RESTRUCTURING PAPER ON A PROPOSED PROJECT RESTRUCTURING OF WEST AFRICA REGIONAL BIOSAFETY PROJECT

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1 Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Document of The World Bank RESTRUCTURING PAPER ON A PROPOSED PROJECT RESTRUCTURING OF WEST AFRICA REGIONAL BIOSAFETY PROJECT Report No v1 GLOBAL ENVIROMENT FACILITY TRUST FUND (TF091199) TO THE WEST AFRICAN ECONOMIC AND MONETARY UNION AND INTERNATIONAL DEVELOPMENT ASSOCIATION CREDIT (4368-BUR) TO BURKINA FASO APPROVED ON NOVEMBER 13, 2007 MAY 1, 2012 This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.

2 ABBREVIATIONS AND ACRONYMS AFD BCH CILSS CPB DDRE EC ECOWAS GEF IFR IPR LAC LMO MTR NBA PAD PAFASP PDO PMU RCU RBF UNEP WAEMU French Development Agency (Agence Française de Développement) Biosafety Clearing House Permanent Inter-State Committee for drought Control in the Sahel (Comité Permanent Inter Etat de Lutte contre la Sécheresse au Sahel) Cartagena Protocol on Biosafety Department of Rural Development, Natural Resources and Environment (Département du Développement rural, des Ressources naturelles et de l Environnement) European Commission Economic Community of West African States Global Environment Facility Interim Financial Report Intellectual Property Rights Latin America and Caribbean Living Modified Organisms Mid-Term Review National Biosafety Agency Project Appraisal Document Agricultural Diversification and Market Development Project (Programme d Appui aux Filières Agro-sylvo Pastorales) Project Development Objective Project Management Unit Regional Coordination Unit Regional Biosafety Framework United Nations Environmental Program West African Economic and Monetary Union Regional Vice President: Regional Integration Director: Sector Manager: Task Team Leader: Obiageli Katryn Ezekwesili Elizabeth Laura Lule Idah Z. Pswarayi-Riddihough Denis Jordy

3 AFRICA WEST AFRICA REGIONAL BIOSAFETY PROJECT P CONTENTS Page A. SUMMARY... 7 B. PROJECT STATUS... 8 C. PROPOSED CHANGES... 8 ANNEX 2: REALLOCATION OF PROCEEDS... 9 ANNEX 3: EXTENSION OF CLOSING DATE ANNEX 4: PROGRESS IN KEY PROJECT INDICATORS... 13

4 DATA SHEET Restructuring Status: Draft Restructuring Type: Level two 1. Basic Information Project ID & Name P096058, P105140: West Africa Regional Biosafety Project Countries Republic of Benin, Burkina Faso, Mali, Senegal, and Togo 1 Task Team Leader Denis Jordy Sector Manager Idah Z. Pswarayi-Riddihough Director (Regional Integration) Elizabeth Laura Lule Original Board Approval Date November 13, 2007 Original Closing Date: 06/30/2012 Current Closing Date 06/30/2012 Proposed Closing Date [if applicable] 06/30/2013 EA Category B-Partial Assessment Revised EA Category N/A EA Completion Date 4/15/2006 Revised EA Completion Date N/A 2. Revised Financing Plan (US$ m) Source Current 2 Revised GEF (through the World Bank) IDA (Cr BUR) IDA (Cr BUR) West Africa Economic and Monetary Union (WAEMU) European Commission (EC) United Nations Environmental Program (UNEP) Total All Member States will benefit from the regional regulation and harmonized risk assessment procedures. However, activities in Guinea-Bissau and Cote d Ivoire have not been eligible for the GEF financing and have been financed by WAEMU directly with the budgetary support of the French Development Agency (AFD). Niger was not included in the list of countries which benefit from GEF financing as it was not considered part of the Cotton Belt 2 As a result of the level I restructuring approved on August 30,

