Completion evaluation¹

The evaluation process

Following the closing of the Tafilalet and Dades Rural Development Project (PDRT), a completion evaluation was undertaken by the Office of Evaluation of the International Fund for Agricultural Development (IFAD). That evaluation was based on an approach paper prepared in accordance with IFAD methodology (May 2005). A reconnaissance mission was conducted in June 2005 and a Core Learning Partnership formed including: i) the Ministry of Agriculture, Rural Development and Fisheries (Secretary General), ii) the Regional Authority for Agricultural Development of Ouarzazate and Tafilalet, iii) the Regional Division of IFAD for North Africa and the Near East and, iv) the Office of Evaluation of IFAD. A rural survey (August 2005) took place in both project regions in preparation for the evaluation mission, which visited Morocco from 11 September to 12 October 2005. A preliminary evaluation report was distributed in December 2005 and a completion workshop took place with the project partners in Ouarzazate on 23 February 2005. The workshop provided an opportunity to discuss the evaluation findings and define the content for this agreement at completion point, setting forth the major evaluation findings and the recommendations made by workshop participants ²

Summary of evaluation findings

Project achievements. Following a delay in the loan closing date of more than two years, the project's achievement rates are generally good, and in some cases exceed the component targets set. In Tafilalet, seven floodwater perimeters were rehabilitated (9 170 ha), 72 pumping stations were built or rehabilitated, and approximately 55 km of khettaras [traditional underground drains] were treated. This corresponds to virtually 100% of the target. In Dades, the achievement rate was 34% for rehabilitation of séguias [irrigation canals]; completion is planned for end-2006. The delay is attributable to the requirement that beneficiaries make good on their financial contribution (2.5%) prior to commencement and measures have now been taken to address this matter. Work to develop infrastructure is close to complete, and has resulted in 16 water supply systems of the 17 projected (the remaining one is now under way), construction of close to 12 km of dikes to protect waterways and rehabilitation of a 15 km stretch of the Toundoute-Iminoulaoune roadway. Under the pastoral component in Tafilalet, the project placed 110 200 ha of rangeland in fallow (67% of adjusted target) and planted 4 600 ha of fodder crops (71% of target). With respect to D'man sheep stock improvement, 98 breeders joined the National Association for Sheep and Goat Raising (ANOC) and 9 169 head were selected (141% of target). In Tafilalet, 66 breeders joined ANOC and 8 296 animals were selected (415% of target). The achievement rate for work to stabilize sand dunes using cross-ruling by palm branches is 99% of the adjusted target; for the installation of fibre-cement sheeting it is 85%. In Dades, under the goat milk programme, extension and equipment were provided to the Skoura dairy station, equipment was provided for a cheese dairy, and a women's cooperative was set up. However, the production of selected goats under this programme is well below target (60%) and goat cheese production is negligible (4.5% of target in year six). With respect to women's advancement, the project gave 11 000 women the opportunity to acquire know-how in livestock production, crafts, marketing and microproject management, and 8 000 received literacy training.

Effectiveness. Among the project's strengths are: i) an increase in yields for particular crops; ii) structures built to divert floodwater and revive mountain oases (4 000 ha), and in some cases an intensification of cropping and grazing; iii) the khettara treatment programme, which enabled drainwater volumes to be stabilized; iv) improved access to drinking water through household connections in certain communes; v) generally satisfactory results on sheep breed improvements. Areas of weakness include: i) under the rangeland development component, in spite of positive results in the creation of pastoral cooperatives and the beginning of a consultation process on natural resource preservation, achievements below target and a low percentage of areas where fallow periods were adhered to (24%); ii) under the goat milk programme, in spite of the dynamism in women's cooperatives, oversized or unused equipment and selected goat production well below target; iii) geographical targeting that was not always well planned and led to dispersion of actions over a large area with little complementarity or synergy.

