Rapò Konpletman ak Rezilta - Pwojè Jesyon Risk Katastwòf ak Rekonstriksyon

Document of The World Bank FOR OFFICIAL USE ONLY Report No: ICR00005335 IMPLEMENTATION COMPLETION AND RESULTS REPORT ON A GRANT IN THE AMOUNT OF SDR 5 6.3 MILLION (US$ 80 .5 MILLION EQUIVALENT) TO THE REPUBLIC OF HAITI FOR A Disaster Risk Management and Reconstruction Project December 1 4 , 2020 Urban, Resilience And Land Global Practice Latin America And Caribbean Region Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized CURRENCY EQUIVALENTS (Exchange Rate Effective December 2, 2020 ) Currency Unit = Haitian Gourdes (HTG) HTG65.69 = US$1 US$ 1.43 = SDR 1 FISCAL YEAR October 1 - September 30 Regional Vice President: Carlos Felipe Jaramillo Country Director: Tahseen Sayed Regional Director: Anna Wellenstein Practice Manager: David N. Sislen Task Team Leader(s): Claudia Ruth Soto Orozco, Malaika Becoulet ICR Main Contributor : Naraya Carrasco ABBREVIATIONS AND ACRONYMS ACP - EU Africa Caribbean Pacific - European Union AF Additional Financing CAS Country Assistance Strategy CCPC Municipal Civil Protection Committee (Comité Communal de Protection Civile) CDPC Departmental Civil Protection Committee (Comité Départemental de Protection Civile) CERC Contingent Emergency Response Component CIAT Inter - ministerial Committee for Territorial Planning (Comité Interministériel d’Aménagement du Territoire) CNE National Equipment Center (Centre National des Equipements) CNIGS National Center for Geo - spatial Information (Centre National de l'Information Géo - Spatiale) CPF Country Partnership Framework CRV Vulnerability Reduction Unit (Cellule de Réduction de la Vulnérabilité) DA Designated Account DDTP Departmental Directorates of Public Works (Direction Départementale des Travaux Publics) DGPC Directorate General of Civil Protection ( Direction générale de Protection Civile DPC Directorate of Civil Protection (Direction de la Protection Civile) DRM Disaster Risk Management EA Environmental Assessment EMP Environmental Management Plan EO Earth Observation EPP Emergency Project Paper ESMF Environmental and Social Management Framework EU European Union EWS Early Warning System FCS Fragile and Conflict - affected Situations FCV Fra gility Conflict and Violence FER Road Maintenance Fund (Fonds d'Entretien Routier) FGHI Fay, Gustav, Hannah and Ike (successive hydro - meteorological events of 2008) FY Fiscal Year GDP Gross Domestic Product GFDRR Global Facility for Disaster Reduction and Recovery GoH Government of Haiti IDA International Development Association IDB Inter - American Development Bank IFR Interim Financial Report IRI Intermediate Results Indicators ISN Intermediate Strategy Note ISR Implementation Status and Results IOM International Organization for Migration LiDaR Light Detection and Ranging LIW Labor - intensive Work MARNDR Ministry of Agriculture, Natural Resources and Rural Development (Ministère de l’Agriculture, des Ressources Naturelles et du Développement Rural) MAST Ministry of Social Affairs and Labour (Ministère des Affaires Sociales et du Travail) MDOD Maitrise d’Ouvrage Délégué or Project's Delegated Implementation Agency MDUR Municipal Development and Urban Resilience Project (Projet de Développement Municipal et de Résilience Urbaine ) MEF Ministry of Economy and Finance (Ministère de l’Économie et des Finances) MENFP Ministry of National Education and Vocational Training (Ministère de l’Education Nationale et de la Formation Professionnelle) MICT Ministry of Interior and Regional Authorities (Ministère de l’Intérieur et des Collectivités Territoriales) MTR Mid - term Review MINUSTAH United Nations Mission for the Stabilization of Haiti (Mission des Nations Unies pour la Stabilisation en Haïti) MPCE Ministry of Planning and External Cooperation (Ministère du Plan et de la Coopération Externe) MSPP Ministry of Public Health and Population (Ministère de la Santé Publique et de la Population) MTPTC Ministry of Public Works, Transport and Communic ations (Ministère des Travaux Publics, Transports et Communications) NGO Non - Governmental Organization OP/BP Operational Policy / Bank Procedures PAP Project Affected People PARDH Action Plan for National Recovery and Development of Haiti (Plan d’Actions pour la Reconstruction et le Développement d’Haïti) PARR Rural Accessibility and Resilience Project (Projet d'Accessibilité Rurale et de Résilience) PDNA 2010 Earthquake Post - Disaster Needs Assessment PDO Project Development Objective PGRAC Strengthening Disaster Risk Management and Climate Resilience Project ( Projet d e Gestion d es Risques e t d e Résilience a ux Aléas Climatique ) PLR Performance and Learning Review PMDLNA Post - Matthew Damage, Loss and Needs Assessment PNGRD National Disaster Risk Management Plan (Plan National de Gestion des Risques et des Désastres) PPCR Pilot Program for Climate Resilience PTDT Projet de Transport et de Développement Territorial PTPR Resilient Productive Landscapes Project (Projet Territoires Productifs Résilients) PRGRD Disaster Risk Management and Reconstruction Project (Projet de Reconstruction et de Gestion des Risques et des Désastres) PRODEPUR Urban Community Driven Development Project ( Projet de développement participatif urbain ) PROReV Emergency Bridge Reconstruction and Vulnerability Reduction Project (Projet de Reconstruction d’Urgence des Ouvrages d’Art et de Réduction de la Vulnérabilité) PRUII Infrastructure and Institution Emergency Recovery Project (Projet de Relèvement d'Urgence des Institutions et des Infrastructures) PUGRD Emergency Recovery and Disaster Risk Management Project ( Projet d’Urgence de Gestion des Risques et des Désastres) RA I Rural Access Index RAP Resettlement Action Plan RF Results Framework RPCRR COVID - 19 Response and Resilience Development Policy Operation (Réponse à la pandémie de COVID - 19 et le renforcement de la résilience face aux chocs sanitaires et aux catastrophes naturelles) RPF Resettlement Policy Framework SDR Special Drawing Rights SEEUR Urban and Rural Equipment Maintenance Unit (Service d'Entretien des Équipements Urbains et Ruraux) SNGRD National Disaster Risk Management System (Système National de Gestion des Risques et des Désastres) SPP Simplified Procurement Plan STEP Systematic Tracking o f Exchanges i n Procurement TAP Technical Assistance Program ToC Theory of Change ToR Terms of Reference UCE Central Implementing Unit (Unité Centrale d'Exécution) UCP Project Coordination Unit (Unité de Coordination de Projets) UN United Nations UNDP United Nations Development Program UNOPS United Nations Office for Project Services USAID United States Agency for International Development WFP World Food Program TABLE OF CONTENTS DATA SHEET ................................ ................................ ................................ .......................... 1 I. PROJECT CONTEXT AND DEVELOPMENT OBJECTIVES ................................ ....................... 6 A. CONTEXT AT APPRAISAL ................................ ................................ ................................ ......... 6 B. SIGNIFI CANT CHANGES DURING IMPLEMENTATION (IF APPLICABLE) ................................ ....... 9 II. OUTCOME ................................ ................................ ................................ .................... 10 A. RELEVANCE OF PDOs ................................ ................................ ................................ ............ 10 B. ACHIEVEMENT OF PDOs (EFFICACY) ................................ ................................ ...................... 10 C. EFFICIENCY ................................ ................................ ................................ ........................... 15 D. JUSTIFICATION OF OVERALL OUTCOME RATING ................................ ................................ .... 16 E. OTHER OUTCOMES AND IMPACTS (IF ANY) ................................ ................................ ............ 16 III. KEY FACTORS THAT AFFECTED IMPLEMENTATION AND OUTCOME ................................ 17 A. KEY FACTORS DURING PREPARATION ................................ ................................ ................... 17 B. KEY FACTORS DURING IMPLEMENTATION ................................ ................................ ............. 18 IV. BANK PERFORMANCE, COMPLIANCE ISSUES, AND RISK TO DEVELOPMENT OUTCOME .. 20 A. QUALITY OF MONITORING AND EVALUATION (M&E) ................................ ............................ 20 B. ENVIRONMENTAL, SOCIAL, AND FIDUCIARY CO MPLIANCE ................................ ..................... 21 C. BANK PERFORMANCE ................................ ................................ ................................ ........... 22 D. RISK TO DEV ELOPMENT OUTCOME ................................ ................................ ....................... 24 V. LESSONS AND RECOMMENDATIONS ................................ ................................ ............. 24 ANNEX 1. RESULTS FRAMEWORK AND KEY OUTPUTS ................................ ........................... 27 ANNEX 2. BANK LENDING AND IMPLEMENTATION SUPPORT/SUPERVISION ......................... 42 ANNEX 3. PROJECT COST BY COMPONENT ................................ ................................ ........... 45 ANNEX 4. EFFICIENCY ANALYSIS ................................ ................................ ........................... 46 ANNEX 5. BORROWER, CO - FINANCIER AND OTHER PARTNER/STAKEHOLDER COMMENTS ... 50 ANNEX 6. SUPPORTING DOCUMENTS (IF ANY) ................................ ................................ ..... 54 ANNEX 7. BEFORE AND AFTER PHOTOS ................................ ................................ ................ 55 ANNEX 8. THE BANK’S MULTISECTORAL APPROACH TO DRM IN HAITI ................................ .. 58 ANNEX 9. EXOGENOUS FACTORS AFFECTING PROJECT IMPLEMENTATION ........................... 62 The World Bank Disaster Risk Management and Reconstruction (P126346) Page 1 of 65 DATA SHEET BASIC INFORMATION Product Information Project ID Project Name P126346 Disaster Risk Management and Reconstruction Country Financing Instrument Haiti Investment Project Financing Original EA Category Revised EA Category Partial Assessment (B) Partial Assessment (B) Organizations Borrower Implementing Agency Ministry of Economy and Finance Unite de Coordination et Execution - Ministry of Public Works, Unite de Coordination de Projet - Ministry of Interior and Local Authorities Project Development Objective (PDO) Original PDO The Project Development Objective is to support the Recipient in improving disaster response capacity and enhancing the resiliency of critical transport infrastructure. The World Bank Disaster Risk Management and Reconstruction (P126346) Page 2 of 65 FINANCING Original Amount (US$) Revised Amount (US$) Actual Disbursed (US$) World Bank Financing IDA - H7460 60,000,000 56,264,999 47,870,470 TF - 13014 550,000 338,923 338,923 IDA - D2090 20,000,000 19,735,000 19,148,144 Total 80,550,000 76,338,922 67,357,537 Non - World Bank Financing 0 0 0 Borrower/Recipient 0 0 0 Total 0 0 0 Total Project Cost 80,550,000 76,338,922 67,357,536 KEY DATES Approval Effectiveness MTR Review Original Closing Actual Closing 01 - Dec - 2011 03 - Apr - 2012 24 - Nov - 2014 31 - Dec - 2016 30 - Jun - 2020 The World Bank Disaster Risk Management and Reconstruction (P126346) Page 3 of 65 RESTRUCTURING AND/OR ADDITIONAL FINANCING Date(s) Amount Disbursed (US$M) Key Revisions 25 - Jul - 2016 28.10 Change in Results Framework Change in Components and Cost Change in Loan Closing Date(s) Reallocation between Disbursement Categories 29 - Jun - 2017 33.90 Change in Results Framework Change in Loan Closing Date(s) Reallocation between Disbursement Categories Change in Disbursements Arrangements Change in Procurement Change in Implementation Schedule Other Change(s) 27 - Jun - 2019 48.80 Change in Results Framework Change in Components and Cost Reallocation between Disbursement Categories 25 - Jun - 2020 61.24 Cancellation of Financing Reallocation between Disbursement Categories KEY RATINGS Outcome Bank Performance M&E Quality Moderately Satisfactory Moderately Satisfactory Substantial RATINGS