Document of

The World Bank

FOR OFFICIAL USE ONLY

Report No: PAD2149

INTERNATIONAL DEVELOPMENT ASSOCIATION

PROJECT APPRAISAL DOCUMENT

ON A
PROPOSED GRANT

IN THE AMOUNT OF 21.4 MILLION

(US$29 MILLION EQUIVALENT)

TO THE

REPUBLIC OF TOGO

FOR A

FEBRUARY 28, 2017

Social Protection & Labor

AFRICA

This document is being made publicly available prior to Board consideration. This does not imply a
presumed outcome. This document may be updated following Board consideration and the updated
document will be made publicly available in accordance with the Bank’s policy on Access to
Information.
 CURRENCY EQUIVALENTS

(Exchange Rate Effective January 31, 2017)

Currency Unit = Francs CFA

Francs CFA 619 = US$1
US$1.35 = SDR 1

FISCAL YEAR
January 1 - December 31

Regional Vice President: Makhtar Diop

Country Director: Pierre Frank Laporte
Senior Global Practice Director: Michal J. Rutkowski
Practice Manager: Stefano Paternostro
Task Team Leader(s): John Van Dyck, Gbetoho Joachim Boko
 ABBREVIATIONS AND ACRONYMS

AGAIB African Development Bank

ANADEB Community Development Support Agency
CFA African Financial Community
CPF Country Partnership Framework
CVD Village Development Committees
DPAS Regional Social Affairs Directorate
DRAS Prefectural Social Affairs Directorate
ESMF Environmental and Social Management Framework
CR Regional office (of ANADEB)
FM Financial Management
GDP Gross Domestic Product
GMT Grassroots Management Training
GoT Government of Togo
IDA International Development Association
IEG Independent Evaluation Group
IFR Interim Financial Report
IGF General Inspectorate of Finance
INSEED National Institute for Statistics and Economic and Demographic Studies
IPF Investment Project Financing
ISN Interim Strategy Note
LICUS Low Income Countries Under Stress
M&E Monitoring and Evaluation
MDBAJEJ The Ministry of Community Development, Artisanship, Youth, and Youth
Employment
MDG Millennium Development Goal
MIS Management Information System
PCR Primary Completion Rate
PDC Community Development Project
PDCplus Community Development and Safety Nets Project
PDO Project Development Objective
PERI Education and Institutional Strengthening Project
PIM Project Implementation Manual
PIU Project Implementation Unit
PMT Proxy-Means Test
PPP Purchasing Power Parity
PRADEB Community Development Support Program
PSAEG Economic Activity Support for Groups Project
PSDCC Decentralized Community driven Services Project
PSMICO Community Infrastructure Micro-project Support Program
 PTA Parent Teacher Association
PUDC Emergency Community Development Project
PURP Emergency Program for Poverty Reduction
QUIBB Basic Wellbeing Indicators Questionnaire
RAP Resettlement Action Plan
RCT Randomized Control Trial
RDD Regression Discontinuity Design
RZ Head of Zone (of the Ministry of Social Affairs, Women’s Promotion and
Alphabetization)
SCAPE Strategy for Boosting Growth and Promoting Employment
SCD Strategic Country Diagnostic
SDG Sustainable Development Goals
SNBSP Safety Nets and Basic Services Project
SORT Systematic Operations Risk-Rating Tool
SYSCOHADA Accounting System of the Organization for the Harmonization of Business
Law in Africa
UN United Nations
UNDP United Nations Development Program
UNICEF United Nations Children Fund
WB The World Bank
 The World Bank
Safety Nets and Basic Services Project (P157038)

BASIC INFORMATION

Is this a regionally tagged project? Country(ies) Lending Instrument

No Investment Project Financing

[] Situations of Urgent Need of Assistance or Capacity Constraints

[] Financial Intermediaries
[] Series of Projects

Approval Date Closing Date Environmental Assessment Category

21-Mar-2017 31-Dec-2020 B - Partial Assessment

Bank/IFC Collaboration
No

Proposed Development Objective(s)

The objective of the project is to provide poor communities and households with greater access to basic socio-
economic infrastructure and social safety nets.

Components

Component Name Cost (US$, millions)

Component 1: Infrastructure Sub-projects 8.40

Component 2: Social safety nets 15.00

Component 3:Capacity building and project management 5.60

Organizations

Borrower : Republic of Togo

Implementing Agency : Agence Nationale d'Appui au Developpement a la Base (ANADEB)

PROJECT FINANCING DATA (IN USD MILLION)

Page 1 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

[ ] [ ] IDA Credit [ ] IDA Grant [ ] Regional [ ] Trust

Counterp Projects Funds
art [ ] Crisis Response [ ] Crisis Response Window [ ] Parallel
Funding Window Window Financing
[ ] IBRD
[ ] Regional Projects
Window

Total Project Cost: Total Financing: Financing Gap:

29.00 29.00 0.00

Of Which Bank Financing (IBRD/IDA):

29.00

Financing (in US$, millions)

Financing Source Amount

IDA Grant 29.00

Total 29

Expected Disbursements (in US$, millions)

Fisca
l 2017 2018 2019 2020 2021
Year

Ann
0.83 6.63 8.29 8.29 4.97
ual
Cumu
0.83 7.46 15.74 24.03 29.00
lative

INSTITUTIONAL DATA

Practice Area (Lead)

Social Protection & Labor

Page 2 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

Contributing Practice Areas

Education
Health, Nutrition & Population
Water

Gender Tag

Does the project plan to undertake any of the following?

a. Analysis to identify Project-relevant gaps between males and females, especially in light of country gaps
identified through SCD and CPF

b. Specific action(s) to address the gender gaps identified in (a) and/or to improve women or men's
empowerment

c. Include Indicators in results framework to monitor outcomes from actions identified in (b)

SYSTEMATIC OPERATIONS RISK-RATING TOOL (SORT)

Risk Category Rating

1. Political and Governance Substantial
2. Macroeconomic Substantial
3. Sector Strategies and Policies Moderate
4. Technical Design of Project or Program Moderate
5. Institutional Capacity for Implementation and Sustainability Substantial
6. Fiduciary Substantial
7. Environment and Social Moderate
8. Stakeholders Low
9. Other
10. Overall Moderate

COMPLIANCE

Page 3 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

Policy
Does the project depart from the CPF in content or in other significant respects?
[] Yes [] No

Does the project require any waivers of Bank policies?

[] Yes [] No

Safeguard Policies Triggered by the Project Yes No

Environmental Assessment OP/BP 4.01

Natural Habitats OP/BP 4.04
Forests OP/BP 4.36
Pest Management OP 4.09
Physical Cultural Resources OP/BP 4.11
Indigenous Peoples OP/BP 4.10
Involuntary Resettlement OP/BP 4.12
Safety of Dams OP/BP 4.37
Projects on International Waterways OP/BP 7.50
Projects in Disputed Areas OP/BP 7.60

Legal Covenants

Sections and Description

Not later than three (3) months after the Effective Date, the Recipient and the Project Implementing Entity shall
adopt the Project Implementation Manual in accordance with the provisions of Section 1.C of Schedule 2 of the
Financing Agreement.

Sections and Description

Not later than three (3) months after the Effective Date, the Project Implementing Entity shall recruit for each
ANADEB Regional Office: a regional Project coordinator, an infrastructure specialist with procurement experience, a
safety nets specialist, a grassroots management training specialist and an administrative accountant.

Sections and Description

To carry out procurement under the Project, the Project Implementing Entity shall, at all times during Project
implementation, maintain the following: (i) a procurement specialist with qualifications, experience and terms of

Page 4 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

reference acceptable to the Association, (ii) a Procurement Commission; and (iii) a Procurement Oversight
Commission.

Conditions

Type Description
Effectiveness The Subsidiary Agreement has been executed on behalf of the Recipient and the
Project Implementing Entity.

Type Description
Effectiveness The Project Implementing Entity has established the ANADEB Project Unit and
appointed all key staff as referred to in Section IA 1 (b) of the Schedule to the
Project Agreement.

Type Description
Disbursement No withdrawal shall be made for payment of Cash Transfers under Category (3)
unless the Project Implementing Entity has: (A) hired the Financial Agent in
accordance with Section I.D of the Schedule to the Project Agreement; (B) issued a
complete list of Target Households eligible to receive Cash Transfers in accordance
with the eligibility criteria set forth in the Project Implementation Manual, verified
by an independent expert appointed under Section I.H of the Schedule to the
Project Agreement, and in a manner satisfactory to the Association (the list may be
updated from time to time with the prior consultation and agreement of the
Association); and (C) the Recipient and the Project Implementing Entity have
adopted the Project Implementation Manual in accordance with the provisions of
Section 1.C of Schedule 2 to the Financing Agreement

Type Description
Disbursement No withdrawal shall be made for payment of Sub-project Grants under Category
(2) unless the Recipient and the Project Implementing Entity have adopted the
Project Implementation Manual in accordance with the provisions of Section 1.C of
Schedule 2 to the Financing Agreement.

PROJECT TEAM

Page 5 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

Bank Staff
Name Role Specialization Unit
Team Leader(ADM
John Van Dyck GSP07
Responsible)
Gbetoho Joachim Boko Team Leader GSP07
Procurement Specialist(ADM
Mathias Gogohounga GGO07
Responsible)
Financial Management
Alain Hinkati GGO26
Specialist
Abdoul Ganyi Bachabi
Environmental Specialist GEN07
Alidou
Abdoul Wahabi Seini Safeguards Specialist GSU01
Armande Tatiana S.
Team Member AFMTG
Mensah
Diego Angel-Urdinola Team Member GSP05
Mariam Denise Brain Team Member GSP01
Matthieu Louis Bonvoisin Counsel LEGAM
Nadia Mireille Zenia
Team Member AFMTG
Amoudji Agnegue
Pamela Mulet Team Member GED07

Extended Team
Name Title Organization Location

Page 6 of 5640
The World Bank
Safety Nets and Basic Services Project (P157038)

TOGO

TABLE OF CONTENTS

I. STRATEGIC CONTEXT......................................................................................................10
A. Country Context...............................................................................................................10
B. Sectoral and Institutional Context....................................................................................10
C. Higher Level Objectives to which the Project Contributes...............................................12
II. PROJECT DEVELOPMENT OBJECTIVES..............................................................................13
A. PDO.................................................................................................................................. 13
B. Project Beneficiaries.........................................................................................................13
C. PDO-Level Results Indicators............................................................................................14
III. PROJECT DESCRIPTION....................................................................................................14
A. Project Components.........................................................................................................14
B. Project Cost and Financing...............................................................................................18
C. Lessons Learned and Reflected in the Project Design......................................................18
IV. IMPLEMENTATION..........................................................................................................19
A. Institutional and Implementation Arrangements.............................................................19
B. Results Monitoring and Evaluation.................................................................................. 21
C. Sustainability.................................................................................................................... 22
D. Role of Partners............................................................................................................... 22
V. KEY RISKS........................................................................................................................23
A. Overall Risk Rating and Explanation of Key Risks.............................................................24
VI. APPRAISAL SUMMARY....................................................................................................24
A. Economic and Financial (if applicable) Analysis................................................................24
B. Technical.......................................................................................................................... 26
C. Financial Management.....................................................................................................26
D. Procurement.................................................................................................................... 32
Cost....................................................................................................................................................39
E. Social (including Safeguards)............................................................................................39
F. Environment (including Safeguards).................................................................................40

Page 7 of 5640
The World Bank
Safety Nets and Basic Services Project (P157038)

G. Other Safeguard Policies..................................................................................................40

H. World Bank Grievance Redress........................................................................................40
VII. RESULTS FRAMEWORK AND MONITORING......................................................................42

Page 8 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

I. STRATEGIC CONTEXT

A. Country Context

1. Togo is one of the smaller countries in Africa, with an estimated land surface area of 56,600 square km
and an estimated population of 7.3 million with an annual population growth of about 2.6 percent. After
gaining independence in 1960, Togo’s per capita GDP rose from US$272 (in 1960) to US$534 (in 1980) (2005
PPP). However, per capita income in 1980 represented Togo's peak, and Togo has now fallen behind many
previously poorer countries in both living standards and social indicators. Togo’s ranking in the UN’s Human
Development Index has fallen to 162nd out of 188 countries in 2015, and extreme poverty ranks among the
highest in Africa at over 28 percent.