Over the past ten years, the PDRT has played a very important role in the economic and social development of Tafilalet and Dades, thanks to a varied programme of action that has enabled the project to make an effective contribution to poverty reduction. The priority assigned to developing basic infrastructure and equipment is justified both by the strategic importance of this component to consolidate economic and social development and by the deficient infrastructure in both project regions, which cover a vast expanse of land. In this sense, the waterworks component, in which two thirds of the investment was made, has led to the installation and rehabilitation of hydraulic infrastructure on a large scale which is crucial to support human activity in pre-Saharan areas under serious threat of cyclical drought.

The sustainability of the project impact remains contingent on future developments in the socio-economic and socio-political environment (economic growth, strengthening of the democratic process, development choices and strategies), on the capacity for action and adaptation on the part of local actors and on steps taken by the administration to build upon results. Among the indicators of sustainability are the partnership approach pursued by both Offices with associations and cooperatives, which should improve the sustainability of project achievements. The two ORMVAs, in consultation with IFAD, have elaborated a three-year plan to strengthen the project achievements after its closure.  Risk factors include, inter alia, the fragility of cooperatives and associations, still largely dependent upon technical, financial, material and human resources provided by the administration.

Promoting rural women. The PDRT's actions to promote rural women have made a positive and necessary contribution to strengthening the current evolution of the social fabric in these regions. However, the sustainability of this contribution will depend on opportunities open to women in the social and economic environment for making use of the know-how acquired under the project. In addition, outreach by the Offices has undoubtedly helped raise the technical skills of farmers in both regions. Such outreach must however be seen in the context of Morocco's agricultural policy, which increasingly favours a reduced role for the State and corresponding increase in the role of the professions.

The participatory approach. Although the project was implemented under a participatory approach, the two Regional Offices for Agricultural Development (ORMVAs) appear to have interpreted this in a utilitarian and reductive way that limited beneficiary contributions to sharing costs with the State and maintaining equipment and infrastructure. This was the definition applied at the time of the project formulation (early 1990s) when the participatory approach was only starting to emerge.  However, in the Dadès region, beneficiaries have started to be involved in the choice of sites, approval and monitoring of works.  Ultimately, both ORMVAs can be said to have contributed fairly early in the project to consolidating the national dynamic promoting grass-roots institutions and organizations in the rural environment.

Evolving priorities. Enhancing the value of agricultural land has long been a priority for the ORMVAs in view of the imperatives of increasing agricultural production and creating income sources for rural populations. New development needs are currently being felt in both regions. They have to do primarily with: i) protecting the sustainability of fragile ecosystems and a valuable heritage of landscapes and technical structures; ii) promoting rural populations and combating the poverty and exclusion that place economic and social development in these regions in jeopardy.

Emerging needs. The challenges to be faced in meeting these emerging needs include the typical constraints of arid regions where natural resources do not support unlimited intensification and development of agricultural production. Hence the imperative of diversifying income sources, particularly for poor families, so that they may overcome the obstacles of depleted soil and drought, a structural reality in the project area. New prospects are opening up for economic and social development in Tafilalet and Dades, through promotion of the tourism and film industries. In addition to creating employment for local people, the development of the tourism and film industries could have a favourable effect on demand for agricultural products and local crafts, preservation of the cultural heritage and landscape, and promotion of the services sector, with a direct impact on diversifying and increasing incomes for local populations.

General observations. There are a number of questions to be raised on key issues for the future of rural populations and their environment and productive systems in the project area:

• Land tenure: Although this is a decisive factor in the future of the rural environment, the Moroccan State lacks a clear strategy on collective land. Any plan for rural intervention can therefore be considered to be vulnerable and contingent upon an effort on the part of the authorities to clarify the tenure issue and its regulatory authorities.
• Pastoral cooperatives: These structures exist and clearly have a role to play at present, but one might well wonder whether they are able to become real tools for development and sustainable management of land and livestock-raising in pastoral areas. Based on the experience of the Livestock and Pasture Development Project in the Eastern Region (PDPEO) and more recent experiences under PDRT, it should be possible to clarify certain received ideas about cooperatives based on ethnic group and bloodline in Moroccan rural society. These cooperatives are currently undergoing rapid changes that will have a far-reaching and irreversible effect on institutions and social structures. This will have important consequences for the modus operandi of pastoral populations. The changes within social groups in pastoral areas include the affirmation of individual strategies by herders within an enlarged social space (market, communication media) and a crisis in the perpetuation of traditional pastoral society.
• Supplements (mainly barley-based) for animals have become, in Morocco as elsewhere in the Maghreb, an absolute necessity to sustain viable livestock-raising in pastoral areas. The impact of such supplements is not confined to pastoral resources, which are being subjected to pressures well beyond their absorption capacity. Also affected are the equilibrium of pastoral society and the distribution of resources among herders on a large, medium and small scale. The major factor is the development of cash-based herding practised by large-scale entrepreneur herders on vast areas of rangeland, whereas small herders suffer from constraints due to the small size of their stock threatening its economic viability.
• On a different level, enterprises (cooperatives and associations) undertaken by the Offices under PDRT depend on what is known as the social and solidary economy, which has been developing in recent years in Morocco. This economy seeks to attenuate the social impact of the State's reduced role under the structural adjustment programme and resulting marginalization of a number of areas and social groups. However, the progress made in this direction should not be allowed to mask the sector's limitations and the fragility of its enterprises. These are often small-scale artisanal enterprises that are increasingly faced with competition and market realities and subject to many constraints and difficulties. The cooperatives and associations initiated by the project in both regions are not excluded from this observation.
• In view of the complexity of the development process, particularly in such areas, an integrated, territorial approach is the optimal way of making the best use of (often inadequate) human and material resources available to this end. It must be pointed out, however, that concerted efforts among sectors and partnerships in planning, programming and implementing development actions remain relatively weak.

Recommendations

Developing a Strategic Vision for Integrated and Sustainable Regional Development

Inscribe the objective of poverty reduction in a regional strategy of integrated and multi-sector development. This strategy, which should be embedded in a perspective of sustainable development and should be validated by the several partners, requires the development of basic infrastructure and the exploitation of the potential of the area. From their side, public authorities should still play a key role in propelling the development dynamic, particularly by providing resources (mainly financial) and the needed competencies, by organising the legal and institutional framework and specific schemes to encourage private investments. This recommendation is addressed to the development institutions at the regional, provincial and central level, with IFAD's assistance.

Provide adequate maintenance of the infrastructure constructed by the project to ensure the sustainability of public investments. The progressive transfer of management responsibilities for irrigation networks to water users associations (AUEAs) should be accompanied by support to their activities (redeployment of ORMVA staff to strengthen the teams assisting AUEAs, training of AUEAs and formation of technicians to their new role of AUEAs advisors). This recommendation is addressed to the ORMVAs and the relevant Ministries.

Within this strategic vision, hydro-agricultural interventions should consider the oasis landscape not only as a place for agricultural production but also as a valuable collective heritage. In this sense, hydro-agricultural interventions should allow to: i) protect natural resources (water, soil, genetic specificities…), ii) preserve traditional water systems (khettarah, séguias), iii) contribute to equitable and rational management of water resources, iv) contribute to the employment and income generation, v) support the development of eco-tourism. This recommendation is addressed in particular to the Offices, MADRPM and IFAD.

The activities undertaken by the project in pastures development have contributed to set up a new type of organisation of pastoral activities which impact on the resources and pastoral society should be the object of a specific in-depth analysis.  This analysis is foreseen in the framework of the second phase of the Livestock and Pastures Development Project in the Eastern Region (funded by IFAD). The comparison with this experience would provide abundant learning opportunities.  This recommendation is addressed in particular to the Offices, MADRPM and IFAD.

Partnership

The two ORMVAs are called upon to update their operating approaches and modalities to face a development mission that is largely beyond the agricultural sphere. In order to perform successfully, skilled human resources (beyond agricultural techniques) need to be developed. Also the ORMVAs need to strengthen their partnership with other public institutions involved in the development of these areas, at the level of planning, formulation and execution of development programmes and projects. This means promoting a culture of participation and partnership to effectively include all partners in the different project phases and creating an appropriate mechanism of coordination and consultation. This recommendation is addressed in first place to the ORMVAs, provinces and the concerned ministerial departments.

