Pwojè Rekonstriksyon Ijans Pon ak Rediksyon Vilnerabilite

Document of The World Bank Report No: ICR00002483 IMPLEMENTATION COMPLETION AND RESULTS REPORT (IDA-H4320) ON A GRANT IN THE AMOUNT OF SDR 12.8 MILLION (US$20.0 MILLION EQUIVALENT) TO THE REPUBLIC OF HAITI FOR A EMERGENCY BRIDGE RECONSTRUCTION AND VULNERABILITY REDUCTION PROJECT November 30, 2015 Transport & ICT Haiti Country Unit LATIN AMERICA AND CARIBBEAN Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized CURRENCY EQUIVALENTS (Exchange Rate Effective November 30, 2015) Currency Unit = Haitian Gourde HTG 1.00 = US$0.01808 US$1.00 = HTG 55.3044 FISCAL YEAR October 1 – September 30 ABBREVIATIONS AND ACRONYMS AFD French Development Agency (Agence Francaise de Développement) BMPAD Bureau of Monetization of Development Aid Programs (Bureau de Monétisations et Programmes d’Aide au Développement ) CARDP Center and Artibonite Regional Development Project (P133352) CIAT Inter-Ministerial Committee for Territorial Development ( Comité Interministériel d’Aménagement du Territoire ) CRV Vulnerability Reduction Unit (Cellule de Réduction de la Vulnérabilité) DCRU Disaster Recovery and Coordination Unit DPC Directorate of Civil Protection ( Direction de la Protection Civile) DRM Disaster Risk Management ( Gestion des Risques de Désastres ) DRMRP Disaster Risk Management and Reconstruction Project (P126346) ERDMP Emergency Recovery and Disaster Management Project (P090159) FER Road Maintenance Fund ( Fond d’Entretien Routier ) FGHI Tropical Storms Fay, Gustav, Hannah, and Hurricane Ike GoH Government of Haiti IaDB Inter-American Development Bank IDA International Development Association IP Implementation Progress ISR Implementation Status and Results Report M&E Monitoring and Evaluation MICT Ministry of the Interior and Collective Territories ( Ministère de L’Intérieur et des Collectivités Territoriales) MIS Management Information System MPCE Ministry of Planning and External Cooperation ( Ministère de Planification et Cooperation Externe) MTPTC Ministry of Public Works, Transportation, and Communication ( Ministère de Travaux Publics, Transport, Énergie et Communications) MTR Mid - term Review NDRMS National Disaster Risk Management System ( Système National de Gestion des Risques et des Désastres) NGO Non - Governmental Organization PCU Project Coordination Unit (Unité de Coordination de Projet) PIU Project Implementation Unit PDNA Post - Disaster Needs Assessment PDO Project Development Objective PPR Risk Management Plans (Plans de Prévention des Risques) ii 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 Institutions Emergency Recovery Project (P120895) PTDT Transport and Territorial Development Project ( P095523 ) RAI Rural Access Index SPGRD Permanent Secretariat of Disaster Risk Management ( Secretariat permanent de Gestion des Risques et des Desastres UCE Central Execution Unit ( Unité Central d’Exécution) (PCU of MTPTC) UCP Project Coordination Unit ( Unité Coordination de Projet ) (PCU of MEF at BMPAD) UTSI Statistics and Data Processing Technical Unit (Unite Technique de Statistiques et d’Informatique) Regional Vice President: Jorge Familiar Calderon Special Envoy: Mary Barton-Dock Practice Manager: Aurelio Menendez Project Team Leader: Pierre Xavier Bonneau Co-Project Team Leader Michel Matera ICR Team Leader: Pierre Xavier Bonneau ICR Primary Author : Malaika Becoulet iii HAITI Emergency Bridge Reconstruction and Vulnerability Reduction Project CONTENTS Data Sheet A. Basic Information B. Key Dates C. Ratings Summary D. Sector and Theme Codes E. Bank Staff F. Results Framework Analysis G. Ratings of Project Performance in ISRs H. Restructuring I. Disbursement Graph 1. Project Context, Development Objectives and Design ............................................... 1 2. Key Factors Affecting Implementation and Outcomes ............................................ 11 3. Assessment of Outcomes .......................................................................................... 18 4. Assessment of Risk to Development Outcome......................................................... 22 5. Assessment of Bank and Borrower Performance ..................................................... 24 6. Lessons Learned ....................................................................................................... 26 7. Comments on Issues Raised by Borrower/Implementing Agencies/Partners .......... 28 Annex 1. Project Costs and Financing .......................................................................... 29 Annex 2. Outputs by Component ................................................................................. 31 Annex 3. Economic and Financial Analysis ................................................................. 38 Annex 4. Bank Lending and Implementation Support/Supervision Processes ............ 39 Annex 5. Summary of Borrower's ICR and/or Comments on Draft ICR ..................... 40 Annex 6. Comments of Cofinanciers and Other Partners/Stakeholders ....................... 44 Annex 7. List of Supporting Documents ...................................................................... 