2. As Togo's average incomes have declined, the estimated poverty headcount rate rose -- from 32.8 in
1987 to 61.7 percent in 2006 (World Bank 1996, QUIBB 2006). Growth over the past decade, averaging nearly
5.5 percent per year, has been associated with a decline in the poverty rate to 55.1 percent in 2015.
Nonetheless, without a rapid acceleration of poverty reduction, Togo will remain wide of the target with
respect to the Sustainable Development Goals (SDGs) and the World Bank's Twin Goals.

3. Access to basic services in Togo has improved over the past years as the Government increased its social
spending, but remains far from what is required to achieve the SDGs. For example, access to potable water
increased by eleven percentage points between 2006 and 2015, but still barely seven in ten Togolese on
average have access. In rural areas, as in other sectors, the situation is more difficult, with less than five in ten
having access to potable water.

4. While Togo enjoyed strong economic growth averaging over 5% per year between 2012 and 2015, the
macroeconomic situation has worsened, with increased indebtedness and an increasing fiscal deficit. Economic
growth between 2012 and 2015 was mainly fueled by strong public investments in infrastructure, but also good
performance in the agricultural sector. However, public investment is expected to slow as public debt reached
74.5 percent of GDP in 2015, while the fiscal deficit was 7.8 percent. In January 2017, Togo initiated discussions
on a new program with the International Monetary Fund (IMF) under an Enhanced Credit Facility.

B. Sectoral and Institutional Context

5. Despite a reduction to 58.7 percent in 2011 and 55.1 percent in 2015, poverty remains a widespread
phenomenon that is especially severe in rural areas. Indeed, about seven out of ten rural households (69
percent) were living under the poverty line in 2015. At the same time, the contribution of rural populations to
the national poverty stood at 78.9 percent between 2006 and 2015. On average, female-headed households
are hit harder (57.5 percent) than male-headed households (54.6 percent). Moreover, poverty has increased in
the capital city of Lomé and its periphery from 28.5 percent to 34.3 percent between 2011 and 2015, as poorer
households moved from rural areas to the outskirts of the city in search of better economic and job
opportunities. Extreme poverty remains of concern, especially in rural areas, despite a decline between 2011

Page 9 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

and 2015. Overall, extreme poverty decreased from 30.4 percent in 2006 to 28.7 percent in 2015, compared to
around 15 percent in neighboring countries (except for Niger). Despite some improvement, the situation in
rural areas is of great concern, as four in ten households live below the extreme poverty line. Along with
extreme poverty, inequality remains high, as the Gini index was 0.380 in 2015, a slight decrease from its 2011
level (0.393).

6. The Government of Togo has laid out its development priorities in the Accelerated Growth and
Employment Promotion Strategy (SCAPE 2013-2017). Four priorities were identified in the SCAPE: (i) the
acceleration of economic growth, (ii) the promotion of employment and social inclusion; (iii) the strengthening
of governance; and (iv) the reduction of regional disparities and community development (développement à la
base). Five strategic axes have been identified to achieve the priorities: (i) development of high growth
potential sectors; (ii) strengthening of economic infrastructure; (iii) development of human capital, social
protection and employment; (iv) strengthening of governance; and (v) promotion of participative, balanced and
sustainable development. With the SCAPE expiring in 2017, the Government launched in early 2016 the
preparation of a five-year National Development Plan (Plan national de développement – PND) for the period
2018-2022 which will replace the SCAPE and guide government’s action towards reducing poverty and
inequalities. The process is still ongoing, but priorities of the PND focus on increasing access to basic services
with the objective of reducing poverty, as the plan fully endorses the Sustainable Development Goals (SDGs).

7. Community development not only figures prominently in SCAPE, but also is further elaborated in a
National Grassroots Development Policy. The Policy which was adopted in 2012 has the objective of providing
each community in Togo a minimum of socio-economic basic services, such as primary education, health care,
water and sanitation, electricity, social protection, and income generating activities. The Policy has guided the
Government’s actions towards reducing poverty and increasing income generating opportunities for the
poorest communities. The Government created the National Community Development Support Agency
(ANADEB) to spearhead all grassroots development initiatives and ensure the implementation of the Policy.
Since its creation in 2013, ANADEB has launched several projects and programs to that end. Among the most
important are the : (i) Community Infrastructure Micro-project Support Program (PSMICO) supporting the
provision of basic community infrastructure ; (ii) Community Development Project in Urban Zones(PDC-ZU)
focused on urban settings; and (iii) Economic Activity Support for Groups Project (PSAEG), supporting income
generating activities of organized economic groups in rural areas. In the same vein, the Community
Development Support Program (PRADEB) was launched in 2014 with support from the Togolese Government
and the West African Development Bank (Banque Ouest-Africaine de Développement – BOAD). The objective of
the PRADEB is to contribute to poverty reduction and improve living conditions in in targeted communities.
Except for the PRADEB which has a substantial budget of about 12 million dollars over five years, most of the
other programs and projects are small in scale. Separately, the Government and the UNDP have developed an
Emergency Community Development Project (PUDC) which aims to support the increased use of community
approaches in implementing a range of government investments.

8. The Government’s commitment to improve access to basic services has been translated into several
other policies and programs, among which, the 2012-2015 Health Sector Development Plan (Plan national de
développement sanitaire – PNDS 2011-2015), the Education Sector Plan (Plan sectoriel de l’éducation 2010-

Page 10 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

2020). These policies are largely endorsed by most donors, who support their implementation. The preparation
of a new PNDS over the period 2016-2022 was recently launched.

9. Despite the commitment of the Government to expand provision of basic services, the challenge
remains important. Togo did not achieve many of the millennium development goals (MDGs). Only six in ten
households have access to potable drinking water (the situation in rural areas is worse, with less than five in
ten households having access). There were about 6,500 inhabitants per health care center on average in Togo
and 1,500 inhabitants per hospital bed in 2013. In education, the primary completion rate (PCR) has improved
in recent years (78 percent in 2013 vs. 69.4 percent in 2006) but progressed at a slower rate than needed to
achieve the Millennium Development Goal related to universal primary completion. The quality of school
infrastructure is low: in 2012, about 20 percent of classrooms were constructed in traditional, non- durable
materials, and most of the classrooms on cement foundations needed rehabilitation.

10. The central government lacks the capacity and resources to scale up basic service delivery rapidly, and
the decentralization that is embodied in the Constitution has not yet been implemented. In this context, one
important way in which the Government aims to enhance its capacity to deliver services is through
empowering local communities to execute small-scale development projects. World Bank-financed
community-driven interventions have had a good record of success since the World Bank re-engaged with Togo
in 2004, first through the LICUS TF-funded Emergency Program for Poverty Reduction (PURP) (2005-2009), and
later with the Community Development Project (PDC) (2008-2013) and the Community Development and
Safety Nets Project (PDCplus) (2012-2017). Furthermore, the Education and Institutional Strengthening Project
(PERI) (2010-2014) and its successor, PERI II (2015-2018) have used the community-driven approach for rural
school construction. PERI developed and successfully implemented a system (Grassroots Management Training,
GMT) relying on training of trainers to empower communities for service delivery. The GMT approach allows
community associations to carry out the entire project cycle for the construction of a primary school. This
approach was also launched under the Community Development and Social Safety Nets Project (PDCplus) in
2015, which had previously trained communities through local NGOs.

11. Social safety nets are an increasing priority for the Government, and important progress has been made
in the social protection sector in recent years. Under the PDC, community- driven school feeding began in 2008
as a response to the food, fuel, and financial crisis, followed by labor intensive public works in 2010. These
activities continued under PDCplus which, in partnership with the Government of Japan and UNICEF, also
introduced a program of conditional cash transfers targeted toward mothers of young children in the regions of
Kara and Savanes. These three programs constitute the first blocks of a national safety nets system, which is an
integral part of the social protection policy that the Government has been elaborating with the technical and
financial support of donors (especially the World Bank, UNICEF, UNDP and ILO). Government has signaled its
ownership of these programs by co-financing the school feeding and cash transfer components, and launching
its own labor-intensive public works program in urban areas.

C. Higher Level Objectives to which the Project Contributes

12. A new Country Partnership Framework (CPF) for the World Bank’s support to Togo is under preparation,
building on a Systematic Country Diagnostic (SCD) which examines the main constraints and opportunities to

Page 11 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

accelerate inclusive and sustainable growth and reduce poverty. The SCD notes that a fundamental constraint
to reducing poverty is low effectiveness in setting policy priorities for, and delivering, public goods and services.
The draft CPF aims to help Togo to pave the way to a more sustainable and inclusive growth, led both by a
more dynamic private sector and more effective government policies, public investments, and services. Under
the draft CPF’s second Focus Area on Economic and social inclusion, the World Bank will aim to support
improved social and basic infrastructure services, and improved incomes and safety nets for the most
vulnerable. The operation is also in line with the most recent World Bank strategy for Togo, the Interim
Strategy Note (ISN) covering FY 12-13. The ISN has three main objectives: (i) deepening the economic recovery
process and promoting sustainable development; (ii) supporting economic governance and transparency; and
(iii) addressing urgent poverty reduction and social needs. The proposed project will contribute primarily to the
third objective, and in particular to outcome 3.1 “Improved access of communities to basic social and local
development services.” The project is also in line with the 2011 World Bank strategy for Africa, which has
“Vulnerability and resilience” as its second pillar.

13. The SCAPE (2013-2017), the Government’s poverty reduction strategy, contains five pillars. This project
is closely aligned with the third pillar, “Development of Human Capital, Social Protection, and Jobs.” The
strategy calls for increased construction of schools, water points, and other basic services infrastructure, as well
as increased coverage of school feeding and cash transfer programs for the poor and vulnerable.

II. PROJECT DEVELOPMENT OBJECTIVES

A. PDO

The objective of the project is to provide poor communities and households with greater access to basic socio-
economic infrastructure and social safety nets.

