World Bank Document - Documents & Reportsdocuments.worldbank.org/curated/en/563061482164575195/pdf/ICR-M… · Reference: Supporting documents for this indicator are listed in annex

Document of

The World Bank

Report No: ICR3729

IMPLEMENTATION COMPLETION AND RESULTS REPORT

(IBRD-82300, IBRD-84670)

ON A

SERIES OF PROGRAMMATIC LOANS

IN THE AMOUNT OF EURO 204.3 MILLION

(US$260 MILLION EQUIVALENT)

TO THE

KINGDOM OF MOROCCO

FOR A

MUNICIPAL SOLID WASTE SECTOR DEVELOPMENT POLICY LOANS (3 AND 4)

December 5, 2016

Social, Urban, Rural and Resilience Global Practice

Maghreb Departement

Middle East and North Africa Region

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CURRENCY EQUIVALENTS

(Exchange Rate Effective December 31, 2015)

Currency Unit = Moroccan Dirham (MAD)

MAD 1.00 = US$ 0.1

US$ 1.00 = MAD 9.9

FISCAL YEAR

January 1 – December 31

ABBREVIATIONS AND ACRONYMS

BOCT Local Government Official Bulletin (Bulletin Officiel des Collectivités Territoriales)

CPS Country Partnership Strategy

CRC Citizens’ Report Card

DEA Water and Sanitation Department (Direction de l’Eau et de l’Assainissement)

DPL Development Policy Loan

CN-PNDM

National Commission for Municipal Solid Waste Management Program (Commission

Nationale du PNDM)

EIA Environmental Impact Assessment

GDP Gross Domestic Product

GIZ German Development Agency (Deutche Gesellschaft fur Intenationale Zusammenarbeit)

ICR Implementation Completion and Results Report

ISWM Integrated Solid Waste Management

LG Local Government

M&E Monitoring and Evaluation

MEMEE Ministry of Energy, Water, Mines and Environment (Ministère de l’Energie, de l’Eau, des

Mines et de l’Environnement)

MOE Ministry of Environment

MSW Municipal Solid Waste

OREDD Regional Observatories for Environment and Sustainable Development (Observatoire

Régionaux de l’Environnement et du Développement Durable)

PDO Program Development Objective

PNDM National Municipal Solid Waste Program (Programme National des Déchets Ménagers)

QEA Quality at Entry

QSA Quality of Supervision

TGR Treasury of the Kingdom of Morocco (Trésorerie Générale du Royaume)

Regional Vice President:

Senior Global Practice Director:

Hafez M. H. Ghanem

Ede Jorge Ijjasz-Vasquez

Country Director: Marie Francoise Marie-Nelly

Practice Manager: Ayat Soliman

Task Team Leader: Maria Sarraf

KINGDOM OF MOROCCO

MUNICIPAL SOLID WASTE SECTOR DEVELOPMENT

POLICY LOANS (3 AND 4)

Contents Data Sheet

1. Program Context, Development Objectives and Design ................................................................................. 1

2. Key Factors Affecting Implementation and Outcomes ................................................................................... 5

3. Assessment of Outcomes .................................................................................................................................... 9

4. Assessment of Risk to Development Outcome ............................................................................................... 18

5. Assessment of Bank and Borrower Performance .......................................................................................... 19

6. Lessons Learned ............................................................................................................................................... 21

7. Comments on Issues Raised by Borrower/Implementing Agencies ............................................................. 22

Annex 1 Bank Lending and Implementation Support/Supervision ..................................................................... 23

Annex 2. Beneficiary Survey Results ....................................................................................................................... 25

Annex 3. Stakeholder Workshop Report and Results ............................................................................................ 26

Annex 4. Borrower's ICR ......................................................................................................................................... 27

Annex 5. Comments of Co-financiers and Other Partners/Stakeholders ............................................................. 40

Annex 6. List of Supporting Documents .................................................................................................................. 41

i

A. Basic Information

Program 1

Country Morocco Program Name Solid Waste Sector DPL 3

Program ID P127955 L/C/TF Number(s) IBRD-82300

ICR Date 04/04/2016 ICR Type Core ICR

Lending Instrument DPL Borrower Kingdom of Morocco

Original Total

Commitment USD 130.00 million Disbursed Amount USD 129.84 million

Implementing Agencies Ministry of Economy and Finance, Ministry of Interior, Ministry of Environment

Cofinanciers and Other External Partners

Program 2

Country Morocco Program Name Solid Waste Sector DPL 4

Program ID P148642 L/C/TF Number(s) IBRD-84670

ICR Date 04/04/2016 ICR Type Core ICR

Lending Instrument DPL Borrower Kingdom of Morocco

Original Total

Commitment USD 130.00 million Disbursed Amount USD 116.04 million

Implementing Agencies Ministry of Economy and Finance, Ministry of Interior, Ministry of Environment

Cofinanciers and Other External Partners

B. Key Dates

Solid Waste Sector DPL 3 - P127955

Process Date Process Original Date Revised / Actual

Date(s)

Concept Review: 05/17/2012 Effectiveness: 06/13/2013 04/30/2013

Appraisal: 12/03/2012 Restructuring(s):

Approval: 02/14/2013 Mid-term Review:

Closing: 12/31/2013 12/31/2013

Solid Waste Sector DPL 4 – P148642

Process Date Process Original Date Revised / Actual

Date(s)

Concept Review: 09/25/2014 Effectiveness: 06/25/2015 04/22/2015

Appraisal: 11/25/2014 Restructuring(s):

Approval: 02/12/2015 Mid-term Review:

Closing: 12/31/2015 12/31/2015

ii

C. Ratings Summary

C.1 Performance Rating by ICR

Overall Program Rating

Outcomes Satisfactory

Risk to Development Outcome Moderate

Bank Performance Satisfactory

Borrower Performance Satisfactory

C.2 Detailed Ratings of Bank and Borrower Performance (by ICR)

Overall Program Rating

Bank Ratings Borrower Ratings

Quality at Entry: Satisfactory Government: Satisfactory

Quality of Supervision: Satisfactory Implementing

Agency/Agencies:

Overall Bank

Performance Satisfactory

Overall Borrower

Performance Satisfactory

C.3 Quality at Entry and Implementation Performance Indicators


Implementation

Performance Indicators

QAG Assessments

(if any) Rating:

Potential Problem Program at

any time (Yes/No): No Quality at Entry (QEA) None

Problem Program at any time

(Yes/No): No

Quality of Supervision

(QSA) None

DO rating before

Closing/Inactive status Satisfactory


Implementation

Performance Indicators

QAG Assessments

(if any) Rating:

Potential Problem Program at

any time (Yes/No):

No Quality at Entry (QEA) None

Problem Program at any time

(Yes/No):

No Quality of Supervision

(QSA) None

DO rating before

Closing/Inactive status

Satisfactory

D. Sector and Theme Codes

Solid Waste Sector DPL 3 - P127955 Original Actual

Sector Code (as % of total Bank financing)

Solid waste management 75

Sub-national government administration 25

iii

Theme Code (as % of total Bank financing)

Environmental policies and institutions 30

Pollution management and environmental health 25

Urban services and housing for the poor 45

Solid Waste Sector DPL 4 - P148642 Original Actual

Sector Code (as % of total Bank financing)

Central government administration 25

Solid waste management 44

Sub-national government administration 31

Theme Code (as % of total Bank financing)

Environmental policies and institutions 38

Municipal governance and institution building 25

Participation and civic engagement 6

Pollution management and environmental health 25

Urban services and housing for the poor 6

E. Bank Staff


Positions At ICR At Approval

Vice President: Hafez M. H. Ghanem Inger Andersen

Country Director: Marie Francoise Marie-Nelly Neil Simon M. Gray

Practice Manager Ayat Soliman Franck Bousquet

Task Team Leader: Jaafar Sadok Friaa Jaafar Sadok Friaa

ICR Team Leader: Maria Sarraf

ICR Primary Author: Maria Sarraf /Allan Rotman


Positions At ICR At Approval

Vice President: Hafez M. H. Ghanem Inger Andersen

Country Director: Marie Francoise Marie-Nelly Neil Simon M. Gray

Practice Manager: Ayat Soliman Franck Bousquet

Task Team Leader: Jaafar Sadok Friaa / Maria Sarraf Jaafar Sadok Friaa / Maria Sarraf

ICR Team Leader: Maria Sarraf

ICR Primary Author: Maria Sarraf / Allan Rotman

iv

F. Results Framework Analysis

Program Development Objectives The Program Development Objective is to support the Government’s efforts to improve the economic,

environmental, and social performance of the municipal solid waste sector.

Revised Program Development Objectives The PDO was not revised.

Indicator(s)

Solid Waste Sector DPL 3 (P127955) and DPL 4 (P148642)

Indicator Baseline Value

Original Target

Values (from

approval

documents)

Formally

Revised Target

Values

Actual Value

Achieved at

Completion or

Target Years

Indicator 1 : Number of municipalities implementing Citizens’ Report Cards on MSW services

(Number, Custom)

Value (Quantitative or

Qualitative) 0 4 5 5

Date achieved 12/31/2012 02/13/2015 02/13/2015 06/01/2016

Comments (including %

achievement)

Achieved

Original target at DPL 3 approval was 4. Target revised at DPL 4 approval to 5.

CRC have been done in 5 municipalities: Agadir, Mohamedia, Rabat, Tanger, and

Temara.

Reference: Supporting documents for this indicator are listed in annex 6.

Indicator 2 : Percentage of contracts signed (after the issuance of Circular No. 8029) with an

extract disclosed on BOCT web platform (Percentage, Custom)


Qualitative) 0 100 100

Date achieved 12/31/2012 02/13/2015 11/01/2015


achievement)

Achieved

All contracts are now published on the Portail National des Collectivités

Territoriales

Reference: www.pncl.gov.ma

Indicator 3 : Percentage of MSW collected professionally and disposed of in sanitary landfills

(Percentage, Custom)



Date achieved 12/31/2012 02/13/2015 02/13/2015 06/01/2016


achievement)

Substantially achieved 22 sanitary landfills are operational in Morocco receiving about 2.9 million tons of

waste (or 53 percent of collected MSW); this includes the recently completed

sanitary landfills of Marrakech, Meknes, and Ouarzazate.

Once the five sanitary landfills that are currently under construction (Khenifra,

Tanger, Beni Mellal, Sefrou, and Casablanca) are completed, the rate is expected to

reach 80%.

Reference: Government Completion Report (July 2016) available in annex 6 of ICR

http://www.pncl.gov.ma/


v

Indicator 4 : Number of inter-municipal/regional institutions (Groupements d’Agglomération et

Groupements de Communes) established (Number, Custom)



Date achieved 12/31/2012 02/13/2015 06/01/2016


achievement) Exceeded

Indicator 5 : Percentage increase in aggregated municipal revenues compared to 2012

(Percentage, Custom)


Qualitative) 0 10 20 19.4

Date achieved 12/31/2012 02/13/2015 02/13/2015 04/01/2016


achievement)

Substantially achieved

Original target at DPL 3 approval was 10%. Target revised to 20% at DPL 4

approval. Revenues increased from MAD 30,809 million in 2012 to MAD 36,785

million in 2015.

Reference: Trésorerie Générale du Royaume (TGR): Situation des Recettes des

Collectivités Territoriales. From 2008 to 2014 (excel sheet) and update for 2015

(written communication from TGR 02/19/2016). Documents available in project

file.

Indicator 6 :

Decrease in the percentage of total volume of arrears (as declared by private

operators and verified by DEA1) compared to the original annual total amount of

Municipal Solid Waste contracts (Percentage, Custom)



Date achieved 12/31/2012 02/13/2015 02/13/2015 10/01/2015


achievement)

Exceeded Original target at DPL 3 approval was the reduction of arrears from 70% to 50%.

Target revised to 30% at DPL 4 approval. Remaining arrears are estimated at MAD

380 million, meaning an actual reduction to 20%.

Reference: DEA, Ministry of Interior. Data collected during World Bank mission of

October 2015 and recorded in mission aide mémoire.

Indicator 7 : Percentage of MSW sanitary landfills regularly inspected (Percentage, Custom)



Date achieved 12/31/2012 02/13/2015 04/01/2016


achievement)

Achieved

All sanitary landfills under operation in 2014/2015 have been inspected by the

Ministry of Environment (MOE).

Reference: Matrice de Contrôle Environnemental des Décharges prepared by the

MOE dated November 2015 and available in the project file.

1Water and Sanitation Department (Direction de l’Eau et de l’Assainissement, DEA) within the Ministry of Interior.

vi

Indicator 8 : Total amount of eco-taxes collected and allocated to the National Environmental

Fund (Amount, Custom)


Qualitative) 0 MAD 230 million MAD 409 million

Date achieved 12/31/2012 02/13/2015 6/01/2016


achievement)

Exceeded

Reference: MOE. Data collected during World Bank mission of October 2015 and

recorded in mission aide mémoire.

Indicator 9 : Number of recycling projects supported through eco-tax revenues (Number,

Custom)



Date achieved 12/31/2012 02/13/2015 06/01/2016


achievement)

Achieved

18 projects have been approved. Fifteen (15) projects have been approved between

municipality, Ministry of Interior, and MOE and all conventions have been signed.

Three (3) projects have been approved with local community groups (for example,

cooperatives) and are in the process of having conventions signed.


Indicator 10 : Number of income generating opportunities in the recycling sector for waste pickers

(disaggregated by gender)(Number, Custom)


Qualitative) 150 (20 women) 1,000 500

1,050

(50 women)

Date achieved 12/31/2012 02/13/2015 02/13/2015 06/01/2016


achievement)

Achieved

The objective of this indicator is to create job opportunities. The 18 recycling

projects approved will generate an estimated 1,050 job opportunities for waste

pickers. It is estimated that about 5% of waste pickers are female.


G. Ratings of Program Performance in ISRs


No. Date ISR

Archived DO IP

Actual Disbursements

(US$, millions)

1 06/07/2013 Satisfactory Satisfactory 129.84


No. Date ISR

Archived DO IP

Actual Disbursements

(US$, millions)

1 06/17/2015 Satisfactory Satisfactory 116.04

2 12/16/2015 Satisfactory Moderately Satisfactory 116.04

H. Restructuring (if any)

No restructuring took place



1

1. Program Context, Development Objectives and Design

1. Problems associated with municipal solid waste (MSW) have increasingly been

recognized as barriers to harmonious urbanization and the overall socioeconomic development

process in Morocco. An assessment of the cost of environmental degradation in Morocco illustrated

that the cost of substandard MSW practices in 2000 was estimated at 0.5 percent of gross domestic

product (GDP).2 The growing rate of waste generation was putting significant pressure on municipal

services, particularly from financial, managerial, environmental, and social perspectives. Currently,

the country generates about 5.8 million tons of MSW per year and this is expected to reach 6.2 million

by 2020. With 60 percent of its population living in cities, the Government has recognized that

improving municipal waste delivery is key for the well-being of its citizens, the country’s natural

resources, and the growth of the tourism industry.

