AFRICAN DEVELOPMENT FUND

CAMEROON ORT TO THE EDUCATION SECTOVELOPMENT PROGRAMME

SUPPORT TO THE EION SECTOR DEVELOPMENT PROGRAMME SUPPORT TO THE EDUCATION CTOR DEVELOPMENT PROGRAMME

GOVERNANCE REFORM SUPPORT PROGRAM

PROJECT COMPLETION REPORT

OSGE DEPARTMENT

October 2012

Document translated

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PROJECT COMPLETION REPORT A. PROJECT DATA AND KEY DATES I. BASIC INFORMATION

Project Number Project Name Country

P-CM-KA0-007 Governance Reform Support Program REPUBLIC OF CAMEROON

Lending Instrument(s) Department Environmental Classification

Institutional Support– ADF LOAN No. 2100150013794 OSGE III

Initial Commitment Amount Amount Cancelled Amount Disbursed Percentage Disbursed

AU 4 000 000 AU 2 595 252 AU 1 404 747.85 35.12%

Borrower

GOVERNMENT OF THE REPUBLIC OF CAMEROON

'Executing Agency (ies) [Include the main ministries, project implementation units, agencies and civil society organizations responsible for the project implementation.]

PROJECT IMPLEMENTATION UNIT (PIU)

Co-financers and other External Partners [List all other sources of financing and amounts, technical assistance or other resources used in this project].

The Project was parallel-financed with an ADF loan of UA 25 million to support the balance of payments of agencies involved in implementation of the reforms supported by the project.

II KEY DATES Project Concept Note Cleared by Ops.Com.

Appraisal Report Cleared by Ops Com NA Approved by the Board of Directors

4-Dec-06

Rescheduling(s) NA

Original Date DD//MM/YY

Actual Date DD/MM/YY

Gap in months (original effective date)

EFFECTIVENESS 31-Dec-06 10-Jul-08

18.6

MID-TERM REVIEW 30-Nov-07 21-Apr-10

29.1

CLOSING

31-Dec-09

Include date of 98% disb. rate for ongoing projects 28.4

30-Apr-12

III. RATINGS SUMMARY

CRITERIA SUB-CRITERIA WORKING SCORE

PROJECT OUTCOME

Achievement of Outputs 2

Achievement of Outcomes 2

2

Timeliness 2

OVERALL PROJECT OUTCOME 2

BANK PERFORMANCE

Design and Readiness 3

Supervision 3

OVERALL BANK PERFORMANCE 3

BORROWER PERFORMANCE

Design and Readiness 3

Implementation 2

OVERALL BORROWER PERFORMANCE 3

IV. RESPONSIBLE BANK STAFF

POSITIONS AT APPROVAL AT COMPLETION

Regional Director Mr. J. M. GHARBI, ORCE Mrs. Marlene KANGA, ORCE

Sector Director Mr. Isaac LOBE NDOUMBE, OSGE

Sector Director Mr. Jean Luc BERNASCONI, OSGE.1

Task Manager Mr A. BERNOUSSI, ORCE Mr. Alain Fabrice EKPO, OSGE.1

PCR Team Leader Mr. Bekale OLLAME, OSGE.0

PCR Team Members

Mr. Denis TANKOUA, CMFO/M. Alain Fabrice EKPO, OSGE.1/Mr. Sekou KEITA and Mr. Clément AHOSSI, CMFO/ORPF

B. PROJECT CONTEXT

Summarize the rationale for Bank assistance. State:

- what development challenge the project addresses; - the Borrower’s overall strategy for addressing it; - Bank activities in this country(ies) and sector over the past year and how they performed; and - Bank and other externally financed activities in process that complement, overlap with or relate to this

project.

Please cite relevant sources. Comment on the strength and coherence of the rationale. [300 words maximum.] [Any other narrative about the project’s origins and history, if needed, must be placed in Appendix 6: Project Narrative]

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Despite recent progress by the Government, poverty has not decreased significantly. Governance promotion of is a prerequisite for effective poverty reduction. The Government mid-term program for 2006-2008, supported by the Poverty Reduction and Growth Facility (PRGF), has the

following priorities: (i) consolidation of macroeconomic stability; (ii) development of human and physical capital; (iii) promotion of good governance; and (iv) reduction of other obstacles to growth. At end June 2012, the Bank’s active portfolio in Cameroon comprised nineteen (19) projects for a total of UA 576.37 million, including UA 247.23 million (43%) for national projects. The transport sector has the largest share, 56% of the public operations portfolio, including an institutional support project, for the modernization of the lands register system and business climate (PAMOCCA), for UA 7 million. The Institutional support is a component of the Governance Support Reform Program in the context of the implementation of the Poverty Reduction Strategy Paper (PSRP), the Revised National Governance Program (R-NGP) and the Bank’s 2005-2009 CSP. The Governance Institutional Support is consistent with the Government’s mid-term program, focussing on the following four components: (i) improving efficiency of judicial system; (ii) improving efficiency of public administration; (iii) improving public financial management; and (iv) intensifying the fight against corruption. This project aims to build the capacities of the institutions and bodies called upon to play lead roles in implementing program reform measures, namely the Ministry of Justice, the Permanent Secretariat for Administrative Reforms (SPRA), the National Assembly Budget Committee (FBC/NA), the SSA, the AC/CS, the Public Contracts Regulatory Agency (ARMP) and the National Anti-corruption Commission (CONAC). The Bank works in close collaboration with TFP such as: the IMF, World Bank, European Union, UNDP, Germany, Canada and France. IMF approved the PRGF to support the Government program in October 2005. Source: GRSP ADF/BD/WP/2006/87/Rev.1 Appraisal Report.

