Document o f The World Bank

FOR OFFICIAL USE ONLY

Report No: T7680 - WBZ

TECHNICAL ANNEX

ON A

PROPOSED GRANT

IN THE AMOUNT OF US$lO MILLION

TO THE

WEST BANK GAZA

FOR AN

AVIAN INFLUENZA PREVENTION AND CONTROL PROJECT

UNDER THE FRAMEWORK OF

GLOBAL PROGRAM FOR AVIAN INFLUENZA AND HUMAN PANDEMIC PREPAREDNESS AND RESPONSE (GPAI)

August 15,2006

Water, Environment, Social and Rural Development Department Middle East and North Africa Region

This document has a restricted distribution and may be used by recipients only in the performance o f their official duties. I t s contents may not otherwise be disclosed without World Bank authorization.

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CURRENCY EQUIVALENTS

(Exchange Rate Effective August 15,2006)

AI AWPB cc CFAA CPAR CPHL EC EMP EQA ESSP FA0 FMR GPAI HPAI H 5 N 1 IA IBRD IDA ILI MECIDS MNA M O A MOEHE MOF M O H NCAIC NGO OECD OIE PA PALTEL PARC PCR PEA P I U PFD P O M

Currency Unit = Israeli New Shekel (ILS) 4.38 I L S = US$1

FISCAL YEAR

January 1 - December 3 1

ABBREVIATIONS AND ACRONYMS

Avian Influenza Annual Work Program and Budgets Component Coordinator Country Financial Accountability Assessment (CFAA) Country Procurement Assessment Review Central Public Health Laboratories European Commission Environmental Management Plan Environment Quality Authority Emergency Services Support Project Food & Agriculture Organization Financial Monitoring Report Global Program for Avian Influenza Highly pathogenic avian influenza Avian Influenza A-type virus Implementing Agency International Bank for Reconstruction and Development International Development Association Influenza Like Illnesses Middle East Consortium on Infection Middle East and North Africa Ministry o f Agriculture Ministry o f Education & Higher Education Ministry o f Finance Ministry o f Health National Emergency Committee for Avian Influenza Control Non Governmental Organization Organization for Economic Co-operation and Development World Organization for Animal Health Palestinian Authority Palestinian Telecommunications Company Palestinian Agricultural Relief Committees Polymerase Chain Reaction Palestinian Environment Authority Project Implementation Unit Program Framework Document Project Operational Manual

PP PPE SA SOE TFGWB UN UNDP UNFPA UNICEF UNRWA UNTF

USAID USD vs WB WBG WHO WFP

Procurement Plan Personal Protective Equipment Special Account Statement of Expenditure Trust Fund for Gaza and West Bank United Nations United Nations Development Program United Nations Population Fund United Nations Children’s Fund United Nations Relief and Works Agency for Palestine Refugees in the Near East Avian Influenza Prevention and Control Project financed under the Avian and Human Influenza Facility Trust Fund Grant and implemented through the UN System United States Agency for International Development United States Dollars Veterinary Services World Bank West Bank & Gaza World Health Organization World Food Program

Vice President: Christiaan J. Poortman Country Director: A. David Craig

Sector Director/Sector Manager: Inger Anderseduis Constantino Task Team Leader: Husam Abu Dagga

WEST BANK GAZA AVIAN INFLUENZA PREVENTION AND CONTROL PROJECT

CONTENTS

Page

A . STRATEGIC CONTEXT AND RATIONALE .............................................................................. 1

Country and Sector Issues ............................................................................................................... 1

Rationale for Bank Involvement ..................................................................................................... 2

1 . 2 .

B . DETAILED PROJECT DESCRIPTION ........................................................................................ 2 Project Development Objectives and Key Indicators ...................................................................... 2

Project Components ........................................................................................................................ 2

Project Costs and Financing Instruments ......................................................................................... 5

1 . 2 . 3 .

C . IMPLEMENTATION ARRANGEMENTS .................................................................................... 5 Overall Project Organization and Management .............................................................................. 5

Institutional Arrangements for Implementation .............................................................................. 6

Financial Management and Procurement ........................................................................................ 6

Retroactive Financing ...................................................................................................................... 8

Monitoring and Evaluation o f Outcomes/Results ........................................................................... 8

Sustainability, Project Risks and Mitigation ................................................................................. 10

Grant Conditions and Effectiveness ............................................................................................... 11

1 . 2 . 3 . 4 . 5 . 6 . 7 .

D . APPRAISAL SUMMARY .............................................................................................................. 11 Economic and Financial Analyses ................................................................................................. 11

Environmental and Social Issues and Safeguard Policies ............................................................. 11

1 . 2 .

Appendix 1 : International and Country Background ......................................................................... 14 Appendix 2: Results Framework and Monitoring ............................................................................. 19 Appendix 3: Detailed Project Description ......................................................................................... 26 Appendix 4: Project Costs and Financing .......................................................................................... 33 Appendix 5: Implementation Arrangements ...................................................................................... 34 Appendix 6: Financial Management and Disbursement Arrangements ............................................ 36 Appendix 7: Procurement Arrangements ........................................................................................... 43 Appendix 8: Environmental and Social Issues .................................................................................. 57 Appendix 9: Additional Background on Compenation ..................................................................... 59 Appendix 10: Documents in the Project File ..................................................................................... 62

Map: IBRD33512

iii

WEST BANK GAZA AVIAN INFLUENZA PREVENTION AND CONTROL PROJECT

Date: 0811 512006 Country Director: A. David Craig Sector Director: Inger Andersen Lending instrument: Emergency Recovery IDA Grant

TECHNICAL ANNEX FOR NEW GPAI GRANT

Team Leader: Husam Abu Dagga Sectors: General Agriculture (50%); Health (25%); General InformatiodCommunications (25%). Themes: Natural Disaster Management; Other Communicable Diseases. Environmental Screening Category: B Safeguard Screening Category: Partial Assessment

MIDDLE EAST AND NORTH AFRICA WATER, ENVIRONMENT, SOCIAL AND RURAL DEVELOPMENT DEPARTMENT

Source IDA Total

Local Foreign Total 7.0 3 .O 10.0 7.0 3 .O 10.0

iv

Total IDA

2007 2008 2009

5 .O 5.0 0

Does the project or new component require any exceptions from Bank policies? Re$ Section 0 7 of Guidelines Have these policies been approved by Bank management? A r e there any critical risks rated “substantial” or “high”?