2. In 2008, the Government launched a three-phase, 15-year National Municipal Solid Waste

Program (PNDM).3 The PNDM supports municipalities to cope with the requirements of the 2006

Solid Waste Law, including the modernization of the MSW system and the 2014 Framework Law on

Environment and Sustainable Development. The latter (Law 99-12) defines the rights and obligations

of citizens for the protection and preservation of the environment and sustainable development and

acts as a reference framework to unify all related policy actions and fill in the existing gaps. Law 99-

12 also introduces new principles and tools that support the MSW sector reforms. More specifically, it

enforces the principle of citizens’ right of access to environmental information; establishes the ‘Police

de l’Environnement’ to reinforce authorities in charge of environmental control and inspection;

introduces the Extended Producer’s Responsibility principle, the ‘fiscalité verte’; and promotes waste

reduction, reuse, and recycling.

3. The first phase of the PNDM (2008–2012) was supported by the first two Development Policy

Loans (DPL 1 and 2).4 During that period, Morocco made good progress in substantiating the sector

policy and providing the necessary operational and regulatory framework for more integrated and

efficient MSW systems. The required legislation in the MSW sector was in place, building on the

enactment of Morocco’s Solid Waste Law and a well-ingrained and effective coordination of sector

policies and government actions. A transparent and result-oriented incentive mechanism was also

operational, allocating national financial resources to support municipalities in modernizing their

MSW systems through private sector participation. This translated into improved service delivery in

quality, cost-effectiveness, and equal coverage in high-, medium-, and low-income neighborhoods.

These were significant results for the first phase of the PNDM, but continued and steady progress was

needed to achieve the objectives set for 2022.

4. With the PNDM entering its second phase (2013–2017) and a new context for municipal

service delivery triggered by higher expectations on governance following the Constitutional Reform

of 2011, it was critical that key players at national, regional, and local levels keep improving the MSW

service delivery while (a) promoting public access to service information to enhance social

accountability of service providers and municipal administrations; (b) strengthening the institutional

2 Sarraf et al. 2003. “Royaume du Maroc : Évaluation du Coût de la Dégradation de l’Environnement.” Sector Note No.

25992-MOR. The World Bank. Washington, D.C. English and French. 3 The PNDM includes three phases: phase one - 2008–2012; phase two - 2013–2017; and phase three - 2018–2022. 4 The first Programmatic Series of municipal solid waste sector DPLs consisted of DPL 1 (delivered in 2009) and DPL 2

(delivered in 2010), which were subject to an Implementation Completion and Results Report (ICR) in 2012 (ICR2276).

2

and financial framework to professionalize investment planning, infrastructure development, and

service management, and sustain private sector participation; (c) developing environmental control and

monitoring to better support the compliance of MSW infrastructure and services with national

regulations; and (d) developing waste recycling activities in a manner that promotes income-generation

activities and works to include vulnerable groups whose livelihoods depend on waste picking. The

Government acknowledged that this required a comprehensive and coordinated set of policy reforms

in several key areas, including sector governance, institutional and financial, and environmental and

social dimensions. In this context, the Government requested and the World Bank accepted to continue

its support to sector reforms through a second Programmatic Series (DPL 3 and 4).5

1.1 Context at Appraisal

5. Sector context. At appraisal, the benefits of the first phase of the PNDM were being felt across

Morocco and the MSW sector reform continued to be a core component of Morocco’s national

sustainable development agenda and a key driver for improving the urban environment and municipal

service delivery. The Government’s commitment to reform MSW management was as strong as ever

and the World Bank’s engagement in accompanying the Government in its reform program was as

important as ever. Having achieved tangible results, such as

an enhanced legal framework with the enactment of the Solid Waste Law (Law 28-00) and the

Framework Law on Environment and Sustainable Development (Law 99-12);

increased waste collection and street cleaning in urban areas from 45 percent (2007) to 80 percent

(2014);6

increased waste disposed in sanitary landfills from 5 percent (in 2007) to 37 percent (in 2014);

closure/rehabilitation of unsanitary landfills from 8 (in 2007) to 23 (in 2014);7

increased waste collected in urban areas by private operators from 45 percent (2007) to 78 percent

(2014);

an enhanced and decentralized Environmental Impact Assessment (EIA) system consistent with

international good practice and fully operational at the national and regional levels; and

excellent cooperation between three key ministries (Environment, Finance and Interior) working

with a consistent and coordinated vision to improve waste management.

6. It was time to move from an infrastructure-based intervention to a more service delivery type

of intervention. At appraisal, it was time to capitalize on the momentum gained during the first

Programmatic Series while deepening the reforms.

7. Macro context. While many countries in the region were witnessing stagnating economic

growth and were under enormous economic turmoil, at appraisal of DPL 4 (in 2014), Morocco was

achieving respectable per capita income growth and preserving political stability, which in turn allowed

for significant improvement in many social indicators. This performance was mainly due to the

implementation of sound macroeconomic policies and structural reforms. For example, over the first

nine months of 2014, the full implementation of the fuel price-indexation mechanism helped cut

5 The second Programmatic Series consisted of DPL 3 (delivered in 2013) and DPL 4 (delivered in 2015). The second

Programmatic Series is the subject of the proposed ICR (ICR3729). 6 Kingdom of Morocco: PNDM Progress Report, September 29, 2014. 7 Same reference as footnote 6.

3

subsidies by 19.6 percent (or 1 percentage point of GDP). The fiscal consolidation measures also

included limiting the rise of the wage bill by 2.2 percent through freezing of higher wages and limiting

new hiring of civil servants. The consolidation also entailed improving tax collection through the

extension of the tax base, harmonization of tax rates, and fighting tax evasion. Consistent with the

fiscal tightening, the balance of payments indicators improved in 2013 and during the first 10 months

of 2014. Moreover, the 2015 Budget Law confirmed the Government’s strategy that was launched in

2014 and planned to continue reforming the subsidy system and launch the reforms of the pension and

fiscal systems that year. In November 2014, the International Monetary Fund conducted a first review

of the second Precautionary and Liquidity Line (about US$5 billion) together with the annual Article

IV consultations and found that Morocco managed to stabilize the economy and improve the main

macroeconomic and fiscal indicators thanks to ‘sound economic fundamentals and strong policy

implementation’.

8. Rationale for World Bank intervention. The second Programmatic Series builds on the

achievements of the first Programmatic Series, supported by the World Bank and implemented in

parallel to the Government’s PNDM, and on the strong sectoral dialogue between the World Bank and

the Government. Continued engagement was needed to sustain and deepen the reforms agenda and

support its transition to better governance and a stronger structural decentralization agenda for

municipal service delivery. Given the capacity of the World Bank to gather global knowledge on

complex issues (such as arbitration) and emerging challenges (such as recycling), the Government

requested a second Programmatic Series.

1.2 Original Program Development Objectives (PDO) and Key Indicators

9. The development objective of the second Programmatic Series (DPL 3 and 4) was to support

the Government’s efforts to improve the economic, environmental, and social performance of the

Municipal Solid Waste sector.

10. The key indicators were as follows:

Number of municipalities implementing Citizens’ Report Cards on MSW services

Percentage of contracts signed (after the issuance of Circular No. 8029) with an extract

disclosed on BOCT web platform

Percentage of MSW collected professionally and disposed of in sanitary landfills

Number of inter-municipal/regional institutions (‘Groupements d’Agglomération et

Groupements de Communes’) established

Percentage increase in aggregated municipal revenues compared to 2012

Decrease in the percentage of total volume of arrears (as declared by private operators and

verified by DEA) compared to the original annual total amount of MSW contracts

Percentage of MSW sanitary landfills regularly inspected

Total amount of eco-taxes collected and allocated to the National Environmental Fund

Number of recycling projects supported through eco-tax revenues

Number of income generating opportunities in the recycling sector for waste pickers

(disaggregated by gender)

4

1.3 Revised PDO and Key Indicators, and Reasons/Justification

11. The PDO was not revised.

12. Key indicators remained in essence the same. A few clarifications were provided to better

define some indicators. Targets were slightly revised in light of new developments on the ground

between DPL 3 and DPL 4. The targets of four indicators were raised and two were decreased. A

summary is provided in table 1.

Table 1. Key Indicators

Key Indicators Target Comment

1 DPL 3 Number of municipalities implementing Citizens’ Report Cards on MSW services 4

DPL 4 Number of municipalities implementing Citizens’ Report Cards on MSW services 5 Increase target

2

DPL 3 Percentage of contracts signed with an extract disclosed on BOCT web platform 100

DPL 4 Percentage of contracts signed (after the issuance of Circular No. 8029) with an

extract disclosed on BOCT web platform 100

Clarify indicator

3 DPL 3 Percentage of MSW collected professionally and disposed of in sanitary landfills 66

DPL 4 Percentage of MSW collected professionally and disposed of in sanitary landfills 55 Reduce target*

4

DPL 3 Number of inter-municipal/regional institutions (Groupements d’Agglomération et

Groupements de Communes) established

15

DPL 4 Number of inter-municipal/regional institutions (Groupements d’Agglomération et

Groupements de Communes) established 15

5 DPL 3 Increase in aggregated municipal revenues compared to 2012 +10%

DPL 4 Percentage increase in aggregated municipal revenues compared to 2012 +20% Increase target

6

DPL 3 Decrease in the percentage of total volume of arrears (as declared by private

operators) compared to the original annual total amount of MSW

50

DPL 4 Decrease in the percentage of total volume of arrears (as declared by private

operators and verified by DEA)compared to the original annual total amount of MSW 30

Clarify indicator

increase target

7 DPL 3 Percentage of MSW landfills regularly inspected 100

DPL 4 Percentage of MSW sanitary landfills regularly inspected 100 Clarify

8

DPL 3 Amount of eco-taxes collected and allocated to the National Environmental Fund 230

DPL 4 Total amount of eco-taxes collected and allocated to the National Environmental

Fund 250

Clarify indicator

increase target

9 DPL 3 Number of recycling projects supported through eco-tax revenues 10

DPL 4 Number of recycling projects supported through eco-tax revenues 10

10 DPL 3 Number of income generating opportunities in the recycling sector for waste pickers 1,000

DPL 4 Number of income generating opportunities in the recycling sector for waste pickers 500 Reduce target**

Note: Highlighted areas indicate clarification added to the indicators between DPL 3 and DPL 4.

* The percentage of MSW collected professionally and disposed of in sanitary landfills was reduced because of delays in the

implementation of landfills, in particular Casablanca landfills (where the site area had been substantially changed [see World

Bank aide mémoir of October 2015]).

** The number of income-generating opportunities for waste pickers was reduced from 1,000 to 500 because of a one-year

grace period for the application of the eco-tax (that is, between the issuance of the budget law and its application), which had

not been envisaged during the preparation of DPL 3. This has resulted in a one-year delay in the mobilization of eco-tax funds,

which support recycling projects and income-generating opportunities for waste pickers.

1.4 Original Policy Areas Supported by the Program

13. There were four policy areas supported by the program: (a) strengthening governance of the

municipal solid waste sector; (b) improving institutional and financial sustainability of municipal solid

waste services; (c) upgrading the country’s environmental monitoring and control system; and (d)

5

developing recycling value chains.

1.5 Revised Policy Areas

14. The policy areas were not revised.

1.6 Other Significant Changes

15. One indicative trigger for DPL 4 was not completed (namely the approval of the draft Organic

Law on the reorganization of Local Governments [LGs]), confirming the full responsibility of

Integrated Solid Waste Management (ISWM) to municipalities (projets de loi-organique relatifs aux

collectivités territoriales), and did not figure in the final policy matrix of DPL 4. The law was

subsequently adopted in July 2015 during the implementation of DPL 4.This change is discussed in

section 2.2. There were no other significant changes.

2. Key Factors Affecting Implementation and Outcomes

2.1 Program Performance

16. DPL 3 and DPL 4 were single-tranche operations, which disbursed shortly after effectiveness.

Table 2. Disbursement

Tranche # Amount Expected

Release Date

Actual

Release Date

Release

Tranche 1

(DPL 3 Loan 82300)

USD 130 million

(USD 129.84 million disbursed) June 13, 2013 May 13, 2013 Regular

Tranche 2

(DPL 4 Loan 84670 )

USD 130 million

(USD116.04 million disbursed) May 25, 2015 May 5, 2105 Regular

17. Table 2 presents the prior actions for each DPL, all of which were completed (except for one

indicative trigger—approval of Organic Law—introduced under DPL 3 which was dropped as a prior

action for DPL 4). The reason for dropping this trigger is discussed in section 2.2. As explained later

in the document, dropping this trigger did not affect the overall program outcome. Furthermore, the

Organic Law was adopted in July 2015. Progress toward the implementation of prior actions and their

completion was determined through regular World Bank missions and ongoing dialogue.

Table 3. Policy Matrix

DPL3

Policy Area A: Governance of the Municipal Solid Waste Area Status

The Cabinet Council (Conseil de Gouvernement) has approved on December 14, 2012, the draft of a law

(loi-cadre) on environment and sustainable development, introducing: (i) the right of any person to access

environmental information; (ii) the institutional arrangements for environmental control; and (iii) the

principle of extended producer responsibility.

Completed

The National Commission for the National Municipal Solid Waste Management Program has approved on

October 23, 2012, the introduction of a citizen feedback tool on quality and adequacy of municipal solid

waste services (“Citizens Report Cards”), as a key component of the National Municipal Solid Waste

Management Program to support local governments in building demand-side governance in the municipal

solid waste service delivery.

Completed

6

The Minister of Interior has issued Circular No. 8029 dated May 23, 2012, requiring municipalities to

disclose extracts of municipal solid waste service contracts in the Official Gazette for Local Governments

(Bulletin Officiel des Collectivités Territoriales).

Completed

Policy Area B: Institutional and Financial Sustainability of Municipal Solid Waste Management Service

The Minister of Energy, Mines, Water and Environment has signed on December 10, 2012, three contracts

with engineering firms in order to assist local governments better prepare and manage municipal solid waste

projects and contracts throughout the territory of the Borrower.

Completed

The Minister of Interior has issued Circular No. D13015 dated December 17, 2012, establishing a municipal

solid waste fee that could be charged by municipalities to large waste producers, in compliance with the

provisions of Article 23 of Law No. 28-00 dated November 22, 2006, on solid waste management.

Completed

Appropriate funding has been made available to the National Solid Waste Management Program for 2012,

and the Borrower’s draft budget law for 2013 includes appropriate budget allocation in support to the

National Municipal Solid Waste Management Program.

Completed

The Minister of Interior has issued Circular No. 5533 dated October 5, 2012, regarding local governments’

budget preparation, and Circular No. 17887 dated December 11, 2012, addressing the issue of arrears due

by local governments under municipal solid waste service contracts, including specific instructions and

guidance: (i) in order to ensure fair estimate of service costs; (ii) on price revision; and (iii) on budget

arrangements regarding arrears rescheduling agreements.

Completed

Policy Area C: Environmental Monitoring and Control

The Head of Government (Chef du Gouvernement) has issued Circular No. 27/2012 dated November 30,

2012, establishing a national information and coordination system on environmental inspections, infractions

and sanctions.

Completed

The Minister of Energy, Mines, Water and Environment has issued Circular No. 66/2012 dated November

15, 2012, establishing within the Ministry a special unit of sworn-in environmental inspectors. Completed

Policy Area D: Development of Recycling Value Chains

The Cabinet Council (Conseil de Gouvernement) has approved on October 15, 2012, the Borrower’s draft

budget law for 2013, which, inter alia, (i) introduces an eco-tax on plastic packaging, and (ii) amends the

arrangements applicable to the National Fund for Environment (Fonds National pour la Protection et la

Mise en Valeur de l’Environnement) to have such Fund receiving the revenues of the eco-tax.