NUMBER OF WORDS 300

C. PROJECT OBJECTIVE AND LOGICAL FRAMEWORK

1. State the Project Development Objective(s) (as set out in the appraisal report)

The project objective is to contribute to the promotion of good governance by building the capacities of the institutions, agencies and bodies to play a lead role in the formulation and implementation of judicial, administrative, public finance control, and anti-corruption strategies and policies.

2. Describe the main project components and indicate how each will contribute to achieving the Project Development Objectives

The institutional support project and the program had similar components: i) Support to improvement of judicial system efficiency aimed at building the capacities of the judicial system (in human rights, administrative and property law) through the interconnection of different courts, the training of Judicial and Legal Officers, supply of computer equipment and documents. ii) Support to improvement of public administration efficiency aimed at decentralizing salary management, better rationalization of administrative procedures and building the capacities of government Employees. iii) Support to improvement of public finance management aimed at building the capacities of structures responsible for internal and external budget and public procurement system control. iv) Support for intensification of the fight against corruption made it possible to: (i) strengthen the institutional and legal framework for anti- corruption action as well as the intervention capacities of the bodies carrying out that action and (ii) define a national strategy in the domain.

3. Provide a brief assessment (up to two sentences) of the project objectives along the following 3 dimensions: Insert a working score, using the scoring scale provided in Appendix 1.

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PROJECT OBJECTIVES DIMENSION ASSESSMENT WORKING

SCORE

RELEVANT a) Relevant to the country’s development priorities

Considering the prevailing context at the preparation stage, it is seen that the project and shortlisted activities were indeed relevant in this sense.

4

ACHIEVABLE b) Objectives could in principle be achieved with project inputs and in the expected timeframe.

The project objectives were considered realistic and achievable with the set timeframes and contributions. However, the project implementation delays and the numerous extensions prove that capacities were overestimated.

2

CONSISTENT

c) Consistent with the Bank’s country or regional strategy

The project objectives were consistent with the 2005-2009 CSP, one of whose pillars concerned good governance promotion to ensure transparent management of State resources and improve public administration efficiency.

4

d) Consistent with Bank’s overall priorities

The project was consistent with the Bank’s governance priorities.

4

4. Summarize the log. frame. If a log. frame does not exist, complete the table below. Indicate the overall project development objective, the major components of the project, the major activities of each component and the expected outputs, outcomes, and indicators for measuring the achievement of outcomes. Add additional rows for components, activities, outputs or outcomes, if needed.

COMPONENTS ACTIVITIES OUTPUTS INDICATORS TO BE MEASURED

EXPECTED OUTPUTS

INDICATORS TO BE

MEASURED

Component 1: Improve judicial system efficiency Installation of local networks,

VSAT, radio loops and configuration of servers

Intranet network in Yaounde set up (linking Ministry of Justice Supreme Court, Courts of Appeal, High Courts and Courts of First Instance

Intranet installed

General administration capacities of the Judiciary reinforced

Timeframe for processing of files

Procurement of computer workstations, office equipment (photocopiers, video projectors…)

Judicial Administration equipped with computer and office automation equipment

Supply of materials and equipment

Recruitment of international consultants in administrative and intellectual property law to train Judicial and legal officers

Judicial and legal officers trained

Number of Judicial and Legal Officers trained General

Inspectorate of Judicial Services reinforced (IGSJ)

Financing study trips for Judicial and Legal Officers

Training in intellectual property law, human rights and administrative litigations

IGSJ Employees trained

Number of IGSJ employees trained

Financing of study on setting up a database Carceral database put

in place Database achieved

Supreme Court strengthened

Server installed

Training of users

Development of application Central criminal records put in place

Central criminal records in place

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Procurement of computer equipment

Training of users

Procurement of criminal, civil and commercial documents and records to constitute holdings

Documents and records given to the Ministry of Justice and the Supreme Court

Supply of books and documents

Component 2: Improve public administration efficiency

Recruitment of consultant to formulate standards

Standards for performance-based staff appraisal formulated

Standards formulated

Management of personnel and salary improved

SIGIPES used in 11 other ministries in 2006 and extended to the remaining ministries and the administration in 2007

Standards appraisal

Administrative structures and procedures rationalized Procurement of computer

equipment

Recruitment of consultants to prepare procedure manuals

Administrative and career management procedure manuals prepared

Manuals prepared

Public employee appraisal system improved

Organization of training for SIGIPES users in career and salary management ;

120 employees trained in career and salary management

Number of employees trained

Organization of training seminars in human resource management for directors in charge of human resources and MINFOPRA regional delegates

officers in charge of human resources management and MINFOPRA provincial delegates trained

Number of executives trained

Recruitment of consultants to prepare procedure manual of s

Manual of procedures for salary management prepared

Manuals prepared

Recruitment of consultants to prepare guide and organic frameworks

Methodological Guides and organic frameworks of 4 ministries prepared (MINT, MINTP, MINEDUB, MINADER)

Number of organic frameworks

Component 3:Improve public financial management

Financing of study trips and organization of training seminars

Members of Parliament and experts from the Finance and Budget (FBC) Committee of the National Assembly trained.