Does the Project (and/or new components, as applicable) meet the Regional criteria for readiness for implementation? Re$ Section D. 7

Yes: [ ] No: X

Yes: [ 3 No: [ ]

Yes: X No: [ ]

Yes: X No: [ ]

Development Objective Re$ Section B.2 Consistent with the GPAI, the project development objective i s to achieve a minimum level o f spread of AI to humans through better preparedness, control and response; and achieve a minimum level of income loss of targeted farmers through compensation. Short description [one-sentence summary of each component] Re$ TA B.2

Component 1 : Animal Health and Veterinarv Services - This component will support the preparation and implementation of highly pathogenic avian influenza (HPAI) prevention and containment activities in the poultry sector and includes the following activities: (a) surveillance and diagnostic capacity; (b) culling and disposal; and (c) compensation to farmers for income loss.

Approval:

Grant Effectiveness:

Covenants applicable to project or component implementation: NIA

Component 2: Human Health - This component will support activities aimed at preventing the spread of the AI virus to humans and will cover: (a) prevention and human safety; (b) strengthening public health surveillance systems; (c) health system response; (d) vaccinations; (e) drug therapy; and (f) medical services.

None

(a) The Project Operational Manual, satisfactory to the Association, has been approved by the Recipient; (b) the annual work program for the f i rst year of the project, satisfactory to the Association, has been approved by the Recipient; and (c) the Subsidiary Agreement has been executed on behalf o f the Recipient and the Palestinian Authority.

Component 3: Public Awareness and Environmental Management - This component will address two areas of activity where contingency funds will need to meet evolving needs such as firther activities on public awareness and information which may have not been addressed under Components 1 and 2 and implementation of an environmental risk management plan.

Which safeguard policies are triggered, if any? Re$ Section 0.6 The project triggers OP 4.01 on the Environment Assessment and OP 4.09 on Pest Management.

Significant, non-standard conditions, if any, for: NIA Re$ Section C.5

V

A. STRATEGIC CONTEXT AND RATIONALE

1. Country and Sector Issues

1. Conditions for economic revival in West Bank Gaza (WBG) continue to be inhibited by a volatile political and security situation. Restrictions on the movement o f people and goods, are stifling economic activity, not least in Gaza where the Karni crossing point - the only commercial crossing point between Gaza and Israel - has been sealed for significant parts of the past year. In addition, the PA i s facing an unprecedented liquidity crisis brought about by a confluence o f factors, including Israel's withholding o f Palestinian customs revenue, suspension o f OECD-donors budget-related disbursements until the new government meets a number o f political conditions espoused by the Quartet and the reluctance o f commercial banks to lend or provide banking services to the PA. As a result, for the past three months, the PA has been unable to pay most recurrent costs and has not been able to make payments o f public sector salaries since March 2006 except for some limited recent payments to the lowest paid c iv i l servants.

2. In the current fragile conditions, the agricultural sector (and the poultry industry within it) offers one o f the more secure sources o f income and nutrition for Palestinians. Data for the 2003/2004 agricultural year put poultry production (meat and eggs) at around US$125 million, equivalent to roughly one-third o f total animal production.' At the same time, many families, especially among the poor, depend on poultry as their most affordable source o f protein (88% o f total animal protein intake for Gazans i s poultry-based2). According to the WFP3, families in Gaza have reduced their total intake o f animal protein out o f economic necessity, partially substituting poultry and eggs with significantly higher-priced beef, lamb, and fish. The lack o f affordable alternative protein sources could potentially have especially severe implications for the nutritional status o f children. The outbreak o f Avian Influenza in Gaza, with i t s associated economic, social and environmental risks, wil l thus compound an already fragile situation.

3. Providing an effective response to the onset o f Avian Influenza in these circumstances is, and will continue to be, challenging, requiring speed, flexibility and coordination o f priority actions. The Ministry o f Agriculture (MOA) does not have the capacity on i t s own to carry out activities throughout the WBG to contain a spread o f the Avian Influenza. This i s mainly due to in-house limitations, such as inadequate human capacities and financial resources to carry out activities o f such magnitude, in addition to the ministry's limited experience in managing large-scale donor funded projects. While the institutional capacity o f the Ministry o f Health, another key agency in an effective Avian Influenza response, i s somewhat better, the current fiscal crisis has nevertheless taken i t s toll. Furthermore, a protracted fiscal crisis may affect project implementation (Le., non-payment o f salaries in relevant ministries, etc.). To summarize, the PA i s falling well short o f having the adequate capacities and resources to combat an outbreak o f the Avian Influenza in WBG effectively.

4. Successfully containing the outbreak primarily depends on comprehensive culling o f poultry. In l ine with WHO guidelines, already, 400,000 birds in Gaza have been culled within a three kilometer radius o f farms with positive H5N1 cases. Initially, the PA was unable to provide on i t s own full compensation for owners o f the culled birds, who, on the basis o f press reports, had been led to believe such compensation would be forthcoming. Consequently, the PA suffered same loss o f credibility among farmers. For example, there were incidents confirmed by the MOA where some farmers showed resistance to the first round o f culling. This has also increased the risk that in the future farmers would be increasingly reluctant to report suspected cases o f Avian Influenza, that they might practice unsafe culling procedures, or even sel l infected

' Palestinian Central Bureau o f Statistics (PCBS), Agricultural Statistics 2003/2004. Interagency Framework for Avian and Pandemic Influenza Response, draft, April 20,2006. Market Monitoring Report Number 5: April 2006. World Food Program. 3

1

birds. Much o f the farmers’ trust, however, has been restored through a recent initiative by the Russian Government which enabled the PA to complete the compensation payments to the poultry producers who were impacted by the outbreak. The total amount o f cash payments funded by the Russian Government reached US$1.7 million.

2. Rationale for Bank Involvement

5. In short, West Bank and Gaza i s eligible for Bank funding and has asked for World Bank assistance. The Bank has a comparative advantage in providing funding for financing gaps in su port o f the regional and global “good” o f containing Avian Flu. According to the GPAI framework document , West Bank and Gaza i s eligible as a “newly-infected country with an active outbreak o f avian flu among poultry but no human infection (at the time o f writing), and the existence o f an appropriate program o f rapid response, detection and containment measures.” Implementation and monitoring arrangements which the international and donor agencies, including the Bank, could support are under discussion but not yet in place.

