L'objectif do I'audit est de permettre a I'auditeur de formuler son opinionprofessionnelle sur la position funanciere du projet de Voiries Urbainesd'Antananarivo, et sur les ressources et depenses telles que presentees dans les etatsfinanciers du projet pour chacun des deux premiers trimestres suivant l'entree envigueur du credit et semestriellement par la suite.

L'audit sera fait conformement aux Normes Internationales d'Audit (InternationalStandards on Auditng) telles que definies par la "Intenational Federation ofAccountants" (IFAC) et comprendra tous les tests et contrOles juges necessaires parI'auditeur. L'auditeur devra s'assurer que:

(i) les fonds du Credit et les cofinancements associes ont ete utilises conformementA I'Accord de Credit et uniquement aux fins pour lesquelles le financement aft accorde, une attention particuliere etant accordee a l'economie et'efficacite;

(ii) les fournitures et les services finances ont ete acquis conformement aux accordsds financement;

(iii) les pieces et les journaux etayant ont ete retenus pour tous les deboursementseffectues, y compris ceux du Compte Special et ceux des Etats Certifies deDepenses;

(iv) que le Compte Special a ete tenu conformement aux previsions de I'Accord deCredit.

(v) les etats financiers audites, y compris le Compte Special, ont ete prdparEsconformement aux Normes Comptables Internationales (InternationalAccounting Standards), telles que definies par le "Intemational AccountingStandards Commitee' (IASC), et qu'ils representent sincbrement et fidblementla situation financiWre du Projet I la fin de la periode sous revue.

.112 MADAGASCAR Antananarivo Urban Works Project

3. Rapports

Ayant termine sa verification, I'auditeur foumnira les rapports suivants:

(a)

Le rapport de l'audit comprendra (i) les etats financiers du projet et l1opinionde l'auditeur sur la sincdrit6 et la flabilit6 de ces etats expliquant les principescomptables ayant servi a lPelaboration des comptes, (i) une opinion sdpar6e surle Compte Special, et (iii) une opinion separde sur les Etats Certifies deDEpenses (BCD) expliquant s'ils ont ete prdpards selon les previsions del'Accord de Credit t si toute depense a ete faite entiarement et necessairementdans le but de realiser les objectifs du projet.

(b) le rapport sur les procedures

Le rapport sur les procedures presentera (1) des commentaires sur lesprocedures administratives, comptables et bancaires ( la structure du systemedu contr6le interne) du projet et des suggestions pour leur amElioration, (ii) descoinmentaires sur les procedures de gestion des marches, (iii) les faiblessesprincipales deceleos au cours de l'audit, et les mesures proposeos pour yremedier, (iv) tout facteur constate qui pouralt influer sur les audits flturs, et(v) toute autre matiere jugee pertinente par l'auditeur

(c) le rapport sur la conformite

Un rapport sur la conformite de l'execution du projet avec les termes del'Accord de Credit et la r6glementation locale applicable.

Dans le souci d'exEcuter la mission d'audit conformdment aux Normes Internationalesd'Audit, une soumission conjointe cabinet local/cabinet international sera admise.Dans ce cas le rapport d'audit sera signe par chacun des deux soumissionnaires.

La date de la remise des rapports afferents aux periodes auditees doit se situer au plustard dans les quarante cinq jours suivant la periode audit6e.

4. Atquence

Les audits financiers et de gestion, ainsi que les audits des ECDs, seront realisestrimestriellement danm les premiers six mois d'execution du projet, puis semestriellement par lasuite.

C. Soumission

L'auditeur doit soumettre deux offres s6parees:

1. L'offre technigue (lere enveloppe)

Danm son offre technique, I'auditeur est tenu de fournir:mune presentation de son cabinet;

* ses moyens en personnel et leurs qualifications proposees pour exEcuter l'audit;

Annex I - Audits (Terms of Reference) 113

* des references concernant des audits ddja executes pour des progrinmessimilaires:

* des references ddtaillWes, entre autres avec les montants audites, concernant desaudits deja exdcutes a Madagascar;

* la m6thodologie qu'il appliquera pour realiser les travaux d'audit;* le planning d'intervention.

