Japan Policy and Human Resources Development (PHRD) Technical Assistance (TA) Program to Support Disaster Reduction and Recovery

Transcription

1 Japan Policy and Human Resources Development (PHRD) Technical Assistance (TA) Program to Support Disaster Reduction and Recovery A. BASIC DATA Part I: Summary of Grant Funding Proposal 1. Grant Name: Bangladesh: Building safer cities by improving earthquake resiliency 2. Grant Type: Pilot Project 3. Country: Bangladesh 4. Grant Recipient: Government of Bangladesh 5. Implementing Agency: Ministry of Food and Disaster Management 6. Total Grant Amount (US$): 3,000,000 (i) of which Recipient-Executed Grant Amount (US$): 2,730,000 (ii) of which Bank-Executed Grant Amount for Bank Supervision (US$): 270,000 B. SUMMARY OF THE GRANT PROPOSAL (not to exceed two pages) B.1 Country/Sector Context and Justification: In recent years, Bangladesh has reformed its approach to cyclone and flood risk management and preparedness. Triggered by major loss of life and assets, notably during the cyclones of 1970 and 1991 that killed over 300,000 and 140,000 people respectively, the Government of Bangladesh (GoB), civil society, and international development partners have demonstrated that investment in the systems and structures of flood risk management and cyclone preparedness saves lives, reduces economic loss, and protects development gains. As such, Bangladesh is cited often in the rationale for investment in disaster risk management (DRM) activities globally. The threat of an earthquake, however, is less visible but significant given that Bangladesh lies on the seismically active Indian plate. Inertia has slowed earthquake awareness because these events occur less regularly and are currently relatively absent from the living memory of the country s inhabitants and leaders. Studies by the Geological Survey of Bangladesh divide the country into three seismic zones, which show that earthquake risk is medium to high throughout the country and increases towards the north and east of the country. Although there is some uncertainty, research suggests that an earthquake of up to magnitude 7.5 is possible, and the nearest fault line runs just 60km from the nation s capital. Given a lack of recent earthquake events, an understanding of earthquake risk and corresponding strategies to mitigate the impact of such events is lacking. A National Plan on Disaster Management ( ) includes an Earthquake Management Plan and a National Earthquake Contingency Plan, which have been developed under the Ministry of Food and Disaster Management. These plans identify response and risk reduction activities with corresponding lead and support agencies. However, the plans lack the comprehensive vision of a national earthquake strategy, and a convincing demonstration of benefits, implementation, and controls. Furthermore, the institutional structure for multistakeholder engagement to deal with a problem as complex as urban earthquake risk is also lacking and the existing plans do not engage agencies and organizations in a sustainable way. To respond to this critical gap in the management of disaster risk in Bangladesh, this proposed project 1

2 represents the second phase of a multi-phase national DRM program to build institutional capacity to mitigate the impact of earthquakes in the rapidly urbanizing cities of Bangladesh. The objective of the overall engagement is to develop a comprehensive approach to managing earthquake risk through a structured process of knowledge development, education, and planning that involves a wide range of stakeholders to increase engagement and ownership. The overall program will ultimately lead to the development of a National Earthquake Risk Management Strategy for Bangladesh and an Earthquake Risk Management Master Plan for Dhaka. In line with available resources, the program will be staged in a phased approach. Under an approved GFDRR grant, the first phase of the project focuses on the diagnosis and analysis of the DRM context and earthquake risk information in Dhaka City. This project will also establish the required institutional structure that will serve as the mechanism through which themed focus groups will address various aspects of managing seismic risk in the later phases of the project which will develop components of the master plan, address issues including land use planning, legal and institutional arrangements, the emergency management system, slum resiliency, and, water system resiliency. The first phase will also allow for preparation of the PHRD funded project, both in terms of advancing awareness of the program amongst key stakeholders, elaborating the technical scope of the project and in building the readiness of the implementing agency to commence PHRD funded activities. The proposed PHRD project will complement the development of the master plan and stakeholder engagement by focusing on a specific program of technical training of the engineering and construction community, building code enhancement and piloting of resilient construction. JICA has financed the development of training courses for engineers, which will be delivered to engineers in the Ministry of Public Works to help improve the standard of construction for public buildings. The proposed activities would utilize the training materials already developed under the JICA project, but with a private sector rather than public sector engineering audience. B.2 Please describe clearly which priority area(s) of the PHRD TA Disaster Reduction and Recovery (DRR) Program will be addressed: The project is in line with several priority areas; however, it most firmly fits within the Safe Cities Program for Asia (Priority I). The proposed project will provide technical guidance to Dhaka and Bangladesh s other large cities that are particularly exposed to earthquakes. Increased resiliency would result from improved building code enforcement as well as adequately trained and certifying engineers, masons, and bar benders on disaster resilient construction. B.3 Development Objectives and Key Outcome Indicators (maximum three indicators): The objective of the project is to improve construction standards, particularly in urban environments, to increase the earthquake resiliency of new structures. This would be achieved through greater capacity of engineers, masons and bar benders to construct earthquake resilient structures. The project will serve the second phase of a multi-year participatory process that will lead to the development of several decision making tools required for mitigating the impact of earthquake hazards through structural and non-structural vulnerability reduction. The outcome indicators include: i) earthquake resilience engineering training and certification program established to increase the capacity of engineers to design earthquake resilient structures; ii) earthquake resilient training delivered to contractors and laborers (masons and bar benders) to increase their capacity and propensity to integrate disaster resilient techniques into their construction of buildings in both formal and informal 2