!

6. HPAI control programs require a multi-disciplinary approach to integrate socio-economic issues with technical and regulatory policies. In this context, the Bank recognizes the key role currently played by UN technical agencies through the UN Interagency Framework. The Bank’s comparative advantage i s i t s ability to mobilize financial resources as well as to introduce international best practices within a framework o f essential multi-disciplinary approaches. The Bank i s currently working with technical counterparts and the donor community to ensure that all activities complement the National Plan.

B. DETAILED PROJECT DESCRIPTION

1. Project Development Objectives and Key Indicators

7. Consistent with the GPAI, the project development objective i s to achieve a minimum level of spread o f AI to humans through better preparedness, control, and response; and achieve a minimum level o f income loss o f targeted farmers through compensation.

8. This would be measured by:

0

0

0

Sustained prevention rate among high-risk groups; Reduced infection rate o f HPAI in poultry; and A targeted percentage o f farmer’s income loss compensated.

2. Project Components

Component 1: Animal Health and Veterinarv Services WS%5,860,000)

9. This component wil l support the preparation and implementation o f HPAI prevention and containment activities in the poultry sector. In the design o f this component particular attention has been paid to consistency and coordination between the urgent short-term project activities that will be financed under a stand-alone US$3 mil l ion grant from the UNTF Grant, and the longer term activities to be conducted under this Project, as follows:

Paragraph 44 (ii).

2

Surveillance and Diagnostic Capacity. (US$680,000) Activities include: (a) training of field staff on surveillance and monitoring; (b) provision of personal protective equipment (PPE) for field technicians directly exposed to the risk of contamination during surveillance; (c) vaccines; (d) equipping of a veterinary laboratory in Gaza including supply o f reagents and laboratory disposables, as well as the upgrading of the capacity o f the existing laboratory in WB; (e) training for lab technicians; (f) and some activities in community awareness and social mobilization (mainly targeted at persons along the poultry production line). Potential activities may also include the provision of appropriate quarantine measures and the development of a routine collection and update of epidemiological data.

0 Culling and Disposal. (US$380,000) This sub-component wi l l support culling and preparation and disinfection of disposal sites and poultry farms, plus the provision of technical assistance to PA counterparts on culling procedures and data collection.

0 Compensation for Income Loss. (US$4,800,000) This component wil l provide technical support for the compensation committee and a proportion o f the compensation funding. All the necessary legal, operational and institutional arrangements for carrying out this sub-component wi l l be developed in the f i rs t few months of implementation through the AITF grant to UN agencies (UNTF Grant).

Comuonent 2: Human Health (US$2,907,000)

10. This component wil l support activities aimed at preventing the spread of the A I virus to humans. Particular attention has been paid in the design of the component to ensure consistency and coordination between the urgent short-term project activities to be conducted under the UNTF Grant and the long-term activities which wil l be conducted under this Project. The following activities wi l l be supported under this Component:

Prevention & Human Safety (US$482,000): through (a) the protection o f medical and field staff and other highly exposed groups involved in identification/surveillance of the disease. Adequate resources wi l l be allocated for Protective clothing (PPE), Prophylaxis treatment, disinfection materials, and vaccination against seasonal human influenza; and (b) social mobilization and raising public awareness in the community.

Strengthening Public Health Surveillance Systems (US$75,000): To assess risks to public health and to guide preventive interventions, information i s needed on the extent o f influenza infection in animals and humans, on circulating viruses, and on other priority infectious diseases. To this end, the project would support strengthening the capacity of existing laboratories. This wil l include the provision of equipment necessary for specimen collection, transportation, and testing. It wi l l also support upgrading of the diagnostic capacity o f existing laboratories.

Health System Response (US$2,350,000): While precise figures are difficult to estimate, the burden on the health system i s likely to be considerable. With the present situation, the potential o f the HPAI virus to become transmissible among humans i s of serious concern. Thus, building an effective national public health response would be part of an integrated national plan to bring proven interventions quickly up to a nationwide scale. Activities under this sub-component wil l include:

3

- Vaccinations: In the event o f an avian influenza pandemic (when vaccines become available), funding wi l l be made available for implementing a detailed logistical (procurement and distribution) plan for the vaccination of targeted priority groups.

- Drug Therapy: The use of anti-viral drugs wil l be part o f the approach to contain an avian influenza pandemic and to reduce morbidity and mortality. Therefore, support wi l l be provided for the purchase of Tami flu (antiviral drug). Priority would be given to population groups most exposed to immediate risk. The project would support the use o f the anti-viral drugs for: (a) post exposure; and (b) extended prophylaxis;

- Medical services: Based on the needs assessment which wil l be conducted under the UNTF Grant, assistance wi l l be provided to the health care system for preparedness to provide optimal medical care and maintain essential community services. Strengthened clinical care capacity could be achieved through establishing specialized units in selected hospitals.

ComDonent 3: Public Awareness and Environmental ManaPement (US$519,900)

1 1. Current assessments indicate there are at least two areas of activity where contingency funds wi l l need to meet evolving needs: (a) further activities on public awareness and information which may have not been addressed under components 1 & 2; and (b) implementation of an environmental risk management plan.

(a) Public Awareness and Information

12. A coordinated awareness and information campaign i s needed to target the general public, especially the rural population and areas of common backyard poultry breeding (high-risk areas). Some public awareness activities wi l l be carried out under Component 2 with oversight from the MOH. The MOA also plans to print out and distribute leaflets and brochures (under Component 1) targeting poultry producers. Additional activities not accounted for under Components 1 and 2 wi l l be financed under Component 3. The PIU wi l l retain a communications specialist/agency to prepare a public awareness strategy in consultation with key UN agencies and NGOs (UNICEF, PARC, etc). Communication methods could include:

0 Public meetings targeting women and farmers on means of protecting humans from AI. This may include field and house to house visits;

Creation of a Hot l ine - emergency telephones where specialized veterinarians on call wi l l be provided with basic instruments and clothing needed for emergency checkups; and

0 Mid-term evaluation workshop.

(b) Implementation o f Environmental Management Plan

13. This sub-component wil l implement measures as described in the Environmental Management Plan (EMP) which wi l l be developed as part o f the activities under the UNTF and of the Environmental Assessment (see safeguards section). The EA/EMP wil l be developed following the “Interim Guidelines for Managing Potential Environmental and Social Safeguard Issues in Bank-Assisted Avian Influenza Control Projects”, Quality Assurance and Compliance Unit, April 2006.

