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Document of
The World Bank
Report No: ICR3729
IMPLEMENTATION COMPLETION AND RESULTS REPORT
(IBRD-82300, IBRD-84670)
ON A
SERIES OF PROGRAMMATIC LOANS
IN THE AMOUNT OF EURO 204.3 MILLION
(US$260 MILLION EQUIVALENT)
TO THE
KINGDOM OF MOROCCO
FOR A
MUNICIPAL SOLID WASTE SECTOR DEVELOPMENT POLICY LOANS (3 AND 4)
December 5, 2016
Social, Urban, Rural and Resilience Global Practice
Maghreb Departement
Middle East and North Africa Region
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CURRENCY EQUIVALENTS
(Exchange Rate Effective December 31, 2015)
Currency Unit = Moroccan Dirham (MAD)
MAD 1.00 = US$ 0.1
US$ 1.00 = MAD 9.9
FISCAL YEAR
January 1 – December 31
ABBREVIATIONS AND ACRONYMS
BOCT Local Government Official Bulletin (Bulletin Officiel des Collectivités Territoriales)
CPS Country Partnership Strategy
CRC Citizens’ Report Card
DEA Water and Sanitation Department (Direction de l’Eau et de l’Assainissement)
DPL Development Policy Loan
CN-PNDM
National Commission for Municipal Solid Waste Management Program (Commission
Nationale du PNDM)
EIA Environmental Impact Assessment
GDP Gross Domestic Product
GIZ German Development Agency (Deutche Gesellschaft fur Intenationale Zusammenarbeit)
ICR Implementation Completion and Results Report
ISWM Integrated Solid Waste Management
LG Local Government
M&E Monitoring and Evaluation
MEMEE Ministry of Energy, Water, Mines and Environment (Ministère de l’Energie, de l’Eau, des
Mines et de l’Environnement)
MOE Ministry of Environment
MSW Municipal Solid Waste
OREDD Regional Observatories for Environment and Sustainable Development (Observatoire
Régionaux de l’Environnement et du Développement Durable)
PDO Program Development Objective
PNDM National Municipal Solid Waste Program (Programme National des Déchets Ménagers)
QEA Quality at Entry
QSA Quality of Supervision
TGR Treasury of the Kingdom of Morocco (Trésorerie Générale du Royaume)
Regional Vice President:
Senior Global Practice Director:
Hafez M. H. Ghanem
Ede Jorge Ijjasz-Vasquez
Country Director: Marie Francoise Marie-Nelly
Practice Manager: Ayat Soliman
Task Team Leader: Maria Sarraf
KINGDOM OF MOROCCO
MUNICIPAL SOLID WASTE SECTOR DEVELOPMENT
POLICY LOANS (3 AND 4)
Contents Data Sheet
1. Program Context, Development Objectives and Design ................................................................................. 1
2. Key Factors Affecting Implementation and Outcomes ................................................................................... 5
3. Assessment of Outcomes .................................................................................................................................... 9
4. Assessment of Risk to Development Outcome ............................................................................................... 18
5. Assessment of Bank and Borrower Performance .......................................................................................... 19
6. Lessons Learned ............................................................................................................................................... 21
7. Comments on Issues Raised by Borrower/Implementing Agencies ............................................................. 22
Annex 1 Bank Lending and Implementation Support/Supervision ..................................................................... 23
Annex 2. Beneficiary Survey Results ....................................................................................................................... 25
Annex 3. Stakeholder Workshop Report and Results ............................................................................................ 26
Annex 4. Borrower's ICR ......................................................................................................................................... 27
Annex 5. Comments of Co-financiers and Other Partners/Stakeholders ............................................................. 40
Annex 6. List of Supporting Documents .................................................................................................................. 41
i
A. Basic Information
Program 1
Country Morocco Program Name Solid Waste Sector DPL 3
Program ID P127955 L/C/TF Number(s) IBRD-82300
ICR Date 04/04/2016 ICR Type Core ICR
Lending Instrument DPL Borrower Kingdom of Morocco
Original Total
Commitment USD 130.00 million Disbursed Amount USD 129.84 million
Implementing Agencies Ministry of Economy and Finance, Ministry of Interior, Ministry of Environment
Cofinanciers and Other External Partners
Program 2
Country Morocco Program Name Solid Waste Sector DPL 4
Program ID P148642 L/C/TF Number(s) IBRD-84670
ICR Date 04/04/2016 ICR Type Core ICR
Lending Instrument DPL Borrower Kingdom of Morocco
Original Total
Commitment USD 130.00 million Disbursed Amount USD 116.04 million
Implementing Agencies Ministry of Economy and Finance, Ministry of Interior, Ministry of Environment
Cofinanciers and Other External Partners
B. Key Dates
Solid Waste Sector DPL 3 - P127955
Process Date Process Original Date Revised / Actual
Date(s)
Concept Review: 05/17/2012 Effectiveness: 06/13/2013 04/30/2013
Appraisal: 12/03/2012 Restructuring(s):
Approval: 02/14/2013 Mid-term Review:
Closing: 12/31/2013 12/31/2013
Solid Waste Sector DPL 4 – P148642
Process Date Process Original Date Revised / Actual
Date(s)
Concept Review: 09/25/2014 Effectiveness: 06/25/2015 04/22/2015
Appraisal: 11/25/2014 Restructuring(s):
Approval: 02/12/2015 Mid-term Review:
Closing: 12/31/2015 12/31/2015
ii
C. Ratings Summary
C.1 Performance Rating by ICR
Overall Program Rating
Outcomes Satisfactory
Risk to Development Outcome Moderate
Bank Performance Satisfactory
Borrower Performance Satisfactory
C.2 Detailed Ratings of Bank and Borrower Performance (by ICR)
Overall Program Rating
Bank Ratings Borrower Ratings
Quality at Entry: Satisfactory Government: Satisfactory
Quality of Supervision: Satisfactory Implementing
Agency/Agencies:
Overall Bank
Performance Satisfactory
Overall Borrower
Performance Satisfactory
C.3 Quality at Entry and Implementation Performance Indicators
Solid Waste Sector DPL 3 - P127955
Implementation
Performance Indicators
QAG Assessments
(if any) Rating:
Potential Problem Program at
any time (Yes/No): No Quality at Entry (QEA) None
Problem Program at any time
(Yes/No): No
Quality of Supervision
(QSA) None
DO rating before
Closing/Inactive status Satisfactory
Solid Waste Sector DPL 4 – P148642
Implementation
Performance Indicators
QAG Assessments
(if any) Rating:
Potential Problem Program at
any time (Yes/No):
No Quality at Entry (QEA) None
Problem Program at any time
(Yes/No):
No Quality of Supervision
(QSA) None
DO rating before
Closing/Inactive status
Satisfactory
D. Sector and Theme Codes
Solid Waste Sector DPL 3 - P127955 Original Actual
Sector Code (as % of total Bank financing)
Solid waste management 75
Sub-national government administration 25
iii
Theme Code (as % of total Bank financing)
Environmental policies and institutions 30
Pollution management and environmental health 25
Urban services and housing for the poor 45
Solid Waste Sector DPL 4 - P148642 Original Actual
Sector Code (as % of total Bank financing)
Central government administration 25
Solid waste management 44
Sub-national government administration 31
Theme Code (as % of total Bank financing)
Environmental policies and institutions 38
Municipal governance and institution building 25
Participation and civic engagement 6
Pollution management and environmental health 25
Urban services and housing for the poor 6
E. Bank Staff
Solid Waste Sector DPL 3 - P127955
Positions At ICR At Approval
Vice President: Hafez M. H. Ghanem Inger Andersen
Country Director: Marie Francoise Marie-Nelly Neil Simon M. Gray
Practice Manager Ayat Soliman Franck Bousquet
Task Team Leader: Jaafar Sadok Friaa Jaafar Sadok Friaa
ICR Team Leader: Maria Sarraf
ICR Primary Author: Maria Sarraf /Allan Rotman
Solid Waste Sector DPL 4 - P148642
Positions At ICR At Approval
Vice President: Hafez M. H. Ghanem Inger Andersen
Country Director: Marie Francoise Marie-Nelly Neil Simon M. Gray
Practice Manager: Ayat Soliman Franck Bousquet
Task Team Leader: Jaafar Sadok Friaa / Maria Sarraf Jaafar Sadok Friaa / Maria Sarraf
ICR Team Leader: Maria Sarraf
ICR Primary Author: Maria Sarraf / Allan Rotman
iv
F. Results Framework Analysis
Program Development Objectives The Program Development Objective is to support the Government’s efforts to improve the economic,
environmental, and social performance of the municipal solid waste sector.
Revised Program Development Objectives The PDO was not revised.
Indicator(s)
Solid Waste Sector DPL 3 (P127955) and DPL 4 (P148642)
Indicator Baseline Value
Original Target
Values (from
approval
documents)
Formally
Revised Target
Values
Actual Value
Achieved at
Completion or
Target Years
Indicator 1 : Number of municipalities implementing Citizens’ Report Cards on MSW services
(Number, Custom)
Value (Quantitative or
Qualitative) 0 4 5 5
Date achieved 12/31/2012 02/13/2015 02/13/2015 06/01/2016
Comments (including %
achievement)
Achieved
Original target at DPL 3 approval was 4. Target revised at DPL 4 approval to 5.
CRC have been done in 5 municipalities: Agadir, Mohamedia, Rabat, Tanger, and
Temara.
Reference: Supporting documents for this indicator are listed in annex 6.
Indicator 2 : Percentage of contracts signed (after the issuance of Circular No. 8029) with an
extract disclosed on BOCT web platform (Percentage, Custom)
Value (Quantitative or
Qualitative) 0 100 100
Date achieved 12/31/2012 02/13/2015 11/01/2015
Comments (including %
achievement)
Achieved
All contracts are now published on the Portail National des Collectivités
Territoriales
Reference: www.pncl.gov.ma
Indicator 3 : Percentage of MSW collected professionally and disposed of in sanitary landfills
(Percentage, Custom)
Value (Quantitative or
Qualitative) 32 66 55 53
Date achieved 12/31/2012 02/13/2015 02/13/2015 06/01/2016
Comments (including %
achievement)
Substantially achieved 22 sanitary landfills are operational in Morocco receiving about 2.9 million tons of
waste (or 53 percent of collected MSW); this includes the recently completed
sanitary landfills of Marrakech, Meknes, and Ouarzazate.
Once the five sanitary landfills that are currently under construction (Khenifra,
Tanger, Beni Mellal, Sefrou, and Casablanca) are completed, the rate is expected to
reach 80%.
Reference: Government Completion Report (July 2016) available in annex 6 of ICR
v
Indicator 4 : Number of inter-municipal/regional institutions (Groupements d’Agglomération et
Groupements de Communes) established (Number, Custom)
Value (Quantitative or
Qualitative) 7 15 25
Date achieved 12/31/2012 02/13/2015 06/01/2016
Comments (including %
achievement) Exceeded
Indicator 5 : Percentage increase in aggregated municipal revenues compared to 2012
(Percentage, Custom)
Value (Quantitative or
Qualitative) 0 10 20 19.4
Date achieved 12/31/2012 02/13/2015 02/13/2015 04/01/2016
Comments (including %
achievement)
Substantially achieved
Original target at DPL 3 approval was 10%. Target revised to 20% at DPL 4
approval. Revenues increased from MAD 30,809 million in 2012 to MAD 36,785
million in 2015.
Reference: Trésorerie Générale du Royaume (TGR): Situation des Recettes des
Collectivités Territoriales. From 2008 to 2014 (excel sheet) and update for 2015
(written communication from TGR 02/19/2016). Documents available in project
file.
Indicator 6 :
Decrease in the percentage of total volume of arrears (as declared by private
operators and verified by DEA1) compared to the original annual total amount of
Municipal Solid Waste contracts (Percentage, Custom)
Value (Quantitative or
Qualitative) 70 50 30 20
Date achieved 12/31/2012 02/13/2015 02/13/2015 10/01/2015
Comments (including %
achievement)
Exceeded Original target at DPL 3 approval was the reduction of arrears from 70% to 50%.
Target revised to 30% at DPL 4 approval. Remaining arrears are estimated at MAD
380 million, meaning an actual reduction to 20%.
Reference: DEA, Ministry of Interior. Data collected during World Bank mission of
October 2015 and recorded in mission aide mémoire.
Indicator 7 : Percentage of MSW sanitary landfills regularly inspected (Percentage, Custom)
Value (Quantitative or
Qualitative) 8 100 100
Date achieved 12/31/2012 02/13/2015 04/01/2016
Comments (including %
achievement)
Achieved
All sanitary landfills under operation in 2014/2015 have been inspected by the
Ministry of Environment (MOE).
Reference: Matrice de Contrôle Environnemental des Décharges prepared by the
MOE dated November 2015 and available in the project file.
1Water and Sanitation Department (Direction de l’Eau et de l’Assainissement, DEA) within the Ministry of Interior.
vi
Indicator 8 : Total amount of eco-taxes collected and allocated to the National Environmental
Fund (Amount, Custom)
Value (Quantitative or
Qualitative) 0 MAD 230 million MAD 409 million
Date achieved 12/31/2012 02/13/2015 6/01/2016
Comments (including %
achievement)
Exceeded
Reference: MOE. Data collected during World Bank mission of October 2015 and
recorded in mission aide mémoire.
Indicator 9 : Number of recycling projects supported through eco-tax revenues (Number,
Custom)
Value (Quantitative or
Qualitative) 0 10 18
Date achieved 12/31/2012 02/13/2015 06/01/2016
Comments (including %
achievement)
Achieved
18 projects have been approved. Fifteen (15) projects have been approved between
municipality, Ministry of Interior, and MOE and all conventions have been signed.
Three (3) projects have been approved with local community groups (for example,
cooperatives) and are in the process of having conventions signed.
Reference: Government Completion Report (July 2016) available in annex 6 of ICR
Indicator 10 : Number of income generating opportunities in the recycling sector for waste pickers
(disaggregated by gender)(Number, Custom)
Value (Quantitative or
Qualitative) 150 (20 women) 1,000 500
1,050
(50 women)
Date achieved 12/31/2012 02/13/2015 02/13/2015 06/01/2016
Comments (including %
achievement)
Achieved
The objective of this indicator is to create job opportunities. The 18 recycling
projects approved will generate an estimated 1,050 job opportunities for waste
pickers. It is estimated that about 5% of waste pickers are female.
Reference: Government Completion Report (July 2016) available in annex 6 of ICR
G. Ratings of Program Performance in ISRs
Solid Waste Sector DPL 3 - P127955
No. Date ISR
Archived DO IP
Actual Disbursements
(US$, millions)
1 06/07/2013 Satisfactory Satisfactory 129.84
Solid Waste Sector DPL 4 - P148642
No. Date ISR
Archived DO IP
Actual Disbursements
(US$, millions)
1 06/17/2015 Satisfactory Satisfactory 116.04
2 12/16/2015 Satisfactory Moderately Satisfactory 116.04
H. Restructuring (if any)
No restructuring took place
1
1. Program Context, Development Objectives and Design
1. Problems associated with municipal solid waste (MSW) have increasingly been
recognized as barriers to harmonious urbanization and the overall socioeconomic development
process in Morocco. An assessment of the cost of environmental degradation in Morocco illustrated
that the cost of substandard MSW practices in 2000 was estimated at 0.5 percent of gross domestic
product (GDP).2 The growing rate of waste generation was putting significant pressure on municipal
services, particularly from financial, managerial, environmental, and social perspectives. Currently,
the country generates about 5.8 million tons of MSW per year and this is expected to reach 6.2 million
by 2020. With 60 percent of its population living in cities, the Government has recognized that
improving municipal waste delivery is key for the well-being of its citizens, the country’s natural
resources, and the growth of the tourism industry.
