FOR OFFICIAL USE ONLY Report No: PAD3154 Public Disclosure Authorized
INTERNATIONAL DEVELOPMENT ASSOCIATION
PROJECT APPRAISAL DOCUMENT ON A PROPOSED CREDIT
IN THE AMOUNT OF EUR 89.1 MILLION Public Disclosure Authorized (US$100 MILLION EQUIVALENT)
TO THE
GOVERNMENT OF BENIN
FOR A
BENIN ‐ STORMWATER MANAGEMENT AND URBAN RESILIENCE PROJECT
May 2, 2019 Public Disclosure Authorized
Social, Urban, Rural And Resilience Global Practice Africa Region
Public Disclosure Authorized This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.
CURRENCY EQUIVALENTS
(Exchange Rate Effective March 31, 2019)
Currency Unit = CFAF CFAF 584 = US$1 US$1 = EUR 0.891
FISCAL YEAR January 1 ‐ December 31
Regional Vice President: Hafez M. H. Ghanem Country Director: Pierre Frank Laporte Senior Global Practice Director: Ede Jorge Ijjasz‐Vasquez Practice Manager: Sylvie Debomy Task Team Leader: Sabine W. Beddies
ABBREVIATIONS AND ACRONYMS
ACVDT Agency for Sustainable Development and Territorial Development (Agence du Cadre de Vie pour le Développement du Territoire) AFD French Development Agency (Agence française de développement) BOM Build Operate Maintain CBA Cost Benefit Analysis CPF Country Partnership Framework ESIA Environmental and Social Impact Assessment ESMF Environmental and Social Management Framework ESMP Environmental and Social Management Plan FADeC Intergovernmental Fiscal Transfer System to Local Governments (Fonds d'Appui au Développement des Communes) FM Financial Management GBV Gender-Based Violence GDP Gross domestic product GIS Geographic Information System GoB Government of Benin GRM Grievance Redress Mechanism GRS Grievance Redress Service IDA International Development Association IPF Investment Project Financing ITCZ Inter-Tropical Convergence Zone LG Local Government MCVDD Ministry of Sustainable Development and Territorial Development (Ministre du Cadre de Vie et du Développement Durable) MEF Ministry of Economy and Finance MOD Delegated Contract Management (Maitre d’Ouvrage Délégué) O&M Operations and Maintenance OSR Own Source Revenues PAG Government’s Action Program (Programme d’Action du Gouvernement) PAPC Cotonou Stormwater Program (Programme d’Assainissement Pluvial de la Ville de Cotonou) PAURAD Benin Cities Support Projet PAVIC Sanitation Project for Cotonou City PCN Project Concept Note PDNA Post-Disaster Needs Assessment PDO Project Development Objective PEFA Public Expenditure and Financial Accountability PFM Public Financial Management PGUD Decentralized City Management Project PIM Project Implementation Manual PIU Project Implementation Unit PPSD Project Procurement Strategy for Development PUGEMU Benin Emergency Urban Environment Project RAP Resettlement Action Plan RPF Resettlement Policy Framework SDR Special Drawing Rights
STEP Systematic Tracking of Exchanges in Procurement TA Technical Assistance VfM Value for Money WAEMU West African Economic and Monetary Union WB World Bank
The World Bank Benin - Stormwater Management and Urban Resilience Project (P167359)
TABLE OF CONTENTS
DATASHEET ...... 1 I. STRATEGIC CONTEXT ...... 6 A. Country Context ...... 6 B. Sectoral and Institutional Context ...... 7 C. Climate Change vulnerability context ...... 9 D. Relevance to Higher Level Objectives ...... 14 II. PROJECT DESCRIPTION ...... 15 A. Project Development Objective ...... 15 B. Project Components ...... 15 C. Project Beneficiaries ...... 19 D. Results Chain ...... 19 E. Rationale for World Bank Involvement and Role of Partners ...... 20 F. Lessons Learned and Reflected in the Project Design ...... 21 III. IMPLEMENTATION ARRANGEMENTS ...... 23 A. Institutional and Implementation Arrangements ...... 23 B. Results Monitoring and Evaluation Arrangements ...... 24 C. Sustainability ...... 24 IV. PROJECT APPRAISAL SUMMARY ...... 24 A. Technical, Economic and Financial Analysis ...... 24 B. Fiduciary ...... 25 C. Safeguards ...... 27 V. KEY RISKS ...... 30 World Bank Grievance Redress ...... 31 VI. RESULTS FRAMEWORK AND MONITORING ...... 32 ANNEX 1: IMPLEMENTATION ARRANGEMENTS AND SUPPORT PLAN ...... 41 ANNEX 2: TECHNICAL ANNEX ...... 54 ANNEX 3: ECONOMIC AND FINANCIAL ANALYSIS ...... 67 ANNEX 4: MAP 44204 ...... 70
The World Bank Benin - Stormwater Management and Urban Resilience Project (P167359)
DATASHEET
BASIC INFORMATION BASIC INFO TABLE Country(ies) Project Name
Benin Benin ‐ Stormwater Management and Urban Resilience Project
Project ID Financing Instrument Environmental Assessment Category
Investment Project P167359 A‐Full Assessment Financing
Financing & Implementation Modalities
[ ] Multiphase Programmatic Approach (MPA) [ ] Contingent Emergency Response Component (CERC)
[ ] Series of Projects (SOP) [ ] Fragile State(s)
[ ] Disbursement‐linked Indicators (DLIs) [ ] Small State(s)
[ ] Financial Intermediaries (FI) [ ] Fragile within a non‐fragile Country
[ ] Project‐Based Guarantee [ ] Conflict [ ] Deferred Drawdown [ ] Responding to Natural or Man‐made Disaster
[ ] Alternate Procurement Arrangements (APA)
Expected Approval Date Expected Closing Date
23‐May‐2019 30‐Sep‐2025
Bank/IFC Collaboration
No
Proposed Development Objective(s)
The proposed Project Development Objective is to reduce flood risks in selected areas of Cotonou and strengthen urban resilience management and capacity at the city level.
Components
Component Name Cost (US$, millions)
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The World Bank Benin - Stormwater Management and Urban Resilience Project (P167359)
Component 1: Stormwater drainage investment and community engagement for 93.80 flood risk reduction and climate change adaptation
Component 2: Strengthening urban resilience management and capacity 1.75
Component 3: Project management, monitoring and evaluation 4.45
Organizations
Borrower: Government of Benin Implementing Agency: Ministère du Cadre de Vie
PROJECT FINANCING DATA (US$, Millions)
SUMMARY‐NewFin1
Total Project Cost 102.32
Total Financing 102.32
of which IBRD/IDA 100.00
Financing Gap 0.00
DETAILS‐NewFinEnh1
World Bank Group Financing
International Development Association (IDA) 100.00
IDA Credit 100.00
Non‐World Bank Group Financing
Counterpart Funding 2.32
Borrower/Recipient 2.32
IDA Resources (in US$, Millions)
Credit Amount Grant Amount Guarantee Amount Total Amount National PBA 100.00 0.00 0.00 100.00
Total 100.00 0.00 0.00 100.00
Expected Disbursements (in US$, Millions)
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The World Bank Benin - Stormwater Management and Urban Resilience Project (P167359)
WB Fiscal Year 2019 2020 2021 2022 2023 2024 2025 2026
Annual 0.00 6.64 12.73 17.80 19.40 21.10 20.09 2.24
Cumulative 0.00 6.64 19.37 37.17 56.57 77.67 97.76 100.00
INSTITUTIONAL DATA
Practice Area (Lead) Contributing Practice Areas Social, Urban, Rural and Resilience Global Environment & Natural Resources, Water Practice
Climate Change and Disaster Screening This operation has been screened for short and long‐term climate change and disaster risks
Gender Tag
Does the project plan to undertake any of the following?
a. Analysis to identify Project‐relevant gaps between males and females, especially in light of Yes country gaps identified through SCD and CPF
b. Specific action(s) to address the gender gaps identified in (a) and/or to improve women or Yes men's empowerment
c. Include Indicators in results framework to monitor outcomes from actions identified in (b) Yes
SYSTEMATIC OPERATIONS RISK‐RATING TOOL (SORT)
Risk Category Rating
1. Political and Governance Moderate
2. Macroeconomic Moderate
3. Sector Strategies and Policies High
4. Technical Design of Project or Program High
5. Institutional Capacity for Implementation and Sustainability High
6. Fiduciary Substantial
7. Environment and Social High
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The World Bank Benin - Stormwater Management and Urban Resilience Project (P167359)
8. Stakeholders Substantial
9. Other
10. Overall High
COMPLIANCE
Policy Does the project depart from the CPF in content or in other significant respects? [ ] Yes [✓] No
Does the project require any waivers of Bank policies? [ ] Yes [✓] No
Safeguard Policies Triggered by the Project Yes No
Environmental Assessment OP/BP 4.01 ✔
Performance Standards for Private Sector Activities OP/BP 4.03 ✔
Natural Habitats OP/BP 4.04 ✔
Forests OP/BP 4.36 ✔
Pest Management OP 4.09 ✔
Physical Cultural Resources OP/BP 4.11 ✔
Indigenous Peoples OP/BP 4.10 ✔
Involuntary Resettlement OP/BP 4.12 ✔
Safety of Dams OP/BP 4.37 ✔
Projects on International Waterways OP/BP 7.50 ✔
Projects in Disputed Areas OP/BP 7.60 ✔
Legal Covenants
Sections and Description No later than one hundred eighty (180) days after the Effective Date, or any other date as agreed by the Association, the Recipient, through the Ministère du Cadre de Vie et du Développement Durable (“MCVDD”), shall enter into an agreement with the Municipality of Cotonou, in form and substance satisfactory to the Association, describing, inter alia, the functioning, financing and Performance Assessment of the O&M Mechanism for the stormwater drainage network in Cotonou Basins (“Framework Partnership Agreement”).
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The World Bank Benin - Stormwater Management and Urban Resilience Project (P167359)
Sections and Description No later than thirty (30) months after the Effective Date, or any other date as agreed by the Association, the Recipient shall carry out a Performance Assessment of the O&M Mechanism, including the assessment of the Municipality of Cotonou in achieving specific performance targets, as described in the Framework Partnership Agreement. Without limitation to the provisions set forth in Section I.E.3 of this Schedule, no civil works under Part A.1 for Basin AAc shall commence, until and unless the Recipient has carried out the Performance Assessment of the O&M Mechanism, in a manner acceptable to the Association.
Sections and Description No later than seven (7) days after the Effective Date, or any other date as agreed by the Association, the Recipient shall, and shall cause the Project Implementing Entity to adopt the Project Implementation Manual, in accordance with the provisions set forth in Section I.D.1 of this Schedule and Section I.C.1 of the Schedule to the Project Agreement.
Conditions
Type Description Effectiveness The Subsidiary Agreement has been executed on behalf of the Recipient and the Project Implementing Entity and all actions necessary to ensure its effectiveness have been taken
Type Description Effectiveness The Project Agreement has been executed on behalf of the Project Implementing Entity and all actions necessary to ensure its effectiveness on behalf of the Project Implementing Entity have been taken.
Type Description Disbursement No withdrawal shall be made under Category (2) until and unless the Association has received satisfactory evidence that the Recipient has: (i) opened an Escrow Account in the Central Bank of West African States and; (ii) deposited in the Escrow Account the Counterpart Funding, in an amount of FCFA 1,358,646,361.
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The World Bank Benin - Stormwater Management and Urban Resilience Project (P167359)
I. STRATEGIC CONTEXT
A. Country Context
1. Benin is situated in West Africa along the Guinea Coast (latitudes 6-13° N). Stretching 672 km from north to south and running 124 km along the Gulf of Guinea nestled in the Atlantic Ocean. Burkina Faso and the Republic of Niger border Benin to the North, while the Federal Republic of Nigeria lies to the East, and the Republic of Togo is neighbor to the west. Benin is primarily flat, except for the Atacora Mountains rising along the northwestern border with the Republic of Togo. Two major river basins, the Niger and coastal basin, enrich the country with ample waterways. Of the 10 million people living in Benin, nearly 70 percent of the workforce earns a living through the agriculture sector, accounting for 32 percent of the gross domestic product (GDP). Cotton is the main export commodity, comprising about 25-40 percent of all exports. Re-export trade with Nigeria is also an important sector to the national economy, making up almost 20 percent of GDP.
2. Economic growth has been steady but too low to achieve sustainable poverty reduction. Benin is a low-income economy with a per capita income of US$829.8 in 20171. Real GDP grew on average by 4.2 percent annually during 2000–2016. Growth has accelerated slightly over the last five years (2012–2016) to around 4.9 percent and was estimated to reach 5.4 percent in 2017. Given rapid population growth (about 3.2 percent), average annual growth in GDP per capita was just over 1 percent for the period, below the Sub-Saharan African average and far below the best performing economies.
3. Growth in Benin has been reasonably inclusive, contributing to a marked decline in poverty between 2006 and 2015. World Bank (WB) estimates, using the international poverty line, show a decline in poverty from 61 percent to 50 percent2. Despite this decline, the absolute number of poor increased from 5.0 to 5.3 million people, because of the high rate of population growth. Inequality is moderate with a Gini index of 41 in 2015. Additionally, the poor are more exposed than average to the impact of floods which can be exacerbated by the effects of climate change3.
4. Benin’s climate is hot and humid. Northern Benin has a dry season and a wet season that are controlled by the movement of the Inter-Tropical Convergence Zone (ITCZ). The rainy season lasts from May-November when the ITCZ is in its northern position. The dry season is from December-March when the ‘Harmattan’ winds blow in from the northeast bringing air from the Sahara Desert. Southern Benin experiences two wet seasons differing in length and coinciding with the northern and southern passages of the ITCZ across the region. The longer rainy season occurs during April-July and the shorter one from September-November.
5. The Bank has been supporting Benin in infrastructure rehabilitation and environmental management since 1993, including the Urban Rehabilitation and Management Project (PRGU, P000097, 1993- 1998); and the first and second Decentralized City Management Project (PGUD-1, P035648, 2000-2004 and PGUD-2, P082725, 2006-2010) in Cotonou, Porto-Novo and Parakou and other cities . The proposed project is in line with the now closed Benin Emergency Urban Environment Project (PUGEMU, P113145) which aimed to improve infrastructure and mitigate the negative environmental impacts of floods in the Cotonou Agglomeration and increase Benin’s level of preparedness for future flooding. The PUGEMU also produced the 2015 Drainage Master Plan for the Cotonou Agglomeration, which GoB uses to make investment decisions for this proposed
1 WB national accounts data. 2 Official estimates present a different poverty trends with poverty falling from 37.5 percent in 2006 to 35.2 percent in 2010 and then increasing to 40.1 percent in 2015. This official trend is not used as it is based on noncomparable estimates of poverty (see SCD for details). 3 Based on the WB publication “Shock Waves: Managing the Impacts of Climate Change on Poverty.” https://openknowledge.worldbank.org/handle/10986/22787.
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The World Bank Benin - Stormwater Management and Urban Resilience Project (P167359)
project and sought to build on the foundation laid by previous projects for capacity building in municipal planning, implementation, and monitoring of basic municipal services. The proposed project is also in line with the active Benin Cities Support Project (PAURAD, P122950) which aims to increase access to urban services and improve urban management in selected cities of Benin, including in Cotonou, through provision of stormwater drainage infrastructure.
B. Sectoral and Institutional Context
6. Flooding reduces Benin’s economic potential, as serious flooding is a recurrent issue. On September 13, 2010 a catastrophic flooding event of historic proportions affected more than 680,000 people and 55 out of 77 municipalities in Benin4. Across Benin, the disaster caused 46 deaths, destroyed 50,000 homes, and left 100,000 people without shelter. It ruined crops, farmland, and livestock, and erased essential food stocks. The overall damages to infrastructure, agriculture and physical assets and economic losses were estimated at US$257 million, or to 2 percent of Benin’s GDP in 20105.
7. Flooding in Cotonou, the economic capital of Benin, is detrimental to the city’s inhabitants, as well as to the local and national economy. According to the latest population survey (2013), Cotonou’s total population is 679,012 inhabitants with a density of 8,595 people per km2 against the national average of 87 people per km2. Regarding built-up area, Cotonou grew considerably from 1975 with 90 km2 to 2014 with 172.7 km2. Today more than 60 percent of the city’s total land cover is comprised of built-up area characterized by artificial structures and impervious surfaces. The evolution of Cotonou’s urbanization and the lack of planning have resulted in: (i) the extension of neighborhoods, mostly without any urban planning and leading to the disproportionate expansion of the city and a complete transformation of its initial appearance; most of these neighborhoods lack adequate basic urban infrastructure and services; (ii) the informal settlement of populations because of the delay in preparing the urban cadaster and/or lack of enforcement of adequate procedures, thus creating serious distortions in the urban framework; (iii) the occupation of the natural outlets and natural waterways hence the aggravation of recurring flood problems; (iv) rapidly saturated stormwater drainage infrastructure that faces increasing density of traffic and land use; and (v) a rising groundwater table due to the water infiltration from the sea, Lake Nokoué and liquid waste.
8. Cotonou’s current infrastructure networks lack capacity to mitigate annual flooding. Most of the city’s unpaved roads, 1,050 km, are not properly maintained and have no proper drainage and 50 percent of the primary stormwater collectors and almost all the secondary and tertiary collectors are insufficient in size and number to mitigate annual flooding in today’s context. Despite efforts to rehabilitate the infrastructure networks, vulnerability is increasing because of poorly sanitized new construction spaces built on existing networks. One of the main causes of floods, and drainage difficulties in Cotonou, is its morphology and the nature of its soil. Resurgence problems in low areas, due to changes in water levels of the Lake Nokoué, contribute significantly to poor infiltration of rainwater, which increases the risk of flooding. Urbanization and road paving without drainage is contributing to an increase in stormwater runoff. Finally, in the flooded areas where the poor population tends to live, about 54,000 m3 of household waste annually backfill permanently flooded land areas with severe health consequences and contributing to increasing the severity of flood events.
9. The carrying capacity of existing drainage systems is reduced by natural and man-made obstructions. The combination of soil sedimentation and solid waste dumped in drainage infrastructure contributes to the clogging
4 Floods are the most important and recurring disaster in Benin, and they affect the whole country. 5 The 2011 United Nations Post-Disaster Needs Assessment (PDNA) was prepared in the aftermath of the flood disaster by the GOB and a team composed of the WB, UN System, and European Commission - with support from the Global Facility for Disaster Reduction and Recovery (GFDRR) – and (i) assessed the causes, losses and damages of the 2010 flood; (ii) determined its impact at the macroeconomic and poverty levels; (iii) estimated the short and long-term needs by sector; and (iv) suggested a strategy to mitigate future floods.
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The World Bank Benin - Stormwater Management and Urban Resilience Project (P167359)
of the drainage system and blocking storm water run-off, which is often exacerbated by frequent lack of proper waste management systems and operation. Illegal dumping of household waste is a major challenge. The rate of evacuation, amounting to more than 750 tons of solid waste per day in urban areas of Benin (Cotonou, Parakou, Porto Novo), remains low. Of a total of 39 percent collected, only 8 percent is transported and processed6.
10. The contamination of surface and groundwater can increase the risks of water-borne diseases. During past floods, contamination of surface and groundwater resulting from a mix of runoff from rain with latrines and the contents of septic tanks and municipal wastes gave rise to water-borne diseases, notably cholera, putting the entire population affected by the flood as well as downstream populations at risk.
11. The frequent lack of adequate maintenance of drainage infrastructure by local governments contributes to drainage system obstruction. Benin’s legal framework (Law 2009-17 of August 13, 2009 on the modality of inter-communality in the Republic of Benin)) mandates that local government (LGs) assume responsibility for all aspects of drainage provision within their jurisdiction, including: construction and rehabilitation, and operation and maintenance (O&M) of the drainage system. In the case of Cotonou, this includes cleaning of drainage channels twice per year before the semestrial flood season. Canal cleaning is usually outsourced by the LG to non-governmental organizations (NGOs) and/or the private sector or is done by canal residents on a voluntary basis. However, in many cases, canals in Cotonou are not cleaned adequately, becoming clogged and contributing to flooding and health issues. For retention ponds, the municipality itself undertakes the maintenance functions twice a year, but performance has been inadequate.
12. Cotonou’s O&M system has proven to be suboptimal mainly because of lack of funding. According to the law (Law 2009-17), Cotonou, like other LGs in Benin, can receive an earmarked operating grant from central government to cover, in part, the O&M costs it incurs. The O&M operating grant is channeled through the Fonds d'Appui au Développement des Communes (FADeC) – the standard intergovernmental fiscal transfer system of funds from the center to the local governments in Benin (see Annex 2 for further O&M funding details). However, in the past five years7, Cotonou has received the O&M operating grant only once in 2018 and only as a one-time emergency injection of funds (CFA 1.55 billion / US$2.6 million equivalent)8. As a result, the municipality has been funding its O&M activities from its limited own source revenues (OSRs). The poor resource mobilization and the generally limited OSRs of the Cotonou municipality, translate into three major challenges as regards O&M of the drainage system: (i) low-level of frequency and limited coverage of sporadic maintenance activities possible with the available budget; (ii) inadequate and/or obsolete equipment available to the municipality for O&M of drainage infrastructure; and (iii) the inability of the municipality to conclude multi-year contracts with O&M service providers due to uncertain funding levels, and legal constraints in the budget system which prevent the municipality from outsourcing O&M on a multi-year basis that would reduce procurement efforts and lower costs.