45 iv ADDITIONAL FINANCING DATA SHEET Haiti Emergency Bridge Reconstruction and Vulnerability Reduction Project ( P114292 ) LATIN AMERICA AND CARIBBEAN GTIDR A. Basic Information Country: Haiti Project Name: HT Emergency Bridge Reconst & Vulnerab Reduction Project Project ID: P114292 L/C/TF Number(s): IDA-H4320 ICR Date: 11/30/2015 ICR Type: Core ICR Lending Instrument: ERL Borrower: MINISTRY OF ECONOMY AND FINANCE Original Total Commitment: XDR 12.80M Disbursed Amount: XDR 12.77M Revised Amount: XDR 12.80M Environmental Category: B Implementing Agencies: Unite Centrale d'Execution BMPAD UCE Unite Centrale d'Execution CIAT Cofinanciers and Other External Partners: B. Key Dates Process Date Process Original Date Revised / Actual Date(s) Concept Review: 10/14/2008 Effectiveness: 03/31/2009 03/31/2009 Appraisal: Restructuring(s): 03/21/2011 05/30/2013 10/10/2014 Approval: 11/18/2008 Mid-term Review: Closing: 06/30/2013 05/31/2015 C. Ratings Summary C.1 Performance Rating by ICR Outcomes: Moderately Satisfactory v Risk to Development Outcome: Substantial Bank Performance: Satisfactory Borrower Performance: Moderately Satisfactory C.2 Detailed Ratings of Bank and Borrower Performance (by ICR) Bank Ratings Borrower Ratings Quality at Entry: Satisfactory Government: Satisfactory Quality of Supervision: Satisfactory Implementing Agency/Agencies: Moderately Satisfactory Overall Bank Performance: Satisfactory Overall Borrower Performance: Moderately Satisfactory C.3 Quality at Entry and Implementation Performance Indicators Implementation Performance Indicators QAG Assessments (if any) Rating Potential Problem Project at any time (Yes/No): Yes Quality at Entry (QEA): None Problem Project at any time (Yes/No): Yes Quality of Supervision (QSA): None DO rating before Closing/Inactive status: Moderately Satisfactory D. Sector and Theme Codes Original Actual Sector Code (as % of total Bank financing) Public administration- Transportation 13 13 Public administration- Water, sanitation and flood protection 25 25 Rural and Inter-Urban Roads and Highways 62 62 Theme Code (as % of total Bank financing) Administrative and civil service reform 31 31 Natural disaster management 50 50 Participation and civic engagement 1 1 Rural services and infrastructure 18 18 E. Bank Staff Positions At ICR At Approval Vice President: Jorge Familiar Calderon Pamela Cox vi Country Director: Mary A. Barton - Dock Yvonne M. Tsikata Practice Manager/Manager: Aurelio Menendez Jose Luis Irigoyen Project Team Leader: Pierre Xavier Bonneau Nicolas Peltier-Thiberge ICR Team Leader: Pierre Xavier Bonneau ICR Primary Author: Malaika Becoulet F. Results Framework Analysis Project Development Objectives (from Project Appraisal Document) The project's development objective in the Financing Agreement is to (i) assist the Recipient in restoring access on selected critical points of its transport system following the FGHI Emergency, and (ii) reduce vulnerability to national disasters by strengthening its NDRMS. The PDO in the PAD is to (i) restore access on selected critical points of the Haitian transportation system and (ii) support vulnerability reduction by strengthening the Haitian National Disaster Risk Management System. The PDO used for this ICR evaluation is that in the Financing Agreement. The differences are editorial. Note: The dates of the original and revised target values represent the date when they were approved (as part of the PAD or the restructuring paper). In all cases, the targets were expected to be met by the final closing date. Revised Project Development Objectives (as approved by original approving authority) (a) PDO Indicator(s) Indicator Baseline Value Original Target Values (from approval documents) Formally Revised Target Values Actual Value Achieved at Completion or Target Years Indicator 1 : Disaster Risk Management Units within key ministries are operational and sustainable, with adequate instruments/tools and staffing before the end of the project. Value quantitative or Qualitative) No. Yes. 2 2 Date achieved 11/18/2008 11/19/2008 05/30/2013 05/31/2015 Comments (incl. % achievement) Revised 2013 Restructuring. Achieved. CIAT (an inter-ministerial committee of 6 ministries & MTPTC each established a DRM CRV unit, staffed and equipped with resources and tools. Both are presently operational & sustainable. Indicator 2 : MTPTC bridge management unit is operational and sustainable, with adequate resources and staffing. Value quantitative or Qualitative) No. Yes Yes. vii Date achieved 11/18/2008 11/19/2008 05/31/2015 Comments (incl. % achievement) Achieved. Bridge Management Unit is operational: 12 engineers trained and 2 unit staffed based at MTPTC. From April 2011 to present, the Unit has cataloged 3455 hydraulic crossings, including 174 bridges which have been evaluated for further maintenance. Indicator 3 : MPCE vulnerability reduction unit is operational and sustainable. Value quantitative or Qualitative) No. Yes. Dropped. See Indicator #1 Date achieved 11/18/2008 11/19/2008 05/30/2013 05/31/2015 Comments (incl. % achievement) Dropped Restructuring 2013: CRV in MPCE discontinued in Nov. 2011 due to changes in national institutional framework. CRV staff & responsibilities for integration of DRM in sectoral policies transferred to CIAT and is operational (see Ind. #3 & Table 1). Indicator 4 : National Disaster Risk Management System (NDRMS) Policy and framework assessed and strengthened before the end of 2013. Value quantitative or Qualitative) No. Yes. Dropped See below. Date achieved 11/18/2008 11/19/2008 05/30/2013 05/31/2015 Comments (incl. % achievement) The original indicator "SPGRD unit reinforced, operational and sustainable" expanded to above (2011); then dropped (2013). NDRMS & SPGRD were reinforced & improved, but the 2010 earthquake emergency was not a conducive environment for policy reform. Indicator 5 : Roads rehabilitated (km), non-rural roads Value quantitative or Qualitative) No. 200 200 Date achieved 05/30/2013 05/31/2013 05/31/2015 Comments (incl. % achievement) New Restructuring 2013. 