2. In 2008, the Government launched a three-phase, 15-year National Municipal Solid Waste
Program (PNDM).3 The PNDM supports municipalities to cope with the requirements of the 2006
Solid Waste Law, including the modernization of the MSW system and the 2014 Framework Law on
Environment and Sustainable Development. The latter (Law 99-12) defines the rights and obligations
of citizens for the protection and preservation of the environment and sustainable development and
acts as a reference framework to unify all related policy actions and fill in the existing gaps. Law 99-
12 also introduces new principles and tools that support the MSW sector reforms. More specifically, it
enforces the principle of citizens’ right of access to environmental information; establishes the ‘Police
de l’Environnement’ to reinforce authorities in charge of environmental control and inspection;
introduces the Extended Producer’s Responsibility principle, the ‘fiscalité verte’; and promotes waste
reduction, reuse, and recycling.
3. The first phase of the PNDM (2008–2012) was supported by the first two Development Policy
Loans (DPL 1 and 2).4 During that period, Morocco made good progress in substantiating the sector
policy and providing the necessary operational and regulatory framework for more integrated and
efficient MSW systems. The required legislation in the MSW sector was in place, building on the
enactment of Morocco’s Solid Waste Law and a well-ingrained and effective coordination of sector
policies and government actions. A transparent and result-oriented incentive mechanism was also
operational, allocating national financial resources to support municipalities in modernizing their
MSW systems through private sector participation. This translated into improved service delivery in
quality, cost-effectiveness, and equal coverage in high-, medium-, and low-income neighborhoods.
These were significant results for the first phase of the PNDM, but continued and steady progress was
needed to achieve the objectives set for 2022.
4. With the PNDM entering its second phase (2013–2017) and a new context for municipal
service delivery triggered by higher expectations on governance following the Constitutional Reform
of 2011, it was critical that key players at national, regional, and local levels keep improving the MSW
service delivery while (a) promoting public access to service information to enhance social
accountability of service providers and municipal administrations; (b) strengthening the institutional
2 Sarraf et al. 2003. “Royaume du Maroc : Évaluation du Coût de la Dégradation de l’Environnement.” Sector Note No.
25992-MOR. The World Bank. Washington, D.C. English and French. 3 The PNDM includes three phases: phase one - 2008–2012; phase two - 2013–2017; and phase three - 2018–2022. 4 The first Programmatic Series of municipal solid waste sector DPLs consisted of DPL 1 (delivered in 2009) and DPL 2
(delivered in 2010), which were subject to an Implementation Completion and Results Report (ICR) in 2012 (ICR2276).
2
and financial framework to professionalize investment planning, infrastructure development, and
service management, and sustain private sector participation; (c) developing environmental control and
monitoring to better support the compliance of MSW infrastructure and services with national
regulations; and (d) developing waste recycling activities in a manner that promotes income-generation
activities and works to include vulnerable groups whose livelihoods depend on waste picking. The
Government acknowledged that this required a comprehensive and coordinated set of policy reforms
in several key areas, including sector governance, institutional and financial, and environmental and
social dimensions. In this context, the Government requested and the World Bank accepted to continue
its support to sector reforms through a second Programmatic Series (DPL 3 and 4).5
1.1 Context at Appraisal
5. Sector context. At appraisal, the benefits of the first phase of the PNDM were being felt across
Morocco and the MSW sector reform continued to be a core component of Morocco’s national
sustainable development agenda and a key driver for improving the urban environment and municipal
service delivery. The Government’s commitment to reform MSW management was as strong as ever
and the World Bank’s engagement in accompanying the Government in its reform program was as
important as ever. Having achieved tangible results, such as
an enhanced legal framework with the enactment of the Solid Waste Law (Law 28-00) and the
Framework Law on Environment and Sustainable Development (Law 99-12);
increased waste collection and street cleaning in urban areas from 45 percent (2007) to 80 percent
(2014);6
increased waste disposed in sanitary landfills from 5 percent (in 2007) to 37 percent (in 2014);
closure/rehabilitation of unsanitary landfills from 8 (in 2007) to 23 (in 2014);7
increased waste collected in urban areas by private operators from 45 percent (2007) to 78 percent
(2014);
an enhanced and decentralized Environmental Impact Assessment (EIA) system consistent with
international good practice and fully operational at the national and regional levels; and
excellent cooperation between three key ministries (Environment, Finance and Interior) working
with a consistent and coordinated vision to improve waste management.
6. It was time to move from an infrastructure-based intervention to a more service delivery type
of intervention. At appraisal, it was time to capitalize on the momentum gained during the first
Programmatic Series while deepening the reforms.
7. Macro context. While many countries in the region were witnessing stagnating economic
growth and were under enormous economic turmoil, at appraisal of DPL 4 (in 2014), Morocco was
achieving respectable per capita income growth and preserving political stability, which in turn allowed
for significant improvement in many social indicators. This performance was mainly due to the
implementation of sound macroeconomic policies and structural reforms. For example, over the first
nine months of 2014, the full implementation of the fuel price-indexation mechanism helped cut
5 The second Programmatic Series consisted of DPL 3 (delivered in 2013) and DPL 4 (delivered in 2015). The second
Programmatic Series is the subject of the proposed ICR (ICR3729). 6 Kingdom of Morocco: PNDM Progress Report, September 29, 2014. 7 Same reference as footnote 6.
3
subsidies by 19.6 percent (or 1 percentage point of GDP). The fiscal consolidation measures also
included limiting the rise of the wage bill by 2.2 percent through freezing of higher wages and limiting
new hiring of civil servants. The consolidation also entailed improving tax collection through the
extension of the tax base, harmonization of tax rates, and fighting tax evasion. Consistent with the
fiscal tightening, the balance of payments indicators improved in 2013 and during the first 10 months
of 2014. Moreover, the 2015 Budget Law confirmed the Government’s strategy that was launched in
2014 and planned to continue reforming the subsidy system and launch the reforms of the pension and
fiscal systems that year. In November 2014, the International Monetary Fund conducted a first review
of the second Precautionary and Liquidity Line (about US$5 billion) together with the annual Article
IV consultations and found that Morocco managed to stabilize the economy and improve the main
macroeconomic and fiscal indicators thanks to ‘sound economic fundamentals and strong policy
implementation’.
8. Rationale for World Bank intervention. The second Programmatic Series builds on the
achievements of the first Programmatic Series, supported by the World Bank and implemented in
parallel to the Government’s PNDM, and on the strong sectoral dialogue between the World Bank and
the Government. Continued engagement was needed to sustain and deepen the reforms agenda and
support its transition to better governance and a stronger structural decentralization agenda for
municipal service delivery. Given the capacity of the World Bank to gather global knowledge on
complex issues (such as arbitration) and emerging challenges (such as recycling), the Government
requested a second Programmatic Series.
1.2 Original Program Development Objectives (PDO) and Key Indicators
9. The development objective of the second Programmatic Series (DPL 3 and 4) was to support
the Government’s efforts to improve the economic, environmental, and social performance of the
Municipal Solid Waste sector.
10. The key indicators were as follows:
Number of municipalities implementing Citizens’ Report Cards on MSW services
Percentage of contracts signed (after the issuance of Circular No. 8029) with an extract
disclosed on BOCT web platform
Percentage of MSW collected professionally and disposed of in sanitary landfills
Number of inter-municipal/regional institutions (‘Groupements d’Agglomération et
Groupements de Communes’) established
Percentage increase in aggregated municipal revenues compared to 2012
Decrease in the percentage of total volume of arrears (as declared by private operators and
verified by DEA) compared to the original annual total amount of MSW contracts
Percentage of MSW sanitary landfills regularly inspected
Total amount of eco-taxes collected and allocated to the National Environmental Fund
Number of recycling projects supported through eco-tax revenues
Number of income generating opportunities in the recycling sector for waste pickers
(disaggregated by gender)
4
1.3 Revised PDO and Key Indicators, and Reasons/Justification
11. The PDO was not revised.
12. Key indicators remained in essence the same. A few clarifications were provided to better
define some indicators. Targets were slightly revised in light of new developments on the ground
between DPL 3 and DPL 4. The targets of four indicators were raised and two were decreased. A
summary is provided in table 1.
Table 1. Key Indicators
Key Indicators Target Comment
1 DPL 3 Number of municipalities implementing Citizens’ Report Cards on MSW services 4
DPL 4 Number of municipalities implementing Citizens’ Report Cards on MSW services 5 Increase target
2
DPL 3 Percentage of contracts signed with an extract disclosed on BOCT web platform 100
DPL 4 Percentage of contracts signed (after the issuance of Circular No. 8029) with an
extract disclosed on BOCT web platform 100
Clarify indicator
3 DPL 3 Percentage of MSW collected professionally and disposed of in sanitary landfills 66
DPL 4 Percentage of MSW collected professionally and disposed of in sanitary landfills 55 Reduce target*
4
DPL 3 Number of inter-municipal/regional institutions (Groupements d’Agglomération et
Groupements de Communes) established
15
DPL 4 Number of inter-municipal/regional institutions (Groupements d’Agglomération et
Groupements de Communes) established 15
5 DPL 3 Increase in aggregated municipal revenues compared to 2012 +10%
DPL 4 Percentage increase in aggregated municipal revenues compared to 2012 +20% Increase target
6
DPL 3 Decrease in the percentage of total volume of arrears (as declared by private
operators) compared to the original annual total amount of MSW
50
DPL 4 Decrease in the percentage of total volume of arrears (as declared by private
operators and verified by DEA)compared to the original annual total amount of MSW 30
Clarify indicator
increase target
7 DPL 3 Percentage of MSW landfills regularly inspected 100
DPL 4 Percentage of MSW sanitary landfills regularly inspected 100 Clarify
8
DPL 3 Amount of eco-taxes collected and allocated to the National Environmental Fund 230
DPL 4 Total amount of eco-taxes collected and allocated to the National Environmental
Fund 250
Clarify indicator
increase target
9 DPL 3 Number of recycling projects supported through eco-tax revenues 10
DPL 4 Number of recycling projects supported through eco-tax revenues 10
10 DPL 3 Number of income generating opportunities in the recycling sector for waste pickers 1,000
DPL 4 Number of income generating opportunities in the recycling sector for waste pickers 500 Reduce target**
Note: Highlighted areas indicate clarification added to the indicators between DPL 3 and DPL 4.
* The percentage of MSW collected professionally and disposed of in sanitary landfills was reduced because of delays in the
implementation of landfills, in particular Casablanca landfills (where the site area had been substantially changed [see World
Bank aide mémoir of October 2015]).
** The number of income-generating opportunities for waste pickers was reduced from 1,000 to 500 because of a one-year
grace period for the application of the eco-tax (that is, between the issuance of the budget law and its application), which had
not been envisaged during the preparation of DPL 3. This has resulted in a one-year delay in the mobilization of eco-tax funds,
which support recycling projects and income-generating opportunities for waste pickers.
1.4 Original Policy Areas Supported by the Program
13. There were four policy areas supported by the program: (a) strengthening governance of the
municipal solid waste sector; (b) improving institutional and financial sustainability of municipal solid
waste services; (c) upgrading the country’s environmental monitoring and control system; and (d)
5
developing recycling value chains.
1.5 Revised Policy Areas
14. The policy areas were not revised.
1.6 Other Significant Changes
15. One indicative trigger for DPL 4 was not completed (namely the approval of the draft Organic
Law on the reorganization of Local Governments [LGs]), confirming the full responsibility of
Integrated Solid Waste Management (ISWM) to municipalities (projets de loi-organique relatifs aux
collectivités territoriales), and did not figure in the final policy matrix of DPL 4. The law was
subsequently adopted in July 2015 during the implementation of DPL 4.This change is discussed in
section 2.2. There were no other significant changes.
2. Key Factors Affecting Implementation and Outcomes
2.1 Program Performance
16. DPL 3 and DPL 4 were single-tranche operations, which disbursed shortly after effectiveness.
Table 2. Disbursement
Tranche # Amount Expected
Release Date
Actual
Release Date
Release
Tranche 1
(DPL 3 Loan 82300)
USD 130 million
(USD 129.84 million disbursed) June 13, 2013 May 13, 2013 Regular
Tranche 2
(DPL 4 Loan 84670 )
USD 130 million
(USD116.04 million disbursed) May 25, 2015 May 5, 2105 Regular
17. Table 2 presents the prior actions for each DPL, all of which were completed (except for one
indicative trigger—approval of Organic Law—introduced under DPL 3 which was dropped as a prior
action for DPL 4). The reason for dropping this trigger is discussed in section 2.2. As explained later
in the document, dropping this trigger did not affect the overall program outcome. Furthermore, the
Organic Law was adopted in July 2015. Progress toward the implementation of prior actions and their
completion was determined through regular World Bank missions and ongoing dialogue.
Table 3. Policy Matrix
DPL3
Policy Area A: Governance of the Municipal Solid Waste Area Status
The Cabinet Council (Conseil de Gouvernement) has approved on December 14, 2012, the draft of a law
(loi-cadre) on environment and sustainable development, introducing: (i) the right of any person to access
environmental information; (ii) the institutional arrangements for environmental control; and (iii) the
principle of extended producer responsibility.
Completed
The National Commission for the National Municipal Solid Waste Management Program has approved on
October 23, 2012, the introduction of a citizen feedback tool on quality and adequacy of municipal solid
waste services (“Citizens Report Cards”), as a key component of the National Municipal Solid Waste
Management Program to support local governments in building demand-side governance in the municipal
solid waste service delivery.
Completed
6
The Minister of Interior has issued Circular No. 8029 dated May 23, 2012, requiring municipalities to
disclose extracts of municipal solid waste service contracts in the Official Gazette for Local Governments
(Bulletin Officiel des Collectivités Territoriales).
Completed
Policy Area B: Institutional and Financial Sustainability of Municipal Solid Waste Management Service
The Minister of Energy, Mines, Water and Environment has signed on December 10, 2012, three contracts
with engineering firms in order to assist local governments better prepare and manage municipal solid waste
projects and contracts throughout the territory of the Borrower.
Completed
The Minister of Interior has issued Circular No. D13015 dated December 17, 2012, establishing a municipal
solid waste fee that could be charged by municipalities to large waste producers, in compliance with the
provisions of Article 23 of Law No. 28-00 dated November 22, 2006, on solid waste management.
Completed
Appropriate funding has been made available to the National Solid Waste Management Program for 2012,
and the Borrower’s draft budget law for 2013 includes appropriate budget allocation in support to the
National Municipal Solid Waste Management Program.
Completed
The Minister of Interior has issued Circular No. 5533 dated October 5, 2012, regarding local governments’
budget preparation, and Circular No. 17887 dated December 11, 2012, addressing the issue of arrears due
by local governments under municipal solid waste service contracts, including specific instructions and
guidance: (i) in order to ensure fair estimate of service costs; (ii) on price revision; and (iii) on budget
arrangements regarding arrears rescheduling agreements.
Completed
Policy Area C: Environmental Monitoring and Control
The Head of Government (Chef du Gouvernement) has issued Circular No. 27/2012 dated November 30,
2012, establishing a national information and coordination system on environmental inspections, infractions
and sanctions.