13. To date, little is known about affordability, reliability, or efficiency of O&M services in Cotonou. So far, there has not been any affordability study associated with the implementation of the stormwater drainage program. There also exists no asset register or asset management plan at the local level. The municipality estimates that the financial resources needed to ensure adequate maintenance of the drainage system to be four times more than what it currently can spend. The Government of Benin (GoB) recognizes that O&M of the stormwater drainage system will not only require significant and continuous budgets but also adequate capacities and incentives to be in place for the municipality to perform its mandated functions. The challenge remains for the GoB to plan and secure the needed funds, capitalizing on the positive features of the decentralized fiscal systems that it has put in place.
6 Report No: 60301-BJ PUGEMU 7 Period for which data is available. 8 A 2017 procedural problem, related to an unsuccessful procurement process led by the municipality, gave rise to contractual issues with service providers and resulted in the MCVDD deciding to include a one-off transfer of funds to the LG. As a transitional measure, until the roll-out of the Solid Waste Program, guidelines were also given so that the LG can establish short-term renewable contracts.
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The World Bank Benin - Stormwater Management and Urban Resilience Project (P167359)
14. Given that tackling the issue of drainage in Cotonou is a national priority for the GoB, a draft Framework Partnership Agreement (FPA, “Convention Spécifique de Partenariat Etat-Commune”) was recently prepared by the GoB, as part of the Cotonou stormwater drainage program (Programme d’assainissement pluvial de la ville de Cotonou (PAPC)), to regulate the investment implementation arrangements and O&M responsibilities between the municipality of Cotonou and the Ministry of Sustainable Development and Territorial Development (Ministre du Cadre de Vie et du Développement Durable, MCVDD). In this draft FPA, provisions are made such that (i) the municipality would be responsible for preparing a multi-year maintenance and investment plan –to be submitted to the Ministry no later than July 30th of each year; (ii) a financing scheme guaranteeing sufficient amounts for the municipality to carry out O&M activities, not excluding the possibility of providing transfers to the Municipality through, for example, the FADeC conditional grant window; and (iii) the progress towards achieving performance indicators would be reported and assessed.
15. The GoB addresses flooding through its Action Program and flagship interventions. Benin’s Presidential elections in March 2016 marked a transition to new leadership, and the new Government vowed to establish a right-sized administration based on competence. In October 2016, the Council of Ministers adopted the GoB’s Action Program (Programme d’Action du Gouvernement – PAG), 2016–2021 worth FCFA 9,039 billion (US$15.3 billion or 170 percent of GDP) to develop the potential for higher domestic value-added activities, identified as major potential sources of growth. The GoB’s PAG is a significant investment program, including 45 flagship programs in key economic sectors, some of which are being funded through public-private partnerships. Some of these flagship programs are led by agencies overseen directly by the President’s office9. Providing stormwater infrastructure for the city of Cotonou is a priority for the GoB as expressed in its PAG No 3910, and thus is one of GoB’s flagship programs, called Cotonou Stormwater Program (Programme d’Assainissement Pluvial de la Ville de Cotonou, PAPC).
16. The WB supports GoB in the implementation of its Cotonou Drainage Flagship Program (Programme d’ Assainissement Pluvial de la Ville de Cotonou, PAPC), in coordination with five other donors. The January 2018 multi-donor roundtable marked the start of the Cotonou PAPC, which aims to alleviate the recurrent flooding problem in Cotonou by reducing the city’s vulnerability to floods by rehabilitating or constructing new drainage infrastructure in 34 basins in the city of Cotonou; constructing socio-economic infrastructure and strengthening the economic and social development of Cotonou. To implement its PAPC, the GoB determined, in early 2018, the total project costs as US$404 million and mobilized financing partners to cover these costs; specifically, six financing partners11 pledged to support the GoB with a total of US$434 million. With the proposed project, the WB finances works in 3 of the 34 basins, and supports a systemic, holistic approach to Cotonou’s drainage network, both in terms of the drainage system, as well as to the individual basins.
C. Climate Change vulnerability context
17. Throughout West Africa, including Benin, floods were increasing in frequency and intensity. Increasing variability in the rainy season has been observed and characterized by a shortening of the rainy season. In the interior of Benin, rainfall has decreased whereas the coastal zone has seen an increase. Drier and rainier periods are detected over 1960-2006; the early 1960s to 1980s saw drier years than the 1980s to present. Projections for 1- and 5-day rainfall maxima tend towards increases, particularly in July-September12. According to the WB
9 Programme d’Actions du Gouvernement PAG (2016-2021) 10 PAG secteur Cadre de Vie, numéro 39 : Assainissement Pluvial de Cotonou 11The Islamic Development Bank (IsDB) pledged US$100 million, the African Development Bank (AfDB) US$50 million, the West African Development Bank (BOAD) will contribute US$75 million, the European Investment Bank (EIB) US$61 million, the French Development Agency (AFD) US$48 million, and the WB US$100 million. 12 WB Climate Change Knowledge Portal
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The World Bank Benin - Stormwater Management and Urban Resilience Project (P167359)
Climate Change Knowledge Portal, climate change is expected to impact rainfall patterns in Benin. Rainfall during January-March and April-June in the southernmost areas of Benin is expected to decrease and to increase during the periods July-September and October-December. These differences are due to changes in the movement and intensity of the ITCZ and in the timing and intensity of the West African Monsoon. Increasing variability in rainfall patterns could lead to adverse impacts on the environment, human health, and national economy are aggravated by the social context in which they occur. In rapidly growing cities, such as Cotonou, densely populated areas in low- lying, flood-prone zones are inundated on a regular basis.
18. In Benin, climate change is likely to exacerbate the impacts of extreme weather, primarily since Cotonou has: (a) a long, low-lying coastline; (b) a shallow water table; (c) exposure to inundations, coastal erosion and sea level rise. The city is divided by a canal called Cotonou Lagoon which communicates between the lake Nokoué and the Atlantic Ocean. Cotonou is located on a complex of sandy coastlines and shallows between the Atlantic Ocean and Lake Nokoué. The slopes are generally weak, varying between 0 and 2.5 percent. This reduces the possibility of runoff, especially in the southern part of the city of Cotonou. In 2016, the French Development Agency, AFD, carried out a high-level climate change vulnerability analysis13 to map major climate-related risks that are likely to impact Benin and that will expose the vulnerabilities in the stormwater infrastructure sector. The major risk identified were: (i) rise in sea levels/coastal erosion; (ii) significant volatility in rainfall patterns; and (iii) increase of severity of floods.
19. Sea level rise is the main climate risk Cotonou is facing, with potential substantial impacts on coastal erosion. As a recent study highlights, in sub-Saharan Africa, coastal regions in Benin, along with Nigeria and Mozambique are amongst the most vulnerable to storm surge and sea level rise (Dasgupta et. al. 2009). Sea levels are projected to rise throughout the 21st century and to increase by 0.4 meter (low emissions scenario) to 0.7 meter (high emissions scenario) by year 2100 in Benin. The Beninese coast has been subject to rapid erosion in recent years due to climatic changes and anthropogenic factors. In the past 40 years, coastline retreat has averaged 10 meters annually14. Some areas have seen more than 500 meters of retreat in the last decades15. The phenomenon is expected to worsen with rising sea levels and new construction along the shoreline and the ports. Around 10 percent of today’s population in Cotonou is affected by coastal erosion.16. This erosion has destroyed dozens of homes and induced displacement for families across the coast. In the fourth arrondissement, industrial activities are particularly vulnerable to eroding alluvial sands. The coastline is projected to retreat nearly 1,000 meters between 1963 and 2025 if there is no intervention17.
20. Significant volatility in rainfall patterns. Cotonou experiences about 1,000 mm of rain per year across two rainy seasons. Many of the city’s denser areas lie at an elevation of less than 3 meters above sea level. Heavy rainfall and coastal storms have induced dangerous erosion and flooding for the city and its inhabitants, and rising seas and continued urban development are likely to intensify the effects of these hazards. Consequently, climate change and rapid urbanization has exacerbated vulnerability, as Cotonou is unprepared to deal with increased flooding due to sea level rise and coastal erosion (refer to maps below for more details).
13 Analyse de la Vulnérabilité au Changement Climatique de Cotonou, 2016 14 Terradaily, 25 January 2008. Benin’s Cotonou - a city slowly swallowed by waves. Edwin, C., & Tuya, Y. (2014). State of the Environment and Policy Retrospective: 1972-2002. UNEP 15 Fairplay (date UNK). Benin battles coastal erosion. 16 Dossou & Glehouenou-Dossou, 2007. 17 Terraydaily, 2008.
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The World Bank Benin - Stormwater Management and Urban Resilience Project (P167359)
Figure 1: Histogram of reported flood events in Cotonou
Source: Flood Tags, 2018
21. The areas most seriously affected by floods are clearly seen in the maps below. In general, the critical flood zones are located along the lake and the Cotonou lagoon, and in the areas where altitudes are around 4 m above sea level. This corresponds to the 6th, 7th and 8th Arrondissements of Cotonou. Figure 2: Built‐up area exposed to river and rainwater flooding
The top map depicts the growth of city’s’ physical development within the administrative boundaries over three periods: (i) before 1975, (ii) 1975‐1990, and (iii) 1990‐ 2000.
The bottom map refers to the accumulated amount of built‐ up area exposed to both river and rainwater flooding. In Cotonou, approximately 20.5 percent of the accumulated built‐up area is located in a flood risk zone. The amount of built‐up area in a flood risk zone increased from 11 km2 in 1975 to 13.6 km2 in 2000. The impacts were most apparent in the 6th, 7th, 10th and 13th arrondissements.
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The World Bank Benin - Stormwater Management and Urban Resilience Project (P167359)
Figure 3: Infrastructure assets exposed to river and rainwater flooding
The top map depicts the geographic distribution of primary roads, schools and hospitals in the city.
The bottom map refers to the percentage of infrastructure assets exposed to both river and rainwater flooding. In Cotonou, the concurrence of rainwater and river flooding can aggravate their (individual) potential damages. It is a case where intense rainfalls contribute to generate pluvial flooding – a condition that is exacerbated by the stream and river channels whose ability to channel water out of the city area has been diminished. As a result, approximately 23 km of major roads, 8 percent of the total number of schools and 16 percent of the total number of hospitals are located in a flood risk zone –particularly in the 6th, 10th and 12th arrondissements.
22. Increase of severity of floods with Cotonou experiencing damaging flooding every year. Neighborhoods surrounding Lake Nokoué are usually the worst hit by rainy season floods when rainfall induces overflows from the Ouémé River and the lake. These rising water levels devastated Cotonou in 2010, when heavy rains and floods inundated much of the city, notably the 1st, 2nd, 3rd, 6th and 9th arrondissements18. The 2010 floods left 100,000 people displaced and over 40 dead from drowning or collapsing buildings19. While most statistics gathered from the event cover the country at large, the majority of damage and displacement is said to have occurred in Cotonou itself. The flooding and subsequent standing water were also linked to over 800 cases of cholera – at least 60 ending in mortality – and thousands of malaria and diarrhea cases20. Specifically, flooding in Cotonou is complex due to its geological and hydrological characteristics. In general, one or a combination of four types of floods occurs in Cotonou (i) flooding caused by a water rise in the lake Nokoué; (ii) urban flooding due to intense and short rainfall periods causing the saturation of drainage networks; (iii) flooding due to the groundwater increase and saturation; and (iv) coastal flooding due to storm surge/ high tide. The concurrence of these flood types can aggravate their (individual) potential damages – i.e., urban flooding is exacerbated by stream and river channels whose ability to channel water out of the city has diminished. Further to this, coastal storms have brought flooding to the southern districts of Cotonou and are expected to worsen with changing climate patterns. Rising waters have been known to inundate neighborhoods along the coast and to damage housing, tourism properties, and transportation infrastructure21. As with precipitation-induced flooding, coastal flooding has been linked to cholera outbreak and displacement22.
23. Future flooding scenarios are expected to impact drainage systems. Given current knowledge, climate change will have a negative effect on the storm drain networks. From a quantitative point of view, the disturbances
18 International Charter, 12 October 2010. Flood in Cotonou Benin. 19 VOA News, 18 October 2010. Flooding in Benin kills 43, leaves 100,000 homeless. 20 Ouikotan, R. B., van der Kwast, J., Mynett, A., & Afouda, A. (2017, May). Gaps and challenges of flood risk management in West African coastal cities. In World Water Congress XVI, International Water Recourses Association (IWRA), Cancun, Quintana Roo, Mexico (Vol. 29, pp. 1-12). BBC News, 12 November 2010. Cholera fears in Benin’s flooded city of Cotonou. 21 IRIN, 2 September 2008. Coastal erosion threatening to wipe out parts of Cotonou. 22 IRIN, 3 September 2008. Half million potential flood victims: WHO.
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The World Bank Benin - Stormwater Management and Urban Resilience Project (P167359)
could be noticeable by 2050: flow rates are expected to increase by +13 to +21 percent. The impacts of urbanization will add to the problem. The city is today densely urbanized, and the opportunities for expansion are reduced with only limited lowlands remaining. Most of the road network is unpaved (about 1,050 km). These surfaces alone represent about 24 percent of the city's surface. The increase of runoff will be proportional to the increase of impermeable surfaces.
Flood mitigation in Cotonou Cotonou experiences about 1,000 mm of rain annually across two rainy seasons (from April to July, and a minor wet season from mid-September to November). Many of the city’s denser areas rest at an elevation of less than three meters above sea level. Heavy rainfall and coastal storms have induced dangerous erosion and flooding for the city and its inhabitants, and rising seas and continued urban development are likely to intensify the effects of these hazards. The causes of floods, waterlogging and drainage congestion in vulnerable neighborhoods of Cotonou are: a) Flooding caused by water rise in the lake Nokoué due to the runoff coming from the North and flooding the low zones of Cotonou; b) Urban flooding due to intense and short rainfall periods causing the saturation of drainage networks; c) Inadequate capacities of drainage channels and outfall structures; d) The rise in water table and saturation; e) Coastal flooding due to storm surge/high tide; f) Inadequate utilization of flood storage potential in the retention ponds within the upper catchment; g) Unauthorized construction in some channels’ floodplain of the lake and surrounding wetlands h) Solid waste dumping in the primary, secondary, and tertiary networks of the drainage infrastructure.
Several exogenous factors, such as the unpredictable impacts of climate change or uncontrolled urbanization, tend to affect natural hazard management efforts. This leads specialists, especially hydrologists, to argue that "Zero risk" does not exist. Therefore, it is more objective to talk about ‘reducing flood risks’ rather than ‘eliminating flood risks’. Flood risks can be significantly reduced through a combination of adequate infrastructure investments, policies and legal frameworks, insurance mechanisms and systems, as well as raising awareness of the population on risk culture raising through information and education activities.
Hence, a pragmatic flood management approach is required to moderate the frequency and extent of flooding. Measures to alleviate the scale and frequency of flooding in Cotonou, without further increasing flooding elsewhere, will require six principles (adapted from the Houston flood mitigation strategy23), transcending a mere flood-lowering infrastructure focus: 1. Communicating about flood risks and providing transparency about decision-making processes is central to ensuring that the public can make informed decisions about personal safety and risk reduction; 2. Balance structural and non-structural strategies. Flooding can be mitigated by building drainage infrastructure and green infrastructure, land use policies, restoration of natural systems, site-specific strategies, buyouts, relocation, floodproofing and elevation. The best flood mitigation strategy in each basin will be a combination of approaches; 3. Ensure flood mitigation for various causes of flooding. Floods happen not just because of rising waters in Lake Nokoué or the Ouémé River but also because of inadequate neighborhood drainage systems and overland sheet flow; 4. Raise awareness amongst communities for improved waste management. The drainage system is often being used as a sewer and for solid waste disposal, obliterating the drainage capacity. Households in the vicinity of the infrastructure will be encouraged to adopt new practices and use the waste collection system. 5. Work with the best available science to guide flood mitigation work, using a multidimensional risk-based approach rather than relying only on mapped floodplains to guide decisions; 6. Relocation in compliance with environmental and social standards that guarantee no economic activity loss, access to basic services and job opportunities. Populations settled in flood-prone areas and near water outlets should be relocated to less affected areas. This requires a careful analysis of the current conditions of all households, and consideration of the potential impacts of said relocation, and solutions guaranteeing no economic activity loss as well as access to basic services and job opportunities.
23 “Strategies for Flood Mitigation in Greater Houston, Edition 1”, April 5, 2018, Greater Houston Flood Mitigation Consortium.
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The World Bank Benin - Stormwater Management and Urban Resilience Project (P167359)
D. Relevance to Higher Level Objectives
24. The proposed project contributes to the World Bank Group’s twin goals of eliminating extreme poverty and boosting shared prosperity by reducing flood vulnerability and protecting against loss of assets of inhabitants of the city of Cotonou. The project aims to help reduce flood risks in selected areas of Cotonou and strengthen urban resilience planning and capacity at the city level by integrating climate change adaptation across its components. Specifically, the project aims to improve the living conditions of project beneficiaries by reducing their flood risks, their vulnerability and risk of poverty by protecting against loss of assets. The project also aims to contribute to shared prosperity through improved management of municipal resources, infrastructure, and flood- prone areas.
25. This project intends to address climate vulnerability and enhance resilience to climate change and geophysical hazards by combining structural and non-structural components. The infrastructure constructed under the project will consider the vulnerability to climate change and disaster risks by factoring in climate effects in the design, including nature-based solutions that will contribute to adaptation and mitigation. Flood control structures will be built to higher levels and with more resilient materials and designed to withstand repeated and more extreme floods, in designing flood control structures, constructing back-up structures to provide services in case of failure were considered. In addition, design standards incorporated sea level rise projections, as well as the hydrology and physiography of the watershed to minimize or avoid unintended adverse impacts on adjacent basins. Finally, the project supports communication about flood risk and climate change to project beneficiaries to ensure that they can make informed decisions about personal safety and risk reduction. Climate Co-Benefits regarding adaptation are assessed as 100 percent across all three components.
26. The proposed project is well aligned with the World Bank Group’s Country Partnership Framework (CPF) for the period FY19-FY23. Specifically, the proposed project will directly contribute to the CPF’s Focus Areas 3: Increasing Resilience and Reducing Climate-Related Vulnerability, where it is mentioned as ‘The Greater Cotonou Urban Drainage and Sanitation project’. The proposed design is also consistent with the conclusions of the Performance and Learning Review of the CPS (Report No. 106266 dated August 30, 2016) for the period FY13- 17
27. The proposed project directly supports the implementation of the GoB’s Action Plan (PAG- Programme d’Action du Gouvernement), as well as its Flagship Drainage Program, and is aligned with the GoB’s Flagship Programs on Road Paving and on Solid Waste. Specifically, the proposed project finances -in partnership with five financing partners -, the implementation of the GoB’s flagship Cotonou Stormwater Program (Programme d’Assainissement Pluvial de la Ville de Cotonou, PAPC). The WB’s contribution to the PAPC financing is US$100 million24. Additionally, the proposed project is closely aligned with the GoB’s National Solid Waste Management Program (Projet de Modernisation de la Gestion des Déchets Ménagers dans le Grand Nokoué), and its National Roads Paving Program (Projet Asphaltage de la Ville de Cotonou).
24 The PAD refers to the Government’s PAPC as the “Program”, and to the Bank’s financed operation as the “Project”.
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The World Bank Benin - Stormwater Management and Urban Resilience Project (P167359)
II. PROJECT DESCRIPTION
A. Project Development Objective PDO Statement
28. The proposed Project Development Objective is to reduce flood risks in selected areas of Cotonou and strengthen urban resilience management and capacity at the city level 25.
PDO Level Indicators
Reduced flood risks i. Cotonou residents in selected areas benefiting from decreased risk of recurring flooding (number) ii. Area of flood-prone zones under integrated flood risk management approaches (ha)
Strengthen urban resilience management and capacity iii. Designated entity and/or entities have the financial and technical capacities to execute O&M of city-wide drainage infrastructure on a regular basis (Yes/No) iv. Constructed and/or rehabilitated drainage infrastructure cleaned semi-annually (percentage)
B. Project Components
29. The project supports the GoB in the implementation of its flagship Drainage Program. Specifically, the project will implement focused interventions that operationalize the integrated flood risk management approach to contribute to enhanced urban resilience and climate change adaptation at three levels – (i) the community, (ii) the city, and (iii) the central government level. The project will blend structural and non-structural interventions in select basins at the community level (Component 1) and will combine these with institutional strengthening interventions at the city and central government levels (Component 2). The project will also consider the dynamics of WB investments with those of the GoB and other financing partners, especially the National Solid Waste Program and the National Roads Paving Program.