14. These measures may include:

4

0

0

0 appropriate landfill site management; 0

implementation o f sound culling methods; safe disposal o f culled birds and disposal o f farm waste (manure, eggs, feathers, contaminated equipment, etc); transport o f infectious materials and dead birds;

safe disposal o f medical waste.

3. Project Costs and Financing Instruments

15. Total project costs have been estimated at U S 1 0 mill ion financed from the Trust Fund for Gaza and West Bank (TFGWB). An additional US$3 mill ion from the Avian and Human Influenza Facility Trust Fund will be implemented through the UN agencies for urgent prevention and preparedness activities to be implemented over an initial 12-month period. Cash compensation for the farmers affected by the mandatory culling has already paid for an aggregate o f US$1.7 mil l ion through a contribution from the Russian Government. Other co-financiers, such as USAID, the EC and Norway, are expected to contribute through the UN Interagency Framework either financially or in kind.

16. The WBG Country Financing Parameter (CFP) were approved on March 14, 2005 and made the financing o f VAT and other reasonable taxes eligible under grant financing. Accordingly and, in l ine with the CFP financing eligibility criteria, the WBG CFP was effectively applied from August 1, 2005 and al l existing Credit / Grant Agreements were amended to reflect the new guidelines. Furthermore, the CFP has been applied to al l new operations ever since. The. Ministry o f Finance wil l therefore maintain the same policies as applied to existing projects for VAT, import duties and taxes on goods and services to the Project.

C. IMPLEMENTATION ARRANGEMENTS

1. Overall Project Organization and Management

17. Overall responsibility for overseeing and coordinating institutional and implementation arrangements will be vested with the National Emergency Committee for Avian Influenza Control (NCAIC) established since March 24, 2006. NCAIC i s chaired by the Minister o f Health and comprises the Deputy Minister o f Agriculture as vice-chairman and Senior Representatives from the Ministry o f Finance, the Ministry o f Local Government, PEA, and the Poultry Professional Association. The NCAIC will provide policy guidance and coordination at the national level to oversee the implementation o f the Project. The Committee will be responsible for ensuring coordination and linkages across relevant agencies with international partners and for guiding and monitoring project implementation at the central level. It wil l review and approve annual work programs (AWPs) and ensure that recommendations from the auditors (Project and Compensation Fund) are complied with in a timely manner (see Appendix 5).

18. The primary implementing agencies (IAs) for the Project’s physical activities will be the Ministry o f Health (MOH) and the Ministry o f Agriculture (MOA). UN Agencies, local and international NGOs, and other public agencies and departments would also carry out specific activities as required. Both ministries wil l appoint Component Coordinators (CCs) and senior representatives, responsible for coordinating activities within the respective ministries. The component coordinators wil l be the counterparts o f the Agricultural and Health Specialists seconded to the PIU as full staff to ensure the overall technical coherence o f the project. The CCs will report to the Project Implementation Unit (PIU) and work with staff and consultants at the PIU as well as in the field under their respective ministries supporting the development and organization o f project activities and the M&E o f said activities (see Appendix 5).

5

2. Institutional Arrangements for Implementation

19. The Project will provide financial and technical support for project management and coordination and for M&E. The PIU wil l be entrusted, under the overall guidance o f the NCAIC, with day-to-day implementation, supervision and monitoring o f project activities. I t wil l also be responsible for coordination o f project activities, technical assistance and training, as well as the fiduciary tasks o f procurement and financial management. Finally, the PIU wil l be responsible for consolidating the Annual Work Programs (AWPs), Financial Monitoring Reports (FMRs) and annual financial statements, Procurement Planning and progress reports as well as the coordination o f the financial audit. It wil l also provide fiduciary and technical support to the implementing agencies and facilitate the work o f the CCs.

20. CCs will be appointed in both MOA and MOH. They wil l coordinate and oversee project activities within their respective ministry and associated institutions as well as with other relevant government departments, NGOs and Donors so as to ensure effective inter-agency collaboration. The CCs wil l also be responsible for the preparation o f the AWPs as well the collection and organization o f other financial information and data on their respective project components for transmission to the PIU. This data wil l be used as inputs for the quarterly and annual progress reports and FMRs. The CCs wil l be assisted by staff and, as necessary, consultants, who would support planning and implementation o f activities as well as M&E o f project activities in both ministries. To facilitate Project management, a Project Operational Manual (POM) wil l be prepared by negotiations.

3. Financial Management and Procurement

21. To mitigate fiduciary risks and to respond to the emergency nature o f the project, it has been agreed that a self-contained Project Implementation Unit for the Avian Influenza Prevention and Control Project will be set up to oversee day-to-day implementation, supervision and monitoring o f project activities. The PIU wil l also be responsible for coordination o f project activities, technical assistance and training, as well as the fiduciary tasks o f procurement and financial management. For reasons o f efficiency, appropriate oversight and better integration within the PA’s administrative structure, it has been agreed to anchor the PIU at the M O H since the Minister o f Health i s the Chairman o f the National Emergency Committee for Avian Influenza Control (NCAIC).

22. The PIU wil l be headed by a Project Coordinator who wil l report directly to the NCAIC chaired by the M O H on policy matters and all technical and operational details concerning overall Project implementation. The PIU will include, in addition to the regular fiduciary staff for financial management and procurement, high level experts in agriculture, health, monitoring and evaluation (M&E), outreach, etc. The PIU wil l report to the MoF in compliance with the principles and procedures o f Public Financial Management in WBG as defined by the Organic Budget Law, financial directives, and operational decrees applicable to ministries. In that vein, the MOF will retain signing and processing responsibilities over the withdrawal applications. To ensure that West Bank i s fully covered, a branch office will be maintained at the M O H in West Bank with up to three technical staff who wil l coordinate with the main PIU in the Gaza.

23. The PIU will need to be strengthened to meet the Project’s implementation requirements. It will be necessary to add a monitoring and evaluation expert and an outreach specialist to the current staff complement. Finally, a tailor-made training program wi l l be provided at an early stage for the existing finance and procurement specialists. In the case o f procurement, the services o f a procurement consultant(s) or procurement agent will be required to ensure appropriate overall administration, procurement and financial management o f the project.