Completed
The Minister of Energy, Mines, Water and Environment has issued Circular No. 66/2012 dated November
15, 2012, establishing within the Ministry a special unit of sworn-in environmental inspectors. Completed
Policy Area D: Development of Recycling Value Chains
The Cabinet Council (Conseil de Gouvernement) has approved on October 15, 2012, the Borrower’s draft
budget law for 2013, which, inter alia, (i) introduces an eco-tax on plastic packaging, and (ii) amends the
arrangements applicable to the National Fund for Environment (Fonds National pour la Protection et la
Mise en Valeur de l’Environnement) to have such Fund receiving the revenues of the eco-tax.
Completed
Subsequent Operation: DPL4
Policy Area A: Governance of the Municipal Solid Waste Area Status
Fourteen (14) Regional Observatories for Environment and Sustainable Development have been established
in 2011-2014 to monitor environmental indicators, including those related to solid waste management. Completed
The National Commission for the National Municipal Solid Waste Management Program (NMSWMP) has
adopted on October 29, 2014, the use of the citizen feedback tool on quality and adequacy of municipal
waste services (“Citizens Report Cards”) as an eligibility criterion for NMSWMP financial support.
Completed
Policy Area B: Institutional and Financial Sustainability of Municipal Solid Waste Management Service
The Ministry of Interior has adopted a multi-year assistance program to support local governments and to
create inter-municipal/regional institutions for local public services including municipal solid waste
services, and secured on December 2, 2013, the financing for the implementation of such program.
Completed
The Chief Treasurer (Trésorier Général) has issued Decision No. 0188 dated July 16, 2014, regarding the
General Treasury’s (Trésorerie Générale) advisory services to local governments to improve the
management of their revenues.
Completed
The Minister of Interior has issued Circular No. 17495 dated October 28, 2014, which defines the modalities
for a third party conciliation mechanism for disputes, and requires the inclusion of such mechanism in all
delegated management contracts between municipalities and private operators for municipal solid waste
services.
Completed
Policy Area C: Environmental Monitoring and Control
The Cabinet Council (Conseil de Gouvernement) has adopted on January 8, 2015 a draft decree establishing
an environmental control body (Police de l’Environnement) in accordance with the provisions of Law (loi-
cadre) No. 99-12 on environment and sustainable development as promulgated on March 6, 2014.
Completed
Policy Area D: Development of Recycling Value Chains
The Cabinet Council (Conseil de Gouvernement) has adopted on December 4, 2014 a draft decree concerning
the reorganization of the Ministry in charge of Environment, under the Minister of Energy, Mines, Water and Completed
7
Environment (Ministère délégué auprès du Ministre de l’Energie, des Mines, de l’Eau et de l’Environnement,
Chargé de l’Environnement), including the creation of a unit in charge of developing the recycling value
chains, and the Minister in charge of Environment, under the Minister of Energy, Mines, Water and
Environment, has issued Circular No. 209 dated November 11, 2014, establishing a strategic committee for
recycling value chains with the participation of key actors (local governments, eco-tax payers, recycling
industry, civil society organizations).
The Minister in charge of Environment, under the Minister of Energy, Mines, Water and Environment, has
issued Circular No. 208 dated November 11, 2014, (i) setting forth the modalities for the allocation of eco-
tax revenues; and (ii) providing that at least 20 percent of eco-tax revenues shall be allocated to support
recycling activities targeting waste-pickers with specific focus on the gender dimension until the completion
of the National Municipal Solid Waste Program.
Completed
2.2 Major Factors Affecting Implementation
18. The World Bank’s early involvement, continuity in leadership, and long-term
engagement in the sector helped reach results in a complex sector. The World Bank’s early8
involvement allowed to inform and orient the Government’s PNDM and ensure its alignment with the
implementation of the Programmatic Series. Key Government and World Bank staff saw the DPL
program starting by DPL 1 and ending by DPL 4. This allowed continuity of leadership and vision
throughout the program. The long-term engagement of the World Bank through two Programmatic
Series allowed targeting low-hanging fruits first and then gradually focusing on more complex issues,
such as transparency and the recycling value chain. The Government’s commitment to decentralization
of MSW responsibilities was among the primary success factors. The decentralization process gave
implementation responsibilities to the municipalities, which was a major positive factor for success in
implementation.
19. Strong Government coordination and oversight. The first Programmatic Series allowed to
cement more fluid cooperation and coordination between key ministries. As such, the Ministries of
Economy and Finance, Environment, and Interior provided stable and strong leadership and oversight
through the PNDM National Committee. In addition, the well-established and fully operational
technical and financial incentive mechanism that has been put in place, through the PNDM, continues
to deliver tangible results with regard to municipal ownership and the private sector.
20. Ownership of LGs, initiated under the first series, became fully operational with the
adoption of the prior actions under Policy Areas A and B. Linking demand-side governance,
through CRCs, to financial eligibility criteria under the PNDM incentivized the private sector to strong
implementation performances. This fundamental change to implementation of the policy framework
achieved a three-way communications network within the waste sector (that is, citizens to LG to private
sector), which built confidence for the private sector to invest and perform. Citizens also became fully
aware of each contract signed with private sector operators for both collection and landfill activities.
As demand-side governance improved, it also helped LGs increase their aggregate municipal incomes
and decrease the payment delays (arrears) to private operators. The Government, through its
monitoring and inspection program, reinforced the improved performance of the private sector by
8 The World Bank’s involvement in the sector started in 2003 through the regional solid waste management program for
the Mashreq and Maghreb Region and implemented by the Mediterranean Environmental Technical Assistance Program
of the World Bank. This regional project was the major catalyst of solid waste management reform in Morocco. It
developed the necessary policy and institutional studies upon which this DPL was structured. In addition, the cost
assessment of environmental degradation, conducted by the World Bank in 2003, formed the basis for engaging the
Government in a policy discussion in solid waste management.
8
achieving 100 percent inspection of all sanitary landfalls in operations between 2014/2015.
21. One indicative trigger for DPL 4 was dropped, but this did not affect the overall program
outcome, namely the approval by the Cabinet Council of the draft Organic Law on the reorganization
of local and regional governments, confirming the responsibility of the full waste management chain
(MSW planning, collection, cleaning, and disposal) to municipalities. This indicative trigger was
introduced at approval of DPL 3 to mitigate the risk related to possible fragmentation of the
responsibility of MSW that emerged during the discussion of the regionalization agenda.9 During the
preparation of DPL 4, such risk was assessed and found to be no longer relevant. Indeed a large
consensus among key stakeholders was reached to preserve the principle of an ISWM and to preserve
the full responsibility of the entire MSW chain to municipalities. This confirms the related provisions
of Law 28-00 and the Charte Communale. The Government explicitly reconfirmed such provision in
their Letter of Development Policy (see Program Document DPL 4 - Annex 1). Moreover, the Organic
Law10 was approved shortly after the approval of DPL 4.
2.3 Monitoring and Evaluation (M&E) Design, Implementation and Utilization
22. The design of the M&E system was robust and focused on a mix of policy objectives with
expected results and indicators, covering the four policy areas. The M&E system was closely
aligned to key outcomes expected from the PNDM. As shown in section 1.3, the M&E framework
remained almost identical between DPL 3 and 4. Minor wording adjustments were made to clarify the
meaning of some indicators. The targets of 4 out of 10 indicators were revised upward to reflect better-
than-expected progress on the ground. The targets of 2 out of 10 indicators were revised downward to
take into account delays. The remaining targets were kept the same. All targets were achieved with
many exceeding their targets and only one partially achieving its target. With regular World Bank
implementation support, stakeholders were motivated to achieve the interlinked national PNDM
program and the World Bank-supported second Programmatic Series.
23. The target of the indicator ‘Percentage of MSW collected professionally and disposed of in
sanitary landfills’ was revised from 66 percent (at DPL 3) to 55 percent (at DPL 4 appraisal) and
actually reached 53 percent at ICR. There are 22 sanitary landfills operating today in Morocco that
receive about 53 percent of the MSW collected. This is already impressive and attests to the success of
(a) regional government/LG working together to achieve economies of scale and (b) overcoming the
‘not-in-my-backyard’ phenomenon that attracts public opposition in many countries. Despite this
success, the indicator fell slightly behind target because the process to identify a site for a new
sanitation landfill and to prepare environmental and social assessment reports, engineering,
construction, and operations contracts takes several years. In most countries, this process is typically
long and can be exposed to delays in obtaining land clearances. Furthermore, there are five sanitary
9 In Morocco, MSW management was always the responsibility of municipalities. With the Constitutional Reform of
2011 came some thinking to revisit the waste management chain by giving the regions some responsibilities. The World
Bank’s advice was that the responsibility of the entire waste chain should not be fragmented but should remain with the
municipalities. This was confirmed by the Government’s Letter of Development Policy (submitted at board approval of
DPL 4). 10 Les lois organiques relatives aux Collectivités Territoriales ont été adopté le 7 juillet 2015 et inclus : la loi organique
no. 14.111 relative aux régions, la loi organique no 14.112 relative aux préfectures et provinces et la loi organique no.
14.113 relative aux communes. (Bulletin Officiel no. 6440 du 18 février 2016).
9
landfills under construction (Khenifra, Tanger, Beni Mellal, Sefrou, and Casablanca). 11 Once
completed, the percentage of MSW disposed in sanitary landfills is estimated to reach 80 percent.
24. Because the results framework of the second Programmatic Series is very closely linked to the
PNDM indicators, regular meetings of the National Commission for Municipal Solid Waste
Management Program (Commission Nationale du PNDM , CN-PNDM) enable good oversight of
implementation progress.
2.4 Expected Next Phase/Follow-up Operation
25. During both the Quality Enhancement Review and Regional Operations Committee meetings
of DPL 4, future World Bank support to solid waste management was discussed. In both meetings, it
was recognized that the waste sector can continue to benefit from the World Bank’s technical assistance
(especially in emerging issues such as recycling and industrial and hazardous waste); the meetings
agreed that this dialogue can continue within the broader environment and sustainable development
agenda through the Green Growth DPLs or other instruments.
3. Assessment of Outcomes
3.1 Relevance of Objectives, Design and Implementation
26. The objectives of this operation were highly relevant to Morocco’s development priorities
as reflected in the PNDM and aligned to the World Bank’s Country Partnership Strategy (CPS). The objectives were relevant to supporting the second phase of the PNDM, and aimed to generate
tangible results for the program to carry forward its full 15-year duration (by 2022). The objectives of
this operation were also fully aligned with the CPS for the period FY10–FY13, supporting its second
and third pillars of service delivery to citizens and sustainable development in a changing climate, and
its crosscutting theme of governance. It continued to be very relevant in the CPS FY14–FY1712
supporting results area 3 strengthening governance and institutions for improved service delivery to all
citizens through its innovative use of CRCs that aim to improve access to and quality of service
delivery, by listening to users and making service providers and LGs more accountable. The
Programmatic Series was also relevant to the World Bank Group’s strategic goals of ending extreme
poverty and promoting shared prosperity in a sustainable manner. Concretely, the supported policies
were designed to help (a) foster job creation through the development of vibrant solid waste recycling
value chains and (b) control and mitigate adverse environmental impacts of existing dumpsites, thus
improving the living conditions of the nearby residing population, most of whom are marginalized and
poor.
27. A strong analytical base combined with incorporation of lessons learned from the first
series informed the design of the second series. In addition to significant analytical work prepared
under the first series and the ICR of the first series, the design of the second series also benefited from
analytical work in emerging challenges (annex 6). For example, the establishment of an Environmental
Police under Policy Area C was the first of its kind in the region. The expertise of an international
environmental lawyer, mobilized by the World Bank, combined with the Government’s own diagnostic
11Landfills completion rate varies between 40 percent and 90 percent. 12 World Bank. 2014. CPS for the Kingdom of Morocco for FY14–FY17. Report No. 86518-MA.
10
of environmental control in Morocco13 resulted in a well-designed environmental inspection system at
the Ministry of Environment (MOE) in Morocco. This system includes the legal framework (with the
issuance of the decree establishing the environmental body), as well as the institutional capacity to
carry out this mandate (by training and accrediting environmental inspectors).
3.2 Achievement of Program Development Objectives
Rating: Satisfactory
28. The PDO was to support the Government’s efforts to improve the economic, environmental,
and social performance of the MSW sector. Four policy areas contributed directly and indirectly to
achieve the PDO. Policy Areas B and D (improve financial revenues of municipalities, decrease arrears
due to private operators and increase eco-tax revenues) contributed to improving the economic
performance of the sector. Policy Area C (improve environmental monitoring and control) contributed
directly to enhance the environmental performance of the sector. Policy Areas A and D (engaging
citizen through feedback, ensuring that 20 percent of eco-tax revenues are allocated to support waste
pickers’ recycling activities, and generating income opportunities in recycling) contributed to improve
the social performance of the sector. Policy Area A (improve governance, access to information, and
transparency in the use of public money and so on) contributed indirectly to all three objectives in the
PDO.
Overall Outcomes of the MSW Sector DPL
Policy Area A: Governance of the Municipal Solid Waste sector
29. As mentioned previously, Policy Area A focuses on enhancing demand-side governance in the
MSW sector by (a) promoting access to information, (b) fostering greater transparency, and (c)
improving accountability of service providers to citizens.
30. Access to information. The first series supported the Government’s efforts in improving access
to information through the preparation of the PNDM Communication Strategy and Action Plan with a
publicly accessible website14 for the PNDM. To further support the Government in its effort to promote
public access to information, the second series supported the successful establishment of 14 OREDDs15
covering almost the entire country. The observatories were established by the MOE, in partnership
with the regional councils and municipalities. They are tasked to collect environmental data, to monitor
the status of the environmental in each region, and to publish environmental indicators. The
observatories work in a participatory manner as they rely on a large network of local partners
(universities and research institutes) to collect and monitor information. The fact that information is
collected at the source makes it more reliable and enables a greater sense of ownership at the local
level. Over 200 environmental indicators are collected, including 20 indicators on MSW. This wealth
13 Analytical works include Establishment of Environmental Police Framework Note prepared by M. Bekhechi (World
Bank, 2014); Etude Relative à la Mise en Place d’une Police Nationale de l’Environnement prepared by MEMEE (2014);
and various training and brainstorming sessions on environmental control and inspection led by an international
environmental lawyer in Rabat between 2014 and 2015. 14 http://www.environnement.gov.ma/fr/dechets?id=226 15 The signed convention for the establishment of the OREDD along with updated status of each OREDD and the list of
MSW indicators monitored by the observatories can be found in the project file.
11
of information enables the preparation of a State of the Environment Report for each region16 and
identifies the main pressures as well as strategies and action plans for interventions. The robust
information system developed through these observatories has put the regions in the driver seat in
collecting and monitoring the state of the environment.
31. Fostering greater transparency by broadening public access to MSW contracts. In
accordance with the Communal Charter and Article 14 of Law 54-05, the Ministry of Interior’s Circular
No. 8029 of 2012 instructs municipalities to publish contract information, including extracts of MSW
contracts with private operators, in the BOCT. As a result, extracts of all MSW contracts signed after
the issuance of the circular have been published on the BOCT web platform. The adoption of this
policy contributes to increasing citizens’ confidence in private providers and enables a more informed
debate on private sector providers’ performance in this sector. It also sets a good benchmark among
municipalities and private operators toward more transparency and accountability in the use of public
funds. Greater transparency in contract management for collection, street cleaning, and landfilling led
to increased competition in the private sector. The published tables17 showing a summary of private
contracts for waste collection and street cleaning indicate that contracts have been awarded to over 17
different private operators between 2010 and 2015. A similar situation was also observed in contracting
private operators for landfilling.