30. Specifically, the project takes a spatial and systems approach to contribute to a more effective and sustainable drainage system. To that end, the project will: (i) increase the carrying capacity of the drainage system through provision of infrastructure, and community engagement in select basins, while the proposed data-sharing platform will support all stakeholders with drainage information; (ii) enhance the management of flood zones through provision of infrastructure and non-infrastructure investments through concerted efforts by the affected communities, as well as municipal and central government stakeholders; (iii) strengthen urban resilience and climate adaptation management capacity at the basin, municipal and central government levels to help develop better preventive and risk-mitigation measures against floods, including hydrological modeling, tailored civil works, as well as solid waste interventions that complement the GoB’s national program.
31. Through this project, GoB seeks to address some of Cotonou’s flooding challenges by notably factoring climate-proofing into the project design. Using the 2015 Drainage Master Plan for the Cotonou Agglomeration26 to
25 The project acknowledges that flood risks cannot be eliminated, only reduced. Based on the GFDRR definition of urban resilience: “The ability of a system, entity, community, or person to adapt to a variety of changing conditions and to withstand shocks while still maintaining its essential functions", the project defines urban resilience as ‘improved municipal management of resources, infrastructure, and flood-prone areas.’ 26 The Benin PUGEMU (P113145) produced a Drainage Master Plan for the Cotonou Agglomeration in June 2015. The drainage master plan recommended the use of a 2-year return period for storm gutters and 5 years for primary drainage networks this project goes beyond these
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The World Bank Benin - Stormwater Management and Urban Resilience Project (P167359)
guide its investment decisions in the sector, the GoB distributed the 34 drainage basins in the city of Cotonou among the six financing partners who pledged to fund the implementation of PAPC to cover the financing needed on the 34 drainage basins in the city of Cotonou. The basin allocation criteria were based on the following: (i) Location of previous work funded by the financing partner for continuation under PAPC; (ii) the matching of the cost of the selected basin works to the total amount pledged by the respective donor27; and (iii) location of road rehabilitation projects (projets d’asphaltage) in the various areas of the City of Cotonou. The WB was assigned the three basins Y, Pa 3 and AAc, where it had previously worked under PUGEMU28. While the proposed project is an integral part of the recommendations in the Drainage Master Plan, it will be implemented with other non-structural activities for an integrated flood risk management approach, such as community engagement and urban resilience capacity building.
32. Total project cost for this proposed operation is US$102.32million, comprising an IDA credit of US$100 million and a GoB counterpart funding of US$2,324,65829, to be implemented through three components:
Component 1: Stormwater Drainage Investment and Community Engagement for Flood Risk Reduction and Climate Change Adaptation (EUR 83.58 million; US$93.80 million equivalent)
33. The component will be implemented through two subcomponents:
34. Subcomponent 1.1. Construction of drainage infrastructure and related works in Cotonou’s Basin Y, Basin Pa3 and Basin AAc (US$93.30 million). The subcomponent will finance the construction of new, and rehabilitation of existing, primary drainage infrastructure (such as channels gabions/ reno mattresses and retention facilities) and secondary drainage infrastructure in certain watersheds to alleviate flooding– both minor and major drainage systems will convey the excess runoff based on a 10-year storm event30 (for detailed information see the Technical Annex 2) in Cotonou’s basin Y (135 h, southeast of the city, flowing into the Lagoon that links Lake Nokoué with the Atlantic Ocean), basin Pa3 (116 ha, northwest, close to Lake Nokoué), and AAc (680 ha, southwest, close to the Atlantic Ocean). The drainage infrastructure will be designed to be resilient, considering future climate scenarios, such as rising sea levels and variations in rainfall patterns. In total, under this component: 28.07 km of drains and storm gutters will be constructed, 7.27 km of gabions/reno mattresses will be constructed, and three retention ponds for a total storage volume of 431,698 m3 will be rehabilitated to reduce impacts of cyclical floods and the occurrence of vector-borne (malaria) and water-borne diseases for over 168,000 beneficiaries. The subcomponent will also fund the temporary operation of emergency pumping during civil works; large pumping stations with complex and costly O&M, however, will be avoided due to the gravity-based drainage system promoting natural evacuation of surface water. Additionally, the subcomponent will finance community equipment for flood prevention, mitigation, and climate change adaptation to contribute to enhanced management of flood prone areas (zones non-aedificandi) in select WB-financed basins. There will be a specific focus on the participation of women to ensure the interventions help alleviate flood impacts on women and most vulnerable groups31. The recommendations and is based on a 10-year return period in the design. 27 The IDB pledged US$100 million, the AfDB US$50 million, the West African Development Bank US$75 million, the EIB US$61 million, AFD 48 million, and the WB US$100 million. 28 Benin PUGEMU (P113145) 29 The Government confirmed the exact amount of counterpart funding as FCFA 1,358,646,361 (USD 2,324,658 equivalent), as the sum of the budget of the three Resettlement Action Plans (RAPs), that the Government will provide for the implementation of the three RAPs in the three basins of Y, Pa3 and AAc financed by the WB. 30 In basin Y, the project will construct (i) a 955 m, 450mm x 160mm storm drain with an outlet to the lagoon, (ii) pave streets No. 4.028 - 4.026, No. 4.020 and 4.012 for a total of 1,595 meters with concrete interlocks, and (iii) construct side gutters that will discharge into the primary storm drain. In basin Pa3, the project will (i) rehabilitate a retention basin (104,771m3) and construct gabions/reno mattresses of 890m, placed on the upstream part of Pa3 located between 10,224 Street and 10,079 Street. (ii) pave and drain several streets, (iii) construct a 470 m storm drain 2 x 1.25m x 1.50m (starting at north-west fence of Communauté Electrique du Benin along street No. 10.123, and ending on street No. 10.224), and (iv) construct a box culvert 2 x 2.00m x 2.00m at street 10.224 to provide the connection to the Pa3 storm drain. 31 The 2019 Gender Assessment, conducted during project preparation, identified that women are disproportionately affected by floods due
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The World Bank Benin - Stormwater Management and Urban Resilience Project (P167359)
subcomponent will also finance the management of products excavated from the drainage infrastructure of which a fraction could be chemically and biologically contaminated and will thus be subject to specific treatment as per the site-specific Environmental and Social Management Plans (ESMPs)32 and will be in close alignment with the GoB’s National Solid Waste Management Flagship Program. Furthermore, to densify the GoB’s existing waste collection scheme near the project-financed drainage infrastructure, the subcomponent will support front-end activities i.e. light pre-collection and collection equipment, such as bins, tricycles, carts and wheeled barrels, that supplement those of the National Solid Waste Management Program. The credit under this subcomponent will finance works, goods, consultant and non-consultant services.
35. Subcomponent 1.2. Strengthening community awareness, capacity and engagement in flood risk and climate change adaptation (US$0.5 million). The subcomponent will finance the development and implementation of social facilitation action plans - including Information, Education, Communication (IEC) activities - to engage residents in the basins Y, Pa3 and AAc, including women and most vulnerable groups, in the identification, implementation, and maintenance of small, community infrastructure projects to enhance flood zone management. The aim is to enhance basin residents’ awareness of flood risk and climate adaptation and to promote their engagement in, and behavioral change towards, occupying flood prone areas and reducing waste disposal into drainage infrastructure supported by the project. The collaboration with local communities in the WB-financed three basins will effectively improve the discussions between climate change practitioners and communities to build the resiliency of stormwater drainage systems. The credit under this subcomponent will finance goods, and consultant and non-consultant services.
Component 2: Strengthening urban resilience management and capacity (EUR 1.56 million; US$1.75 million equivalent)
36. The component will be implemented through three subcomponents:
37. Subcomponent 2.1. Operation and maintenance mechanism for the drainage network (US$0.2 million). The subcomponent will finance support for the functioning of the existing O&M mechanism that includes financial and institutional arrangements for the Municipality of Cotonou to strengthen its ability to effectively address city-wide O&M management of the stormwater drainage network. The incorporation of the Municipality as the primary provider of O&M for the city’s drainage system is essential to ensure the sustainability of the drainage investments, funded by the WB and the other five financing partners33. Activities under this subcomponent were informed by a WB-led diagnostic that gathered basic information on O&M stakeholder roles and responsibilities, national/ local government fiscal systems and budgets, O&M priorities, as well as institutional and financial means to meet priorities. The diagnostic presented several alternative O&M scenarios to the GoB. The approach/ mechanism selected by the GoB represents a pragmatic decision, building on an existing decentralization legal framework that mandates functional assignments (including drainage O&M) to LGs and prescribes municipal and central government institutional systems and fiscal structures that have already been put in place. Arrangements, that are satisfactory to the WB to ensure appropriate levels of funding necessary for suitable standards of maintenance of the drainage system, will be incorporated into the FPA between the MCVDD and the Cotonou Municipality, and these arrangements will be elaborated in the Project Implementation Manual (PIM).
38. The selected mechanism proposes a two-pronged approach under the project whereby: (i) ACVDT manages the O&M of the drainage infrastructure under the PAPC and hands over O&M functions to the Municipality of to their responsibilities in the households and communities, including increased responsibilities during floods, as women are responsible to protect children and household assets during floods, to monitor the health of vulnerable people (children, elderly, handicap) and to ensure household hygiene and cleanliness. 32 Respective management will require compliance with the WB Operational Safeguards Policy 4.01. 33 The Bank finances the support for an effective functioning of the Cotonou O&M mechanism applicable across all Cotonou basins.
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The World Bank Benin - Stormwater Management and Urban Resilience Project (P167359)
Cotonou on an incremental basis according to the completion of works and an assessment that the performance of Cotonou has demonstrated its ability to fulfill its drainage O&M functions to acceptable standards; and (ii) in parallel, Cotonou Municipality applies sufficient funds (derived from a combination of its OSRs and transfers it receives under, for example the FADeC) to manage the O&M requirements of the existing drainage infrastructure in basins that are outside of the PAPC – this will help prepare the municipality for an eventual management of O&M of drainage infrastructure in all of Cotonou’s basins. As part of this incremental transfer of O&M responsibilities for the works under the PAPC, and in order to both ensure that satisfactory standards of O&M are being achieved, and to protect the investments being undertaken by the GoB, an assessment of the respective performances of Cotonou Municipality and of the ACVDT in achieving agreed O&M targets will be completed by March 31 of each year, starting in 2021 (for the preceding year)34. Additionally, commencement of construction of works for the third WB-financed basin will be bound by the findings of the performance assessment meeting standards satisfactory to the WB (to be undertaken according to the schedule described above), and in agreement with the WB. By supporting the effective functioning of a sustainable O&M mechanism, this subcomponent will make the infrastructure more resilient to future climate stressors since properly maintained and cleaned climate resilient drainage networks will be able to evacuate the runoff in a timely manner, hence reducing future damage and destruction. The credit under this subcomponent will finance goods, consultant and non-consultant services.
39. Subcomponent 2.2. Data sharing platform and hydrological flood model (US$0.55 million). The subcomponent will finance the development, operationalization, and capacity building for a modular, open-access platform to be housed at the MCVDD to exchange data for rainwater management and urban resilience among the various stakeholders, operating in Cotonou’s drainage sector35. This data platform will allow stakeholders to monitor the drainage system and identify and address possible blockages as part of regular maintenance or in anticipation of major flood events. The platform will support future climate resilient decisions, since the data collected will serve as inputs to hydrological models and future engineering designs that will lead to better use of existing historical and current data collected by technical institutions (such as meteorology agency, institute of oceanic research, etc.) and exploration of climate change scenarios to plan for future uncertainty. Furthermore, the subcomponent will finance the development of a hydrological model36 to produce flood hazard maps for Cotonou that will consider potential future climate stressors, such as increase in rainfall events, sea level rise and other climate change effects. This will allow the identification of flood-prone areas with greater accuracy and with static and dynamic scenarios, that represent a range of potential changes in climate events, including climate-change related sea level rise; increased lake water levels due to rainwater accumulation from North of Benin in Lake Nokoué; increased water levels in the lagoon and/or accumulated effects of different scenarios occurring at the same time. This will subsequently allow stakeholders to generate interlinked short- and long-term multi-sectoral strategies to reduce flood impacts on Cotonou residents. The subcomponent will also finance the associated capacity building of stakeholders to operate this model. Finally, a study to establish O&M targets by no later than December 31, 2019 will be funded. The credit under this subcomponent will finance goods, consultant and non-consultant services.
40. Subcomponent 2.3. Capacity building plan (US$1 million). The subcomponent will finance the development and implementation of a capacity strengthening plan for the municipality of Cotonou, the MCVDD, other key players, as well as the municipalities of "Grand Nokoué"37 regarding integrated flood risk management, urban governance, and O&M of drainage investments. Specifically, the plan aims to improve the city’s and central government’s capacity for integrated flood risk management and resilient urban governance at the city level, as well as Cotonou’s ability to fulfill its responsibilities to ensure the O&M of stormwater drainage investments. This will provide information for local decision makers to consider the multi-sectoral and multi-stakeholder aspects of
34 O&M targets will be established through a study funded under sub-component 2.2. 35 Stakeholders include central and local government entities, and educational entities, etc. The modular design allows stakeholders to update their data themselves. 36 A 3D version of the Model is not considered, as it is not practical. 37 The municipalities of ‘Grand Nokoué’ include: Abomey-Calavi, Cotonou, Ouidah, Porto Novo, and Seme Kpodji.
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The World Bank Benin - Stormwater Management and Urban Resilience Project (P167359)
stormwater management - including structural and non-structural investments; flood risk identification, mitigation and preventive planning; and climate change effects - in their future local stormwater management planning and stormwater control activities. This will contribute to enhanced urban resilience against current and future flooding. The credit under this subcomponent will finance goods, consultant and non-consultant services.
Component 3: Project Management, Monitoring and Evaluation (EUR 3.96 million; US$4.45 million equivalent)
41. The overall objective of the component is to ensure the efficient implementation of the project, such as project management, coordination, monitoring and evaluation (M&E), including: financial and procurement management, environmental and social assessments, preparation of project reports, and follow-up; studies, communication, internal and external audits, and operating costs and training for the PIU.
C. Project Beneficiaries
42. The proposed project would benefit a total of 168,000 beneficiaries38 for the three basins financed, of which about 52 percent are females. The beneficiaries will be directly protected against recurring floods due to the drainage infrastructures provided by the project in the basins Y, Pa3, and AAc. More broadly the project will benefit the population that lives in the three targeted catchments since the drainage investments will improve the stormwater drainage systems and reduce the groundwater level beyond the drained areas. The project also aims to provide capacity building to targeted communities, municipality and national departments for urban resilience, integrated flood risk management, including the data-sharing platform and hydrological modelling activities supported by the project. Beneficiaries will be supported through community engagement initiatives in flood risk reduction and climate change adaptation. Daily commuters will also benefit from improved access to and circulation within Cotonou.
D. Results Chain
43. The project aims to contribute to a more effective and sustainable drainage system through the below illustrated theory of change. The project plans to make significant investments in stormwater drainage infrastructure in the WB-financed basins of Cotonou and in the engagement of basin residents in urban flood risk reduction and adaptation to climate change in the project-financed basins.
44. Specifically, in the financed basins, the project will (i) improve the drainage infrastructure; (ii) enhance waste management in the vicinity of financed drainage infrastructure; (iii) provide community equipment to improve flood risk management; and (iv) develop and implement social facilitation actions plans to enhance the awareness, capacity, and engagement of basin residents regarding flood risk and climate change adaptation.
45. Across the city level and beyond the WB-financed basins, the project supports the strengthening of urban resilience management and capacity of municipal and central government entities. Specifically, at this institutional level, the project will (i) support the effective functioning of the existing O&M mechanism for the city of Cotonou to render it financially and institutionally viable; (ii) produce a hydrological flood model for Cotonou and provide associated capacity building for its operation; and (iii) generate a data platform for rainwater management and urban resilience of Cotonou.
38Direct beneficiaries are comprised of the population, living in the basins Y, Pa3 and AAc (84,933), as well as of the daily commuters to Cotonou (83,067).
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The World Bank Benin - Stormwater Management and Urban Resilience Project (P167359)
46. The integrated nature of intermediary outcomes/realized outputs aims to operationalize the project’s development objectives of reducing flood risks in the financed basins of Cotonou and of strengthening the urban resilience management and capacity at the city level. Regarding higher-level outcomes, the project would aim to help build Cotonou’s resilience to future floods by strengthening its absorptive capacity, reducing poverty by protecting against loss of assets, and promoting good governance in the public sector.
Intermediate Outcomes/ Higher-Level Activities PDO/Outcomes Outputs Outcomes
Increased carrying capacity of drainage system Provision of stormwater Resilience to drainage investment and Waste in drainage Reduce flood risks future floods in related works infrastructure managed in selected areas of Cotonou Cotonou Enhanced management of select flood zones Reduced Development of social vulnerability Increased awareness of facilitation action plans and risk of basin residents of flood risks (with Information, poverty by Education, protecting
Communication against loss of Changed behavior among Strengthen urban activities) assets basin residents reg. waste resilience dumping into drainage management and system, occupation of flood capacity at the city Better zones level Support to effective governance of functioning of O&M scarce resources mechanism for Financially and drainage system institutionally sustainable mgt of drainage system
Development of Hydrological flood modelling capacity and tools to developed and used by Municipality improve planning, forecasting, and monitoring of flooding Data platform for rainwater management and urban resilience in Cotonou developed and in use
E. Rationale for World Bank Involvement and Role of Partners
47. The rationale for WB involvement is strongly supported by the WB’s decades-long global experience in urban environmental management. Furthermore, the WB has been supporting Benin in infrastructure rehabilitation and environmental management since 1993, including the first and second Decentralized City Management Project (PGUD-1, P035648, 2000-2004, and PGUD-2, P082725, 2006-2010) in Cotonou, Porto-Novo and Parakou and other cities. The proposed project is in line with the now closed Benin Emergency Urban Environment Project (PUGEMU, P113145) which aimed to improve infrastructure and mitigate the negative environmental impacts of floods in the Cotonou Agglomeration and increase Benin’s level of preparedness for
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The World Bank Benin - Stormwater Management and Urban Resilience Project (P167359)
future flooding. This project also produced the 2015 Drainage Master Plan for the Cotonou Agglomeration, which GoB uses to make investment decisions for this proposed project and sought to build on the foundation laid by previous projects for capacity building in municipal planning, implementation, and monitoring of basic municipal services. The proposed project is also in line with the active Benin Cities Support Project (PAURAD, P122950) which aims to increase access to urban services and improve urban management in selected cities of Benin, including in Cotonou, through provision of stormwater drainage infrastructure.
48. Active engagement of partners: To alleviate Cotonou’s recurrent flooding problem, the GoB requested six financing partners to help realize its PAPV in 34 basins of the city39, i.e. the African Development Bank, the European Investment Bank, the French Development Agency, the Islamic Development Bank, the West African Development Bank, and the WB. Although the GoB divided the infrastructure works in the 34 basins among the various partners who will implement their respective works according to their individual procedures, the GoB and funding partners are implementing the PAPV as a coherent program, including the funding of some Program-wide activities by select partners. For instance, the GoB and partners agreed that the WB will cover costs that transcend the WB’s investment in three basins and benefits Cotonou’s drainage system, including the entire cost of the PAPC Project Implementation Unit; the development and roll-out of the stakeholder capacity building plan for national and local government stakeholders on integrated flood risk management, resilient urban governance, and O&M of the drainage investments, as well as the support to the effective functioning of the existing O&M mechanism. The European Investment Bank will fund the entire costs of the PAPC contract management consultants (Maître d’Ouvrage Délégué, MOD). Donor coordination will be maintained by the Ministry of Plan and Development through periodic exchanges via videoconference and/or missions.
F. Lessons Learned and Reflected in the Project Design
49. The project identification and preparation process incorporates lessons learned from the WB’s engagement in the urban sector mainly through the Benin PUGEMU (P113145), the Benin PAURAD (P122950), the Dakar Stormwater Management and Climate Change Adaptation Project in Senegal (P122841), the Urban Floods Community of Practice notes’ about the Lessons Learnt from World Bank Urban Flood Operations (June 2017), and emerging strategies and instruments to reinforce urban resilience to climate change. This experience highlights the importance of the following features to be included into project design. Integrated approach to flood risk management. Keeping flood waters away from people requires combination of engineered and non-engineered measures. Structural measures (hard-engineered structures, such as flood defenses, drainage facilities and multi-purpose infrastructure) are often costly and have the potential to provide short-term protection at the cost of long-term problems. Since costly structural risk mitigation alone cannot suffice for effective flood risk management, an integrated flood risk management strategy should be able to balance disaster risk reduction and preparedness measures, by defining minimum or optimal levels of acceptable risk. Cost-effective non-structural measures can include flood risk mapping and communication, preparedness, land use planning, flood forecasting and early warning, coordinated operation of flood management facilities, emergency preparedness and recovery planning measures etc. A strong disaster risk mitigation mechanism aims at not only saving lives but also focuses on long term risk reduction. Sustainability of investments. Lessons in Benin and elsewhere have shown that investments in stormwater drainage infrastructure or management without provision for organizational, institutional and financial capacity for O&M will not be sustained40. In 2011, the Independent Evaluation Group (IEG) also noted that in most projects, flood banks and drainage were successfully constructed, and these works were successful in reducing
39 Cotonou has a total of 50 basins, of which 34 are covered by the PAPC. The Government determined that the other 16 basins do not require stormwater drainage infrastructure works at this time, as such works have already been provided in the past. 40 IEG, 2011. Adapting to Climate Change: Assessing the WB Group Experience Phase III (link). Analysis of 16 evaluations of WB projects from 1990-2010 that supported flood response, reconstruction or risk reduction (including urban drainage), and 27 Implementation Completion Report of projects completed between 2001-11 where flood protection was listed as the primary or secondary sector.
