FOR OFFICIAL USE ONLY RESTRUCTURING PAPER ON A PROPOSED PROJECT RESTRUCTURING OF EMERGENCY BRIDGE RECONSTRUCTION & VULNERABILITY REDUCTION PROJECT

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1 Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Document of The World Bank FOR OFFICIAL USE ONLY RESTRUCTURING PAPER ON A PROPOSED PROJECT RESTRUCTURING OF EMERGENCY BRIDGE RECONSTRUCTION & VULNERABILITY REDUCTION PROJECT GRANT H HT November 3, 2008 TO THE REPUBLIC OF HAITI May 30, 2013 SUSTAINABLE DEVELOPMENT DEPARTMENT HAITI COUNTRY MANAGEMENT UNIT LATIN AMERICA AND THE CARIBBEAN REGION Report No: v1 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. 1

2 ABBREVIATIONS AND ACRONYMS BMPAD CIAT CRV DPC DRM GoH IDA IP ISR MICT MPCE MTPTEC NDRMS NGO PCU PDO PPR PROReV UCE Bureau of Monetization of Development Aid Programs (Bureau de Monétisations et Programmes d Aide au Développement) Inter-Ministerial Committee for Territorial Development (Comité Interministériel d Aménagement du Territoire) Vulnerability Reduction Unit (Cellule de Réduction de la Vulnérabilité) Directorate of Civil Protection (Direction de la Protection Civile) Disaster Risk Management (Gestion des Risques de Désastres) Government of Haiti International Development Association Implementation Progress Implementation Status and Results Report Ministry of the Interior and Collective Territories (Ministère de L Intérieur et des Collectivités Territoriales) Ministry of Planning and External Cooperation (Ministère de Planification et Cooperation Externe) Ministry of Public Works, Transportation, Energy and Communication (Ministère de Travaux Publics, Transport, Énergie et Communications) National Disaster Risk Management System (Système National de Gestion des Risques et des Désastres) Non-Governmental Organization Project Coordination Unit (Unité de Coordination de Projet) Project Development Objective Risk Management Plans (Plans de Prévention des Risques) Emergency Bridge Reconstruction and Vulnerability Reduction Project (Projet de Reconstruction D Urgence Des Ouvrages D Art et de Réduction de la Vulnérabilité) Central Execution Unit (Unité Central d Exécution) (PCU of MTPTC) Regional Vice President: Special Envoy: Sector Manager: Task Team Leader: Co-Task Team Leader: Hasan A. Tuluy Alexandre V. Abrantes Aurelio Menendez Pierre Xavier Bonneau Michel Matera 2

3 HAITI HT EMERGENCY BRIDGE RECONSTRUCTION & VULNERABILITY REDUCTION PROJECT CONTENTS Page A. SUMMARY... 4 B. PROJECT STATUS... 4 C. PROPOSED CHANGES... 5 ANNEX 1: RESULTS FRAMEWORK AND MONITORING... 9 ANNEX 2: REVISED PROCUREMENT PLAN

4 EMERGENCY BRIDGE RECONSTRUCTION AND VULNERABILITY REDUCTION PROJECT A. SUMMARY RESTRUCTING PAPER 1. This Restructuring Paper seeks the approval of the Special Envoy to Haiti to restructure the Emergency Bridge Reconstruction and Vulnerability Reduction Project (PROReV P114292). The proposed Restructuring is in response to a request from the Ministry of Finance of the Government of the Republic of Haiti (GoH) received October 5, The proposed Level Two Restructuring would involve several changes, including: (i) extension of the closing date by 21 months, from June 30, 2013 to March 31, 2015, to allow for completion of the construction of the bridge Le Theme in Mirebalais under Component 1; (ii) changes to outputs associated with Component 1 and Component 2, as a result of compounded urgent and emergency response activities following adverse natural events; (iii) a reallocation of funds from Category 2 and Category 3 to Category 1; (iv) changes to the Technical Assistance (TA) activities under Component 4 to reflect the changes in the institutional framework for vulnerability reduction in Haiti; and (v) slight modifications to the PDO Level Results Indicators to monitor the results expected from the modified activities. 3. There would be no change in the Project Development Objective (PDO), nor any impact on the safeguard category or policies triggered under the Project. The implementation arrangements would remain unchanged. B. PROJECT STATUS 4. PROReV, financed by a US$20 million Grant (H432-0-HT) and processed as an Emergency Recovery Grant, was approved by the Executive Board of Directors on November 18, 2008, and the accompanying Financing Agreement was signed on February 12, The Project became effective on March 31, The Project has complied with all environmental, social and fiduciary safeguard requirements, and both financial management and procurement has been carried out in accordance with the Bank s Financial Management and Procurement Guidelines. 5. Following the January 12, 2010 Earthquake, the GoH requested a level two restructuring to: (i) reallocate unallocated funds from Category 6 to Category 2 to cover cost overruns in Component 2; and (ii) change outputs associated with Component 4, specifically renaming and expanding the role of the Vulnerability Reduction Unit, and introducing changes to the Technical Assistance activities. The Restructuring was approved by the Country Director on March 21, The Project is currently rated Moderately Satisfactory both for achievement of Development Objective and for Overall Implementation Progress, mainly due to delayed procurement processes and changes in the disaster risk management institutional 4