32. Accountability of service providers to citizens. Following a successful initiative to introduce
CRCs—the first citizen feedback mechanism used in municipal services—in the municipality of
Temara (2012) under the first Programmatic Series, the second series supported the scaling up of this
initiative. Four additional cities (Agadir, Mohammedia, Rabat, and Tanger) have introduced CRC as a
rigorous approach to enhance the accountability of service providers and municipal authorities. This
mechanism offers space for citizens to express their views on the adequacy and quality of the MSW
service, and inform the municipality on the performance of their contracted private operators. The CRC
consists of (a) carrying out a household survey for residents to provide both factual and perception-
based information on the municipality’s service coverage and quality to municipal authorities and
service providers and (b) organizing a series of town hall consultations to discuss improving service
delivery based on the survey findings and establishing a service improvement ‘compact’ to identify
areas where stakeholders (service providers, municipal officials, and residents) can commit to a set of
short- and medium-term actions to improve solid waste collection services in their municipality. This
process helps municipalities ensure that the evidence-based dialogue with citizens is integrated into
better-formulated future contracts with the service providers.
Policy Area B: Institutional and Financial Sustainability of Municipal Solid Waste Management
Services
33. The two-pronged approach under Policy Area B of improving institutional and financial
sustainability enabled a cost-efficient and professional quality waste management. Reforms to
create municipal/regional institutions ‘Groupements d’Agglomération et Groupements de Communes’
coupled with the new Organic Law to give LGs full responsibility over the MSW chain created
16 State of the Environment Report for 16 regions as well as one for the entire country are available online:
www.environnement.gov.ma/fr/etat-de-l-environnement#. 17 Tableau synthétique des extraits des contrats de gestion déléguée des déchets ménagers: Collecte et Nettoiement
Décembre 2015. http://www.pncl.gov.ma/fr/Gestionterritoriale/Servicesproc%C3%A9dures/Pages/Equipements-et-
services-publics-locaux.aspx.
12
economies of scale for more affordable waste management services and sufficient institutional change
to professionalize the sector.
34. Four indicators were selected to capture the outcomes of Policy Area B. They focused on: (a)
improving ISWM through the professionalization of MSW systems in harmony with the
decentralization agenda (indicators 3 and 4), (b) securing funding to cover the costs of MSW services
and ensure financial sustainability (indicator 5); and (c) consolidating market competitiveness for
MSW service delivery, by mitigating the risk related to private sector participation in contract
management (indicator 6). Together they reflect the improved operational performance of the sector,
the financial capacity of LG to sustain the MSW services, and the improved environment for the
participation of the private sector.
35. A primary indicator is the percentage of MSW collected professionally and disposed of in
sanitary landfills. The percentage of MSW collected professionally (that is, by private sector
operators) in urban areas increased from 45 percent (in 2007) to about 82 percent (in 2016). The PNDM
target of 90 percent by 2020 is on good track to be achieved. With a substantial improvement in waste
collection and street cleaning, a key indicator of Policy Area B was to increase the availability of
sanitary landfills. The percentage of waste disposed in sanitary landfills has increased from 32 percent
(in 2012) to 53 percent presently. A total of 22 new sanitary landfills have been constructed in Morocco
receiving about 2.9 million tons of waste (or 53 percent of collected waste). This includes the recently
completed landfills of Marrakech, Meknes, and Ouarzazate. This is a major achievement given the
lengthy time it takes in other parts of the world to obtain all the clearances to operate sanitary landfills.
Furthermore, many previous ‘open dumps’ have either been closed or rehabilitated and are now
operating with much higher environmental and social protection standards. At the time of this ICR, it
is clear that this outcome was successfully implemented. Finally because most of the new landfills
have capacities of 15–20 years, without taking into account the new initiatives for recycling that will
increase landfill lives substantially, the outcome clearly shows that Morocco will have sufficient
landfill capacity into the 2025–2030 period.
36. While many landfills are recent, some of the earlier landfills (for example, Rabat and Fez which
have operated for approximately 10 years) are already upgrading their operation through expansion of
biogas facilities, electricity generation, leachate treatment facilities, and recycling facilities. The
private sector was involved in enhancing the performance of waste facilities (or as they are called in
Morocco ‘Centre d’Enfouissement et de Valorisation’) bearing the cost (and the benefits) of installing
new technologies. Hence there were no additional costs to municipalities. This is a strong indication
that professionalism was achieved and will likely also be achieved in the newer landfills. One of the
benefits of such improvement is an example from the Fez landfill where biogas collection has been
converted into over one megawatt of electricity satisfying 30 percent of street lighting for the entire
city. 18 These concrete results demonstrate to citizens visible outcomes from sustainable and
professional landfill operations. A feature story19 ‘Morocco Lets Nothing go to Waste’ was recently
published on the Oum Azza landfill (outside Rabat) and attests to the exemplary management of
sanitary landfill.
18 Methania: Biomethane, l’Energie de Demain “Maroc: Fès S’Eclaire au Biogaz en Valorisant ses Déchets” (Published
September 2, 2015). 19 http://globalpractices.worldbank.org/enr/Pages/Featured%20Stories/ityityi.aspx (Published February 16, 2016).
13
37. To achieve lower costs for sanitary landfills, the international practice is to have regional
landfills receiving wastes from a large territory with significant population. Under the second series,
the creation of inter-municipal institutions ‘Groupement de Commune’ contributed to establishing
regional landfills and hence economies of scale. Now, regional sanitary landfill sites are a mandatory
element within regional land-use plans, and are reflected in the MSW Masterplans under preparation
in 64 LGs.20 The unit costs for new sanitary landfills show reasonable results in the range of US$20
per ton compared to US$45 per ton on average in the United States21 and a range of US$38 to US$52
in the Greater Beirut area in Lebanon.22 This is a substantial achievement in cost effectiveness.
38. With regard to financial sustainability, most urban municipalities in Morocco enjoy a strong
and growing revenue base. From 2012 to 2015, their revenues increased by about 20 percent, reaching
a total of MAD 36,785 million in 2015. The ‘communal services tax’, traditionally understood to cover
municipal services such as street cleaning, waste collection, and street lighting, today typically
represents between 15 percent and 30 percent of total current municipal revenues. Value added tax
transfers (30 percent of the country’s value added tax revenues are transferred to LGs according to a
set of criteria) constitute another large part of current revenue, up to 35 percent of total revenues.
39. DPL 3 and DPL 4 contributed to such municipal finance improvements through (a) promoting
general treasury’s advisory services to LGs to improve the management of their revenues; (b)
supporting the establishment of the MSW fee for large waste producers; (c) sustaining the PNDM’s
limited-in-time financial support (three to four years for each eligible project, corresponding to a
maximum of 30 percent of the investment costs) to accompany the transition of the sector and to
encourage municipalities modernize the MSW services; by 2016, and (d) ensuring adequate sources of
funding (through eco-tax) to keep modernizing the service over the long term, once the PNDM
financial incentive mechanism comes to an end.
40. Such improvements to the municipal financial management framework have greatly
contributed to medium-term financial sustainability of the MSW services. The ability of LGs to
maintain operations at a sustainable service level is demonstrated by their ability to reduce their late
payments (arrears) to the private sector from 70 percent to 20 percent (overachieving a target of 30
percent) and demonstrates a strong financial sustainability outcome. This was a crucial outcome that
helped mitigate the risk related to private sector participation and hence improved sustainability of the
MSW services.
Policy Area C: Environmental Monitoring and Control
41. While the EIA procedures were greatly improved during the first Programmatic Series, the
second series achieved better monitoring and enforcement capacity. The second series achieved 100
percent inspection of operating sanitary landfills, regularly inspected, including laboratory analysis,
which is far in advance of the long-term (2022) aim under the PNDM. This outcome ensures that the
MOE is carrying out its mandates with regard to environmental control in application of the Solid
Waste Law 28-00. For example, this monitoring already identified that improved leachate treatment is
20 12 MSW Masterplans have been completed; 43 are under preparation and 9 are being procured (May 2016). 21 Waste Business Journal: Industry Research and Analysis (2012) available online at www.wastebusinessjournal.com. 22 German Development Agency (Deutche Gesellschaft fur Intenationale Zusammenarbeit, GIZ). 2014. Country Report on
the Solid Waste Management in Lebanon. Sweepnet. Data reflect landfilling costs only (that is,they exclude collection,
sorting, and so on).
14
needed in a few site-specific cases to meet Moroccan conditions and that technical specifications for
landfills may need more adaptation and strengthening. As indicated in section 3.4c the benefits of
improving environmental inspection and control go beyond the solid waste sector.
42. To further enhance environmental control in Morocco, the Government adopted, as part of the
second series, a decree establishing an environmental control body (or Police de l’Environnement).
The adoption of this decree along with establishment of a unit dedicated for environmental inspection
(following the reorganization of the MOE in December 2014) formalized the commitment of the
Government toward the establishment of effective environmental control and monitoring system
aiming at regular inspection and monitoring of environmental pollution, including projects subject to
EIA (such as MSW treatment/disposal facilities). In anticipation of the decree, the MOE has been
strengthening its core staff of inspection and control agents. It has already accredited 25 agents and
another 50 have been trained and are in the process of getting accredited. These agents are in charge,
among other things, of inspecting sanitary landfills according to specific guidelines under development
by the MOE. 23 A national information system on environmental offenses is being put in place as a
tracking tool to enhance the monitoring and control. Following the second Programmatic Series, the
MOE now has a functioning system in place to enable better environmental monitoring. This system
includes a decree, a dedicated unit, guidelines, and a core of trained inspectors.
Policy Area D: Development of Recycling Value Chains
43. Following tangible results, in waste collection and landfilling, from the first phase of the
PNDM, the Government’s priorities shifted from a waste management system that primarily relies on
the systematic disposal of waste into landfills toward a resource management system focusing on
material recovery, reuse, and recycling. This paradigm shift fosters the development of a circular
economy focused around the creation of recycling chain values.
44. To support the Government in its reform program, the focus of Policy Area D was (a) to develop
waste recycling value chains and secure viable sources of funding (indicators 8 and 9) and (b) integrate
informal waste pickers in the sector (indicator 10).
45. While MSW in Morocco contains a large percentage of recyclable material, its recycling sector
is stagnant with a rate of about 5 percent of collected waste being recycled. The Government’s
objective in the PNDM is to reach a 20 percent recycling rate by 2022. As such, most new sanitary
landfills in Morocco are built with provision for sorting facilities and the Government is committed to
develop recycling value chains. The value chain for plastics packaging was identified as the first
priority in volume and environmental impacts. The MOE is working on value chains related to used
batteries, waste oil, electronic waste, used tires, paper, and demolition waste, which are at different
stages of development.24
46. In compliance with Law 99-12 and the concept of Extended Producer Responsibility, the
Government introduced an eco-tax on plastic packaging as a para-fiscal instrument to finance the
development of the plastic recycling value chain. The second Programmatic Series provided expertise
23 MEMEE: Manuel de Control des Décharges includes l’Elaboration des Lignes Directrices de Contrôle de Gestion
Environnementale des Décharges Contrôlées under review and finalization. 24 MEMEE: Etat d’Avancement Filières de tri et de valorisation des déchets et des textes y afférents. Note prepared on
October 15, 2015.
15
to the MOE to establish the governance25 and operational systems (including eligibility criteria for
projects to be funded by the eco-tax) 26 for this recycling value chain.
Box 1. Recycling and Social Integration: Oum Azza Experience
Oum Azza sanitary landfill is located outside Rabat and receives about 850,000 tons of MSW per year (in 2015)
from 13 municipalities.
The landfill is privately operated. One of the requirement of the contract between the operator and the
municipality was the social inclusion for waste pickers.
Initially, an international nongovernmental organization (CARE) surveyed the situation of waste pickers in the
preexisting Akkreuch dumpsite and provided advice to the formal integration of waste pickers.
In 2011, Cooperative Al-Tawaffouk (which means ‘success” in Arabic) was established. This was the first
recycling facility in Morocco managed by former waste pickers.
In 2015, the cooperative included 140 members (of which 22 were women, that is, 15 percent). They sort about
2,200 tons per year (about 3 percent to 4 percent of received waste) and make between MAD 4 million and MAD
5 million in total revenue per year.
During a recent interview by the World Bank (see feature story: ‘Morocco Lets Nothing go to Waste’ October
2015), the president of the cooperative, M. Y. Mazzout, indicated that “everyone is paid the same monthly salary
of MAD 2,620 a month and that any excess profit is shared once a year according to the number of hours each one
has worked.” A female member, Ms. Milouda, indicated that “some of the advantages of working in the
cooperative were health insurance, access to a bank account, and a safer environment.”
The successful experience of Oum Azza is being replicated in other landfills.
47. The eco-tax was introduced in the Budget Law of 2013 and became effective in January 2014.
To date about MAD 400 million has been raised by far surpassing the original target of MAD 230
million. An organized system to select and oversee projects along with substantial revenues from the
eco-tax enables the selection and approval of 18 recycling projects (exceeding the target of 10 projects).
The successful experience of Oum Azz recycling (box 1) is serving as the model for the other 18
projects that are starting up with similar sorting plants.
48. One of the prior action of DPL 4 ensures that 20 percent of eco-tax revenues are allocated to
support recycling activities targeting waste pickers.27 As such, the 18 projects approved (indicator 9)
enable the creation of over 1,050 job opportunities for waste pickers (indicator 10).
3.3 Justification of Overall Outcome Rating
Rating: Satisfactory
49. The prior actions combined with the results indicators achieved for the second Programmatic
Series have created a strong momentum to achieve the long-term outcomes of the 15-year PNDM that
ends in 2022. The most significant accomplishment of outcomes under this second series is the shift
from a ‘command and control’ approach to a demand-driven paradigm based on public participation
and monitoring. Participation of the public has already been achieved in the waste sector in Morocco
and this will now support the continued sound operations of collection and disposal in sanitary landfills
25 World Bank (2014) Note sur l’Institution d’un Comité d’Orientation Stratégique des Filières de Valorisation (COSFIV)
prepared by F. Ghariani and World Bank (2014) Note sur le Développement et Gestion de la filière plastique, Concept et
opérationnalisation prepared by F. Ghariani 26 World Bank (2015) Manuel Opérationnel d’Utilisation des revenus de l’écotaxe prepared by F. Ghariani 27 MEMEE Circulaire No. 208 dated November 11, 2014. Mécanisme d'allocation des revenus de l'écotaxe aux activités
des filières de recyclage et de valorisation des déchets plastiques.
16
the urban areas, a growing ratio of recycling activities, and gradual expansion to the rural areas to
achieve the long-terms outcomes established under the PNDM. The continued relevance of objectives,
design and implementation, and World Bank support to the MSW sector, combined with achievement
of the main indicators, albeit moderate shortcomings on two indicators (indicators 3 and 5), justify a
rating of Satisfactory.
50. In addition, the damage cost related to the inappropriate municipal waste management in
Morocco was estimated at MAD 80 per capita in 2000. This cost was reduced by half to MAD 40 per
capita in 2014.28 This reduction in damage costs reflects the improved municipal waste management
over the past decade.
3.4 Overarching Themes, Other Outcomes and Impacts
(a) Poverty Impacts, Gender Aspects, and Social Development
51. It is difficult to measure identifiable impacts on poverty, gender, or social development within
a short time frame of a DPL series. The substantial improvement in waste services (professional
collection of MSW has increased from 45 percent of urban areas in 2007 to over 80 percent in recent
times) benefits all strata of the population (low-, medium-, and high-income urban neighborhoods).