The two ORMVAs are also called upon to strengthen their partnership with the associations and private sectors, particularly through: i) the identification of the relevant development actors, ii) strengthening of the capacities of associations, through the elaboration of a work programme that is responsive to their needs, iii) the reinforcement of dialogue and exchanges with associations. The ORMVAs should also support the partnership between associations and the private sector (micro-credit, donations…). Certain project experiences warrant an in-depth analysis under a research and development programme involving both the ORMVAs and research institutions, in order to draw the most relevant lessons learned. This is the case in particular of the partnership between the ORMVAs and irrigation water users' associations (AUEAs) for maintaining, protecting and enhancing hydro-agricultural infrastructure installed. This recommendation is addressed mainly to the ORMVAs.

Improving the partnership also involves the coordination among donors, which deserves strengthening. This coordination, to be embedded in the project design, should include, inter alia, a standardisation of procedures, the organisation of meetings and consultation workshops, the harmonisation of project follow-up activities and the undertaking of common missions. This recommendation is addressed to the donors, the Moroccan ministerial departments concerned and their implementing agencies.

Project formulation, M&E and communication

Project diagnostics. Before seeking financial support, prepare data banks of project proposals, identified in consultation with local development actors. Concerning, project elaboration, it is important to conduct in-depth diagnostics of baseline situation, taking into account the ecological, socio-economic and cultural specificities and identifying the strengths, weaknesses and dynamics operating in the areas of intervention. This recommendation is addressed to the ORMVAs.

Integration and targeting. Pay attention to improving integration of rural development interventions, with emphasis on the different sectors involved. Concerning targeting, it is important to better target project activities, geographically and from the point of view of the needs of the poor and special disadvantaged categories, such as women and the youth and to ensure participation of development actors (associations, civil society and local actors) in the choice of interventions and beneficiaries. This recommendation is addressed to the ORMVAs and IFAD.

Set up an impact-oriented monitoring and evaluation system (focusing on changes on living conditions, poverty reduction and protection of natural resources and local heritage). Its usefulness should be understood and shared by the concerned development actors. This system should be based on a logical framework and on few and simple indicators. In addition, the system should be integrated in the regular activities of development organisations and be endowed with appropriate human and material resources for its implementation. This recommendation is addressed to the ORMVAs and MADRPM. Collaboration with INRA and the High Commission for Planning in the preparation of experimental guidelines could be considered.

Strengthen the documentation, knowledge management and communication of project experiences and achievements. New information and communication technologies should be further developed within the Offices by the appropriate divisions to ensure capitalisation and exchange of experiences with other actors at the national and international level. The formulation of projects should include budget allocations to this aspect (workshops, training, publications, audiovisual material, radio programmes). This recommendation is addressed to the Offices and MADRPM and IFAD (including Karianet, a network recently created by the Division for Middle East and North Africa for the dissemination and management of knowledge and practices generated by IFAD programmes in the region).

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1/ This agreement reflects an understanding among the key partners to adopt and implement recommendations stemming from the evaluation.  The agreement was formulated in consultation with the members of the Core Learning Partnership (CLP).

2/ The CLP members that attended the workshop were: Mr. Moha Marghi, Secretary General, Ministry of Agriculture, Rural Development and Fisheries (MADRPM); Mr Abdel Wahed El Gharbaoui, Director, ORMVA of Ouarzazate ; Mr Moha Haddouch, Coordinator PDRT/ORMVA Ouarzazate ; M. Mohamed Benlakhal Coordinator PDRT/ORMVA Tafilalet ; Mr Mounif Nourallah, Country Programme Manager for Morocco, IFAD.  Mr. Ahmed Margich, Governor of the Province of Ouarzazate attended the final session of the workshop.  Mr. Fabrizio Felloni, Evaluation Officer (IFAD, Office of Evaluation), Mr. Ali Abaab (consultant, evaluation team leader), Mr. Mohammed Daoudi (consultant, irrigation and rural infrastructure specialist), and Mr. Mohammed Mahdi (consultant, sociologist) also attended the workshop.  A list of workshop participants is provided in the appendices to the main report.