B. Project Beneficiaries

14. All components of the project will seek to benefit the poorest communities and households in all five
regions of Togo. For the infrastructure component, resources will be allocated proportionally to regions
according to the size of their population with incomes under the poverty line. Beneficiary communities will be
targeted up front based on an index measuring their poverty and/or access to basic service infrastructure,
depending on data availability. For the school feeding sub-component, beneficiaries would be primary school
students in schools in targeted poor geographic areas. For the cash transfer sub-component, households will
be targeted using the national targeting strategy for the poorest adopted by the Togolese Government in
December 2015. This strategy is based on community targeting with verification through a proxy means test
(PMT) survey.

15. In total it is expected that about 131,000 individuals will benefit from the project.

Page 12 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

C. PDO-Level Results Indicators

16. The project's performance in achieving its development objective would be measured through the
following key outcome indicators:

- Direct project beneficiaries (number), of which female beneficiaries (percentage) (core);

- Students enrolled in rehabilitated or constructed schools under the project (number);
- People in rural areas provided with access to Improved Water Sources under the project
(number);
- Community infrastructures functioning one year after completion (percentage);
- Beneficiaries of Safety Nets programs (number) (core); disaggregated by:
a. Beneficiaries of Safety Nets programs – Female (number) (core)
b. Beneficiaries of Safety Nets programs -- Unconditional cash transfers (number) (core)
c. Beneficiaries of Safety Nets programs -- School feeding programs (number) (core)

III. PROJECT DESCRIPTION

A. Project Components

17. The project will focus on continuing and strengthening the community infrastructure and safety net
program started under PDC and PDCplus. By placing an increasing focus on strengthening country systems, the
project seeks to help Togo make a step forward in how it supports safety nets and access to basic services for
the poor. The project will support the building of national systems for targeting poor households and storing
household information in a national social registry, which would be expected to be used across multiple
programs. The project will also support country systems by shifting the responsibility for implementation of the
project from the dedicated project implementation unit (PIU) that was used under PDC and PDCplus to a
government agency, the National Agency for Grassroots Development (National Community Development
Support Agency – ANADEB). Finally, the project will support the development of a national multi-program
system of community capacity building around the Grassroots Management Training (GMT) approach.

18. In addition, the project is designed to be less complex than its predecessors, the PDC and the PDCplus.
Whereas the PDCplus supported five separate interventions, the project is proposed to be streamlined to
include only three main types of operational interventions: i) basic socio-economic infrastructure; ii) school
feeding; and iii) cash transfers. The other two activities supported under PDC and PDCplus, income generating
activities and labor-intensive public works, will be supported under a separate youth employment operation.

Page 13 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

Component 1: Infrastructure Sub-projects (US$8.4 million)

19. The objective of this component will be to support the rehabilitation and construction of basic
infrastructure in targeted communities, in order to increase access to basic socio-economic services. Eligible
community sub-projects will include: a) primary schools and literacy centers; b) health infrastructure such as
primary care centers or community pharmacies; c) water points and water retention infrastructure; d)
construction or rehabilitation of secondary road infrastructure; and e) market infrastructure. Sub-projects will
include physical infrastructure and accompanying support to ensure operability and quality of service such as
school desks and chairs, health equipment and supplies, and other similar items.

20. The component will finance about 200 basic infrastructure micro-projects in all of the five regions of the
country. Micro-projects are expected to have an average value of about US$40,000. Implementation of
activities at the community/village level will be based on the principles of the community-driven development
(CDD) approach, in which targeted communities will select, plan and implement their subprojects.

21. Targeting will follow a two-step process. First, project resources will be divided among regions
according to each region’s contribution to national poverty. Second, in order to target at the community level,
the World Bank will work with the National Institute for Statistics and Economic and Demographic Studies
(Institut national de la statistique et des études économiques et démographiques -- INSEED) to create a
composite index measuring lack of access to basic socio-economic infrastructure (or a similar indicator,
depending on data availability), since poverty data does not exist at the level of each village. Villages will be
ranked in the order of their lack of access to basic infrastructure and selected up to the limit of available
resources for each region.

Component 2: Social safety nets (IDA US$15 million)

22. The main objective of this component is to support increased access to safety nets (school feeding and
cash transfers) among the poorest communities and households in Togo.

Sub-component 2.1: School feeding (US$5 million)

23. This sub-component aims to support the access of children in the poorest communities of Togo to
regular school meals, which is in turn expected to increase attendance and retention in schools in the targeted
areas. The sub-component will continue for two school years the school feeding program previously supported
under the PDC and PDCplus, with IDA resources covering the 164 beneficiary schools supported under PDCplus.
These schools were identified on the basis of a poverty map which measured poverty at the canton level, with
all villages in the poorest cantons having been selected for the program. The project thus expects to reach
about 38,000 students to whom a hot meal will be offered every school day. Given the amount of resources
available for the sub-component, it will be implemented for two school years. In the meantime technical
assistance will be provided to the Government to identify resources to continue supporting the school feeding
program after resources of the sub-component are exhausted.

24. The approach of the school feeding program is based on the existing system of village women who
prepare and distribute meals under the aegis of the Parent -Teacher Association (PTA) and with support and
supervision from trained and experienced local NGOs. All food is purchased on the local market. This system is

Page 14 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

well-tested and reasonably efficient, is far less expensive than building and running formal canteens, and
generates additional income that remains in the community. The World Bank and Government will evaluate the
current unit cost of 165 FCFA per student/day to see if it remains sufficient to cover a full meal plus a piece of
fruit. Twice a year, deworming of all school children covered will be provided at the cost of 50 CFA per student
per year.

25. The Government has earmarked 1 billion CFA Francs (US$1.7 million) in co-financing for the PDCplus
school feeding program each year for the past three years. For the proposed project, it is anticipated that the
Government would commit the same level of resources for the next two years, and then take over the full
financing of the program following the end of IDA financing.

Sub-component 2.2: Cash transfers (IDA US$10.0 million)

26. The aim of this sub-component is to increase income and consumption of targeted households and thus
increase their ability to cope with shocks. This component will build on the experience of the implementation
of a pilot conditional cash transfer program under PDCplus, but with a focus on a broader group of
beneficiaries. The PDCplus pilot program targeted pregnant mothers and children between 0-24 months of age,
limiting its potential for application to all poor households. The pilot also operated in tandem with a UNICEF
community nutrition program in Kara and the Savanes, which prevents the extension of the pilot’s model to
other regions of the country where UNICEF does not have a community nutrition program. The pilot provided
beneficiaries with a monthly cash transfer of CFA 5,000 CFA Francs and also provided the opportunity to earn a
bonus of 10,000 CFA Francs for attending informational sessions related to child nutrition and child protection.

27. The Government of Togo has indicated its intention to move to a national cash transfer program
targeting poor households regardless of age or geographical location. The new program, to be supported by
this sub-component, will cover poor communities in all five Regions of the country, and all poor households in
targeted communities will be potentially eligible. The transfer amount is expected to remain at FCFA 5,000 per
month as under the pilot program. At this level, the IDA funding will cover approximately 40,000 households for
two years. The Government intends to provide additional funding to this program, at least at the same level as
under the PDCplus Cash transfer program, i.e CFA Francs 750,000 or approximately US$1.3 million per year,
over the two years of the program.

28. While the program will no longer specifically target households with pregnant mothers and small
children, the cash transfer will still present an opportunity to disseminate information about early childhood
development and influence mothers’ behavior. In addition to the monthly transfer, mothers in beneficiary
households will also have the opportunity to participate in learning activities related to child stimulation,
nutrition, and protection.

29. Resources will be distributed geographically following the same two-step process as under component
1, i.e. i) dividing resources among regions according to each region’s contribution to national poverty; and ii)
selecting communities based on an index of access to socio-economic infrastructure (or a similar indicator,
depending on data availability). After the selection of villages, targeting of households will follow the national
targeting strategy adopted by the Government and partners in December 2015. This combines a first level of
community targeting with a PMT survey to confirm the eligibility of households selected by the communities.

Page 15 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

Choosing communities on the basis of the same methodology as under component 1 creates the opportunity
for savings on community training costs and a greater combined impact.

Component 3: Capacity building and project management (US$5.6 million).

Sub-component 3.1: Grassroots Management Training (GMT) (US$500,000)

30. Capacity building of communities to take on the responsibility for implementing development projects is
a key element of the CDD approach. This sub-component will support the carrying out of GMT training for
beneficiary communities. Such training has already been successfully conducted under PERI and PDCplus. The
component will take advantage of the existing network of trained community development agents from PERI
and PDCplus, which will reduce the start-up costs of the training.

31. Each community will receive a full package of GMT, including: 1) information and communication; 2)
community organization and dynamics; 3) participatory poverty and needs assessment; 4) participatory and
operational planning of the sub-project; 5) procurement; 6) financial management; 7) participatory monitoring
and evaluation; and 8) maintenance. Refresher training will be offered to communities already reached. The
GMT will be updated to contain a module on social safety nets for those communities that will participate in
the cash transfer subcomponent.

32. In collaboration with the education sector, the project will support the development of a national
system for Grassroots Management Training by supporting a national focal point for GMT in the Ministry of
Community Development, training materials that can be used across sectors, and a registry of consultants with
expertise and experience in the GMT approach.

Sub-component 3.2: Support for safety net systems building (US$500,000)

33. Togo is in the early stages of developing cross-program social safety nets systems. As mentioned earlier,
a national targeting methodology has been recently developed. This component would contribute to the roll-
out of the targeting strategy -- not only by being one of the first projects to implement it -- but also in terms of
providing all necessary technical assistance in preparing materials necessary for translating the strategy into
action. The sub-component will also support technical assistance related to the creation of a national social
registry. This work would be closely coordinated with the planned IDA-supported youth employment project as
well as other relevant Government and donor-financed programs. Finally, the sub-component would support
the extension of the Grievance Redress Mechanism (GRM) established under the PDCplus.

Sub-component 3.3: Project management (US$4.6 million)

34. The component will cover the implementation cost of the project which includes staff-related costs,
equipment, vehicles, fuel, office space at national and regional level, and communications costs, and operating
costs related to the procurement, supervision, auditing and evaluation of project activities.

Page 16 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

B. Project Cost and Financing

35. Total project cost is US$29 million financed by an IDA grant. The Government is expected to contribute
resources alongside the project though they will not be formally considered as counterpart financing. The table
below summarizes project costs by component and provides the share of each component on the total IDA
budget.

Counterpart
Project Components Project cost IDA Financing Trust Funds
Funding

Total Costs
Total Project Costs 29.0 29.0 0 0

Component 1: Infrastructure Sub-projects 8.4 8.4 0 0

Component 2: Social safety nets 15.0 15.0 0 0

Sub-component 2.1: School feeding 5.0 5.0

Sub-component 2.2: Cash transfers 10.0 10.0

Component 3: Capacity building and project 5.6 5.6 0 0

management

Sub-component 3.1: Grassroots 0.5 0.5 0 0

Management Training (GMT)

Sub-component 3.2: Support for safety net 0.5 0.5 0 0

systems building

Sub-component 3.3: Project management 4.6 4.6 0 0

Front End Fees

Total Financing Required 29.0 29.0 0 0

Page 17 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

C. Lessons Learned and Reflected in the Project Design

36. A number of lessons learned from the previous projects (PDC and PDCplus) have informed the design of
the current project, including:

(a) Streamlining the project: The previous IDA-funded community development projects over the past
years have been complex to manage, because of the high number of activities included in their design.
The large number of discrete activities in the projects was a significant tax on management attention
and capacity. For this reason, the current project covers only three of the five activities of the PDCplus,
the remaining two being covered under a separate project.