Number of Parliamentarians and experts trained

Capacities of Finance and Budget (FBC) Committee of the National Assembly (FBC) strengthened

PEFA Indicators: PI-27 Review of the annual Finance Bill by the Legislative power PI-28 Review of external verification

Procurement of computer hardware and equipment

FBC premises equipped with computer, office and communication equipment

Supply of equipment and material

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Procurement of documents

FBC provided with documents and an archives service

Supply of books and documents

reports by the Legislative Power

Financing of study trips and practicums on judgment and control of accounts

Judicial and Legal Officers, Court Registrars and other personnel of the Audit Court (AC) are trained in preparing the Budget act

Number of Judicial and Legal Officers trained

Audit Bench operational

PEFA Indicators: PI-26 Extended, nature and monitoring of external verification

Procurement of documents

Audit Court provided documents

Supply of books and documents

organization of international seminar on computer-aided accounting

Supreme State Audit (SSA) Experts trained in new audit and verification techniques

Number of persons trained

Internal control organs reinforced

PEFA Indicators: PI-20 Efficiency of internal control of non- salary expenditure PI-21 Efficiency of internal verification system

Recruitment of consultant to prepare standards and manuals

Verification standards and procedure manuals prepared;

Manuals and standards prepared

Financing of preparation and reproduction of report

I. 2006 Annual Verification Report on State property published by SSA

Number of reports distributed

Procurement of teaching aids and a kit for the reproduction of training documents

SSA Training Centre equipped with teaching and learning materials

Supply of material

Purchase of 57 laptops and verification software

SSA provided ICT

facilities

Supply of material

Purchase of 200 computers, 5 servers and other connexion equipment

Public Contracts Regulatory Agency (ARMP) is computerized

Supply of computer Equipment

Procurement transparency improved

Rate of procurement involving tendering

Recruitment of consultants to prepare a dematerialization platform and an electronic database management platform

ARMP data bank operational

Data base achieved

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4: Support to the intensification of the fight against corruption

Recruitment of a consultant to prepare the diagnostic study, national strategy and action plan for the fight against corruption;

Diagnostic study on corruption and anti-corruption policy prepared

Diagnostic study and policy achieved

Anti-corruption mechanisms strengthened

Rate of treatment of offences submitted to CONAC

Preparation by consultant of texts on corruption incorporating the international mechanisms and conventions in that domain;

Repressive legislative provision on corruption prepared and implementation instrument of Article 66 of the Constitution adopted

Bills prepared and Article 66 adopted

Organization of training seminars

Training of CONAC members and civil society organization personnel involved in the fight against corruption

Number of persons trained

Preparation by the consultant of an institutional framework for the National Anti-corruption Coalition

National anti-corruption coalition put in place

Formalization of coalition

Procurement of computer hardware and documents

CONAC equipped with computer hardware and documentation

Supply of equipment and books/documents

5. For each dimension of the log. frame, provide a brief assessment (up to two sentences) of the extent to which the log. frame achieved the following. Insert a working score, using the scoring scale provided in Appendix 1. If no log. frame exists, score this section as a 1 (one).

LOG. FRAME DIMENSIONS ASSESSMENT WORKING

SCORE

LOGICAL

a) provides a logical causal chain for achieving the project development objectives

The log. frame provides a logical causal chain for achieving the project development objectives. However, some indicators are not properly defined.

3

MESURABLE

b) Expresses objectives and outcomes in a way that is measurable and quantifiable.

The log sets out the objectives and outcomes in a way that is measurable and quantifiable.

4

THOROUGH c) State risks and key assumptions

The log. frame clearly states the risks and key assumptions 4

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D. OUTPUTS AND OUTCOMES I. ACHIEVEMENT OF OUTPUTS

In the table below, assess the achievement of actual vs. expected outputs for each major activity. Import the expected outputs from the log. frame in Section C. Score the extent to which the expected outcomes were achieved. Weight the scores by the activities’ approximate share of project costs. Weighted scores are automatically calculated. The overall output score must be calculated as the sum of the weighted scores. Override the calculated score, if desired, and provide justification.

MAJOR ACTIVITIES WORKING SCORE

Share of project costs in percentage

(as stated in the Appraisal Report)

Weighted Score (Automatically

generated) Expected Outputs

Actual Outputs

Intranet network in Yaoundé set up (network linking Ministry of Justice Supreme Court, Courts of Appeal, High Courts and Courts of First Instance)

Intranet network gradually set up since 2008 financed by Government

0 7.711 0.00

Judicial Administration equipped with computer and office automation

IGSJ provided with computer equipment in 2012

2 1.099 0.02

Judicial and Legal Officers trained

Achieved under the State’s budget from 2008 to 2010

2 1.735 0.03

IGSJ employees trained

Achieved under the State’s budget from 2008 to 2010

2 5.297 0.11

Prison database put in place

Data base unachieved Scanners and digital cameras procured

2 2.806 0.06

Central criminal record put in place Central record unachieved

0 1.402 0.00

Documents given to the Ministry of Justice and the Supreme Court

Achieved in 2012 4 0.676 0.03

Performance standards for results-based assessment of public employees prepared

Achieved in 2011 4 6.448 0.26

Administrative procedure and career management manuals prepared

Achieved in 2011 4 2.736 0.11

120 employees trained in career and salary management

Unachieved 0 6.369 0.00

Executives in charge of human resources management and MINFOPRA provincial delegates trained

Unachieved 0 0.988 0.00

Manual of procedures on salary management prepared

Achieved in 2011 4 1.856 0.07

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Methodological Guides and organic frameworks of 4 ministries prepared (MINT, MINTP, MINEDUB, MINADER)

Achieved in 2011 4 7.001 0.28

Parliamentarians and Experts of the National Assembly’s Finance and Budget Committee (FBC) trained

Unachieved 0 1.082 0.00

FBC premises equipped with computer, office and communication equipment

Achieved in 2011 4 2.046 0.08

FBC provided documents and an archives service Achieved in 2011 0 0.338 0.00

Judicial and Legal Officers, Court Registrars and other staff of the Audit Court (AC) are trained to prepare the Audited Budget act

Achieved 2 11.910 0.24

The Audit Court provided with documents

Achieved in 2011 4 0.338 0.01

Supreme State Audit (SSA) experts trained in new audit and verification techniques.