6

24. The capacity-building o f the P IU wil l be gradually strengthened through the envisaged grant from AITF for immediate implementation o f critical activities through the UNDP which will serve as implementation agency with other expert UN agencies (such as the FA0 and WHO) as part o f the Avian and Human Influenza Facility Trust Fund Grant (UNTF Grant). This strengthening wil l include, inter alia: (a) backstopping the P IU procurement specialist in the preparation o f the Procurement Plan and on-the-job training; (b) assisting the PIU Financial staff in meeting the Administrator’s financial reporting requirements; and (c) finalization o f the Project Operational Manual (POM).

25. Financial Management. An assessment o f the PIU’s financial management capacity was completed in May 2006. The assessment recommended to strengthen the existing capacity through additional training and technical backstopping by a qualified financial management specialist(s) which will allow the PIU to adequately support the implementation o f the proposed project and meet the IDA financial reporting requirements in accordance with the requirements o f OP 10.02. The PIU will maintain a good financial management system consisting o f proper accounting books, a reliable and functioning internal control system and competent and experienced accounting and financial staff.

26. The Compensation Fund for which a Presidential Protocol was issued i s operated by a national committee chaired by the Ministry o f Agriculture and comprising the General Directors o f MOA and representatives from the Ministry o f Health, the Ministry o f Planning and the Ministry o f Finance. The strategy issued by the committee was reviewed and found in need o f further strengthening to improve i t s functioning, the f low o f funds, the management o f the compensation o f fund in the commercial bank, the methods o f payment (checks vs bank transfers), etc. In particular, the internal control system, proposed fund flow arrangements and oversight arrangements need to be better articulated for greater transparency and accountability. The f low o f funds under this sub-component will only begin after the IDA i s satisfied with the existing internal control system, fund-flow procedures and oversight arrangements. The financial management procedures established for the Compensation Fund wil l be described in the Project Operation Manual.

27. The PIU wil l be responsible for the financial management aspects o f the Project. To that end, it wil l prepare and issue the Financial Monitoring Reports (FMRs) on the basis o f information and data provided monthly by the component coordinators at the MOA, M O H and all other implementing agencies. The FMRs wil l consist o f four tables namely: (a) Sources and Application o f Funds; (b) Use o f Funds by Project Categories/Activities; (c) Physical Progress Report - output; and (iv) Procurement Monitoring report - narratives and tables. In addition, the PIU i s also expected to produce a general a reconciliation o f the Special account (SA), a progress report on project implementation with an analysis o f variances between planned versus actual, and physical versus financial. A sample o f FMRs i s included in the POM. The P IU wil l submit the FMRs to the IDA within 45 days o f the end o f the relevant quarter.

28. Withdrawal o f funds wi l l be made based on disbursement methods such as reimbursement and replenishments o f the SA with Statements o f Expenditures (SOEs). Special commitments and direct payments with full supporting documentation wil l also be allowed. The project’s annual financial statements, along with SOEs, the SA and the Compensation Fund wi l l be audited by independent auditors acceptable to IDA and recruited on a competitive basis. The audit w i l l be conducted in accordance internationally accepted auditing standards. The audit report would be submitted to IDA no later than six months following the closing o f the fiscal year under audit.

29. Procurement. An assessment o f the procurement capacity o f the PIU was conducted in May, 2006, as part o f the appraisal mission. The assessment determined that the procurement capacity o f the P IU needs to

7

be strengthened to meet the implementation requirements under the Avian Influenza Prevention and Control Project. To this end, the PIU wil l be supported through the services o f Procurement Consultant(s) or a Procurement Agent to ensure an appropriate procurement management o f the project. It i s also envisaged that the P IU wil l benefit from capacity-building through the grant that will be made available under the Avian Influenza Trust Fund (AITF) to finance emergency activities.

30. Procurement o f works, goods and services required for the activities to be financed under the project shall be undertaken in accordance with the procedures set forth in the Bank “Guidelines - Procurement under IBRD Loans and IDA Credits” dated May 2004 (the Procurement Guidelines). Similarly, the selection and employment o f consultant services shall be governed by the “Guidelines: Selection and Employment o f Consultants by World Bank Borrowers” dated May 2004 (the Consultant Guidelines).

3 1. A Procurement Plan (PP) for project implementation covering the initial 12-month period o f project implementation wil l be prepared before negotiations. The PP will define the l i s t o f goods, works, and services to be procured during the initial period and their value, the method o f procurement, thresholds for the Bank’s prior review and the timetable to carry out the procurement. The PP will be updated annually, or as required, to reflect the project’s actual implementation needs and improvements in institutional capacity.

32. The procurement procedures and Standard Bidding Documents to be used for each procurement method, as well as model contracts for works, goods and consultant services, will be presented in the Project Operational Manual (POM).

4. Retroactive Financing

33. Retroactive financing will not be available under this project since the PA does not have the required resources to finance emergency activities. However, a grant o f US$3.0 mill ion will be made available under the Avian Influenza Trust Fund (AITF) for emergency activities to ensure the implementation o f necessary measures for surveillance, to minimize the risk o f HPAI spread to animal and human populations and to strengthen the PIU. This would entail the financing o f the most critical start-up activities by various UN agencies, including launching the compensation payment process, acquiring testing equipment, raising awareness, safely disposing o f birds, and decontaminating infected areas. The grant would also cover project- related operating costs and consultant services for finalizing the compensation procedures and training the fiduciary staff o f the PCU. The said resources would be managed by UNDP in consultation with the PA. Regarding procurement, the Bank will ensure that it i s carried out in compliance with the requirements under “IDA Consultants Guidelines” and “IDA Guidelines for Procurement o f Goods and Works”.

5. Monitoring and Evaluation of OutcomedResults

34. Monitoring and Evaluation (M&E) wil l be the responsibility o f the P IU with input from each implementing agency. In addition to progress reporting, regular P IU staff will be responsible for consolidating the Annual Work Programs (AWPs), Financial Monitoring Reports (FMRs) and Procurement Planning. M&E activities and wil l be strengthened by the recruitmenthecondment o f additional staff/consultants, as necessary.