OF PROJECT PERFORMANCE IN ISRs No. Date ISR Archived DO Rating IP Rating Actual Disbursements (US$M) 01 13 - Mar - 2012 Satisfactory Satisfactory 0 02 08 - Oct - 2012 Satisfactory Moderately Satisfactory 0 03 09 - Jun - 2013 Moderately Satisfactory Moderately Satisfactory 4.54 04 21 - Dec - 2013 Moderately Satisfactory Moderately Satisfactory 10.63 05 07 - Jul - 2014 Moderately Satisfactory Moderately Satisfactory 13.55 06 31 - Dec - 2014 Moderately Satisfactory Moderately Satisfactory 19.43 07 26 - Jun - 2015 Moderately Satisfactory Moderately Satisfactory 21.16 The World Bank Disaster Risk Management and Reconstruction (P126346) Page 4 of 65 08 04 - Jan - 2016 Moderately Satisfactory Moderately Satisfactory 24.76 09 20 - Oct - 2016 Moderately Satisfactory Moderately Satisfactory 28.10 10 26 - May - 2017 Moderately Satisfactory Moderately Satisfactory 33.90 11 17 - Nov - 2017 Satisfactory Moderately Satisfactory 35.49 12 29 - Jun - 2018 Satisfactory Moderately Unsatisfactory 39.00 13 08 - Jan - 2019 Satisfactory Moderately Unsatisfactory 46.62 14 28 - Jun - 2019 Satisfactory Moderately Unsatisfactory 48.80 15 31 - Dec - 2019 Satisfactory Moderately Unsatisfactory 50.68 16 30 - Jun - 2020 Satisfactory Moderately Satisfactory 62.99 SECTORS AND THEMES Sectors Major Sector/Sector (%) Public Administration 9 Sub - National Government 9 Social Protection 11 Social Protection 11 Transportation 65 Public Administration - Transportation 7 Rural and Inter - Urban Roads 58 Water, Sanitation and Waste Management 15 Public Administration - Water, Sanitation and Waste Management 15 Themes Major Theme/ Theme (Level 2)/ Theme (Level 3) (%) The World Bank Disaster Risk Management and Reconstruction (P126346) Page 5 of 65 Finance 24 Finance for Development 24 Disaster Risk Finance 24 Human Development and Gender 3 Gender 3 Urban and Rural Development 72 Disaster Risk Management 72 Disaster Response and Recovery 24 Disaster Risk Reduction 24 Disaster Preparedness 24 ADM STAFF Role At Approval At ICR Regional Vice President: Pamela Cox Carlos Felipe Jaramillo Country Director: Alexandre V. Abrantes Anabela Abreu Director: Ede Jorge Ijjasz - Vasquez Anna Wellenstein Practice Manager: Guangzhe Chen David N. Sislen Task Team Leader(s): Pierre Xavier Bonneau, Michel Matera Claudia Ruth Soto Orozco, Malaika Becoulet ICR Contributing Author: Naraya Carrasco The World Bank Disaster Risk Management and Reconstruction (P126346) Page 6 of 65 I. PROJECT CONTEXT AND DEVELOPMENT OBJECTIVES A. CONTEXT AT APPRAISAL Context 1. At appraisal in November 2011, Haiti was still recovering from the earthquake of January 12, 2010. The earthquake had killed an estimated 220,000 people and had displaced 1.5 million people, and damages were evaluated at US$7.8 billion. The G overnment of H aiti (GoH), in coordination with the World Bank, the European Union (EU), the Global Fund for Disaster Relief and Recovery (GFDRR), the United Nations Development Programme (UNDP), the UN Office for Disaster Risk Reduction, the United States Agency for Int ernational Development (USAID), and others established one recovery plan for the 2010 earthquake, and improved its ability to respond to adverse events by complementing the recovery plan with the 2010 Action Plan for National Recovery and Development of Ha iti (PARDH) 1 organized along four pillars: (i) economic reconstruction; (ii) social reconstruction; (iii) territorial reconstruction; and (iv) institutional reconstruction. 2. Recurrent natural disasters such as the four successive events in 2008 — Tropical Storm Fay and Hurricanes Gustave, Hannah and Ike (FGHI) and associated impacts — revealed important shortcomings in Haiti's overall National Disaster Risk Management System (Système National de Gestion des Risques et des Désastres -- SNGRD) at t he time of appraisal . Critical issues included: (i) the absence of a legislative and i nstitutional f ramework to support SNGRD; (ii) lack of a high - level coordination mechanism that convenes line ministries and technical institutions responsible for disaste r risk management ( DRM ) and coordination with development partners leading to ad hoc DRM activities that are often not institutionalized, although the 2010 earthquake aid response headed by UNDP had initiated donor coordination on DRM; (iii) lack of risk awareness and technical capacity for risk - informed decision making from national to local levels; and (iv) an incomplete network of a Comité Communal de Protection Civile (CCPC) and Comité Départemental de Protection Civile (CDPC) to cover all 140 municipa lities with the capacity to prepare and respond to catastrophic events. The impacts of extreme events have, in particular, exposed the high vulnerability of Haitians to seismic and hydro - meteorological events, given the fragile socioeconomic and unstable p olitical context, compounded by high exposure to multi - hazards. 3. The damaged transport sector, affected by the 2010 earthquake and other catastrophic events, hindered prompt access and response to affected populations . While about 80 percent of the countr y’s overall transportation and movement of people and goods takes place by road, the Haitian road network is limited, poorly maintained and impacted by extreme events, with regions being isolated during rainy seasons. The overall impact of the Earthquake o n the transport sector has been estimated at US $ 595 million with around 70km of main roads damaged according to the PDNA 2 . Critical issues identified in the transport sector include: (i) the road network is most vulnerable to hydrometeorological events that rupture the network; (ii) all - weather road disruption prevents emergency response from the Direction de la Protection Civ ile (DPC) reaching affected populations; (iii) damaged roads and bridges are costly to rebuild after catastrophic events as they are sometimes washed away; and (iv) the disruption of the road network affects socioeconomic activities and delays economic rec overy. Haiti Demain 3 2010’s territorial objectives and strategies for reconstruction considered the road network