Completed

Subsequent Operation: DPL4

Policy Area A: Governance of the Municipal Solid Waste Area Status

Fourteen (14) Regional Observatories for Environment and Sustainable Development have been established

in 2011-2014 to monitor environmental indicators, including those related to solid waste management. Completed

The National Commission for the National Municipal Solid Waste Management Program (NMSWMP) has

adopted on October 29, 2014, the use of the citizen feedback tool on quality and adequacy of municipal

waste services (“Citizens Report Cards”) as an eligibility criterion for NMSWMP financial support.

Completed

Policy Area B: Institutional and Financial Sustainability of Municipal Solid Waste Management Service

The Ministry of Interior has adopted a multi-year assistance program to support local governments and to

create inter-municipal/regional institutions for local public services including municipal solid waste

services, and secured on December 2, 2013, the financing for the implementation of such program.

Completed

The Chief Treasurer (Trésorier Général) has issued Decision No. 0188 dated July 16, 2014, regarding the

General Treasury’s (Trésorerie Générale) advisory services to local governments to improve the

management of their revenues.

Completed

The Minister of Interior has issued Circular No. 17495 dated October 28, 2014, which defines the modalities

for a third party conciliation mechanism for disputes, and requires the inclusion of such mechanism in all

delegated management contracts between municipalities and private operators for municipal solid waste

services.

Completed


The Cabinet Council (Conseil de Gouvernement) has adopted on January 8, 2015 a draft decree establishing

an environmental control body (Police de l’Environnement) in accordance with the provisions of Law (loi-

cadre) No. 99-12 on environment and sustainable development as promulgated on March 6, 2014.

Completed


The Cabinet Council (Conseil de Gouvernement) has adopted on December 4, 2014 a draft decree concerning

the reorganization of the Ministry in charge of Environment, under the Minister of Energy, Mines, Water and Completed

7

Environment (Ministère délégué auprès du Ministre de l’Energie, des Mines, de l’Eau et de l’Environnement,

Chargé de l’Environnement), including the creation of a unit in charge of developing the recycling value

chains, and the Minister in charge of Environment, under the Minister of Energy, Mines, Water and

Environment, has issued Circular No. 209 dated November 11, 2014, establishing a strategic committee for

recycling value chains with the participation of key actors (local governments, eco-tax payers, recycling

industry, civil society organizations).

The Minister in charge of Environment, under the Minister of Energy, Mines, Water and Environment, has

issued Circular No. 208 dated November 11, 2014, (i) setting forth the modalities for the allocation of eco-

tax revenues; and (ii) providing that at least 20 percent of eco-tax revenues shall be allocated to support

recycling activities targeting waste-pickers with specific focus on the gender dimension until the completion

of the National Municipal Solid Waste Program.

Completed

2.2 Major Factors Affecting Implementation

18. The World Bank’s early involvement, continuity in leadership, and long-term

engagement in the sector helped reach results in a complex sector. The World Bank’s early8

involvement allowed to inform and orient the Government’s PNDM and ensure its alignment with the

implementation of the Programmatic Series. Key Government and World Bank staff saw the DPL

program starting by DPL 1 and ending by DPL 4. This allowed continuity of leadership and vision

throughout the program. The long-term engagement of the World Bank through two Programmatic

Series allowed targeting low-hanging fruits first and then gradually focusing on more complex issues,

such as transparency and the recycling value chain. The Government’s commitment to decentralization

of MSW responsibilities was among the primary success factors. The decentralization process gave

implementation responsibilities to the municipalities, which was a major positive factor for success in

implementation.

19. Strong Government coordination and oversight. The first Programmatic Series allowed to

cement more fluid cooperation and coordination between key ministries. As such, the Ministries of

Economy and Finance, Environment, and Interior provided stable and strong leadership and oversight

through the PNDM National Committee. In addition, the well-established and fully operational

technical and financial incentive mechanism that has been put in place, through the PNDM, continues

to deliver tangible results with regard to municipal ownership and the private sector.

20. Ownership of LGs, initiated under the first series, became fully operational with the

adoption of the prior actions under Policy Areas A and B. Linking demand-side governance,

through CRCs, to financial eligibility criteria under the PNDM incentivized the private sector to strong

implementation performances. This fundamental change to implementation of the policy framework

achieved a three-way communications network within the waste sector (that is, citizens to LG to private

sector), which built confidence for the private sector to invest and perform. Citizens also became fully

aware of each contract signed with private sector operators for both collection and landfill activities.

As demand-side governance improved, it also helped LGs increase their aggregate municipal incomes

and decrease the payment delays (arrears) to private operators. The Government, through its

monitoring and inspection program, reinforced the improved performance of the private sector by

8 The World Bank’s involvement in the sector started in 2003 through the regional solid waste management program for

the Mashreq and Maghreb Region and implemented by the Mediterranean Environmental Technical Assistance Program

of the World Bank. This regional project was the major catalyst of solid waste management reform in Morocco. It

developed the necessary policy and institutional studies upon which this DPL was structured. In addition, the cost

assessment of environmental degradation, conducted by the World Bank in 2003, formed the basis for engaging the

Government in a policy discussion in solid waste management.

8

achieving 100 percent inspection of all sanitary landfalls in operations between 2014/2015.

21. One indicative trigger for DPL 4 was dropped, but this did not affect the overall program

outcome, namely the approval by the Cabinet Council of the draft Organic Law on the reorganization

of local and regional governments, confirming the responsibility of the full waste management chain

(MSW planning, collection, cleaning, and disposal) to municipalities. This indicative trigger was

introduced at approval of DPL 3 to mitigate the risk related to possible fragmentation of the

responsibility of MSW that emerged during the discussion of the regionalization agenda.9 During the

preparation of DPL 4, such risk was assessed and found to be no longer relevant. Indeed a large

consensus among key stakeholders was reached to preserve the principle of an ISWM and to preserve

the full responsibility of the entire MSW chain to municipalities. This confirms the related provisions

of Law 28-00 and the Charte Communale. The Government explicitly reconfirmed such provision in

their Letter of Development Policy (see Program Document DPL 4 - Annex 1). Moreover, the Organic

Law10 was approved shortly after the approval of DPL 4.

2.3 Monitoring and Evaluation (M&E) Design, Implementation and Utilization

22. The design of the M&E system was robust and focused on a mix of policy objectives with

expected results and indicators, covering the four policy areas. The M&E system was closely

aligned to key outcomes expected from the PNDM. As shown in section 1.3, the M&E framework

remained almost identical between DPL 3 and 4. Minor wording adjustments were made to clarify the

meaning of some indicators. The targets of 4 out of 10 indicators were revised upward to reflect better-

than-expected progress on the ground. The targets of 2 out of 10 indicators were revised downward to

take into account delays. The remaining targets were kept the same. All targets were achieved with

many exceeding their targets and only one partially achieving its target. With regular World Bank

implementation support, stakeholders were motivated to achieve the interlinked national PNDM

program and the World Bank-supported second Programmatic Series.

23. The target of the indicator ‘Percentage of MSW collected professionally and disposed of in

sanitary landfills’ was revised from 66 percent (at DPL 3) to 55 percent (at DPL 4 appraisal) and

actually reached 53 percent at ICR. There are 22 sanitary landfills operating today in Morocco that

receive about 53 percent of the MSW collected. This is already impressive and attests to the success of

(a) regional government/LG working together to achieve economies of scale and (b) overcoming the

‘not-in-my-backyard’ phenomenon that attracts public opposition in many countries. Despite this

success, the indicator fell slightly behind target because the process to identify a site for a new

sanitation landfill and to prepare environmental and social assessment reports, engineering,

construction, and operations contracts takes several years. In most countries, this process is typically

long and can be exposed to delays in obtaining land clearances. Furthermore, there are five sanitary

9 In Morocco, MSW management was always the responsibility of municipalities. With the Constitutional Reform of

2011 came some thinking to revisit the waste management chain by giving the regions some responsibilities. The World

Bank’s advice was that the responsibility of the entire waste chain should not be fragmented but should remain with the

municipalities. This was confirmed by the Government’s Letter of Development Policy (submitted at board approval of

DPL 4). 10 Les lois organiques relatives aux Collectivités Territoriales ont été adopté le 7 juillet 2015 et inclus : la loi organique

no. 14.111 relative aux régions, la loi organique no 14.112 relative aux préfectures et provinces et la loi organique no.

14.113 relative aux communes. (Bulletin Officiel no. 6440 du 18 février 2016).

9

landfills under construction (Khenifra, Tanger, Beni Mellal, Sefrou, and Casablanca). 11 Once

completed, the percentage of MSW disposed in sanitary landfills is estimated to reach 80 percent.

24. Because the results framework of the second Programmatic Series is very closely linked to the

PNDM indicators, regular meetings of the National Commission for Municipal Solid Waste

Management Program (Commission Nationale du PNDM , CN-PNDM) enable good oversight of

implementation progress.

2.4 Expected Next Phase/Follow-up Operation

25. During both the Quality Enhancement Review and Regional Operations Committee meetings

of DPL 4, future World Bank support to solid waste management was discussed. In both meetings, it

was recognized that the waste sector can continue to benefit from the World Bank’s technical assistance

(especially in emerging issues such as recycling and industrial and hazardous waste); the meetings

agreed that this dialogue can continue within the broader environment and sustainable development

agenda through the Green Growth DPLs or other instruments.

3. Assessment of Outcomes

3.1 Relevance of Objectives, Design and Implementation

26. The objectives of this operation were highly relevant to Morocco’s development priorities

as reflected in the PNDM and aligned to the World Bank’s Country Partnership Strategy (CPS). The objectives were relevant to supporting the second phase of the PNDM, and aimed to generate

tangible results for the program to carry forward its full 15-year duration (by 2022). The objectives of

this operation were also fully aligned with the CPS for the period FY10–FY13, supporting its second

and third pillars of service delivery to citizens and sustainable development in a changing climate, and

its crosscutting theme of governance. It continued to be very relevant in the CPS FY14–FY1712

supporting results area 3 strengthening governance and institutions for improved service delivery to all

citizens through its innovative use of CRCs that aim to improve access to and quality of service

delivery, by listening to users and making service providers and LGs more accountable. The

Programmatic Series was also relevant to the World Bank Group’s strategic goals of ending extreme

poverty and promoting shared prosperity in a sustainable manner. Concretely, the supported policies

were designed to help (a) foster job creation through the development of vibrant solid waste recycling

value chains and (b) control and mitigate adverse environmental impacts of existing dumpsites, thus

improving the living conditions of the nearby residing population, most of whom are marginalized and

poor.

27. A strong analytical base combined with incorporation of lessons learned from the first

series informed the design of the second series. In addition to significant analytical work prepared

under the first series and the ICR of the first series, the design of the second series also benefited from

analytical work in emerging challenges (annex 6). For example, the establishment of an Environmental

Police under Policy Area C was the first of its kind in the region. The expertise of an international

environmental lawyer, mobilized by the World Bank, combined with the Government’s own diagnostic

11Landfills completion rate varies between 40 percent and 90 percent. 12 World Bank. 2014. CPS for the Kingdom of Morocco for FY14–FY17. Report No. 86518-MA.

10

of environmental control in Morocco13 resulted in a well-designed environmental inspection system at

the Ministry of Environment (MOE) in Morocco. This system includes the legal framework (with the

issuance of the decree establishing the environmental body), as well as the institutional capacity to

carry out this mandate (by training and accrediting environmental inspectors).

3.2 Achievement of Program Development Objectives

Rating: Satisfactory

28. The PDO was to support the Government’s efforts to improve the economic, environmental,

and social performance of the MSW sector. Four policy areas contributed directly and indirectly to

achieve the PDO. Policy Areas B and D (improve financial revenues of municipalities, decrease arrears

due to private operators and increase eco-tax revenues) contributed to improving the economic

performance of the sector. Policy Area C (improve environmental monitoring and control) contributed

directly to enhance the environmental performance of the sector. Policy Areas A and D (engaging

citizen through feedback, ensuring that 20 percent of eco-tax revenues are allocated to support waste

pickers’ recycling activities, and generating income opportunities in recycling) contributed to improve

the social performance of the sector. Policy Area A (improve governance, access to information, and

transparency in the use of public money and so on) contributed indirectly to all three objectives in the

PDO.

Overall Outcomes of the MSW Sector DPL

Policy Area A: Governance of the Municipal Solid Waste sector

29. As mentioned previously, Policy Area A focuses on enhancing demand-side governance in the

MSW sector by (a) promoting access to information, (b) fostering greater transparency, and (c)

improving accountability of service providers to citizens.

30. Access to information. The first series supported the Government’s efforts in improving access

to information through the preparation of the PNDM Communication Strategy and Action Plan with a

publicly accessible website14 for the PNDM. To further support the Government in its effort to promote

public access to information, the second series supported the successful establishment of 14 OREDDs15

covering almost the entire country. The observatories were established by the MOE, in partnership

with the regional councils and municipalities. They are tasked to collect environmental data, to monitor

the status of the environmental in each region, and to publish environmental indicators. The

observatories work in a participatory manner as they rely on a large network of local partners

(universities and research institutes) to collect and monitor information. The fact that information is

collected at the source makes it more reliable and enables a greater sense of ownership at the local

level. Over 200 environmental indicators are collected, including 20 indicators on MSW. This wealth

13 Analytical works include Establishment of Environmental Police Framework Note prepared by M. Bekhechi (World

Bank, 2014); Etude Relative à la Mise en Place d’une Police Nationale de l’Environnement prepared by MEMEE (2014);

and various training and brainstorming sessions on environmental control and inspection led by an international

environmental lawyer in Rabat between 2014 and 2015. 14 http://www.environnement.gov.ma/fr/dechets?id=226 15 The signed convention for the establishment of the OREDD along with updated status of each OREDD and the list of

MSW indicators monitored by the observatories can be found in the project file.

11

of information enables the preparation of a State of the Environment Report for each region16 and

identifies the main pressures as well as strategies and action plans for interventions. The robust

information system developed through these observatories has put the regions in the driver seat in

collecting and monitoring the state of the environment.

31. Fostering greater transparency by broadening public access to MSW contracts. In

accordance with the Communal Charter and Article 14 of Law 54-05, the Ministry of Interior’s Circular

No. 8029 of 2012 instructs municipalities to publish contract information, including extracts of MSW

contracts with private operators, in the BOCT. As a result, extracts of all MSW contracts signed after

the issuance of the circular have been published on the BOCT web platform. The adoption of this

policy contributes to increasing citizens’ confidence in private providers and enables a more informed

debate on private sector providers’ performance in this sector. It also sets a good benchmark among

municipalities and private operators toward more transparency and accountability in the use of public

funds. Greater transparency in contract management for collection, street cleaning, and landfilling led

to increased competition in the private sector. The published tables17 showing a summary of private

contracts for waste collection and street cleaning indicate that contracts have been awarded to over 17

different private operators between 2010 and 2015. A similar situation was also observed in contracting

private operators for landfilling.