3 settlements; and iii) pilot structure constructed with resiliency to earthquakes which acts as a showcase exemplary model of how to build in an earthquake resilient way. B.4 Summary Description of Project Components (with estimated costs): Component 1 Building Code Enforcement and Implementation Pilot (BCEI) (US$350,000) A National Committee has been formed to review and update the National Building Code, which was last updated in The Ministry of Land is developing a National Land Zoning and National Land Use Planning that is supposed to identify safe settlement zones and building codes have been introduced in urban areas. Work on the code revision has been delayed in recent years and sustainable code enforcement mechanisms are not well developed. The objective of this component is to review the Building Codes and Standards and the current practice for construction safety in Bangladesh. Component 2 Certification of Engineers Pilot Program (US$650,000) The professional status and standards of practice of professional engineering should be legally defined regulated, and protected by a government body. In Bangladesh there is currently a licensure process through which an engineer or architect becomes authorized to provide professional services. However, the current process is not based on rigorous competency criteria and is not recognized as adding value to the profession or to society in general. The objective of this component is to develop a new program aimed at delivering a recognized and accredited professional certification for structural engineers based on international best practices. Component 3 Training of Masons and Bar Benders Training Pilot Program (US$545,000) Replicating similar programs elsewhere in South Asia, this component will design and deliver a training and certification program for contractors within the construction industry. The training delivery and certification will likely be delivered through a partnership between government, university or trade group. An initial scoping study will define specific activities. Component 4 Pilot construction/retrofitting of earthquake resilient structure (US$850,000) Based on needs identified under the project, various public assets will be identified for disaster resilient new construction or retrofitting of existing, vulnerable, infrastructure. It is envisioned that the project would finance the disaster resilient portion of construction, instead of the full cost of new construction. The objective of this component will be to increase the visibility of the Engineering Certification Program, the Masons and Bar Benders Pilot Program and the issue of earthquake risk more generally, and to provide a vehicle for learning-by-doing for those in the sector. Component 5 Monitoring and Evaluation (US$100,000) This component will provide resources for the implementing agency to monitor and evaluate the quality and effectiveness of the program, including follow up to the training program. Outputs of this component will be regular monitoring reports, a Mid-Term review and a Project Completion Report. Component 6 Project Management (US$235,000) This component will provide resources for all project management costs borne by the implementing 3

4 agency. These will include funding for, inter-alia, consultant fees, support staff, training, office equipment, and an annual audit. 4

5 Part II: Detailed Information Section 1: Basic Data 1. Expected Grant Start Date: September 30, Expected Grant Closing Date: September 30, Task Team Leader: Marc Forni 4. Other Team Members: Swarna Kazi 5. Managing Unit: SASDU 6. Bank Region/VPU: South Asia Section 2: Background Information 2.1. Policy: [Is there a policy on disaster risk reduction? Please describe the key features of the policy and how it supports risk reduction development in all sectors.] A National Plan on Disaster Management ( ) includes an Earthquake Management Plan and a National Earthquake Contingency Plan, which have been developed under the Ministry of Food and Disaster Management. These plans identify response and risk reduction activities with corresponding lead and support agencies. However, the plans lack the comprehensive vision of a national earthquake strategy, and a convincing demonstration of benefits, implementation, and controls. Furthermore, the institutional structure for multi-stakeholder engagement to deal with a problem as complex as urban earthquake risk is also lacking and the existing plans do not engage agencies and organizations in a sustainable way. Within this context of disaster risk management in Bangladesh, the challenge of urban disasters looms large. Seismic risks are poorly understood and for most part remain un-managed. This is in part a result of the history of urban development in the country, and the shift from a vision of the garden city plan during the British era, to the steady abandonment of town planning norms and practices in the years following independence. The governance of cities in Bangladesh is acutely complex, not least in the capital Dhaka. Urban planning, governance, and public service provision are the responsibility of many different agencies. For example, in Dhaka, over 40 agencies have some jurisdiction over functions of city planning and development. As a result, roles and responsibilities are not clear, and political affiliations can affect capacity to implement policy and govern the city. A Metropolitan Development Plan for Dhaka, covering the period 1995 to 2015, has been slow to roll out and is fast becoming outdated, undermining the city s potential for planned growth. Dhaka has grown rapidly since independence, from approximately 1 million in the early 1970s to over 12 million in Land use planning, regulation, and public service delivery in urban areas of Bangladesh has failed to keep up with the pace of growth. This uncontrolled rural to urban migration has driven haphazard development and virtually absent town-planning norms. Almost 60 percent of the population lives in informal houses and slum areas, which are often illegal and of very poor quality. There is, consequently, a need to be prepared against all possible adverse natural events, whose results can be disastrous due to poor planning, inadequate services, and low resiliency. 5