Hence, poor communities previously unserved and/or suffering from low-quality services now have
equal access to decent MSW collection services. In addition, the closure of dumpsites contributed to
the environmental improvement of the nearby areas that are often inhabited by low-income households.
52. The household survey undertaken, for example, in the city of Temara (box 2), found great
disparities in the coverage and quality of waste services across housing types, with villas residents
receiving much better service than slum residents. These findings were considered key by the
municipality because they indicate that more resources are being devoted to services that cater to the
1.2 percent of the population living in high-income neighborhoods, than the remaining residents. This
feedback was discussed during town hall events and fed back to the contractor to improve service.
While it is too soon to judge whether changes have happened, the literature has demonstrated the
benefits of customer feedback in improving services delivery.
28 Croitoru, and Sarraf. Forthcoming. The Cost of Environmental Degradation in Morocco. The World Bank.
17
Box 2. Citizen Engagement: A Three-step Process
Citizen engagement under Policy Area A was undertaken as a three-step process: survey, town hall, and compact.
Step 1: Household surveys to prepare CRCs. Survey gathered factual data (for example, “Does your household get
home-based waste pickup?”) as well as perception for example, “Do you think the private contractor does a
satisfactory job?”). Some of the findings from the surveys undertaken in the cities of Mohamedia, Tanger, and
Temara are:
Great disparities in coverage and quality of service across housing types (villas,a apartments, and slums), with
villas (only 1.2 percent of the population) receiving much better service than low-income neighborhood (48
percent of the population)
Bins too small, too few located far away from houses
90 percent of the people surveyed said they are interested/willing to sort and recycle household waste
Women and men held same opinion about waste service
Private operator improved their image by doing the survey; they are now willing to fund the CRC
Step 2: Organize a series of town hall meetings between residents, private operators, and municipality to discuss the
survey results and debate/reflect on the findings of the survey.
Step 3: A ‘compact’ is prepared to identify areas where service provider, municipal officials, and residents can
commit to a set of actions to improve the MSW services. The compact feeds into the contract of the next private
operator.
Note: a Villa is defined in this context as a relatively large luxurious residence.
53. The impact of the operation on low-income waste pickers is described in section 3.2. It shows
that by ensuring that 20 percent of eco-tax revenues are allocated to support recycling activities,
targeting waste pickers will enable the creation of 1,000 job opportunities for waste pickers among the
18 recycling projects that have been approved already.
(b) Institutional Change/Strengthening
54. All policy actions supported by this Programmatic Series were largely institutional in nature.
Institutional strengthening was an integral part of this series as described in section 3.2.
(c) Other Unintended Outcomes and Impacts
55. The benefits of strengthening the environmental control system in Morocco (under Policy Area
C) goes well beyond the solid waste sector. Today, the MOE has a functioning system (which consists
of a decree, a dedicated unit, guidelines, and a core of trained inspectors) in place, which enables better
environmental monitoring. It ensures that all facilities (such as, but not limited to, MSW
treatment/disposal facilities) and infrastructure with environmental impacts meet the standards and
norms during construction and operations.
56. Another outcome is the development of recycling value chain (under Policy Area D) beyond
plastic. Lessons from establishing the plastic value chain are used to establish other value chains such
as batteries, waste oils, electronic wastes, used tires, paper, and demolition waste, which are at different
stages of development.29
29 MEMEE: Etat d’Avancement Filières de tri et de valorisation des déchets et des textes y afférents. Note prepared on
October 15, 2015.
18
3.5 Summary of Findings of Beneficiary Survey and/or Stakeholder Workshops (See section 3.2 under Policy Area A and section 3.4 (a)).
4. Assessment of Risk to Development Outcome Rating: Moderate
57. The risk that development outcomes from this operation will not be maintained are considered
Moderate. With the successful implementation of the PNDM phase one and two and with about 10
years of the World Bank’s support to the waste sector, Morocco is unlikely to shift gears at this point.
The Government will soon be entering the third phase of its PNDM (2018–2022) and having proven
its commitment to the first two phases is very likely to pursue its long-term goals.
58. Technical risk. The risks to technical implementation remain low to moderate, as now the
decentralization to LGs and their contracting of the private sector is embedded in both the collection
and disposal operations. The service coverage rates are now high, and there is low risk that the coverage
ratios will drop because the private sector has long-term contracts. Collection services are generally
seven-year contracts and disposal services are generally 15–20 year contracts, and already some
disposal contracts have cost efficient multiyear extensions.
59. The risks of stakeholder opposition to some recycling reforms were mitigated by including
the informal sector. As reuse and recycling have always involved the informal sector, the goal of
increasing recycling and linking it to increased income generation for the informal sector was a strong
underlying factor for success in implementation. This was reinforced by providing a new source of
income from ‘eco-tax’ revenues to encourage the informal sector to form cooperatives to become the
owners and employees of modern waste sorting facilities, and to provide paid services to landfill
operations. The shift from an informal waste ‘picker’ or ‘scavenger’ to a formal employee was quickly
accepted by LGs, and a strong pipeline of recycling projects was achieved.
60. The risk of private sector opposition to the new ‘eco-tax’. As the sector was being
transformed, the demand for more complex recycling projects was growing and the private sector was
eager to prepare new facilities in Morocco to reprocess sorted recyclables rather than export raw sorted
materials. To support this transformation, the Government introduced the eco-tax in the 2013 Budget
Law to finance the development of recycling value chains, starting with plastic packaging. Eco-tax
revenues are to be used as an incentive to support LGs in financing recycling activities and
implementing social inclusion programs for informal waste pickers. The eco-tax (initially at 2.5
percent) was applied on plastic raw material and plastic products30 but not on imported products
containing plastic. This raised concerns among industrialists in Morocco who saw the application of
the eco-tax as ‘unfair’. Rounds of consultations took place with the MOE and the tax is likely to be
reduced by 1 percent and extended to imported plastic products in the 2017 Budget Law to make it
more equitable.
30 A list of all products subject to the eco-tax is found in Chapter 39 of the Nomenclature Douanière Marocaine.
www.douane.gov.ma.
19
5. Assessment of Bank and Borrower Performance
5.1 World Bank Performance
(a) Bank Performance in Ensuring Quality at Entry
Ratings: DPL 3: Satisfactory; DPL 4: Satisfactory
61. DPL 3. The World Bank’s performance is rated Satisfactory. The choice of a second
Programmatic Series was guided by the lessons learned from the first Series’ ICR (ICR No. 2276).
This choice continued supporting the Government’s reform program in MSW, allowed for deeper
reforms (such as decentralization and improvements to LG finances and more focus on medium- and
smaller-size municipalities), as well as for fine-tuning results indicators. The World Bank performance
for quality at entry (QEA) was especially strong in assisting in the coordination among central
government ministries and in improving communications with the LG level. The design of the DPL
program benefited greatly from the base of analytical work done (summarized in annex 6).
62. DPL 4. As with DPL 3, the World Bank’s performance was satisfactory during loan preparation
and appraisal. The World Bank team assisted the Government through flexible adjustments in the
results indicators program that helped ensure support to implement policy actions, but not to the
detriment of successful implementation. The World Bank was especially proactive in supporting the
new and innovative Policy Area D: Development of Recycling Value Chains. The World Bank brought
in specialized technical expertise (such as an arbitration and conciliation lawyer; a public-private
partnership lawyer, and a recycling specialist) and facilitated dialogue with the private sector and
informal waste pickers to build the policy action and results indicators based international experience.
With this constructive support by the World Bank, this complex policy area was appropriately designed
and the target indicators exceeded.
(b) Quality of Supervision
Rating: Satisfactory
63. The DPL program implementation has been supervised by task teams of technical and
institutional specialists. Six missions were carried out during implementation with detailed supervision
reports (November 11–15, 2013; March 10–15, 2014; June 18–27, 2014; October 13–23, 2014; April
5–9, 2015, May 28, 2015 [by videoconference], and October 19–29, 2015). The findings were
discussed with the Government and remedial measures taken when needed. In addition, individual task
team specialists, with expertise in different areas, followed the progress of different components in
detail. While the World Bank team of experts (and consultants) was varied and specialized, it was led
by the same task team leader from the preparation of DPL 1 to the supervision of DPL 4. This enabled
a consistent vision throughout the program. Despite the impressive progress for reforms in the solid
waste sector under the first Programmatic Series, and under DPL 3, the World Bank supervision of
DPL 4 alerted the Government on delays to achieve a few results indicators for percentage of waste
collected and disposed of in sanitary landfills, number of municipalities implementing CRCs, and
environmental control and inspection of the MSW landfills. The careful supervision helped build what
is generally considered an excellent relationship between the client and the World Bank, as confirmed
by Government counterparts during the ICR mission (April 2016).
20
(c) Justification of Rating for Overall Bank Performance
Rating: Satisfactory
64. The second Programmatic Series was a well-designed and implemented operation. As the
World Bank’s performance for both QEA and supervision are rated Satisfactory, overall World Bank
performance is rated Satisfactory.
5.2 Borrower Performance
(a) Government Performance
Rating: Satisfactory
65. As under the first Programmatic Series, the Government continued its full commitments to the
entire second series so as to achieve the development objectives. Among the very useful actions by the
Government was the establishment of CN-PNDM31 that is dedicated to coordinate all waste policies
and investments and to monitor results indicators. During the preparation of DPL 3, the Government
also supported extensive consultations with stakeholders and civil society, and this mitigated the risks
associated with the introduction of new CRCs and the eco-tax on the private sector. The Government’s
commitment to provide financial support and improve LG revenues contributed to the success. Over
the 2013–2016 period, the Government continued to provide financial support for investments in
sanitary landfills, improvements to the MSW collection services, preparation of provincial Masterplans
for MSW, and closure and rehabilitation of uncontrolled dumpsites, at a similar level as under the first
DPL program. The Government helped resolve most implementation issues on time and the
relationships and coordination with the World Bank and other donors were excellent throughout.
66. While the Government’s overall performance was satisfactory, it also had some shortcomings
with the speed of construction, completion, and operation of new sanitary landfills. This was due to
lengthy procedures in securing environmental and social approvals, in procurement procedures and
land acquisition and in construction, especially when these tasks were decentralized to the municipal
level. Nonetheless, the Government’s performance overall is rated Satisfactory.
(b) Implementing Agency or Agencies Performance
Rating: Satisfactory
67. The implementing agencies include the Ministry of Economy and Finance, the Ministry of
Interior and the MOE, along with LGs. Hence, the ‘implementing agency’ is indistinguishable from
the Government. Policy actions were implemented by several ministries under the supervision of the
CN-PNDM. A program management unit in the Ministry of Interior was the implementing agency for
the PNDM, but is not evaluated in connection with the reform program supported by the World Bank.
31 The CN-PNDM has been established through Circular 04 of 2009 to (a) coordinate and oversee the implementation of
the PNDM, (b) oversee the allocation of the PNDM funding to municipalities in accordance with set criteria, and (c) provide
strategic guidance to waste management reforms. The CN-PNDM includes representatives from the Ministries of Interior,
Economy and Finance, Foreign Affairs, and Fond Equipment Communal, as well as representatives from other institutions
on a need basis.
21
(c) Justification of Rating for Overall Borrower Performance
Rating: Satisfactory
68. The rating corresponds to the rating for Government performance, as there was no separate
implementing agency.
6. Lessons Learned
69. Many of the lessons identified in the ICR (of DPL 1 and DPL 2) are still valid. In the following
paragraphs is a highlight of additional key lessons learned through the second series.
70. Sector reforms take time: they should start simple and gradually get more complex. In
Morocco, the World Bank-client dialogue to reform the waste sector started in 2003. From the onset,
the objective of the Programmatic Series was to reform all angles of the waste sector (governance,
environment, social, financial, institutional, and so on). However, the reforms were kept relatively
simple in the first series (the Policy Matrix of DPL 1 and DPL 2 was straightforward). Tangible results
obtained through the first series (see paragraph 5 of this document) encouraged more in-depth reforms
in DPL 3 and DPL 4.
71. Focusing on improving ‘systems’ rather than ‘training’ is more effective in achieving
long-term results. Capacity building and training should to be designed to improve the performance
of a ‘system’ and not only of individual skills. For example, Policy Area C contributed to improve the
environmental control system in Morocco by enacting the necessary decree to establish the
Environmental Police, setting up a special unit dedicated to monitoring and controlling and staffing
and training the unit with environmental inspectors. Similarly, decentralizing MSW responsibility from
central government to LG, under Policy Area B, accompanied by capacity building to LG (in either
technical, financial, contractual, or operation of waste services) created capacity at the national scale.
72. The World Bank-supported reforms should be 100 percent aligned with Government
priorities. As highlighted throughout this ICR, a major contributor of success is the fact that reforms
supported by this DPL series were fully aligned with the Government’s program on MSW.
73. Outsourcing service delivery to the private sector provides a fast scale-up to significantly
strengthen municipal performance in both quality and quantity of MSW managed. With more private
contractors handling waste services came the need to train LGs in contract management; and for the
inclusion of an arbitration close to enhance competitiveness. In 2016, about 82 percent of waste in
urban areas was collected professionally by private operators.
74. In the right context, the use of Policy Development Lending in sector reforms can be a
very effective instrument. The use of two Programmatic Series of DPLs rather than investment
lending has confirmed the usefulness of this instrument to reform waste management in Morocco. A
history of strong World Bank-client dialogue, strong analytical foundations, and a Government ready
and committed to reforms, all contributed to design and adopt the right reforms in a complex sector.
The two series centered on policy matrixes with responsibilities shared between the Ministries of
Interior, Finance, and Environment. The DPL instrument offered analysis, reform planning framework,
implementation support, and convening power by the World Bank while maintaining full government
leadership and ownership of the reforms themselves. These are the essential factors of the partnership
22
that led to the success of both the first and second series.
75. Providing LGs with responsibility over the entire MSW chain is a key lesson for success. While improved MSW management is internationally recognized as benefiting health, environment,
safety, and economic growth for regional and urban areas, the responsibilities for collection and
disposal are usually fragmented across several administrative boundaries. The lesson learned in the
two Programmatic Series is that the responsibility of the entire system (collection, street cleaning,
disposal, recycling, and so on) should be concentrated under one entity.
76. If done properly, sanitary landfills can be socially and environmentally acceptable. In
many countries, people often voice concern over the location of sanitary landfills; this is known as the
not-in-my-backyard syndrome. In Morocco, the two Programmatic Series along with the Government
Program demonstrated that well-managed sanitary landfills (especially those combined with sorting
and recycling facilities) could be socially and environmentally acceptable to local population. Many
factors affected this process: (a) the fact that land-use planning integrated the location of new landfill
sites and the closure of existing landfills to reconciling potential conflicts in land use; (b) environmental
and social impacts assessments informed the public on the benefits and risks of sanitary landfills; and
(c) the informal sector was integrated into recycling plants at existing and new landfills.
7. Comments on Issues Raised by Borrower/Implementing Agencies/ Partners
(a) Borrower/Implementing agencies
77. A draft ICR has been translated into French and shared with the borrower through the Ministry
of General Affairs and Governance on August 29, 2016. Minor comments were communicated by
October 7, 2016.
(b) Co-financiers The project had no co-financiers.
(c) Other partners and stakeholders
Not applicable.