32. Accountability of service providers to citizens. Following a successful initiative to introduce

CRCs—the first citizen feedback mechanism used in municipal services—in the municipality of

Temara (2012) under the first Programmatic Series, the second series supported the scaling up of this

initiative. Four additional cities (Agadir, Mohammedia, Rabat, and Tanger) have introduced CRC as a

rigorous approach to enhance the accountability of service providers and municipal authorities. This

mechanism offers space for citizens to express their views on the adequacy and quality of the MSW

service, and inform the municipality on the performance of their contracted private operators. The CRC

consists of (a) carrying out a household survey for residents to provide both factual and perception-

based information on the municipality’s service coverage and quality to municipal authorities and

service providers and (b) organizing a series of town hall consultations to discuss improving service

delivery based on the survey findings and establishing a service improvement ‘compact’ to identify

areas where stakeholders (service providers, municipal officials, and residents) can commit to a set of

short- and medium-term actions to improve solid waste collection services in their municipality. This

process helps municipalities ensure that the evidence-based dialogue with citizens is integrated into

better-formulated future contracts with the service providers.

Policy Area B: Institutional and Financial Sustainability of Municipal Solid Waste Management

Services

33. The two-pronged approach under Policy Area B of improving institutional and financial

sustainability enabled a cost-efficient and professional quality waste management. Reforms to

create municipal/regional institutions ‘Groupements d’Agglomération et Groupements de Communes’

coupled with the new Organic Law to give LGs full responsibility over the MSW chain created

16 State of the Environment Report for 16 regions as well as one for the entire country are available online:

www.environnement.gov.ma/fr/etat-de-l-environnement#. 17 Tableau synthétique des extraits des contrats de gestion déléguée des déchets ménagers: Collecte et Nettoiement

Décembre 2015. http://www.pncl.gov.ma/fr/Gestionterritoriale/Servicesproc%C3%A9dures/Pages/Equipements-et-

services-publics-locaux.aspx.

http://www.pncl.gov.ma/fr/Gestionterritoriale/Servicesproc%C3%A9dures/Pages/Equipements-et-services-publics-locaux.aspx

http://www.pncl.gov.ma/fr/Gestionterritoriale/Servicesproc%C3%A9dures/Pages/Equipements-et-services-publics-locaux.aspx

12

economies of scale for more affordable waste management services and sufficient institutional change

to professionalize the sector.

34. Four indicators were selected to capture the outcomes of Policy Area B. They focused on: (a)

improving ISWM through the professionalization of MSW systems in harmony with the

decentralization agenda (indicators 3 and 4), (b) securing funding to cover the costs of MSW services

and ensure financial sustainability (indicator 5); and (c) consolidating market competitiveness for

MSW service delivery, by mitigating the risk related to private sector participation in contract

management (indicator 6). Together they reflect the improved operational performance of the sector,

the financial capacity of LG to sustain the MSW services, and the improved environment for the

participation of the private sector.

35. A primary indicator is the percentage of MSW collected professionally and disposed of in

sanitary landfills. The percentage of MSW collected professionally (that is, by private sector

operators) in urban areas increased from 45 percent (in 2007) to about 82 percent (in 2016). The PNDM

target of 90 percent by 2020 is on good track to be achieved. With a substantial improvement in waste

collection and street cleaning, a key indicator of Policy Area B was to increase the availability of

sanitary landfills. The percentage of waste disposed in sanitary landfills has increased from 32 percent

(in 2012) to 53 percent presently. A total of 22 new sanitary landfills have been constructed in Morocco

receiving about 2.9 million tons of waste (or 53 percent of collected waste). This includes the recently

completed landfills of Marrakech, Meknes, and Ouarzazate. This is a major achievement given the

lengthy time it takes in other parts of the world to obtain all the clearances to operate sanitary landfills.

Furthermore, many previous ‘open dumps’ have either been closed or rehabilitated and are now

operating with much higher environmental and social protection standards. At the time of this ICR, it

is clear that this outcome was successfully implemented. Finally because most of the new landfills

have capacities of 15–20 years, without taking into account the new initiatives for recycling that will

increase landfill lives substantially, the outcome clearly shows that Morocco will have sufficient

landfill capacity into the 2025–2030 period.

36. While many landfills are recent, some of the earlier landfills (for example, Rabat and Fez which

have operated for approximately 10 years) are already upgrading their operation through expansion of

biogas facilities, electricity generation, leachate treatment facilities, and recycling facilities. The

private sector was involved in enhancing the performance of waste facilities (or as they are called in

Morocco ‘Centre d’Enfouissement et de Valorisation’) bearing the cost (and the benefits) of installing

new technologies. Hence there were no additional costs to municipalities. This is a strong indication

that professionalism was achieved and will likely also be achieved in the newer landfills. One of the

benefits of such improvement is an example from the Fez landfill where biogas collection has been

converted into over one megawatt of electricity satisfying 30 percent of street lighting for the entire

city. 18 These concrete results demonstrate to citizens visible outcomes from sustainable and

professional landfill operations. A feature story19 ‘Morocco Lets Nothing go to Waste’ was recently

published on the Oum Azza landfill (outside Rabat) and attests to the exemplary management of

sanitary landfill.

18 Methania: Biomethane, l’Energie de Demain “Maroc: Fès S’Eclaire au Biogaz en Valorisant ses Déchets” (Published

September 2, 2015). 19 http://globalpractices.worldbank.org/enr/Pages/Featured%20Stories/ityityi.aspx (Published February 16, 2016).

http://globalpractices.worldbank.org/enr/Pages/Featured%20Stories/ityityi.aspx

13

37. To achieve lower costs for sanitary landfills, the international practice is to have regional

landfills receiving wastes from a large territory with significant population. Under the second series,

the creation of inter-municipal institutions ‘Groupement de Commune’ contributed to establishing

regional landfills and hence economies of scale. Now, regional sanitary landfill sites are a mandatory

element within regional land-use plans, and are reflected in the MSW Masterplans under preparation

in 64 LGs.20 The unit costs for new sanitary landfills show reasonable results in the range of US$20

per ton compared to US$45 per ton on average in the United States21 and a range of US$38 to US$52

in the Greater Beirut area in Lebanon.22 This is a substantial achievement in cost effectiveness.

38. With regard to financial sustainability, most urban municipalities in Morocco enjoy a strong

and growing revenue base. From 2012 to 2015, their revenues increased by about 20 percent, reaching

a total of MAD 36,785 million in 2015. The ‘communal services tax’, traditionally understood to cover

municipal services such as street cleaning, waste collection, and street lighting, today typically

represents between 15 percent and 30 percent of total current municipal revenues. Value added tax

transfers (30 percent of the country’s value added tax revenues are transferred to LGs according to a

set of criteria) constitute another large part of current revenue, up to 35 percent of total revenues.

39. DPL 3 and DPL 4 contributed to such municipal finance improvements through (a) promoting

general treasury’s advisory services to LGs to improve the management of their revenues; (b)

supporting the establishment of the MSW fee for large waste producers; (c) sustaining the PNDM’s

limited-in-time financial support (three to four years for each eligible project, corresponding to a

maximum of 30 percent of the investment costs) to accompany the transition of the sector and to

encourage municipalities modernize the MSW services; by 2016, and (d) ensuring adequate sources of

funding (through eco-tax) to keep modernizing the service over the long term, once the PNDM

financial incentive mechanism comes to an end.

40. Such improvements to the municipal financial management framework have greatly

contributed to medium-term financial sustainability of the MSW services. The ability of LGs to

maintain operations at a sustainable service level is demonstrated by their ability to reduce their late

payments (arrears) to the private sector from 70 percent to 20 percent (overachieving a target of 30

percent) and demonstrates a strong financial sustainability outcome. This was a crucial outcome that

helped mitigate the risk related to private sector participation and hence improved sustainability of the

MSW services.


41. While the EIA procedures were greatly improved during the first Programmatic Series, the

second series achieved better monitoring and enforcement capacity. The second series achieved 100

percent inspection of operating sanitary landfills, regularly inspected, including laboratory analysis,

which is far in advance of the long-term (2022) aim under the PNDM. This outcome ensures that the

MOE is carrying out its mandates with regard to environmental control in application of the Solid

Waste Law 28-00. For example, this monitoring already identified that improved leachate treatment is

20 12 MSW Masterplans have been completed; 43 are under preparation and 9 are being procured (May 2016). 21 Waste Business Journal: Industry Research and Analysis (2012) available online at www.wastebusinessjournal.com. 22 German Development Agency (Deutche Gesellschaft fur Intenationale Zusammenarbeit, GIZ). 2014. Country Report on

the Solid Waste Management in Lebanon. Sweepnet. Data reflect landfilling costs only (that is,they exclude collection,

sorting, and so on).

14

needed in a few site-specific cases to meet Moroccan conditions and that technical specifications for

landfills may need more adaptation and strengthening. As indicated in section 3.4c the benefits of

improving environmental inspection and control go beyond the solid waste sector.

42. To further enhance environmental control in Morocco, the Government adopted, as part of the

second series, a decree establishing an environmental control body (or Police de l’Environnement).

The adoption of this decree along with establishment of a unit dedicated for environmental inspection

(following the reorganization of the MOE in December 2014) formalized the commitment of the

Government toward the establishment of effective environmental control and monitoring system

aiming at regular inspection and monitoring of environmental pollution, including projects subject to

EIA (such as MSW treatment/disposal facilities). In anticipation of the decree, the MOE has been

strengthening its core staff of inspection and control agents. It has already accredited 25 agents and

another 50 have been trained and are in the process of getting accredited. These agents are in charge,

among other things, of inspecting sanitary landfills according to specific guidelines under development

by the MOE. 23 A national information system on environmental offenses is being put in place as a

tracking tool to enhance the monitoring and control. Following the second Programmatic Series, the

MOE now has a functioning system in place to enable better environmental monitoring. This system

includes a decree, a dedicated unit, guidelines, and a core of trained inspectors.


43. Following tangible results, in waste collection and landfilling, from the first phase of the

PNDM, the Government’s priorities shifted from a waste management system that primarily relies on

the systematic disposal of waste into landfills toward a resource management system focusing on

material recovery, reuse, and recycling. This paradigm shift fosters the development of a circular

economy focused around the creation of recycling chain values.

44. To support the Government in its reform program, the focus of Policy Area D was (a) to develop

waste recycling value chains and secure viable sources of funding (indicators 8 and 9) and (b) integrate

informal waste pickers in the sector (indicator 10).

45. While MSW in Morocco contains a large percentage of recyclable material, its recycling sector

is stagnant with a rate of about 5 percent of collected waste being recycled. The Government’s

objective in the PNDM is to reach a 20 percent recycling rate by 2022. As such, most new sanitary

landfills in Morocco are built with provision for sorting facilities and the Government is committed to

develop recycling value chains. The value chain for plastics packaging was identified as the first

priority in volume and environmental impacts. The MOE is working on value chains related to used

batteries, waste oil, electronic waste, used tires, paper, and demolition waste, which are at different

stages of development.24

46. In compliance with Law 99-12 and the concept of Extended Producer Responsibility, the

Government introduced an eco-tax on plastic packaging as a para-fiscal instrument to finance the

development of the plastic recycling value chain. The second Programmatic Series provided expertise

23 MEMEE: Manuel de Control des Décharges includes l’Elaboration des Lignes Directrices de Contrôle de Gestion

Environnementale des Décharges Contrôlées under review and finalization. 24 MEMEE: Etat d’Avancement Filières de tri et de valorisation des déchets et des textes y afférents. Note prepared on

October 15, 2015.

15

to the MOE to establish the governance25 and operational systems (including eligibility criteria for

projects to be funded by the eco-tax) 26 for this recycling value chain.

Box 1. Recycling and Social Integration: Oum Azza Experience

Oum Azza sanitary landfill is located outside Rabat and receives about 850,000 tons of MSW per year (in 2015)

from 13 municipalities.

The landfill is privately operated. One of the requirement of the contract between the operator and the

municipality was the social inclusion for waste pickers.

Initially, an international nongovernmental organization (CARE) surveyed the situation of waste pickers in the

preexisting Akkreuch dumpsite and provided advice to the formal integration of waste pickers.

In 2011, Cooperative Al-Tawaffouk (which means ‘success” in Arabic) was established. This was the first

recycling facility in Morocco managed by former waste pickers.

In 2015, the cooperative included 140 members (of which 22 were women, that is, 15 percent). They sort about

2,200 tons per year (about 3 percent to 4 percent of received waste) and make between MAD 4 million and MAD

5 million in total revenue per year.

During a recent interview by the World Bank (see feature story: ‘Morocco Lets Nothing go to Waste’ October

2015), the president of the cooperative, M. Y. Mazzout, indicated that “everyone is paid the same monthly salary

of MAD 2,620 a month and that any excess profit is shared once a year according to the number of hours each one

has worked.” A female member, Ms. Milouda, indicated that “some of the advantages of working in the

cooperative were health insurance, access to a bank account, and a safer environment.”

The successful experience of Oum Azza is being replicated in other landfills.

47. The eco-tax was introduced in the Budget Law of 2013 and became effective in January 2014.

To date about MAD 400 million has been raised by far surpassing the original target of MAD 230

million. An organized system to select and oversee projects along with substantial revenues from the

eco-tax enables the selection and approval of 18 recycling projects (exceeding the target of 10 projects).

The successful experience of Oum Azz recycling (box 1) is serving as the model for the other 18

projects that are starting up with similar sorting plants.

48. One of the prior action of DPL 4 ensures that 20 percent of eco-tax revenues are allocated to

support recycling activities targeting waste pickers.27 As such, the 18 projects approved (indicator 9)

enable the creation of over 1,050 job opportunities for waste pickers (indicator 10).

3.3 Justification of Overall Outcome Rating


49. The prior actions combined with the results indicators achieved for the second Programmatic

Series have created a strong momentum to achieve the long-term outcomes of the 15-year PNDM that

ends in 2022. The most significant accomplishment of outcomes under this second series is the shift

from a ‘command and control’ approach to a demand-driven paradigm based on public participation

and monitoring. Participation of the public has already been achieved in the waste sector in Morocco

and this will now support the continued sound operations of collection and disposal in sanitary landfills

25 World Bank (2014) Note sur l’Institution d’un Comité d’Orientation Stratégique des Filières de Valorisation (COSFIV)

prepared by F. Ghariani and World Bank (2014) Note sur le Développement et Gestion de la filière plastique, Concept et

opérationnalisation prepared by F. Ghariani 26 World Bank (2015) Manuel Opérationnel d’Utilisation des revenus de l’écotaxe prepared by F. Ghariani 27 MEMEE Circulaire No. 208 dated November 11, 2014. Mécanisme d'allocation des revenus de l'écotaxe aux activités

des filières de recyclage et de valorisation des déchets plastiques.

16

the urban areas, a growing ratio of recycling activities, and gradual expansion to the rural areas to

achieve the long-terms outcomes established under the PNDM. The continued relevance of objectives,

design and implementation, and World Bank support to the MSW sector, combined with achievement

of the main indicators, albeit moderate shortcomings on two indicators (indicators 3 and 5), justify a

rating of Satisfactory.

50. In addition, the damage cost related to the inappropriate municipal waste management in

Morocco was estimated at MAD 80 per capita in 2000. This cost was reduced by half to MAD 40 per

capita in 2014.28 This reduction in damage costs reflects the improved municipal waste management

over the past decade.

3.4 Overarching Themes, Other Outcomes and Impacts

(a) Poverty Impacts, Gender Aspects, and Social Development

51. It is difficult to measure identifiable impacts on poverty, gender, or social development within

a short time frame of a DPL series. The substantial improvement in waste services (professional

collection of MSW has increased from 45 percent of urban areas in 2007 to over 80 percent in recent

times) benefits all strata of the population (low-, medium-, and high-income urban neighborhoods).