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flood risk. Large structural investment can be complex, requiring close supervision and as available, additional technical assistance and capacity-building to address sustainability risks. The proposed project will finance, for the GoB’s PAPC, the support for a functional institutional and financial O&M mechanism with government ownership and engagement. In parallel, improved solid and liquid waste management should be reinforced in the project’s intervention areas to avoid that residents, living near the intervention areas, put garbage and sewage into the drainage networks. The WB-funded project will thus align with the GoB’s solid waste program to identify and implement the most appropriate solid and liquid waste solutions in the project intervention areas. Mainstream drainage networks and their functioning in urban development. The stormwater drainage system within any city should include existing natural waterways, lakes, wetlands that channel water to the main outlet/sea. Natural areas such as wetlands play a key temporary storage role during rainy seasons and exceptional weather events. Green infrastructure not only protects people and assets but can also create livable multi-purpose spaces where people can work and recreate. For example, retarding basins can be used as sport and leisure facilities or car parking. Rainwater harvesting can form part of a sustainable drainage system, providing both flood protection and water conservation. The creation of livable urban spaces attracts developers and investments and creates opportunities to involve communities in flood risk management. These wetland and high-flood risk zones must be protected from urban settlement to ensure the proper functioning of the drainage system and ensure Cotonou’s climate resilience. Regulation impacts the way floodplains are used and can guide construction out of zones-at-risk. Site development regulations include detention to reduce runoff from new development, design of storm sewers and ditches in new developments, and the design of streets. Building regulations include the elevation of structures above flood levels, foundation types, and floodproofing. These regulations can achieve two things: protecting a new development or structure from flooding, and reducing or eliminating the effects of new construction on existing downstream homes and businesses, people settle on floodplains mostly due to lack of clear regulations to guide both citizens and control mechanisms about the applicable restrictions. Urban plans, land use documents and the building code should be considered as complementary legal instruments to regulate the way floodplains are used, including restrictions in terms of settlement and building. Beneficiary engagement. Lessons learned from other flood management projects demonstrate that the planning and construction of (primary) drainage networks has to be coordinated with municipalities and local populations in order to facilitate acceptance and encourage ownership. Experience clearly demonstrates that sustainable engagement and behavior change can only succeed if community participation, as well as communication and awareness raising activities, are fully integrated in the project design and implementation and address public health risks, emergency responses, as well as adaptation measures. Social facilitators will be essential for community engagement and beneficiary participation in investments, O&M, support for behavioral change, strengthening capacity of local formal and informal stakeholder groups through initiative of community waste management and flood risk zones protection. The project will include a community engagement component and the recruitment of a social facilitation firm to build community participation and ownership vis a vis the project investments and implementation. Climate change adaptation and resilience. Climate change is likely to increase flood magnitude and frequency, as well as intensify extreme weather events. Heavy thunderstorms and rains appear to have already increased in frequency -in Cotonou the frequency of extreme rain events has increased since 201341. Flood risk management strategies are part of adaptation strategies to climate change and help build local resilience to more extreme weather conditions. This means not only understanding current vulnerabilities and risks based on existing data but building more resilient communities considering scenarios of future risks, based on more extreme weather conditions and increased vulnerabilities to climate change. The first step is thus to assess specific urban exposure before developing related policies, and to better integrate urban development plans and adaptation investments that address vulnerabilities to climate change. Integration of climate change aspects into the drainage infrastructures technical studies and designs, local climate change action plans and social
41 Flood Tags, 2018
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facilitators as well as South-South exchanges are all means to support this process and participation in existing global urban networks is expected to assist with experimenting innovative responses. Absorptive capacity of stakeholders involved. In countries with limited human capacity and financial resources, a consolidated approach, based on complementarity between stormwater management system and national (and possibly local) disaster risk management system related to the establishment and use of early warning systems, prevention measures and capacity building efforts, is more cost-efficient. Building capacity through longer-term technical assistance, training and equipment to municipalities, and national departments related to stormwater management and O&M, resilient urban planning and management, contract management and infrastructure development is also essential.
III. IMPLEMENTATION ARRANGEMENTS
A. Institutional and Implementation Arrangements
50. The GoB has established implementation arrangements for PAPC to reflect the multi-sectorial and multi- stakeholder characteristic of the project as follows: i. a Steering Committee to provide policy and strategic guidance and to act as a coordination platform across concerned sectors, composed of: (i) the MCVDD; (ii) the Ministry of State in charge of Planning and Development; (iii) the Ministry of Economy and Finance; (iv) the Office of Analysis and Investigation; and (v) the Ministry of Decentralization and Local Governance. The Board of Directors of the ACVDT will perform the role of the Steering Committee, by adding this function to its current mission, and by holding separate meetings for the PAPC. To ensure participation of the Municipality of Cotonou, the Board of Directors will be extended to include the Cotonou City Council, represented by the Mayor of Cotonou or a representative. ii. a Technical Committee for Monitoring to provide technical support for the project’s multi-sectoral implementation. The ACVDT will perform this role, and arrange technical validation meetings with the PAPC stakeholders, as needed. iii. the Project Implementation Unit (PIU) to implement all aspects of the project including managerial, coordination, planning, supervision, review, quality control, evaluation, and dissemination functions. The ACVDT will perform this role. To ensure adequate project implementation, quality assurance, and manage the work load, the ACVDT will recruit new consultants, full-time, in its technical unit ("Pool PAPC”), namely a Coordinator with an engineering background, a chief accountant, a procurement specialist, a M&E specialist, an environmental safeguards expert, a social safeguards expert, and a hydraulic engineer42. The ACVDT will sub-contract the execution of civil works related contracts and activities (under subcomponent 1.1) to contract management consultants (Maitre d’Ouvrage Délégué, MOD)43. Financial management and social facilitation functions will be provided by existing ACVDT staff. iv. The Municipality of Cotonou, which will undertake O&M functions for those basins (or parts of basins) not included under the PAPC but will also incrementally take on O&M responsibilities for the basins as the capital works under the PAPC are completed and based on demonstrated performance (under the oversight of the PIU).
51. The Ministry of Planning and Development through the Directorate General for Financing for Development, oversees the coordination of the donors, participating in the PAPC implementation.
42 The experts in the Pool PAPC are paid by IDA funds and thus work solely on the implementation of the project and PAPC. 43 ACVDT staff, as Government officials, will not be funded by IDA resources, as World Bank rules only allow the IDA funding of consultants – individual and MOD – recruited specifically for project implementation.
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52. Given the multi-donor character of PAPC, the GoB is preparing a Memorandum of Understanding (MOU) with participating donors to enhance coordination of and coherence among the various, donor-financed interventions. This MOU, under preparation, aims to define the main principles, including at the technical level, of PAPC implementation including cross-cutting aspects of the program such as: (i) institutional coordination between donors and the government; (ii) the operating principles of the PIU and contract management consultants to apply to all donor-financed projects; (iii) the phasing / sequencing of the works and common criteria for works bidding; (iv) the preparation of environmental and social safeguard documents, as well as the implementation of ESMPs; (v) the organization of supervision of donor-financed projects and PAPC; and (vi) monitoring and evaluation and reporting methods of donor-finance projects and PAPC activities, including some common indicators that can be used across donor-financed projects.
B. Results Monitoring and Evaluation Arrangements
53. The GoB is in the process of hiring a M&E expert into the Pool PAPC of the ACVDT, who will be responsible for the overall coordination of M&E activities, their consolidation, and the preparation of periodic M&E reporting, including impact and output indicators. Under the M&E plan, units of measurement, baseline values, targets, frequency, data source/ methodology and responsibility for data collection are defined for each outcome indicator and each intermediate level indicator. The data is expected to inform the WB’s semi-annual implementation support missions to track project implementation progress in terms of outcomes in the implementation status and results (ISRs) reports, and for the final evaluation of the project in the implementation completion and results (ICR) report. Reporting and use of M&E data as well as assessment of capacity will be described and rated in the ISRs, and will be reviewed at project mid-term. Any changes required will be made promptly through restructuring, as needed. M&E capacity support under the project will include technology, equipment, training on data collection, content management, information updates and basic system troubleshooting and maintenance. Efforts will be made to fully empower national institutions in the monitoring and evaluation of the project outcomes, ensuring that they are strongly linked to the national M&E system. The ACVDT will be responsible for producing timely and pertinent information to serve as key management tool for decision makers.
C. Sustainability
54. Sustainability of investments will be ensured through the support for an effective functioning of the existing O&M mechanism, the development of O&M management plans, as well as citizen engagement activities. Furthermore, the management of waste products excavated from drainage infrastructure, in compliance with the WB’s safeguard policies, will be an integral part of improving the sustainability of the drainage infrastructure operation. Additionally, direct beneficiaries – citizens living adjacent to the planned stormwater drainage investments (referred to as ‘basin residents’), and the Municipality of Cotonou – will participate in the identification and implementation of community infrastructure investments. The institutional and capacity strengthening of involved stakeholders will enhance the urban resilience skills of municipal stakeholders to reduce flood risks in selected areas of Cotonou, while allowing central government stakeholders to apply their urban resilience skills to flood risk management in other cities in Benin. Finally, the ACVDT will ensure the multi-sectoral coordination of the GoB to guarantee project implementation, and ownership.
IV. PROJECT APPRAISAL SUMMARY
A. Technical, Economic and Financial Analysis
55. Technical quality of infrastructure constructed/rehabilitated, goods supplied, and services provided will be ensured through the competitive hiring, by the ACVDT, of qualified engineers, fiduciary and safeguards staff, as
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well as the selection of qualified and competent contractors and supervision consultants for the civil works financed by this project. All civil works supported under subcomponent 1.1 will follow standard designs, and be supported by hydraulic and hydrological modeling, as needed. The support of the effective functioning of the existing O&M mechanism under subcomponent 2.1 is the focus of the WB’s first two years of implementation support. The capacity building, data platform, and modeling interventions under component 2 will enhance the urban resilience skills of municipal and central government stakeholders to support the implementation and sustainability of investments under subcomponent 1.1 and allow central government to apply urban resilience skills to flood risk management in other cities of Benin. The financed awareness-raising and education efforts for direct beneficiaries, in subcomponent 1.2, will promote behavioral change as well as community engagement in flood risk reduction and climate change adaptation in the project-financed basins. Finally, WB implementation support will also contribute to quality control through scrutiny of procurement processes and on-site inspection of works and goods provided to quickly identify and remedy deficiencies.
56. Implementation readiness is supported by detailed costing, finalized detailed technical design and institutional arrangements, publication of safeguards documents, the Bank’s finalization of its gender assessment and its O&M diagnostic, as well as GoB’s commitment to rendering the existing O&M mechanism institutionally and financially viable. The ACVDT is in the process of strengthening its capacities by recruiting additional technical consultants, and the MOD before effectiveness. The GoB is revising the draft MOU to enhance coordination with the participating donors regarding coherence among the various, donor-financed interventions that constitute the GoB’s PAPC implementation.
57. The project is considered economically viable with an Economic Rate of Return of 24 percent - at an annual discount rate of 5 percent -, and a Net Present Value calculated as US$57.49 million; The present value of the Benefit to cost ratio is 1.75. The main expected benefits attributable to the project include: (i) reduction in flood damage to properties and infrastructure as a result of enhanced flood protection; (ii) improved business environment as a result of cleaner settlement around the project areas; (iii) benefits due to reduced incidence of vector-borne diseases including malaria and yellow fever; (iv) enhanced urban connectivity as a result of improved trafficability of selected roads; (v) enhanced efficiency gains due to improved institutional support for urban resilience management and capacity; and (vi) potential revenues from construction works for communities around project areas. These Component 1 benefits, representing 93 percent of total project costs, are analyzed through Cost Benefit Analysis (CBA). The CBA quantifies the tangible benefits from reducing flood vulnerability, through the avoided damage cost method. These benefits are measured as the additional cost of flood damage that will occur without the project intervention. The tangible socio-economic benefits comprise avoided damage to properties and avoided economic losses. The net monetary benefits expected from flood sub-projects are derived from the difference between the incremental benefits and the incremental costs of two scenarios: “with” project and “without” project. The “with” project scenario considers the planned investments. The “without” project scenario is based on historical flood data and the outputs of existing hydrological models. The benefits from Components 2 (Urban Resilience Management and Capacity) are difficult to predict and quantify and are therefore not included in the economic analysis, of which details are presented in Annex 3.
B. Fiduciary
(i) Financial Management
58. The financial management (FM) of the project covers mainly the PIU, i.e. ACVDT44 which is under the supervision of the Presidency. All project activities and payments will be executed by ACVDT. The assessment focused on the FM capacity of the ACVDT in terms of planning and budgeting, accounting, funds flow, financial
44 Decree No 2016-608 of September 28, 2016.
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reporting, internal controls and external auditing in place to satisfy the WB’s Policy and Directive – Investment Project Financing (IPF), which describes the overall FM policies and procedures. The implementing entities’ arrangements are acceptable if they are considered capable of recording correctly all budgets, transactions and balances, supporting the preparation of regular and reliable financial statements, safeguarding the entities’ assets, and are subject to auditing arrangements acceptable to the WB. The design of project FM arrangements will be also based on the Circular45 (ad hoc arrangements) applicable to government agencies. The FM assessment was carried out in accordance with the FM Manual for WB IPF Operations that became effective on March 1, 2010 and re- issued on February 10, 2017. The assessment revealed some strengths and weaknesses at the ACVDT’s level. The following major strengths were identified: (i) the FM staffing consists of a FM Specialist, and a Chief Accountant with good experiences in managing donors funded projects, and an Internal Audit firm appointed by the GoB, (ii) FM system with adequate separation of duties, (iii) PIM is being finalized and ACVDT’s multi-project and multi- site, financial and accounting management software, SUCCESS, is in place and functioning, and fiduciary staff is trained; and (iv) the external audit arrangements are designed to be conducted by the “Commissaire aux Comptes” already appointed by the GoB, and charged with the annual project audit. The audited financial statements of ACVDT shall be submitted to the WB within six (6) months of the end of each fiscal year. The terms of reference of the mission will be agreed between the WB and the ACVDT. The main weakness identified is related to the lack of experience in managing of donor funds. Based on the assessment, it was established that the ACVDT has acceptable financial management capacity to implement the project.
59. As the PIU, ACVDT will handle the overall responsibility of FM aspects of the project, including budgeting, disbursement, financial management, reporting, supervision, auditing, management of the Designated Account and Operational Account A, while the Operational Account B will be managed by the MOD.
60. To mitigate the financial management risks, the project design incorporates the following actions: (i) the recruitment of an additional Accountant to be dedicated to the project under the supervision of ACVDT’s FM Specialist, (ii) the writing of an annex to ACVDT’s current manual of procedure to describe the new project specificities; (iii) the revisiting of the project software parameters to take into consideration the specificity of the new project; (iv) the inclusion of the project activities in the scope of work of the GoB appointed Internal Auditor. Finally, the project as well as the ACVDT’s annual accounts will be audited by the statutory independent auditors “Commissaires aux Comptes” based on terms of reference approved by the WB.
61. The overall FM risk rating for the Stormwater Management and Urban Resilience Project is assessed as Substantial taking into account the country context, the multiplicity of actors and beneficiaries combined with the nature of activities supported by the project and the WB’s minimum requirements under WB Policy and Directive – IPF which describes the overall FM policies and procedures. The proposed risk mitigation measures (see FM Action Plan) will strengthen the internal control environment and maintain the continuous timely and reliability of information produced by the implementing agency and an adequate segregation of duties. These mitigation measures have been incorporated into the design of the project FM arrangements. The proposed financial management arrangements including the mitigation measures for this financing are considered adequate to meet the WB’s minimum financial management requirements under WB Policy and Directive – IPF.
(ii) Procurement
62. Procurement activities will be carried out in accordance with the WB’s “Procurement Regulations for IPF Borrowers”, dated July 2016 and revised in November 2017 and August 2018 under the “New Procurement Framework”, and the “Guidelines on Preventing and Combating Fraud and Corruption in Projects Financed by
45 Letter No 950/MEF/DC/SGM/DGB/DPSELF of March 26, 2018.
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IBRD Loans and IDA Credits and Grants”, dated July 1, 2016, and other provisions stipulated in the Financing Agreements.
63. The GoB, with technical assistance of the WB, has prepared the Project Procurement Strategy for Development (PPSD) which describes how procurement activities will support project operations for the achievement of PDO and deliver Value for Money (“VfM”). The procurement strategy will be linked to the project implementation strategy ensuring proper sequencing of the activities. It will consider institutional arrangements for procurement, roles and responsibilities, thresholds, procurement methods, and prior review, and the requirements for carrying out procurement. It also will include a detailed assessment and description of government capacity for carrying out procurement and managing contract implementation, within an acceptable governance structure and accountability framework. It will also include the behaviors, trends and capabilities of the market (i.e. Market Analysis) to respond to the procurement plan. The WB’s Systematic Tracking of Exchanges in Procurement (“STEP”) planning and tracking system, shall be implemented. Further details are provided in Annex 1.
C. Safeguards
(i) Environmental Safeguards
64. The proposed project is rated as a Category “A”, and it is expected to have large-scale, significant, and/or irreversible impacts. With three environmental policies triggered (OP/BP 4.01: Environmental Assessment, OP/BP4.04: Natural Habitats and OP/BP 4.11: Physical Cultural Resources), the proposed operation aims at financing a wide range of activities, including rehabilitation of existing and construction of new drainage infrastructure. These types of investments are mostly associated with significant environmental adverse impacts, such as risks of accidents, pollutions, dust, noise, solid waste management, etc.
65. As most of the basins are already identified, an Environmental and Social Impact Assessment (ESIA) and 34 ESMPs (one ESMP per basin) have been prepared by the GoB, of which the ESIA and the three ESMPs for the three WB-financed basins were reviewed by the WB, approved by the WB and the Beninese Environment Agency (Agence Beninoise de l’Environnement, ABE), consulted upon and disclosed in Country and on the WB’s website on January 22, 2019. The other basins are not associated with the WB-financed basins, except for a basin (AAs) financed by the West Africa Development Bank (BOAD). The WB has reviewed and approved the ESMP for this basin to ensure it complies with WB requirement, and will jointly supervise it with ACVDT and BOAD during implementation. As for the remaining 30 ESMPs, financed by other donors, the WB is working with ACVDT and the donors to ensure there is a consistent approach to environmental and social management of PAPC. While each donor will supervise with ACVDT the ESMPs it is financing, the project will include some joint supervision and regular discussions amongst the GoB and donors about managing environmental and social impacts throughout project implementation. Additionally, for the rest of the activities for which the exact locations are not known to date, an Environmental and Social Management Framework (ESMF) was developed, which the WB has reviewed, and approved, and which was published within Benin and on the WB website on February 13, 2019.
66. The ESMF as well as the ESIA prepared, include physical cultural resources management procedure and guidelines in case cultural properties are discovered during the project implementation. These guidelines will also be subsequently included in the enterprise’s contracts and Work-ESMP so that contractors implement them on the ground. In addition, the Owners’ Engineer, the MOD as well as the WB will make sure these guidelines are fully implemented on the ground. Among mitigation measures to anticipate any potential adverse impact on natural habitats, a wildlife inventory of lake Nokoué was already made and included in the ESIA. In addition, a chemical analysis of water in existing canals that flows into Lake Nokoué was also realized to check the degree of toxicity of water and its potential impacts on natural habitats. Lastly, a specific chapter on safe Natural Habitats management
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was included in the ESMF and the ESIA. Several mitigation measures were developed in the ESMPs; these measures will be reflected in Work-ESMPs to be developed by the enterprises and included in their contracts.
67. A Grievance Redress Mechanism (GRM) was set up to allow stakeholders and interested parties to bring up any concern regarding the project to the PIU with the aim of finding solutions.
68. Safeguards documents include guidelines on Occupational, Health and Safety (EHS/OHS), which clearly mention that the Works-ESMP must be approved by the PIU and their partners prior to the civil works commencement. Moreover, the tender documents and the contracts for main contractors as well as the sub- contractors must also include sections related to EHS/OHS.
69. Regarding potential labor influx, the project will establish guidance and rules for contractors to enhance the ESMPs and workers contracts, that will include measures for managing the potential impacts of such an outside workforce on the local community. Specific details will be prepared during the investment activities for contractors who will bring in workers and operators from outside the area, and these are likely to be housed in work camps during construction.
70. To ensure that the safeguard instruments, prepared in line with policies triggered by the project, are implemented properly, the PIU will hire an environmental safeguard specialist. This specialist must have additional experience in EHS/OHS. The specialist will be fully in charge of all environmental safeguards aspects and will regularly monitor the safeguards requirements.
71. WB implementing support missions will also include environmental and social safeguards specialists to ensure that all safeguard issues are addressed properly and in a timely manner.