2. L'offre financiere (2bme enveloppe)

L'offre flnancibre contient les prix unitaires et totaux (honoraires et autres d4bours)pour les interventions proposees dans l'offre technique.

Les auditeurs sont pries de soumettre leurs offres au plus tard le ........... I ..... hrs.heure locale. Les deux offres (technique et financiere), a fournir en trois exemplaires dontchaque page sera signee par le soumissionnaire, seront enfermees dans 2 enveloppes separ6es,chacune portant la mention de son contenu et l'indication suivante:

FOURNITURE DE SERVICE D'AUDITPROJET DE VOIRIES URBAINES

Ensuite les deux enveloppes seront enfermdes dans une enveloppe scelle adressee a:

PROJET DE VOIRIES URBAINES

L'ouverture des plis aura lieu en seance publique le ..... ...... hrs, heure locale dansle bureau de Monsieur .

Les offres doivent etre remises en langue frangaise.

Les montant peuvent etre exprimes en monnaie librement convertible. La comparaisondes offres financiere se fait sur la base de la monnale locale, le franc Malgache, au taux dechange I la vente de la Banque Centrale valable 30 jours avant la date de l'ouverture des plis.Au cas ot une modification significative des parites (taux de change) aurait lieu entrel'ouverture des plis et l'adjudication du marche, ce fait serait pris en consideration pourl'adjudication.

Les offres seront compardes en fonction des criteres ci-dessous compte tenu de leurconformite en tous points avec les exigences de ces termes de references:

a) Offre technique, (sur 100 points), poids: 80% de la note finale.

(i) moyens et qualification du personnel de l'equipe qui participeraa l'audit (sur 60 points)

(ii) rtferences de projets similaires (sur 15 points)(iii) methodologie de l'audit et planning des interventions (sur 25

points)

b) Offre flnanciere, (sur 100 points), poids : 20% de la note finale.


La commission mise en place pour l'evaluation des offres se reserve un dElai de 10jours pour I'etude des offres et la recommandation d'attribulion du marche. Par al}eurs,l'ouverture des offres financibres aura lieu aprbs achnvement de l'evaluation des offrestechniques. Seules les propositions financitres des offres techniques ayant recueilli plus de 75points seront ouvertes. Les autres seront retournees aux soumissionnaires sans etre ouvertes.

Les travaux d'audit devront commencer dans les ...... jours & compter de la date decommunication de l'attribution du marche.

II. MANDAT DE LA MISSION D'AUDIT TECHNIQUE

A. But de laudit

nI s'avbre necessaire de proc6der simultanement I un audit technique des taches executses parP'AGETPA, en coordination avec l'audit financier et de gestion, affn de valider les rdsultats del'audit financier.

Les objectifs generaux de l'audit technique seront de:

(I) fournir un diagnostic complet de l'ensemblo des procedures et mecanismesutilisds pour la gestion des marches;

(iH) verifier que les realisations physiques correspondent bien aux dEpensesencourues;

giii) verifier que les travaux et autres contrats geres par l'AGETIPA repondent audouble souci de la qualite et de l'economie et sont conformes aux exigences del'Accord de Credit ; et

(iv) proposer eventuellement, dans le rapport b la direction, des recommandationspour ameliorer le systeme de gestion des marches et la qualite des travauxeffectues.

B. Methodologie

Les auditurs techniques procdderont (i) I une Etude approfondie d'un dchantillon de quinzepour cent (15%) des contrats, avec representation des cas, et (ii) I une etude rapide de quatre-vingt-cinq pour cent (85%) des contrats pour evaluer globalement leur conformite avec lesnormes techniques et les exigences de l'Accord de Crddit.

Im. FIRMES AUDrTICES ET RAPPORTS

L'audit financier et de gestion et I'audit technique du projet seront menes, simultan6ment et encoordination, selon le calendrier d6fini par l'AGETIPA.