Hence, poor communities previously unserved and/or suffering from low-quality services now have

equal access to decent MSW collection services. In addition, the closure of dumpsites contributed to

the environmental improvement of the nearby areas that are often inhabited by low-income households.

52. The household survey undertaken, for example, in the city of Temara (box 2), found great

disparities in the coverage and quality of waste services across housing types, with villas residents

receiving much better service than slum residents. These findings were considered key by the

municipality because they indicate that more resources are being devoted to services that cater to the

1.2 percent of the population living in high-income neighborhoods, than the remaining residents. This

feedback was discussed during town hall events and fed back to the contractor to improve service.

While it is too soon to judge whether changes have happened, the literature has demonstrated the

benefits of customer feedback in improving services delivery.

28 Croitoru, and Sarraf. Forthcoming. The Cost of Environmental Degradation in Morocco. The World Bank.

17

Box 2. Citizen Engagement: A Three-step Process

Citizen engagement under Policy Area A was undertaken as a three-step process: survey, town hall, and compact.

Step 1: Household surveys to prepare CRCs. Survey gathered factual data (for example, “Does your household get

home-based waste pickup?”) as well as perception for example, “Do you think the private contractor does a

satisfactory job?”). Some of the findings from the surveys undertaken in the cities of Mohamedia, Tanger, and

Temara are:

Great disparities in coverage and quality of service across housing types (villas,a apartments, and slums), with

villas (only 1.2 percent of the population) receiving much better service than low-income neighborhood (48

percent of the population)

Bins too small, too few located far away from houses

90 percent of the people surveyed said they are interested/willing to sort and recycle household waste

Women and men held same opinion about waste service

Private operator improved their image by doing the survey; they are now willing to fund the CRC

Step 2: Organize a series of town hall meetings between residents, private operators, and municipality to discuss the

survey results and debate/reflect on the findings of the survey.

Step 3: A ‘compact’ is prepared to identify areas where service provider, municipal officials, and residents can

commit to a set of actions to improve the MSW services. The compact feeds into the contract of the next private

operator.

Note: a Villa is defined in this context as a relatively large luxurious residence.

53. The impact of the operation on low-income waste pickers is described in section 3.2. It shows

that by ensuring that 20 percent of eco-tax revenues are allocated to support recycling activities,

targeting waste pickers will enable the creation of 1,000 job opportunities for waste pickers among the

18 recycling projects that have been approved already.

(b) Institutional Change/Strengthening

54. All policy actions supported by this Programmatic Series were largely institutional in nature.

Institutional strengthening was an integral part of this series as described in section 3.2.

(c) Other Unintended Outcomes and Impacts

55. The benefits of strengthening the environmental control system in Morocco (under Policy Area

C) goes well beyond the solid waste sector. Today, the MOE has a functioning system (which consists

of a decree, a dedicated unit, guidelines, and a core of trained inspectors) in place, which enables better

environmental monitoring. It ensures that all facilities (such as, but not limited to, MSW

treatment/disposal facilities) and infrastructure with environmental impacts meet the standards and

norms during construction and operations.

56. Another outcome is the development of recycling value chain (under Policy Area D) beyond

plastic. Lessons from establishing the plastic value chain are used to establish other value chains such

as batteries, waste oils, electronic wastes, used tires, paper, and demolition waste, which are at different

stages of development.29

29 MEMEE: Etat d’Avancement Filières de tri et de valorisation des déchets et des textes y afférents. Note prepared on

October 15, 2015.

18

3.5 Summary of Findings of Beneficiary Survey and/or Stakeholder Workshops (See section 3.2 under Policy Area A and section 3.4 (a)).

4. Assessment of Risk to Development Outcome Rating: Moderate

57. The risk that development outcomes from this operation will not be maintained are considered

Moderate. With the successful implementation of the PNDM phase one and two and with about 10

years of the World Bank’s support to the waste sector, Morocco is unlikely to shift gears at this point.

The Government will soon be entering the third phase of its PNDM (2018–2022) and having proven

its commitment to the first two phases is very likely to pursue its long-term goals.

58. Technical risk. The risks to technical implementation remain low to moderate, as now the

decentralization to LGs and their contracting of the private sector is embedded in both the collection

and disposal operations. The service coverage rates are now high, and there is low risk that the coverage

ratios will drop because the private sector has long-term contracts. Collection services are generally

seven-year contracts and disposal services are generally 15–20 year contracts, and already some

disposal contracts have cost efficient multiyear extensions.

59. The risks of stakeholder opposition to some recycling reforms were mitigated by including

the informal sector. As reuse and recycling have always involved the informal sector, the goal of

increasing recycling and linking it to increased income generation for the informal sector was a strong

underlying factor for success in implementation. This was reinforced by providing a new source of

income from ‘eco-tax’ revenues to encourage the informal sector to form cooperatives to become the

owners and employees of modern waste sorting facilities, and to provide paid services to landfill

operations. The shift from an informal waste ‘picker’ or ‘scavenger’ to a formal employee was quickly

accepted by LGs, and a strong pipeline of recycling projects was achieved.

60. The risk of private sector opposition to the new ‘eco-tax’. As the sector was being

transformed, the demand for more complex recycling projects was growing and the private sector was

eager to prepare new facilities in Morocco to reprocess sorted recyclables rather than export raw sorted

materials. To support this transformation, the Government introduced the eco-tax in the 2013 Budget

Law to finance the development of recycling value chains, starting with plastic packaging. Eco-tax

revenues are to be used as an incentive to support LGs in financing recycling activities and

implementing social inclusion programs for informal waste pickers. The eco-tax (initially at 2.5

percent) was applied on plastic raw material and plastic products30 but not on imported products

containing plastic. This raised concerns among industrialists in Morocco who saw the application of

the eco-tax as ‘unfair’. Rounds of consultations took place with the MOE and the tax is likely to be

reduced by 1 percent and extended to imported plastic products in the 2017 Budget Law to make it

more equitable.

30 A list of all products subject to the eco-tax is found in Chapter 39 of the Nomenclature Douanière Marocaine.

www.douane.gov.ma.

http://www.douane.gov.ma/

19

5. Assessment of Bank and Borrower Performance

5.1 World Bank Performance

(a) Bank Performance in Ensuring Quality at Entry

Ratings: DPL 3: Satisfactory; DPL 4: Satisfactory

61. DPL 3. The World Bank’s performance is rated Satisfactory. The choice of a second

Programmatic Series was guided by the lessons learned from the first Series’ ICR (ICR No. 2276).

This choice continued supporting the Government’s reform program in MSW, allowed for deeper

reforms (such as decentralization and improvements to LG finances and more focus on medium- and

smaller-size municipalities), as well as for fine-tuning results indicators. The World Bank performance

for quality at entry (QEA) was especially strong in assisting in the coordination among central

government ministries and in improving communications with the LG level. The design of the DPL

program benefited greatly from the base of analytical work done (summarized in annex 6).

62. DPL 4. As with DPL 3, the World Bank’s performance was satisfactory during loan preparation

and appraisal. The World Bank team assisted the Government through flexible adjustments in the

results indicators program that helped ensure support to implement policy actions, but not to the

detriment of successful implementation. The World Bank was especially proactive in supporting the

new and innovative Policy Area D: Development of Recycling Value Chains. The World Bank brought

in specialized technical expertise (such as an arbitration and conciliation lawyer; a public-private

partnership lawyer, and a recycling specialist) and facilitated dialogue with the private sector and

informal waste pickers to build the policy action and results indicators based international experience.

With this constructive support by the World Bank, this complex policy area was appropriately designed

and the target indicators exceeded.

(b) Quality of Supervision


63. The DPL program implementation has been supervised by task teams of technical and

institutional specialists. Six missions were carried out during implementation with detailed supervision

reports (November 11–15, 2013; March 10–15, 2014; June 18–27, 2014; October 13–23, 2014; April

5–9, 2015, May 28, 2015 [by videoconference], and October 19–29, 2015). The findings were

discussed with the Government and remedial measures taken when needed. In addition, individual task

team specialists, with expertise in different areas, followed the progress of different components in

detail. While the World Bank team of experts (and consultants) was varied and specialized, it was led

by the same task team leader from the preparation of DPL 1 to the supervision of DPL 4. This enabled

a consistent vision throughout the program. Despite the impressive progress for reforms in the solid

waste sector under the first Programmatic Series, and under DPL 3, the World Bank supervision of

DPL 4 alerted the Government on delays to achieve a few results indicators for percentage of waste

collected and disposed of in sanitary landfills, number of municipalities implementing CRCs, and

environmental control and inspection of the MSW landfills. The careful supervision helped build what

is generally considered an excellent relationship between the client and the World Bank, as confirmed

by Government counterparts during the ICR mission (April 2016).

20

(c) Justification of Rating for Overall Bank Performance


64. The second Programmatic Series was a well-designed and implemented operation. As the

World Bank’s performance for both QEA and supervision are rated Satisfactory, overall World Bank

performance is rated Satisfactory.

5.2 Borrower Performance

(a) Government Performance


65. As under the first Programmatic Series, the Government continued its full commitments to the

entire second series so as to achieve the development objectives. Among the very useful actions by the

Government was the establishment of CN-PNDM31 that is dedicated to coordinate all waste policies

and investments and to monitor results indicators. During the preparation of DPL 3, the Government

also supported extensive consultations with stakeholders and civil society, and this mitigated the risks

associated with the introduction of new CRCs and the eco-tax on the private sector. The Government’s

commitment to provide financial support and improve LG revenues contributed to the success. Over

the 2013–2016 period, the Government continued to provide financial support for investments in

sanitary landfills, improvements to the MSW collection services, preparation of provincial Masterplans

for MSW, and closure and rehabilitation of uncontrolled dumpsites, at a similar level as under the first

DPL program. The Government helped resolve most implementation issues on time and the

relationships and coordination with the World Bank and other donors were excellent throughout.

66. While the Government’s overall performance was satisfactory, it also had some shortcomings

with the speed of construction, completion, and operation of new sanitary landfills. This was due to

lengthy procedures in securing environmental and social approvals, in procurement procedures and

land acquisition and in construction, especially when these tasks were decentralized to the municipal

level. Nonetheless, the Government’s performance overall is rated Satisfactory.

(b) Implementing Agency or Agencies Performance


67. The implementing agencies include the Ministry of Economy and Finance, the Ministry of

Interior and the MOE, along with LGs. Hence, the ‘implementing agency’ is indistinguishable from

the Government. Policy actions were implemented by several ministries under the supervision of the

CN-PNDM. A program management unit in the Ministry of Interior was the implementing agency for

the PNDM, but is not evaluated in connection with the reform program supported by the World Bank.

31 The CN-PNDM has been established through Circular 04 of 2009 to (a) coordinate and oversee the implementation of

the PNDM, (b) oversee the allocation of the PNDM funding to municipalities in accordance with set criteria, and (c) provide

strategic guidance to waste management reforms. The CN-PNDM includes representatives from the Ministries of Interior,

Economy and Finance, Foreign Affairs, and Fond Equipment Communal, as well as representatives from other institutions

on a need basis.

21

(c) Justification of Rating for Overall Borrower Performance


68. The rating corresponds to the rating for Government performance, as there was no separate

implementing agency.

6. Lessons Learned

69. Many of the lessons identified in the ICR (of DPL 1 and DPL 2) are still valid. In the following

paragraphs is a highlight of additional key lessons learned through the second series.

70. Sector reforms take time: they should start simple and gradually get more complex. In

Morocco, the World Bank-client dialogue to reform the waste sector started in 2003. From the onset,

the objective of the Programmatic Series was to reform all angles of the waste sector (governance,

environment, social, financial, institutional, and so on). However, the reforms were kept relatively

simple in the first series (the Policy Matrix of DPL 1 and DPL 2 was straightforward). Tangible results

obtained through the first series (see paragraph 5 of this document) encouraged more in-depth reforms

in DPL 3 and DPL 4.

71. Focusing on improving ‘systems’ rather than ‘training’ is more effective in achieving

long-term results. Capacity building and training should to be designed to improve the performance

of a ‘system’ and not only of individual skills. For example, Policy Area C contributed to improve the

environmental control system in Morocco by enacting the necessary decree to establish the

Environmental Police, setting up a special unit dedicated to monitoring and controlling and staffing

and training the unit with environmental inspectors. Similarly, decentralizing MSW responsibility from

central government to LG, under Policy Area B, accompanied by capacity building to LG (in either

technical, financial, contractual, or operation of waste services) created capacity at the national scale.

72. The World Bank-supported reforms should be 100 percent aligned with Government

priorities. As highlighted throughout this ICR, a major contributor of success is the fact that reforms

supported by this DPL series were fully aligned with the Government’s program on MSW.

73. Outsourcing service delivery to the private sector provides a fast scale-up to significantly

strengthen municipal performance in both quality and quantity of MSW managed. With more private

contractors handling waste services came the need to train LGs in contract management; and for the

inclusion of an arbitration close to enhance competitiveness. In 2016, about 82 percent of waste in

urban areas was collected professionally by private operators.

74. In the right context, the use of Policy Development Lending in sector reforms can be a

very effective instrument. The use of two Programmatic Series of DPLs rather than investment

lending has confirmed the usefulness of this instrument to reform waste management in Morocco. A

history of strong World Bank-client dialogue, strong analytical foundations, and a Government ready

and committed to reforms, all contributed to design and adopt the right reforms in a complex sector.

The two series centered on policy matrixes with responsibilities shared between the Ministries of

Interior, Finance, and Environment. The DPL instrument offered analysis, reform planning framework,

implementation support, and convening power by the World Bank while maintaining full government

leadership and ownership of the reforms themselves. These are the essential factors of the partnership

22

that led to the success of both the first and second series.

75. Providing LGs with responsibility over the entire MSW chain is a key lesson for success. While improved MSW management is internationally recognized as benefiting health, environment,

safety, and economic growth for regional and urban areas, the responsibilities for collection and

disposal are usually fragmented across several administrative boundaries. The lesson learned in the

two Programmatic Series is that the responsibility of the entire system (collection, street cleaning,

disposal, recycling, and so on) should be concentrated under one entity.

76. If done properly, sanitary landfills can be socially and environmentally acceptable. In

many countries, people often voice concern over the location of sanitary landfills; this is known as the

not-in-my-backyard syndrome. In Morocco, the two Programmatic Series along with the Government

Program demonstrated that well-managed sanitary landfills (especially those combined with sorting

and recycling facilities) could be socially and environmentally acceptable to local population. Many

factors affected this process: (a) the fact that land-use planning integrated the location of new landfill

sites and the closure of existing landfills to reconciling potential conflicts in land use; (b) environmental

and social impacts assessments informed the public on the benefits and risks of sanitary landfills; and

(c) the informal sector was integrated into recycling plants at existing and new landfills.

7. Comments on Issues Raised by Borrower/Implementing Agencies/ Partners

(a) Borrower/Implementing agencies

77. A draft ICR has been translated into French and shared with the borrower through the Ministry

of General Affairs and Governance on August 29, 2016. Minor comments were communicated by

October 7, 2016.

(b) Co-financiers The project had no co-financiers.

(c) Other partners and stakeholders

Not applicable.