5 3. Borrower/Recipient Organization Department Location WAEMU Department of Rural Development, Natural Resources and Environment (DDRE) Burkina Faso Ministry of Finance and Budget, Burkina Faso 380 avenue du Professeur Joseph Ki-Zergo, Ouagadougou 01, 03 BP 7050, Ouagadougou 03, Burkina Faso 4. Implementing Agency WAEMU Organization Department Location Department of Rural Development, Natural Resources and Environment (DDRE) Ministry of Environment and Ministry of Agriculture, Water Resources and Fisheries, Burkina Faso National Biosafety Agency and Project Coordination Unit of the Agricultural Diversification and Market Development Project (PAFASP), respectively 380, Rue Agostino Neto - 01 BP 453, Ouagadougou 01, Burkina Faso National Biosafety Agency: PO Box 7044, Ouagadougou, Burkina Faso PASAFP: PO BOX 7029, Ougadougou, Burkina Faso 5. Disbursement Estimates (US$) Actual amount disbursed as of April 25, 2012 GEF TF total to-date: 2,046,785 IDA Cr BUR total to-date: 607,815 GEF TF Fiscal Year Annual Cumulative Through ,000,000 3,046, ,353,215 5,400,000 Total 5,400,000 IDA Cr BUR Fiscal Year Annual Cumulative Through ,000 1,107, ,792,185 3,900,000 Total 3,900,000 5

6 6. Policy Exceptions and Safeguard Policies Does the restructured project require any exceptions to Bank policies? Does the scale-up of restructured projects trigger any new safeguard policies? If yes, please select from the checklist below. N N Safeguard Policy Last Rating Proposed B B Environmental Assessment (OP 4.01) X X Natural Habitats (OP 4.04) Forestry (OP 4.36) Pest Management (OP 4.09) X X Cultural Property (OPN 11.03) Indigenous Peoples (OD 4.20) Involuntary Resettlement (OP 4.12) Safety of Dams (OP 4.37) Projects in International Waters (OP 7.50) Projects in Disputed Areas (OP 7.60) 6

7 A. SUMMARY RESTRUCTURING PAPER The West Africa Regional Biosafety Project is part of the West African Economic and Monetary Union (WAEMU) Regional Program for Biosafety, adopted in The project is funded through two main instruments: a Global Environment Fund (GEF) Trust Fund (TF091199) in the amount of US$5,400,000 and an International Development Agency (IDA) Credit to Burkina Faso (Cr BUR) in the amount of US$3,900,000. Both instruments were submitted to Board as one project, a fully blended GEF/IDA operation, sharing a common Project Development Objective (PDO). The project was approved by the Board on November 13, 2007 and became effective on July 7, 2008 for the IDA Credit, and October 2, 2008 for the GEF Grant. The Closing Date is June 30, The project is complemented by the PAFASP (Programme d Appui aux Filières Agro-sylvo Pastorales), an Agriculture project, which provides a contribution of US$ 1,200,000 million aiming at building capacity in biosafety in Burkina Faso. 2. A level I restructuring of the project was approved in August 30, 2011 and included an amendment of the PDO and Results Indicator to reflect a more realistic objective, changes in the description of the three project components in support of the revised PDO and a reallocation of GEF Trust Fund and IDA Credit proceeds. 3. The project comprises the following three components (after restructuring): Component A: (1) Assessing and evaluating existing tools and guidelines for risk assessment and management; (2) Establishing a national reference laboratory with a regional dimension for biosafety in Burkina Faso, and upgrading a network of national biosafety laboratories in the remaining seven WAEMU Member States, (3) Developing regional common approaches for risk assessment and management, inspection, and monitoring and evaluation of Living Modified Organisms (LMOs); and (4) Disseminating the regional guidelines in the WAEMU region through the regional Biosafety Clearing House (BCH) central portal. 3 Component B: (1) Preparing a regional law and regulation on biosafety (Regional Biosafety Framework RBF); (2) Identifying an institutional framework to accompany the dissemination and implementation of the legal and regulatory regional biosafety framework in the Member States; and (3) Project management, monitoring and evaluation. Component C: Strengthen the human, institutional, legal and regulatory capacity of Member States to implement the Cartagena Protocol on Biosafety through training and study tours, including on IPR 3 The BCH is a mechanism set up by the Cartagena Protocol on Biosafety to facilitate information exchange on Living Modified Organisms. 7