23
Annex 1 Bank Lending and Implementation Support/Supervision Processes
(a) Task Team members
Solid Waste Sector DPL 3 - P127955
Names Title Unit Responsibility/
Specialty
Lending
Jaafar Sadok Friaa Program Leader SACPK TTL
François Boulanger Senior Urban Economist
Carolyn Winter Senior Social Development Specialist
Mohammed Bekhechi Lead Legal Environmental Counsel Consultant
Fadhel Ghariani Solid Waste /Public Institutions specialist Consultant
Gaël Grégoire Senior Environmental Specialist CRKSK
Jean-Pierre Chauffour Lead Country Economist GMF05
Khalid El Massnaoui Senior Economist GMF05
Najat Yamouri Senior Social Development Specialist GSU05
Sherif Arif Lead Environmental Specialist Consultant
Lamyae Hanafi Benzakour Senior Financial Management Specialist GGO23
Jean Charles De Daruvar Senior Counsel LEGAM
Hassine Hedda Finance Officer
Maya Abi Karam Counsel LEGAM
Aditi Banerjee Economist GSU05
Sylvie Pittman Program Assistant GSU05
Bruce McPhail Social Development Specialist Consultant
Supervision
Jaafar Sadok Friaa Program Leader SACPK TTL
Sherif Arif Lead Environmental Specialist MNSSD Consultant
Sylvie Pittman Program Assistant GSU05
ICR
Maria Sarraf Lead Environment Specialist GEN05 TTL
Jaafar Sadok Friaa Program Leader SACPK
Allan Rotman Consultant
Sally Zeijlon GSU05 Quality Review
Hocine Chalal Lead Environment Specialist Peer Reviewer
Ibrahim Dajani Program Leader MNCO2 Peer Reviewer
(a) Task Team members
Solid Waste Sector DPL 4 - P148642
Names Title Unit Responsibility/
Specialty
Lending
Jaafar Sadok Friaa Program Leader SACPK TTL
Maria Sarraf Lead Environment Specialist GEN05 Co-TTL
Farouk Banna Environmental Engineer GSU13
Mohammed Bekhechi Lead Legal Environmental Counsel Consultant
Khalid El Massnaoui Senior Economist GMF05
Laila Moudden Financial Management Analyst GGO23
Jean-Charles De Daruvar Senior Counsel LEGAM
24
Abdoulaye Keita Senior Procurement Specialist GGO05
Fadhel Ghariani Solid Waste and Public Institutions Consultant
Raphael Kaminsky International Arbitration and Conciliation Consultant
Bruce MacPhail Social Development Specialist Consultant
Charles Malecot Financial Consultant Consultant
Christina Jutta Paul Lawyer Public Private Partnership GCPDR
Najat Yamouri Sr. Social Development Specialist GSU05
Lamia Zaki Urban Specialist MNCMI
Soumia Driouch Program Assistant MNCMA
Charlene d’Almeida Program Assistant GSU05
Marie Francoise How Yew Kin Program Assistant GENDR
Supervision
Jaafar Sadok Friaa Program Leader SACPK TTL
Maria Sarraf Lead Environment Specialist GEN05 Co-TTL
Soumia Driouch Program Assistant MNCMA
Charlene d’Almeida Program Assistant GSU05
ICR
Maria Sarraf Lead Environment Specialist GEN05 TTL
Jaafar Sadok Friaa Program Leader SACPK TTL
Allan Rotman Consultant
Sally Zeijlon GSU05 Quality Review
Hocine Chalal Lead Environment Specialist Peer Reviewer
Ibrahim Dajani Program Leader MNCO2 Peer Reviewer
(b) Staff Time and Cost
Solid Waste Sector DPL 3 – P127955
Stage
Staff Time and Cost (Bank Budget Only)
No. of Staff Weeks US$ Thousands (including
travel and consultant costs)
Lending FY12 14.56 119,263
Supervision FY13 24.61 218,644
Total: 39.17 337,907
Solid Waste Sector DPL 4 – P148642
Stage
Staff Time and Cost (Bank Budget Only)
No. of Staff Weeks Thousands (including travel
and consultant costs)
Lending FY14 6.49 154,598
Supervision FY15 39.63 353,842
Supervision FY16 1,127
Total: 46.12 509,567
25
Annex 2. Beneficiary Survey Results
See section 3.2 under Policy Area A and section 3.4 (a) for a description of the household survey
undertaken for the collection of citizen feedback in 5 majors cities in Morocco.
27
Annex 4. Borrower's ICR
Rapport d’achèvement du 2ieme programme d’appui au secteur
des déchets ménagers au Maroc
Royaume du Maroc
Juillet 2016
28
Introduction Le programme National de Gestion des Déchets Ménagers (PNDM) a été appuyé par la Banque Mondiale dans sa deuxième phase (2013-2022) à travers deux Prêts de Politique de Développement du Secteur des déchets Ménagers. Ce programme d’appui vise à soutenir le Maroc pour l’amélioration de la performance financière, environnementale et sociale et la bonne gouvernance du secteur des déchets ménagers. Contexte du programme – PNDM Le Maroc s’est engagé dans une politique volontariste de gestion en termes de Développement Durable et de Protection de l’environnement. En effet, de nombreuses initiatives et avancées ont vu le jour, notamment celle relative à la professionnalisation des services de collecte, nettoiement et mise en décharge des déchets ménagers. L’amélioration de la gestion des services publics communaux, y compris le service de gestion des déchets ménagers assimilés, constitue une priorité pour le Gouvernement. La réforme du secteur des DMA continue d'être un élément essentiel du Stratégie national de développement durable du Maroc et un facteur clé pour améliorer l'environnement en général. Conçu sur 15 ans et mis en œuvre en trois phases, le PNDM soutient les collectivités territoriales dans leurs efforts pour promouvoir la gestion intégrée des DMA et améliorer l'accès et la qualité des services de DMA. La deuxième phase a été conçue dans un nouveau contexte marqué par un programme de décentralisation très ambitieux. La gestion des déchets constitue aujourd’hui un enjeu social, environnemental, et économique majeur. L’engagement dans une ambitieuse réforme de modernisation du secteur de gestion des déchets ménagers a été consolidé par l’amélioration de la gouvernance et la redéfinition des rôles de l’ensemble des intervenants. Ainsi, la réforme a permis de confirmer la responsabilité des communes en matière de gestion des déchets ménagers tout en favorisant la participation du secteur privé. Par ailleurs, le PNDM a mis en place de nouveaux mécanismes pour renforcer la redevabilité des collectivités locales envers les citoyens, notamment à travers la reconnaissance et la mise en œuvre du principe de l’accès du public à l’information et la publication d’une loi-cadre sur l'environnement et le développement durable (Loi 99-12), qui introduit le droit de toute personne à accéder aux informations relatives à l'environnement. Situation sectorielle Le Maroc compte environ 33 million d’habitants en 2014, dont 20 millions vivent en milieu urbain, produisant environ 5,5 millions de tonnes de DMA par an, et serait de l’ordre de 6,2 millions de tonnes en 2022. Une mauvaise gestion des DMA pourrait avoir des impacts négatifs sur la qualité de vie, les ressources naturelles, l'environnement et le tourisme. Au contraire, un système intégré de GDMA peut offrir de réelles opportunités de création d’emplois et stimuler des activités génératrices de revenus à travers des activités de recyclage et via le service de collecte. Cadre institutionnel Les insuffisances de gestion enregistrés, depuis longtemps, au niveau de ce secteur et qui constituent les principaux défis à relever étaient dues essentiellement à des contraintes d’ordre institutionnel, juridique, managérial et financier. Il s’agit notamment du:
29
Cadre juridique et institutionnel insuffisant qui limite l’efficacité de la gouvernance du secteur ; Besoin urgent des systèmes intégrés et modernisés de gestion des déchets managers pour atténuer
les conséquences économiques, environnementales et sociales des systèmes existants.
Stratégie du gouvernement
Pour pallier ces insuffisances, le Gouvernement a entrepris lors des dernières années une série d’actions sur la voie du développement et de la réforme du secteur, y compris:
La publication en décembre 2006 de la loi 28.00 relative à la gestion des déchets. Cette loi traduit une volonté politique claire pour la mise à niveau de la gestion des déchets ménagers en particulier ;
La déclaration du Gouvernement d’octobre 2007 a placé la problématique de l’assainissement solide, et en particulier le traitement des déchets ménagers, parmi les priorités de l’action gouvernementale aussi bien au niveau de l’appui aux collectivités territoriales qu’au niveau de la protection de l’environnement et du développement durable. Cette volonté politique a été traduite par la création, au niveau de la loi de Finances 2007, d’un compte d’affectation spéciale intitulé « Fonds National pour la Protection et la mise en valeur de l’Environnement » dont le programme d’emploi inclut un paragraphe intitulé « Appui au Programme National des Déchets Ménagers et assimilés ».
En parallèle, au niveau des collectivités territoriales, une action communale soutenue a été menée pour l’amélioration et la professionnalisation des services de collecte des déchets :
L’élaboration en 2007, conjointement par le Ministère de l’Intérieur et le Département de l’Environnement, d’un Programme National des Déchets Ménagers et Assimilés (PNDM). Il s’agit d’un programme visant la mise à niveau de la gestion des déchets ménagers à l’horizon 2022. Le coût total du programme tel qu’il a été fixé initialement est de 37 milliards de DH (Soit environ 5 milliard de dollars US) sur une période de 15 années et couvrant l’ensemble des maillons de la chaîne depuis la collecte jusqu’au traitement ;
L’adoption de la loi-cadre sur l’environnement et le développement durable, qui a instauré le principe de « Responsabilité Elargie des Producteurs (REP) » ;
L’introduction de l’écotaxe dans la loi de finance de 2013 et elle a commencé à alimenter en 2014 le Fonds National pour l’Environnement (FNE) pour un éventuel redéploiement pour l’appui de la filière de plasturgie ainsi que pour le développement des filières de tri-valorisation.
Appui de la Banque mondiale au PNDM Dans le cadre de la mise en œuvre du PNDM, le Maroc a bénéficié d’un appui de la Banque Mondiale pour la première phase et la deuxième phase du PNDM (2012-2017) à travers:
Un appui technique pour le cadrage et l’opérationnalisation du PNDM. Cet appui a porté sur :
La revue des objectifs du développement et des composantes du PNDM ;
La définition de priorités en matière d’appui technique et financier et la définition des critères d’éligibilité et d’allocation de l’appui financier ;
L’élaboration des modalités de mise en œuvre et de suivi du PNDM, à travers une structure/organisation appropriée pour la coordination technique, la veille à l’emploi rationnel des ressources financières par le PNDM et l’approbation des programmes annuels d’intervention de l’Etat.
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Un appui au développement et à la mise en œuvre d’un projet programmatique de Mécanisme de Développement Propre (MDP) dans le secteur des déchets solides. Dans ce cadre, la Banque a mis à la disposition de la partie marocaine et en particulier du FEC, son expérience et son expertise en matière de développement du financement carbone selon une approche programmatique.
Quatres prêts (PPD1 , PPD2, PPD3 et PPD4) pour l’appui à la politique du développement du secteur
des déchets, en vue d’assurer l’amélioration de la gouvernance du secteur des déchets ménagers, la promotion et le soutien des services de gestion des déchets, et l’amélioration de la prise en charge des dimensions environnementales et sociales.
Le pilotage d’une étude relative à l’analyse des impacts sociaux et sur la pauvreté de la réforme du secteur des déchets solides ménagers au Maroc (PSIAI).
La Banque a mobilisé également un don PPIAF pour le financement de l’étude relative à la « stratégie de participation du secteur privé dans la gestion des déchets solides au Maroc ».
Le programme d’appui à la 2ème phase PNDM
Objectif du programme Le Maroc bénéficie d’un appui programmatique de la Banque Mondiale sur la période 2013-2017, à travers deux Prêts de Politique de Développement (PPD). Un prêt (PPD3) de 130 millions d’euros a été accordé par la Banque en 2013 et un quatrième prêt du même montant a été accordé en 2014. L’objectif du développement du programme PPD est d’appuyer le Gouvernement dans la mise en œuvre de la deuxième phase du programme de réforme du secteur des déchets managers à travers l’amélioration de la performance économique, environnementale et sociale du secteur des déchets ménagers et assimilés. Les deux opérations ont comporté ainsi, trois composantes, il s’agit de:
1- renforcer la gouvernance basée sur la demande en augmentant la transparence, la redevabilité et l'engagement des citoyens (par l'introduction d’outils rigoureux de responsabilisation sociale comme le Rapport d’Évaluation Citoyenne (REC)) ;
2- améliorer l’équité économique et sociale en garantissant l’égal accès aux services en milieu urbain (en particulier dans les quartiers informels/défavorisés), et veiller à ce que la nouvelle écotaxe fournisse des ressources pour des programmes d’intégration destinés aux chiffonniers ;
3- créer des débouchés rémunérateurs équitables à travers le développement d'un secteur de recyclage des déchets financièrement viable (environ 50.000 - 70.000 emplois devraient être créés au cours de la durée de vie du PNDM).
Ainsi, le PNDM vise à atteindre les objectifs suivants:
Assurer la collecte et le nettoiement des déchets ménagers pour atteindre un taux de collecte professionnalisée (gestion déléguée) de 85 % en 2016 et 90 % en 2022.
Réaliser les centres d’Enfouissement et de Valorisation des déchets ménagers et assimilés au profit de tous les centres urbains (100%) en 2022.
Réhabiliter ou fermer toutes les décharges existantes (100 %) en 2022
Généraliser les plans directeurs de gestion des déchets ménagers et assimilés pour toutes les préfectures et provinces de Royaume.
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Développer la filière de «tri-recyclage-valorisation», avec des actions pilotes de tri, pour atteindre un taux de Recyclage de 20% et la valorisation supplémentaire, sous différentes formes, d’au moins 30% des déchets générés à l’horizon 2022.
Former et sensibiliser tous les acteurs concernés sur la problématique des déchets.
L’exécution du programme d’appui au secteur des déchets ménagers : Réalisations
Depuis son lancement, le PNDM a atteint des résultats tangibles dans le secteur des déchets ménagers au Maroc, à savoir :
Un cadre juridique renforcé avec l'adoption de la Loi sur les déchets solides (Loi 28-00) et de la Loi-cadre sur l'environnement et le développement durable (Loi 99-12). Le Maroc bénéficie désormais d'une législation globale pour un système de gestion intégrée des déchets ménagers où l'utilisation des déchets comme une ressource peut procurer d’importants avantages environnementaux, sociaux et économiques.
Plus de 80% des déchets urbains sont collectés. Aujourd'hui, 80 pourcent des déchets urbains sont collectés de façon professionnalisée, contre environ 45 pourcent en 2007 (Rapport d'Avancement, PNDM, 29 septembre 2014) et plus de 53 pourcent des déchets collectés seraient enfouis dans des décharges contrôlées contre moins de 5 pourcent en 2007.
La participation du secteur privé dans le secteur des déchets ménagers bénéficie de l'engagement fort et continu du Gouvernement et des collectivités territoriales. Pendant les cinq dernières années, le rôle du secteur privé n'a cessé de croître. Plus de 100 villes ont contracté des opérateurs privés pour fournir des services de nettoyage de rue et de collecte de déchets dont bénéficient aujourd’hui plus de 15 millions de d’habitants. En 2012, plus de 78,3% des déchets collectés en milieu urbain résultent de contrats du secteur privé contre 45% en 2007. En outre, la gestion des décharges sanitaires a été confiée à des opérateurs privés.
Amélioration de la transparence et participation accrue des citoyens au secteur des déchets ménagers. Premièrement, avec l'introduction progressive d'outils de responsabilisation sociale rigoureux tels les Rapports d’Evaluation Citoyenne. Deuxièmement, en veillant à ce que les contrats de service public soient accessibles au public en ligne. Troisièmement, en institutionnalisant le droit des citoyens à accéder à l'information environnementale, y compris celles liés aux services de DMA. Quatrièmement, à travers la mise en place d'Observatoires Régionaux de l'Environnement pour le Développement Durable (OREDD) dans tout le pays.