100% achieved. This result was achieved by contracting local SMEs, thereby promoting the growth and development of small and medium civil work enterprises. (b) Intermediate Outcome Indicator(s) Indicator Baseline Value Original Target Values (from approval documents) Formally Revised Target Values Actual Value Achieved at Completion or Target Years Indicator 1 : Number of emergency fords and overpasses built in the two months following the emergency. Value (quantitative or Qualitative) 1 4 3 3 Date achieved 11/18/2008 11/19/2008 05/30/2013 05/31/2015 Comments (incl. % achievement) 100% achieved. Target reduced due to financing from other sources for bridge 4. By Dec 2008 three overpasses were operational on two major roads connecting the northern and southern parts of the country. viii Indicator 2 : Number of bridges rebuilt with satisfactory technical standards. Value (quantitative or Qualitative) 0 2 1 1 Date achieved 11/18/2008 11/19/2008 05/30/2013 05/31/2015 Comments (incl. % achievement) 100% achieved. Cost overruns led to reduction in target from 2 to 1. But, engineering studies financed by PROReV were used by USAID and GOH to build the remaining bridge (Chalon) with Bank Financing under another project (DRMRP - P126346). Indicator 3 : 10 emergency bridges purchased Value (quantitative or Qualitative) No. Yes. Yes. Date achieved 05/30/2013 05/31/2013 05/31/2015 Comments (incl. % achievement) 100% Achieved. Staff of MTPTC were trained on the installation of emergency bridges. 7 of the 10 emergency bridges purchased were used during the project life to restore access on roads made inaccessible following adverse natural events incl TS Sandy Indicator 4 : Number of bridges and road sections that have been repaired or consolidated with satisfactory technical standards Value (quantitative or Qualitative) 0 20 11 20 Date achieved 11/18/2008 11/19/2008 10/08/2014 05/31/2015 Comments (incl. % achievement) 154% Achieved. Initial target of 20 revised in 2011 Restructuring to 8(2013) then 11(2014) in light of the necessary cost reallocation at the time. Unexpected cost savings during project execution allowed for the increase in the # of spot interventions. Indicator 5 : Number of community-based initiatives performing routine maintenance with satisfactory technical standards Value (quantitative or Qualitative) 0 20 Dropped. 20 (financed by GoH) Date achieved 11/18/2008 11/19/2008 05/30/2013 05/31/2015 Comments (incl. % achievement) Dropped Restructuring 2013. Sub-component linked to this indicator was dropped. Activity financed by GoH through FER. Indicator 6 : Bridge inventory completed and up to date Value (quantitative or Qualitative) No. Yes. Yes. Date achieved 11/18/2008 11/19/2008 05/31/2015 Comments (incl. % achievement) 100% Achieved. Inventory of existing bridges complete and is up to date. From April 2011 to date, Bridge Management Unit at MTPTC conducted a first time inventory and cataloged 3455 hydraulic crossings incl. 174 bridges which have since been evaluated Indicator 7 : Constitution of an effective crisis management and vulnerability reduction unit in MTPTC ix Value (quantitative or Qualitative) No. Yes. Yes. Date achieved 11/18/2008 11/19/2008 05/31/2015 Comments (incl. % achievement) 100% Achieved. Crisis Management and Vulnerability Reduction Unit (DRM unit) was established, staffed and equipped with trained engineers (see PDO Indicator #1). Operational manual (included M&E tools) was also developed. Unit was integrated into NDRMS. Indicator 8 : Constitution of a bridge management unit in MTPTC Value (quantitative or Qualitative) No. Yes. Yes. Date achieved 11/18/2008 11/19/2008 05/31/2015 Comments (incl. % achievement) 100% Achieved. Bridge Management Unit was established, and the Road Maintenance Division was staffed with training engineers. Unit has completed the country's first comprehensive national bridge inventory. Indicator 9 : 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 2013. Value (quantitative or Qualitative) No. Yes. Dropped. See PDO indicator #1 Date achieved 11/18/2008 11/19/2008 05/30/2013 05/31/2015 Comments (incl. % achievement) Original indicator "est. of CRV Unit" revised to above (2011), dropped in 2013. Unit & staff transferred from MPCE to CIAT. NDRMS Reform abandoned by GoH due to other priorities post-earthquake. Policy dialogue recommenced in 2012, financed by DRMRP. Indicator 10 : Timely presentation of Disaster Recovery and Reconstruction Program(s) are submitted and coordinated every semester and yearly by all stakeholders from second semester of 2011. Value (quantitative or Qualitative) No. Yes. Dropped. Achieved until practice discontinued 2013. Date achieved 11/18/2008 11/19/2008 05/30/2013 05/31/2015 Comments (incl. % achievement) Dropped Restructuring 2014. Dedicated PM's office installed after 2010 Earthquake was discontinued and presentations no longer held. Indicator 11 : A Multi-sectoral Vulnerability Reduction Unit (EM-VRU) created and operational within CIAT before the end of the project. Value (quantitative or Qualitative) 0 4 Yes/No Yes Date achieved 11/18/2008 11/19/2008 10/10/2014 05/31/2015 Comments (incl. % achievement) Revised Restructuring 2014. 100% Achieved: CRV (French for EM-VRU) was created and is presently operational within CIAT. This CRV was transferred from MPCE. x Indicator 12 : Transversal development strategies developed by CIAT (i.e.: watershed management, urban planning, territorial development and land tenure, Risk Prevention Plans) established and in place before end of project. Value (quantitative or Qualitative) 0 Yes. 6 6 Date achieved 11/18/2008 11/19/2008 10/10/2014 05/31/2015 Comments (incl. % achievement) Revised Restructuring 2014 (mentions only CIAT because includes the CRV). 