8 4. The GEF Agreement finances all project activities except sub-component A2 (biosafety laboratory in Burkina Faso), which is funded through the IDA (Cr BUR). The project is executed by two implementing agencies: WAEMU Commission for the activities financed from the proceeds of the GEF grant, and the National Biosafety Agency of Burkina Faso for activities financed from the proceeds of the IDA credit (subcomponent A2) in collaboration with PAFASP for the fiduciary aspects. B. PROJECT STATUS 5. The main activities progressed well following the level I restructuring of the project approved in August 2011 (details are provided in annex 3). Despite that the PDO is rated Moderately Satisfactory, the likelihood to achieve the satisfactory outcomes is high as a result of the level I restructuring approved in August However this will require the finalization of key ongoing activities and an extension of the closing date of 12 months. 6. There is neither pending audit nor interim financial report (IFR). C. PROPOSED CHANGES 7. This Restructuring Paper outlines changes to be made to both the GEF (TF091199) and IDA (Cr BUR) legal agreements. In specific, it proposes the following changes: (i) extension of the Closing Date of the project from June 30, 2012 to June 30, 2013 to allow time to finalize all remaining project activities, and, (ii) reallocation the GEF grant and IDA Credit proceeds. 8

9 ANNEX 2: Reallocation of Proceeds AFRICA WEST AFRICA REGIONAL BIOSAFETY PROJECT P096058/P GEF TF091199/Cr BUR 1. Proceeds for Africa, West Africa Regional Biosafety Project, Grant No TF091199, P096058,will be reallocated as follow: Category of Expenditure Allocation (Expressed in USD) % of Financing Current Current Revised Current Revised (1) Consultant services, Audits, 3,000,000 2,700, Training and workshops (2) Operating Costs 1,000,000 1,000, (3) Unallocated (4) Goods 1,400,000 1,700, Total 5,400,000 5,400, Proceeds for Africa, West Africa Regional Biosafety Project, Credit No BUR, P105140,will be reallocated as follow: Category of Expenditure Allocation (Expressed in DTS) % of Financing Current Current Revised Current Revised (1) Works 940, , (2) Goods 1,370,000 1,290, (3) Consultants Services and Audits 180, , (4) Training 10,000 45, (5) Operating Costs 100, , (6) Unallocated Total 2,600,000 2,600, The key activities progressed well following the level I restructuring of the project approved on August 2011 (details are provided in the Restructuring paper paragraph and in annex 3). 4. The proposed reallocation for GEF (TF091199) will increase the funds in the Goods Category to cover the additional costs related to the purchase of equipment for the national biosafety laboratories and coordination in the WAEMU members States. Regarding the IDA Credit (Cr. No 4368-BUR), the reallocation will increase the funds in the Consultants Services and Audits and Training Category because of the costs related to additional consultants, technical assistance and training needed for the construction and accreditation process of the biosafety laboratory of Burkina Faso. 9

10 5. Cost per component, GEF and IDA (US$) Components Component A - Adapting and disseminating regional methodologies to assess and manage risks to living modified organisms Costs (US$) 5,600,000 B - Preparing a draft Regional Regulatory Biosafety 2,040,000 Framework C- Increasing the human, institutional, legal and 1,660,000 regulatory capacity of Member States on Biosafety to implement the Cartagena Protocol on Biosafety Total 9,300,000 10