35. Monitoring implementation progress in an emergency project o f this nature wil l require continuous and systematic reviews o f the various activities. M&E activities are intended to: (a) measure input, output, and outcome indicators (see Appendix 2); (b) provide regular and up-to-date information on the progress towards meeting the interim activities’ benchmarks and the overall Project objective; (c) alert the implementing

8

partners to implementation problems and provide a basis on which performance could be improved; and (d) determine whether the relevant stakeholders are responding as expected.

36. The findings o f M&E wil l be reflected in the quarterly and annual progress reports (at mid-term) to be prepared and submitted by the PIU. Accordingly, progress reporting wi l l reflect progress under works done, goods procured, technical assistance, performance indicators, and FMRs. Reporting wi l l also cover issues identified during implementation and the strategies and actions proposed to resolve such issues that affect progress. The fourth quarterly report o f the first year wil l be an annual mid-term report covering progress during the past year. A Final Completion Report wi l l be prepared and wi l l cover the progress achieved since effectiveness, evaluation o f outcomes, and the lessons learned.

9

6. Sustainability, Project Risks and Mitigation

Inadequate or lack o f multi- sectoral participation Financial resources not accessible in a timely manner, weak procurement management.

Lack o f timely and predictable access to expert advice and technical support.

L o w priority given to public

Inadequate capacity for planned

accountability and transparency in program management.

surveillance, surveys and monitoring and evaluation.

(I) MACROKOl I

M

H

S

S

H

RATING

to A I control and to the threat o f a global influenza pandemic.

Overall Risk Rating:

Functional collapse o f the PA if

unwilling to assist f low o f funds.

H

Project implementing agencies do not have sufficient authority, leadership, and capacity to take leading role in AI prevention and control

H

Essential equipment and M supplies unavailable due to closures.

MITIGATION MEASURE

Continuing support for inter-country collaboration through information exchanges, dialogue, and mobilization o f international commitment and resources. Potential greater use o f UN agencies

Prior negotiations with banking sector and other parties. Alternative use o f UN agencies in implementation.

Adequate implementation arrangements in place as a pre-condition o f Bank financing; careful monitoring o f leadership and project management during project implementation; and technical assistance and training. Up-front capacity-building through AITF grant to UN agencies. Coordination with GOI.

High level national committee to be strengthened.

Rapid disbursement procedures and simplified public sector procurement in accordance with OP for emergency operations. AITF grant to UN will finance preparation o f project operational manual. Project activities are designed and implemented with leading multilateral agencies such as FA0 and WHO; regional bodies such as the European Union; and bilateral and other donor organizations. Communication strategy and component, including publication o f audit results and achievements; transparency in decision and resource allocation. Technical assistance and partnership between local organizations and international institutions will be provided. M&E will include information on instruments for data collection, agencies remonsible and a detailed timetable

7. Grant Conditions and Effectiveness

37. The key conditions needed to minimize Project r isks have been addressed by the Palestinian National Authority who now meets the eligibility requirements for participating in the GPAI (Country Eligibility Criteria under the GPAI). Specific provisions have been developed to meet the standard requirements covering organization and staffing, as well management, procurement and financial management arrangements.

0 Conditions of Effectiveness: (a) the Project Operational Manual, satisfactory to the Association, has been approved by the Recipient; (b) the annual work program for the f i rs t year o f the Project, satisfactory to the Association, has been approved by the recipient; and (c) the Subsidiary Agreement has been executed on behalf o f the Recipient and the Palestinian Authority. Withdrawal Conditions. (i) For expenditures under Compensation Fund; (a) the Compensation Fund has been established in a manner satisfactory to the Association; and (b) the Compensation Procedures Manual, satisfactory to the Association, has been adopted by the Recipient; and (ii) for expenditures under Goods, Works and Consultants’ services, the EMP, satisfactory to the Association, has been adopted by the Recipient.

0

D. APPRAISAL SUMMARY

1. Economic and Financial Analyses

38, Production o f broiler and layer sectors in Gaza in 2003/4 was valued at US$42.S5 million. The Gazan poultry sector’s value-added, after input deductions, i s estimated at around US$22 million6. Without the project, it i s expected that avian influenza would force the Gazan poultry sector to remain inactive in the long term and that this income stream would be lost. With the project, the sector i s expected to return to i t s current level o f value-added within two or three years. A project investment o f US$10 mil l ion i s economically justified in order to restore an income stream o f US$22 mil l ion per year after two to three years.

39. Assuming that 5% o f the Gazan population would be exposed to infected poultry during an uncontrolled poultry epidemic, it i s estimated that around 2,000 human hospitalizations and 300 human deaths would ensue’. The project would avert these health impacts.

40. Poultry rearing plays a key role in household livelihoods and female incomes in Gaza, given that Israeli restrictions and social customs limit access to formal employment. According to Esim and Kuttab (2002)*, approximately one-half o f Palestinian women overall have had long-term involvement in poultry- rearing.

2. Environmental and Social Issues and Safeguard Policies

41. The project has been classified as a category B Project since it involves moderate environmental impacts which can be managed during project implementation. The project triggers OP 4.01 on Environment

Palestinian Central Bureau o f Statistics (2005) Agricultural Statistics 2003/2004. After deducting the cost of purchased chicks and assuming that 50% of the animal feed and veterinary medicine

consumed in Gaza i s used for poultry. ’ Applying WHO estimated parameters for bird-to-human infection, hospitalization and mortality. Esim S. and Kuttab E. (2002) Women’s informal employment in Palestine: securing a livelihood against all odds.

11

Assessment and OP 4.09 on Pest Management. The safeguard issues which pertain to the Project are: (a) selection and implementation o f culling methods; (b) selection and implementation o f disposal methods for culled poultry and associated waste; (c) safe disposal o f medical waste; and (d) mitigating the negative economic impacts of disease-inducted death and/or mandated culling o f poultry on small-scale and backyard poultry producers.

42. OP 4.09 on Pest Management: The procurement o f any pesticide will be contingent on an assessment o f the nature and degree o f associated risks, taking into account the proposed use and intended users. The Project wil l require that any pesticide it finances be manufactured, packaged, labeled, handled, stored, disposed of, and applied according to standards acceptable to the Bank. The Bank does not finance formulated products that fal l in WHO classes IA and IB, or formulations o f products in Class 11, if (a) the country lacks restrictions on their distribution and use; or (b) they are likely to be used by, or be accessible to, lay personnel, farmers, or others without training, equipment, and facilities to handle, store, and apply these products properly.