5 framework for the country, specifically challenges associated with the Vulnerability Reduction Unit in the Ministry of Planning and External Cooperation (MPCE), which was discontinued as of November The Project has disbursed a total of US$ million (equivalent to 60 percent) as of May 21, C. PROPOSED CHANGES Closing Date 7. The proposed Restructuring would extend the Grant closing date of the Project by 21 months from June 30, 2013 to March 31, 2015, to accommodate the completion of the construction of the La Theme bridge in Mirebalais under Component 1 Implementing a Program of Bridge Reconstruction. Project Components 8. Component 1 Implementing a Program of Bridge Reconstruction: As a result of cost overruns for several activities under Component 1 due to compounded emergency response activities following the Earthquake (2010), Hurricane Tomas (2010), and Hurricane Sandy (2012), several activities would be dropped from. These activities include: (i) construction of Chalon Bridge; (ii) repairs of Estimé Dumarsais Bridge; and (iii) rehabilitation of the Roseaux and Voldrogue Bridges. 9. Component 2 Improving the Resilience of Transport Infrastructure: The proposed restructuring would involve slight changes to activities under Component 2. Activities under Sub-Component 2.2 Community Based Routine Maintenance Activities, would be dropped from the project to cover cost overruns under Component Component 3 Strengthening Transport System Asset Management: The proposed Restructuring would involve a reallocation of funds from Category 3 to Category 1 to utilize financing released under Component 3, and cover cost overruns under Component 1. Component 3 would now also finance technical assistance for the establishment and training of a GIS unit within the MTPTEC. 11. Component 4 Strengthening of NDRMS: The proposed restructuring would involve changes to outputs associated with Component 4, and would include the following changes: 12. Component 4.1 Provision of Technical Advisory Services to NDRMS: Activities under this sub-component have been reprioritized to focus on: (i) Technical Assistance (consultants and workshops) to assess the current status of risk assessment in the country, to develop a methodology for the preparation of Plans de Prévention des Risques (PPR Risk Management Plans) and to support the development of an appropriate institutional and regulatory framework for the integration of disaster risk management into territorial planning; (ii) Technical Assistance (consultants) for the preparation and validation of two risk assessment studies and associated PPRs for the cities of Cap-Haitien and Les Cayes; and (iii) Technical Assistance (consultants) for the finalization and dissemination of a National Multi-hazard Atlas. These activities would be implemented under the 5