Les rapports provisoires d'audit devront Otre etablis en cinq exemplaires et seront adress6ssimultanement a l'AGETIPA, au Ministere de l'Am6nagement du Territoire, a la municipalit6d'Antaanarivo, et I la Banque Mondiale. Les rapports d6finitifs seront 6tablis dans un d61aid'un mois aprbs rEception des commentaires et recommandations.

Annex J - Supervision Plan ,

ANNEX J. SUPERVISION PLAN

The Antananarivo Urban Works Project will be supervised every four months.

The supervision plan will provide for combined supervision missions in which auditors,World Banc supervisors and foreign consultants responsible for technical and managerialassistance would participate.

Supervision missions will consist of field trips to review financial anx4 maentpractices, tendering and payments procedures, the supervision and performance of sub-projects, as well as the development of small, intermediate and medium-scale enteprises. Themissions will also carefully monitor the number of registered firms, the number of firmsbidding and winning contracts, the number of firms receiving technical assistance, and theperformance of AGETIPA through the use of key performance indicators (Manual ofProcedures, Annex 10).

The supervision of the project will be simplified by computerized project management. Toimprove his proficiency with the CPM software, AGETIPA's General Manager has used it tokeep track of all the tasks for project preparation. During project implemenaion, he will usethe software to schedule and carefully monitor all the tasks of AGETIPA, including: sub-projects, studies, training servies, scheduling of supervision missions and audits, andadministrative activities.

Two examples of the CPM document used to monitor project preparation are given below.They reflect the status of project preparation as of mid-JWanuary 1994.

- the first one gives two extracts of the project: from task 48 to task 61, the schedule forthe environmental study and the first steps in the execution of test sub-projects, andfrom task 110 to task 120, the last tasks of the project preparation, from thenegotiations to the signing of the Credit Agreement and the short-listing of auditors.

- the second one embraces the entire scope of project preparation, taking into accountonly summary tasks;

In both examples:- planned bars (white) correspond to the project preparation as scheduled in its early

days;- striped bars represent the current schedule of project preparation (scheduled star and

finish dates are given on the sides of the bars);- black bars give the progress of each task, with the percentage completed above;- Summary tasks are represented with special bars; and- Milestones are indicated by a diamond, with the date of their execution above or NA if

not completed yet.

116 MADAGASCAR Antananarivo Urban Works Projec3 1 arJ. 993 4. - I a& I 15 .n

ID N-t x Jun J A ug iSe ci NovJ5t I Dee IonY I Fob I Ma Id I Avg I SolONuw ,iw% Jul A

9 ELABORATIONIDR 100%

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SO EAPPROSBAIONW.R UII9

51 CONSULTAItON ODS 8E I00%

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32 DBPQUUALLOBIf 100%IS1 DEFOtml g~~~~~~~~~~~~~~~~~2/3 IV13 ,1

53 NOlFICA;TON DUMAXRCHE NA

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1014! 1014an1Is I_ ______________ c *240kw

112 FINAULA1ION

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113 BOARDPRBESrA0tloN | 5 NA

114 SgNAIAC. - - I L

117 CONSULTA1IONAMJDI *

24)3

IIS DEPOUMLEMBu I NA119 BNOO.MDtTUPS I I NAI

120 PFRD LIMOS. I

Planned Planned Milestone O Progress Summary

Schedule Milestone

Progress Schedule Summary

-Wi 8. 1 . --'

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ANNEX K. SUB-PROJECTS SUMMRY

Eight test sub-projects have been identified for the project preparation.. More details aboutthese test sub-projects are given in the Annex F.

Before the effectiveness of the project, the government and the municipality will identify sub-projects for the first year of project implementation, which will have to comply with therequirements of the Manuel de Proc6dures, COzapfre IV, Secdon ff (also in Annex E) to beeligible for IDA's financing. An objective of 20 sub-projects to be undertaken is sought for Inthe first year of project implementation.