23

Annex 1 Bank Lending and Implementation Support/Supervision Processes

(a) Task Team members


Names Title Unit Responsibility/

Specialty

Lending

Jaafar Sadok Friaa Program Leader SACPK TTL

François Boulanger Senior Urban Economist

Carolyn Winter Senior Social Development Specialist

Mohammed Bekhechi Lead Legal Environmental Counsel Consultant

Fadhel Ghariani Solid Waste /Public Institutions specialist Consultant

Gaël Grégoire Senior Environmental Specialist CRKSK

Jean-Pierre Chauffour Lead Country Economist GMF05

Khalid El Massnaoui Senior Economist GMF05

Najat Yamouri Senior Social Development Specialist GSU05

Sherif Arif Lead Environmental Specialist Consultant

Lamyae Hanafi Benzakour Senior Financial Management Specialist GGO23

Jean Charles De Daruvar Senior Counsel LEGAM

Hassine Hedda Finance Officer

Maya Abi Karam Counsel LEGAM

Aditi Banerjee Economist GSU05

Sylvie Pittman Program Assistant GSU05

Bruce McPhail Social Development Specialist Consultant

Supervision


Sherif Arif Lead Environmental Specialist MNSSD Consultant

Sylvie Pittman Program Assistant GSU05

ICR

Maria Sarraf Lead Environment Specialist GEN05 TTL

Jaafar Sadok Friaa Program Leader SACPK

Allan Rotman Consultant

Sally Zeijlon GSU05 Quality Review

Hocine Chalal Lead Environment Specialist Peer Reviewer

Ibrahim Dajani Program Leader MNCO2 Peer Reviewer

(a) Task Team members


Names Title Unit Responsibility/

Specialty

Lending


Maria Sarraf Lead Environment Specialist GEN05 Co-TTL

Farouk Banna Environmental Engineer GSU13

Mohammed Bekhechi Lead Legal Environmental Counsel Consultant

Khalid El Massnaoui Senior Economist GMF05

Laila Moudden Financial Management Analyst GGO23

Jean-Charles De Daruvar Senior Counsel LEGAM

24

Abdoulaye Keita Senior Procurement Specialist GGO05

Fadhel Ghariani Solid Waste and Public Institutions Consultant

Raphael Kaminsky International Arbitration and Conciliation Consultant

Bruce MacPhail Social Development Specialist Consultant

Charles Malecot Financial Consultant Consultant

Christina Jutta Paul Lawyer Public Private Partnership GCPDR

Najat Yamouri Sr. Social Development Specialist GSU05

Lamia Zaki Urban Specialist MNCMI

Soumia Driouch Program Assistant MNCMA

Charlene d’Almeida Program Assistant GSU05

Marie Francoise How Yew Kin Program Assistant GENDR

Supervision


Maria Sarraf Lead Environment Specialist GEN05 Co-TTL

Soumia Driouch Program Assistant MNCMA

Charlene d’Almeida Program Assistant GSU05

ICR

Maria Sarraf Lead Environment Specialist GEN05 TTL


Allan Rotman Consultant

Sally Zeijlon GSU05 Quality Review

Hocine Chalal Lead Environment Specialist Peer Reviewer

Ibrahim Dajani Program Leader MNCO2 Peer Reviewer

(b) Staff Time and Cost


Stage

Staff Time and Cost (Bank Budget Only)

No. of Staff Weeks US$ Thousands (including

travel and consultant costs)

Lending FY12 14.56 119,263

Supervision FY13 24.61 218,644

Total: 39.17 337,907


Stage

Staff Time and Cost (Bank Budget Only)

No. of Staff Weeks Thousands (including travel

and consultant costs)

Lending FY14 6.49 154,598

Supervision FY15 39.63 353,842

Supervision FY16 1,127

Total: 46.12 509,567

25

Annex 2. Beneficiary Survey Results

See section 3.2 under Policy Area A and section 3.4 (a) for a description of the household survey

undertaken for the collection of citizen feedback in 5 majors cities in Morocco.

26

Annex 3. Stakeholder Workshop Report and Results

Not Applicable

27

Annex 4. Borrower's ICR

Rapport d’achèvement du 2ieme programme d’appui au secteur

des déchets ménagers au Maroc

Royaume du Maroc

Juillet 2016

28

Introduction Le programme National de Gestion des Déchets Ménagers (PNDM) a été appuyé par la Banque Mondiale dans sa deuxième phase (2013-2022) à travers deux Prêts de Politique de Développement du Secteur des déchets Ménagers. Ce programme d’appui vise à soutenir le Maroc pour l’amélioration de la performance financière, environnementale et sociale et la bonne gouvernance du secteur des déchets ménagers. Contexte du programme – PNDM Le Maroc s’est engagé dans une politique volontariste de gestion en termes de Développement Durable et de Protection de l’environnement. En effet, de nombreuses initiatives et avancées ont vu le jour, notamment celle relative à la professionnalisation des services de collecte, nettoiement et mise en décharge des déchets ménagers. L’amélioration de la gestion des services publics communaux, y compris le service de gestion des déchets ménagers assimilés, constitue une priorité pour le Gouvernement. La réforme du secteur des DMA continue d'être un élément essentiel du Stratégie national de développement durable du Maroc et un facteur clé pour améliorer l'environnement en général. Conçu sur 15 ans et mis en œuvre en trois phases, le PNDM soutient les collectivités territoriales dans leurs efforts pour promouvoir la gestion intégrée des DMA et améliorer l'accès et la qualité des services de DMA. La deuxième phase a été conçue dans un nouveau contexte marqué par un programme de décentralisation très ambitieux. La gestion des déchets constitue aujourd’hui un enjeu social, environnemental, et économique majeur. L’engagement dans une ambitieuse réforme de modernisation du secteur de gestion des déchets ménagers a été consolidé par l’amélioration de la gouvernance et la redéfinition des rôles de l’ensemble des intervenants. Ainsi, la réforme a permis de confirmer la responsabilité des communes en matière de gestion des déchets ménagers tout en favorisant la participation du secteur privé. Par ailleurs, le PNDM a mis en place de nouveaux mécanismes pour renforcer la redevabilité des collectivités locales envers les citoyens, notamment à travers la reconnaissance et la mise en œuvre du principe de l’accès du public à l’information et la publication d’une loi-cadre sur l'environnement et le développement durable (Loi 99-12), qui introduit le droit de toute personne à accéder aux informations relatives à l'environnement. Situation sectorielle Le Maroc compte environ 33 million d’habitants en 2014, dont 20 millions vivent en milieu urbain, produisant environ 5,5 millions de tonnes de DMA par an, et serait de l’ordre de 6,2 millions de tonnes en 2022. Une mauvaise gestion des DMA pourrait avoir des impacts négatifs sur la qualité de vie, les ressources naturelles, l'environnement et le tourisme. Au contraire, un système intégré de GDMA peut offrir de réelles opportunités de création d’emplois et stimuler des activités génératrices de revenus à travers des activités de recyclage et via le service de collecte. Cadre institutionnel Les insuffisances de gestion enregistrés, depuis longtemps, au niveau de ce secteur et qui constituent les principaux défis à relever étaient dues essentiellement à des contraintes d’ordre institutionnel, juridique, managérial et financier. Il s’agit notamment du:

29

Cadre juridique et institutionnel insuffisant qui limite l’efficacité de la gouvernance du secteur ; Besoin urgent des systèmes intégrés et modernisés de gestion des déchets managers pour atténuer

les conséquences économiques, environnementales et sociales des systèmes existants.

Stratégie du gouvernement

Pour pallier ces insuffisances, le Gouvernement a entrepris lors des dernières années une série d’actions sur la voie du développement et de la réforme du secteur, y compris:

La publication en décembre 2006 de la loi 28.00 relative à la gestion des déchets. Cette loi traduit une volonté politique claire pour la mise à niveau de la gestion des déchets ménagers en particulier ;

La déclaration du Gouvernement d’octobre 2007 a placé la problématique de l’assainissement solide, et en particulier le traitement des déchets ménagers, parmi les priorités de l’action gouvernementale aussi bien au niveau de l’appui aux collectivités territoriales qu’au niveau de la protection de l’environnement et du développement durable. Cette volonté politique a été traduite par la création, au niveau de la loi de Finances 2007, d’un compte d’affectation spéciale intitulé « Fonds National pour la Protection et la mise en valeur de l’Environnement » dont le programme d’emploi inclut un paragraphe intitulé « Appui au Programme National des Déchets Ménagers et assimilés ».

En parallèle, au niveau des collectivités territoriales, une action communale soutenue a été menée pour l’amélioration et la professionnalisation des services de collecte des déchets :

L’élaboration en 2007, conjointement par le Ministère de l’Intérieur et le Département de l’Environnement, d’un Programme National des Déchets Ménagers et Assimilés (PNDM). Il s’agit d’un programme visant la mise à niveau de la gestion des déchets ménagers à l’horizon 2022. Le coût total du programme tel qu’il a été fixé initialement est de 37 milliards de DH (Soit environ 5 milliard de dollars US) sur une période de 15 années et couvrant l’ensemble des maillons de la chaîne depuis la collecte jusqu’au traitement ;

L’adoption de la loi-cadre sur l’environnement et le développement durable, qui a instauré le principe de « Responsabilité Elargie des Producteurs (REP) » ;

L’introduction de l’écotaxe dans la loi de finance de 2013 et elle a commencé à alimenter en 2014 le Fonds National pour l’Environnement (FNE) pour un éventuel redéploiement pour l’appui de la filière de plasturgie ainsi que pour le développement des filières de tri-valorisation.

Appui de la Banque mondiale au PNDM Dans le cadre de la mise en œuvre du PNDM, le Maroc a bénéficié d’un appui de la Banque Mondiale pour la première phase et la deuxième phase du PNDM (2012-2017) à travers:

Un appui technique pour le cadrage et l’opérationnalisation du PNDM. Cet appui a porté sur :

La revue des objectifs du développement et des composantes du PNDM ;

La définition de priorités en matière d’appui technique et financier et la définition des critères d’éligibilité et d’allocation de l’appui financier ;

L’élaboration des modalités de mise en œuvre et de suivi du PNDM, à travers une structure/organisation appropriée pour la coordination technique, la veille à l’emploi rationnel des ressources financières par le PNDM et l’approbation des programmes annuels d’intervention de l’Etat.

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Un appui au développement et à la mise en œuvre d’un projet programmatique de Mécanisme de Développement Propre (MDP) dans le secteur des déchets solides. Dans ce cadre, la Banque a mis à la disposition de la partie marocaine et en particulier du FEC, son expérience et son expertise en matière de développement du financement carbone selon une approche programmatique.

Quatres prêts (PPD1 , PPD2, PPD3 et PPD4) pour l’appui à la politique du développement du secteur

des déchets, en vue d’assurer l’amélioration de la gouvernance du secteur des déchets ménagers, la promotion et le soutien des services de gestion des déchets, et l’amélioration de la prise en charge des dimensions environnementales et sociales.

Le pilotage d’une étude relative à l’analyse des impacts sociaux et sur la pauvreté de la réforme du secteur des déchets solides ménagers au Maroc (PSIAI).

La Banque a mobilisé également un don PPIAF pour le financement de l’étude relative à la « stratégie de participation du secteur privé dans la gestion des déchets solides au Maroc ».

Le programme d’appui à la 2ème phase PNDM

Objectif du programme Le Maroc bénéficie d’un appui programmatique de la Banque Mondiale sur la période 2013-2017, à travers deux Prêts de Politique de Développement (PPD). Un prêt (PPD3) de 130 millions d’euros a été accordé par la Banque en 2013 et un quatrième prêt du même montant a été accordé en 2014. L’objectif du développement du programme PPD est d’appuyer le Gouvernement dans la mise en œuvre de la deuxième phase du programme de réforme du secteur des déchets managers à travers l’amélioration de la performance économique, environnementale et sociale du secteur des déchets ménagers et assimilés. Les deux opérations ont comporté ainsi, trois composantes, il s’agit de:

1- renforcer la gouvernance basée sur la demande en augmentant la transparence, la redevabilité et l'engagement des citoyens (par l'introduction d’outils rigoureux de responsabilisation sociale comme le Rapport d’Évaluation Citoyenne (REC)) ;

2- améliorer l’équité économique et sociale en garantissant l’égal accès aux services en milieu urbain (en particulier dans les quartiers informels/défavorisés), et veiller à ce que la nouvelle écotaxe fournisse des ressources pour des programmes d’intégration destinés aux chiffonniers ;

3- créer des débouchés rémunérateurs équitables à travers le développement d'un secteur de recyclage des déchets financièrement viable (environ 50.000 - 70.000 emplois devraient être créés au cours de la durée de vie du PNDM).

Ainsi, le PNDM vise à atteindre les objectifs suivants:

Assurer la collecte et le nettoiement des déchets ménagers pour atteindre un taux de collecte professionnalisée (gestion déléguée) de 85 % en 2016 et 90 % en 2022.

Réaliser les centres d’Enfouissement et de Valorisation des déchets ménagers et assimilés au profit de tous les centres urbains (100%) en 2022.

Réhabiliter ou fermer toutes les décharges existantes (100 %) en 2022

Généraliser les plans directeurs de gestion des déchets ménagers et assimilés pour toutes les préfectures et provinces de Royaume.

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Développer la filière de «tri-recyclage-valorisation», avec des actions pilotes de tri, pour atteindre un taux de Recyclage de 20% et la valorisation supplémentaire, sous différentes formes, d’au moins 30% des déchets générés à l’horizon 2022.

Former et sensibiliser tous les acteurs concernés sur la problématique des déchets.

L’exécution du programme d’appui au secteur des déchets ménagers : Réalisations

Depuis son lancement, le PNDM a atteint des résultats tangibles dans le secteur des déchets ménagers au Maroc, à savoir :

Un cadre juridique renforcé avec l'adoption de la Loi sur les déchets solides (Loi 28-00) et de la Loi-cadre sur l'environnement et le développement durable (Loi 99-12). Le Maroc bénéficie désormais d'une législation globale pour un système de gestion intégrée des déchets ménagers où l'utilisation des déchets comme une ressource peut procurer d’importants avantages environnementaux, sociaux et économiques.

Plus de 80% des déchets urbains sont collectés. Aujourd'hui, 80 pourcent des déchets urbains sont collectés de façon professionnalisée, contre environ 45 pourcent en 2007 (Rapport d'Avancement, PNDM, 29 septembre 2014) et plus de 53 pourcent des déchets collectés seraient enfouis dans des décharges contrôlées contre moins de 5 pourcent en 2007.

La participation du secteur privé dans le secteur des déchets ménagers bénéficie de l'engagement fort et continu du Gouvernement et des collectivités territoriales. Pendant les cinq dernières années, le rôle du secteur privé n'a cessé de croître. Plus de 100 villes ont contracté des opérateurs privés pour fournir des services de nettoyage de rue et de collecte de déchets dont bénéficient aujourd’hui plus de 15 millions de d’habitants. En 2012, plus de 78,3% des déchets collectés en milieu urbain résultent de contrats du secteur privé contre 45% en 2007. En outre, la gestion des décharges sanitaires a été confiée à des opérateurs privés.

Amélioration de la transparence et participation accrue des citoyens au secteur des déchets ménagers. Premièrement, avec l'introduction progressive d'outils de responsabilisation sociale rigoureux tels les Rapports d’Evaluation Citoyenne. Deuxièmement, en veillant à ce que les contrats de service public soient accessibles au public en ligne. Troisièmement, en institutionnalisant le droit des citoyens à accéder à l'information environnementale, y compris celles liés aux services de DMA. Quatrièmement, à travers la mise en place d'Observatoires Régionaux de l'Environnement pour le Développement Durable (OREDD) dans tout le pays.