6 2.2. Strategy: [Is there a strategy on disaster risk reduction? Please describe how disaster risk reduction is integrated into the country development strategies, e.g. Poverty Reduction Strategy Paper (PRSP), Country Assistance Strategy (CAS), National Adaptation Plan ( NAPA), etc.] The Bank s Country Assistance Strategy (CAS) for FY underscores the need for reducing vulnerability to disaster as a major area of support. It aims at: (a) further strengthening and institutionalizing preparedness, especially at the sub-national level; (b) mobilizing resources for improved local preparedness and response management; (c) mainstreaming disaster risk reduction and mitigation across sectors and down to lower levels of government, and; (d) extending key risk mitigation infrastructure such as shelters and coastal and river embankments. The proposed PHRD project is closely aligned with the CAS for FY It supports Bangladesh with the objectives of improving construction standards and guiding future urban development into less at risk areas, while structurally reducing vulnerability from earthquakes by building capacity to strengthen construction methods and standards. It also aims at empowering stakeholders with knowledge and creating a more inductive environment for dialog and consensus building. These objectives are critical to sustainable economic growth and poverty reduction by supporting the future construction of earthquake- resistant infrastructure while reducing vulnerability of the population at risk Institutional, legal and regulatory framework: [Is there a national coordination agency for disaster risk reduction? Describe briefly the institutional, legal and regulatory framework.] The Ministry of Food and Disaster Management (MoFDM) is the lead agency on disaster management and the custodian of the National Disaster Management Plan ( ). Bangladesh s DRM structure is stratified; at the highest level, the National Disaster Management Council - headed by the Prime Minister - formulates and reviews disaster management policies. The Inter Ministerial Disaster Management Coordination Committee implements disaster management policies and decisions of the NDMC, and is assisted by the National Disaster Management Advisory Committee. The MoFDM, which has a central Disaster Management Bureau (DMB) and a Cyclone Preparedness Program Implementation Board, coordinates national disaster management interventions across all agencies. Below this level for example in cities - a variety of committees and actors implement aspects of national policy, although often lack the authority, resources or structure to be effective. The Disaster Management Plan ( ) is aligned with the objectives and priorities for action identified under various international conventions, including the Hyogo Framework for Action and the SAARC Framework for Action (SFA) The plan calls for the integration of DRM across sectorspecific policies and development strategies, including the PRSP, and outlines a model for implementation. The Ministry has adopted revised Standing Orders on Disaster (SOD) document that outlines administrative procedures and responsibilities of government functionaries at all levels. At the local level, there are many examples of community-based approaches to building disaster resilience, particularly with regards to flood and cyclone risk. Locally owned and developed DRM Action Plans are commonplace, and participatory community risk assessment tools are proliferating, particularly through NGO, donor and UN supported projects. The challenge to scale up these approaches at a national level remains significant principally in cities and the urban environment. To date, the Disaster Management Plan and the Standing Orders have been implemented in a fragmented way and no objective evaluation or benchmarks are available to measure progress. Moreover, mainstreaming across sectors is a vision yet to be realized, and MoFDM has lacked the necessary influence to push the agenda into the mainstream. Currently, a Disaster Management Act is 6