100% Achieved. Transversal development strategies & instruments were developed by CIAT incl. key strategic documents regarding risk, watershed management & urban plans. Indicator 13 : Disaster risk management principles integrated and assessed into these transversal strategies Value (quantitative or Qualitative) No. Yes. Dropped. See Indicator #12 Date achieved 11/18/2008 11/19/2008 05/30/2013 05/31/2015 Comments (incl. % achievement) Revised (2011) by including "assessed", and then dropped (2013). However the target was achieved. Instruments to integrate DRM in territorial planning were developed under Indicator #12. G. Ratings of Project Performance in ISRs No. Date ISR Archived DO IP Actual Disbursements (USD millions) 1 12/01/2008 Satisfactory Satisfactory 0.00 2 04/07/2009 Satisfactory Satisfactory 0.00 3 07/29/2009 Satisfactory Satisfactory 2.00 4 09/02/2009 Satisfactory Satisfactory 2.00 5 05/12/2010 Satisfactory Satisfactory 3.40 6 02/22/2011 Moderately Satisfactory Moderately Satisfactory 6.84 7 11/02/2011 Moderately Satisfactory Moderately Satisfactory 8.55 8 06/27/2012 Moderately Satisfactory Moderately Satisfactory 10.65 9 02/24/2013 Moderately Satisfactory Moderately Satisfactory 11.78 10 12/01/2013 Moderately Satisfactory Moderately Unsatisfactory 12.66 11 02/24/2014 Moderately Satisfactory Moderately Unsatisfactory 14.27 12 09/01/2014 Moderately Satisfactory Moderately Satisfactory 15.92 13 03/12/2015 Moderately Satisfactory Moderately Satisfactory 18.73 14 06/01/2015 Moderately Satisfactory Moderately Satisfactory 19.11 H. Restructuring (if any) xi Restructuring Date(s) Board Approved PDO Change ISR Ratings at Restructuring Amount Disbursed at Restructuring in USD millions Reason for Restructuring & Key Changes Made DO IP 03/21/2011 N MS MS 7.05 The first Restructuring (2011 Restructuring) occurred following the January 12, 2010 Earthquake, when the GoH requested a 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 Special Envoy on March 21, 2011. 05/30/2013 N MS MS 11.78 The second Restructuring (2013 Restructuring), approved on May 30, 2013, was at the request of the GoH to: (i) extend 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) account for 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) reallocate funds from Category 2 and Category 3 to Category 1; (iv) facilitate 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 xii Restructuring Date(s) Board Approved PDO Change ISR Ratings at Restructuring Amount Disbursed at Restructuring in USD millions Reason for Restructuring & Key Changes Made DO IP the intermediate ind icators to monitor the results expected from the modified activities. 10/10/2014 N MS MS 16.11 The third Restructuring (2014 Restructuring), approved on October 10, 2014, involved several changes, including: (i) extension of the closing date by 2 months, from March 31, 2015 to May 31, 2015 to allow for completion of the Rural Access Index (RAI) study under Component 3, and the risk assessment studies and associated Risk Management Plans (PPRs) for the cities of Cap-Haitien and Les Cayes under Component 4; (ii) reallocation of funds from Category 4 to Categories 1, 2 and 3 to accommodate cost overruns; and (iii) changes to the Project Results Framework and Monitoring, which include minor revisions to target values for related intermediated indicators to monitor the results expected from the modified activities. xiii I. Disbursement Profile xiv 1. Project Context, Development Objectives and Design 1.1 Context at Appraisal (a) Country and Sector Background 1. Country Context . At the time of project approval, in November 2008, Haiti had struggled for several decades to emerge from a cycle of political instability and internal conflicts that devastated its economy and weakened state institutions, worsened by poor governance practices which maintained or deepened poverty. In 2004, Haiti was devastated by Hurricane Jeanne, which caused some US$169.5 million in damages, and took more than 4,000 lives. Tropical Storm Noel, which struck Haiti in October 2007, caused flash floods and mudslides in the Western part of the country, resulting in 66 deaths and almost 15,000 lost homes. In March 2008, rising world prices for food and oil triggered violent protests, leading the Senate to vote then Prime Minister Jacques-Edouard Alexis out of office on April 12, 2008. Finally, after a period of political instability during which the country did not have a confirmed Government, the 2008 hurricane season was particularly severe, with the passage of three major tropical storms and one hurricane (Fay, Gustav, Hanna and Ike - FGHI) over a four-week period. The combined toll of these storms was some 793 killed, and 301 injured, with 1 million people affected. The result was a collapse of the already weak national transport system—several main roads and bridges were heavily damaged, stifling the passage of goods and services and cutting off entire regions from others—and major crop destruction, crippling food production. All of this was exacerbated by the 2010 earthquake which occurred two years into project implementation and which caused unprecedented damage, by far the worst natural disaster to strike Haiti in recent history. 2. DRM Sector . The FGHI emergency revealed important shortfalls in Haiti's infrastructure policies and National Disaster Risk Management System (NDRMS). Critical issues identified included: (i) a lack of an integrated approach to disaster prevention (including poor urban planning, inefficient water management and significant erosion caused by environmental deterioration); (ii) inadequate technical standards for infrastructure construction; (iii) lack of infrastructure maintenance; and (iv) lack of technical capacity and institutional structures to properly address crisis management and reconstruction. The crisis particularly highlighted the importance of road and bridge maintenance and resilient designs, since those roads and bridges that had been properly maintained were less affected. 3. Transport Sector . The transport sector represented a major bottleneck to Haiti’s social and economic development. With about 90 percent of the country’s overall traffic by land, Haiti has a limited road network of about 3,400 km, including 700 km of national roads, 1,500 km of departmental roads, and 1,200 km of tertiary roads. This road network suffered heavily from lack of maintenance, and from the impacts of climate change and variability, and entire regions remained isolated during the rainy season. At Project appraisal, damage to the transport sector was particularly severe, with several regions in the country completely isolated, and the economy in province’s departments almost 1 completely paralyzed. The Artibonite region faced catastrophic circumstances with major flooding in Gonaives, and access from both the north and south compromised due to the collapse of four major bridges (Montrouis, Ennery, Chalon and Mirebalais). Numerous smaller bridges and road sections were also either destroyed or damaged. (b) Rationale for Bank involvement. 