At the end of 1993, 30 sub-projects had been identified. According to the nature of works theyinvolve, they can be clustered as follows:

Averag, cost |Nb of sub- Sub-projects Deipti of te sub-project Studes Wo*s Cc-suig

project ____________________________F_______ Ofifio 'N!!!Mi FonŽ18 Road rehabilitation' Rehabilitation of the surface layer with paving stones or bitumen, 1 132.1 11.3

rehabilitation or creation of sidewalks, restoration of the drainage_________ _________________system _ _ _ _

1 erminal container constoution of a parking lot for tnicks and containers, 10 1,85 1constnmction of a market, 10 km East of Annaduivo _ _

2 D einap of Drain of the sub-aeas U and V of Antananarivo, according to 5 Footnote 250Anta_narivo areas2 the dainage poattern study (Annex a})

1 Ceation of a stteet Transformaion of a free, unmaint spaco near Anosy lake into a *street. Drainate, paing, creation of sdewalks

2 et and bus Cleaning up, rhabilitaton of the drainage qstem and of the toads 22.5 337 22.5erminal coming up to the terminal, creatioa of parig lots and of slos for

_ market stands in concrete or bitumn2 itae Rehabilitation of the drainage ystem, creation of a concretetp for I 10 1.

the gutters, repbcement of some steps, cteation of a hand-rail. .2 idewalks Rehabilitation of h underground drainage sstem, creaion of . . 3.5

biumen or concrete urface layer _1It of Analakely Rehabilitation of the drainage systm, creation of a concrete suiface

layer, reoqanization of tho marketI etaiaing wall Creation of drainag system, rehabilitation of the wail ._21 1 2

All the sub-projects mentioned above are described with full details and pictures in a folderlocated in the Project File. A second folder gathers pictures of the test sub-projects, coveringthe whole duration of the works.

The identification of possible sub-projects is not over, and will be carried on all through theproject implementation.

Before project effectiveness, AGETIPA will choose approximately 20 sub-projects among theidentified ones, and will launch the engineering studies related to them. It will then bepossible to begin the works on the sub-projects as soon as the project becomes effective.

tThe sub-projects taken into accomunt to calculate the average costs are the ten medium sub-projects interms of the costs of works. This is aimed to exclude very costly sub-project like the 'lumction roadbetween Main roads 2 and 7- which is estimated 7,600 Mio FMg, and very little sub-projects like the'Ankadifotsy Befelatanan St' estimated 3.5 Mio FMg.2The-cost of the works for these drainage subprjects is. sub-am II: 1,700 Mio FMg

sub-area V: 5,900 Mio FMg

Annex t - List of flocuments in the Project File_ 119

ANNEX L. LIST OF DOCUMENTS IN TE PROJECT FIIE

1. Projet Preparation Facility Agreement Letter No. P 800-0

2. World Bank mission, Aide-Memoire, December 4 to I1, 1992.

3. World Bank mission, Aide-Memoire, March 1993.

4. World Bank appraisal mission for the Antananarivo Urban Works Project. Aide-Memoire, June 22 to July 9, 1993.

5. World Bank post-appraisal mission for the Antananarivo Urban Works Project. Aide-Memoire, September 19 to October 1, 1993.

6. World Bank post-appraisal mission for the Antananarivo Urban Works Project. Aide-Memoire, November II to December 2, 1993.

7. Communication Action Plan for AGETIPA, November 1993.

8. R&publique de Madagascar, Minis:ere de I'Am6nagement du Territoire, Mucipalitidd'Antananartvo. Identification and description of 30 sub-projects in the Anananarivo area,November 1993.

9. Rdpublique de Madagascar, Minstre de l'Amnagement du Ten*boire, MwukCpalLd'Artawnarivo. Photographs of the execution of the works for the 8 test sub-projects, January1993.