11 ANNEX 3: Extension of Closing Date AFRICA WEST AFRICA REGIONAL BIOSAFETY PROJECT P096058/P GEF TF091199/Cr BUR Restructuring Paper 1. The closing date for West Africa Regional Biosafety Project, GEF TF and CR BUR will be extended from June 30, 2012 to June 30, The key activities progressed well following the level I restructuring of the project approved on August 2011, both on the regional components implemented by the West Africa Economic and Monetary Union (WAEMU), as well as on the national component implemented by the National Biosafety Agency (NBA) of Burkina Faso. The key activities completed since the restructuring includes: (i) the finalization by WECARD (West and Central African Council for Agricultural Research and Development) of the draft regional manual for risk assessment and management, inspection, and monitoring and evaluation of LMOs; (ii) the selection of the contractor for the construction of the national reference biosafety laboratory in Burkina Faso with a regional profile; as well as the finalization of the Environmental Management Plan of the regional laboratory; (iii) the upgrading of a network of national biosafety laboratories in the remaining seven WAEMU Member States, through the delivery of a first set of equipment (financed by WEAMU), and the selection of a supplier for additional laboratory equipment (financed by GEF), (iv) the implementation of a regional capacity building action plan since October 2011 which includes five regional trainings with more than 250 participant and institutional support to national biosafety coordination; and; (v) the validation of the communication strategy. 3. As a result the likelihood to achieve the PDO (revised after restructuring) is Moderately Satisfactory. The first outcome indicator ( At least 25% of trained researchers and other stakeholders apply the knowledge they have acquired in their activities related to biosafety by the end of the project ) will be achieved through: (i) the ongoing capacity building action plan, which reached more than 250 researchers and stakeholders and trained them in various aspects related to biosafety (detection, inspection and control, risk assessment, communication on risk and awareness raising, IPR..), (ii) the upgrading of national and regional biosafety laboratories as well as institutional and financial support to each national biosafety coordination. The second outcome indicator ( A draft Regulatory Regional Biosafety Framework prepared ) has already been achieved since the draft is available, has been signed off by the management of WAEMU and ECOWAS, consultation workshops have been organized, including with civil society and the dialogue with ECOWAS on a joint roadmap is continuing as recommended during the Mid Term Review. 11

12 4. The extension of closing date is required to lead to the achievement of satisfactory outcomes at exit. It is expected that the overall project outcomes will be rated satisfactory at closing based on the following: (i) the high relevance of the project which is building regional and national capacity to implement the Cartagena Protocol on Biosafety and harmonizing risk assessment tools and procedures within common economic space, (ii) the substantial efficacy based on current progress of PDO and results indicators (see annex 4). Regarding the efficiency, an ex-post economic analysis will be conducted as part of the ICR. 5. The proposed extension will allow the finalizing of the following key activities: (ii) the construction and equipment, including greenhouses, of the national reference laboratory of Burkina Faso with a regional profile (6 to 8 months); (iii) the strengthening of the network of national biosafety laboratories and coordination in the remaining seven WAEMU Member States, through delivery of additional equipment and technical assistance (6 months), (i) the validation and dissemination of the draft regional manual for risk assessment and management (3 months), (iv) the finalization of the regional capacity building action plan including the organization of national trainings in each WAEMU Member States, study tours and short internships for laboratory managers and national biosafety specialists and coordinators (6 months); and additional institutional support and equipment for national biosafety coordination (6 to 8 months). 6. For GEF, although the disbursement rate is currently 38 %, already 50% have been committed and it will reach 63 % as soon as the laboratory equipment contract is signed. The IDA disbursement rate is 15 % mainly because the construction of the regional laboratory has not yet started. It is expected that with the ongoing and planned activities all the funds will used at project closing. 7. The project's request for extension meets the requirements under OP/BP (Closing Dates): (i) the project objectives continue to be achievable: (ii) the performance of the Bank and Borrower is satisfactory; and (iii) an action plan to complete the project has been agreed with government. This will be the first extension of the project for a cumulative total of 12 months. 12

13 ANNEX 4: Progress in key project indicators PDO Level Results Indicators* Indicator One: At least 25% of trained researchers and other stakeholders apply the knowledge 4 they have acquired in their activities related to biosafety by the end of the project Core D=Dropped C=Continu e N= New R=Revised Project Development Objective (PDO): GEF TF PDO: Support the Recipient for the establishment of an operational institutional, legal and regulatory regional biosafety framework for the regulation of living modified organisms. IDA Cr BUR PDO: Support the West African Economic and Monetary Union for the establishment of an operational institutional, legal and regulatory regional biosafety framework for the regulation of living modified organisms. Revised Project Development Objective: GEF TF091199/IDA Cr BUR PDO: (a) Strengthen the institutional, scientific and legal capacity of the WAEMU Commission and Member States in relation to the Cartagena Protocol on Biosafety in the sub-region, and (b) support the preparation of a draft Regional Regulatory Biosafety Framework. Unit of Measure Baseline Cumulative Target Values** 2011 March 2012 Target at closing N Percent 0 5 Thanks to the capacity building action plan, more than 250 researchers and stakeholders have been trained in various aspects related to biosafety (detection, inspection and control, risk assessment, communication on risk and awareness Frequency 25 End of Project Data Source/ Methodology Completion mission, completion report, survey Responsibility for Data Collection PMU 4 A survey will be conducted in order to evaluate to which extend the knowledge acquired through the training are applied, mainly in LMO risk assessment, LMO detection methodologies, laboratory good practices, control inspection, risk communication and awareness raising 13