4. The Bank and the Government of Haiti (GoH) have established an effective partnership since the reengagement of the international community in Haiti in 2004, with the Bank playing a prominent role in financing Disaster Risk Management and Transport programs. The Bank had a longstanding experience in supporting the transport sector nationwide, first engaging in 1955, and followed by seven investments and technical assistance operations , with a particular focus since 2004 on strengthening the road maintenance country system to improve resilience and protection of assets with the Transport and Territorial Development Project – P095523) and the Disaster Risk Management (DRM) sector with the Emergency Response Disaster Management Project (P090150) approved in 2005, both of which were still under implementation at this Project’s appraisal. 5. A World Bank technical assistance team was also deployed in the immediate aftermath of Tropical Storm Gustav (second storm) to: (i) assist MTPTC in dealing with the emergency operations; (ii) provide technical guidance on immediate repair and designs to restore minimal connectivity; and (iii) identify medium and long term needs. 6. The GoH officially requested financial and technical assistance from the Bank to support its Post-Disaster Needs Assessment (PDNA) and the recovery and reconstruction program to be created in the aftermath of FGHI. The Bank-hosted Global Facility for Disaster Reduction and Recovery co-led a PDNA and evaluated the total damage of FGHI at $897 million, or the equivalent of 14.6% of the GDP within weeks of the passing of Hurricane. In terms of economic impact, prior to the 2010 earthquake, FGHI was the largest disaster in Haiti’s recent history. 7. Interim Strategy Note (ISN) . PROReV was fully aligned and consistent with the Interim Strategy Note. Economic recovery was a central axis of the 2006 Haiti ISN, which included the transport sector and the management of natural disasters and risks as key components. The GoH further recognized the strategic importance of an improved transport sector and disaster risk by featuring both as key elements of their Poverty Reduction Strategy Paper in November 2007. 1.2 Original Project Development Objectives (PDO) and Key Indicators 8. The original Project Development Objective as described in the Financing Agreement was to: (i) assist the Recipient in restoring access on selected critical points of 2 its transport system following the FGHI Emergency; and (ii) reduce vulnerability to national disasters by strengthening its NDRMS. 1 9. The key original project performance indicators retained, as per the PAD Results Framework, were: • Disaster risk management units within key ministries are operational and sustainable, with adequate resources and staffing; • Ministry of Public Works, Transportation and Communication (MTPTC) bridge management unit is operational and sustainable, with adequate resources and staffing; • Ministry of Planning and External Cooperation (MPCE) recovery and reconstruction planning unit is operational and sustainable with adequate resources and staffing (as MPCE was responsible for vulnerability reduction activities) • Permanent Secretariat of Disaster Risk Management (SPGRD) unit is reinforced, operation and sustainable.(as part of the NDRMS) 1.3 Revised PDO (as approved by original approving authority) and Key Indicators, and reasons/justification 10. The PDO definition remained unchanged during project implementation. 11. These changes occurred in response to the 2010 earthquake and its aftermath, the most severe disaster that Haiti has experienced in recent years. The 2010 earthquake killed an estimated 220,000 people, displaced over 1.5 million people, and destroyed or damaged, 150,000 buildings. The buildings of several key-line ministries collapsed outright, including Ministry of Economy and Finance (MEF), MTPTC, and MPCE. These revisions were necessary to adapt the project to the emergency context and changing government priorities in the wake of the crisis, but continued to fulfill the development objective of the project, and ultimate outcomes. 1 The PDO in the PAD is to (i) restore access on selected critical points of the Haitian transportation system and (ii) support vulnerability reduction by strengthening the Haitian National Disaster Risk Management System. The PDO used for this ICR evaluation is that in the Financing Agreement. The differences with the Financing Agreement formulation are editorial. 3 Table 1: Revisions to PDO Level Indicators PDO Level Indicators Original Indicators Revised Indicators Comments 2011 Restructuring 2013 Restructuring 2014 Restructuring Indicator 1. Disaster Risk Management Units within key ministries are operational and sustainable, with adequate resources and staffing. Revised. Disaster Risk Management Units within key ministries are operational and sustainable, with adequate instruments/tools and staffing before the end of 2013. (Change Process: Country Director Approval – 2011 Level 2 Restructuring) Revised. Disaster Risk Management Units within key ministries are operational and sustainable, with adequate instruments/tools and staffing before the end of the project. (Change Process: Country Director Approval – 2013 Level 2 Restructuring) No change. Target and scope of indicator did not change. The changes merely align the end date of the target of the indicator with the extended closing date. Indicator 