as a structuring element and catalyst for urban development that 1 PARDH 2010: < www.haitireconstructionfund.org/sites/haitireconstructionfund.org/files/Haiti%20Action%20Plan.pdf > 2 Haiti Earthquake PDNA: < www.gfdrr.org/sites/default/files/GFDRR_Haiti_PDNA_2010_EN.pdf > 3 H aiti Demain 2010 : < www.oas.org/en/ser/dia/docs/HAITI_DEMAIN.pdf > The World Bank Disaster Risk Management and Reconstruction (P126346) Page 7 of 65 needed to be resilient to seismic and hydro - meteorological events. Integrated risk management was to rely on the use of scientific, environmental, social, and local data. Rational e for World Bank E ngagement 4. At appraisal, the objectives of the project aligned with the Bank’s priorities given in the three pillars of the Haiti Country Assistance Strategy (CAS) FY2009 - 12 (48284 - HT): (i) promote growth and local development; (ii) invest in human capital; and (iii) reduce vulnerability to disasters. T he Bank had a comparative advantage in DRM and transport operations based on the experience of past projects in disaster risk management and transport starting with the 2005 Projet d’Urgence de Gestion des Risques et des Désastres (PUGRD) that was followed by the 2008 Projet de Reconstruction d’Urgence des Ouvrages d’Art et de Réduction de la Vulnérabilité (PROReV), and the 2010 Projet de Relèvement d'Urgence des Institutions et des Infrastructures (PRUII) that were geared toward strengthening the DRM system and civil protection and supporting the reconstruction of damaged infrastructure. Prior initiatives which Haiti launched to increase i ts capacity to prepare for and respond to adverse events had resulted in, among others: (i) the creation of CCPCs that needed to be strengthened and scaled up to the rest of the 140 municipalities; (ii) the investment in human capital; and (iii) the enhanc ement of the technical capacity to analyze, manage and apply risk information to decision making, planning and programing that needed to be further strengthened and built up; and (iv) the increase of spot improvements in transport and bridge reinforcement that had proved effective to enhance the road network resilience and generate positive impacts, but which had to be replicated and scaled up. The project brought together DRM and transport in the design to build both ministries’ ownership and promote poten tial synergies, including self - reinforcing impact and shared know - how of risk, preparedness, and resilience. The design, aimed at enhancing the resilience of the transport sector, was ahead of its time when resilience mainstreaming was not yet the norm. T heory of Change (Results Chain) 5. The Emergency Project Paper ( EP P) did not include a T heory of C hange ( ToC ). The inferred ToC based on the third Restructuring in 2019 ( Figure 1 ), remains valid for the original project design and is unpacked under the Efficacy section . Figure 1 : Theory of Change The World Bank Disaster Risk Management and Reconstruction (P126346) Page 8 of 65 Project Development Objectives (PDOs) 6. The original PRGRD Project Development Objective ( PDO ) , as stated in the Financial Agreement approved on January 11, 2012 and consistent with the EPP is to support the Recipient in improving disaster response capacity and enhancing the resiliency of critical transport infrastructure. Key Expected Outcomes and Outcome Indicators 7. The key outcomes indicators were: - Line ministries developing an action plan for vulnerability reduction. - Share of population living in a municipality with a certified CCPC. - Number of cumulative road closure days per year. Components 8. The project included five components : - Component 1, Natural Hazard Risk Assessment and Analysis (SDR 2.18 million / US$4 million). Strengthening the institutional capacity of the implementing line Ministries to incorporate natural hazard risks into development planning and collection of disaster risk data under a Technical Assistance Program. - Component 2, Support to Disaster Preparedness and Emergency Response (SDR 9.06 million / US$14.5 million) . (2.1) Strengthening the DPC including: (a) improving the capacity of the DPC’s operational efficiency; (b) constructing a multi - purpose center for the DPC; (c) building the capacity of the existing CCPCs and establishing new CCPCs; and (d) carrying out simulation exercises to, inter alia, evaluate the operational capacity of the CCP Cs. (2.2) Improving the communication network and decision - support system including: (a) establishing alert communication protocols with the national disaster response system; (b) developing a civil protection communication system; and (c) provision of tra ining for the use of CCPCs’ early warning system or communication protocols and equipment. (2.3) Carrying out function and structural assessment of the national shelter network; and rehabilitating and constructing priority shelters. - Component 3, Rehabilit ation of Vulnerable and Damaged Critical Transport Infrastructure (SDR 23.13 million / US$37 million). (3.1) Strengthening the institutional capacity of the MTPTC and other relevant ministries, departments and agencies for: (a) identifying vulnerabilities in the transport sector; (b) building resilience in the transport sector; (c) improving emergency response capacity to restore access to isolated areas; (d) promoting road safety; and (e) increasing the efficiency of road maintenance system. (3.2) Carrying out construction, reconstruction and/or reinforcement of identified investments in the transport sector, inter alia, bridges, roads, and the riverbank. (3.3) Identifying critical investments to protect local access to maintain road network, and carrying o ut the design, rehabilitation, construction, reconstruction and/or other work as may be required to protect said investments. - Component 4, Emergency Response and Recovery (SDR 0.62 million / US$1 million). Facilitating rapid response upon occurrence of an Emergency, including the carrying out of emergency infrastructure reconstruction, rehabilitation, and associated studies (Emergency Response Activities). - Component 