Training in computerized auditing unachieved. Training and further training seminars for internal auditors of ministries achieved

2 3.272 0.07

2006 Annual Verification Report on State property published by SSA

Achieved in 2007 4 0.747 0.03

SSA Training Centre equipped with teaching and learning materials

Unachieved 0 2,545 0,00

SSA provided with ICT facilities Unachieved 0 2.976 0.00

Computerization of the Public Contracts Regulatory Agency (ARMP)

Computer hardware supplied however, servers and network connection hardware not supplied

2 5.787 0.12

ARMP’s Data bank operational

The platform for the materialization and electronic management of data was designed but not operational, for want of equipment

2 11.875 0.24

Corruption diagnostic study and anti-corruption policy prepared

Achieved 4 2.706 0.11

Repressive legislative provision on corruption prepared and implementation instrument of Article 66 of the Constitution adopted

Bills prepared but not adopted

2 3.044 0.06

Training of CONAC members and personnel of civil society organizations involved in the fight against corruption

Achieved in 2012 4 1.522 0.06

National anti-corruption Coalition put in place

Achieved 4 0.304 0.01

CONAC provided ICT facilities and documentation

Achieved in 2012 4 3.382 0.14

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OVERALL OUTPUT SCORE [Score is calculated as the sum of weighted scores] 2.0

Check here to override the calculated score

Provide justification for overriding the calculated score

Insert the new score or re-enter the calculated score 2

II. ACHIEVEMENT OF OUTCOMES

1. Using available monitoring data, assess the achievement of expected outcomes. Import the expected outcomes from the log. frame in Section C. Score the extent to which the expected outcomes where achieved. The overall outcome score must be calculated as an average of the working scores. Override the calculated score, if desired, and provide justification.

ADDITIONAL OUTCOMES WORKING

SCORE Projections Achievements

Capacities of the general administration of Justice strengthened

Capacities of the general administration of Justice strengthened by partially putting in place a data exchange and training network.

2

General Inspectorate of Judicial Services reinforced (IGSJ)

General Inspectorate of Judicial Services (IGSJ) reinforced by the use of modern management tools. 3

Supreme Court strengthened The Supreme Court strengthened with training and the provision of documents. 4

Improved management of staff and salaries personnel

The management of salary personnel is improved by the use of procedures manual. 3

Administrative structures and procedures are rationalized

The procedures are improved, however, employees need training. 2

The system of appraisal of the Administration employees is improved

The system is improved with the availability of output assessment standards. 3

Capacities of the National Assembly’s Finance and Budget Committee (FBC/NA) strengthened

Parliamentarians were not trained. 0

Audit Bench operational The Audit Bench is operational and receives training and documents. 3

Internal control organs strengthened Internal organs benefitted from some training. However, they are poorly equipped and not trained in new control techniques. 2

Public procurement transparency improved Transparency has not improved significantly. The system of dematerialization of procedures is uncompleted. 2

Anti-corruption mechanism strengthened The device was considerably strengthened by the preparation of an anti-corruption strategy and awareness campaigns. 4

OVERRALL OUTPUT SCORE [Score is calculated as the sum of weighted scores]

2

Check here to override the calculated score

Provide justification for overriding the calculated score

Insert the new score or re-enter the calculated score 2

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2. Other Outcomes: Comment on the project’s additional outcomes not captured in the log. frame, including cross-cutting issues (e.g. gender).

. The project did not generate any additional outcomes as the implementation was below the expectations.

3. Risks to sustained achievements of outcomes. State the factors that affect, or could affect, long-term or sustained achievement of project outcomes. Mention if any new activity or institutional change is recommended to help sustain outcomes. The analysis should draw upon the sensitivity analysis in Annex 3, where appropriate.

Factors that could affect the sustainability of outcomes are: (i) lack of maintenance and repair of computer and office equipment; (ii) poor conservation of various documents and publications, guides and manuals of procedures obtained in the context of the project, (iii) the non-application and non-transmission of knowledge acquired during seminars, trainings and study trips; lack of refresher courses for trained personnel, non-procurement of equipment necessary for the operationalization of the dematerialization platform and ARMP electronic data management platform and the discontinuation of TFPs support.

E. PROJECT DESIGN AND READINESS FOR IMPLEMENTATION 1. Indicate the extent to which the Bank and the Borrower ensured the project was commensurate to the Borrower’s capacity to implement by designing the project appropriately and by putting in place the necessary implementation arrangements. Consider all major design aspects, such as extent to which project design took into account lessons learned from previous PCRs in the sector or the country (please cite key PCRs); whether the project was informed by robust analytical work (please cite key documents); how well Bank and Borrower assessed the capacity of the implementing agencies and/or Project Implementation Unit; scope of consultations and partnerships; economic rationale of project; and provisions made for technical assistance. [250 words maximum.] [Any additional narrative about lessons learned should be included in Annex 6: Project Narrative]

The project drew from lessons from past projects, including NGP support project. Two major lessons guided the program: (i) the need to ensure better monitoring of the project by the beneficiaries to encourage better performance in the implementation of activities; (ii) the need to discuss and validate all program measures with the authorities taking into account the country’s capacity. It is on the basis of these lessons that this program was designed. The Bank and the Borrower agreed on the implementation mechanisms (involving Inter-ministerial Supervision Committee (ISC), Technical Monitoring Committee for Economic Programs (CTS), Steering Committee comprising focal points of administrations involved in reforms implementation and PIU). The Bank and the Borrower also properly assessed the degree of consultation and partnership, as well as the economic justification of the program. However, the Executing Agency, the CTS, has not been specifically assessed concerning its ability to implement the project.