2. MTPTC bridge management unit is operational and sustainable, with adequate resources and staffing. No change. No change. No change. Indicator 3. MPCE vulnerability reduction unit is operational and sustainable. No change. Dropped. This unit was transferred to the Inter-Ministerial Committee for Territorial Development (CIAT) attached to the Prime Minister’s office serving as the coordinating body of the 6 key-line ministries (including the MPCE and MTPTC) on territorial planning and development and vulnerability reduction, among other things. (Change Process: Country Director Approval – 2013 Level 2 Restructuring) N/A This indicator was dropped since this unit was transferred to CIAT. The objective was to be achieved through CIAT, the central coordinating body, rather than through a single Ministry, MPCE. Indicator 4. Permanent Secretariat of Disaster Risk Management (SPGRD) unit is reinforced, operational and sustainable. Revised. National Disaster Risk Management System (NDRMS) Policy and framework assessed and strengthened before the end of 2013. SPGRD is one piece of the broader NDRMS. The indicator was revised following the 2010 Earthquake to Dropped. This indicator was dropped when it became apparent during the transition from the emergency response phase to the recovery and reconstruction phase post-earthquake that the assessment and proposed reforms would not be possible during the lifetime of the project, mostly due N/A 4 reflect the modification of activities to strengthen weaknesses in the broader system, not simply reinforce the Permanent Secretariat. (Change Process: Country Director Approval – 2011 Level 2 Restructuring) to shifted government priorities and capacities. (Change Process: Country Director Approval – 2013 Level 2 Restructuring) Indicator 3. (New) Roads rehabilitated (km), non-rural roads N/A New. This indicator was added as a core indicator to capture the number of kilometers of roads rehabilitated under the project. (Change Process: Country Director Approval – 2013 Level 2 Restructuring) No change. 5 1.4 Main Beneficiaries 12. In response to the 2007 and 2008 hurricane seasons, project resources were channeled to repair and reinforce selected infrastructure that were identified as key to ensuring the continuity of the national road network and restore connectivity to the isolated departments. Intended beneficiaries included the population living close to targeted areas of intervention financed under the project. These interventions were meant to enable the local population to preserve their livelihood base, including access to markets and to basic social services. 13. The beneficiaries are divided into four categories: • The population of the isolated departments (South, Grande Anse, Center, and Artibonite) following the impact of FGHI; • The riverside populations of targeted interventions of the activities, for example, Mirebalais, Solon, Cavaillon, etc; • The national population in general, through the strengthening of institutions in charge of risk management and resilience MTPTC, MPCE, Inter-Ministerial Committee for Territorial Planning (CIAT – Comité Interministériel d’Aménagement du Territoire ) under the Primature (Prime Minister’s Office), Vulnerability Reduction Unit (CRV), SPGRD as part of the NDRMS; • Government’s officials and public servants from MTPTC, MPCE, NDRMS, and CIAT, benefitting from the technical assistance and capacity strengthening activities financed by the project. 1.5 Original Components 14. The PDO was expected to be met through the four components described below in Table 2. 1.6 Revised Components 15. All four project components were revised as a result of the three restructurings, presented below in Table 2. 6 Table 2: Original and Revised Components Original Project 2011 Restructuring 2013 Restructuring 2014 Restructuring Component 1: Reconstructing Select Bridges to Restore Access (US$7.2 million): This component retroactively financed emergency works performed by MTPTC to restore basic access in areas where major bridges had collapsed (sub- component 1.1). The component also sought to rebuild two of the four damaged main bridges (Mirebalais and Chalon), help the MTPTC acquire a stock of emergency bridges in preparation for future disasters and provide targeted assistance to bridge reconstruction works financed by other donors (sub-component 1.2). No change. Revised. Component 1: Implementing a Program of Bridge Reconstruction (US$7.9 million) : The costs for Component 1 were higher than anticipated due to costs associated with the rehabilitation of the La Theme bridge. As a result of other 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 were dropped from the project. These activities included: (i) construction of Chalon Bridge; (ii) repairs of Estimé Dumarsais Bridge; and (iii) rehabilitation of the Roseaux and Voldrogue Bridges. 2 The title of the Component was also revised to reflect reconstruction during the post-earthquake recovery and reconstruction phase. Revised. Component 1: Implementing a Program of Bridge Reconstruction (US$8.03 million) : Financing released under Category 4 (Component 4) was reallocated to Component 1 to cover continued cost overruns due to the rehabilitation of La Theme bridge. Component 2. Improving the Resilience of Transport Infrastructure (US$4.9 million): This component financed several repair and consolidation works on damaged or weakened bridges and road sections. Before appraisal, an indicative list of works was prepared by MTPTC, with the assistance of a Bank mission that visited Haiti immediately after the FGHI storms. This component aimed to also finance community-based routine maintenance Component 2. Improvi ng the Resilience of Transport Infrastructure (US$5.35 million): Reallocation of unallocated funds from Category 6 to Category 2 (Component 2). No change to activities. Component 2. Improving the Resilience of Transport Infrastructure (US$4.64 million): This restructuring involved a reallocation of funds from Category 2 (Component 2) to Category 1 (Component 1) to finance cost overruns under Component 1. Financing under Component 2 was released as a result of the dropping of Sub- component 2.2 – Community Based Routine Maintenance Activities. These activities were directly undertaken by the Fond d’Entretien Routier (FER), the maintenance unit within Component 2. Improving the Resilience of Transport Infrastructure (US$4.64 million): Financing released under Category 4 (Component 4) was reallocated to Component 2 and financed 2 additional spot repairs. 