6 leadership of the Inter-Ministerial Committee for Land Use Planning (CIAT Comité Interministériels d Aménagement du Territoire) in close consultation with other stakeholders of the NDRMS. Financing for the Vulnerability Reduction Unit (CRV - Cellule de Réduction de la Vulnérabilité) was discontinued as of November 2011 due to changes in the national institutional framework for vulnerability reduction. 13. Component 4.2 Technical Assistance to Inter-Ministerial Committee for Land- Use Planning (CIAT): Support to CIAT would be extended throughout the project extension period and would target key functions/thematic working groups of CIAT: Land-use planning, Water and Risk Management, Habitat and Urban Development, and Mapping/ IT. 14. The Operational Manual would be updated to reflect the above changes. Table 1: Project Component and Detailed IDA Allocation Revisions Components/Activities Project Costs (US$m.) Original Original Current Proposed Component 1: Implementing a Program of Bridge 7,165,000 7,165,000 7,900,597 Reconstruction Component 2: Improving the Resilience of Transport Infrastructure 4,950,000 5,350,000 4,643,139 Sub-component 2.1: Vulnerability reduction and repair works 4,450,000 4,850,000 4,643,139 Sub-component 2.2: Community-based routine maintenance activities 500, ,000 0 Component 3: Strengthening Transport System 2,585,000 2,585,000 2,556,264 Asset Management Component 4: Strengthening of NDRMS 4,900,000 4,900,000 4,900,000 Sub-component 4.1: Provision of Technical Advisory Services to NDRMS 3,400,000 2,990,000 3,017,000 Sub-component 4.2: Technical Assistance to Inter-Ministerial Committee for Land-Use Planning 1,500,000 1,910,000 1,910,000 Total 20,000,000 20,000,000 20,000,000 Results Framework 15. The Results Framework would be adjusted to reflect the change and impact of project activities under Component 1 and Component 4. A new core indicator would be added for Component 1 Roads Rehabilitated, Non-Rural Roads (number of kilometers). See Annex 1 for details. Institutional Arrangements, Fiduciary and Safeguards 16. Implementation arrangements for the project would remain unchanged. The Project has complied with all social, environmental and fiduciary safeguard requirements. No additional Safeguard policies would be triggered. Both financial management and procurement has been carried out in accordance with the Bank s Financial Management 6

7 and Procurement Guidelines, and there would be no changes to either Financial Management or Procurement arrangements of the Project. 17. An audit for PROReV would be conducted annually. Each audit of the Financial Statements for the Project shall cover the period of one fiscal year of the Recipient. The last audit shall cover a period of ten months ending July 31, 2015, including the graceperiod. The report for the audit for each such period would be submitted to the Bank no later than four months after the end of such period. 18. There are no overdue audit reports for the Project. 19. All procurement for the activities remaining under the Project would be carried out in accordance with World Bank Guidelines: Procurement of goods, works and nonconsulting services under IBRD Loans and IDA Credits and Grants, January 2011; and Guidelines: Selection and Employment of Consultants under IBRD Loans and IDA Credits and Grants by World Bank Borrowers, dated January Reallocation of Grant Proceeds 20. The proposed Restructuring would involve a reallocation of funds from Category 2 and Category 3 to Category 1. The proposed reallocation is necessary to finance costoverruns under Component 1. The accompanying revised Procurement Plan can be found in Annex 2. 7

8 Table 2: Allocation of Proceeds (SDR) Category of Expenditure Allocation (US$ equivalent) % of Financing Original/Current Revised Original Current Revised Original Current Revised (1) Goods, works, nonconsulting N/A 3,220,000 3,220,000 5,056, % 100% 100% services, Consultant s Services, Training and Operating costs for Part 1 of the Project (2) Goods, works, nonconsulting N/A 3,160,000 3,450,000 2,971, % 100% 100% services, consultants services, Training and Operating Costs for: (a) Part 2.1 of the Project (b) Part 2.2 of the Project 2,840, ,000 3,130, ,000 2,971,609 0 (3) Goods, Non-consultant N/A 750, ,000 1,636, % 100% 100% services, consultants services, Training and Operating Costs for Part 3 of the Project (4) Goods, Nonconsultant N/A 2,300,000 2,300,000 3,136, % 100% 100% services, and consultants Services and Operating Costs for Part 4 of the Project (5) Refund of Preparation Advance N/A 3,080,000 3,080,000 0 (6) Unallocated N/A 290, Amount payable pursuant to Section 2.07 of the General Conditions 12,800,000 12,800,000 12,800,000 8

9 Revisions to the Results Framework ANNEX 1: Results Framework and Monitoring HAITI: Emergency Bridge Reconstruction and Vulnerability Reduction Project Results Framework PDO Original (PAD) Changes with Restructuring 2011 Current The project s development objective is to i) restore access on selected critical points of the Haitian transport system, and ii) support vulnerability reduction by strengthening the Haitian National Disaster Risk Management System. PDO indicators Original (PAD) Disaster Risk Management Units within key ministries are operational and sustainable, with adequate resources and staffing MTPTC bridge management unit is operational and sustainable, with adequate resources and staffing MPCE vulnerability reduction unit is operational and sustainable Proposed Changes No change. No change. No change. Comments/ Rationale for Change Proposed Changes Disaster Risk Management Units within Disaster Risk Management Units Change to reflect the project extension key ministries are operational and within key ministries are operational and the development of specific DRM sustainable, with adequate resources and and sustainable, with adequate instruments. staffing before the end of 2013 instruments/tools and staffing before the end of the project. No change. No change. No change. No change. Dropped. As indicated in the restructuring paper, the Vulnerability Reduction Unit (CRV - Cellule de Réduction de la Vulnérabilité) in the MPCE was discontinued as of November 2011 due to changes in the national institutional framework. Some of its responsibilities related to the integration of DRM in territorial 9