(b) Targeting of beneficiary communities for the infrastructure component. While improved from PDC
to PDCplus, targeting of beneficiary community under PDCplus remained less than ideal due to lack of
data. Using existing data, under the PDCplus geographic targeting went as far as designating eligible
cantons in each region. But there was no means of identifying the poorest communities within each
canton, and communities were asked to apply for support, which could have favored less poor
communities. In the new project, this bias will be corrected by targeting eligible communities upfront,
on the basis of their lack of access to basic social services infrastructure, using a special index to be
created for the project by the INSEED.

(c) Targeting of beneficiaries of cash transfers. The previous project, the PDCplus, combined a
geographical and a categorical targeting methodology under which, pregnant women and mothers of
children under 5-year old and mothers of children severely malnourished living in treatment villages
were eligible to receive a cash transfer. This targeting, while favoring early childhood development, left
behind poor households without young children. The new cash transfer program will target more
broadly all of the poorest households in targeted communities, through a combination of community
targeting and a PMT verification survey.

(d) Managing incentives for civil servants involved in the implementation of the project. In the
PDCplus, there was a major role for the regional branches of the Ministry of Social Affairs (MASPFA),
whose staff were public servants and thus not eligible for compensation (salaries) under IDA funds.
Frustrations arose given the discrepancies between public sector salaries and the salaries of consultants
paid from project funds. This created a difficult atmosphere for the smooth implementation of project
activities. With the Government having announced a counterpart fund to support the scale up of the
cash transfer program, some of these funds could be used for compensation and incentivation of civil
servant involved in the implementation of activities at all levels. This also applies for the school feeding
program, but to a lesser extent. Most activities are carried out by NGOs and PTAs, with civil servants in
a monitoring and supervision role.

Page 18 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

IV. IMPLEMENTATION

A. Institutional and Implementation Arrangements

37. Following the successful implementation of two consecutive IDA-funded projects (PDC and PDCplus), the
Ministry of Community Development has developed extensive experience in implementing World Bank
financed projects. Responsibility for implementation of this project will remain with the Ministry, but the
project will not be implemented through a PIU dedicated only to the project. To build sustainable national
capacity, the Ministry has created the National Community Development Support Agency (Agence Nationale
d’Appui au Développement à la Base -- ANADEB). The ANADEB, which is operational since 2013, has developed
experience in managing small community infrastructure projects modeled after those under PDC and PDC plus,
and will be the entity under the Ministry of Community Development responsible for day-to-day
implementation. The ANADEB was also recently appointed as the focal point for the implementation of a new
UNDP-supported Emergency Community Development Project (Projet d’Urgence de Développement
Communautaire -- PUDC). Implementation of the project by ANADEB will ensure coherence and coordination
with the PUDC and other similar Government community development programs. To prepare for increased
volume of activity, ANADEB has recently recruited additional staff, including at regional level—and is expected
to recruit additional personnel in coming months, including certain personnel with experience and good
performance from PDCplus. The World Bank has evaluated ANADEB’s procurement and financial management
capacities and found them satisfactory, pending compliance with recommendations.

38. ANADEB was established under Decree No. 2011-017/PR dated January 19, 2011. It has its own legal
personality and financial autonomy. Therefore, in addition to the Financing Agreement to be signed between
the World Bank and Government, ANADEB will sign a Project Agreement with the World Bank describing its
obligations in the implementation of the project. Furthermore, as a condition of effectiveness of the project,
the Government will also sign a Subsidiary Agreement with ANADEB describing how the latter will implement
the project on behalf of the former, and the rights and responsibilities of each party. The legal texts
establishing ANADEB should not be amended, suspended, abrogated, repealed or waived in a manner that
affects ANADEB’s ability to implement the project.

39. At the national level, ANADEB will create a project unit to be staffed with a Coordinator, financial and
procurement specialists, an M&E specialist, and specialists in infrastructure, school feeding and cash transfers,
among other personnel. ANADEB’s staff consists of consultants whose salaries can be eligible in principle for
World Bank financing, assuming their recruitment followed procurement procedures acceptable to the World
Bank. The World Bank will analyze the procedures used for already recruited staff before agreeing to finance
such salaries.

40. With its increased responsibilities, ANADEB is opening regional offices (Coordinations Régionales – CR).
These CR, for which recruitment is underway, will be staffed with individual consultants with significant project
implementation experience. As a minimum, each CR will comprise a regional coordinator, an infrastructure
specialist with procurement experience, a safety nets specialist, a grassroots management training specialist,
and an administrative accountant (Gestionnaire comptable), as well as consultant community facilitators. With
this basic structure each CR will be at the forefront of the implementation of the project at the regional level.

Page 19 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

Once the geographical targeting of beneficiary communities is completed, the CRs, will be responsible, each in
its respective region, for facilitating the implementation of Component 1 activities using a CDD approach
whereby targeted beneficiary communities identify, plan and implement their own subprojects. In practice,
they will (a) assist communities in determining their needs, preparing proposals and implementing subprojects;
(b) guarantee the technical soundness and viability of proposed subprojects; (c) work closely with Government
officials, members of the Regional Approval Committee (Comité Régional d’Approbation – CRA), under the
leadership of the Prefect of the regional capital (Prefet du Chef-lieu de region)1 to ensure subproject
sustainability and consistency with sector policies and plans; (d) to ensure that funds are transferred to
beneficiaries account and (e) retain responsibilities monitoring compliance with fiduciary requirements by
beneficiary communities, at the regional level. For the safety nets component, the CR will monitor the NGOs
responsible for the school feeding program, and supervise the implementation of the cash transfer
subcomponent.

41. Unlike under the previous community development projects (PDC and PDCplus), in which the
Community Development Support Agency (AGAIBs) had fiduciary responsibilities, the CR/ANADEB will not have
any such responsibilities other than ensuring that fiduciary requirements are met by communities.

42. Communities will play the central role in implementation on the ground in regard to both component 1
and 2, primarily through their Village Development Committees (Comités Villageois de Développement – CVDs).
CVDs will be the main conduit for the implementation of community infrastructure, as they will prepare and
submit to the CR/ANADEB their subproject proposals, sign a subproject grant agreements with CR/ANADEB,
open and operate a bank account to receive subproject funding, hire and supervise contractors, and overall see
to the correct use of the funding made available. Through PTAs, communities will implement the school
feeding activities in their targeted schools. Communities will also play a key role in the community targeting of
beneficiaries of the cash transfer subcomponent. A specific module on community targeting will be included in
the grassroots management training curriculum to equip them with the required capacities for beneficiary
targeting.

B. Results Monitoring and Evaluation

43. The results monitoring framework assesses progress towards the PDO through key indicators, focusing
on improving community access to basic socio-economic infrastructure and increasing access to safety nets. In
addition, intermediate indicators will monitor the progress of each component over the life of the project.
Monitoring and evaluation (M&E) arrangements will be centralized at the level of the ANADEB, which will
establish a dedicated M&E system for the Project. This system will include an exhaustive database that will be
regularly updated based on the M&E strategy that is being developed. Through this strategy, the CRs of

1
This arrangement is consistent with art. 16 of Law 2007-001 related to the organization of the deconcentrated territorial
administration in Togo, which creates in each region a Regional Administrative Conference (Conférence Administrative
Régionale). In absence of an appointed Governor or Region as provisioned by the law, in practice, it is the Prefet of the
regional capital (Préfet de Chef-Lieu de Région) who play the role of Governor by gathering other regional directors. The
Project, by creating a Regional Approval Committee in the forms mentioned above is aligned with legal provision of art. 16 of
Law 2007-001.

Page 20 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

ANADEB will be expected to share a specific set of data with the ANADEB on a regular basis, and the M&E
specialist will randomly visit sites to verify the accuracy of the data shared, accompanied by the Internal
Auditor as needed. Monitoring will occur at each stage of project implementation, in order to identify arising
problems and issues and to promptly consider and adopt corrective measures.

44. The project will conduct a number of mid-term and end of the project evaluations to gauge progress
towards the PDO, to assess the impact of the project on the beneficiaries, to assess the quality of the works
carried out, as well as overall project efficiency. These evaluations will include: technical audits of
infrastructures built under component 1, and process evaluations of the school feeding and cash transfer
components.

45. To achieve the goal of establishing a strong M&E system for the project, a highly qualified professional
M&E specialist will be recruited by the ANADEB. This specialist will also help establish a broader M&E system
for the ANADEB for the monitoring of all its programs and projects.

C. Sustainability

46. Given its budgetary constraints, Togo requires World Bank assistance to support project activities.
However, the Government has made important strides toward ensuring financial sustainability of the activities
supported by the project. This includes the large financing for PUDC as well as Government’s contributions to
the school feeding and the pilot cash transfers programs since 2014.

47. The outlook for institutional sustainability is positive, as the Government has been pro-active in moving
from a projectized approach to a more systematic approach. The Technical Secretariat which implemented
PDC and PDCplus will give way to the National Community Development Agency (ANADEB). The ANADEB, along
with its regional office will take over the role previously played by the Technical Secretariat and the (Agences
d’Appui aux Initiatives de Base) AGAIBs, which are autonomous NGOs. After about ten years of
implementation of community development projects, the Government has embraced a vision with a central
role for the CDD approach in increasing access to basic services. This will be further strengthened, with the
establishment of a focal point for community grassroots management training in ANADEB to coordinate
community training initiatives.

48. To the extent possible, some technical staff from the Technical Secretariat and AGAIBs are expected to
be recruited into ANADEB to ensure continuity and knowledge transfer from the PDC and PDCplus to the
current project.

D. Role of Partners

49. The Ministry of Social Affairs, Women’s Promotion and Alphabetization (MASPFA) will be closely
involved in the implementation of the Cash Transfer Subcomponent, particularly through its regional offices
(Direction Régionale des Affaires Sociales – DRAS) and prefecture-level offices (Direction Préfectorale des
Affaires Sociales – DPAS) offices in all of the five Regions, as well as the heads of zones (Responsables de Zones

Page 21 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

– RZ). Their responsibilities will include facilitating the community targeting of beneficiaries and supervision of
the PMT survey and the identification of beneficiaries. The Ministry of Social Affairs through its decentralized
structures will also be responsible for supervising the implementation of accompanying measures of the cash
transfer program.

50. The Ministry of Primary and Secondary Education (MEPS) will be closely involved in the
implementation of the school feeding program through its representatives at the school and School District
level. Togo is currently preparing its National School Feeding policy which is expected to propose greater
responsibility for school feeding for the MEPS, which already has a Directorate for School Feeding (Direction de
l’alimentation scolaire – DAS). It is expected that the MEPS will work closely with the Ministry of Community
Development, ANADEB, and the implementing NGOs to take a larger role in implementation of school feeding
under the project. The project will also provide capacity building to MEPS to that end.