5, Project Management and Implementation Support (SDR 2.5 million / US$4 million) with two implementing units . Strengthening and developing the institutional capacity for Project management, coordination, implementation, and monitoring and evaluation (M&E), including: (5.1) Strengthening the capacity of the Central Implementing Unit (Unité de Co ordination de Projets -- UCP) housed at the DPC under the MICT for: (a) overall coordination of the project, including consolidation of financial and progress reports; and (b) management, coordination, implementation, and M&E of Components 1 and 2 of the Pr oject. (5.2) Strengthening the capacity of the Project Coordination Unit (Unité Centrale d'Exécution UCE) under the MTPTC for management, coordination, implementation, M&E of Components 3 and 4 of the Project. The World Bank Disaster Risk Management and Reconstruction (P126346) Page 9 of 65 B. SIGNIFICANT CHANGES DURING IMPLEMENTATION (IF APPLICABLE) Revised PDOs and Outcome Targets 9. The scope of the PDO remained unchanged. However, the targets for PDO Indicators No. 1 and No. 2 were adjusted, while PDO indicator No. 3 was replaced during restructurings: - Line ministries developing an action plan for vulnerability reduction - Target was reduced from 5 to 2. - Share of population living in a municipality with a certified CCPC of Category 2 or higher - Target was increased from 40 to 70 percent. - Number of beneficiaries from an improved and resilient investment on the road network (replaced Number of cumulative road closure days per year), of which 50 percent beneficiaries being women - Target was increased from 75,000 to 150,000 beneficiaries. Revised PDO Indicators 10. PDO indicators were realigned for better clarity, consistency, and realism : one was adjusted, and one was replaced during the first restructuring in July 2016; and the targeted beneficiaries with access to resilient transport indicator was doubled during the t hird restructuring in June 2019. Revised Components 11. Project components remained the same during the life of the project, although additional funds were provided to components and funds were reallocated between components and sub - components (see p ara 12). Other Changes 12. The Result Framework (RF) and funding for components and sub - components (see para 8) were changed during four restructurings: - First restructuring (July 2016, level 2 restructuring). The RF was changed by modifying, adding, and removing some PDO i ndicators and i ntermediate r esults i ndicators (IRI), and the closing date was extended until June 30, 2017. - Second restructuring and Additional Financing (AF) Grant (May 2017, AF and level 2 restructuring) . A US$20 million emergency additional financing was provided to respond to the impacts of Hurricane Matthew. To allow the implementation of additional activities, the closing date was further extended to June 30, 2020. Component 3 received 85 percent of the additional grant, while the parent project funds were reallocated between disbursement categories. In addition, four IRIs were revised and eight were added. - Third restructuring (June 2019, level 2 restructuring) . The PDO number of benefi ciaries targeted by the road network improvement was increased from 75,000 to 150,000 while seven IRIs were adjusted to reflect the changes in project scope . Activities supported under Component 2 were streamlined, the scope of Component 3 was adjusted (tw o bridges were cancelled), and financing proceeds were reallocated between the various categories. - Fourth restructuring occurred early May and endorsed in June 2020, level 2 restructuring) was triggered by the March 2020 COVID - 19 pandemic as some activities had been delayed , and uncommitted funds (US$4 million) were cancelled and reallocated to a different World Bank operation that supported Haiti’s emergency response to COVID - 19 . The World Bank Disaster Risk Management and Reconstruction (P126346) Page 10 of 65 Rationale for Changes and T heir Implication on the Original Theory of Change 13. The various changes to the project over time aimed to address the impact of Hurricane Matthew , as well as to ensure that the PDOs were realized effectively and efficiently . The RF also reflected updates to ensure that the outcomes of the revised project (including the AF and the four restructurings) were better measured. II. OUTCOME A. RELEVANCE OF PDOs Rating : High Assessment of Relevance of PDOs and Rating 14. PRGDR objective remains highly relevant at closing, as it evolved from an emergency stance to strengthen DRM as a cross - cutting theme and provid ed the DRM system with a l egal and i nstitutional f ramework. The PDO remains consistent with the Country Partnership Framework ( CPF) FY2016 – 19 (98132 - HT) — which is the ongoing CPF — as it contributes to two of the three areas of focus of the CPF: (i) the resilience area, supported by enhanced climate resilience through strengthening natural disaster preparedness and improving disaster prevention; and (ii) the inclusive growth area, supported by promoting labor - intensive works (LIW). The Performance and Learning Review (PLR) updated the CPF FY2018 (144812 - HT) that sought to further strengthen the CPF’s robust approach to resilience in 2 018 by: (i) increasing funding; (ii) improving targeting to high - risk areas; (iii) sharpening the focus on local capacity to prepare for and respond to disasters; and (iv) mainstreaming DRM in other sectors. The new 2020 Haiti COVID - 19 Response and Resilie nce Development Policy Operation (RPCRR -- PGD132 - HT) blends the Bank - wide COVID - 19 response with DRM. Mainstreaming DRM in other sectors has become the norm in the Bank’s Haiti portfolio ( Annex 8). 15. The PDO remains a priority for the GoH. The frequency and severity of hydrometeorological hazards in Haiti are anticipated to increase due to climate change, and the population remains vulnerable to their impacts. The PDO contributes to the inclusive, mult isectoral and participative process of the 2nd National Disaster Risk Management Plan 2019 – 2030 4 , approved by the government of Haiti in June 2020 . 