Project Evaluation
Summaries
Prepared by the Policy, Planning and Evaluation
Unit (PPEU)
I. Basic Project Data
| Project Number: | CHD/89/CO1 |
| Project Title: | Improvement of Housing & Living Conditions in N'Djamena |
| UN Cooperating Agency: | None |
| Govt. Executing Agency: | Ministry of Planning and Cooperation |
| Sector: | Human Settlements |
| Sub-Sector: | Housing and Infrastructure |
| UNCDF Budget: | US$ 3,271,900 |
| Gov't. Budget: | 240,000 |
| IBRD (WB) Budget: | 4,619,000 |
| Total Budget: | 8,130,900 |
|
Actual Total Expenditures at Evaluation: |
N/A |
|
UNCDF Expenditures, Y/E 1995: |
3,062,311 |
| Date Project Approved: | Aug 1990 |
| Date Project Began: | Aug 1990 |
| Date Project Evaluated: | Aug 1995 |
| Type of Evaluation: | Final |
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|
II. Background
Speaking at a conference on national reconstruction in Geneva in 1982, representatives from the Government of Chad declared that the reconstruction of housing in N'Djamena was a national priority. A year later, UNCDF identified a project that would concentrate on urban infrastructure improvements: drainage, water supply, pit latrines, electrification, and housing assistance.
UNDP was first approached to provide technical assistance, but due to a shortage of financial resources, it was not able do so. The project was reformulated in 1988 to its current form in conjunction with the World Bank, which provided an IDA Credit.
III. The Project
The UNCDF project is a part of the "Action Programme for Social Development in N'Djamena" (PADS). The PADS aims to address the social dimensions of the national structural adjustment program and to mitigate the negative effects of economic adjustment measures on the poor. Specifically, the PADS aims to:
• Improve the sanitary conditions of urban households by providing basic facilities for drainage, water supply, electricity and pit latrines;
• Promote employment by supporting small- and medium scale enterprises with the provision of credit and training;
• Strengthen the urban population's sanitation awareness and education, to complement the infrastructural investments in the sector.
The World Bank and UNCDF contributed to the Programme in different ways. While the World Bank financed the construction of the primary sanitation network and part of the secondary sanitation network, as well as supporting related activities, UNCDF concentrated its investments on the construction of secondary and tertiary sanitation systems, as well as water supply, electrification, and the provision of materials for the construction of improved latrines. The UNCDF component targeted the disadvantaged neighborhoods of Am Ribeke and Repos I in N'Djamena. These combined investments were geared to improving the living conditions of the disadvantaged population.
IV. Purpose of the Evaluation
The evaluation mission was asked to compare project outcome, impact, and relevance to the objectives and expected results. This evaluation required a thorough analysis of several factors, including: (i) the initial concept, formulation, and overall execution of the project; (ii) the utilization and effectiveness of project inputs; and (iii) the long term viability and impact of the project's results. The mission was also asked to make recommendations to improve operations and for the most effective use of the balance of US $209,589 in the UNCDF project budget.
V. Findings of the Evaluation Mission
A. Assessments of Results Achieved
Overall, the project met its qualitative objectives to improve local living conditions through the provision of basic infrastructure and improved sanitation. This success was accomplished despite the scaling-down and partial completion of the systems that were originally planned. The final cost of the sanitation component was much higher than originally anticipated due to both underestimates in the initial feasibility studies, and to high inflation. As a result, only about 60% of the planned systems in Repos I and in Am Rikebe were completed. While the drainage work in Repos I only includes a portion of the main sewer line, it is hoped that resources to permit secondary drainage connections to the main line will become available.
Drainage problems due to the incomplete execution of the planned works have been partly alleviated through the construction of earthen canals and gutters. These were built by the local residents to channel some of the surface run-off, but they will require frequent maintenance and repair. However, these improvised improvements meet satisfactory standards, due to the national team's efficiency and strong technical support. To address the lack of maintenance, the N'Djamena municipality has contracted the newly organized ATETIP (Chad Agency for Execution of Public Interest Works) to clean the town's drainage system. While this approach is adequate for the deeper parts of the system, the community will need to be involved in regular maintenance because the municipality will not be able to finance this from its meager budget.