72. The Financing Agreement will require the GoB to prepare and submit to the WB, for prior approval and disclosure, any required ESIAs in accordance with the ESMF, for the activities proposed to be carried out under the operation. Prior to commencing any works, the GoB will take all actions required by the ESIA and obtain the WB’s confirmation that the works may commence. Finally, the GoB, through the PIU, will report quarterly to the WB on the environmental safeguard measures taken through (i) a specific Safeguard Monitoring Report and (ii) a summary of this specific report will be included in the periodic project progress reports.
(ii) Social Safeguards
73. The project aims to reduce flood risks in selected areas of Cotonou and strengthen urban resilience planning and capacity at the city level. This should help to improve the living conditions of beneficiaries. The project will finance the construction of primary drainage infrastructures, rehabilitation of existing networks, such as channels and retention facilities, and their dredging as needed, in three selected basins of Cotonou, already identified. The project will also finance other infrastructure and equipment for flood prevention, mitigation, and climate change adaptation. Such civil works are usually associated with major potential negatives social risks and impacts leading to involuntary resettlement issues. As these impacts are expected to be significant and irreversible, significant negative social impacts are expected.
74. The Recipient has already benefitted from other (past and ongoing) IDA projects which have provided/are providing relatively sufficient capacity to understand and apply safeguards policies.
75. The project triggers Operational Policy/Bank Procedure 4.12 on Involuntary Resettlement. Some activities, such as construction and rehabilitation of infrastructures, could induce potential adverse social impacts and may lead to land acquisition and/or restrictions on access to resources and sources of income or livelihoods. For the 34
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basins already identified, Resettlement Action Plans (RAPs) are being developed, and the three RAPs for the three WB-financed basins were reviewed by the WB, and approved by the WB and the Beninese Environment Agency (ABE), consulted upon, and published in Country on March 1, 2019, and at the WB’s website on March 3 and 4, 2019. The other basins are not associated with the WB-financed basins, except for a basin (AAs) financed by BOAD. The WB has conditionally approved the RAP for this basin to ensure it complies with WB requirements- to be published. The WB will jointly supervise it with ACVDT and BOAD during project implementation. The supervision of the RAPs and management of environmental and social risks and impacts will be the same as those set out for the ESMPs, including gender-based violence (GBV) issues adequately reflected in Work-ESMPs to be developed by the enterprises and included in their contracts. The sites for other infrastructures are not yet identified. Therefore, in anticipation of any negative social impacts, a Resettlement Policy Framework (RPF) was prepared by the GoB, approved by the WB and published within Benin and on the WB website on March 8, 2019.
76. During implementation, an assessment would be carried out for each sub-project to determine whether land is acquired, and whether a sub-project-specific RAP is required. Such RAPs will be prepared in compliance with national regulation and WB policies - following the identification of the sites, submitted to the WB for review and disclosure in country and at the WB website prior to the commencement of the civil works.
77. To ensure that the safeguard instruments, prepared in line with policies triggered by the project, are implemented properly, the PIU will hire a social safeguards specialist. In addition to resettlement, this specialist must have additional experience in GBV, sexual exploitation and abuse (SEA), social inclusion and any labor- related risks. The specialist will be fully in charge of all social safeguards aspects and will regularly monitor the safeguards requirements.
78. Citizen engagement is crucial to the behavior change needed to prevent solid waste disposal in stormwater drainage investments, and occupation of flood (risk) zones. Specifically, the project will support citizen engagement through public consultation on the information related to the implementation of the drainage infrastructure, participation in the identification and implementation of investments in community equipment under subcomponent 1.1, the development and implementation of training programs in logistics, and through the subcomponent 1.2 activities on engagement of direct beneficiaries (basin residents) to enhance their awareness on flood risk and climate adaptation and to promote their engagement in, and behavioral change towards occupying flood prone areas and reducing their waste disposal into drainage infrastructure supported by the project. Additionally, as part of the implementation of WB-financed projects, executed by the MCVDD, a methodological guidance note by the WB is being prepared for all projects. To this end, the project will adapt it to guarantee strong citizen engagement through an inclusive participation process of all the actors.
79. Gender and GBV: A Gender Assessment was conducted during project preparation and provided the gender, age, poverty characteristics of the three WB-financed basins, as well as the technical context on flooding and solid waste. According to the assessment, GBV has been reported in the form of sexual harassment of women and girls, domestic violence, and psychological violence during flooding when flood victims seek shelter from other households or in public places - this was particularly the case in the AAc basin, but not at all in the Y basin, according to assessment interviewees. In the Pa3 basin, psychological abuse is the main type of GBV experienced during floods that households often report, with some cases of sexual harassment of women and girls and domestic violence. For mitigation, the terms of reference for future control missions, the civil works construction ESMPs as well as any contracts with local NGOs will be required to include mitigation measures on GBV issues.
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V. KEY RISKS
80. The overall implementation risk is assessed as High, due to the multiplicity of stakeholders, the technical complexity of the project, and the institutional capacity paired with the multi-donor approach. The concurrent implementation of all other operations, funded by different donors, may require more resources than those currently planned for the implementation of the project. Key risks to achieving results and their respective mitigation measures are discussed below.
81. Technical Design risks is rated High due to the complex technical nature and multi-donor engagement. Based on the available donor funding for PAPC and past donor interventions in the targeted catchments, the GoB determined the repartition of intervention areas through catchments and related civil works between the donor projects, including shared catchments and connected channels between donor-funded projects that add to the complexity of the project design, and requires (i) stakeholder coordination including between donors; (ii) development of quality technical standards; and (iii) ensuring investment sustainability. This is mitigated through the in-depth technical preparatory work between the technical GoB and WB teams; the GoB’s finalization of its Hydraulic and Hydrologic analysis that allows to ensure that the proposed infrastructure design does not negatively impact the watersheds (of the WB-supported investments and/or donor supported investments in neighboring watersheds); continuous donor exchanges. Additionally, the drainage system will promote the natural evacuation of surface water by gravity and thus avoid, to the extent possible, large pumping stations with complex and costly O&M. During implementation, the WB team will continue to mobilize highly specialized staff for substantial supervision capacity - both at the implementing agency level and using technically sound, internationally tested solutions adjusted to the local context in Cotonou.
82. Sector Strategy and Policies risk is rated High due to the multi-sectorial context, the novelty of the integrated flood risk management approach, and the required donor coordination. This will be mitigated through the multi-sectoral, integrated design of the project, combining infrastructure, community engagement and institutional strengthening, as well as through the multi-sectoral and multi-stakeholder institutional arrangements. Additionally, close WB monitoring will ensure an upfront identification of constraints that proactive resolution.
83. Institutional Capacity for Implementation and Sustainability risk is rated High. The ACVDT would need to strengthen its technical, financial management, and procurement capacities. This will be mitigated through the recruitment of qualified engineers, safeguards, M&E, and procurement consultants that will manage the project’s day-to-day implementation. Additionally, the low funding and lack of clarity in the functioning of the O&M of the drainage system is a significant risk for the project. The weak institutional and financial capacity of the Municipality of Cotonou to coordinate and implement integrated and multi-donor projects also represents a risk for the project. These risks will be mitigated by the project’s technical assistance to strengthen the operational capacity during project design and implementation of the PIU, the Cotonou municipality, and central government stakeholders. Additionally, the project will finance support to ensure the effective functioning of the exiting O&M mechanism and to render it financially viable, as informed by a preceding WB-led O&M diagnostic.
84. Social and Environmental risks are considered High due to the expected large-scale, significant, and/or irreversible environmental and social safeguards impacts; this is also warranted due to the recent creation of the ACVDT and the experience required in the implementation of large economic resettlement operations as part of WB financed projects, and the sediment management of the potentially large amounts of dredged material excavated in the WB-financed basins. This is mitigated through the preparation of an ESIA, three ESMPs (one ESMP per financed basin), three RAPs (one RAP per financed basin), an ESMF, a RPF, as well as guidelines on Occupational, Health and Safety (EHS/ OHS). A GRM has also been set up. The project will also ensure there are ongoing substantive and comprehensive consultations with all stakeholders on safeguards procedures (see Annex 1 for details) to ensure smooth implementation.
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85. Fiduciary risks are rated Substantial. For financial management, the overall risk is rated as Substantial considering the country context, the multiplicity of actors and beneficiaries combined with the nature of activities supported by the project and the WB’s minimum requirements under WB Policy and Directive – IPF which describes the overall FM policies and procedures. The proposed risk mitigation measures proposed (see FM Action Plan) will strengthen the internal control environment and maintain the continuous timely and reliability of information produced by the PIU and an adequate segregation of duties. These mitigation measures have been incorporated into the design of the project FM arrangements. The proposed financial management arrangements including the mitigation measures for this additional financing are considered adequate to meet the WB’s minimum financial management requirements under WB Policy and Directive – IPF. (see Annex 1 for details). For Procurement, the overall risk is rated Substantial, which however can be reduced to a residual rating of Moderate upon consideration of successful implementation of the mitigation measures, which include: recruitment of a procurement specialist in the PIU, procurement capacity building, update of the existing procurement manual to introduce procurement arrangement planned for this project; delegation of prior control of activities related to contract management (MOD) from the DNCMP to the ACVDT in accordance with the provisions of Article 2 of Decree No. 2018-224 of 13 June 2018 to (i) put in place a mechanism for monitoring the execution of the different phases of the procurement process; and (ii) to sensitize the actors, the organs and authorities involved in the procurement process regarding respect of regulatory deadlines of the procurement code in force.
World Bank Grievance Redress
86. Communities and individuals who believe that they are adversely affected by a World Bank (WB) supported project may submit complaints to existing Project-level grievance redress mechanisms or the WB’s Grievance Redress Service (GRS). The GRS ensures that complaints received are promptly reviewed in order to address Project-related concerns. Project affected communities and individuals may submit their complaint to the WB’s independent Inspection Panel which determines whether harm occurred, or could occur, as a result of WB non- compliance with its policies and procedures. Complaints may be submitted at any time after concerns have been brought directly to the World Bank's attention, and Bank Management has been given an opportunity to respond. For information on how to submit complaints to the World Bank’s corporate Grievance Redress Service (GRS), please visit http://www.worldbank.org/en/projects-operations/products-and-services/grievance-redress-service. For information on how to submit complaints to the World Bank Inspection Panel, please visit www.inspectionpanel.org.
.
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VI. RESULTS FRAMEWORK AND MONITORING
Results Framework COUNTRY: Benin Benin ‐ Stormwater Management and Urban Resilience Project
Project Development Objectives(s) The proposed Project Development Objective is to reduce flood risks in selected areas of Cotonou and strengthen urban resilience management and capacity at the city level.
Project Development Objective Indicators
RESULT_FRAME_TBL_PDO Indicator Name DLI Baseline End Target
To reduce flood risks in selected areas of Cotonou
Cotonou residents in selected areas benefiting from decreased 0.00 168,000.00 risk of recurring flooding (number) (Number)
Area of flood‐prone zones under integrated flood risk 0.00 35.00 management approaches (ha) (Hectare(Ha))
To strengthen urban resilience management and capacity at the city level
Designated entity and/or entities have the financial and technical capacities to execute O&M of city‐wide drainage infrastructure No Yes on a regular basis (Yes/No)
Constructed and/or rehabilitated drainage infrastructure cleaned 0.00 100.00 semi‐annually (percentage) (Percentage)
PDO Table SPACE
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Intermediate Results Indicators by Components
RESULT_FRAME_TBL_IO Indicator Name DLI Baseline End Target
Component 1:Stormwater drainage investment and community engagement for flood risk reduction and CCA Length of drainage work rehabilitated and constructed (primary 0.00 25.00 and secondary networks) (Meter(m)) Additional retention capacity due to rehabilitated storage areas (Cubic Meter(m3)) 0.00 400,000.00 O&M mechanism is functional (including financing mechanism) No Yes (Yes/No) Community equipment for flood risk reduction validated, 30.00 implemented and integrated into municipality assets (Number) 0.00 Waste collection rate in the drainage infrastructure provided by 0.00 95.00 the project (Percentage) Lenght of roads paved with concrete interlock blocs (km) 12.00 (Kilometers) 0.00 People reached by the information, education and communication strategy (IEC‐resilience, climate change and 0.00 25,000.00 waste management) (Number) Women being members of the community committees for flood control (percentage) IEC action plan progress reports, surveys, 0.00 50.00 audio‐visual recording, meeting documents (Percentage) Activities to be designed alleviate disproportionate flood impacts 50.00 on women and most vulnerable (Percentage) 0.00 Component 2: Strengthening urban resilience management and capacity Modular data sharing platform for rainwater management and urban resilience operational and managed by the designated Yes entity under the Ministry of sustainable and Territorial No Development (Yes/No) Hydrological flood modeling managed by the designated entity under the Ministry of Sustainable and Territorial Development No Yes (Yes/No)
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RESULT_FRAME_TBL_IO Indicator Name DLI Baseline End Target
Key stakeholders (including females) trained on flood risk management, urban climate change resilience and territorial 0.00 300.00 planning (Number) Component 3: Project Management, Monitoring and Evaluation Grievances registered related to delivery of Program benefits 0.00 80.00 that are addressed (percentage) (Percentage)
IO Table SPACE
UL Table SPACE
Monitoring & Evaluation Plan: PDO Indicators Methodology for Data Responsibility for Data Indicator Name Definition/Description Frequency Datasource Collection Collection Direct beneficiaries are people, households or groups who directly derive benefits from the project interventions (i.e. flood risk reduction, capacity building, Cotonou residents in selected areas training, sensitization …) of Progress Semi‐Annual Progress report ACVDT benefiting from decreased risk of whom 50 % of female report
recurring flooding (number) beneficiaries. This indicator measures the outcomes of the project‐financed construction or rehabilitation of drainage infrastructure, and related works
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The indicator measures the hectares that are covered by retention ponds, delineated areas around the ponds, 'zones non‐aedificandi', and lowlands that are flood‐ prone under the 10 year ACVDT, with inputs Area of flood‐prone zones under Semi‐ Progress rain hypothesis. Progress Report from technical services integrated flood risk management Annually Report 'Zones non‐aedificandi' are of the municipality approaches (ha) non‐constructible areas, e.g. lowlands / flood basins that must be preserved from any population occupation). Lowlands are areas that have a temporary stormwater storage function Capacity is defined as designated entity having (i) a financially and institutionally viable O&M mechanism developed, (ii) the appropriate Designated entity and/or entities have the management structure and ACVDT, with inputs progress financial and technical capacities to the unit in charge of O&M Semi‐annual progress reports from technical services reports execute O&M of city‐wide drainage made operational and fully of the municipality infrastructure on a regular basis staffed; (iii) mechanism for contracting O&M in place and service contracts signed; (iv) financing received no later than in April of each year. Regular basis means at least semi‐
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annually ahead of the two rainy seasons.
This indicator measures the outcomes of project efforts to enhance urban resilience, where improved Constructed and/or rehabilitated drainage Progress management of resources Semi‐annual Progress Report ACVDT infrastructure cleaned semi‐annually Report and infrastructure in flood (percentage) prone areas would show, among other, as semi‐ annual cleaning of project financed investments ME PDO Table SPACE
Monitoring & Evaluation Plan: Intermediate Results Indicators Methodology for Data Responsibility for Data Indicator Name Definition/Description Frequency Datasource Collection Collection Rehabilitation works will be Progress undertaken concurrently in reports and Progress reports and Length of drainage work rehabilitated and three basins. Total length of Semi‐ regular regular ACVDT constructed (primary and secondary drainage networks Annual construction/ construction/rehabilitat
networks) rehabilitated and rehabilitation ion reports constructed. reports
Progress Rehabilitation works will be Progress reports and reports and undertaken concurrently in Semi‐ regular Additional retention capacity due to regular ACVDT three basins. Additional Annual construction/rehabilitat rehabilitated storage areas construction/ retention capacity due to ion reports rehabilitation rehabilitated storage areas. reports
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An institutionally and financial viable O&M Progress mechanism is developed, reports and Progress reports and adopted and used to allow Semi‐ regular regular O&M mechanism is functional (including ACVDT the Cotonou municipality to Annual construction/ construction/rehabilitat financing mechanism) execute its mandate of rehabilitation ion reports ensuring that drainage reports infrastructure is operated and maintained. Measures the number of community micro‐projects in flood prone areas (zones Community equipment for flood risk Semi‐ Progress non‐aedificandi) for flood Progress reports ACVDT reduction validated, implemented and Annual reports risk reduction that are integrated into municipality assets validated, implemented and included into the municipality’s assets As waste can obstruct the carrying capacity of drainage infrastructure, Semi‐ Progress Waste collection rate in the drainage waste needs to be collected Progress reports ACVDT annual reports infrastructure provided by the project out of the drainage
infrastructure, and waste disposal eliminated in adequate conditions. Progress Indicator measures the Progress reports and Semi‐ reports and Lenght of roads paved with concrete kilometers of roads paved regular construction ACVDT Annual regular interlock blocs (km) with concrete interlock reports construction blocs reports
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Aggregate number of individuals that participate in any consultation process and/or benefit from a IEC action sensitization session on the plan progress various themes (climate reports, IEC action plan progress People reached by the information, resilience, sustainable city surveys, Semi‐ reports, surveys, audio‐ education and communication strategy management, flood audio‐visual ACVDT Annual visual recording, (IEC‐resilience, climate change and waste preparedness waste recording, meeting documents management) management) either meeting
through workshop or mass documents media etc. It includes also participants in consultation activities during project implementation (core indicator). Progress report; Women being members of the Progress report; Consolidatio community committees for flood control Measures the percentage of semi‐ Consolidation of the n of the ACVDT (percentage) IEC action plan progress women members of the annually minutes of the General minutes of reports, surveys, audio‐visual recording, local flood committees Assemblies the General meeting documents Assemblies
Community infrastructure, equipment helps alleviate Activities to be designed alleviate semi‐ Progress disproportionate flood Progress reports ACVDT disproportionate flood impacts on women annually reports impacts on women and and most vulnerable most vulnerable, given their increased responsibilities in
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the household and the community Geographic Information Modular data sharing platform for System for rainwater Progress rainwater management and urban management and urban Semi‐ reports and Progress reports and resilience operational and managed by ACVDT resilience developed and Annual other other documents the designated entity under the Ministry operational under the documents of sustainable and Territorial Ministry of sustainable and Development Territorial Development The indicator measures the outcome of the development and associated capacity building for the Hydrological flood modeling managed by project‐financed ACVDT, informed by the Semi‐ Progress the designated entity under the Ministry hydrological model. An unit Progress report designated technical Annually report of Sustainable and Territorial responsible of the service of the Ministry
Development management of the hydrological modeling system is operational under the ministry of sustainable and territorial development Training People benefiting from the modules; training and capacity training Training modules; Key stakeholders (including females) building; MoUs in place Semi‐ reports; training reports; trained on flood risk management, urban ACVDT defining support for key Annual surveys, surveys, progress and climate change resilience and territorial stakeholders signed and progress and evaluation reports. planning executed. evaluation reports.
Grievances registered related to delivery Monitoring of grievance Semi‐ Grievance Grievance redress ACVDT of Program benefits that are addressed redress reports issued by annual redress reports issued by the
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(percentage) the works contractors reports works contractors issued by the works contractors
ME IO Table SPACE
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ANNEX 1: IMPLEMENTATION ARRANGEMENTS AND SUPPORT PLAN COUNTRY: Benin Benin ‐ Stormwater Management and Urban Resilience Project Strategy and Approach for Implementation Support
1. The PIM presents the details of the implementation modalities and institutional arrangements to support project implementation. The strategy of the Implementation Arrangements and Support Plan has been developed according to the nature and the characteristics of the project, as well as its risk profile. The strategy focuses on the principal risks identified and the agreed risk mitigation measures described in the SORT. It will also provide the technical advice necessary to facilitate achieving the PDO. The Plan also identifies the minimum requirements to meet the WB’s fiduciary obligations.
Implementation Support Plan and Resource Requirements
2. Collaboration with GoB and other donors is a central factor for project implementation. The GoB has developed several key policies and has created and/or strengthened national and local institutions that are directly linked to supporting decentralization, poverty reduction, and local development. The main elements of the Implementation Strategy are as follows:
3. Technical support. Technical support will be provided to the participating entities, in general, and the ACVDT as PIU to ensure compliance with different agreed modalities and procedures. The WB will provide continuous extensive technical support through participating in semi-annual implementation support missions, a review mission one year after effectiveness, a Mid Term Review (MTR) and ad hoc advisory services, as well as through efforts and resources to support the hiring of a consultant on the ground. The multi-sectoral composition of the WB task team will support and monitor the project’s synergies and alignment with other WB-financed projects and associated government entities. Specifically, to assist with the operationalization of the project’s implementation arrangements, the WB team will continue to provide integrated technical and operational support from the urban/ DRM, the water and the environment units, some of which are based locally or in the West Africa Region. This includes project team members that support the Government of Senegal in the implementation of its successful Stormwater Management and Climate Change Adaptation Project - approved in 2012 and currently implementing its second additional financing – from which the project has drawn valuable lessons. The above will help identify and address major factors that may hinder the proper implementation of the activities and provide guidance on resolving any issues identified. This is particularly crucial for component 1, where the bulk of the investment is allocated. Therefore, subcomponent 1.1 investments have been pre-identified, they have informed the detailed project costing, and they will inform the work plan and procurement plan of the ACVDT. WB support will also include a continuous assessment of risks (outlined in the SORT), fiduciary requirements and inputs, and safeguards.