5 The Plan is divided into four strategic axes that are aligned with international (e.g., Sustainable Development Goals and climate change) 6 and regional (Caribbean Disaster Management Strategy ) 7 commitments. The GoH approved the DRM Legal and Institutional Framework 8 (the National DRM System) in June 2020, which is a direct and critical DRM achievement of the improved disaster response capacity element of the PDO. B. ACHIEVEMENT OF PDOs (EFFICACY) Rating: Substantial Assessment of Achievement of E ach Objective/Outcome 16. PDO’s achievement is assessed against the targets confirmed in the June 2019 third restructuring and is unpacked along the lines of the two distinct but complementary elements of the PDO : (i) supporting the recipient in improving disaster response capacity; and (ii) enhancing the resiliency of critical transport infrastructure. Throughout the 4 NDRNP 2020: < www.haitilibre.com/docs/PNGRD_BAT_2020_SMALL.pdf > 5 Decre e 103 on the National DRM Plan in Le Moniteur, 15 juin, 2020. 6 UN 2015 SDG 1 (Target 1.5.3: adopt and implement national disaster risk reduction strategies in line with the Sendai F ramework for Disaster Risk Reduction 2015 - 2030 ) <https://sdgs.un.org/goals> 7 CDMS 2014: <CD www.cdema.org/CDMStrategy2014 - 2024.pdf > 8 Decre e 103 on the creation and organization of the National DRM System in Le Moniteur, 15 juin, 2020. The World Bank Disaster Risk Management and Reconstruction (P126346) Page 11 of 65 restructurings t he PDO was not change d as the scope of the project remained the same , however some indi cators were reviewed to better reflect the objective of the project. PDO 1: S upporting the Recipient in improving disaster response capacity 17. PR GRD exceeded three and reached five targets of the PDO intermediary outcome indicators of the first sub objective of improved disaster response capacity missing only three targets ( Table 1 , Table 2 and Annex 1). Outcome Indicator 1 . Line ministries developing an action plan for vulnerability reduction was achieved through two main risk assessment capacity building tracks highlighted below . 18. PDO Indicator #1: Line ministries developing an action plan for vulnerability reduction. The project built risk assessment capacity by strengthening the institutional capacity of two key sectoral ministries and their relevant departments as well as communities. This met the target of t w o ministries as the original target of five was reduced to two ministries during the second restructuring . The Ministry of Public Health and Population (MSPP) and the Ministry of Na tional Education and Vocational Training (MENFP) mainstreamed disaster risk in their development planning and developed sector - specific disaster risk integration tools. Under the IRIs for “Natural Hazard Risk Assessment and Analysis”, all but one IRI targe ts were achieved or exceeded as discussed below and shown in Table 1 : • Track 1: PRGRD improved DRM capacity to better understand risks at the community and centrals level, as the number of DRM trainees exceeded the target . The project trained 127 ministry officials on risk management, exceeding the target by 81 percent . However, women officials did not reach their target — 14 percent instead of 50 percent — as women constitute only 30 percent of public servants in Haiti. 1,520 beneficiaries were traine d on DRM, which exceeded the target by 90 percent ; however, only 14 percent of the trained beneficiaries were women, missing the target of 50 percent . • Track 2: PRGRD strengthened the capacity of the National Center for Geo - spatial Information (CNIGS) with in the Ministry of Planning and External Cooperation (MPCE) to assess risks . The project improved risk assessment capacity by generating key risk data by using e arth o bservation (EO), remote sensing technology (LiDaR) and modeling hydrological risks. By cl osing, t he entire country was covered by a high - resolution d igital e levation m odel and high resolution aero - photography that were used to generate the first detailed hydrological risk model. This risk information served to prepare the Bank’s 2017 Municipal Development and Urban Resilience (MDUR) Project and the 2020 Rural Accessibility and Resilience (PARR) Project’s Artibonite Centre Loop. The CNIGS also delivered the open data geo - referenced database platform (www.haitidata.org) 6 that made the entire risk information publicly available. Thirty - five risk maps were produced, but the delivery and upload of the final maps to Haitidata will be completed under the subsequent successor , Projet de Gestion des Risques et de Résilience aux Aléas Climatique ( PGRAC) as the project encountered delays in paying the contractor and travel restrictions after the COVID - 19 pandemic . Table 1: Extent of Achievement of IRI Targets of PDO Indicator 1 Intermediate Results Indicators Baseline/ Unit Rest. 3 Target Number Achieved % Achieved Intermediate Results 1: Natural Hazard Risk Assessment and Analysis 1. Number of beneficiaries from a training in disaster risk management 0 # 799 1,520 190 % 2. Number of ministry officials benefitting from a training program in risk management 0 # 70 127 181 % The World Bank Disaster Risk Management and Reconstruction (P126346) Page 12 of 65 3. Percentage of the national territory covered by a high - resolution Digital Elevation Model and high resolution aero - photography 0 % 100% 100% 100% 4. Number of risk maps are produced, disseminated and available in an open - data online platform 0 # 35 0 0% 5. A first pilot detailed hydrological risk modelling is developed using the Digital Elevation Model No Yes Yes 100% Note: Percentage achieved is color coded: yellow – not achieved set target; light green – achieved set target; and dark green – exceeded set target. Outcome Indicator 2. Exceeded s hare of population living in a municipality with a CCPC (Municipal Civil Protection Staff) of c ategory 2 or higher was exceeded thr ough three main DRM capacity building tracks highlighted below . 