NUMBER WORDS 148

2. For each dimension of project design and readiness for implementation, provide a brief assessment (up to two sentences). Insert a working score, using the scoring scale provided in Appendix 1.

PROJECT DESIGN AND READINESS FOR

IMPLEMENTATION DIMENSIONS ASSESSMENT

WORKING SCORE

REALISM a) Project complexity is matched with country capacity and political commitment

The project was underpinned by an analysis of the country’s capacity and its political commitment. The Executing Agency’s capacity was not specifically assessed. 3

RISK ASSESSMENT AND MITIGATION

b Project design includes adequate risk analysis.

The project design took into account the risks. However, it underestimated some, including those relating to the Executing Agency’s capacity and the timeframe for the procurement of goods and services.

2

USE OF COUNTRY SYSTEMS

c) Project procurement, financial management, monitoring and/or other systems are based on those already in use by government and/or other partners.

Procurement, financial management monitoring systems and/or others were based on systems already used by Government. However, some procurement required combining the Bank’s and the Borrower’s rules and procedures thereby extending the period covered.

3

12

For the following dimensions, provide separate working scores for Bank performance and Borrower performance:

WORKING SCORE

Bank Borrower

CLARITY

d) Responsibilities for project implementation were clearly

defined.

Responsibilities for project implementation are clearly defined. See Chapter 5:Governance Reform Support Loan, sections 5.4- 5.10

4 4

PROCUREMENT READINESS

e) Necessary implementation documents (e.g. specifications, design, procurement documents) were ready at appraisal

The necessary implementation documents were not ready at appraisal, except in the case of ARMP for which ToR were available for the dematerialization platform. For the rest, during implementation, work often involved focal points who did not have the required capacity.

3 3

MONITORING READINESS

f) Indicators and monitoring plan adopted

Indicators and monitoring plan were adopted during project design. However, some indicators were lacking for a sound assessment of outcomes.

3 3

BASE LINE h) Baseline data was available or being collected during project design.

Baseline data was insufficient in the absence of appropriate indicators. 3 3

F. IMPLEMENTATION

1. State the major characteristics of project implementation with reference to: adherence to schedules, quality of construction or other work, performance of consultants, effectiveness of Bank supervision, and effectiveness of Borrower oversight. Assess how well the Bank and the Borrower ensured compliance with safeguards. [300 words maximum.] [Any additional narratives about implementation should be included at Annex 6: Project Narrative]

Overall, project implementation has been very difficult. Timeframes for project implementation were not met: the loan agreement was signed twelve (12) months after negotiations; the project was launched after 18 months; working capital, as well as the Special Procurement Committee were put in place late delaying the execution of the institutional support project; the project was extended thrice resulting in its closure thirty-six (36) months after the originally scheduled date. The list of goods and services was revised to reflect (i) the need to replace some activities rendered invalid, due to the late start of the project and (ii) requests for new activities made by beneficiaries. About 75% of consultancy services were not provided for various reasons (difficulty in providing short-lists consistent with the Bank’s requirements (2 bidders per country), no expression of interest, insufficient budget). The consultant recruited to provide training required by the Audit Bench of the Supreme Court was fully up to the task. Bank supervision, though conducted normally, was not fully satisfactory mainly because of the misunderstanding between the project manager (May 2009-June 2011) and the beneficiaries. The Borrower’s monitoring was equally unsatisfactory because COPIL’s missions were not included from the outset. These difficulties were compounded by: (i) inadequate procurement methods; and (ii) underestimation of the budgets for the implementation of some institutional support activities. GIRSP 2010 (4 months late) and 2011 audit and closing reports sent to the Bank revealed internal control environment weaknesses. Ineligible expenses identified were justified and/or reimbursed. Weaknesses identified with regard to work quality and the closing audit report, which will be reviewed and sent to the Bank.

NUMBER OF WORDS 267

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2. Comment on the role of other partners (donors, NGOs, companies, etc.). Assess the effectiveness of co-financing arrangements and donor coordination, if applicable.

The other partners, the donors played a positive role in project implementation. The World Bank funded aspects (structural and sector reforms) within its sphere of competence; the EU and Commonwealth supported MINJUSTICE for relevant aspects of their field of intervention; and the Foundation for Capacity Building in Africa provided supplementary support for the implementation of some capacity building activities and computer hardware procurement. Arguably, co-financing and coordination modalities were effective. Conversely, NGOs and companies were not very active in the project implementation.

3. Harmonization. State whether the Bank made explicit efforts to harmonize instruments, systems and/or approaches with other partners.

The Bank made explicit efforts to harmonize instruments, systems and/or approaches with other partners, with each supervision mission leading to consultation with them (IMF, Multi-donor Committee).

4. For each dimension of projection implementation, assess the extent to which to the project achieved the following. Provide a brief assessment (up to two sentences) and insert a working score, using the scoring scale provided in Appendix 1.