Financial Management and Disbursement arrangements
4. The FM assessment of the project covered mainly the PIU, ACVDT46 which is under the supervision of the Presidency. All the project activities and payments will be executed by ACVDT. The assessment focused on the FM capacity of ACVDT in terms of planning and budgeting, accounting, funds flow, financial reporting, internal controls and external auditing in place to satisfy the WB’s Policy and Directive – IPF which describes the overall FM policies
46 Decree No 2016-608 of September 28, 2016.
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and procedures. The implementing entities’ arrangements are acceptable if they are considered capable of recording correctly all budgets, transactions and balances, supporting the preparation of regular and reliable financial statements, safeguarding the entities’ assets, and are subject to auditing arrangements acceptable to the WB. The design of project FM arrangements will be also based on the Circular47 (ad hoc arrangements) applicable to government agencies. The FM assessment was carried out in accordance with the FM Manual for WB IPF Operations that became effective on March 1, 2010 and re-issued on February 10, 2017. The assessment revealed some strengths and weaknesses at the ACVDT’s level. The following major strengths were identified: (i) the FM staffing consists of a Financial Management Specialist, and a Chief Accountant with good experiences in managing donors funded projects, and an Internal Audit firm appointed by the GoB, (ii) FM system with adequate separation of duties, (iii) manual of procedures in process to be finalized as well as agency’s multi-project and multi-site financial and accounting management software namely SUCCESS are in place and functioning and fiduciary staff have been trained in the use of these tools; (iv) the external audit arrangements are designed to be conducted by the “Commissaire aux Comptes”, already appointed by the GoB, and responsible for the annual project audit. The audited financial statements of ACVDT and the project shall be submitted to the WB within six (6) months of the end of each fiscal year. The terms of reference of the mission will be agreed between the WB and the ACVDT. The main weakness identified is related to the lack of experience in managing of donor funds. Based on the assessment, it was established that the ACVDT has acceptable financial management capacity to implement the project.
5. The ACVDT will handle the overall responsibility of FM aspects of the project’s components under its oversight including budgeting, disbursement, financial reporting, supervision, management of the Designated Account, and auditing while the Operational Account B will be managed by the MOD.
6. Budgeting arrangements: The FM unit of ACDVT, in close collaboration with other involved technical units, will prepare annual work plan and budget for implementing project activities considering the project’s objectives. The work plan and budgets will identify the activities to be undertaken and the role of respective parties in implementation. Annual work plans and the budgets will be submitted to the WB for no objection not later than November 30 of each year proceeding the year the work plan should be implemented. The budgeting system under the ACVDT will build on lessons learned. The budgetary discussions will begin at least six months before the fiscal year of implementation and will consider the procurement plan as the starting point. Once the budget is approved, it will be integrated in the computerized accounting system to serve as a basis for a budget execution monthly follow- up, based on variance analysis.
Accounting and Reporting Arrangements
7. Accounting policies and procedures: The ACVDT will prepare an annex to its current manual of procedure in process to be finalized to describe the new project specificities with adequate FM arrangements that are acceptable to the WB. The accounting systems, policies, and administrative and financial procedures will be documented in this Manual of procedures.
8. Accounting staff: The ACVDT will retain staffing resources that are adequate for the level of project operations and activities and are sufficient to maintain accounting records relating to project financed transactions, and to prepare the project’s financial reports. The FM function will be carried out by a team composed of: (i) a qualified and experienced Financial Management specialist (ACVDT staff) in charge of the supervision of all project’s FM activities; (ii) a qualified and experienced Chief Accountant (ACVDT staff), and an Accountant to be hired as consultant into the Pool PAPC through a competitive process in compliance with the WB’s rules. The team will have the overall FM responsibility over budgeting, accounting, financial reporting, flow of funds, internal control, and auditing. The FM staff will have their capacity reinforced over the project implementation through the rolling out of
47 Letter No 950/MEF/DC/SGM/DGB/DPSELF of March 26, 2018.
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the training plan that includes training on IDA disbursement procedures and financial reporting arrangements, among others.
9. Accounting information systems software: The ACVDT’s accounting software will be used for the new project. This accounting software has multi-projects, multi-sites and multi-donor features, and is customized to generate its financial reports. This accounting software parameters will be configured to take into consideration the specificities of the new project.
10. Accounting standards: The ACVDT will use SYSCOHADA accounting standards which is commonly used amongst West African Francophone countries. Accounting procedures will be documented in the PIM.
Internal Control and Internal Audit Arrangements
11. Internal controls. The ACVDT’s manual of procedures which is in process to be finalized will be updated to include the specificities of the new project with specific sections on anti-corruption aspects and the existing internal control arrangements will be applied.
12. Internal audit. The ACVDT’s internal auditor appointed by the GOB48 should adequately conduct the internal audits of the project. However, this internal auditor needs to include the project within his work plan to ensure that the audits are done quarterly using a risk-based approach. These quarterly internal audit reports need to be submitted to the WB within 45 days after the end of the quarter. These audits should cover operations expenditure including per diems, travel advance, workshop costs and other soft expenditures, to ensure they are used in an economical manner and for the purposes intended.
13. Governance and Anti-Corruption (GAC) arrangements. To enhance transparency and accountability, the ACVDT will have to deal with fraud and anti–corruption in accordance with the WB Anti-Corruption Guidelines referred to in the Financing Agreement will apply.
Funds Flow and Disbursements Arrangements
Flow of Funds: 14. The Autonomous Amortization Fund (Caisse Autonome d'Amortissement, CAA) is the assigned representative of the Recipient for the mobilization of IDA funds. Withdrawal applications will be prepared by the ACVDT’s FM Specialist, signed by a designated signatory or signatories (designated through an authorized signatory letter (ASL) signed by the Minister of Finance) and sent to the WB for processing. This procedure applies to all WB-financed projects in Benin. Funds will flow from the IDA Account through a Designated Account to be opened at the Central Bank of Benin (BCEAO). The funds would be released to Operational Accounts (A and B) to be opened in reputable commercial banks. The Operational Account A would be managed by ACVDT and the Operational Account B by the MOD. Cash withdrawal transactions from the operational Accounts would be authorized respectively by the ACVDT’s FM Specialist and Director, and the MOD’s Managing Director and Finance Director. The accounts are set up to fund eligible expenditures based on the approved annual activity plans. The ceilings of the designated accounts would be equivalent to cash forecast for two (2) quarters, as specified in the quarterly unaudited Interim Financial Reports (IFR) and the related templates. The ACVDT will submit applications using the electronic delivery tool, “e-Disbursements”, available at the WB’s Client Connection website/web-based portal. The Authorized Signatory Letter signed by the GoB will include authorization for the designated signatories to receive Secure Identification Credentials (SIDC) from the WB for delivering such applications by electronic means.
48 Circular Note N-146/BAl/2018 of August 29, 2018.
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Annex 1 Figure 1.1: Flow of Funds Diagram
IFR / WA / DP IDA Account (Washington) at the World Bank Direct payment
Designated Account (BCEAO)
managed by CAA
Operational Account A Operational Account B (reputable commercial bank) (reputable commercial bank) managed by the ACVDT managed by the MOD
Suppliers / Service Providers
Transfers of funds
Flow of documents (invoices, good receipt notes, purchase order,
Payment to suppliers
15. Disbursements under the project will be report-based. The ACVDT will use report-based disbursement mechanism each quarter. Not later than 45 days following the end the quarter, they will elaborate and transmit to the WB Interim Unaudited Report (IFR) that will serve as basis for disbursement. IFR will be supplemented by (i) WB reconciliation statements of the designated account; (ii) cash flow forecast for the following semester; and (iii) the list of payments against contracts that are subject to WB prior review.
16. The DA will be replenished through IFRs on quarterly basis. Other various disbursement methods (reimbursement, direct payment and special commitment) will be available for use under the project. Further instructions on the withdrawal of proceeds will be outlined in the disbursement letter and details on the operation of
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the DA will be provided in the project Financial and Accounting Manual.
17. Disbursements by category. The table below specifies the categories of eligible expenditures to be financed out of the proceeds of the Financing, the amounts under each category, and the percentage of expenditures to be financed for eligible expenditures in each category.
Annex 1: Table 1.1 Category Amount of the Credit Allocated Percentage of Expenditures to (expressed in EUR million) be finances (inclusive of taxes) (1) Goods, non-consulting services, consulting 5,970,000 100 services, operating costs and training for the Project, except for Part A.1 of the Project (2) Goods, works non consulting, and 83,130,000 100 consulting services under Part A.1 of the Project
TOTAL AMOUNT 89,100,000
18. Retroactive Financing. Withdrawals up to an aggregate amount not to exceed EUR 722,000 (US$812,000 equivalent) may be made for payments prior to the signature date of the Credit but on or after July 30, 2018 for eligible expenditures.
Financial Reporting Arrangements
19. The ACVDT will prepare quarterly un-audited IFRs in form and content satisfactory to the WB, which will be submitted to the WB within 45 days after the end of the quarter to which they relate. The quarterly IFR will include the following information: (i) Statement of Sources and Uses of Funds; (ii) Statement of Uses of Funds by project Activity/Component including comparison with budget for the quarter and cumulative; and (iii) the Designated and project Account Reconciliation Statements and related bank statements.
20. External Audit Arrangements. The texts, creating ACVDT, state that the annual financial statements of the Agency will be audited by a Statutory auditor “Commissaire aux Comptes”, proposed by the Minister of Finance and appointed by Decree from the GoB Council of Ministers. At the time of the assessment, the auditor was appointed. The annual audited financial statements of ACVDT - inclusive of the transactions in the DA, and the transaction accounts - will serve as basis for the annual financial assurance, that is required by the WB. The annual audit of the project will be conducted by the “Commissaire aux Comptes”. The Auditor will express an opinion on the Annual Financial Statements and perform his audit in compliance with International Standards on Auditing. The auditor will be required to prepare a Management Letter detailing observations and comments and providing recommendations for improvements in the accounting system and the internal control environment. The external auditor will, especially, review each year a reasonable sample of the subsidized concession operations to ensure that activities were completed pursuant to the agreed procedures and that funds were used for the purposes intended. The audited financial statements of ACVDT as well as the project shall be submitted to the WB within six (6) months of the end of each fiscal year. The terms of reference of the mission will be agreed between the WB and ACVDT.
21. In accordance with WB Policy on Access to Information, the Borrower is required to make its audited financial statements publicly available in a manner acceptable to the Association; following the WB’s formal receipt of these statements from the borrower, the WB also makes them available to the public.
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Annex 1: Table 1.2: FM action plan Issue Remedial action recommended Responsible Completion Effectiveness entity conditions
Staffing Recruit (i) a qualified and experienced Accountant to ACVDT Three months N work with the existing FM specialists of the ACVDT as after the project’s Financial Management team effectiveness Information Configure ACVDT’s accounting software parameters to ACVDT Three months N system take into consideration the specificity of the new project after accounting effectiveness software Financial Format, content, and frequency of the IFR were agreed ACVDT During the N reporting: IFR during project negotiation negotiation Administrative, Develop an annex to ACVDT’s current manual of ACVDT Prior to N Accounting procedure to describe the new project specificities that effectiveness and Financial also includes detailed procedures describing the system Manual of to pay recurrent expenditure with specific sections on procedures anti-corruption aspects. Internal audit Include the project internal auditing in the annual work- ACVDT Six months program of the GOB appointed Internal Auditor who will after carry out quarterly internal auditing. effectiveness Submit quarterly internal audit reports to the WB within 45 days after the end of the audit period. External Submit the terms of reference of the statutory ACVDT Six months N financial independent auditor “Commissaire aux Comptes” to the after auditing WB no-objection effectiveness
22. Implementation Support Plan. FM implementation support missions will be carried out twice a year for the four countries based on the substantial FM residual risk rating. Implementation Support will also include desk reviews such as the review of the IFRs and audit reports. In-depth reviews and forensic reviews may be done where deemed necessary. The FM implementation support will include FM training missions for all implementing entities and will be an integrated part of the project’s implementation support plan.
FM Activity Frequency Desk reviews Interim financial reports review Quarterly Audit report review of the project Annually Review of other relevant information such as interim internal control Continuous as they become available systems reports. On site visits Review of overall operation of the FM system Twice per year (Implementation Support Mission) Monitoring of actions taken on issues highlighted in audit reports, As needed auditors’ management letters, internal audit and other reports Transaction reviews (if needed) As needed Capacity building support FM training sessions During implementation and as & when needed.
23. The conclusion of the assessment is that the FM arrangements in place meet the WB’s minimum FM
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requirements under WB Policy and Directive for IPF Operations, and subject to the implementation the FM action plan above, are therefore adequate to provide, with reasonable assurance, accurate and timely information on the status of the project required by WB. The overall FM risk rating is Substantial.
Procurement
24. The GoB will carry out procurement under the proposed project in accordance with the WB’s “Procurement Regulations for IPF Borrowers” (Procurement Regulations), dated July 2016 and revised in November 2017 and August 2018 under the “New Procurement Framework (NPF), and the “Guidelines on Preventing and Combating Fraud and Corruption in Projects Financed by IBRD Loans and IDA Credits and Grants”, dated July 1, 2016, other provisions stipulated in the Financing Agreements.
25. All procuring entities as well as bidders, and service providers, i.e. suppliers, contractors and consultants shall observe the highest standard of ethics during the procurement and execution of contracts financed under the project in accordance with paragraph 3.32 and Annex IV of the Procurement Regulations.
26. The GoB shall prepare and submit to the WB a General Procurement Notice (GPN) and the WB will arrange for publication of GPN in United Nations Development Business (UNDB) online and on the WB’s external website. The Borrowers may also publish it in at least one national newspaper.
27. The GoB shall publish the Specific Procurement Notices (SPN) for all goods, works, non-consulting services, and the Requests for Expressions of Interest (REOIs) on their free-access websites, if available, and in at least one newspaper of national circulation in the Borrower’s country, and in the official gazette. For open international procurement selection of consultants using an international shortlist, the Borrower shall also publish the SPN in UNDB online and, if possible, in an international newspaper of wide circulation; and the WB arranges for the simultaneous publication of the SPN on its external website.
28. The project design will provide a window to enable the Borrower to carry out Advance Contracting and Retroactive Financing in accordance with Section V (5.1 & 5.2) of the Procurement Regulations for IPF Borrowers. Withdrawals up to an aggregate amount not to exceed EUR 722,000 (US$812,000 equivalent) may be made for payments prior to the signature date of the Credit, but on or after July 30, 2018 for eligible expenditures.
Institutional and Implementation Arrangements for Procurement:
29. The project will be implemented by ACVDT for day-to-day implementation, including managerial, liaison and coordination, evaluation, supervision and dissemination functions. To strengthen its capacity, ACVDT will hire a team of consultants, comprising a Coordinator with an engineering background, an accountant, a procurement specialist, an environmental and social safeguards specialist, and a M&E that will report to the ACVDT.
30. The ACVDT will delegate contract management under subcomponent 1.1 to contract management consultants (MOD) that will be competitively selected, and which shall have project management experience, a proven track record in implementing donors-financed projects, are familiar with the nature of the proposed works and have the best capacity in terms of procurement, financial management and supervision of comparable activities. The delegated activities will be specified in the conventions between the ACVDT and MOD.
31. The ACVDT has nominated the Person in charge of Procurement who should establish a Procurement Commission. To avoid workload to the Person in charge of procurement, the recruited procurement consultant will be primarily responsible for (i) ensuring the quality assurance of the documents developed by the MOD; (ii)
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participate in bid or proposal evaluations; (iii) conduct the procurement process of the non-delegated activities; and (iv) produce quarterly reports. The documents (BD, RfP, BER) conjointly elaborated by the Procurement Commission and the ACVDT will be submitted for decisions of the procurement control commission of the ACVDT or to the decisions of the National Procurement Control Directorate (Direction Nationale de Contrôle des Marchés Publics under the Ministry of Finance depending of the competency of the procurement control threshold. The procurement process of the delegated activities will be conducted accordingly to the PIU procedure found acceptable by IDA. The procurement commission and the procurement control commission will be established in accordance with articles 10 to 17 of the new procurement code No 2017-04 dated of October 19, 2017.
32. Project Procurement Strategy for Development: As part of the preparation of the project, the GoB (with assistance from the WB) has prepared the PPSD which describes how procurement activities support project operations for the achievement of project development objectives and deliver Value for Money (VfM). The procurement strategy is linked to the project implementation strategy ensuring proper sequencing of the activities. It considers institutional arrangements for procurement; roles and responsibilities; thresholds, procurement methods, and prior review, and the requirements for carrying out procurement. It also includes a detailed assessment and description of state government capacity for carrying out procurement and managing contract implementation, within an acceptable governance structure and accountability framework. Other issues considered include the behaviors, trends and capabilities of the market (i.e. Market Analysis) to respond to the procurement plan.
33. The recruitment of civil servants as individual consultants or as part of the team of consulting firms will abide by the provisions of paragraph 3.23 (d) of the Procurement Regulations.
34. Procurement Plan: The GoB has prepared a detailed 18-month procurement plan that will be updated in agreement with the WB Team annually or as required to reflect the actual project implementation needs and improvements in institutional capacity.
35. The procurement works activities are related to the construction of new and rehabilitation of existing priority drainage infrastructure, such as channels and retention facilities, including the use of nature-based solutions (gabions/reno mattresses, retention ponds, strengthening of slopes using vegetation) and their dredging as needed. The procurement activities that are critical for the success of this operation will consist of contracts for infrastructure and equipment for flood prevention and mitigation through appropriate urban planning and management.
36. Training, Workshops, Study Tours, and Conferences: Workshops, Seminars and Conferences. Training activities would comprise workshops and training, based on individual needs, as well as group requirements, on-the-job training, and hiring consultants for developing training materials and conducting training. Selection of consultants for training services follows the requirements for selection of consultants above. All training and workshop activities (other than consulting services) would be carried out on the basis of approved Annual Work Plans / Training Plans that would identify the general framework of training activities for the year, including: (i) the type of training or workshop; (ii) the personnel to be trained; (iii) the institutions which would conduct the training and reason for selection of this particular institution; (iv) the justification for the training, how it would lead to effective performance and implementation of the project and or sector; (v) the duration of the proposed training; and (vi) the cost estimate of the training. Report by the trainee(s), including completion certificate/diploma upon completion of training, shall be provided to the Project Coordinator and will be kept as parts of the records, and will be shared with the WB if required
37. A detailed training and workshops’ plan giving nature of training/workshop, number of trainees/participants, duration, staff months, timing and estimated cost will be submitted to IDA for review and approval prior to initiating the process. The selection methods will derive from the activity requirement, schedule and circumstance. After the
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training, the beneficiaries will be requested to submit a brief report indicating what skill have been acquired and how these skills will contribute to enhance their performance and contribute to the attainment of the project objective.
38. Operational Costs: Operational costs financed by the project would be incremental expenses, including office supplies, vehicles operating cost, maintenance of equipment, communication costs, rental expenses, utilities expenses, consumables, transport and accommodation, per diem, supervision costs, and salaries of locally contracted support staff. Such services’ needs will be procured using the procurement procedures specified in the PIM accepted and approved by the WB.
39. Procurement Manual: Procurement arrangements, roles and responsibilities, methods and requirements for carrying out procurement shall be elaborated in detail in the Procurement Manual which may be a section of the PIM. The PIM shall be prepared and adopted by the Borrowers and agreed with the WB not later than seven days after effectiveness.
40. Procurement methods: The Borrowers will use the procurement methods and market approach in accordance with the Procurement Regulations.
41. Open National Market Approach is a competitive bidding procedure normally used for public procurement in the country of the Borrower and may be used to procure goods, works, or non-consultant services provided it meets the requirements of paragraphs 5.3 to 5.6 of the Procurement Regulations.
42. The thresholds for particular market approaches and procurement methods are indicated in the below table. The thresholds for the WB’s prior review requirements are also provided in the table below:
Annex 1 Table 1.3: Thresholds for Procurement Methods, and Prior Review
Expenditure Contract (C) Value Contracts Subject to No Procurement Method Category Threshold* [eq. US$] Prior Review / [eq. US$] Open Competition International Market C ≥ 10,000,00 ≥ 10,000,000 Approach and Direct Contracting 200,000 < C < Open Competition National Market 1 Works None. 10,000,000 Approach
C ≤ 200,000 RfQ None
Open Competition International Market C ≥ 1,000,000 ≥ 2,000,000 Approach and Direct Contracting Goods, IT and non- 2 consulting services 100,000 < C < Open Competition National Market None 1,000,000 Approach C ≤ 100,000 RfQ None
C < 100,000 For Consulting Services None National shortlist for 3 selection of consultant firms For Engineering and Construction C ≤ 300,000 None Supervision
4 International C ≥ 100,000 For Consulting Services ≥ 1,000,000
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shortlist for selection For Engineering and Construction C > 300,000 ≥ 1,000,000 of consultant firms Supervision Selection of 5 Individual All Values All Approaches ≥ 300,000 consultants Direct contracting As agreed in the 6 All Values Procurement Plan Training, Based on approved Annual Work Plan Annual Work Plan & 7 Workshops, Study All Values & Budgets (AWPB) Budgets (AWPB) Tours Note: (i) The thresholds are for all countries unless indicated otherwise for specific items; (ii) Thresholds in above table are for the initial procurement plan for the first 18 months. Thresholds will be revised periodically based on re-assessment of risks. All contracts not subject to prior review will be post-reviewed.