51. UNICEF Togo will continue to be a partner for the cash transfers sub-component under the new project,
particularly in regard to the informational activities around early childhood development. A memorandum of
understanding signed between UNICEF Togo and Ministry of Community Development, Handicraft, Youth and
Youth Employment (MDBAJEJ) will clarify roles and responsibilities.

52. World Food Program in Togo (PAM Togo) will also be a key implementing partner for the school
feeding program. PAM Togo has worked a lot with the MPES over the past years to build capacities, and in
preparing the National School Feeding Policy. Likewise it has facilitated training for the NGOs supervising the
school feeding program under the PDCplus. PAM Togo will continue supporting the capacity building of key
actors across ministries to ensure that proper transfer of capacities is completed between the ANADEB and the
future structure responsible for implementing school feeding programs.

53. National NGOs will continue to play the implementation partner role in regard to school feeding. A
number of qualified NGOs will be competitively selected at the beginning of the program to supervise school
feeding implementation in defined geographic areas. Performance of each NGO will be assessed at the end of
each school year against clear performance criteria, before renewal of their contracts for supervising the
program the next year.

54. Other relevant sectoral ministries (e.g., education, health, transport, and water and sanitation) will be
involved in the project at the national and at the regional level to ensure that subprojects are consistent with
sectoral policies, regulations and plans. Hence, they will have a role to play when deciding on the funding of
proposals in their sectors as well as in supervising their implementation (in collaboration with ANADEB CR
staff). At the national level, the role of sector ministries will consist in providing general guidance on the
Government’s choices and strategies, through the Steering and Orientation Committee (Comité d’Orientation
et de Pilotage – COP). At the regional level this role will be played through the Regional Approval Committee
(Comité Régional d’Approbation - CRA), under the leadership of the Prefet of the Chef-lieu de Région, as
described in the Project Implementation Manual.

V. KEY RISKS

Page 22 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

A. Overall Risk Rating and Explanation of Key Risks

55. The overall risk level is judged to be moderate. Risks rated substantial include macroeconomic risks
related to Togo’s debt and fiscal position, fiduciary risks, and low institutional capacity for implementation and
sustainability.

56. Macroeconomic risk. With the deteriorating macroeconomic framework over the past few years,
characterized by the deepening of fiscal deficits and increasing public debt, pressure on the Government to
stabilize the macroeconomic framework will increase. As a consequence, public spending will likely be cut in
the coming years. This presents a risk for sustained government support to the safety nets program. The risk
posed by possible cuts in public spending will be mitigated by the inclusion of indicators on social sector
spending, including safety nets, under the new Enhanced Credit Facility Program in discussion with the
International Monetary Fund (IMF).

57. Fiduciary risk. The World Bank has assessed ANADEB’s fiduciary capacities and found them to be largely
satisfactory, while providing some recommendation for strengthening these capacities. The World Bank will
provide support in developing clear implementation procedures, M&E, MIS and in providing capacity building
and training on fiduciary aspects and management for implementing agency staff. To ensure that resources are
received by the intended population, the World Bank will also provide technical assistance for targeting and
beneficiary identification. This will help to mitigate the overall level of risk.

58. Implementation capacity. While MDBAJEJ has experience with World Bank projects and knowledge of
World Bank procedures, the ANADEB has little such experience. This risk will be mitigated by the recruitment of
staff with experience in implementing PDC and PDCplus, technical assistance, and training in World Bank
procedures.

Page 23 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

VI. APPRAISAL SUMMARY

Page 24 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

A. Economic and Financial (if applicable) Analysis

59. The project is expected to make an important contribution toward improving the living conditions of
targeted communities and individual beneficiaries.

60. The community infrastructure to be supported under Component 1 will address major deficits in basic
services infrastructure (primary schools, health posts, water points, market infrastructure, and secondary
roads). While the exact investments under the community infrastructure component depend on community
priorities, prior evidence shows that the CDD approach is the most cost-effective means of constructing such
infrastructure. According to Togo's 2014 Report on the State of the National Education System, primary schools
built under the Community Development Project (PDC), which closed in 2013, cost significantly less than those
built through any other approach. PDC schools cost on average US$116 per square meter, whereas other
approaches ranged from US$131 to US$230 per square meter. The technical audit of infrastructure
constructed under PDCplus at the mid-term review found that infrastructure built by the project remained
cost-effective: the average cost of a three classroom school (with office and storage room) remained at about
FCFA 15 million (US$25,000), about the same as under the World Bank Education and Institutional
Strengthening Project (PERI). The economic benefits that will accrue from these activities will include improved
access to education, health water, and transport for poor rural communities.

61. The continued expansion of the CDD approach also supports greater allocative efficiency in public
expenditure. Like in the PDC and PDCplus, the proposed project will empower communities to allocate scarce
resources across sectors through the promotion of participatory decision making at the local level (the
participatory community planning process), thereby ensuring that such resources are applied most efficiently in
response to local priorities. Broad-based participation creates local ownership which, combined with other
complementary activities that the project provides (such as capacity building, etc.), makes the subprojects
sustainable and extends the life of the investment’s benefits.

62. The cash transfer sub-component will provide support to poor households to increase their income and
consumption and improve their ability to cope with shocks. Empirical evidence indicates that cash transfers
have a significant development impact, leading for example to increased spending on health, education and
food security, as well as to economic investment. In a forthcoming review of existing independent evaluations
of cash transfer programs (Bastagli et al, 2016), seventy-one percent of programs had a statistically significant
positive impact on household expenditure, whereas 60 percent of cash transfer programs examined had a
statistically significant positive impact on poverty – with poverty headcount reductions ranging from four
percent in Zambia to nine percent in Mexico. Similar numbers of studies found positive impacts on educational
attendance (52 percent) and heath service use (60 percent). Forty percent found positive impacts on saving, 71
percent found statistically significant increases in livestock assets, 21 percent founds increases in work
participation, and 86 percent found decreases in domestic violence. Of course, the design of the programs
evaluated varied greatly and not all programs aimed to have an impact on every dimension examined. Fears
that cash transfer recipients will misuse the transfers have proven largely unfounded. Evans and Popova (2014)
examined data on 19 programs and found almost without exception no significant evidence of increased
spending on temptation goods such as alcohol and tobacco.

Page 25 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

63. The School Feeding sub-component is expected to continue to have the same positive impact on poor
households that has already been observed. The economic benefits of the School Feeding program go well
beyond the immediate substitution effect in the expenditures of households of providing meals to children. A
2011 assessment of the PDC school feeding program showed a significant impact on poor families, school
enrollment and overall health conditions. In particular: i) the net transfer of the project through meals was
estimated at about 20 percent of households’ yearly food consumption (based on the 2006 QUIBB survey); ii)
the enrollment of new students in beneficiary schools in 2009-2010 increased by 9 percent, well above the
average increase experienced in non-beneficiary schools; and (iii) it was estimated that more than US$1,500 a
month has been injected in communities as a result of the project approach to meal preparation, which relies
on the local community, local food products and the work of village women.

64. The World Bank can provide an important value-added by supporting this project given its expertise and
international experience with building safety net systems and using the CDD approach. Specifically, World Bank
support will help the Government to adopt best practices in safety net system design, targeting of safety nets
beneficiaries, making payments to safety net beneficiaries, training of poor communities to implement basic
services sub-projects and safety nets activities, and monitoring and evaluation. Furthermore, domestic
resources to finance such activities are highly limited. Implementing a World Bank project will also increase the
capacity of national government agencies to design and manage large scale projects with adequate
procurement and financial procedures, clear implementing manuals and a well-developed M&E system.

Page 26 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

B. Technical

65. The proposed technical design is the most appropriate to support the borrower objectives of extending
access to basic service and alleviating poverty in rural areas. The use of the CDD approach for small basic
services infrastructure follows international best practice, especially when government implementation
capacity at lower levels is weak. Decentralization is foreseen by Togo’s constitution but has not yet been
implemented. In the absence of local elected authorities, the approach provides a valuable means for local
communities to express their needs. Furthermore, even after decentralization the CDD approach should remain
relevant as the implementation capacities of local governments are likely to remain low, and delegation of
execution by local governments to communities could enhance local authorities’ ability to fulfill their
responsibilities. Indeed, much of the literature on CDD speaks of the potential benefits of linking the approach
closely with decentralization (Guggenheim and Wong, 2005; Serrano, 2005). This literature has highlighted
CDD’s potential role in improving the quality of decentralization by promoting greater civic participation, voice,
and accountability in local governance; delivering cost-effective and timely services within a decentralized
context; and CDD’s possible role in informing and formulating decentralization regulations.

66. The project will continue the emphasis placed by the PDCplus on Grassroots Management Training
(GMT). GMT, which was initially developed by the World Bank Institute in 1997, is designed such that: (i) the
low levels of literacy in many communities are not a constraint; (ii) control of the project is protected against
elite capture; and (iii) women and vulnerable groups (including the handicapped) participate heavily in local
management arrangements. The GMT modules comprise: (i) information and communication; (ii) community
organization and dynamics; (iii) participatory poverty and needs assessments; (iv) participatory planning; (v)
participatory monitoring and evaluation; (vi) community procurement; (vii) community financial management;
and (viii) maintenance of infrastructure assets.

67. Social safety nets are also an important public service whose delivery can benefit significantly from the
involvement of communes and communities. The combination of community-executed basic services
infrastructure sub-projects with social safety nets (cash transfers and school feeding) pilot in this project is
warranted, among other factors, by the synergies in community training through GMT, which will be extended
to help in the delivery of social safety nets. Community associations will be trained and empowered to target
beneficiaries for cash transfers, to implement community-based school feeding, and to act as the first line of
responders in the resolution for grievances.

Page 27 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

C. Financial Management

68. A FM assessment of the implementing unit ANADEB designated to manage the Safety Nets and Basic
Services Project, was carried out in December 2016. The objective of the assessment was to determine whether
ANADEB has acceptable FM arrangements in place to ensure that the project funds will be used only for
intended purposes, with due attention to consideration of economy and efficiency. The financial management
assessment was carried out in accordance with the Financial Management Practices Manual issued by the
Financial Management Board on March 1, 2010 and retrofitted on February 4, 2015.

69. The FM arrangements are acceptable if they are capable of recording accurately all transactions and
balances, supporting the preparation of regular and reliable financial statements, safeguarding the Project’s
assets, and are subject to auditing arrangements acceptable to the World Bank. These arrangements should be
in place when project implementation starts and be maintained as such during project implementation. The
assessment concluded that the financial management of ANADEB satisfies the World Bank’s minimum
requirements under OP/BP 10.00, and therefore is adequate to provide, with reasonable assurance, accurate
and timely financial management information on the status of the project required by the World Bank.

70. The overall fiduciary risk rating is assessed as Substantial and mitigation measures proposed (see FM
Action Plan) will strengthen the internal control environment and maintain the continuous timely and reliability
of information produced by ANADEB and an adequate segregation of duties.