2 These construction, repair and rehabilitation activities were transferred to and financed by the Disaster Risk Management and Reconstruction Project (P126346), and have since been completed. 7 activities, which sought to improve the resilience of selected infrastructure damaged by FGHI, and contribute to improved management of bridge assets. MTPTC with its own resources, and as such, these funds were re-allocated to cover cost overruns under Component 1. 3 Component 3: Improving Transpor t Asset Management ((US$2,585,000). This component financed a number of capacity building activities aiming to develop good practices in bridge asset management, hydraulic monitoring and strengthening the institutional capacity of the MTPTC and its regional offices, including: (i) the development of a comprehensive bridge inventory; (ii) the development of a crisis management unit in MTPTC; (iii) the development of a bridge asset management unit in MTPTC, in charge in particular of managing the bridge inventory and of piloting a hydraulic monitoring program; (iv) launching of a Young Engineers Program in MTPTC; (v) travel and subsistence costs for MTPTC civil servants incurred as part of emergency response or asset management activities; (vi) development of a strong and dedicated implementation team in UCE and MTPTC; and (vii ) financing of safeguards- related studies, as well as project audits. No change. Revised. Component 3: Strengthening Transport System Asset Management (US$2,556,000). This component was renamed to reflect that project activities were strengthening, rather than merely “improving” transport asset management. This restructuring also involved a reallocation of funds from Category 3 (Component 3) to Category 1 (Component 1) to cover cost overruns under Component 1 due to the rehabilitation of La Theme bridge. However, the restructuring also added technical assistance for the establishment of a GIS unit, and associated training, within the MTPTC. The administration, supervision, and M&E activities, as well as capacity building and technical assistance under Component 3 were lower than both the original and revised estimates, despite that fact that the volume of activities following the project restructurings increased. Component 3: Strengthening Transport System Asset Management (US$2,910,000). Financing released under Category 4 (Component 4) was reallocated to Component 3 and financed the elaboration of the Rural Access Index (RAI). Component 4: Support Vulnerabili ty Reduction by Strengthening Haiti’s NDRMS (US$4,900,000) . This component sought to finance a comprehensive technical assistance package to support the creation of Revised. Strengthening Haiti’s National Disaster Risk Management System (NDRMS) (US$4,900,000). This component was renamed to reflect the change in Revised. Strengthening Haiti’s National Disaster Risk Management System (NDRMS) (US$4,900,000). Revised to support CIAT’s key functions/thematic working groups: land-use planning, water and risk management, habitat and Revised. Strengthening Haiti’s National Disaster Risk Management System (NDRMS) (US$3,615,000). Revised to release unused 3 The activities were completed by FER. 8 a post-disaster recovery and coordination unit within the MPCE and provide technical assistance to strengthen the vulnerability reduction capacities of the NDRMS per the recommendations of the PDNA (sub- component 4.1 & 4.2). Coordination arrangements included MTPTC, particularly with regard to the implementation of the proposed project (components 1, 2 and 3), but also other ministries and relevant institutions. This component also sought to pilot a more integrated approach to disaster prevention through strategic studies to be performed in selected areas particularly vulnerable to natural disasters such as Gonaives or Etang Saumatre-Lac Azuei (sub-component 4.3). the approach to the NDRMS following the 2010 earthquake. CIAT did not exist at project preparation, as it was only established in March 2009 to serve as an inter-ministerial committee comprised of six key-line ministries working in conjunction to influence development and territorial planning. Under this Restructuring, the GoH requested support for the provision of technical assistance to CIAT in lieu MPCE given its place in the Premature and coordinating role. BMPAD-UCP remained the fiduciary unit for this Component, not affecting the implementation arrangements urban development, and mapping/IT. BMPAD- UCP remained the fiduciary unit. funding to Categories 1, 2 and 3 (Components 1, 2, and 3). CIAT continued to be responsible for the preparation of the risk assessment studies and associated risk management plans (PPRs) for the cities of Cap-Haitien and Les Cayes. BMPAD-UCP remained the fiduciary unit. Sub - component 4.1: Creation of a disaster recovery and reconstruction coordination unit with the MPCE (US$1,180,000) Revised . (US$1,685,000) to expand the role of the Disaster Recovery and Coordination Unit (DRCU) to cover the establishment of the National Framework for Vulnerability Reduction, and the design, preparation and integration of vulnerability reduction policies and tools into sectoral programs for key line ministries. This also included