Progrès remarquables sur la durabilité institutionnelle et financière des services de DMA. Les réformes institutionnelles ont clairement défini les mandats et responsabilités entre l’Etat, les communes et le secteur privé. La situation financière du secteur bénéficie également de (i) l’amélioration de la situation budgétaire et financière au niveau communal (augmentation des revenus locaux de plus de 50 pourcent au cours des 5 dernières années) et (ii) des initiatives de l’Etat visant à accroître la collecte de recettes fiscales locales, la diversification des sources locales de revenus, y compris la mise en place progressive de l'écotaxe pour soutenir la modernisation du secteur et améliorer ses prestations sociales.
Un instrument efficace a été mis en place pour promouvoir le recyclage des déchets et améliorer la performance socio-économique du secteur avec une attention particulière portée aux groupes vulnérables. Un instrument para-fiscal nommé écotaxe a été introduit dans la Loi des Finances de 2013
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et est entré en vigueur en 2014. Cet instrument a déjà mobilisé environ 148 millions de dirhams. Dans ce contexte, une convention-cadre pour le tri et le recyclage des matières plastiques à Casablanca, qui cible 10 000 collecteurs de déchets, a été signée en juin 2014. En outre, les accords de partenariat entre le secteur privé et les investisseurs ont été signés pour développer des filières de valorisation pour les piles usagées, les huiles frelatées et les pneus usés.
Une évaluation d'impact environnemental décentralisé (EIE), en accord avec les bonnes pratiques internationales est désormais pleinement opérationnelle, aux niveaux national et régional et un système de contrôle national de l'environnement ainsi qu’un système d'inspection sont en cours d'élaboration.
Evaluation de la performance du programme d’appui pour la réforme du secteur
En termes de Gouvernance du Secteur des Déchets ménagers et assimilés, les actions ont porté essentiellement sur :
La promotion de l'accès à l'information par la mise en place d’un site Web32 du PNDM accessible au public qui comprend les détails du financement du programme, les critères d'éligibilité et les indicateurs de performance. Le plan d'action soutient également le renforcement des capacités et la formation des communes par les Départements de l’Intérieur et de l'Environnement afin de renforcer les mécanismes de recours à l’échelle communale et également pour organiser des réunions publiques locales entre les communes et les habitants sur les questions de performance des services.
la transparence à travers l’élargissant l'accès du public aux contrats de gestion des déchets ménagers par la publication au Bulletin officiel des Collectivités Territoriales (BOCT) des informations sur les contrats, y compris des extraits de contrats de gestion des DMA avec des opérateurs privés. La publication des extraits33 de tous les contrats de gestion des DMA signés après la publication de la circulaire sur la plate-forme du site web du BOCT, et
l'amélioration de la redevabilité des prestataires de services envers les citoyens, par la mise en place des Rapports d’Évaluation Citoyenne (REC), et ceci par:
le lancement d’enquêtes auprès des ménages pour permettre aux habitants de donner aux autorités communales et aux prestataires de services des informations factuelles et d’exprimer leur perception sur la couverture, la performance et la qualité des services communaux;
L’organisation d'une série de consultations publiques pour discuter de l'amélioration de la prestation des services sur la base des résultats de l'enquête et de l'établissement d'un « pacte » d’amélioration du service.
En termes de soutenabilité institutionnelle et financière des services de gestion des déchets ménagers et assimilés, les actions ont porté essentiellement sur:
L’amélioration des capacités financières des communes pour couvrir les coûts de la modernisation du système des DMA ;
L’amélioration des services intégrés de gestion des DMA aux usagers des services publics, avec des services de collecte de déchets quasi-universels dans les zones urbaines, et 100 pourcent des DMA collectés sont traités dans des conditions sociales et environnementales acceptables ;
32 http://pndm.environnement.gov.ma 33 Un extrait est une part qui explique l’étendue et le prix du travail.
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L’amélioration de la Coopération intercommunale pour une meilleure performance économique et environnementale du secteur.
En termes de Contrôle et Suivi Environnementaux, les actions ont porté essentiellement sur:
la transparence dans le contrôle de l'environnement grâce au fait que l’ensemble des décharges sanitaires soient contrôlées sur une base régulière ;
Une meilleure application des lois, réglementations, normes et standards ainsi que des sanctions pour non-conformité.
En termes de Développement de filières de valorisation, les actions ont porté essentiellement sur:
L’amélioration des performances économiques et sociales du secteur grâce à la création de 50 000 à 70 000 emplois écologiques dans le secteur du recyclage en 2022 ;
Le recyclage de 20 pourcent des DMA collectés.
Pour suivre la performance de la réalisation du programme, des indicateurs ont été définis.
Dans le cadre de l’amélioration de la de gouvernance du Secteur des Déchets ménagers et assimilés, les indicateurs prédéfinies ont porté essentiellement sur:
Nombre de communes ayant élaboré des rapports d’évaluation citoyenne sur les services de DMA .Quatorze (14) Observatoires Régionaux de l’Environnement et du Développement Durable ont été établis en 2011-2014 pour suivre les indicateurs de l’état de l’environnement, y compris les indicateurs relatifs à la gestion des déchets ménagers. La Commission Nationale du Programme National des Déchets Ménagers (PNDM) a adopté le 29 octobre 2014, l’utilisation de l’évaluation citoyenne sur la qualité et l’accès aux services des déchets communaux (Rapports d’Evaluation Citoyenne) comme critère d’éligibilité pour l’appui financier du PNDM.
Pourcentage des contrats signés (après l’émission de la Circulaire No. 8029) avec un extrait publié sur la plateforme Web BOCT.
Parmi les indicateurs relatifs à la soutenabilité institutionnelle et financière des services de gestion des déchets ménagers et assimilés qui ont été pris en considération lors de l’exécution, on note:
Le pourcentage des déchets ménagers et assimilés collectés professionnellement et mis en décharge contrôlée: Le pourcentage des DMA mis en décharge contrôlée serait de l’ordre de 53,41%.
Le nombre de groupements d’agglomération et/ou de groupements : Le Ministère de l’Intérieur a adopté un programme pluriannuel d’assistance pour appuyer les collectivités territoriales et pour créer des institutions intercommunales/régionales pour la fourniture des services publics communaux y compris la gestion des déchets ménagers et assimilés ; et a sécurisé le 2 décembre 2013 le financement de ce programme.
La diminution du pourcentage du volume global des arriérés déclarés par les opérateurs privés et vérifié par la DEA, par rapport à la somme des montants annuels initiaux des contrats de gestion déléguée de services de DMA, et ce grâce aux efforts déployés par le Ministère de l’Intérieur en matière du suivi instauré pour les contrats de gestion déléguée à l’échelle nationale.
En ce qui concerne le Contrôle et suivi environnementaux, l’indicateur déterminé est:
Le pourcentage des décharges contrôlées de déchets ménagers et assimilés régulièrement inspectées. Le Conseil de Gouvernement a adopté le 8 Janvier 2015 le projet d’un décret instituant la Police de
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l’Environnement en application des dispositions de la loi-cadre No. 99-12 portant chartre nationale de l’environnement et du développement durable promulguée le 6 mars 2014.
Pour le développement de filières de valorisation, les indicateurs déterminés sont:
Le nombre de projets de recyclage appuyé avec le concours des produits de l’écotaxe : Le Conseil de Gouvernement a adopté le 4 décembre 2014 le projet d’un décret relatif à la réorganisation du Ministère délégué auprès du Ministre de l’Energie, des Mines, de l’Eau et de l’Environnement, Chargé de l’Environnement. Ce projet comprend la création d’une direction chargée du développement de la gestion des filières de valorisation, et la Ministre déléguée auprès du Ministre de l’Energie, des Mines, de l’Eau et de l’Environnement, Chargée de l’Environnement, a émis la Circulaire No. 209 en date du 11 novembre 2014 établissant un comité stratégique pour la gestion des filières impliquant les acteurs clé (les collectivités territoriales, les éco-contribuables, l’industrie du recyclage, la société civile). 18 projets retenus : 13 conventions ont été signées par les communes, le Ministère de l'Intérieur et le Ministère délégué chargé de l’Environnement. Ils sont actuellement dans le circuit de versement des fonds. D’autres conventions sont en cours de signature.
Le nombre d’opportunités génératrices de revenus créés dans le secteur du recyclage pour les chiffonniers (décomposé par genre). La Ministre déléguée auprès du Ministre de l’Energie, des Mines, de l’Eau et de l’Environnement, Chargée de l’Environnement, a émis la Circulaire No. 208 en date du 11 novembre 2014. Cette circulaire vise :
établissant les modalités d’allocation des revenus de l’écotaxe, et
prévoyant qu’au moins 20 pourcent des revenus de l’écotaxe sont alloués au développement et la mise en œuvre d’activités de recyclage ciblant les chiffonniers, avec une attention spécifique sur la dimension genre, jusqu’à l’achèvement du Programme National des Déchets Ménagers. Le nombre de récupérateurs à intégrer au niveau des centres de Tri est estimé à plus de 1000 personnes. Sur la base des études effectuées au niveau de Casablanca et Rabat le nombre de femmes travaillant actuellement au niveau des décharges est d’environ 5% des récupérateurs. Ce nombre après le démarrage des centres de tri est surement plus important en raison de l’amélioration des conditions de travail.
Principaux facteurs de succès de la mise en œuvre La mise en œuvre du programme a connu une réussite significative. Ce succès peut être expliqué par:
La forte volonté des décideurs pour la mise à niveau de la gestion du secteur des déchets ménagers ; Le cadre institutionnel approprié L’assistance technique de la Banque Mondiale au profit du programme ; L’adoption de l’approche participative ; Le suivi du projet par les missions de la Banque Mondiale, l’équipe du projet intervient d’une façon
efficace pour aider à dépasser les contraintes de l’exécution du programme.
Malgré les résultats concrets enregistrés, le secteur de la gestion des déchets fait face à d’importants défis qui se manifestent par la présence encore de 167 décharges sauvages non encore réhabilitées. Ceci constitue une réelle menace sur l’environnement, la population avoisinante, les ressources en eaux ainsi que sur la santé des travailleurs au sein de la décharge, d’autant plus que ces décharges reçoivent également des déchets médicaux et industriels dangereux. D’où la nécessité de réhabiliter en priorité et d’urgence les décharges non contrôlés impactant sévèrement les milieux, l’environnement et la santé des populations.
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Considérant l'impact de ces déchets sur l'environnement et l’intégration du développement des filières de recyclage et de valorisation des déchets dans les principes de la Charte Nationale de l’Environnement et de Développement Durable, le Ministère délégué chargé de l'Environnement envisage le développement des filières de valorisation des déchets notamment pour les filières prioritaires à savoir les batteries, les huiles et les pneus usés, ainsi que les déchets plastiques. Evaluation des résultats du projet Pertinence des objectifs, de la conception et de la mise en œuvre
Les objectifs et le concept du projet d’appui au secteur des déchets ménagers sont jugés très pertinents par rapport au programme global et au contexte actuel où le développement durable est confirmé comme priorité du nouveau programme du Gouvernement. La haute pertinence globale des objectifs confirme que la conception du programme reflétait un bon diagnostic d’une priorité de développement qui demeure soutenue. Justification de notation globale de résultat
On peut considérer, compte tenu des objectifs et des résultats atteints durant cette deuxième phase de l’appui au secteur des déchets ménagers, que le projet peut être classé satisfaisant malgré quelques lacunes liées aux questions de réhabilitation ou fermeture de toutes les décharges existantes, et à la question de développement des chaînes de valorisation/recyclage. Analyse critique de l’action de la Banque Mondiale et de l’emprunteur Appréciation de l’action de la Banque Mondiale dans la phase préparatoire du Programme d’appui au secteur des déchets ménagers. Le lancement de la préparation du projet d’appui au secteur des déchets ménagers avec cette institution ont été élaborés suite à plusieurs concertations engagées et un dialogue fructueux entre les départements impliqués et la Banque. De ce fait les objectifs et les axes du programme ont déjà été arrêtés au moment du lancement du programme ce qui a facilité la préparation et l’exécution du projet. Appréciation de l’action de la Banque Mondiale au cours de l’exécution du programme
L’exécution a été marquée par le suivi régulier de la part de la Banque à travers les missions de suivi et de consultation, ce qui a aidé à surmonter les contraintes au niveau de la concrétisation de certaines actions du projet d’appui de la Banque Mondiale au secteur des déchets ménagers. De la part des autorités marocaines, le projet a connu une exécution satisfaisante grâce à la coordination entre les départements ministériels concernés par ce programme et à l’engagement des collectivités bénéficiaires. Principales leçons à tirer de la conception et mise en œuvre du projet d’appui La conception du PPD4 a été élaborée en tenant compte des leçons tirées des opérations précédentes au Maroc (notamment de la mise en œuvre Rapport d'achèvement de la mise en œuvre (ICR) des PPD1 et PPD2, et de la mise en œuvre du PPD3).
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De ce fait, l’expérience du PPD du secteur des déchets ménagers a été très positive. Les facteurs de ce succès incluent l’amélioration de la gouvernance du secteur et la création de synergie entre les différents intervenants, le dialogue fructueux ente la Banque et les autorités marocaines, l’articulation des principaux piliers de la réforme (cadre institutionnel et financer), l’appui aux collectivités territoriales en terme financier et renforcement des capacités, et la sensibilisation/communication autour du programme. Malgré les résultats atteints durant la deuxième phase de l’appui au secteur des déchets ménagers, des lacunes ont été enregistrées dans la réalisation du programme, ses objectifs, ou sa pertinence, notamment:
Le développement des filières de valorisation: Le Maroc a clairement annoncé sa volonté de développer le recyclage dans le respect de la dimension sociale et environnementale. L’objectif stratégique de Recyclage de 20% et la valorisation supplémentaire, sous différentes formes, d’au moins 30% des déchets générés à l’horizon 2020. Cependant, le développement de ces filières consiste à :
L’élaboration des schémas de développement de ces filières avec identification des mécanismes techniques, légaux, financiers et institutionnels nécessaires à leur mise en œuvre.
La fixation des mécanismes financiers de ces filières (recouvrement des coûts) avec les opérateurs concernés.
Le renforcement du cadre juridique relatif à la mise en œuvre de ces filières.
La proposition des actions de sensibilisation et de communication y afférentes.
Prise en compte du secteur informel
La gouvernance de la filière de valorisation des déchets ménagers et assimilés. Une Division de gestion des filières a été créée au sein du Ministère délégué chargé de l’Environnement qui a la responsabilité de planifier, concevoir et mettre en place des filières de recyclage financièrement viables et d’assurer le monitoring de leurs performances économiques, environnementales et sociales. Cette Division représente également le Ministère Chargé de l’Environnement au sein des instances de chaque filière. Compte tenu de la multiplicité des acteurs impliqués et de l’importance des enjeux économiques, financiers, environnementaux et sociaux, une instance consultative (Comité d’orientation stratégique) a été mis en place pour faciliter la concertation entre les différents acteurs publics, privés et associatifs (Circulaire du MDE No. 209 en date du 11 novembre 2014).
La pérennisation des sources de financement pour le développement des filières de valorisation du plastique, et l’intégration des chiffonniers dans le secteur du recyclage.