Table 1: FM action plan

No. Activity/Action Target Completion Date Responsibility

1 Recruit one additional Accountant Not later than three (3) ANADEB
ANADEB’s headquarters for managing the months after
additional workload which will be generated effectiveness
by this new project.
2 Recruit for each ANADEB’s regional offices Not later than three (3) ANADEB
(Maritime, Plateaux, Centrale, Kara, and months after
Savanes) an Accountant to manage project effectiveness (covenant)
funds received from its designated account
3 Recruit one short-term experienced and Within one month after ANADEB
qualified Financial Management Expert effectiveness
to assist ANADEB’s FM team familiarize
with the World Bank’s FM procedures
4 Update the Financial and Accounting manual Not later than three (3) ANADEB
of procedures to reflect the new project months after
specificities effectiveness
5 Purchase a multi-project version of the Not later than three (3) ANADEB
accounting software (TOM2PRO) ANADEB is months after
currently using. effectiveness
6 Appointment of external auditor acceptable Not later than three (3) ANADEB
to IDA months after
effectiveness

Page 28 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

Country issues

71. The 2016 PEFA assessment revealed the following main weaknesses in Togo’s public financial
management system: (i) poor budget credibility, particularly concerning expenditures (ii) budgetary coverage
and transparency is limited by the high level of off-budget operations (over 10 percent of total expenditures)
(iii) budgeting experience based on public policies still needs to be improved and (iv) predictability and
supervision of budget execution is still limited. The capacities of the State internal audit entities are still
generally weak, given the scope of their missions and their areas of responsibility. The accounting and
recording of financial data was reorganized in 2009 but the system still requires improvement. The
independence of the supreme audit institution (Cour des Comptes) is hindered by jurisdictional limitations in
the Constitution and the lack of freedom to publish an annual report.

72. The Overall Inherent Risk of the public financial management (PFM) system in Togo is rated as “High”.
However, actions are being taken to address all these issues. The government of Togo (GoT) is updating the
PFM actions plan based on recommendations resulting from various recent studies (PEMFAR, PIMA) to address
the main weaknesses inherent to the country PFM system.

Financial Management and Disbursements arrangements

73. ANADEB will handle the overall responsibility of FM aspects of the project including budgeting,
disbursement, financial management, reporting, supervision, management of the Designated Account, and
auditing.

74. Governance and Anti-corruption (GAC) arrangements: ANADEB will follow existing anti-corruption
legislations when dealing with fraud and corruption. FM arrangements will ensure that there are internal
control systems and audits conducted to prevent and detect fraud and corruption. In addition, the project will
be implemented in accordance with the “Guidelines on Preventing and Combating Fraud and Corruption in
Projects Financed by IBRD Loans and IDA Credits and Grants”, dated October 15, 2006 and revised in January
2011.

75. Budgeting. The project budgeting process will be clearly defined in the Project financial management
manual and the budget will be reviewed and adopted by the Steering Committee before the beginning of the
year. Annual draft budgets will be submitted to the World Bank’s non-objection before adoption and
implementation. The Recipient shall create, and thereafter maintain throughout each calendar year of project
implementation, a specific budget line entry in the state budget (especially in the targeted sectorial budgets) to
keep track of the corresponding expenditures incurred during project implementation.

76. Funds Flow and Disbursement Arrangements. Flow of funds arrangements are shown in Figure 1.

Figure 1: Funds Flow and Disbursement Arrangements

Page 29 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

77. Designated account. One Designated Account (DA) will be opened at a commercial bank acceptable to
IDA. Its ceiling will be determined in the disbursement letter based on the disbursement forecast for the first
four months. The project Coordinator and the FM specialist will be the signatories of the DA. The account is set
up to fund eligible expenditures based on the approved annual activity plans. Five (5) regional sub-accounts will
be opened to finance activities to be executed at decentralized level. Disbursements from these sub-accounts
will comply with specific procedures to be included in the project manual.

78. Disbursement methods and processes. Disbursements under the Project would be transaction based. In
addition to making advances to the DA, other disbursement methods (reimbursement, direct payment and
special commitment) will be available for use under the Project, for example, direct, reimbursement, and
special commitment methods. Further instructions on disbursement and details on the operations of the
Withdrawal Applications and Direct Payments will be outlined in the disbursement letter.

79. Table 2 below specifies the categories of eligible expenditures to be financed out of the proceeds of the
Grant, the amounts under each category, and the percentage of expenditures to be financed for eligible
expenditures in each category.

Table 2: Expenditure categories

Category Amount of the Percentage of

financing allocated expenditures to be
(expressed in DTS) financed
(inclusive of taxes)
1) Goods, works, non-consulting services, 6,800,000 100%
consultants’ services, Training and Operating Costs

Page 30 of 5640
The World Bank
Safety Nets and Basic Services Project (P157038)

for Parts B.1, B.2(b) and C of the Project

2) Sub-project Grants under Part A of the Project 6,200,000 100% of amounts paid
by the Recipient under
the Sub-project Grant
3) Cash Transfers under Part B.2(a) of the Project 7,400,000 100% of amounts paid
by the Recipient under
the Cash Transfer
4) Refund of Preparation Advance No. V0650-TG Amount payable
pursuant to Section
1,000,000
2.07 of the General
Conditions

TOTAL AMOUNT 21,400,000

Page 31 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

80. Accounting and Reporting. SYSCOHADA is the assigned accounting system in West African Francophone
countries. Project accounts will be maintained on a cash basis, supported with appropriate records and
procedures to track commitments and to safeguard assets. Annual financial statements will be prepared by
ANADEB in accordance with the SYSCOHADA but taking into account specificities related to external financed
investment projects. Accounting and control procedures will be documented in the FM Manual. ANADEB will
prepare Quarterly Interim Un-audited Financial Reports (IFRs) reflecting operations of the designated account
and submitted to the World Bank within 45 days after the end of each quarter. The IFR format will comprise the
following: i) report on the sources and use of funds cumulative (project-to-date; year-to-date) and for the
period, showing budgeted amounts versus actual expenditures, including a variance analysis; and ii) forecast of
sources and uses of funds. The current ANADEB’s accounting software TOM2PRO with mono-project will be
replaced by TOM2PRO multi-projects, multi-sites, and multi-donors for managing both its current projects and
the new project.

81. Internal control and internal auditing arrangements. Internal Control Systems: The updated version of
ANADEB’s current FM and administrative procedures will document the financial management and
disbursement arrangements including internal controls, budget process, assets safeguards, and clarify roles and
responsibilities of all the stakeholders. The internal audit function will be assumed by ANADEB’s internal audit
unit. In line with the Togo Use of Country System (UCS) Report, the project's internal control system could be
strengthened by establishing a close collaboration between the General Inspectorate of Finance (Inspection
Générale des Finances-IGF) and the project's internal audit unit for conducting periodical internal audit review
on the project activities.

82. Annual Financial Audit. An external independent and qualified private sector auditor will be recruited to
carry out the audit of the Project’s financial statements under the supervision of the supreme audit institution.
Therefore, annual audits will be conducted based on Terms of References (TOR) agreed with the supreme audit
institution and that are satisfactory to the World Bank. The auditor will express an opinion on the Annual
Financial Statements, and perform his audit in compliance with International Standards on Auditing (ISAs). He
will be required to prepare a Management Letter detailing observations and comments, providing
recommendations for improvements in the accounting system and the internal control environment. The
external auditor will especially review each year a reasonable sample of the subsidized concession operations
to ensure that activities were completed pursuant to the agreed procedures and that funds were used for the
purposes intended.

83. The audit report on the annual project financial statements and activities of the Designated Account will
be submitted to the IDA within six months after the end of each project fiscal year.

84. Implementation Support Plan. Based on the outcome of the FM risk assessment, the following
implementation support plan is proposed. The objective of the implementation support plan is to ensure the
project maintains a satisfactory financial management system throughout the project’s life.

Page 32 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

Table 3: Implementation Support Plan

FM Activity Frequency

Desk reviews
Interim financial reports review Quarterly
Audit report review of the project Annually
Review of other relevant information such as interim internal Continuous as they become
control systems reports. available
On site visits
Review of overall operation of the FM system Twice per year
(Implementation Support Mission)

Monitoring of actions taken on issues highlighted in audit As needed

reports, auditors’ management letters, internal audit and other
reports
Transaction reviews (if needed) As needed
Capacity building support
FM training sessions During implementation and as and
when needed.

D. Procurement

85. Capacity Assessment and Remedial Actions. A full Procurement assessment of the main implementing
agency, the ANADEB was conducted prior to project appraisal. The overall project risk for procurement is rated
High before mitigation. The assessment concluded that the basic requirements for ensuring acceptable quality
of procurement largely exist already within the agency. However, a number recommendations were made to
strengthen procurement capacity. These include:

Page 33 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

a) updating the procurement manual of procedures to include : (i) the delegation of

implementation responsibility to communities, and (ii) any new procurement methods identified
by the new project;
b) preparing a new procedures manual and simplified procurement and project implementation
documents for communities;
c) recruiting and appointing in each Regional agency, a qualified staff responsible for procurement,
to provide direct and proximity assistance to community;
d) training the ANADEB management and all staff responsible for procurement activities on
prequalification of providers (enterprises, consultants, etc.), and on the selection of consultants,
on monitoring and management of community procurement, and on project management
following World Bank procedures;
e) preparing and implementing a support and training mechanism on procurement for the first
year of project implementation;
f) performing each year an audit and a posteriori review of all procurements conducted by the
ANADEB and the communities;
g) creating a registry for the management of all information related to claims and complaints;
h) improving the filing and archiving system at the ANADEB.

86. Guidelines and procurement documents. As the PCN review was held in June 2016, procurement
activities will be carried out in accordance with the World Bank’s ‘Guidelines: Procurement of Goods, Works,
and Non-Consulting Services under IBRD Loans and IDA Credits & Grants by World Bank Borrowers’, dated
January 2011 and revised in July 2014, or the World Bank’s ‘Guidelines: Selection and Employment of
Consultants’, dated January 2011 and revised in July 2014 with a Procurement Plan (PP) acceptable to IDA.

87. Procurement will be carried out using the World Bank’s Standard Bidding Documents or Standard
Request for Proposal (RFP) for all International Competition Bidding (ICB) for goods and for the selection of
consultants, respectively. For National Competitive Bidding (NCB), the Borrower should submit a sample form
of bidding documents to the World Bank for prior review and will continue to use this type of document
throughout the project once this has been agreed upon. The Sample Form of Evaluation Reports published by
the World Bank will be used. Community procurement will be carried out using the current documents included
in the Project Implementation Manual.

88. Advertising. A comprehensive General Procurement Notice will be prepared by the borrower and
published in the United Nations Development Business (UNDB) online following the Board approval, to
announce major consulting assignments and any International Competitive Bidding (ICB). The General
Procurement Notice shall include all ICB for works, goods and non-consulting services contracts and all large
consulting contracts (that is, those estimated to cost US$100,000 or more). In addition, a specific procurement
notice is required for all works, goods to be procured under ICB in UNDB online. Requests for Expressions of
Interest (EOIs) for consulting services expected to cost more than US$100,000 shall be advertised in UNDB
online. An EOI is required in the national gazette or a national newspaper or on an electronic portal of free
access for all consulting firm services regardless of the contract amount. In the case of National Competitive
Bidding (NCB), a specific procurement notice will be published in the national gazette or a national newspaper
or on an electronic portal of free access. Contract awards will also be published in UNDB online, in accordance
with the World Bank’s Procurement Guidelines (paragraph 2.60) and Consultant Guidelines (paragraph 2.28).