10. Detailed engineering studies £4' the test sub-projects, November 1993:

* Rainandriamampandry ani Andriandahifotsy streets.• Beltway street from Ambanidia intersection to BPPA.* Drainage system in Besirety.* Stairs from Antinareninato Rainitovo St.* Pare Radley St.* Anosy intersection.

11. Studies:

* Preliminary engineering studies for the Ambohijatovo garden, November 1993.*Output and Efficiency of Production of Paving Stones in the Anananarivo

Area".(report 1, 2, 3), October - December 1993.* 'Drainage pattern of the upper Antananarivo-, November 1993.* 'Traffic study of Antananarivo", January 1994.* 'Economic analysis of a sample of representadve sub-projects", January 1994.

12. E.C.R. Fmal report on the Information Seminar on AGETIPA, held on October 19,1993. November 1993.

13. Video on the Information Seminar, October 19, 1993.

14. Ramandibiarison, Zaza. Monthly progress report of AGETfPA, November 5, 1993.

15. Castaing, Hugues. Inventaire des entreprises et bureaux d'tudes du BTP. Preparedfor the AUWP, Antananarivo, July 1993.

16. Castaing, Hugues. Inventaire des entreprises et bureaux d'tudes du BP, DocumentAnnexes. Prepared for the AUWP, Antananarivo, July 1993.


17. Castaing, Hugues. Project de cadre technique. Prepared for the AUWP,Antananarivo, May, 1993.

18. Castaing, Hugues. Conmpte rendu de la mission d'appul au dtmarrage de IAgence.Antananarivo, December, 1993.

19. P. Moeller. Back to Office Reports, AUWP.e #1. July 9, 1993.* #2. July 9, 1993.* #3. December 8, 1993.

20. P. Moeller. Exit Memos* Pre-Appraisal Mission, March 19, 1993.* Appraisal Mission, July 1, 1993.* Post-Appraisal Mission, December 1, 1993.

21. P. Moeller. Liaison with USAID, June 25, 1993.

22. P. Moeller. Contacts with CNFTP. June 28, 1993.

23. P. Moeller. Environmental Safeguards (Memo 933.001), November 32, 1993.

24. P. Moeller. TOR for Environmental Assessments (Memo 933.002), November 24,1993.

25. P. Moeller. Implications of Meeting on Environmental Safeguards (Memo 933.003),November 32, 1993.

26. P. Moeller. Strengthening Participatory Mechanisms (Memo 933.004), November 27,1993.

27. P. Moeller. Review of Final TOR for Training and Information Programs Strategyaper (Memo 933.005), November 28, 1993.

28. P. Moeller. Development of the Consulting/Contracting Professions: Tmiing andGender Issues, (Memo 933.006), November 29, 1993.

29. P. Moeller. Environmental Specialist for Quality Control of Assessments (Memo933.007), November 32, 1993.

30. P. Moeller. Working Papers:

* 1. PRELIMINARY CONCEPT PAPER:Institutional Overview

* 2. PROJECT RELATED TRAINING DESIGN ISSUES:Preliminary Overview

* 3. PARTICIPATORY DIMENSIONS OF PROJECT DESIGN:Preliminary Institutional Overview

* 4. PARTICIPATORY DIMENSION OF PROJECT DESIGN:Workshop Demonstration

* 5. INFORMATION PROGRAM* 6. TRAINING PROGRAM:

Review of Design and Indicative Components* 7. ENVIRONMENTAL REVIEW:

Development of Local Assessment Capacity* 8. AUWP:

related Terms of Reference.

Annex M - Environmental Review 121

ANNEx M. ENviRoNMENTAL REVIEWI

1. Madagascar has been blessed with both flora and fauna the uniqueness of whichimpresses both scientists and tourists and the preservation of which is an internationalconcern. A diverse body of agencies and organizations are concerned withenvironmental issues in Madagascar, including government bodies, internationaldonors, and NGOs. The main national agencies include: the National EnvironmentalOffice (Office National de I'Environnement, ONE), the National Association for theManagement of Protected Areas (ANGAP); and the National Association forEnvironmental Actions (ANAE).