43. Procurement Risk Rating: The project procurement risk prior to the mitigation measures is “Substantial”. The risk can be reduced to a residual rating of “Moderate” upon consideration of successful implementation of the mitigation measures.
44. The risks and mitigation measures are provided in the table below.
Annex 1 Table 1.4: Procurement Risk Assessment and Mitigation Action Plan
Procurement Risk Mitigation measure Responsibility & Risk level Deadline Initial/residual Benin Substantial/Moderate
ACVDT Insufficient procurement capacity Recruit a procurement specialist under ACVDT Substantial the Person in charge of procurement Within 3 Months who will be devoted to the project after signing of the Financing Agreement Non-establishment of the Establish the procurement commission ACVDT Substantial procurement commission and the and the procurement control Within 3 Months procurement control commission commission with accordance articles after signing of 10 to 17 of the new procurement code the Financing No 2017-04 dated of October 19, 2017 Agreement Weak capacity of the procurement Capacity building will be provided by ACVDT and WB Moderate specialist, the procurement the WB on NPF procurement. During project commission, the procurement implementation control commission, the National procurement control directorate in NPF procedures The procurement procedures of Amend the existing manual to ACVDT Substantial the current project will be introduce procurement arrangement Before reflected in the existing manual planned for this project effectiveness Long delay of the procurement Delegate a prior control of activities ACVDT, IE, High process related to contract management DNCMP (MOD) from DNCMP Before to ACVDT that will be reinforced by effectiveness consultants recruited in line with the
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provisions of Article 2 of Decree No. 2018-224 of 13 June 2018. Establish mechanism for monitoring execution of different procurement process phases Sensitize actors, organs, authorities involved in procurement process to respect the regulatory deadlines of procurement code in force
Safeguards
45. Support to environmental and social safeguards will need staff (WB specialists) missions to project sites twice a year. Support will include capacity building on safeguards requirements, and on implementation of ESMPs and RAPs for the investments funded by the project. Implementation support for the GoB safeguard team in the immediate term will include: assist with training and capacity building of the Environmental and Social Safeguards specialists, recruited in the ACVDT to support the implementation of the project; and provide technical assistance in the bidding and contracting for construction works and due diligence prior to work on the ground. The specialists will ensure that full environmental and social functions are carried out in a timely and effective manner, including:
● Ensure that the ACVDT takes ownership over the implementation of the environment and social safeguards documents (frameworks and plans) in the WB-financed basins; ● Ensure the implementation of the pest and pesticides management plan; ● Ensure that companies respect the environmental commitments laid out in the ESMF; ● Carry out site visits of construction sites to ensure social and environmental measures are addressed; ● Intervene urgently in any incident or accident that requires verification and monitoring and ensure reporting; ● Notify any breach of commitment to environmental and social management; ● Inform affected beneficiaries and NGOs of their rights and obligations regarding project implementation; ● Ensure both contractors and supervising engineers comply with the contractual terms before and during construction works; ● Ensure that the complaints and grievances of the population are identified and properly addressed; ● Monitor and manage issues related to labor influx (including GBV/SEA); ● Ensure that national regulations and safeguard policies of the WB are respected in the phases of preparation and during the implementation of WB-financed investments.
46. The GoB should make sufficient budget allocations to ensure all safeguards documents are implemented in compliance with WB policies. It is also suggested to carry out technical inspections of the safety of the infrastructure through the regular monitoring, supervision and evaluation of the project. The GoB, through the project, will also provide support to strengthen the environmental and social capacities of members of the project Steering and Technical Committees by organizing awareness sessions and training on understanding environmental and social safeguard documents. To ensure documents are shared and backed-up as necessary, the project will organize a training workshop and capacity building of stakeholders involved in environmental and social management of the project. Furthermore, the workshop will help participants understand the environmental and social challenges of the project and potential impacts, environmental regulations applicable to the project; guidelines and backup tools from the WB; the provisions of the ESMF and ESIA, the procedure for selection/environmental screening of sub-projects, the prescriptions from the ESMPs and RAPs and environmental responsibilities in the implementation of good environmental and social practices; environmental surveillance of construction sites and environmental monitoring.
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Monitoring and Evaluation
47. Adequate support to M&E activities will need WB-staffed missions at least twice a year. ACVDT will be responsible for the overall coordination of M&E activities, their consolidation, and preparation of periodic fiduciary and M&E reporting, including impact and output indicators as well as annual audit of project’s financial statements. Under the M&E plan, units of measurement, baseline values, targets, frequency, data source/methodology and responsibility for data collection will be defined for each outcome indicator and each intermediate level indicator. The data is expected to inform the WB’s semi-annual implementation support missions to track project progress in terms of outcomes in the implementation status and results (ISRs) reports, and for the final evaluation of the project in the implementation completion and results (ICR) report. Reporting and use of M&E data as well as assessment of capacity will be described and rated in the ISRs and will be reviewed at project mid-term. Any changes required will be made promptly through restructuring, as needed. A M&E specialist in ACVDT is being recruited.
48. M&E capacity support under the project will include technology, equipment, training on data collection, content management, information updates and basic system troubleshooting and maintenance. Efforts will be made to fully empower national institutions in the M&E of the project outcomes, ensuring that it is strongly linked to the national M&E system. The ACVDT will be responsible for producing timely and pertinent information that will become a key management tool for decision makers.
Overall Project management
49. The Task Team, which includes staff based in the Country Office, will provide regular supervision of all operational aspects, as well as coordination with the client and among WB team members, through a minimum of two implementation support missions per year. The ACVDT will undertake mid-term independent audits. The Implementation Arrangements and Support Plan will be reviewed during each mission (semi-annually) to ensure that it continues to meet the implementation support needs of the project. Resource Time Focus Skills Needed Partner Role Estimate ● TTL ● Civil engineer ● Hydrology Expert ● Work plans for Components 1, 2, 3 ● DRM Expert ● Communication and awareness raising of ● Solid Waste Expert project ● Water Expert First 12 ● Implementation start of Component 1, 2, Implementation ● Environment Expert US$170,000 months 3 Support ● FM Expert ● Policy dialogue with government ● Procurement Expert ● Information sharing and coordination ● Environment and Social with other donors, agencies Safeguard Expert ● Monitoring and Evaluation ● Implementation of all components’ activities 12‐48 US$100,000 per ● Technical quality control Same as above months year ● Collection of M&E data ● Adherence to fiduciary and safeguards
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policies and procedures ● Policy dialogue with GoB ● Information sharing and coordination with other donors, agencies ● Finalization of component activities 48‐60 US$100,000 per ● Collection of end‐line M&E data months year ● Final technical audit
Skills Mix Required
Number of Staff Skills Needed Number of Trips Comments Weeks
TTL 5 at least 2
DRM 5 at least 2
Water 5 at least 2
Civil Engineer 6 at least 2
Hydrology Expert 4 at least 1
Solid Waste Expert 4 at least 1
Procurement Specialist 6 at least 2
Financial Management Specialist 4 at least 2
Environmental Safeguards Specialist 8 at least 2
Social Safeguards Specialist 8 at least 2
Environment Expert 4 as required
Monitoring and Evaluation Specialist 4 at least 2
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ANNEX 2: TECHNICAL ANNEX COUNTRY: Benin Benin ‐ Stormwater Management and Urban Resilience Project
1. Most of the project’s investments are allocated to component 1: Stormwater Drainage Investment and Community Engagement for Flood Risk Reduction and Climate Change Adaptation (IDA US$93.8 million), The objective of component 1 is to reduce flood risks in selected basins of Cotonou through the construction and rehabilitation of drainage infrastructure. The current drainage networks are saturated and cannot withstand the diluvian rain and flood loads because of lack of investment, inadequate maintenance and weak institutional capacity. As a result, many of the existing drains and channels are non-functional and clogged with sediments, vegetation and solid wastes, that are exacerbating the effects of flooding. This in turn is leading to environmental risks that trigger health problems notably affecting the poor who are more likely to reside in less developed and flood-prone areas (more exposed to natural hazards in general) where the drainage system is limited or overloaded. The number of people who are exposed to flood risks and natural hazards in general has grown with the rapid and uncontrolled urbanization. Finally, Cotonou has seen record precipitation, rain intensity and flood levels in recent years (2010) for which the initial design of the drainage infrastructure is not adapted anymore, which is also exacerbating the effects of flooding.
2. The institutional stakeholders operating in Cotonou’s drainage sector need strengthening. There are multiple players involved in stormwater management in Benin, with various responsibilities (Ministry for Sustainable Development, Ministry of Water and Mines, Ministry of the Interior, Ministry of Health and other governmental agencies, and municipalities). There is a lack of clear organizational and sustainable mechanisms for the construction and O&M of stormwater infrastructure. The 1999 Decentralization Law has given cities the responsibility for the preparation and implementation of local development plans and the provision of basic social services and infrastructure. There is a need to have greater involvement at the municipal level in disaster risk reduction (and management in general) to align with Benin’s decentralization policy and ensure that plans and policies are formulated at the level that is closest to the communities and thus with a higher chance of success and higher impacts. The lead agency proposed to be responsible for the execution of Component 1 is the PIU i.e. the ACVDT. The implementation of the activities under Component 1.1 would be delegated to contract management consultants, i.e. the MOD, who will perform the procurement, administrative and financial management, as well as preparation and launching of consultations for the selection of engineering consulting firms, contractors, and consulting firms for the supervision of works.
Preliminary Mapping of Flood-prone Areas in Cotonou
3. Flood mapping. As part of the PUGEMU49, a study was completed in 2015 to identify and map flood-prone areas and equip the relevant municipalities with preventive territorial management tools for risk management and flooding situations. In Cotonou, preliminary flood zones were identified and mapped at a communal scale (see figure 1 below) and at the arrondissement level50. The superimposition of information gathered at the level of the planimetric documents (topographic map, land cover map, satellite images, DEM) and in the field provided valuable information on the flood zones. The delineation of the flood zones was made from the identification of topographically low areas and water heights. The map was then generated from the data of the Digital Terrain Model (DTM). From these topographic maps, the constituent elements of the flood zones (streams, swampy areas, water bodies) have been digitized.
49 Benin Emergency Urban Environment Project (P113145) financed by the WB 50 Cotonou has 13 arrondissements
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4. Flood zones. The map of the flood areas of Cotonou (figure 2.1 below) was carried out by considering two return periods: 2 years and 10-years. Flood zones based on a 2-years return period concern 25,16 km2, or 31.85 percent of the communal territory of Cotonou, whereas the flood areas based on a 10-year return period concern 38 km2, or 48.72 percent of the communal territory of the city. In general, the critical flood zones are located along the lake and the Cotonou lagoon, and in the areas where altitudes are around 4 m above sea level. In Cotonou, the highest daily and monthly precipitations are between May and July according to historic rainfall patterns. It is during that period of about three months that floods are generally recorded. During this great flood season, the Lake Nokoué lake overflows and inundates the surrounding localities for one to three months.
Annex 2 Figure 2.1 : Flood zones in Cotonou
Planned interventions
5. The proposed Component 1 will finance construction of new and rehabilitation of existing priority drainage infrastructure in and around three major watersheds in the city of Cotonou. Y (southeast of the city, flowing into the Lagoon that links Lake Nokoué with the Atlantic Ocean), Pa3 (northwest, close to Lake Nokoué), and AAc (southwest, close to the Atlantic Ocean). The sites were selected by the GoB based on past interventions of each donor in specific basins: for instance, the WB-financed project PUGEMU had interventions in those 3 basins. Specifically, the project will in total finance the construction of 28.07 km of drains and storm gutters, 7.27 km of gabions/reno mattresses, and the rehabilitation of three retention ponds of a total storage volume of 431,698
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m3 will be rehabilitated to reduce the impacts of cyclical floods for over 84,933 residents including from the occurrence of vector-borne (malaria) and of water-borne diseases. Since the drainage system has been designed for a 10-year return period, affected people and local stakeholders need to be informed about the residual risks and adaptation measures required in case of extreme events; this is planned through the awareness-raising campaigns in component 3. The table below summarizes the characteristics of the infrastructure interventions, including nature- based solutions (gabions, trees, and vegetation planted):
Annex 2 Table 2.1: Project interventions in the three basins of Cotonou
Length of Length of Capacity of Length of Area of drainage Area/ number of gabions/ retention roads paved Basin drainage Beneficiaries channels planted vegetation reno basins with concrete basins & gutters mattresses rehabilitated interlocks Grass Bush/Tree (m2) (ha) number (km) (km) (km) (m2) (number) (m3) Y 135 12,285 5.473 0 80 0 - 1.595 77,608 Pa3 116 22,598 12.752 2,155 410 1.796 5.555 104,771 AAc 242,168 (Zones 1 680 50,050 9.840 6,572 935 5.476 4.980 326,927 and 2) 319,776 m2 Total 931 ha 84,933 28.07 km 8,727 m2 1,425 7.27 km 431,698 m3 12.13 km
6. The GoB’s stormwater drainage program in Cotonou (PAPC) with the different basins and associated financing/donor is shown in the GoB’s map below 51:
51 The acronym BM indicates WB-financed interventions. BOAD: Banque Ouest-Africaine de Développement ; AFD: Agence Française de Développement ; BID: Banque Islamique de Développement ; BAD: Banque Africaine de Développement ; BEI: Banque Européenne d'Investissement.
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Annex 2 Figure 2.2: Overview of planned Cotonou Stormwater Program
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7. Project design basis. The design of the stormwater system was based on (i) the Cotonou Drainage Master Plan (developed in 2015 under the WB-financed project PUGEMU), (ii) a detailed design study financed by the GoB in 2018 in preparation of the proposed project that included a hydraulic and hydrologic study (finalized in January 2019). The hydraulic and hydrologic study and modeling (two return periods of 5 and 10) was done on the overall system (34 basins) because of the hydrodynamics and interrelation between the basins.
8. Recommendations from the Drainage Master Plan. The drainage master plan recommended the following actions: (i) Complete urban master plan documents countrywide, with a Sanitation and Drainage Master Plan for the Grand Nokoué Municipalities (Cotonou, Abomey-Calavi, Porto-Novo, Ouidah and Sèmè-kpodji), (ii) Increase flood zone elevation threshold in Cotonou by 0.3 m, from +1.90 currently to +2.20 above MSL, (iii) Complete primary collector network, by constructing secondary and tertiary drainage system where it remains to be built, and pave roads where new drainage is foreseen to prevent silting due to erosion, (iv) Adopt design criteria of T=2 years for secondary and tertiary drainage system, and T=5 years for primary collectors.
9. Drainage infrastructure was sized for a return period of 10 years. The design also considers the hypotheses of cumulative effects of gradual changes in hydrology associated with climate change (4 percent to 21 percent of increase in precipitation, see detailed design report page 93), to ensure their adequacy in the medium/long term. The technical design of the discharge infrastructure into the sea considers the expected sea level rise resulting from climate change (See detailed design page 95). The GoB hired an international engineering consulting firm to produce the detailed design study and mobilized its technical staff. The drainage system will channel and evacuate -to the extent possible- the natural flow of the stormwater which cannot be drained adequately (anymore) in the present conditions and causes devastating impacts at every severe rainfall. The drainage channels will be covered, especially in densely populated areas to reduce the risk of clogging and thus reducing O&M costs. The project will also help the GoB and municipality address the issue of O&M (presented in separate paragraph below).
10. Design considers overflow from the Lake Nokoué. One of the main flood risks is the overflow from the Lake Nokoué which has a direct impact on the outlets of existing storm drain facilities. This risk has been analyzed in detail - with several hydraulic simulation tests on the level of the Lake Nokoué and the lagoon during the development of the 2015 Drainage Master Plan and again in the detailed design study for this project. Hence, these effects have been considered in the design of the project-financed structures, for instance through the adoption of adequate freeboard and the use of check valves at the outfall of the storm drains to avoid backflow from the Cotonou lagoon and Lake Nokoué.
11. Proactive consideration of retention ponds. Importantly and responding to the hydrologic characteristics of the city of Cotonou, the proposed works will include the rehabilitation of retention ponds. This can help reduce the size of the drainage channel downstream as well as investment costs. The retention basin water regulation will be managed by concrete weirs and culverts (non-mechanical devices to avoid failure of the system). Sustainable management of these ponds and wetlands will be necessary to ensure the whole system functions as planned, but also to mitigate the environmental and sanitation risks, including the potential increase of water borne diseases. The rehabilitation and conservation of these basins are critical to maintain the performance of the drainage system and concurring activities.
12. Design considers land subsidence. Another factor taken into consideration is land subsidence in Cotonou. Cotonou presents a complex shallow geology near the coast. According to the GoB, the city has seen a stabilization rate of land subsidence and water level in recent years due to the successful implementation of intensive groundwater use control. In this project, the road rehabilitation will involve the use of concrete interlock blocks which tolerate subsidence better then asphalt. Furthermore, to improve the quality of the proposed pavement, a layer of “mixed yellow sand” (yellow sand and 5 percent of cement) will be used under the concrete interlocking blocks
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that are set to be used (an improvement over previous paving projects in the city). Rigorous technical civil works supervision will be performed. The technical specifications and standards will be detailed in the bidding documents to allow proper drainage installation withstanding land subsidence. The groundwater table level will be monitored in the basins once the drainage system is put in place.
13. Groundwater control will be adequately addressed throughout the drainage infrastructure construction. To control the potential of slips of earth in open trenches due to the ground water, the contractor will use the pumping system called “rabanappe” which has been included in the bid item and should be accounted for in the unit price.
Details on project areas and proposed (civil works) interventions:
Basin Y
14. Basin Y covers the areas of Enagnon and Fifadji Houto in the 4Th Arrondissement. The impacted population is about 12,285 inhabitants, with the ethnic and linguistic characteristic of Fon (43.7%) Xla (31.1%), and Adja (10.7%) communities. According to the Gender Assessment52, women represent 38.9% of the basin population, and vulnerable groups are primarily children, young people, and the elderly (see age distribution in the graph), with 1% of the basin population being characterized as disabled. Most basin residents (89%) are poor, with 54% considered extreme poor, and 35% as poor.
15. The basin covers the area between the RNIE2 to the north and the estuary of the Cotonou Lagoon to the southwest. The surface of the basin is occupied in its northern sector by industrial plants and warehouses (SONACOP, SOBEBRA, etc.). According to the Gender Assessment, most surveyed households continue to evacuate wastewater on the streets or in the environment, while illegal dumping of solid waste is also observed in public places and in drainage infrastructures, even though 99% of surveyed households declare to be subscribers to a garbage collection system. Only 52% of surveyed household have private latrines, and 47% use septic tanks (public or private), and the rest continues to practice open defecation.
16. Under the project, a 955 m, 450mm x 160mm storm drain will be constructed at the intersection of streets No. 4.039 and 4.026 with an outlet to the lagoon. The information collected during the detailed design study indicates the presence of two HDPE Pipes Ø 315 in the right-of-way of the same street and intended for the evacuation of sewage from the Société Benin de Brasserie (SOBEBRA). It is expected that the private pipes will be temporarily removed during construction and placed back.
17. In addition to the primary storm drain, it is planned the development of the street No. 4.028 - 4.026 and two adjacent streets No. 4.020 and 4.012 for a total of 1,595 meters. These street sections will be paved (concrete interlocks) and the works will also include the construction of side gutters that will discharge into the primary storm drain.
52 The Gender Assessment was conducted by the Bank during February and March 2019 as part of project preparation.
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Annex 2 Figure 2.3 : Location of drainage investment in Basin Y
Source: Detailed Project Designs, IGIP Afrique, 2019
Basin Pa3
18. The Pa3 basin covers the areas of Kouhounou and Vèdoko in the 10Th Arrondissement. The population impacted is about 22,598 inhabitants, with the ethnic and linguistic characteristic of Fon (73.7), Adja (11%), and Yorouba (9.3%) communities. According to the Gender Assessment, women represent 65.6% of the basin population, and vulnerable groups are primarily children, young people and the elderly (see age distribution in the graph), with 2,4% of the basin population characterized as disabled. With 94.9%, most basin residents are poor (73.7% extreme poor, 21.2% poor). Eighty-four percent of surveyed household have private latrines, 58% use septic tanks (public, or private), and open defecation is an issue for the flood zones around the Sètovi basin. While 42.4% of surveyed households subscribe to a waste collection system, 50% stated to dump their solid waste in the flood zones, while 3.4% burn and 4.2% burry their waste.