Page 34 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

89. Procurement of Works: Contracts for Works estimated to cost US$5,000,000 equivalent or more per
contract shall be procured through ICB. Contracts estimated to cost below US$5,000,000 but greater than
US$200,000 equivalents may be procured through NCB. Relevant NCB works contracts, which are deemed
complex and/or have significant risk levels, will be prior-reviewed. Such contracts will be identified in the
procurement plans. Contracts estimated to cost less than US$200,000 equivalent per contract may be procured
using shopping procedures in accordance with Para. 3.5 of the World Bank Procurement Guidelines and based
on a model request for quotations satisfactory to the World Bank. At the minimum, this could be achieved by
soliciting quotations through written invitations from not less than three qualified contractors. Direct
contracting may be used in exceptional circumstances with the prior approval of the World Bank, in accordance
with paragraphs. 3.6 and 3.7 of the Procurement Guidelines

90. Procurement of goods. Contracts for goods estimated to cost US$500,000 equivalent or more per
contract shall be procured through ICB. To the extent possible and practicable, goods orders shall be grouped
into larger contracts wherever possible to achieve greater economy, at the procuring entity level. Contracts
estimated to cost less than US$500,000 but equal to or above US$100,000 equivalent per contract may be
procured through NCB. Contracts for goods and commodities estimated to cost less than US$100,000
equivalent per contract and contracts for the purchase of vehicles and fuel estimated to cost less than
US$300,000 equivalent per contract may be procured using shopping procedures in accordance with paragraph
3.5 of the Procurement Guidelines and based on a model request for quotations satisfactory to the World Bank.
Direct contracting may be used in exceptional circumstances with the prior approval of the World Bank, in
accordance with paragraphs 3.6 and 3.7 of the Procurement Guidelines.

91. Selection of consultants. Each contract estimated to cost US$500,000 equivalent or more will be
awarded following the procedure of Quality- and Cost-Based Selection (QCBS). Consulting services estimated to
cost less than US$300,000 per contract under the project will be procured following the procedures of
Selection Based on the Consultants’ Qualifications (CQS). Selection under a Fixed Budget (FBS) and Least-Cost
Selection (LCS) methods will be applied in the circumstances as respectively described under paragraphs 3.5
and 3.6 of the Consultant Guidelines. For all contracts to be awarded following QCBS, LCS, and FBS, the World
Bank’s Standard Request for Proposals will be used. Procedures of Selection of Individual Consultants will be
followed for assignments that meet the requirements of paragraphs 5.1 and 5.3 of the Consultant Guidelines.
LCS procedures will be used for assignments for selecting the auditors. Single-Source Selection (SSS) procedures
will be followed for assignments that meet the requirements of paragraphs 3.10–3.12 of the Consultant
Guidelines and will always require the World Bank’s prior review regardless of the amount.

92. Consultancy assignments estimated to cost the equivalent of US$100,000 or more and engineering
design and contract supervisions estimated to cost the equivalent of US$300,000 or more will be advertised for
EOIs in UNDB and the World Bank’s external website through Client Connection and in at least one newspaper
of wide national circulation. In addition, EOIs for specialized assignments may be advertised in an international
newspaper or magazine. In the case of assignments estimated to cost less than US$100,000 for consultancy
assignments and US$300,000 for engineering design and contract supervisions, the assignment will be
advertised nationally. The short list of firms for assignments estimated to cost less than US$100,000 for
consultancy assignments and US$200,000 for engineering design and contract supervisions may be made up

Page 35 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

entirely of national consultants. However, foreign consultants who wish to participate should not be excluded
from consideration

93. Operational costs. These costs financed by the project are incremental expenses arising under the
project and based on PTAs and budgets approved by the Association. Such costs may include office rent and
maintenance; utilities (including electricity, water, and gas); communications (including telephone and Internet
charges); equipment rent, operation, and maintenance; office materials and supplies (stationery and other
consumables but not the purchase of equipment); lease of vehicles, operation, maintenance, and repair; and
travel and transport cost of the staff associated with project implementation. These items will be procured by
using the procedures detailed in the manual of procedures, which was reviewed and found acceptable to the
World Bank.

94. Capacity building, training programs, workshops, seminars, conferences, etc. A number of target
trainings and workshops are anticipated under the project to build capacity of implementing agencies to ensure
efficient implementation, provide required knowledge, and ensure sustainability. All training and workshop
activities will be carried out based on approved annual programs that will identify the general framework of
training activities for the year and approved TOR, including (a) the type of training or workshop; (b) the
personnel to be trained; (c) the selection methods of institutions or individuals conducting such training; (d) the
institutions that will conduct the training; (e) the justification for the training and how it will lead to effective
performance and implementation of the project and or sector; (f) the duration of the proposed training; and (g)
the cost estimate of the training. A report by the trainee upon completion of training will be required.

95. Procurement Prior Review Thresholds. The Procurement Plan (PP) shall set forth those contracts that
shall be subject to the World Bank’s prior review. All other contracts shall be subject to post review by the
World Bank. However, relevant contracts below prior review thresholds listed in table 4, which are deemed
complex and/or have significant risk levels, will be prior reviewed. Such contracts will also be identified in the
PP. A summary of prior review and procurement method thresholds for the project is given in table 4. All TORs
for consultants’ services, regardless of contract value, shall also be subject to the World Bank’s prior review.

Table 4: Thresholds, Procurement Methods, and Prior Review

Contract (C) Value

Expenditure Contracts Subject to
No Threshold* [eq. Procurement Method
Category Prior Review /[eq. US$]
US$]
C ≥ 5,000,000 ≥ 10,000,000
ICB
200,000 < C <
NCB None
5,000,000
1 Works

C ≤ 200,000 Shopping None

No Threshold Direct contracting All

Page 36 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

Contract (C) Value

Expenditure Contracts Subject to
No Threshold* [eq. Procurement Method
Category Prior Review /[eq. US$]
US$]
- Community participation -
C ≥ 500,000 ≥ 2,000,000
ICB
100,000 < C <
NCB None
Goods, IT and non- 500,000
2
consulting services
None
C ≤ 100,000 Shopping
No Threshold Direct contracting All
C < 100,000 QCBS; LCS; CQS; Other for
National shortlist for None
Consulting Services
selection of
3 QCBS; LCS; CQS; Other for
consultant firms
C ≤ 200,000 Engineering and None
Construction Supervision
International shortlist C ≥ 100,000 QCBS; LCS; CQS; Other for ≥ 1,000,000
for selection of Consulting Services
4 consultant firms QCBS; LCS; CQS; Other for
C > 200,000 ≥ 1,000,000
Engineering and
Construction Supervision
Selection of ≥ 300,000
5 All Values IC
Individual consultants
Direct contracting As agreed in the
6 All Values
Procurement Plan
Training, Workshops, Based on approved Annual
7 Study Tours All Values Work Plan & Budgets
(AWPB)
Note: QCBS = Quality-Cost Based Selection; CQS = Selection Based on the Consultants’ Qualification (for
contracts below US$200,000); SSS = Single-Source Selection; IC = Selection of Individual Consultants.

96. Shopping and CQS Thresholds. The threshold for shopping is defined under para. 3.5 of the Guidelines
and should normally not exceed US$100,000 for off-the-shelf goods and commodities; and US$200,000 for
simple civil works. Based on country-specific needs and circumstances, shopping thresholds for the purchase of
vehicles and fuel may be increased up to US$500,000. The threshold for the use of CQS shall not exceed
US$300,000 other than in exceptional situations in accordance with para. 3.7 of the Guidelines: Selection and
Employment of Consultants.

97. Revision. The prior review thresholds and other measures to be taken to mitigate procurement risk
should be reevaluated once a year with a view to adjusting them to reflect changes in the procurement risk
that may have taken place in the meantime and to adapt them to specific situations. In case of failure to comply

Page 37 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

with the agreed mitigation measures or World Bank guidelines, a reevaluation measure of both types of
thresholds, ICB and prior review, may be required by IDA.

98. In addition to prior reviews to be carried out from IDA offices, the capacity assessment recommended
two field supervision missions and at least one procurement post review per year. The procurement specialist
in Lomé Country Office will provide continuous support to implementing agencies. Independent procurement
reviews will be carried out if necessary.

99. Procurement Plan. A PP for the first 18 months of project implementation has been prepared and
approved. During implementation, the PP will be updated in agreement with the project team as required, at
least annually, to reflect actual project implementation needs and improvements in institutional capacity. It will
be available in the project’s database and a summary will be disclosed on the World Bank’s external website
once the project is approved by World Bank’s Board of Directors.

Page 38 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

Table 5: Procurement plan with methods and time schedule

(a) Goods

1 2 3 4 5 6 7 8

Estimated Prequalifi- Domestic

Contract Procurement Prior Review
Ref. No. Amount cation Preference Comments
(Description) Method (yes/no)
(US$ 000) (yes/no) (yes/no)
1 IT equipment NCB no no no
Tablets for
2 NCB no no no
survey
Office
3 NCB no no no
furniture
Office and
4 maintenance NCB no no no
supplies
Insurance for
5 NCB no no no
project staff
Upkeep of
6 airconditionin shopping no no no
g equipment
Vehicle
7 NCB no no no
insurance
Materials for
8 launch shopping no no no
workshop
Signage for
9 project shopping no no no
building
Contract for
phone and
10 NCB no no yes
internet
service
Security
11 shopping no no yes
services

(b) Works

1 2 3 4 5 6 7 8

Estimated Prequalifi- Domestic

Contract Procurement Prior Review
Ref. No. Amount cation Preference Comments
(Description) Method (yes/no)
(US$ 000) (yes/no) (yes/no)
Community Community
1 40 000 each no no no
microprojects participation

Page 39 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

(c) Consultancy Assignments with Selection Methods and Time Schedule

1 2 3 4 5 6 7
Expected
Prior
Description of Estimated Selection Proposal
Ref. No. Review Comments
Assignment Cost Method Submission
(yes/no)
Date
Project staff in yes
1 ANADEB
IC
8/15/2017
Community IC yes
2 Development
Facilitators 9/15/2017
Graphic artist for IC no
3 training materials 8/15/2017
Consultant for IC no
4 evaluation of
community training 1/15/2018
Creation of Project IC no
5 logo NA
Development of IC no
6 project website 9/3/2017
Communications CQS no
7 agency 10/15/2017
Contracts with IC yes
8 community radios 9/15/2017
CQS yes
9 Payment agency
8/15/2017
Development of CQS no
10 MIS for cash
transfers 8/29/2017
Implementation of CQS no
11 PMT survey 8/15/2017
NGOs for CQS yes
supervision of
school feeding
program 8/15/2017
Environmental and IC no
social safeguards
consultant 9/15/2017

E. Social (including Safeguards)

100. Social impacts of the community subprojects are expected to be mainly positive, as the implementation
approach aims at building self-reliance and strengthening social capital in addition to providing better access to
a range of social services. This is ensured by the Grassroots Management Training approach that will be used in
identifying community subprojects. Experience with subproject implementation under the PDCplus suggests
the risk of only very marginal negative impacts on local populations.