19. PDO Indicator #2: Share of population living in a municipality with a CCPC of Category 2 or higher. The project aimed to expand the 73 existing CCPCs to cover all 140 municipalities with a l evel 2 certification, and train 2,800 CCPC volunteers to provide emergency services to the population. In addition, the project strengthened the DRM legal and institution al framework by supporting a road map to provide the DRM system with a legal basis. The project also aimed to rehabilitate or construct twelve emergency shelters. All but two IRIs targets under “Support to Disaster and Preparedness and Emergency Response” were achieved or exceeded as discussed below and shown in Table 2: • Track 1: With PRGRD’s impetus and support, Haiti enacted the National DRM System, Decree 103 on June 15, 2020 . The Government of Haiti implemented the DRM road map with strong support from the project, and the target was exceeded when the DRM Legal and Institutional Framework was enacted by presidential decree in June 2020 . The decree became a prior action of the COVID - 19 Response and Resilience Development Policy Operation (P171474) . It was a pivotal turning point as it allows existing and future projects to be grounded in t he new Legal and Institutional Framework . In addition, the DPC has already been elevated to a General Direction ( DGPC ) in September 2020 and will allow the DPC to have its own budget . • Track 2: PRGRD scaled up DRM capacity and strengthened the CCPCs . Central and l ocal - level capacit ies were strengthened on various aspects of DRM, internal management, public information and communication of alert s , project management, contingency plan ning , and training on COVID - 19 prevention. The target for training of c entral, departmental and municipal CCPC s taff to a l evel 2 certification was exceeded by 18 percent; however, the target for the creation of operational CCPC s with a l evel 2 certification was missed by 15 percent owing to the difficulty in accessing areas affected by civil unrest ( Section III), especially after 2018. Capacity building of CCPC’s volunteers on DRM resulted in enhanced emergency response after Hurricane Matthew. The pilot tools to evaluate and prioritize e vacuation shelters were developed reaching the indicator target. However, t he project was only able to rehabilitate seven emergency shelters, missing the target of 12; the remaining five shelters will be rehabilitated under the PGRAC. • Track 3: PRGRD expan ded Haiti’s early warning system coverage . Four pilot departments were connected to the national radio system , and proved invaluable during the catastrophic events (Figure 2). A diagnostic study was also carried out to establish a national emergency commun ication system in Haiti’s ten departments. Table 2: Extent of Achievement of IRI Targets of PDO Indicator 2 Intermediate Results Indicators Baseline/ Unit Rest. 3 Target Number Achieved % Achieved Intermediate Results 2 : Support to D isaster P reparedness and Emergency Response 6. Number of CCPC Staff trained and L evel 2 - certified (Office Management & Emergency Operation Center Management) 1,100 # 2,800 3,313 118 % The World Bank Disaster Risk Management and Reconstruction (P126346) Page 13 of 65 7. Number of L evel 2 - certified operational CCPCs 0 # 140 119 85 % 8. A national radio communication system has been initiated and at least four pilot departments have been connected to the national level 0 # 4 4 100% 9. A draft road map with a score card for a disaster risk management system is developed No Yes Yes 100% 10. Pilot evacuation shelters have been rehabilitated or reconstructed with multi - hazard resilient measures 0 # 12 7 58 % 11. Pilot evacuation shelters tool to evaluate and prioritize shelters needs is developed and used in the affected area by Matthew No Yes Yes 100% Note: Percentage achieved is color coded: yellow – not achieved set target; light green – achieved set target; and dark green – exceeded set target. PDO 2: Enhancing the resiliency of critical transport infrastructure 20. The P R GRD exceeded four and reached four targets of the PDO intermediary outcome indicator s related to the second sub objective of e nhanced resilient critical transport infrastructure ( Table 3, Annex 1). Outcome Indicator 3 . Achieved target of the n umber of beneficiaries from improved and resilient investments on the road network , of wh om 50 percent were female , from improved and resilient investments on the road network through three main tracks highlighted below . 21. PDO Indicator # 3 : Beneficiaries of whom 50% were women with improved access to resilient road network as women also directly benefited from all - weather roads (mobility, flow of goods and service provision) . PRGRD aimed at mainstreaming DRM in the transport sector by strengt hening relevant institutions, and by improving critical road sections and spot improvements to all - weather standards : (i) 100 kilometers of non - rural roads, seven damaged bridges prior and after Hurricane Matthew ; and (ii) 40 spot improvements prior to Hurricane Matthew and 15 damaged road sections after Hurricane Matthew were targeted for rehabilitation, among other works. The project also aimed to provide five departments with investment plans to improve all weather rural accessibility and generate economic opportunities through LIW. All the IRI targets under “Rehabilitation of Vulnerable and Damaged Transport Infrastructure” were either achieved or exceeded as discussed below and shown in Table 3 : • Track 1: PRGRD targeted the rehabilitation of road structures that required rapid intervention before they fell to a level beyond repair. All activities achieved their targets and enhanced the resilience of three corridors in the South. The project brought 120 kilometers of roads to all - weather standards , and helped communities avoid isolation during floods events by being able to access Haiti's main road network ( Annex 1 ). Six bridges were rehabilitated or rebuilt, and one bridge that was damaged by Hurricane Matthew was reb uilt to the required standards. The p roject also carried out 112 spot