Progrès remarquables sur la durabilité institutionnelle et financière des services de DMA. Les réformes institutionnelles ont clairement défini les mandats et responsabilités entre l’Etat, les communes et le secteur privé. La situation financière du secteur bénéficie également de (i) l’amélioration de la situation budgétaire et financière au niveau communal (augmentation des revenus locaux de plus de 50 pourcent au cours des 5 dernières années) et (ii) des initiatives de l’Etat visant à accroître la collecte de recettes fiscales locales, la diversification des sources locales de revenus, y compris la mise en place progressive de l'écotaxe pour soutenir la modernisation du secteur et améliorer ses prestations sociales.

Un instrument efficace a été mis en place pour promouvoir le recyclage des déchets et améliorer la performance socio-économique du secteur avec une attention particulière portée aux groupes vulnérables. Un instrument para-fiscal nommé écotaxe a été introduit dans la Loi des Finances de 2013

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et est entré en vigueur en 2014. Cet instrument a déjà mobilisé environ 148 millions de dirhams. Dans ce contexte, une convention-cadre pour le tri et le recyclage des matières plastiques à Casablanca, qui cible 10 000 collecteurs de déchets, a été signée en juin 2014. En outre, les accords de partenariat entre le secteur privé et les investisseurs ont été signés pour développer des filières de valorisation pour les piles usagées, les huiles frelatées et les pneus usés.

Une évaluation d'impact environnemental décentralisé (EIE), en accord avec les bonnes pratiques internationales est désormais pleinement opérationnelle, aux niveaux national et régional et un système de contrôle national de l'environnement ainsi qu’un système d'inspection sont en cours d'élaboration.

Evaluation de la performance du programme d’appui pour la réforme du secteur

En termes de Gouvernance du Secteur des Déchets ménagers et assimilés, les actions ont porté essentiellement sur :

La promotion de l'accès à l'information par la mise en place d’un site Web32 du PNDM accessible au public qui comprend les détails du financement du programme, les critères d'éligibilité et les indicateurs de performance. Le plan d'action soutient également le renforcement des capacités et la formation des communes par les Départements de l’Intérieur et de l'Environnement afin de renforcer les mécanismes de recours à l’échelle communale et également pour organiser des réunions publiques locales entre les communes et les habitants sur les questions de performance des services.

la transparence à travers l’élargissant l'accès du public aux contrats de gestion des déchets ménagers par la publication au Bulletin officiel des Collectivités Territoriales (BOCT) des informations sur les contrats, y compris des extraits de contrats de gestion des DMA avec des opérateurs privés. La publication des extraits33 de tous les contrats de gestion des DMA signés après la publication de la circulaire sur la plate-forme du site web du BOCT, et

l'amélioration de la redevabilité des prestataires de services envers les citoyens, par la mise en place des Rapports d’Évaluation Citoyenne (REC), et ceci par:

le lancement d’enquêtes auprès des ménages pour permettre aux habitants de donner aux autorités communales et aux prestataires de services des informations factuelles et d’exprimer leur perception sur la couverture, la performance et la qualité des services communaux;

L’organisation d'une série de consultations publiques pour discuter de l'amélioration de la prestation des services sur la base des résultats de l'enquête et de l'établissement d'un « pacte » d’amélioration du service.

En termes de soutenabilité institutionnelle et financière des services de gestion des déchets ménagers et assimilés, les actions ont porté essentiellement sur:

L’amélioration des capacités financières des communes pour couvrir les coûts de la modernisation du système des DMA ;

L’amélioration des services intégrés de gestion des DMA aux usagers des services publics, avec des services de collecte de déchets quasi-universels dans les zones urbaines, et 100 pourcent des DMA collectés sont traités dans des conditions sociales et environnementales acceptables ;

32 http://pndm.environnement.gov.ma 33 Un extrait est une part qui explique l’étendue et le prix du travail.

http://pndm.environnement.gov.ma/

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L’amélioration de la Coopération intercommunale pour une meilleure performance économique et environnementale du secteur.

En termes de Contrôle et Suivi Environnementaux, les actions ont porté essentiellement sur:

la transparence dans le contrôle de l'environnement grâce au fait que l’ensemble des décharges sanitaires soient contrôlées sur une base régulière ;

Une meilleure application des lois, réglementations, normes et standards ainsi que des sanctions pour non-conformité.

En termes de Développement de filières de valorisation, les actions ont porté essentiellement sur:

L’amélioration des performances économiques et sociales du secteur grâce à la création de 50 000 à 70 000 emplois écologiques dans le secteur du recyclage en 2022 ;

Le recyclage de 20 pourcent des DMA collectés.

Pour suivre la performance de la réalisation du programme, des indicateurs ont été définis.

Dans le cadre de l’amélioration de la de gouvernance du Secteur des Déchets ménagers et assimilés, les indicateurs prédéfinies ont porté essentiellement sur:

Nombre de communes ayant élaboré des rapports d’évaluation citoyenne sur les services de DMA .Quatorze (14) Observatoires Régionaux de l’Environnement et du Développement Durable ont été établis en 2011-2014 pour suivre les indicateurs de l’état de l’environnement, y compris les indicateurs relatifs à la gestion des déchets ménagers. La Commission Nationale du Programme National des Déchets Ménagers (PNDM) a adopté le 29 octobre 2014, l’utilisation de l’évaluation citoyenne sur la qualité et l’accès aux services des déchets communaux (Rapports d’Evaluation Citoyenne) comme critère d’éligibilité pour l’appui financier du PNDM.

Pourcentage des contrats signés (après l’émission de la Circulaire No. 8029) avec un extrait publié sur la plateforme Web BOCT.

Parmi les indicateurs relatifs à la soutenabilité institutionnelle et financière des services de gestion des déchets ménagers et assimilés qui ont été pris en considération lors de l’exécution, on note:

Le pourcentage des déchets ménagers et assimilés collectés professionnellement et mis en décharge contrôlée: Le pourcentage des DMA mis en décharge contrôlée serait de l’ordre de 53,41%.

Le nombre de groupements d’agglomération et/ou de groupements : Le Ministère de l’Intérieur a adopté un programme pluriannuel d’assistance pour appuyer les collectivités territoriales et pour créer des institutions intercommunales/régionales pour la fourniture des services publics communaux y compris la gestion des déchets ménagers et assimilés ; et a sécurisé le 2 décembre 2013 le financement de ce programme.

La diminution du pourcentage du volume global des arriérés déclarés par les opérateurs privés et vérifié par la DEA, par rapport à la somme des montants annuels initiaux des contrats de gestion déléguée de services de DMA, et ce grâce aux efforts déployés par le Ministère de l’Intérieur en matière du suivi instauré pour les contrats de gestion déléguée à l’échelle nationale.

En ce qui concerne le Contrôle et suivi environnementaux, l’indicateur déterminé est:

Le pourcentage des décharges contrôlées de déchets ménagers et assimilés régulièrement inspectées. Le Conseil de Gouvernement a adopté le 8 Janvier 2015 le projet d’un décret instituant la Police de

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l’Environnement en application des dispositions de la loi-cadre No. 99-12 portant chartre nationale de l’environnement et du développement durable promulguée le 6 mars 2014.

Pour le développement de filières de valorisation, les indicateurs déterminés sont:

Le nombre de projets de recyclage appuyé avec le concours des produits de l’écotaxe : Le Conseil de Gouvernement a adopté le 4 décembre 2014 le projet d’un décret relatif à la réorganisation du Ministère délégué auprès du Ministre de l’Energie, des Mines, de l’Eau et de l’Environnement, Chargé de l’Environnement. Ce projet comprend la création d’une direction chargée du développement de la gestion des filières de valorisation, et la Ministre déléguée auprès du Ministre de l’Energie, des Mines, de l’Eau et de l’Environnement, Chargée de l’Environnement, a émis la Circulaire No. 209 en date du 11 novembre 2014 établissant un comité stratégique pour la gestion des filières impliquant les acteurs clé (les collectivités territoriales, les éco-contribuables, l’industrie du recyclage, la société civile). 18 projets retenus : 13 conventions ont été signées par les communes, le Ministère de l'Intérieur et le Ministère délégué chargé de l’Environnement. Ils sont actuellement dans le circuit de versement des fonds. D’autres conventions sont en cours de signature.

Le nombre d’opportunités génératrices de revenus créés dans le secteur du recyclage pour les chiffonniers (décomposé par genre). La Ministre déléguée auprès du Ministre de l’Energie, des Mines, de l’Eau et de l’Environnement, Chargée de l’Environnement, a émis la Circulaire No. 208 en date du 11 novembre 2014. Cette circulaire vise :

établissant les modalités d’allocation des revenus de l’écotaxe, et

prévoyant qu’au moins 20 pourcent des revenus de l’écotaxe sont alloués au développement et la mise en œuvre d’activités de recyclage ciblant les chiffonniers, avec une attention spécifique sur la dimension genre, jusqu’à l’achèvement du Programme National des Déchets Ménagers. Le nombre de récupérateurs à intégrer au niveau des centres de Tri est estimé à plus de 1000 personnes. Sur la base des études effectuées au niveau de Casablanca et Rabat le nombre de femmes travaillant actuellement au niveau des décharges est d’environ 5% des récupérateurs. Ce nombre après le démarrage des centres de tri est surement plus important en raison de l’amélioration des conditions de travail.

Principaux facteurs de succès de la mise en œuvre La mise en œuvre du programme a connu une réussite significative. Ce succès peut être expliqué par:

La forte volonté des décideurs pour la mise à niveau de la gestion du secteur des déchets ménagers ; Le cadre institutionnel approprié L’assistance technique de la Banque Mondiale au profit du programme ; L’adoption de l’approche participative ; Le suivi du projet par les missions de la Banque Mondiale, l’équipe du projet intervient d’une façon

efficace pour aider à dépasser les contraintes de l’exécution du programme.

Malgré les résultats concrets enregistrés, le secteur de la gestion des déchets fait face à d’importants défis qui se manifestent par la présence encore de 167 décharges sauvages non encore réhabilitées. Ceci constitue une réelle menace sur l’environnement, la population avoisinante, les ressources en eaux ainsi que sur la santé des travailleurs au sein de la décharge, d’autant plus que ces décharges reçoivent également des déchets médicaux et industriels dangereux. D’où la nécessité de réhabiliter en priorité et d’urgence les décharges non contrôlés impactant sévèrement les milieux, l’environnement et la santé des populations.

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Considérant l'impact de ces déchets sur l'environnement et l’intégration du développement des filières de recyclage et de valorisation des déchets dans les principes de la Charte Nationale de l’Environnement et de Développement Durable, le Ministère délégué chargé de l'Environnement envisage le développement des filières de valorisation des déchets notamment pour les filières prioritaires à savoir les batteries, les huiles et les pneus usés, ainsi que les déchets plastiques. Evaluation des résultats du projet Pertinence des objectifs, de la conception et de la mise en œuvre

Les objectifs et le concept du projet d’appui au secteur des déchets ménagers sont jugés très pertinents par rapport au programme global et au contexte actuel où le développement durable est confirmé comme priorité du nouveau programme du Gouvernement. La haute pertinence globale des objectifs confirme que la conception du programme reflétait un bon diagnostic d’une priorité de développement qui demeure soutenue. Justification de notation globale de résultat

On peut considérer, compte tenu des objectifs et des résultats atteints durant cette deuxième phase de l’appui au secteur des déchets ménagers, que le projet peut être classé satisfaisant malgré quelques lacunes liées aux questions de réhabilitation ou fermeture de toutes les décharges existantes, et à la question de développement des chaînes de valorisation/recyclage. Analyse critique de l’action de la Banque Mondiale et de l’emprunteur Appréciation de l’action de la Banque Mondiale dans la phase préparatoire du Programme d’appui au secteur des déchets ménagers. Le lancement de la préparation du projet d’appui au secteur des déchets ménagers avec cette institution ont été élaborés suite à plusieurs concertations engagées et un dialogue fructueux entre les départements impliqués et la Banque. De ce fait les objectifs et les axes du programme ont déjà été arrêtés au moment du lancement du programme ce qui a facilité la préparation et l’exécution du projet. Appréciation de l’action de la Banque Mondiale au cours de l’exécution du programme

L’exécution a été marquée par le suivi régulier de la part de la Banque à travers les missions de suivi et de consultation, ce qui a aidé à surmonter les contraintes au niveau de la concrétisation de certaines actions du projet d’appui de la Banque Mondiale au secteur des déchets ménagers. De la part des autorités marocaines, le projet a connu une exécution satisfaisante grâce à la coordination entre les départements ministériels concernés par ce programme et à l’engagement des collectivités bénéficiaires. Principales leçons à tirer de la conception et mise en œuvre du projet d’appui La conception du PPD4 a été élaborée en tenant compte des leçons tirées des opérations précédentes au Maroc (notamment de la mise en œuvre Rapport d'achèvement de la mise en œuvre (ICR) des PPD1 et PPD2, et de la mise en œuvre du PPD3).

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De ce fait, l’expérience du PPD du secteur des déchets ménagers a été très positive. Les facteurs de ce succès incluent l’amélioration de la gouvernance du secteur et la création de synergie entre les différents intervenants, le dialogue fructueux ente la Banque et les autorités marocaines, l’articulation des principaux piliers de la réforme (cadre institutionnel et financer), l’appui aux collectivités territoriales en terme financier et renforcement des capacités, et la sensibilisation/communication autour du programme. Malgré les résultats atteints durant la deuxième phase de l’appui au secteur des déchets ménagers, des lacunes ont été enregistrées dans la réalisation du programme, ses objectifs, ou sa pertinence, notamment:

Le développement des filières de valorisation: Le Maroc a clairement annoncé sa volonté de développer le recyclage dans le respect de la dimension sociale et environnementale. L’objectif stratégique de Recyclage de 20% et la valorisation supplémentaire, sous différentes formes, d’au moins 30% des déchets générés à l’horizon 2020. Cependant, le développement de ces filières consiste à :

L’élaboration des schémas de développement de ces filières avec identification des mécanismes techniques, légaux, financiers et institutionnels nécessaires à leur mise en œuvre.

La fixation des mécanismes financiers de ces filières (recouvrement des coûts) avec les opérateurs concernés.

Le renforcement du cadre juridique relatif à la mise en œuvre de ces filières.

La proposition des actions de sensibilisation et de communication y afférentes.

Prise en compte du secteur informel

La gouvernance de la filière de valorisation des déchets ménagers et assimilés. Une Division de gestion des filières a été créée au sein du Ministère délégué chargé de l’Environnement qui a la responsabilité de planifier, concevoir et mettre en place des filières de recyclage financièrement viables et d’assurer le monitoring de leurs performances économiques, environnementales et sociales. Cette Division représente également le Ministère Chargé de l’Environnement au sein des instances de chaque filière. Compte tenu de la multiplicité des acteurs impliqués et de l’importance des enjeux économiques, financiers, environnementaux et sociaux, une instance consultative (Comité d’orientation stratégique) a été mis en place pour faciliter la concertation entre les différents acteurs publics, privés et associatifs (Circulaire du MDE No. 209 en date du 11 novembre 2014).

La pérennisation des sources de financement pour le développement des filières de valorisation du plastique, et l’intégration des chiffonniers dans le secteur du recyclage.