PROJECT IMPLEMENTATION DIMENSION ASSESSMENT WORKING

SCORE

TIMELINESS

a) Extent of project adherence to the original closing date. If number on the right is: : below 12, “4” is scored between 12.1 and 24, “3” is score between 24.1 and 36, “2” is scored beyond 36.1,”1” is scored

Difference in months between original closing date and actual closing date or date of 98% disb. rate. (generated automatically)

The project execution was greatly delayed

2

28.4

BANK PERFORMANCE

b) Bank complied with:

Environmental safeguards They were clearly specified in the appraisal report

4

Fiduciary Requirements The Bank complied with fiduciary requirements of the loan agreement.

3

Project Covenants The Bank complied with provisions of the loan agreement. 4

c) Bank provided quality supervision in the form of skills mix and practicality of solutions.

The Bank’s supervision competence was not entirely satisfactory, in terms of the skill mix. 2

d) Bank provided quality management oversight.

Bank management oversight was sometimes an obstacle because of constant obligation to obtain the Bank’s “no objection” or opinion.

2

BORROWER PERFORMANCE

e) Borrower complied with:

Environmental safeguards Overall, environmental safeguards identified in the appraisal report were respected (see measures ) 4

Fiduciary Requirements Fiduciary provisions were not always respected

1

Project Covenants The Borrower did not fully comply with the provisions of loan agreements. 3

14

f) Borrower was responsive to Bank supervision findings and recommendations

The Borrower endeavoured to implement the recommendations of the Bank’s supervision missions to the extent possible.

2

g) Borrower collected and used monitoring information for decision making

Borrower collected and used monitoring information for decision making.

2

G. COMPLETION

1. 1. IS THE PCR DELIVERED ON A TIMELY BASIS, IN COMPLIANCE WITH BANK POLICY?

Date project reached 98% disb. Rate (or closing date, if

applicable)

(automatically generated)

Date PCR was sent to pcr@afdb.org

DD/MM/YY

Difference in months

(automatically generated)

WORKING SCORE (automatically generated)

If the difference is 6 months or less, a 4 is scored. If the difference is 6.1 or

more, a 1 is scored. 1.

30/4/12 31/10/12 6.13 1

Briefly describe the PCR Process. Describe the Borrower’s and co-financier’s participation in producing the document. Highlight any major differences of opinion concerning the assessments made in this PCR. Describe the team composition and confirm whether a site visit was undertaken. Mention any major from other development partners. State the extent of field office involvement in producing the report. Indicate whether comments from Peer Reviewers were received on time (provide names and positions of Peer Reviewers). [150 words maximum]

PCR process started with a PCR preparation mission comprising the staff of the sector department (OSGE) staff and the Banks Regional Office in Cameroon. The Borrower wrote its PCR in consultation with donors. Then the Bank fielded an extensive mission to collect additional information for PCR preparation and in respect of the new PCR format that uses the current log. Frame, and which differs from that used to prepare the program. In continuation of the process, a preliminary version of the PCR will be sent to the Sector Director and peer reviewers.

NUMBER OF WORDS 92

H. LESSONS LEARNED

Summarize main lessons for the Bank and the Borrower suggested by the project’s outcomes. [300 words maximum.] [Any additional narrative about lessons learned should be included in Annex 6: Project Narrative]

The lessons that could be learned for future operations relate to (i) quality at project start-up and (ii) project implementation monitoring. Regarding quality at entry, there were weaknesses concerning cost appraisal the Executing Agency’s capacity, the procurement methods and execution timeframe for some activities. The Bank should devote attention to the following issues in future projects: - choose most suitable procurement methods at appraisal, to facilitate implementation of the Borrower’s activities; - sound cost estimates particularly for hi-tech or very technical fields (e.g. computer-aided audit, judicial verification); - project ownership by all beneficiaries right from the design phase; For implementation, start setting up the project management organs quite early (possibly ahead of time), including the Public Contracts Commission; - maintain effective communication between the Bank and the Borrower during project implementation; - recruiting auditors who meet minimum Bank requirements; and - strengthen the fiduciary mechanism with emphasis on internal control.

15

I. PROJECT RATINGS SUMMARY All working scores and ratings must be found in the relevant section in the PCR. For example, please insert the “Overall Output score” in Section D.I. in the “Achievement of Outputs” box below.

CRITERIA SUB-CRITERIA WORKING

SCORE

PROJECT OUTCOME

Achievement of outputs 2

Achievement of outcomes 2

Timeliness 2

OVERALL OUTCOME PROJECT SCORE 2

BANK PERFORMANCE

Design and Readiness

Project Objectives are relevant to country development priorities. 4

Project Objectives could in principle be achieved with the project inputs and in the expected time frame.

2

Project Objectives were consistent with the Bank’s country or regional strategy. 4

Project Objectives were consistent with Bank’s corporate priorities. 4

The log. frame presents a logical causal chain for achieving the project development objectives. 3

The log. frame present objectives and outcomes in a way that is measurable and quantifiable. 4

The log. frame states the risks and key assumptions. 4

Project capacity complexity was matched with country capacity and political commitment. 3

Project design includes adequate risk analysis. 2

Project procurement, financial management, monitoring and/or other systems were based on those already in use by government and/or other partners. 3

Responsibilities for project implementation were clearly defined 4

Necessary implementation documents (e.g. specifications, design, procurement documents) were ready at appraisal. 3

Monitoring indicators and the monitoring plan were agreed upon during design. 3

Baseline data was available or were collected during design. 3

PROJECT DESIGN AND READINESS SUB-SCORE 3

Supervision:

Bank complied with:

Environmental safeguards 4

Fiduciary Requirements 3

Project Covenants 4

Bank provided quality supervision in the form of skills mix provided and practicability of solutions.