10 Revisions to the Results Framework Permanent Secretariat of Disaster Risk Management (SPGRD) unit is reinforced, operational and sustainable National Disaster Risk Management System Policy and framework assessed and strengthened before the end of Dropped. Comments/ Rationale for Change planning were transferred to CIAT. The impact of the 2010 earthquake has not created a conducive environment for a policy reform on DRM. Roads rehabilitated (km), Non-Rural roads N/A New. Including new Core Indicator to monitor progress. Intermediate Results indicators Original (PAD) Proposed Changes Component 1: Implementing a Program of Bridge Reconstruction Number of emergency fords and overpasses No change. No change. No change. built in the two months following Number of bridges rebuilt with satisfactory No change. No change. No change. technical standards 10 emergency bridges purchased No change. No change. No change. Component 2: Improving the resilience of transport infrastructure Number of bridges and road sections that No change. No change. No change. have been repaired or consolidated with satisfactory technical standards Number of community-based initiatives performing routine maintenance with satisfactory technical standards No change. Dropped. Sub-component linked to this indicator has been dropped. Component 3: Strengthening Transport System Asset Management Bridge inventory completed and up to date No change. No change. No change. Constitution of an effective crisis No change. No change. No change. management and vulnerability reduction unit in MTPTC Constitution of a bridge management unit in No change. No change. No change. MTPTC Component 4: Strengthening of NDRMS Establishment of Disaster Recovery and Reconstruction Planning Unit within MPCE Vulnerability Reduction Unit established within MPCE and a National Framework for Vulnerability Reduction created, in place before the end of 2012 and Dropped. Dropped. 10

11 Revisions to the Results Framework Presentation of Disaster Recovery and Reconstruction Program Number of Crisis Management and Vulnerability Reduction Units created within line ministries and within their departmental directorates (where applicable) Transversal development strategies developed by CIAT (i.e.: watershed management, urban planning, territorial development and land tenure). Disaster risk reduction principles integrated into these transversal strategies: integrated into sectoral policies and programs before the end of Timely presentation of Disaster Recovery and Reconstruction Program(s) are submitted and coordinated every semester and yearly by all stakeholders from second semester of Number of Emergency Management and Vulnerability Reduction Units (EM- VRU) created/reinforced and operational within line ministries and within their departmental directorates (where applicable) before the end of Transversal development strategies developed by CIAT and VRU (ie: watershed management, urban planning, territorial development and land tenure) established and in place before the end of Disaster Risk management principals integrated and assessed into these transversal strategies before the end of No change. Number of Emergency Management and Vulnerability Reduction Units (EM-VRU) created/reinforced and operational within line ministries and within their departmental directorates (where applicable) before the end of the project. Transversal development strategies and instruments developed by CIAT (ie: watershed management, urban planning, territorial development and land tenure) established and in place before the end of the project. Dropped. No change. Comments/ Rationale for Change Change to reflect project extension Change to reflect project extension and discontinuation of VRU. Instruments to integrate DRM in territorial planning will be developed as part of the previous indicator. 11

12 REVISED PROJECT RESULTS FRAMEWORK Project Development Objective (PDO): The project s development objective is to i) restore access on selected critical points of the Haitian transport system, and ii) support vulnerability reduction by strengthening the Haitian National Disaster Risk Management System. D=Dropped Cumulative Target Values** C=Continue Responsibility PDO Level Results N= New Unit of Data Source/ Baseline Frequency for Data Indicators* R=Revised Measure YR 2 YR 3 YR 4 YR5 YR6 Methodology Collection Indicator One: Disaster Risk Management Units within key ministries are operational and sustainable, with adequate instruments/tools and staffing before the end of the project. Indicator Two: MTPTC bridge management unit is operational and sustainable, with adequate resources and staffing Indicator Three: MPCE vulnerability reduction unit is operational and sustainable Indicator Four: National Disaster Risk Management System Policy and framework assessed and strengthened before the end of Indicator Five: Roads Rehabilitated (km), Non-Rural Roads Core C Number Annual SNGRD SNGRD C NO NO NO NO YES YES Annual MTPTEC MTPTEC D D N Number Annual MTPTEC MTPTEC INTERMEDIATE RESULTS Intermediate Result (Component One): Implementing a Program of Bridge Reconstruction 12