2. Attempts to consolidate environmental protection in Madagascar have justbegun. Major institutional issues include: flagging popular and government supportover time; the need to revise institutional arrangements; the limited extent to whichONE has been able to carry out its coordination function; the limited development ofnational policy; the duplication and overlapping of roles and responsibilities; an, theslow development of national legislation supporting environmental protection.

3. The relevance of the Antananarivo Urban Works Project (AUWP) toenvironmental issues has been reviewed, and the AUWP has been designated a class Bproject (The Environmental Data Sheet for the AUWP is provided as Appendix A).Since the AUWP will be confined to the central Ant=anarivo, it has little potentialimpact on any protected areas or bio-systems. In fact, the project would have apositive impact on environmental conditions in the inner urban ar.-. It has beenagreed, however, that an assessment would be made of the environmental impact of thesub-projects. It is in conjunction with such assessments and the promotion of localcapacity-building in the private sector that the AUWP can be most supportive ofenvironmental concerns in the country. It is proposed that an assessment of arepresentative sample of sub-projectsbe contracted to the private sector.

4. To the extent possible the AUWP should encourage the strengthening of localcapacity to conduct environmental assessments. This interest, however, in the firstinstance must be balanced against the need to fast-track sub-project preparation duringthe test phase before project effectiveness. Similarly the objective of not overburdeningAGEnIPA-itself intended to be a model for later application--must be kept in mind.

5. The ability of AGETIPA to rely on local capacity to conduct the environmentalassessments for its sub-projects is very much a function of the existing skill

As adapted fiom Working Paper No. 7, by Ph. Moeller.


levels/experience of the private sector and the potential for skill enhancement throughtraining. The existing skill base and experience available in-country is limited. Asurvey conducted for AFrEN in 1990 revealed the existence of about 30 localconsultants in Madagascar with skills relevant to environmental programs. The samesurvey identified about twelve firms with varying degrees of competence andexperience in environmental studies or projects2. Similarly there were perhaps 40NGOs with relevant experience3. The experience gained by most local fims had beenin association with intemational firms or organizations and would need to besupplemented by training.

6. Since the NGO community in Madagascar is already playing a role inconjunction with the NEAP, it would seem a logical choice to tap them as a resource.A review of the capability of the NGOs relative to implementation issues for the NEAPin Madagascar suggests that the local NGOs were already carrying about as much asthey could and had little absorptive capacity to take on more.

7. The absorptive capacity of the private sector was more difficult to assess. Inconjunction with a recent tendering by ANGAP, 21 of the 54 submittants of proposalswere classed as local consulting firms. Again, a review of the credentials of thesefirms indicated that most firms had gained their experience in conjunction withexatriate firms. ANGAP did not feel that-except for the top two or three-these firnscould conduct environmental assessments without some degree of training.

8. Discussion with ONE indicated that they were in the process of designing atraining package for local consulting firms which would prepare them to conductenvironmental assessments. The syllabus was under preparation, but would beprimarily technical in content. The program would be initiated in the last quarter of theyear. The ONE felt it had the financial resources for the training but was especiallyinterested in the idea of AUWP hiring some of the trainees to provide environmentalassessments for the sub-projects.

9. AGETIPA will have to review the proposed curriculum to see how well it fitswith the requirements of the AUWP. The ONE would very much like to collaboratewith AGETIPA in developing the format for the assessment. Most likely, themanagement training proposed for the consulting firms under the project in generalwould also be applicable for the firms interesting in being trained to conduct theassessments.

2 The survey listed the following firms: AIA, JARY, BRGM, FRISA, GEDID, INFRASMAD,MAGE, MICROS, OSIPD, SOATEG, SECE, SOMET, and SOMEAH.

3 NGOs Listed included: COMODE (A cluster of NGOs), FJKM, FLM/SAFAI, FIKRIFAMA,GARITAS, WWF, IC, DVV, ACCN, JICADRAIC, TIAKO, WESM, and WV.