101. Under component 1, the Community sub-projects will support the rehabilitation and construction of
social and economic infrastructure such as schools, markets, small scale water infrastructure, secondary roads
and health centers. These activities could lead to restriction of access to assets or sources of livelihood and they

Page 40 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

could also entail some acquisition of land and/or losses of assets and thus the OP 4.12 is triggered. Although
the project will be implemented in the five regions, the selection of communities will only be known after the
start of the project following selection on the basis of an index created by the national statistics institute.
Therefore, the project has built upon the Resettlement Policy Framework (RPF) of the PDCplus, which has been
updated, consulted upon and disclosed in Togo and by the World Bank. During project implementation, the
policy framework will provide the roadmap for preparing Resettlement Action Plans as necessary.

F. Environment (including Safeguards)

102. The environmental category of the Project is B; consequently OP/BP 4.01 (Environmental Assessment) is
triggered. For the infrastructure component it is estimated that the majority of the financing of subprojects will
be for the construction and rehabilitation of physical infrastructures and other tangible assets such as schools,
markets, small scale water infrastructure, roads and health centers. These interventions have the possibility to
trigger small scale and site specific environmental impacts that are manageable. At this stage of project
preparation, the locations of these interventions are not known. The safety nets component on cash transfers
and school feeding is expected to have no environmental impact.

103. To address the possible impacts mentioned above, an Environmental and Social Management
Framework (ESMF) which builds on the experience of the implementation of similar activities under PDCplus
has been prepared and disclosed. During implementation, these environmental screening and risk mitigation
tools will be used by communities in project implementation and will the object of training for Government
officials, the ANADEB and its Regional Agencies, Village Development Committees (CVDs), consultants, and
other stakeholders.

G. Other Safeguard Policies

104. OP/BP 4.11 on Physical Cultural Resources is triggered because of the digging that will occur during the
civil works. The ESMF states that if cultural resources are found during civil work a ‘'chance find procedure'' will
apply in accordance with national regulation and OP/BP 4.11.

H. World Bank Grievance Redress

Communities and individuals who believe that they are adversely affected by a World Bank (WB) supported project
may submit complaints to existing project-level grievance redress mechanisms or the WB’s Grievance Redress Service
(GRS). The GRS ensures that complaints received are promptly reviewed in order to address project-related concerns.
Project affected communities and individuals may submit their complaint to the WB’s independent Inspection Panel
which determines whether harm occurred, or could occur, as a result of WB non-compliance with its policies and
procedures. Complaints may be submitted at any time after concerns have been brought directly to the World Bank's
attention, and Bank Management has been given an opportunity to respond. For information on how to submit

Page 41 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

complaints to the World Bank’s corporate Grievance Redress Service (GRS), please visit
http://www.worldbank.org/en/projects-operations/products-and-services/grievance-redress-service. For
information on how to submit complaints to the World Bank Inspection Panel, please visit www.inspectionpanel.org.

Page 42 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

VII. RESULTS FRAMEWORK AND MONITORING

Results Framework
COUNTRY : Togo

Project Development Objectives

The objective of the project is to provide poor communities and households with greater access to basic socio-economic infrastructure and social safety
nets.

Project Development Objective Indicators

Unit of Responsibility for

Indicator Name Core Baseline End Target Frequency Data Source/Methodology
Measure Data Collection

Name: Direct project Number 0.00 131000.00

beneficiaries

Female beneficiaries Percentage 0.00 50.00

Description: Direct beneficiaries are people or groups who directly derive benefits from an intervention (i.e., children who benefit from an immunization program; families
that have a new piped water connection). Please note that this indicator requires supplemental information. Supplemental Value: Female beneficiaries (percentage).
Based on the assessment and definition of direct project beneficiaries, specify what proportion of the direct project beneficiaries are female. This indicator is calculated as
a percentage.
Name: Students enrolled in Number 0.00 15000.00
rehabilitated or constructed
schools under the project

Description:

Page 43 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

Unit of Responsibility for

Indicator Name Core Baseline End Target Frequency Data Source/Methodology
Measure Data Collection

Name: Number of people in Number 0.00 32000.00

rural areas provided with
access to Improved Water
Sources under the project

Description: This indicator measures the actual number of people in rural areas who benefited from improved water supply services that have been constructed under the
project. Guidance on "improved water sources": "Improved water sources" include piped household connection (house or yard connections), public standpipe, boreholes,
protected dug well, protected spring and rainwater collection. Hence, "Improved Water Sources" do not include, inter alia, water provided through tanker truck, or
vendor, unprotected well, unprotected spring, surface water (river, pond, dam, lake, stream, irrigation channel), or bottled water. The definition of what is considered an
"improved water source" follows the UNICEF-WHO Joint Monitoring Program definition. Note that "Improved Water Sources" does not refer to the question of new
versus rehabilitated water sources, but is the standard definition used to track progress on the Millennium Development Goals. Guidance on people with access: The data
on the number of people provided with access can be estimated by TTLs by multiplying i) the actual number of piped connections with an estimate of the number of
people per household connection; and/or ii) the actual number of community water points with an estimate of the number of people per community water point. The
assumptions made regarding number of people per connection made should be carefully documented in the comments' section of the indicator when data is entered in
the ISR. Guidance on rural classification: The classification should follow the official definition used in the country.
Name: Community Percentage 0.00 80.00
infrastructures functioning
one year after completion

Description:

Name: Beneficiaries of Safety Number 0.00 78000.00

Nets programs (number)

Beneficiaries of Safety Nets Number 0.00 39000.00

programs - Female
(number)

Beneficiaries of Safety Nets Number 0.00 40000.00

Page 44 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

Unit of Responsibility for

Indicator Name Core Baseline End Target Frequency Data Source/Methodology
Measure Data Collection

programs - Unconditional
cash transfers (number)

Beneficiaries of Safety Nets Number 0.00 38000.00

programs – School feeding
programs (number)

Description: This indicator measures the number of individual beneficiaries covered by safety nets programs supported by the Bank. Safety nets programs intend to
provide social assistance (kind or cash) to poor and vulnerable individuals or families, including those to help cope with consequences of economic or other shock.

Intermediate Results Indicators

Unit of Responsibility for

Indicator Name Core Baseline End Target Frequency Data Source/Methodology
Measure Data Collection

Name: Basic socio economic Number 0.00 200.00

infrastructure rehabilitated
or constructed under the
project

Description:

Name: Number of additional Number 0.00 300.00

classrooms built or
rehabilitated at the primary
level resulting from project
interventions.

Page 45 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

Unit of Responsibility for

Indicator Name Core Baseline End Target Frequency Data Source/Methodology
Measure Data Collection
Description: This indicator measures the number of additional classrooms constructed or rehabilitated at the primary level through the Bank-funded program. In most
cases, it is expected that the baseline value for this indicator will be zero (‘0'). The baseline might not be zero, for example, for an additional financing IL operation. This
indicator will be used to calculate the "decline in shortfall of classrooms at the primary level". TTLs should report on the progress of this indicator only if it is relevant to
the project, that is, if the project aims to reduce the shortfall of classrooms at the primary level. Please visit the EdStats database to view the shortfall of classrooms at the
primary level by country.

Name: Health facilities Number 0.00 20.00

constructed, renovated,
and/or equipped (number)

Description: This indicator measures the cumulative number of health facilities constructed, renovated and/or equipped through a Bank-financed project.

Name: Improved community Number 0.00 40.00

water points constructed or
rehabilitated under the
project

Description: Number of improved community water points constructed or rehabilitated under the project in rural and urban areas. A community water point is defined
as a public outlet for the provision of water supply to a number of households. Improved community water points refer to standpipes, protected dug well, borehole, or
protected spring. Hence, improved community water points do not include, inter alia, unprotected wells or unprotected springs.

Name: Basic socio economic Percentage 0.00 80.00

infrastructure assessed as
having satisfactory technical
quality

Description:

Page 46 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

Unit of Responsibility for

Indicator Name Core Baseline End Target Frequency Data Source/Methodology
Measure Data Collection

Name: Schools benefitting Number 0.00 160.00

from school feeding program

Description:

Name: Meals provided to Number 0.00 13000000.

students in schools targeted 00
for the school feeding
program

Description:

Name: Schools benefitting Percentage 0.00 90.00

from school feeding that are
in the poorest 20% of
cantons in their region

Description:

Name: Cash transfer Percentage 0.00 80.00

beneficiaries in the bottom
two quintiles of the national
consumption distribution

Description:

Page 47 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

Unit of Responsibility for

Indicator Name Core Baseline End Target Frequency Data Source/Methodology
Measure Data Collection

Name: Communities that Number 0.00 200.00

have received Grassroots
Management Training (GMT)

Description:

Name: Beneficiaries Number 0.00 20000.00

participating in Grassroots
Management Training

Beneficiaries participating Number 0.00 7000.00

in Grassroots Management
Training that are women

Description:

Name: Registry of potential Yes/No N Y

beneficiaries of safety nets
programs

Description:

Name: Project funds used Percentage 0.00 16.00

for project management

Description:

Page 48 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

Unit of Responsibility for

Indicator Name Core Baseline End Target Frequency Data Source/Methodology
Measure Data Collection

Name: Cash transfer Percentage 0.00 80.00

payments received with five
days of scheduled date

Description:

Page 49 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

Target Values

Project Development Objective Indicators FY

Indicator Name End Target

Direct project beneficiaries 131000.00

Students enrolled in rehabilitated or constructed schools under the project 15000.00

Number of people in rural areas provided with access to Improved Water Sources under the project 32000.00

Community infrastructures functioning one year after completion 80.00

Beneficiaries of Safety Nets programs (number) 78000.00

Female beneficiaries 50.00

Beneficiaries of Safety Nets programs - Female (number) 39000.00

Beneficiaries of Safety Nets programs - Unconditional cash transfers (number) 40000.00

Beneficiaries of Safety Nets programs – School feeding programs (number) 38000.00

Intermediate Results Indicators FY

Indicator Name Baseline End Target

Basic socio economic infrastructure rehabilitated or constructed under the project 0.00 200.00

Page 50 of 5640
 The World Bank
Safety Nets and Basic Services Project (P157038)

Indicator Name Baseline End Target

Number of additional classrooms built or rehabilitated at the primary level resulting from
0.00 300.00
project interventions.

Health facilities constructed, renovated, and/or equipped (number) 0.00 20.00

Improved community water points constructed or rehabilitated under the project 0.00 40.00

Basic socio economic infrastructure assessed as having satisfactory technical quality 0.00 80.00

Schools benefitting from school feeding program 0.00 160.00

Meals provided to students in schools targeted for the school feeding program 0.00 13000000.00

Schools benefitting from school feeding that are in the poorest 20% of cantons in their
0.00 90.00
region

Cash transfer beneficiaries in the bottom two quintiles of the national consumption
0.00 80.00
distribution

Communities that have received Grassroots Management Training (GMT) 0.00 200.00

Beneficiaries participating in Grassroots Management Training 0.00 20000.00

Registry of potential beneficiaries of safety nets programs N Y

Project funds used for project management 0.00 16.00

Cash transfer payments received with five days of scheduled date 0.00 80.00

Beneficiaries participating in Grassroots Management Training that are women 0.00 7000.00

Page 51 of 5640
The World Bank
Safety Nets and Basic Services Project (P157038)

Page 52 of 5640