2

Bank provided quality management oversight. 2

PCR was delivered on a timely basis 1

SUPERVISION SUB-SCORE 3

OVERALL BANK PERFORMANCE SCORE 3

BORROWER PERFORMANCE

Design and Readiness

Responsibilities for project implementation are clearly defined. 4

Necessary implementation documents (e.g. specifications, design, procurement documents) were ready at appraisal.

3

Monitoring indicators and monitoring plan are agreed upon and baseline data are available or are being collected.

3

PROJECT DESIGN AND READINESS SCORE 3

Implementation

Borrower complied with:

Environmental safeguards 4

Fiduciary Requirements 1

16

Project Covenants 3

Borrower was responsive to Bank supervision findings and recommendations. 2

Borrower collected and used monitoring information for decision-making. 2

IMPLEMENTATION SUB-SCORE 2

OVERALL BORROWER PERFORMANCE SCORE 3

J. PROCESSING

STEP SIGNATURE AND COMMENTS DATE

Sector Manager Clearance

Regional Director Clearance

Sector Director Approved

I

APPENDIX 1

Scale for Working Scores and Ratings

WORKING SCORE

EXPLANATION

4 Very Good - Fully achieved with no shortcomings

3 Good - Mostly achieved despite a few shortcomings

2 Fair- Partially achieved. Shortcomings and achievements are roughly balanced.

1 Poor - Very few achievements with extensive shortcomings

NA Not applicable

Note: The formulas are rounded up or down for decimal points. Only whole numbers are computed.

II

LIST OF ANNEXES

Obligatory Information 1. Project Costs and Financing

a. Project costs by component b. Financing by sources of funds

The project cost, net of taxes and customs duties, is estimated at UA 4.49 million. This estimate includes 3% for physical contingencies and 3% for price contingency. The costs of the various items were determined after discussions with those in charge of the different components, suppliers of goods and services and development partners. The cost estimates are summarized in Tables 2-7 below: The component relating to public financial management (control of public finance and public contracts) absorbs 44% of the basic resources of the institutional support, as against 21% for support to improved efficiency of public administration and 18% for support to improved efficiency of the judicial system. The implementation of measures for improving the judicial system, the performance of public procurement and public finance auditing contributes to the fight against corruption, which explains why only 7% of the resources are directly devoted to the component “intensifying the fight against corruption”. Implementation and auditing absorb only 4% of the resources.

Table 1: Project Cost Estimates by Component

Components CFAF million UA million

% of total % in FC FC LC TOTAL FC LC TOTAL

Support to judicial system 186.24 437.57 623.81 0.24 0.57 0.82 18% 30%

Support to public administration 7.2 702.53 709.73 0.01 0.92 0.93 21% 1%

Support to public financial management

Support to FBC/NA 12.45 293.88 306.33 0.02 0.39 0.4 9% 4%

Support to AB 182.88 179.25 362.13 0.24 0.24 0.48 11% 51%

Support to SSA 172.7 126.5 299.2 0.23 0.17 0.39 9% 58%

Support to ARMP 299.8 222.4 522.2 0.39 0.29 0.69 15% 57%

Support to the fight against corruption

0 254.25 254.25 0 0.33 0.33 7% 0%

Functioning 0 116.2 116.2 0 0.15 0.15 3% 0%

Audit 36 0 36 0.05 0 0.05 1% 100%

Baseline cost 897.27 2332.58 3229.85 1.18 3.06 4.24 94% 28%

Contingencies (6%) 53.84 139.95 193.79 0.07 0.18 0.25 6% 6%

GRAND TOTAL 951.11 2472.53 3423.64 1.25 3.24 4.49 100 28%

Given the urgent need to build technical capacities, 33% of project resources will be devoted to training as against 27% for consultants and 23% for equipment. Functioning of the FBC/NA, CONAC and in respect of project implementation and auditing absorb 12% of resources.

III

Table 2: Project Cost Estimates by Expenditure Category

FC LC TOTAL FC LC TOTAL ADF % in FC % of total

CFAF Million AU Million

Services 578.02 1460.23 2038.25 0.76 1.92 2.67 2.58 57% 60%

Consultants 269.1 640.28 909.38 0.35 0.84 1.19 1.19 30% 27%

Training 308.92 819.95 1128.87 0.41 1.08 1.48 1.39 27% 33%

Goods 283.25 510.35 793.6 0.37 0.67 1.04 0.98 36% 23%

Functioning 0 362 362 0 0.48 0.48 0.17 0% 11%

Audit 36 0 36 0.05 0 0.05 0.05 100% 1%

Sub total 897.27 2332.58 3229.85 1.18 3.06 4.24 3.77 28% 94%

Contingencies (6%) 53.84 139.95 193.79 0.07 0.18 0.25 0,23 6% 6%

GRAND TOTAL 951.11 2472.53 3423.64 1.25 3.24 4.49 4 28% 100%

About (64%) of project resources for institutional support will be devoted financing activities to be undertaken in 2007. The remaining 36% of resources will be used during 2008. The Bank will see to rapid project start-up and ensure that the planned activities are implemented with maximum efficiency in order to attain the programmed project objectives.