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MATRICE DES POLITIQUES ET DES RÉSULTATS DE LA DEUXIÈME SÉRIE PROGRAMMATIQUE (PPD 3 and 4)

Actions Préalables (PPD3) Actions Préalables

(PPD4) Résultats

Etat d’avancement

Domaine de réforme A: Gouvernance du secteur des déchets ménagers et assimilés

1. Le Conseil de Gouvernement a approuvé le 14 décembre 2012 le projet de Loi-cadre sur l’Environnement et le Développement Durable qui introduit : (i) le droit de toute personne d’accéder à l’information environnementale, (ii) les arrangements institutionnels pour le contrôle environnemental, et (iii) le principe de « responsabilité élargie du producteur ». 2. La Commission Nationale du Programme National des Déchets Ménagers (PNDM) a approuvé le 23 octobre 2012 l’introduction d’un outil d’évaluation citoyenne sur la qualité et l’adéquation du service de déchets ménagers et assimilés (rapports d’évaluation citoyenne) en tant que composante clé du PNDM pour appuyer les collectivités territoriales à améliorer l’aspect demande de gouvernance dans la fourniture des services de déchets ménagers et assimilés. 3. Le Ministre de l’Intérieur a émis la Circulaire No. 8029 en date du 23 mai 2012 exigeant la publication par les communes des extraits des contrats de service de déchets ménagers et assimilés dans le Bulletin Officiel des Collectivités Territoriales (BOCT).

1. Quatorze (14) Observatoires Régionaux de l’Environnement et du Développement Durable ont été établis en 2011-2014 pour suivre les indicateurs de l’état de l’environnement, y compris les indicateurs relatifs à la gestion des déchets ménagers. 2. La Commission Nationale du Programme National des Déchets Ménagers (PNDM) a adopté le 29 octobre 2014, l’utilisation de l’évaluation citoyenne sur la qualité et l’accès aux services des déchets communaux (Rapports d’Evaluation Citoyenne) comme critère d’éligibilité pour l’appui financier du PNDM.

Les acteurs publics et privés de la GDMA sont plus redevables envers des citoyens informés Indicateur : Nombre de communes ayant élaboré des rapports d’évaluation citoyenne sur les services de DMA Référence(2012): 0 Cible (2015): 5 Source : Rapports Evaluations Citoyennes Utilisation transparente de l’argent public dans la fourniture par le privé du service des déchets ménagers et assimilés Indicateur : Pourcentage des contrats signés (après l’émission de la Circulaire No. 8029) avec un extrait publié sur la plateforme Web BOCT Référence (2012): 0 % Cible (2015) : 100% Source : BOCT

L’évaluation citoyenne de Témara est

achevée. Les études relatives aux évaluations

citoyennes de Tanger et Mohammedia sont en phase final d’achévement.

Les études relatives aux évaluations citoyennes d’Agadir et de Rabat sont en phase final des enquêtes

L’étude concernant Casablanca, le marché est en final d’achévement (l’Exécution est assurée par la Commune Urbaine et le délégataire).

DEA/MI

Domaine de réforme B: Soutenabilité institutionnelle et financière des services de GDMA

4. Le Ministère de l’Énergie, des Mines, de l’Eau et de l’Environnement a signé le 10 décembre 2012 trois contrats avec des firmes d’ingénierie dans l’objectif d’appuyer les collectivités territoriales à mieux préparer et gérer les projets et contrats de déchets ménagers et assimilés sur le territoire de l’Emprunteur.

3. Le Ministère de l’Intérieur a adopté un programme pluriannuel d’assistance pour appuyer les collectivités territoriales et pour créer des institutions intercommunales/régionales pour la fourniture des services publics communaux y compris la gestion des déchets ménagers et assimilés ; et a sécurisé le 2 décembre 2013 le financement de ce programme.

La performance opérationnelle et environnementale du PNDM améliorée Indicateur: Pourcentage des déchets ménagers et assimilés collectés professionnellement et mis en décharge contrôlée Référence (2012): 32% Cible (2015) : 55% Source : Rapports d’avancement du PNDM

Le pourcentage des DMA mis en décharge contrôlée, après actualisation des données en fonction du dernier recensement dont les résultats viennent d’être publiés, est de 53,41%.

Les projets en cours de réalisation (phase final des travaux): Tanger et Khénifra.

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Indicateur : Nombre de groupements d’agglomération et/ou de groupements de communes établis Référence (2012): 7 Cible (2015) : 15 Source : DGCL

Les projets dont les marchés de la gestion déléguée est attribuée: Béni Mellal et Sefrou.

Après achévement de ces projets le taux va atteindre les 61%.

5. Le Ministre de l’Intérieur a émis la Circulaire No. D13015 en date du 17 décembre 2012, relative à l’établissement d’une redevance des déchets ménagers et assimilés que les communes pourraient mettre en œuvre sur les gros producteurs de déchets, conformément aux dispositions de l’article 23 de la loi 28-00 en date du 22 novembre 2006, relative à la gestion des déchets solides.

6. Des ressources adéquates ont été mobilisées pour le financement du PNDM en 2012 et le projet de Loi de Finances de l’Emprunteur pour 2013 inclut une allocation appropriée pour le PNDM.

4. Le Trésorier Général a émis la Décision No. 0188 en date du 16 juillet 2014 concernant les services de conseil de la Trésorerie Générale aux collectivités territoriales en vue d’améliorer la gestion de leurs revenus.

Capacité financière des CT, pour assurer le financement des services des déchets ménagers et assimilés, améliorée Indicateur : Augmentation des ressources globales des communes par rapport à 2012 Référence (2012): 0 Cible (2015) : +20% Source : TGR

DEA/MI & TGR

7. Le Ministre de l’Intérieur a émis la Circulaire No. 5533 en date du 5 octobre 2012 concernant la préparation des budgets des collectivités territoriales, et la Circulaire No. 17887 en date du 11 décembre 2012 traitant la question des arriérés de paiement dus par les collectivités territoriales en vertu des contrats de gestion déléguée du service de déchets ménagers et assimilés, en incluant des instructions spécifiques et des explications: (i) pour assurer une estimation sincère des coûts du service, (ii) concernant la révision des prix, et (iii) au sujet de la budgétisation des accords de rééchelonnement des arriérés.

5. Le Ministre de l’Intérieur a émis la Circulaire No. 17495 en date du 28 octobre 2014 définissant les modalités du mécanisme de conciliation avec tierce partie, et exigeant l’inclusion de ce mécanisme dans tous les contrats de gestion délégués des services de déchets ménagers entre les communes et les opérateurs privés

Meilleur cadre de développement de la gestion déléguée dans le secteur Indicateur : Diminution du pourcentage du volume global des arriérés34 déclarés par les opérateurs privés et vérifié par la DEA, par rapport à la somme des montants annuels initiaux des contrats de gestion déléguée de services de DMA Référence (2012): 70% Cible (2015): 30% Source : DGCL

DEA/MI Résultat (15%)

Domaine de réforme C: Contrôle et suivi environnementaux

8. Le Chef du Gouvernement a émis la Circulaire No. 27/2012 en date du 30 novembre 2012 pour établir un système national d’information et de coordination en matière d’inspections,

6. Le Conseil de Gouvernement a adopté le 8 Janvier 2015 le projet d’un décret instituant la Police de l’Environnement en application des dispositions de la loi-cadre No. 99-12 portant

Toutes les décharges sont suivies et inspectées régulièrement

DCEEAJ/MDE

34 Soit les montants facturés et qui sont en retard de paiement par rapport au délai de paiement contractuel.

39

d’infractions et des sanctions sur l’environnement.

9. Le Ministre de l’Énergie, des Mines, de l’Eau et de l’Environnement a émis la Circulaire No. 66/2012 en date du 15 novembre 2012 établissant au sein du Ministère une unité spéciale d’inspecteurs assermentés de l’environnement.

chartre nationale de l’environnement et du développement durable promulguée le 6 mars 2014.

Indicateurs : Pourcentage des décharges controlées de déchets ménagers et assimilés régulièrement inspectées. Référence (2012): 8 % Cible (2015) : 100 % Source : MEMEE

Domaine de réforme D: Développement de filières de valorisation

10. Le Conseil de Gouvernement a approuvé le 15 octobre 2012, le projet de Loi de finances de l’ Emprunteur pour 2013 qui entre autres, (i) introduit une “écotaxe” pour la filière des emballages plastiques, et (ii) modifie les arrangements applicables au Fonds National pour la Protection et la Mise en Valeur de l’Environnement pour lui permettre de recevoir les produits de l’écotaxe.

7. Le Conseil de Gouvernement a adopté le 4 Decembre 2014 le projet d’un décret relatif à la réorganisation du Ministère délégué auprès du Ministre de l’Energie, des Mines, de l’Eau et de l’Environnement, Chargé de l’Environnement, y compris la création d’une direction chargée du développement de la gestion des filières de valorisation, et la Ministre déléguée auprès du Ministre de l’Energie, des Mines, de l’Eau et de l’Environnement, Chargée de l’Environnement, a émis la Circulaire No. 209 en date du 11 novembre 2014 établissant un comité stratégique pour la gestion des filières impliquant les acteurs clé (les collectivités territoriales, les éco-contribuables, l’industrie du recyclage, la société civile)

8. La Ministre déléguée auprès du Ministre de l’Energie, des Mines, de l’Eau et de l’Environnement, Chargée de l’Environnement, a émis la Circulaire No. 208 en date du 11 novembre 2014 (i) établissant les modalités d’allocation des revenus de l’écotaxe et (ii) prévoyant qu’au moins 20 pourcent des revenus de l’écotaxe sont alloués au développement et la mise en œuvre d’activités de recyclage ciblant les chiffonniers, avec une attention spécifique sur la dimension genre, jusqu’à l’achèvement du Programme National des Déchets Ménagers

Nombre de projets de recyclage appuyé avec le concours des produits de l’écotaxe : Référence (2012) : 0 Cible (2015) : 10 Source : FNE La performance sociale et environnementale du secteur améliorée Indicateur : Nombre d’opportunités génératrices de revenus créés dans le secteur du recyclage pour les chiffonniers (décomposé par genre) Référence (2012) : 150 (dont 20 femmes) Cible (2015) : 500 Source : Rapport d’avancement du PNDM

Le nombre des projets de centres de tri retenus est de 18 dont 15 avec les communes (centres de tri aval) et 3 avec les associations et coopératives. Pour les 18 projets retenus : 13 conventions ont été signées par les communes, le Ministère de l'Intérieur et le Ministère délégué chargé de l’Environnement. Ils sont actuellement dans le circuit de versement des fonds. Les autres conventions sont en cours de signature. On estime le nombre de récupérateurs à intégrer au niveau des centres de Tri à plus de 1000 personnes. Sur la base des études effectuées au niveau de Casablanca et Rabat le nombre de femmes travaillant actuellement au niveau des décharges est d’environ 5% des récupérateurs. Mais ce nombre reste à préciser après le démarrage des centres de tri. Il sera surement plus important en raison de l’amélioration des conditions de travail.

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Annex 5. Comments of Co-financiers and Other Partners/Stakeholders

Not applicable

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Annex 6. List of Supporting Documents

General Documents Available in the Project File

World Bank (2013) Third Municipal Solid Waste Sector Development Policy Loan Program

Document

World Bank (2015) Fourth Municipal Solid Waste Sector Development Policy Loan Program

Document

Loan Agreements DPL 3 and 4

Project mission aide-mémoires

Prior action documentation DPL 3 and 4

DPL 1 and 2 Implementation Completion and Results Report, 2012

Poverty and Social Impact Analysis (PSIA) Phase 1(2008), Phase2 (2011) and addendum (2012)

(World Bank)

Supporting Documents by Policy Area

Policy Area A: Governance of the Municipal Solid Waste Area

Communication Strategy for PNDM, 2011

Municipalité de Temara (2012), Résultats de l’Evaluation Citoyenne sur la Gestion des Déchets

Ménagers.

MEMEE, Chargé de l’Environnement (2015), Etude Relative à l’Evaluation Citoyenne sur la

Gestion des Déchets Ménagers de la Ville d’Agadir (2015) Version Provisoire. Préparé par CID-

EDIC

MEMEE, Chargé de l’Environnement (2015) Etude Relative à l’Evaluation Citoyenne sur la

Gestion des Déchets Ménagers de la Ville de Mohammedia. Version définitive. Préparé par CID-

EDIC


Gestion des Déchets Ménagers de la Ville de Rabat. Version provisoire. Préparé par CID-EDIC


Gestion des Déchets Ménagers de la Ville de Tanger. Version définitive. Préparé par CID-EDIC

Ville de Casablanca (2015) Enquête sur la propreté à Casablanca : Proposition méthodologique,

Fourteen signed convention for the creation of regional observatory for environment and

sustainable development.

Note on Etat d’Avancement de Mise en place des OREDD prepared by MEMEE (2015)

List of MSW indicators monitored by OREDD prepared by MEMEE (2014)

Policy Area B: Institutional and Financial Sustainability of Municipal Solid Waste

Management Service

Working paper on MSW institutional options. World Bank (2012)

MSW Institutional and Financial framework. MoI, KfW (2011)

Working paper on MSW fees (Redevance). World Bank (2012)

Note on Mediation/Conciliation Mechanism in Morocco prepared by R. Kaminsky (Arbitration

Lawyer) World Bank (2014)

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Assistance Technique aux Collectivités locales pour les projets appuyés par le PNDM, MEMEE

(2014) divers lots

La Gestion Déléguée des Services Publics Locaux, Synthèse. Cour des Compte, Royaume du

Maroc (2014)


Establishment of Environnemental Police Framework Note prepared by M. Bekhechi (World

Bank) (2014)

Note on the Matrice de contrôle environnemental des décharges prepared by La Division Contrôle

Environnemental. MEMEE (2015)

Etude Relative à la Mise en Place d’une Police Nationale de l’Environnement. MEMEE (2014)

Mission 1: Diagnostic de l’etat actuel du contrôle environnemental

Mission 2: Expertise juridique et institutionnelle

Mission 3: Expertise technique –mise en place de la police de l’environnement

Training Session on Environmental Control prepared by M. Bekhechi (World Bank) (2014)


Note conceptuelle sur le développement des filières de recyclage au Maroc. F. Ghariani (Recycling

Expert) World Bank (2012)

Elaboration d’un Business Plan pour la Gestion de la Filière des Déchets d’Emballages. MEMEE

(2014)

Mission 1 : Caractérisation et mobilisation du gisement

Mission 2 : Elaboration du business plan

Gouvernance de la Filière de récupération, tri et valorisation des déchets ménagers et assimiles

prepared by GIZ (2014)

Note sur l’Institution d’un Comité d’Orientation Stratégique des Filières de Valorisation

(COSFIV) prepared by F. Ghariani (WB) (2014)

Développement et Gestion de la filière plastique, Concept et opérationnalisation. F. Ghariani

(World Bank) (2014)

Etat d’avancement des filières e tri et de valorisation des déchets. MEMEE (2015)

Assistance Technique pour la Gouvernance des Filières de Récupération, Tri et Valorisation des

Déchets Cahier des prescriptions spéciales. MEMEE (2015)

Note Rétrospective sur le processus de mise en place sur l’écotaxe plastique, MEMEE (2014)

Etude de Définition des activités, des critères d’éligibilité et des dépenses éligibles à un appui des

ressources de l’écotaxe prepared by GIZ (2014)

Manuel Opérationnel d’Utilisation des revenus de l’écotaxe. F. Ghariani (World Bank) (2015)