19. Under the project, works in the Pa3 basin will include the construction of gabions/reno mattresses, paving and drainage of streets, construction of a 470 m storm drain 2 x 1.25m x 1.50m starting from the north-west fence of the Communauté Electrique du Benin (CEB) and following the street No. 10.123 to end upstream of the Pa3. The storm drain will end on the street No. 10.224 on which the construction of a box culvert 2 x 2.00m x 2.00m is planned as part of the works. The storm drain will connect to Pa3 through the box culvert. The gabions/reno mattresses to be constructed will have a length of 890 m and be placed between the upstream part of Pa3 located between 10,224 Street and 10,079 Street. The Pa3 basin also includes an existing retention pond with a storage volume of 104,771 m3. This retention pond will be rehabilitated. For the improvement of drainage in the watershed, paving (concrete interlocks) and construction of storm gutters are proposed on the following streets:
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• Street No. 10.174-10,176 (600 m); 1.178-10.180 (725 m): Streets of right of way 20 m + sidewalks including side gutters • Street No. 10.140 (490 ml); 10.137 (625 m); 10.146 (400 m): Streets of right of way 15 m + sidewalks including side gutters • Street No. 10.212 (235 m); 10.208 (220 m); 10.210 (220 m); 10.182 (180 m): Streets of right of way 12 m + sidewalks including side gutters • Street No. 10.123; 10,123 bis (470 m); 10,125 (150 m); 10.127 (150 m): Streets of right of way 10 m + sidewalks including side gutters • Street No. 10.113 is already paved with right of way of 15 m but profile correction on 300 m will be done
Annex 2 Figure 2.4: Location of drainage investment in Basin Pa3
Source: Detailed Project Designs, IGIP Afrique, 2019
Basin AAc
20. Basin AAc is divided into two zones. The project will intervene in these two zones (zone 1 and 2), with a combined population estimated at 50,050 inhabitants, with the ethnic and linguistic dominance of Fon (76%) and Adja (12,5%) communities. According to the Gender Assessment, women represent 53.1% of the basin population, and vulnerable groups are primarily children, young people, and the elderly (see age distribution in the graph), with 0.7% of the basin population being characterized as disabled. Most basin residents (93.7%) are poor, with 51% considered extreme poor, and 42.7% as poor. Of the extreme poor households, 72.6% say that their homes are flooded, which is the case for 21.9% of poor households and only 5.5% of rich households. Furthermore, 90.6% of surveyed household have private latrines, 84.4% use septic tanks (public, or private), and open defecation was not reported as an issue. 69.8% of surveyed households declare to subscribe to a garbage collection system, but illegal dumping continues in Aïbatin 1.
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Annex 2 Figure 2.5: Location of drainage investment in Basin AAc
Source: Detailed Project Designs, IGIP Afrique, 2019
21. Zone 1 interventions are in the 13th Arrondissement, starting at the Gbédégbé culvert, i.e: • Construction of 411 m trapezoidal channel, B = 1.5, h = 1.5, b = 1 upstream of culvert at Gbedégbé; • Construction of 50 m of gabions/reno mattresses on both sides downstream of the Gbédégbé culvert; • Rehabilitation and paving of adjacent road with interlocks and creation of public benches and solar streetlights.
22. Zone 2: The second zone drains the neighborhoods of Aibatin 1, Fidjrosse Kpota and Fieyon 2 in the 12th Arrondissement. Zone 2 is composed of three existing retention ponds with a storage volume of 326,927 m3 as shown in the map below. In this zone, the project will finance the cleaning and rehabilitation of the three retention basins, including the construction of Reno mattress with planting of vegetations and trees to stabilize the embankment. The project will also finance the realignment of 4.00 km of adjacent streets to improve the drainage: • Streets No. 12.709 (270 m), 12.590 (300 m), 12.715 (190 m), 12.652 (330 m), 12.735 (160 m), 12.594 (380 m), 12.731 (215 m), 12.733 (170 m), 12.729 (225 m), 12.596 (240 m), 12.592 (170 m), 12.646 (280 m), 12.717 (115 m), 12.658 (200 m): Streets of right-of-way 10 m + sidewalks including side gutters. • Streets No. 12.602 (780 m): Right-of-way 15 m + sidewalks including side gutters
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Operation and Maintenance interventions
23. Benin’s legal framework mandates local government with maintaining the drainage system. According to Law 079-029, Cotonou, like other communes in Benin, is mandated with the provision and maintenance of infrastructure including the building and upkeep of roads, the installation and maintenance of street lighting, and rehabilitation and extension of sewage and drainage networks. The technical services department in charge of managing the O&M can be seen in the picture below.
Annex 2 Figure 2.7: Administrative structure of the municipality of Cotonou
The technical services department comprises 6 units53 of which three are in charge of O&M activities, namely: (i) Urban Cleaning and Dredging unit (SPUC); (ii) Transport and Roads unit (STV); and (iii) Water, Environment, Sanitation and Disaster Management unit (SEEAGC), who perform collection and treatment of solid waste, road and drainage maintenance, street cleaning, and dredging activities, etc. It is difficult to assess how much of staff Unit No. of total staff No. of technical staff % of technical staff time is allocated to O&M activities since SPUC 40 8 20 staff are also tasked with other non‐O&M STV 12 6 50 related duties. The financial aspects of SEEAGC 28 7 25 O&M activities are under review and will be examined under the O&M diagnostic.
24. In 2017, Cotonou scored low on Operations and Maintenance (O&M), measured by the execution rate of the O&M budget (budget vs. actual expenditures). According to a 2017 performance assessment on local
53 The 6 units are: (i) the Urban Cleaning and Dredging unit (SPUC); (ii) the Transport and Roads unit (STV); (iii) the Water, Environment, Sanitation and Disaster Management unit (SEEAGC); (iv) the Urban Planning, Architecture and Construction unit (SUAC); (v) the Electricity, Street Lighting and Signage unit (SEEPS); and (vi) the Municipal Garage unit (SeGam).
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governments’ management of local affairs, conducted under the WB-financed Cities Support Project (PAURAD), Cotonou scores very low with 5 out of 20 points on the execution rate of the O&M budget (budget vs. actual expenditures), compared to the other two big cities in the country (Porto Novo with 15 points and Parakou with 18 points) and in relation to the other secondary cities.
25. Different executing entities for O&M of drainage infrastructure. Currently, the maintenance activity for retention ponds is not outsourced and cleaning is performed twice a year by the municipality itself. However, the municipality today lacks sufficient working machinery, and relies on mostly obsolete equipment due to a lack of funds. The municipality has established a list of equipment needed to be able to do adequate maintenance, including of cleaning retention ponds, and the purchase of a swamp excavator is basic and needed. For cleaning of storm drains and gutters, however, the municipality usually outsources the works to local NGOs, and/or the private sector, and/or uses high intensity labor.
26. Cotonou’s O&M system has proven to be suboptimal mainly because of lack of funding. According to the law (Law 2009-17), Cotonou, like other LGs in Benin, can receive an earmarked operating grant from central government to cover, in part, the O&M costs it incurs. The O&M operating grant is channeled through the Fonds d'Appui au Développement des Communes (FADeC) – the standard intergovernmental fiscal transfer system of funds from the center to the local governments in Benin. However, in the past five years54, Cotonou has received the O&M operating grant only once in 2018 and only as a one-time emergency injection of funds (CFA 1.55 billion / US$2.6 million equivalent)55. As a result, the municipality has been funding its O&M activities from its limited own source revenues (OSRs). The poor resource mobilization and the generally limited OSRs of the Cotonou municipality, translate into three major challenges as regards O&M of the drainage system: (i) low-level of frequency and limited coverage of sporadic maintenance activities possible with the available budget; (ii) inadequate and/or obsolete equipment available to the municipality for O&M of drainage infrastructure; and (iii) the inability of the municipality to conclude multi-year contracts with O&M service providers due to uncertain funding levels, and legal constraints in the budget system which prevent the municipality from outsourcing O&M on a multi-year basis that would reduce procurement efforts and lower costs.
27. To date, very little is known about affordability, reliability, or efficiency of O&M services in Cotonou. So far, there has not been any affordability study associated with the implementation of the stormwater drainage program. Moreover, there exists no asset register or asset management plan at the local level. The municipality estimates that the financial resources needed to ensure adequate maintenance of the drainage system to be 4 times more than what it currently spends. The GoB recognizes that O&M of the stormwater drainage system will not only require significant and continuous budgets but will also require that the adequate capacities and incentives are in place for the municipality to perform its functions. The challenge remains for the GoB to plan and secure the needed funds as well as to capitalize on the positive features of the decentralized systems that it has put in place.
28. Given that the GoB set tackling the issue of drainage in Cotonou as a national priority, a draft Framework Partnership Agreement (FPA, “Convention Spécifique de Partenariat Etat-Commune”) was recently prepared by the GoB, as part of the Cotonou stormwater drainage program, to regulate the investment implementation arrangements and O&M responsibilities between the municipality of Cotonou and the MCVDD Vie. In this draft FPA, provisions are made such that (i) the municipality would be responsible for preparing a multi-year maintenance and investment plan –to be submitted to the Ministry no later than July 30th of
54 Period for which data is available. 55 A procedural problem that occurred in 2017, related to an unsuccessful procurement process led by the municipality, gave rise to contractual issues with service providers and resulted in the MCVDD deciding to include a one-off transfer of funds to the LG. As a transitional measure, until the development of the Solid Waste Project, guidelines were also given so that the LG can establish short-term renewable contracts.
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each year; (ii) a financing scheme guaranteeing sufficient amounts for the municipality to carry out O&M activities, not excluding the possibility of providing transfers to the Municipality through, for example, the FADeC conditional grant window; and (iii) the progress towards achieving performance indicators would be reported and assessed. Under a multi-year maintenance and investment plan provided for in Article 12 of the draft FPA, the municipality and the government agreed to keep a minimum maintenance program as defined below:
• Manual maintenance: manual cleaning of the drainage systems; cleaning of gutters; reconstruction of portions of damaged concrete structures; etc. • Mechanized maintenance: cleaning of ponds, river beds and collectors (using excavators); unclogging of outfalls (high pressure hydraulic cleaning); proper solid waste disposal; etc.
29. O&M source of funds. O&M of the stormwater drainage system will require significant and continuous budget resources, which the GoB recognizes, but resource planning and securing still pose challenges. The municipality’s experience in resource mobilization is poor. While the municipality currently struggles with broadening the tax base, the municipality has several opportunities, e.g., the autonomous port of Cotonou does not pay taxes on the solid waste it generates (200 tons/day), while it produces 25 percent of the total waste quantity produced by the city. Overall, there is a need to revisit the way Cotonou recovers O&M costs, and how central Government can or cannot help.
30. O&M cost estimate. The total O&M cost for the three WB-financed basins is estimated at US$5.3 million over the five-year period of the project, of which US$4.3 million are for routine maintenance (incl. cleaning); and US$1 million for medium-term maintenance.
Annex 2 Table 2.2: Total estimated O&M costs over 5‐year project period
Cost estimate in US$ over a 5-year period (US$) Basin Y Pa3 AAc TOTAL Routine maintenance 1,505,187 875,351 1,970,376 4,350,914 Medium-term maintenance 131,633 295,904 545,342 972,879 Total O&M cost estimate 1,636,820 1,171,255 2,515,718 5,323,793 Exchange rate US$ 1 = CFA 0.00174
31. O&M Diagnostic. The WB-financed diagnostic will serve as input to the project-financed support for an institutionally and financially viable O&M mechanism. Specifically, the WB will provide technical assistance through its diagnostic on the institutional, fiscal and land-related issues in the current O&M system56; it will map the institutional stakeholders operating in Cotonou’s drainage sector, explore various options such as a delegation of exploitation to autonomous entities, and identify gaps and needs for improvement. Component 2.1 will help the GoB and Cotonou municipality address O&M issues to ensure a financially and institutionally functioning O&M mechanism and the sustainability of the drainage system. To support an increase in OSRs, the O&M Diagnostic will include an assessment of the various source of funding available to the municipality including land tax collection.
32. O&M arrangements must be made as soon as drainage infrastructures are put into service. To ensure that the designated entity in charge of maintenance is performing in a satisfactory manner, the recommended O&M
56 Existing studies will be used, including the 2018 Urban Land Registers system (Registres Fonciers Urbains), WB
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arrangements must be adopted. During the period of the implementation of the works of the first two basins to be funded by the WB (Basins Y and Pa3) under its phase 1, O&M will be carried out by the Municipality of Cotonou on the existing basins outside the PAPC area as well as those sections of basins under the PAPC where infrastructure already exists that requires ongoing maintenance. This will allow the government to assess whether the Municipality of Cotonou is performing according to agreed standards and meeting agreed targets, and confirm their findings to the WB. From a scheduling perspective, this will allow for two annual cycles of O&M by the Municipality to be evaluated prior to making the commitment to commence work on the third basin (Basin AAc) under phase 2 of the WB-financed project– a decision that will require the concurrence of the WB prior to construction starting. It will also provide the government with sufficient feedback on whether and/ or when it can begin to transfer O&M responsibilities for the new works under the PAPC to the Municipality.
Solid waste interventions
33. The proposed solid waste interventions are aligned with the on-going GoB’s Action Plan and specifically the GoB’s Flagship Programs on Solid Waste in the Grand Nokoué. In this perspective, the project will support front- end activities i.e. pre-collection and collection, that supplement the GoB’s Program in all three WB-supported basins. Specifically, to densify the existing collection scheme, the project will provide collection bins (between 200 and 300 220-liters bins) and light pre-collection equipment (tricycles, carts and wheelbarrows) with the aim of achieving a 95% collection rate near the project-financed drainage infrastructure.
34. The project will also finance awareness and engagement of basin residents regarding improved waste management practices in the intervention areas. Specifically, information campaigns will target residents to inform them of the new infrastructure and associated services. In parallel, communication campaigns will be developed to promote engagement in, and behavioral change towards reducing residents’ waste disposal into drainage infrastructure supported by the project. The project will further support education activities targeting primary schools, located in the supported basins, and organize activities involving students. These activities could, for example, take the form of games where different teams or schools compete for achieving objectives in material recovery (metals, plastics, etc.). Prizes would be given to the best performing teams.
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ANNEX 3: ECONOMIC AND FINANCIAL ANALYSIS COUNTRY: Benin Benin ‐ Stormwater Management and Urban Resilience Project
Background
1. In the analysis, three indicators are considered for the financial and economic analysis:
• The Net Present Value (NPV) which is the difference between the discounted total benefits and cost; • The Internal Rate of Return (IRR), which is the discount rate that zeroes out the NPV or, the interest rate that makes the net present value of all cash flows equal to zero; • The Benefit-Cost Ratio, which is the ratio of the present value (PV) of benefits over the PV of costs over the lifetime of the project.
Financial Analysis of the proposed component
2. There is no financial analysis to be done in this context as the drainage system is considered as a public good that will need to be funded and maintained by national and/or municipal budgets directly through force account or indirectly through the contracting out of private services to perform the drainage management. Hence, the PV of investment cost, inclusive of contingencies and constant O&M expenses (OMex) for the drainage system at a 5 percent discount rate, amounts to US$76.16 million for the Drainage Component over the 2020-2050 periods.
Economic Analysis of the proposed flood prevention component
3. The major difference between the financial and economic analysis is that the economic analysis consists in eliminating all the distortions of prices on the inputs used for the drainage system. There is therefore a need to identify and quantify price distortions that affect the operating expenditures as well as the investments. The evaluation of these distortions makes it possible to rectify the financial prices and to obtain the economic prices. From the corrected structure of the economic prices, the revaluation coefficients were estimated.
4. The conversion of the financial costs into economic costs is essential to reflect the value of the output for the community. The objective of this calculation is to determine the opportunity costs of both the inputs and outputs. As taxes, duties and subsidies such as for electricity constitute internal flows in the national economy, those were not taken into account in the calculation of the economic costs.
5. Labor. The wage applied for unqualified skills is the minimum wage without the social contribution. For the skilled job salaries, the conversion factor is taken equal to 1 but the social contributions are also not considered. Moreover, most labor needed for the whole project and other activities are assumed to be locally hired.
6. The economic analysis was performed for prevention infrastructure investments in terms of three drainage improvements in urban areas of Cotonou. The analysis covers the recurrent annual flooding during the rainy season: on average flooding represents a disruption of 15 days per year. The component is illustrated in Table 3.1.
7. The total economic cost of the Drainage Component inclusive of contingencies and taxes, amounts to CFAF 51.96 billion equivalent to US$93.30 million.
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Annex 3 Table 3.1: Economic cost of investment and maintenance costs (in CFAF billion) Component Area Population Financial OMex Shadow Economic Investment conversion cost value Ha Bn CFAF % invest Bn CFAF Y 135 12,285 6.32 1.3% 0.9 4.55 Pa3 116 22,598 19.30 1.3% 0.9 13.90 AAc 680 50,050 26.33 1.3% 0.9 18.96 Total 931 84,933 51.96 37.41
8. Several socioeconomic and environmental benefits could accrue with the implementation of the project but could not be valued due to lack of data. A "without project" scenario could notably have the following negative direct and indirect effects:
• Health: averted in terms of premature death, drowning, injuries, water-related diseases, vector-borne diseases especially since malaria prevalence seems to be significant in Cotonou urban areas, etc.; • Environmental: ecological system disruption, water resource pollution, air pollution due to additional traffic jams, land degradation; • Global externalities: carbon emission (e.g., due to additional traffic jams, animal putrefaction, vegetal decomposition, etc.); • Damages: infrastructure (transport, energy, water, etc.), land, household, business, private property including vehicles, etc.; • Economic opportunity: loss of economic opportunities and increase poverty incidence and therefore vulnerability (loss of wages, loss of time, yield, sales, commerce, tourism, etc.); and • Social: disruption of health services, schools, universities, etc.
9. The economic analysis only covers the disruption days from severe floods accruing to the population in the targeted drainage improvement areas. The project will provide social benefits in terms of the value added of land in the drainage areas over the next 30 years should disruptive flooding be averted as well as the 15 days of avoided floods per year in the project area illustrated by the gross national income per capita.
10. The retained methods to derive the social benefits for the economic analysis are: (i) the averted loss of opportunities by the reduction of 15 disruptive severe-flood-days per year during the course of the project; and (ii) a hedonic pricing for the incremental value of land associated with the reduction of 15 disruptive severe-flood-days.
11. Several key assumptions have been considered for the economic analysis:
• The exchange rate used is US$1 = CFAF 557 • The civil work will target three basins, identified as ‘Y’, ‘Pa3’ and ‘AAc’. • The economic analysis is carried out over a period of 30 years (from 2020 to 2050) with the assumption that no investment in new asset is needed over the periods. • A real discount rate of 5% per annum is used • VAT is 18%, applicable to all costs in the project • The overall standard conversion factor (SCF) for adjusting market prices to shadow prices is set at 0.9. The shadow exchange rate is 1. The shadow wage is 1 as most labor needed for the project will be locally hired. • Investments are disbursed over 5 years of the implementation of the project (see Table 1). • O&M expense cost is on average set at 1.3% during project implementation and afterwards. • The lost opportunity (monetized by the GDP) of 15 disruptive severe-flood-days are considered. The improved drainage system construction and management should help the targeted areas of Cotonou avoid
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any major disruptive floods in the future. • The Gross National Income (GNI) per capita per year adopted for the calculation is CFAF 467,400 in 2016 (WITS, 2019) with an annual growth of 1% over the projected periods. • A hedonic method is suggested to derive the incremental cost of land with the reduction or containment of annual floods. Land price used in the analysis reflects the actual prices of land as an update of the prices was performed by the government in 2018. • All benefits are assumed to begin to accrue in 2021. • Land price increase is assumed to accrue after 3 years with equal increments.
Hedonic Pricing Methodology
12. In the three basins benefitting from the project, the price of land is obtained from Decree No. 2014-788 of 31 December 2014, pursuant to the provisions of the law No. 2013-01 of August 14, 2013 establishing the Code on Private and State-owned Land in the Republic of Benin. The decree fixes sale price at CFAF 130,000 for Cotonou south-west area, CFAF 85,000 for Cotonou southeast area, CFAF 60,000 for Cotonou northwest area, and at CFAF 35,000 for Northeast Cotonou.
13. In the analysis, the land price was estimated at an average of CFAF 105,000 per m2; structural attributes of houses are not considered; and environmental attributes include the flood-prone areas that are derived from Wang et al. (2009) and the population density obtained from the Municipal sources.
14. Hence, the location of land in a flood-prone area is estimated to decrease the land price by 33% when all the other variables are controlled for. By contrast, the density and vector-borne variables have a negligible effect on land prices.
15. In the project, the area covered is 9,310,000 m2 with total land price increment amounting to CFAF 97.75 billion (US$177 million) accruing between 2020 and 2025 (5-year price adjustments as further increase over the periods is attributable to a number of non-related flood factors) should the investment be implemented to make of the targeted neighborhoods flood-free areas.
Economic Analysis Results Determination of NPV Modified IRR and Benefit/Cost Ratio for the project
Annex 3 Table 3.2: Economic Indicators with 5% Discount Rate
Key economic indicator Results Interpretation Project Level NPV/30 years US$57.89 million Net benefit exceed cost IRR/30 years (5%) 24% Positive and greater than 5% PV Benefit/Cost Ratio/30 years 1.75 Discounted benefit > discounted cost
Result: The above three criteria indicate that the project is economically viable
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ANNEX 4: MAP 44204
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