43. The project wil l not finance activities which would trigger OP4.12 on Involuntary Resettlement, e.g., selected disposal sites, landfills and burial pits will be on public land rather than private sites to avoid land expropriation.

44. development o f an EMP, which wil l be disclosed in the country and in the Bank’s InfoShop.

The project will be processed under OP8.50 and the f i rst activity o f this project wil l be the

45. The proposed investments in laboratory facilities, equipment and staff training wil l improve the effectiveness and safety o f avian influenza and testing procedures by meeting international standards by the World Organization for Animal Health (OIE). Whatever medical waste i s generated in health care facilities and waste from the animal health component wil l be managed using existing country guidelines. The country project wil l also support updating these guidelines, training health care workers to manage medicinal waste following these guidelines and the purchase o f equipment for the proper handling and disposal o f medical waste in selected facilities. This provision would be included in the project operational manual (or equivalent).

46. Overall, the Project would assist government entities to develop a strategy for managing future emerging and re-emerging disease outbreaks. As such, the project will improve environmental and social safeguards in the following areas: (a) mainstreaming environmental safeguards into protocols and procedures for the culling and disposal o f animals and waste during an outbreak, in particular by adopting OIE standards aligned with WHO procedures and recommendations, and improving bio-medical-waste management systems in health facilities and laboratories; (b) financing safe culling and disposal options; and (c) development o f compensation policies for poultry farmers affected by future outbreaks.

12

Safeguard Policies T r i g l Yes - N o Environmental Assessment (OP/BP/GP 4.01) X Natural Habitats (OP/BP 4.04) X Forests (OP/BP 4.36) X Pest Management (OP 4.09) X

Safeguard Policies T r i g l Yes - N o

Natural Habitats (OP/BP 4.04) X Environmental Assessment (OP/BP/GP 4.01) X

Forests (OP/BP 4.36) Pest Management (OP 4.09)

X X

47. Since the project supports investments for the culling and disposal o f carcasses and laboratory waste, an Environmental Management Plan (EMP) will be prepared. The EMP wil l be developed following the “Interim Guidelines for Managing Potential Environmental and Social Safeguard Issues in Bank-Assisted Avian Influenza Control Projects”, Quality Assurance and Compliance Unit, April 2006. The EMP wil l cover the selection o f appropriate culling methods, clean-up o f animal waste from infected and culled poultry, and selection and management o f disposal facilities. The scope o f this EMP will be specified during the initial period o f Project implementation.

Cultural Property (OPN 11.03) Indigenous Peoples (OD 4.20) Involuntary Resettlement (OP/BP 4.12) Safety o f Dams (OP/BP 4.37) Projects on International Waterways (OP/BP 7.50) Projects in Disputed Areas (OP/BP 7.60)

48. The disclosure o f the EMP in the country and InfoShop will be a condition o f disbursement for the implementation o f culling and disposal activities. On the conditions o f disbursement for the compensation component, any conditions wil l apply for future culling, not past culling, with the conditionality applying only to the completion and operation o f the EMP.

X X X X X X

Social Aspects

49. The social impacts o f the project, both positive and negative, will require close monitoring. While no social safeguard policies are likely to be triggered, sensitivity to the political and security context (consistent with 0.P 2.30: Development Cooperation and Conflict) would be prudent. In line with the MNA Regional Social Development Strategy, the project design wil l include consultations with affected populations in planning and decision-making on the AI response, including these beneficiaries’ accountability to achieve results. In particular, the management o f the compensation activity (under the animal health component) wil l require attention to social impacts. The inclusion o f a public awareness and information component wil l allow corrective and mitigation measures against social risks.

50. to build peaceful cooperation and links which might have broader payoffs.

In regional terms, the potential collaboration with Israel and other neighbors offers a rare opportunity

13

WEST BANK and GAZA: Avian Influenza Prevention and Control Project

Appendix 1: International and Country Background

1. Overall Country Impact Assessment

51. As o f early April, sporadic outbreaks o f avian flu in both Gaza and Israel have put authorities and civilians on alert, albeit with different levels o f response and readiness. According to FAO/WHO reports, there have been confirmed cases from eight locations in Gaza, with several other suspected cases under investigation. There were also eight confirmed cases from Israel, all in areas close to Gaza or the West Bank, and one case in an Israeli settlement located within the West Bank. By the end o f April 2006, preventive culling o f a target o f 400,000 chickens in 45 farms was carried out by the M O A in Gaza (approximately 20% o f Gaza poultryg). Although there remains some ambiguity regarding the culling process actually followed”, the PA’s stated policy was to comply with international practice o f culling within a three km zone o f outbreaks (OIE and FA0 Guidelines).

52. Further assessment has been difficult due to lack o f access, and conflicting information emanating from different international and ministerial sources. However, the extent o f the risk i s clear. According to the MOA, there are currently 2,252 poultry keepers (commercial farms) in the West Bank with an annual population o f 25 mill ion broilers and 1,100 commercial poultry farms in Gaza with an annual population o f around 10 mil l ion broilers, plus widespread domestic household rearing o f birds (chickens, pigeons, geese, etc., in backyards and on rooftops). (See documents in the project f i le for poultry statistics from the MOA). Given Gaza’s small geographic size and the widespread dispersion o f poultry, it would not take many outbreaks for the three km culling zones to cover the entire area and bird population. Moreover, although suspected human cases o f avian flu have thus far tested negative, due to Gaza’s high population density (around 4,000 per s q km, among the world’s highest), the potential risk o f human contagion i s heightened because o f the close proximity o f large populations to any infected poultry. Indeed, the possible impact o f further significant outbreak in Gaza, as well as the proximity o f already confirmed outbreaks to Israel, Egypt and Jordan puts the whole region at risk if it i s not handled quickly and properly.

2. Country Strategy in the Context o f the GPAI

53. A presidential decree was issued early 2006 establishing the Avian Influenza National High Contingency Committee headed by the Minister o f Health and including members from different ministries and relevant organizations (MOH, MOA, MOF, MOEHE, MOSA, Environment Quality Authority (EQA), the Union o f Poultry Farmers, and NGOs). This committee was established in order to reinforce the Palestinian National Plan for Pandemic Influenza that was formulated in late 2005 and headed by the MOH. The Plan, which remains in draft form, sets up the responsibilities, actions and mechanism o f work. The plan i s based around a set o f common objectives, namely:

Interagency Framework for Avian and Pandemic Influenza Response, draft, April 20,2006 lo West Bank and Gaza Avian Influenza Rapid Assessment Report, Dr. Fawzi Keshrid - Animal Health and Production Consultant - the World Bank.