improvements and land slide prevention on river crossings, drainage improvements, road repairs, and coastal road protection and exceeded the indicator by 180 percent . All pre - Hurricane M atthew road rehabilitation activities were completed to resilient standards and remained in use during and after flood events. For example, the Chalon and Dolin bridges, built prior to Hurricane Matthew, have both withstood the impact of the hurricane and were critical to the emergency response in providing safe access to the impacted rural communities. Similarly, at Port - à - Piment, the Tiburon coastal road remained accessible after Hurricanes Irma and Laura. • Track 2: PRGRD was the precursor of the conting ent emergency response component (CERC) at the Bank: Component 4 had an earmarked allocation of US$1 million that could be triggered in the event of a transport The World Bank Disaster Risk Management and Reconstruction (P126346) Page 14 of 65 recovery emergency. As Hurricane Matthew caused significant damage to the country's southern pe ninsula funds from Component 4 enabled the project to quickly respond to key needs. The MTPTC was able to carry out immediate recovery activities : (i ) undertak e rapid assessments to identify critical weaknesses in the road network and re - establish access to the southern departments; (ii) construct a temporary bridge allowing safe, all - weather access to 1.4 million people in the South ; (iii) deploy technical experts to join the MTPTC’s reconnaissance team for needs assessment; and (iv) support initia l connectivity restoration. These activities were covered in one year, just in time for the US$20 million AF grant to become effective in November 2017 . Thus, the US$1 million contingent fund proved to be an effective innovation ahead of the subsequent and mainstreamed CERC instrument in Bank investment projects. • Track 3: The project built the capacity of MTPTC at the national level and beneficiaries at the commune levels, while also creating job opportunities . At the central level, the project improved the identification of infrastructure investment s , medium to long term prioritization , and asset management for emergency recovery and reconstruction activities. The project developed and mainstream ed the R ural A ccess I ndex (RAI) methodology and the spot - impro vement approach in MTPTC. F ive departments prepared risk informed investment plan s to improve all - weather rural accessibility based on the RAI methodology . The project br ought innovative, reliable and less expensive engineering solutions, such as metallic bridges. Investments were informed by hydrological models, multi - hazard map s and communities gained knowledge on environment al matters . Both men and women were trained to carr y out labor - intensive work , exceeding the target by 6 percent ; this helped create skilled laborers or corps de métiers, boost income generating activities in mainly poor areas , while judiciously targeting women representation at 40 percent . Table 3: Extent of Achievement of IRI Targets of PDO Indicator 3 Intermediate Results Indicators Baseline/ Unit Rest. 3 Target Number Achieved % Achieved 12. Roads rehabilitated, Non - rural 0 km 100 120 120 % 13. Number of bridges built or rehabilitated with satisfactory technical standards 0 # 6 6 100% 14. Number of spot interventions to protect local access , executed with satisfactory technical standards 0 km 40 112 280 % 15. Number of departments with investment plan s to improve all weather rural accessibility , based on the Rural Index Access methodology 0 # 5 5 100% 16. Number of bridges and road sections damaged by H urricane Matthew that have been repaired or consolidated with satisfactory technical standards 0 # 15 27 180 % 17. Number of bridges damaged by H urricane Matthew that have been rebuilt with satisfactory technical standards 0 # 1 1 100% 18. Number of person /days of LIW generated by project activities 0 # 350,000 370,000 106 % 19. Actions are taken in a timely manner in response to feedback received during consultation sessions with beneficiaries/project affected people (Feedback, Responses and Action s are monitored and reported) No Yes Yes 100% Note: Percentage achieved is color coded: yellow – not achieved set target; light green – achieved set target; and dark green – exceeded set target. Justification of Overall Efficacy Rating The World Bank Disaster Risk Management and Reconstruction (P126346) Page 15 of 65 22. P R GRD largely achieved both its PDO sub objectives of improved disaster response capacity and enhanced resilient critical transport infrastructure in Haiti. The project achieved the targets for all three PDO indicators ( T able 4). It supported the development of the DRM legal and institutional framework, which has since been enacted on June 2020 as the National DRM System, which is a fundamental contribution to sustainable DRM in Haiti. The project met nine and exceeded seven of the 19 IRI targets and missed targets of the remaining three IRIs. Activities that will contribute to the achi evement of these three IRIs were transferred to PGRAC for implementation. As such, the efficacy of the project is rated Substantial. Table 4: Achievement of PDO Indicator Targets PDO Baseline/ Unit Rest. 3 Target Number Achieved % Achieved PDO Indicator Line ministries developing an action plan for vulnerability reduction 0 # 2 2 100% Share of population living in a municipality with a CCPC of C ategory 2 or higher 20% 75% 7 7.3 % 10 3 % Number of beneficiaries from an improved and resilient transport infrastructure 0 # 150,000 150,000 100% Note: Percentage achieved is color coded: yellow – not achieved set target; light green – achieved set target; and dark green – exceeded set target. C. EFFICIENCY Rating: Substantial 23. Economic efficiency. The project did not require an economic analysis at appraisal as it was appraised under OP/BP8.00. A quantitative economic analysis carried out for the project’s DRM components for the ICR (Annex 4) indicates that the proje ct’s DRM components are viable with a net present val