13 C Annual MTPTEC MTPEC One: Number of emergency fords and overpasses built in the two months following disasters Two: Number of bridges rebuilt with satisfactory technical standards C Annual Technical audit MTPEC Three: 10 emergency bridges purchased C NO NO NO NO YES YES Annual MTPTEC MTPTEC Intermediate Result (Component Two): Improving the Resilience of Transport Infrastructure C Number Annual MTPTEC MTPTEC One: Number of bridges and road sections that have been repaired or consolidated with satisfactory technical standards Two: Number of community-based initiatives performing routine maintenance with satisfactory technical standards D Intermediate Result (Component Three): Strengthening Transport System Asset Management One: Bridge inventory completed and up to date Two: Constitution of an effective crisis management and vulnerability reduction unit in MTPTC C Inventory 0 NO NO NO YES YES Annual MTPTEC WB team C Unit 0 NO NO NO YES YES Annual MTPTEC WB team 13

14 Three: Constitution of a bridge management unit in MTPTC C Unit 0 NO YES NO YES YES Annual MTPTEC WB team Intermediate Result (Component Four): Strengthening of NDRMS D One: Vulnerability Reduction Unit established within MPCE and a National Framework for Vulnerability Reduction created, in place before the end of 2012 and integrated into sectoral policies and programs before the end of Two: Timely presentation of Disaster Recovery and Reconstruction Program(s) are submitted and coordinated every semester and yearly by all stakeholders from second semester of C 0 NO YES YES YES YES Annual PM s Office BMPAD Three: Number of Emergency Management and Vulnerability Reduction Units (EM- VRU) created/reinforced and operational within line ministries and within their departmental directorates (where applicable) before the end of the project. R Number Annual SNGRD SNGRD 14

15 Four: 4.1 Number of Transversal development strategies developed by CIAT (ie: watershed management, urban planning, territorial development and land tenure, Risk Prevention Plans) established and in place before the end of the project. R Number Annual CIAT CIAT *Please indicate whether the indicator is a Core Sector Indicator (see further **Target values should be entered for the years data will be available, not necessarily annually. 15

16 ANNEX 2: Revised Procurement Plan HAITI: Emergency Bridge Reconstruction and Vulnerability Reduction Project Contract (Description) Estimated Cost/Real Cost (US$) Procurement / Selection Method Bank Review (Prior/Post) Planned Contract signature date /real date Planned Completion Date Component 1 Implementing a Program of Bridge Reconstruction Design & works Mirebalais 3,500,000 ICB Prior Jan 2013 Feb 2015 Signed bridge Hydraulic anti erosion protection of Mirabalais Bridge 150,000 Shopping Prior August 2013 August 2014 Component 3 Strengthening Transport System Asset Management Establishment of and Technical Assistance to the GIS Unit MTPTC Technical assistance, software servers and Training services, bridge asset management unit in MTPTC Young engineers program for bridge management Technical assistance FOR Crisis management unit in MTPTC National environmental consultant National crisis management consultant Comments 500,000 UN agency Prior May Draft contract ready 300,000 QCBS Prior Sept ,000 3CVs/contrac t extensions Prior Aug contract extension for consultant already hired with satisfactory evaluation 100,000 QCBS Prior Oct CVs Prior July CVs Prior July Vehicles 90,000 Shopping Prior Aug 2013 Dec 2013 IT and office equipment 50,000 Shopping Prior August 2013 Oct 2013 Project Audits 50,000 Direct contracting Component 4 Strengthening of NDRMS Technical Assistance PPR 150,000 QCBS Prior August 2013 December Risk Management Plans 2013 Technical Assistance for the 700,000 QCBS Prior January 2014 February preparation and validation of 2015 two risk assessment studies and associated PPRs for the cities of Cap-Haitien and Les Cayes Technical Assistance National Multi-hazard Atlas Prior July Extension of ongoing contract 150,000 QCBS Prior August 2013 August