Table 3: Schedule of Expenditure by Component

Components CFAF Million UA Million

2007 2008 TOTAL 2007 2008 TOTAL

Support to judicial system 226.2 397.61 623.81 0.3 0.52 0.82

Support to public administration 297.5 412.23 709.73 0.39 0.54 0.93

Support to public finance management

Support to FBC/NA 203.55 102.78 306.33 0.27 0.13 0.4

Support to AB 268.88 93.25 362.13 0.35 0.12 0.48

Support to SSA 248.95 50.25 299.2 0.33 0.07 0.39

Support to ARMP 522.2 0 522.2 0.69 0 0.69

Support to the fight against corruption 180.2 74.05 254.25 0.24 0.1 0.33

Functioning 88.5 27.7 116.2 0.12 0.07 0.15

Audit 18 18 36 0.02 0.02 0.05

Sub total 2053.98 1175.87 3229.85 2.66 1.58 4.24

Contingencies (6%) 123.24 70.55 193.79 0.15 0.1 0.25

GRAND TOTAL 2177.22 1246.42 3423.64 2.82 1.67 4.49

IV

Table 4:Schedule of Expenditure by Category

Categories CFAF Million UA Million

2007 2008 TOTAL 2007 2008 TOTAL

Services 1314.78 723.47 2038.25 1.73 0.95 2.67

Consultants 522.85 386.53 909.38 0.69 0.51 1.19

Training 791.93 336.94 1128.87 1.04 0.44 1.48

Goods 501.3 292.3 793.6 0.66 0.38 1.04

Functioning 219.9 142.1 362 0.25 0.22 0.48

Audit 18 18 36 0.02 0.02 0.05

Sub total 2053.98 1175.87 3229.85 2.66 1.58 4.24

Contingencies (6%) 123.24 70.55 193.79 0.15 0.1 0.25

GRAND TOTAL 2177.22 1246.42 3423.64 2.82 1.67 4.49

The project will be jointly financed by the Bank and the Government of Cameroon. The Bank will finance UA million, which is 89% of total cost. The Bank loan will cover 100% of foreign exchange expenditure and 85% of local currency expenditure. The financing concerns all expenditure categories except that of the functioning of FBC/NA. The Government’s contribution stands at CFAF 378 million, representing 11% of total project cost and will be used to finance the remaining local currency expenditure (not covered by Bank financing). The cost borne by the Government will mainly concern: (i) rental of halls and local transportation for training purposes; (ii) functioning of the FBC/NA, notably salaries of experts and support personnel, rental of offices; (iii) maintenance of equipment supplied to ARMP, DSA for users to be trained for the functioning of the platforms acquired for the public contracts system and the cost of high speed connection of ARMP; as well as (iii) part of the functioning for the implementation of the project.

Table 5: Financing Sources

FINANCING SOURCES

CFAF Million UA Million

FC LC TOTAL FC LC TOTAL %

Bank 951.11 2094.53 3045.64 1.25 2.75 4 88.96%

Government 0 378 378 0 0.49 0.49 10.90%

GRAND TOTAL 951.11 2472.53 3423.64 1.25 3.24 4.49 100.00%

Table 6 : Schedule of Expenditure by Financing Source

Source CFAF million UA million

2007 2008 TOTAL 2007 2008 TOTAL

Government 210.53 146.07 356.6 0.28 0.19 0.47

Bank 1843.45 1029.8 2873.25 2.38 1.39 3.77

Baseline Cost 2053.98 1175.87 3229.85 2.66 1.58 4.24

Contingencies (6%) 123.24 70.55 193.79 0.15 0.1 0.25

GRAND TOTAL 2177.22 1246.42 3423.64 2.82 1.67 4.49

V

2. Bank Inputs. List key team members, and their specific contributions, during preparation and supervision. Provide a consolidated list of Preparation, Supervision and Completion Missions in chronological order. Provide the date and ratings of the last supervision report. The project was prepared and appraised by Mr BERNOUSSI Chief Economist and Mr KOUSSOUBE Lead Specialist in the Central Africa Regional Department (ORCE). It was implemented and supervised by Mr. NZAPAYEKE, Economist, OSGE1 (2008), Ms. ALPERTE, Financial Administration Specialist, OSGE1 (2009-June 2011), Mr. OLLAME, Operations Assistant OSGE1 (July-December 2011) and Mr. EKPO (January-April 2012). Advice and guidance were received throughout the implementation from Mr. Racine Kane, Resident Representative at the Bank Regional Office in Cameroon (CMFO), Mr. TOUNKARA SAMBA BOCARY, Chief Country Programme Officer, CMFO, with contributions from Mr. Clement AHOSSI, Regional Procurement Coordinator, ORPF1, Mr. Sekou KEITA, Regional Financial Management Coordinator, ORPF2 (from December 2011), Mr Dénis TANKOUA, Economist, CMFO, Ms. Cathy DJEUFO, Procurement Officer, CMFO and Mr. André KAMGA, Disbursement Assistant OCFP CFMO. The last supervision was carried out on 1 March 2012 and it awarded an average score of 1.69 and placed the project in the PP category.

3. Economic Analysis (ERR) and Financial Analysis, where appropriate Recalculate the economic rates of return based on costs and benefits at completion, and compare with appraisal estimates. Distribute by component, as appropriate. Analyse the sensitivity of the ERR to key assumptions. Present a financial analysis for project beneficiary.

ERR is inapplicable because the project was suspended.

4. Procurement Plan. Please attach the most recent Procurement Plan

5. List of supporting documents

Optional

6 Project Narrative. Key factors not covered in the main template that affected the design and implementation of the project. Such factors, both positive and negative, could include: climate and the weather, political changes, contractual or personal matters, technical issues, procurement processes and interactions with other partners. If any of these factors is

significant enough to affect the evaluation ratings, it should be mentioned in the template with a reference to this annex.