7 under consideration by Parliament, although it is not clear whether or when this will be ratified. While the country can rightfully claim accomplishments in flood and cyclone risk, the general consensus is that the urban earthquake risk is a threat that is unknown, unplanned for, and increasing due to rapid urbanization. The flagship program for DRM in the country is the UNDP-run Comprehensive Disaster Management Program (CDMP), which is a project housed in the MoFDM. The $70m program is currently in its second phase, and is funded by a consortium of donors including AusAid, Department for International Development (DFID), SIDA, European Union and Norway. The project is widely recognized for its contribution to knowledge generation and advocacy on DRM in the country and work on communitybased risk reduction. In the field of urban seismic risk, CDMP has produced seismic risk maps of three cities: Dhaka, Chittagong and Sylhet. That said, evidence of its impact on the capacity of responsible government agencies (both within MoFDM and at local levels) is hard to verify. Three years from the close of phase two of CDMP, the likely legacy on the reform and development of DRM systems and structures in the country is an important avenue for further investigation and dialogue with donors and the government. Section 3: Detailed Project Description 3.1. Detailed Description of Project Components 1 with estimated cost in US$ and expected outputs: Component 1 Building Code Enforcement and Implementation Pilot (BCEI) (US$350,000) The objective of this component is to review the Building Codes and Standards and the current practice for construction safety in Bangladesh. The review shall identify gaps relative to a set of standards and make recommendations intended to fill the existing gaps associated with the vulnerability of construction in Bangladesh. Activities financed under this component include: i. Analysis of the adequacy of the technical provisions of the code in terms of reflecting both the level of hazard in Bangladesh, and the latest knowledge in engineering and technology; ii. Analysis of the general understanding of these provisions within the construction industry including building officials, designers (engineers, architects, planners), construction professionals, and even the general public. iii. Development of a framework and process for understanding, implementation and enforcement of the code provisions and construction control. The framework will build on existing initiative and will be designed to intervene at different levels starting from an overall understanding of the importance of conformance by the general public, to professionals, regulators, and developers iv. Analysis of potential improvements to the regulatory process, including potential for independent field control inspections. v. Development of indicators for monitoring and evaluating progress in achieving code compliancy vi. Improvement in the technical capacity among practitioners (i.e., engineers, architects, contractors, developers, and field workers) on earthquake resistant structures and construction Outputs from this component include the following: 1 The following two components have to be included in every proposal: (i) Monitoring and Evaluation, and (ii) Project Management. 7

8 Report on the building code provisions and understanding of these within the construction industry. Situational analysis of the legal and institutional environment for implementation and enforcement of the building code will also be included A Framework and process for understanding, implementation and enforcement of the code provisions and construction field inspection will be established. Included will be the development of monitoring and evaluation indicators in achieving code compliancy Training and capacity building exercises for practitioners, including from the real-estate and construction industry, on earthquake resistant structures and construction Component 2 Certification of Engineers Pilot Program (US$650,000) The objective of this component is to develop a new program aimed at delivering a recognized and accredited professional certification for structural engineers based on international best practices. The project will build on curriculum the certification documentation (e.g., certification bylaws, accreditation rules, operating procedures) currently being developed by JICA that spell out the various elements of the Certification Program. Other activities include selecting members of the Accreditation Board; identifying Delivery Institutions, promoting the program and evaluating the demand through surveys and other means. The Certification program will be set up through a 2-year indicative program; however, in the long term, the incentive-based program should become financially self-sustainable by direct contributions engineers and investments from the construction industry itself. The Program integrity, quality and transparency should be independently verified and certified by a duly appointed Accreditation and Certification Board composed of recognized educators and experts in the field. The program will be designed to be market driven, as certified engineers will emerge as leaders in their field, will be recognized by the peers, the government and the industry for their added skills and observance of exceptional codes of ethics and professionalism. This component will be executed in two phases and include the following activities: Phase 1 Activities i. Perform demand analysis for Certification Program (CP) through consultation with the building design and construction industry as well through a survey that is clear with respect to a target audience and used as a basis for program development ii. Research and document other forms of professional certification in both the developed and developing countries. Study adaptation of such certification to the case of Bangladesh iii. Development of certificate requirements in terms of knowledge and experience iv. Preparation of certification preparation training program and delivery mechanisms. Identify potential delivery institutions (e.g., Bangladesh technical universities). Establish capacity building activities for delivery institutions v. Develop the governing structure of the Certification Program. Establish an agreement on respective roles, responsibilities and mechanisms between government, delivery institution, Certification Board, industry and sponsors vi. Establish monitoring and evaluation mechanisms vii. Submit governing structure for approval to government Phase 2 Activities viii. Establish the Certification Board ix. Undertake consultation and outreach among the industry to promote the CP x. Pilot test the CP among all partners. (In the initial phase, it is envisioned that the certification will be tested among engineers practicing in the public sector) 8