the renaming of the DRCU to the Vulnerability Reduction Unit (CRV). Dropped. Financing for the CRV within MPCE was discontinued as of November 2011 due to changes in the national institutional framework for vulnerability reduction. The CRV, and all its capacities, were subsequently transferred to CIAT. N/A. Sub - component 4.2: Institutional support program to the NDRMS (US$2,220,000) Revised. (US$1,305,000). Financing was transferred to expand the role of the CRV, and provision of technical assistance to CIAT. Revised. Sub - component 4.1: Provision of Technical Advisory Services to NDRMS (US$3,017,000) Activities under this sub- component were reprioritized to focus on: (i) Technical Assistance to assess the current status of risk assessment in the country, to develop a Sub - component 4.1: Provision of Technical Advisory Services to NDRMS (US$1,015,000). Unused financing transferred to sub-component 4.2 9 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 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 for the finalization and dissemination of a National Multi-hazard Atlas. These activities were to be implemented under the leadership CIAT in close consultation with other stakeholders of the NDRMS, including SPGRD. Sub - component 4.3: Integrated approaches to disaster prevention (US$1,500,000) Revised. Sub - component 4.3: Integrated approaches to disaster prevention (US$1,910,000) This sub-component consisted of the piloting of two watershed vulnerability reduction studies which were eliminated in favor of financing the provision of technical assistance and training to the thematic working groups of the CIAT, as per the request of the Prime Minister’s Office. Revised. Sub - c omponent 4.2 – Technical Assistance to Inter-Ministerial Committee for Land-Use Planning (CIAT) (US$1,910,000): Support to CIAT was extended throughout the project extension period to target key functions/thematic working groups of CIAT: Land-use planning, Water and Risk Management, Habitat and Urban Development, and Mapping/ IT. Revised. Sub - c omponent 4.2 – Technical Assistance to Inter- Ministerial Committee for Land-Use Planning (CIAT) (US$2,610,000): Financing was transferred from sub- component 4.1 to continue the activities of CIAT. 10 1.7 Other significant changes 16. The Project was revised following the 2010 Earthquake to reflect the modifications of activities and allow for more emergency works. The Project underwent three Level Two Restructurings. The first Restructuring (2011 Restructuring) occurred following the January 12, 2010 Earthquake, when the GoH requested a restructuring to reallocate unallocated funds from Category 6 to Category 2 to cover cost overruns in Component 2 (see Table 4 in Annex 1) in addition to revisions in Component 4 (see Section 1.6). The level II Restructuring was approved by the Special Envoy on March 21, 2011. 17. The second Restructuring (2013 Restructuring), approved on May 30, 2013, was at the request of the GoH to: (i) extend 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 and(ii) reallocate funds from Category 2 and Category 3 to Category 1 (see Section 1.6 and Table 4 in Annex 1) in addition to the changes described in Sections 1.3 and 1.6. 18. The third Restructuring (2014 Restructuring), approved on October 10, 2014, involved several changes, including: (i) extension of the closing date by 2 months, from March 31, 2015 to May 31, 2015 to allow for completion of the Rural Access Index (RAI) study under Component 3, and the risk assessment studies and associated Risk Management Plans (PPRs) for the cities of Cap-Haitien and Les Cayes under Component 4; and (ii) reallocation of funds from Category 4 to Categories 1, 2 and 3 to accommodate cost overruns. Results Framework 19. The Results framework was adjusted throughout the lifetime of the project to accommodate successive shocks in the country context and substantial institutional changes. The rationale and changes of the three restructurings are reflected in Table 6 in Annex 2. 2. Key Factors Affecting Implementation and Outcomes 2.1 Project Preparation, Design and Quality at Entry 20. Assessment of Project Design. The PDO was relevant and consistent with the 2006 Interim Strategic Note (ISN 2006) and was fully aligned with the needs of the post FGHI storms context. Considering the emergency context and the PDO, the choice to process the operation under OP/BP 8.00 guidelines was adequate. The strong involvement of the government especially MTPTC staff and most of the technical directorates in project preparation ensured full ownership. 21. Two aspects of the project design are particularly noteworthy in that they contributed to the coherence of the project in a volatile environment and to laying the foundation for future sustainability. First, the design was built on government ownership 11 and close coordination with other development actors which ensured complementarity among efforts. The project design also benefitted from: (i) including the recommendations from experienced international emergency bridge specialists that had been hired under a financing agreement with the EU; and (ii) support from the “Donors Tables” (DTs). Second, recognizing the current ad-hoc nature of community engagement in disaster response and preparedness, the design incorporated a long-term reinforcement and capacity building of institutions to respond to future adverse natural events. 22. The PDO was developed to respond to the emergency context and resulting development priorities at that time. The PDO was realistic and reachable as it focused on the outcome for which the project could reasonably be held accountable given its duration, resources, and approach. To achieve the two PDO elements, the project was divided into four operational components: Components 1 and 2 aimed to contribute to urgent and emergency response activities following ad