The audit consultant pinpointed some minor shortcomings in administrative procedures to select contractors. Basic selection rules have been followed, however, and include advance public advertisement; opening of tenders in the presence of contractors; selection of the best offer; and confidential definition of a ceiling price. It should be emphasized that the only extra costs incurred during the completion of the outputs resulted from the currency devaluation adjustment.
The water supply and electricity networks have been built by the state-owned STEE (Chad Water and Electric Society) within the allocated budget and according to the usual technical specifications. The networks satisfy the demand of the population of Am Rikebe and Repos I, as well as the neighboring population. However, repayment by the municipality and the STEE of credit allocated by the project, as per contractual agreement, is more than one year overdue. It was originally envisaged that this repayment could constitute the basis for a capital development fund to enable the municipality to maintain and later expand its infrastructures.
The cost of the pit latrine component was also underestimated initially, resulting in the completion of 374 units rather than the 560 originally planned. After an unsuccessful attempt to implement this component through an NGO (lack of backstopping, delays, etc.), construction was carried out with a combination of contributions in labor by the beneficiaries, masonry work by local entrepreneurs and provision of building materials by the project, under the project's direct supervision. Though it was successful, this mechanism stretched the capacity of the project team. Due to the widespread acceptance of these latrines by the general public, however, the mission believes that this project component should be extended within the broader framework of an urban housing policy.
A delay of two years (during which the project team was put in place) occurred between the signature of the project in 1990 and the start of the feasibility studies, followed by a further delay in carrying them out. From the time the studies were completed, the construction of the drainage system and of the latrines was implemented on schedule. This represents a good national performance, considering the scope of the combined UNCDF and World Bank operations.
B. Assessment of Project Design
At the time of project formulation, Repos I and Am Ribeke were considered to be the most deprived of all urban areas in N'Djamena. The numerous improvements in their physical condition exhibit an obvious contrast to the conditions of similar communities in the city. Roads are left clean after rainfall, and new small-businesses are flourishing—an estimated 84 new commercial activities have been created since the project began. Water fountains serve daily public demand on a continuous basis. In addition, the value of the land in the two zones has at least tripled since the project's inception.
One shortcoming of the project is that more attention was given to the design of construction activities than to the maintenance of the new systems. This needs to be corrected, and greater emphasis must be given to maintenance issues; indeed, it should be made mandatory for the PADS and the municipal and national governments.
VI. Recommendations
In terms of UNCDF's inputs, the project is at its terminal stage. To achieve optimal results and replicability, the following actions are recommended:
• The unused balance of US$ 209,589 in the UNCDF budget should be assigned to the completion of the main sewer line in Repos I. As the construction is estimated at US$ 300,000, this will require an additional input of around US$ 80,000 from UNCDF.
• As noted above, repayment of credit allocated for water supply and electrification will be used by the PADS for the development of other neighborhoods. UNCDF should restore the value of the water and electricity infrastructure by increasing the project budget by US$ 80,000 in order to recover the cost of past inflation.
• The promotion of a pit latrine program should be initiated at the municipal level by supporting the cost of editing and printing a booklet on ventilated pit latrines. The cost is estimated at US$ 10,000 if the work is locally contracted.
• The achievements of the project should be promoted by sponsoring the preparation of a video. This would be very helpful at the national level to enhance public awareness of sanitation problems and solutions, and would be useful in securing additional funding for similar projects in other communities. The cost estimate for the production of the video is US$ 20,000.
VII. Policy Implications and Lessons Learned
This project demonstrates how UNCDF can work through pilot projects to accomplish tangible, direct and rapid improvements in the living conditions of deprived urban areas. Many positive lessons were learned from this project that will assist the Government in its efforts to create an urban housing policy.
An additional benefit of this project is that the latrine component demonstrated the technical soundness, acceptability and affordability of a pit latrine model that could be applied nationwide.
To ensure the maintenance of the sanitation infrastructure and its long-term viability, community involvement will be essential. This will be best achieved through community development programmes that foster public awareness of the problems and the need for community participation in any sustainable solutions.
VIII. Evaluation Team
The final evaluation mission team consisted of Mr. Guy Lemarchands, as UNCDF/UNOPS consultant, in full cooperation with the personnel of the "Infrastructures and Sanitation" unit of PADS.