9 xi. xii. xiii. Develop a capacity program in earthquake engineering among the non-engineering profession, targeting mainly developers, contractors and architects Measure, monitor and evaluate the outcome of the pilot application Develop an implementation process with associated monitoring The output will be Certification of Engineers and Architects (CEI) Program. The program will have an established governance structure and certification requirement of the CEI Program. To ensure uptake and sustainability an agreement will be obtained among government and industry. Various delivery mechanisms will be identified and pilot tested among different institutions and, to scale the program a, monitoring and evaluating system will be put in place to recommend the most effective mechanisms for scaling up. Component 3 Training of Masons and Bar Benders Training Pilot Program (US$545,000) A program will be developed, similar to those being implemented in other countries of South Asia. The training program would be made available by an entity to be defined, either by government, a university or a trade group, and a certification of completion would be issued to contractors who completed this program. An initial scoping study to begin under project implementation will define the discrete activities to be financed in order to establish a sustainable training mechanism. The output will be a Masons and Bar Benders training Program. The program will have an established governance structure and certification requirement and to ensure uptake and sustainability an agreement will be obtained among government and industry. Various delivery mechanisms will be identified and pilot tested among different institutions and, to scale the program a, monitoring and evaluating system will be put in place to recommend the most effective mechanisms for scaling up. Where possible, in-kind contributions (for example training space and equipment) will be sought from private sector companies within the engineering and construction sector. Component 4 Pilot construction/retrofitting of earthquake resilient structure (US$850,000) Based on needs identified under the project, vulnerable public assets including schools, hospitals, roads or bridges will be assessed for their potential for disaster resilient new construction or retrofitting. It is envisioned that the project would finance the disaster resilient portion of construction, instead of the full cost of new construction. The objective of this component will be to increase the visibility of the Engineering Certification Program and the Masons and Bar Benders Pilot Program. Using design and building techniques imparted during the certification and training programs, the structures will stand as models of success, to be replicated by both public and private construction. Component 5 Monitoring and Evaluation (US$100,000) This component will provide resources for the implementing agency to monitor and evaluate the quality and effectiveness of the program, including follow up to the training program. Outputs of this component will be regular monitoring reports, a Mid-Term review and a Project Completion Report. Component 6 Project Management (US$235,000) 9

10 This component will provide resources for all project management costs born by the implementing agency. These will include funding for, inter-alia, consultant fees, support staff, training, office equipment, and an annual audit Implementation Arrangements: (a) Name of the Implementing Agency: The implementing Agency will be the Disaster Management Bureau within the Ministry of Food and Disaster Management. Given the overlapping responsibilities and authorities related to urban planning and construction management, other ministries will have an important role in project execution. In particular, the Ministry of Land the Ministry of Housing and Public Works, and RAJUK the Dhaka city development authority, will play an important role. (b) Does the Agency have experience in implementing World Bank-financed operations? [If not, please describe what arrangements will be in place to build project management capacity.] The Disaster Management Bureau has experience with Bank financed projects, including the recent Emergency 2007 Cyclone Recovery and Restoration Project What arrangements are in place to scale up and replicate successful outcomes? Each of the activities is being launched on a pilot basis. Given the complexity of governance due to misaligned and overlapping incentives, several approaches will need to be attempted in order to improve build robust programs for building code enforcement, engineering certification and construction training. A robust monitoring and evaluation system will be put in place to test and validate various approaches in order to find the most effective. The upfront cost of experimentation is the greatest cost in developing the structures required for sustainable enforcement and certification systems. Therefore, once efficient delivery mechanisms are identified, scaling such efforts will not be overly financially burdensome Consultation Process. [Please attach a Summary of the Consultations with Japan in the required PHRD TA format] See Summary of Consultations Form Section 4: Recipient-Executed Grant Expenditure Categories and Amount (in US$) 1. Services 1,680, In-country training, workshops and seminars 199, Goods and Works 800, Operating Cost 50,000 Total Recipient-Executed Grant Amount 2,730,000 Section 5: Recipient-Executed Grant Summary Cost Table by Component and Expenditure Category Components Consultant Training, Goods and Operating Total Services workshops Works Costs Building Code Enforcement 299,600 50, ,000 10

11 and Implementation Pilot Certification of Engineers 578,000 72, ,000 Pilot Program Training of Masons and Bar Benders Training Pilot Program 473,000 72, ,000 Pilot construction of 50, , ,000 earthquake resilient structure Monitoring and evaluation 100, ,000 Project Management 180,200 4,800 50, ,000 Total Recipient-Executed Grant Amount 1,655, , ,000 75,000 2,730,000 Section 6: Mandatory Attachments Please ensure the following documents are attached to the proposal: 1. Consultations with Japan 2. Detailed cost table 3. Risk Assessment 11