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MATRICE DES POLITIQUES ET DES RÉSULTATS DE LA DEUXIÈME SÉRIE PROGRAMMATIQUE (PPD 3 and 4)
Actions Préalables (PPD3) Actions Préalables
(PPD4) Résultats
Etat d’avancement
Domaine de réforme A: Gouvernance du secteur des déchets ménagers et assimilés
1. Le Conseil de Gouvernement a approuvé le 14 décembre 2012 le projet de Loi-cadre sur l’Environnement et le Développement Durable qui introduit : (i) le droit de toute personne d’accéder à l’information environnementale, (ii) les arrangements institutionnels pour le contrôle environnemental, et (iii) le principe de « responsabilité élargie du producteur ». 2. La Commission Nationale du Programme National des Déchets Ménagers (PNDM) a approuvé le 23 octobre 2012 l’introduction d’un outil d’évaluation citoyenne sur la qualité et l’adéquation du service de déchets ménagers et assimilés (rapports d’évaluation citoyenne) en tant que composante clé du PNDM pour appuyer les collectivités territoriales à améliorer l’aspect demande de gouvernance dans la fourniture des services de déchets ménagers et assimilés. 3. Le Ministre de l’Intérieur a émis la Circulaire No. 8029 en date du 23 mai 2012 exigeant la publication par les communes des extraits des contrats de service de déchets ménagers et assimilés dans le Bulletin Officiel des Collectivités Territoriales (BOCT).
1. Quatorze (14) Observatoires Régionaux de l’Environnement et du Développement Durable ont été établis en 2011-2014 pour suivre les indicateurs de l’état de l’environnement, y compris les indicateurs relatifs à la gestion des déchets ménagers. 2. La Commission Nationale du Programme National des Déchets Ménagers (PNDM) a adopté le 29 octobre 2014, l’utilisation de l’évaluation citoyenne sur la qualité et l’accès aux services des déchets communaux (Rapports d’Evaluation Citoyenne) comme critère d’éligibilité pour l’appui financier du PNDM.
Les acteurs publics et privés de la GDMA sont plus redevables envers des citoyens informés Indicateur : Nombre de communes ayant élaboré des rapports d’évaluation citoyenne sur les services de DMA Référence(2012): 0 Cible (2015): 5 Source : Rapports Evaluations Citoyennes Utilisation transparente de l’argent public dans la fourniture par le privé du service des déchets ménagers et assimilés Indicateur : Pourcentage des contrats signés (après l’émission de la Circulaire No. 8029) avec un extrait publié sur la plateforme Web BOCT Référence (2012): 0 % Cible (2015) : 100% Source : BOCT
L’évaluation citoyenne de Témara est
achevée. Les études relatives aux évaluations
citoyennes de Tanger et Mohammedia sont en phase final d’achévement.
Les études relatives aux évaluations citoyennes d’Agadir et de Rabat sont en phase final des enquêtes
L’étude concernant Casablanca, le marché est en final d’achévement (l’Exécution est assurée par la Commune Urbaine et le délégataire).
DEA/MI
Domaine de réforme B: Soutenabilité institutionnelle et financière des services de GDMA
4. Le Ministère de l’Énergie, des Mines, de l’Eau et de l’Environnement a signé le 10 décembre 2012 trois contrats avec des firmes d’ingénierie dans l’objectif d’appuyer les collectivités territoriales à mieux préparer et gérer les projets et contrats de déchets ménagers et assimilés sur le territoire de l’Emprunteur.
3. Le Ministère de l’Intérieur a adopté un programme pluriannuel d’assistance pour appuyer les collectivités territoriales et pour créer des institutions intercommunales/régionales pour la fourniture des services publics communaux y compris la gestion des déchets ménagers et assimilés ; et a sécurisé le 2 décembre 2013 le financement de ce programme.
La performance opérationnelle et environnementale du PNDM améliorée Indicateur: Pourcentage des déchets ménagers et assimilés collectés professionnellement et mis en décharge contrôlée Référence (2012): 32% Cible (2015) : 55% Source : Rapports d’avancement du PNDM
Le pourcentage des DMA mis en décharge contrôlée, après actualisation des données en fonction du dernier recensement dont les résultats viennent d’être publiés, est de 53,41%.
Les projets en cours de réalisation (phase final des travaux): Tanger et Khénifra.
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Indicateur : Nombre de groupements d’agglomération et/ou de groupements de communes établis Référence (2012): 7 Cible (2015) : 15 Source : DGCL
Les projets dont les marchés de la gestion déléguée est attribuée: Béni Mellal et Sefrou.
Après achévement de ces projets le taux va atteindre les 61%.
5. Le Ministre de l’Intérieur a émis la Circulaire No. D13015 en date du 17 décembre 2012, relative à l’établissement d’une redevance des déchets ménagers et assimilés que les communes pourraient mettre en œuvre sur les gros producteurs de déchets, conformément aux dispositions de l’article 23 de la loi 28-00 en date du 22 novembre 2006, relative à la gestion des déchets solides.
6. Des ressources adéquates ont été mobilisées pour le financement du PNDM en 2012 et le projet de Loi de Finances de l’Emprunteur pour 2013 inclut une allocation appropriée pour le PNDM.
4. Le Trésorier Général a émis la Décision No. 0188 en date du 16 juillet 2014 concernant les services de conseil de la Trésorerie Générale aux collectivités territoriales en vue d’améliorer la gestion de leurs revenus.
Capacité financière des CT, pour assurer le financement des services des déchets ménagers et assimilés, améliorée Indicateur : Augmentation des ressources globales des communes par rapport à 2012 Référence (2012): 0 Cible (2015) : +20% Source : TGR
DEA/MI & TGR
7. Le Ministre de l’Intérieur a émis la Circulaire No. 5533 en date du 5 octobre 2012 concernant la préparation des budgets des collectivités territoriales, et la Circulaire No. 17887 en date du 11 décembre 2012 traitant la question des arriérés de paiement dus par les collectivités territoriales en vertu des contrats de gestion déléguée du service de déchets ménagers et assimilés, en incluant des instructions spécifiques et des explications: (i) pour assurer une estimation sincère des coûts du service, (ii) concernant la révision des prix, et (iii) au sujet de la budgétisation des accords de rééchelonnement des arriérés.
5. Le Ministre de l’Intérieur a émis la Circulaire No. 17495 en date du 28 octobre 2014 définissant les modalités du mécanisme de conciliation avec tierce partie, et exigeant l’inclusion de ce mécanisme dans tous les contrats de gestion délégués des services de déchets ménagers entre les communes et les opérateurs privés
Meilleur cadre de développement de la gestion déléguée dans le secteur Indicateur : Diminution du pourcentage du volume global des arriérés34 déclarés par les opérateurs privés et vérifié par la DEA, par rapport à la somme des montants annuels initiaux des contrats de gestion déléguée de services de DMA Référence (2012): 70% Cible (2015): 30% Source : DGCL
DEA/MI Résultat (15%)
Domaine de réforme C: Contrôle et suivi environnementaux
8. Le Chef du Gouvernement a émis la Circulaire No. 27/2012 en date du 30 novembre 2012 pour établir un système national d’information et de coordination en matière d’inspections,
6. Le Conseil de Gouvernement a adopté le 8 Janvier 2015 le projet d’un décret instituant la Police de l’Environnement en application des dispositions de la loi-cadre No. 99-12 portant
Toutes les décharges sont suivies et inspectées régulièrement
DCEEAJ/MDE
34 Soit les montants facturés et qui sont en retard de paiement par rapport au délai de paiement contractuel.
39
d’infractions et des sanctions sur l’environnement.
9. Le Ministre de l’Énergie, des Mines, de l’Eau et de l’Environnement a émis la Circulaire No. 66/2012 en date du 15 novembre 2012 établissant au sein du Ministère une unité spéciale d’inspecteurs assermentés de l’environnement.
chartre nationale de l’environnement et du développement durable promulguée le 6 mars 2014.
Indicateurs : Pourcentage des décharges controlées de déchets ménagers et assimilés régulièrement inspectées. Référence (2012): 8 % Cible (2015) : 100 % Source : MEMEE
Domaine de réforme D: Développement de filières de valorisation
10. Le Conseil de Gouvernement a approuvé le 15 octobre 2012, le projet de Loi de finances de l’ Emprunteur pour 2013 qui entre autres, (i) introduit une “écotaxe” pour la filière des emballages plastiques, et (ii) modifie les arrangements applicables au Fonds National pour la Protection et la Mise en Valeur de l’Environnement pour lui permettre de recevoir les produits de l’écotaxe.
7. Le Conseil de Gouvernement a adopté le 4 Decembre 2014 le projet d’un décret relatif à la réorganisation du Ministère délégué auprès du Ministre de l’Energie, des Mines, de l’Eau et de l’Environnement, Chargé de l’Environnement, y compris la création d’une direction chargée du développement de la gestion des filières de valorisation, et la Ministre déléguée auprès du Ministre de l’Energie, des Mines, de l’Eau et de l’Environnement, Chargée de l’Environnement, a émis la Circulaire No. 209 en date du 11 novembre 2014 établissant un comité stratégique pour la gestion des filières impliquant les acteurs clé (les collectivités territoriales, les éco-contribuables, l’industrie du recyclage, la société civile)
8. La Ministre déléguée auprès du Ministre de l’Energie, des Mines, de l’Eau et de l’Environnement, Chargée de l’Environnement, a émis la Circulaire No. 208 en date du 11 novembre 2014 (i) établissant les modalités d’allocation des revenus de l’écotaxe et (ii) prévoyant qu’au moins 20 pourcent des revenus de l’écotaxe sont alloués au développement et la mise en œuvre d’activités de recyclage ciblant les chiffonniers, avec une attention spécifique sur la dimension genre, jusqu’à l’achèvement du Programme National des Déchets Ménagers
Nombre de projets de recyclage appuyé avec le concours des produits de l’écotaxe : Référence (2012) : 0 Cible (2015) : 10 Source : FNE La performance sociale et environnementale du secteur améliorée Indicateur : Nombre d’opportunités génératrices de revenus créés dans le secteur du recyclage pour les chiffonniers (décomposé par genre) Référence (2012) : 150 (dont 20 femmes) Cible (2015) : 500 Source : Rapport d’avancement du PNDM
Le nombre des projets de centres de tri retenus est de 18 dont 15 avec les communes (centres de tri aval) et 3 avec les associations et coopératives. Pour les 18 projets retenus : 13 conventions ont été signées par les communes, le Ministère de l'Intérieur et le Ministère délégué chargé de l’Environnement. Ils sont actuellement dans le circuit de versement des fonds. Les autres conventions sont en cours de signature. On estime le nombre de récupérateurs à intégrer au niveau des centres de Tri à plus de 1000 personnes. Sur la base des études effectuées au niveau de Casablanca et Rabat le nombre de femmes travaillant actuellement au niveau des décharges est d’environ 5% des récupérateurs. Mais ce nombre reste à préciser après le démarrage des centres de tri. Il sera surement plus important en raison de l’amélioration des conditions de travail.
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Annex 6. List of Supporting Documents
General Documents Available in the Project File
World Bank (2013) Third Municipal Solid Waste Sector Development Policy Loan Program
Document
World Bank (2015) Fourth Municipal Solid Waste Sector Development Policy Loan Program
Document
Loan Agreements DPL 3 and 4
Project mission aide-mémoires
Prior action documentation DPL 3 and 4
DPL 1 and 2 Implementation Completion and Results Report, 2012
Poverty and Social Impact Analysis (PSIA) Phase 1(2008), Phase2 (2011) and addendum (2012)
(World Bank)
Supporting Documents by Policy Area
Policy Area A: Governance of the Municipal Solid Waste Area
Communication Strategy for PNDM, 2011
Municipalité de Temara (2012), Résultats de l’Evaluation Citoyenne sur la Gestion des Déchets
Ménagers.
MEMEE, Chargé de l’Environnement (2015), Etude Relative à l’Evaluation Citoyenne sur la
Gestion des Déchets Ménagers de la Ville d’Agadir (2015) Version Provisoire. Préparé par CID-
EDIC
MEMEE, Chargé de l’Environnement (2015) Etude Relative à l’Evaluation Citoyenne sur la
Gestion des Déchets Ménagers de la Ville de Mohammedia. Version définitive. Préparé par CID-
EDIC
MEMEE, Chargé de l’Environnement (2015) Etude Relative à l’Evaluation Citoyenne sur la
Gestion des Déchets Ménagers de la Ville de Rabat. Version provisoire. Préparé par CID-EDIC
MEMEE, Chargé de l’Environnement (2015) Etude Relative à l’Evaluation Citoyenne sur la
Gestion des Déchets Ménagers de la Ville de Tanger. Version définitive. Préparé par CID-EDIC
Ville de Casablanca (2015) Enquête sur la propreté à Casablanca : Proposition méthodologique,
Fourteen signed convention for the creation of regional observatory for environment and
sustainable development.
Note on Etat d’Avancement de Mise en place des OREDD prepared by MEMEE (2015)
List of MSW indicators monitored by OREDD prepared by MEMEE (2014)
Policy Area B: Institutional and Financial Sustainability of Municipal Solid Waste
Management Service
Working paper on MSW institutional options. World Bank (2012)
MSW Institutional and Financial framework. MoI, KfW (2011)
Working paper on MSW fees (Redevance). World Bank (2012)
Note on Mediation/Conciliation Mechanism in Morocco prepared by R. Kaminsky (Arbitration
Lawyer) World Bank (2014)
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Assistance Technique aux Collectivités locales pour les projets appuyés par le PNDM, MEMEE
(2014) divers lots
La Gestion Déléguée des Services Publics Locaux, Synthèse. Cour des Compte, Royaume du
Maroc (2014)
Policy Area C: Environmental Monitoring and Control
Establishment of Environnemental Police Framework Note prepared by M. Bekhechi (World
Bank) (2014)
Note on the Matrice de contrôle environnemental des décharges prepared by La Division Contrôle
Environnemental. MEMEE (2015)
Etude Relative à la Mise en Place d’une Police Nationale de l’Environnement. MEMEE (2014)
Mission 1: Diagnostic de l’etat actuel du contrôle environnemental
Mission 2: Expertise juridique et institutionnelle
Mission 3: Expertise technique –mise en place de la police de l’environnement
Training Session on Environmental Control prepared by M. Bekhechi (World Bank) (2014)
Policy Area D: Development of Recycling Value Chains
Note conceptuelle sur le développement des filières de recyclage au Maroc. F. Ghariani (Recycling
Expert) World Bank (2012)
Elaboration d’un Business Plan pour la Gestion de la Filière des Déchets d’Emballages. MEMEE
(2014)
Mission 1 : Caractérisation et mobilisation du gisement
Mission 2 : Elaboration du business plan
Gouvernance de la Filière de récupération, tri et valorisation des déchets ménagers et assimiles
prepared by GIZ (2014)
Note sur l’Institution d’un Comité d’Orientation Stratégique des Filières de Valorisation
(COSFIV) prepared by F. Ghariani (WB) (2014)
Développement et Gestion de la filière plastique, Concept et opérationnalisation. F. Ghariani
(World Bank) (2014)
Etat d’avancement des filières e tri et de valorisation des déchets. MEMEE (2015)
Assistance Technique pour la Gouvernance des Filières de Récupération, Tri et Valorisation des
Déchets Cahier des prescriptions spéciales. MEMEE (2015)
Note Rétrospective sur le processus de mise en place sur l’écotaxe plastique, MEMEE (2014)
Etude de Définition des activités, des critères d’éligibilité et des dépenses éligibles à un appui des
ressources de l’écotaxe prepared by GIZ (2014)
Manuel Opérationnel d’Utilisation des revenus de l’écotaxe. F. Ghariani (World Bank) (2015)