14 Indicator Two: A draft Regulatory Regional Biosafety Framework prepared Percentage of applications processed* over those received for field trials and commercial release of high priority crops for the region reviewed in compliance with the regional science-based risk assessment and management procedures established by the national N D Quantitative No Regional Biosafety Framework in place A draft is available. Consultations ongoing. raising, IPR..) and it is expected that 25 % of the participants apply the knowledge that they have acquired (a survey will be conducted) The draft of the biosafety regulatory framework is available, national and regional consultation workshops have been organized, including with civil society, comments are available and the dialogue with ECOWAS on a joint roadmap is continuing as recommended during the MTR A final draft available as well as stakeholders comments and concerns End of Project Completion mission, completion report PMU 14

15 reference biosafety laboratory with a regional dimension. Intermediate Result indicator One: At least 5 national laboratories fully equipped at the end of the project Intermediate Result indicator Two: Availability of a manual on risk assessment and management methodologies Intermediate Result indicator Three: At least 50 researchers trained in scientific INTERMEDIATE RESULTS Intermediate Result (Component A): Regional risk assessment and management methodologies designed and disseminated in the WAEMU region Revised Intermediate Result (Component A): The capacity for detection, analysis and management of biotechnology risks of WAEMU and its Member states strengthened. N Number 0 0 A first set of laboratory equipment (financed by WAEMU) has already been delivered to 7 national laboratories. The supplier for the additional set of equipment has been selected and the contract will signed as soon as the extension is granted N Qualitative No manual in place A study has been launched and work is ongoing. Draft study is available The draft biosafety risk assessment and management manual prepared by CORAF/WECARD is available and a regional validation workshop is planned in June 2012 R Number Trainings on risk assessment have been organized in A final manual available, validated and posted on BCH central portal 5 Semiannually Semiannually 50 Semiannually Bank completion mission and completion report Bidding documents Bank missions and progress reports Bank missions, progress reports, PMU PMU PMU 15

16 methodologies on risk assessment and management 2010 and 2012 and gathered more than 50 researchers. training curricula and attendance sheets Intermediate Result (Component B): Institutional, legal and regulatory regional biosafety framework, taking into account IPRs related to LMOs, elaborated and monitored at WAEMU level. Revised Intermediate Result (Component B): A first draft Regional Biosafety Framework on biosafety and comments of stakeholders available. Intermediate Result indicator One: A first draft RBF, including the institutional framework submitted for comments by stakeholders Monitoring reports published by regional observatory R Qualitative No RBF in place D A first draft RBF sent to stakeholders for consultations. Discussions are ongoing. The draft of the biosafety regulatory framework is available, national and regional consultation workshops have been organized, including with civil society, comments are available and the dialogue with ECOWAS on a joint roadmap is continuing as recommended during the MTR; Draft RBF available with stakeholders Semiannually Bank missions and progress reports PMU Intermediate Result indicator One: At least Intermediate Result (Component C): Biosafety framework implemented in the eight beneficiary countries, taking into account the views of national stakeholders and IPRs capacity built Revised Intermediate Result (Component C): The capacity of WAEMU and its Member States to implement the CPB strengthened. N Number Five regional training modules have 300 Semiannually Bank missions, PMU 16

17 300 stakeholders trained in biosafety and IPR by the end of the project Intermediate Result indicator Two: At least 20 stakeholders have participated in at least one study tour by the end of the project Percentage of completed applications receiving full reviews, in accordance with regional guidelines and procedures already been organized with more than 250 participants, including national trainers (train-thetrainers). N Number 0 5 Two study tours are planned in May/June for 20 national laboratory managers and national biosafety coordinators D 20 Semiannually progress reports, training curricula and attendance sheets Bank missions and progress reports PMU Number of comments submitted by public before regulatory decisions and percentage that receive a response from national biosafety committee in accordance with regional guidelines and procedures D Percentage of regulators and national cotton companies D 17

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