14

0

Securing the preparedness and containment activities. Meeting the WHO requirements in securing the protective equipment, vaccines and medications. Strengthening the coordination and communication with the international community and mainly the neighboring countries. Securing funds for implementing the needed activities. Improving the capacity o f the central public health laboratories (CPHL). Ensuring all governmental departments, health care facilities have developed and exercised the preparedness and response plans. Providing guidance to the private sector and public on preparedness and response, in conjunction with the government and local authorities.

54. The M O A has also prepared the National Avian Influenza Control and Eradication, with the main objective o f controlling the disease through an active, programmed surveillance system by developing the capacity for early detection and containment o f the virus, promoting education and awareness among farmers, and facilitating coordination and information exchange among the MOH and the regional and international organizations. This National Plan has been divided into chronological phases, with Phase 1 laying out the basis for implementing active surveillance measures, and Phase 2 the implementation o f effective containment measures in the case o f confirmed outbreak.

55. In an attempt to translate the National Plan described above, the MOA formed the Avian Influenza Control and Eradication Plan Technical Committee headed by the Veterinary Services and Animal Health Department. The mandate o f this Committee i s to supervise and evaluate the implementations o f field activities related to the control and eradication elements o f the National Plan, evaluate the epidemiological status o f Avian Influenza in WBG, and to determine the requirements for the surveillance and control.

56. Due to the inability o f the PA ministries to provide the requisite funds necessary to implement the above plans, none o f the plans have been actually executed. Instead PA ministries have been limited in their response to only the most critical surveillance and awareness activities, with little, if any, funds available to contain any possible occurrence o f a new outbreak.

3. Country Response to the A I Emergency

3.1 Overall Coordination

57. Clearly, the PA i s seriously constrained in i t s ability to address AI, largely due to international response to the transition in government. Despite this handicap, coordination between the Palestinian ministries dealing primarily with the virus (MOH and MOA) as well as with relevant regional and international organizations has been remarkably efficient, with the M O H taking the lead. The AI National Committee (described above) coordinates development and communication o f policies, assessment reports, protocols and guidelines, as well as follow-up measures to fulfill the national plan. Although brochures and telephone hotlines have been set up for both human and animal health inquiries, a stronger public awareness and communications campaign i s nevertheless required (see below).

58. This committee's role has been reinforced by (i) a task force chaired by FA0 with representation from the WB, UNICEF, WHO, UNRWA, EC, M O A & M O H and (ii) regional cooperation whereby Israelis, Palestinians and Jordanians are in close communication, sharing information and experience, in particular through an initiative under the Middle East Consortium on Infectious Disease Surveillance (MECIDS)".

This i s an NGO initiative was called for by Search for Common Ground Organization, based in Jerusalem. 11

15

59. As part of the international response, the UN, led by UNDP and in partnership with other UN agencies including FAO, WHO, and UNICEF, has prepared an Interagency Framework for the Avian Influenza and Preparedness Response in order to coordinate the individual efforts of each specialized agency in a systematic collective approach for assisting the PA in i t s immediate and longer term needs to both mitigate the epidemic and to reduce the threat o f a human pandemic. Five specific objectives are laid out:

Containment: Containing current outbreaks and preventing further outbreaks by surveillance, early detection and containment at source through urgent, intense and sustained interventions designed to prevent the virus from spreading or being transmitted to humans; Mitigation: Mitigating the negative impact o f Avian Influenza on the general public’s nutritional status and food security, by providing humanitarian assistance in the form of food aid and livelihood recovery; Capacity Development: Supporting the veterinary and human health surveillance and diagnostic services; Revitalization: Developing a long-term strategy to help the poultry industry recover from the damage; and Preparedness: Improving national pandemic preparedness for containing and responding to any human pandemic that might emerge.

60. Portions of the Bank’s resources will be channeled through the UN Interagency Framework for the implementation of those urgent activities in which the UN system has a comparative advantage in terms o f adequate capacity and mobility to carry out immediate tasks.

4.2 Animal Health

6 1. Generally, the Ministry o f Agriculture (MOA) has been less well-prepared but has reacted to specific outbreaks - preparedness funding goes largely to MOH, while MOA i s increasingly constrained by inadequate funding. As described earlier, the initial culling efforts carried out by the MOA staff in Gaza (400,000 birds) and in the West Bank (approximately 5,500 birds belonging to 47 poultry breeders) have been carried out in compliance with the 3 km zoning recommendations. Initially, the MOA had envisaged carrying out a 100% slaughter in the West Bank (allowing birds to be frozen and used for food), but this has not been applied due to limited resources that MOA prefers to conserve for possible culling requirements that might emerge in the near future. Nevertheless, 100% slaughtering in the West Bank remains an option should conditions allow. As part o f i t s farmer-awareness and education campaign, MOH has already prepared and distributed approximately 20,000 brochures and 5,000 posters among poultry farmers in the West Bank. In addition, some interactive awareness sessions at farms visited during the sampling and culling process have been carried out with farm owners and employees. The PA has expressed its concern to partners and donors about the need for immediate funding for compensation in order to encourage further culling; additional funding i s also required for necessary operational and recurrent expenditure in the areas o f surveillance, culling and disposal, and to address any new cycle o f infections.

62. MOA has also put in place a strategy for farmer in order to encourage farmers to report suspected cases, to encourage farmers to perform the culling process, and to compensate farmers on their capital loss. The strategy set out as a target group al l farmers whose birds were culled during the culling period based on the records of the MOA and the technical teams in the field. MOA considers farmer compensation to be one o f its main priorities, and lists o f farmers and compensation amounts have been prepared. As of yet there are not sufficient funds to carry out the compensation (estimated at around US$2 million for 100% culling); it i s feared that if the PA fails to compensate farmers, the relationship between farmers and MOA could deteriorate,

16

possibly leading to unsafe practices by farmers such as informal culling and disposal o f birds should another outbreak hit the area.

63. It should be noted that the MOA Plan has several shortfalls: it does not clearly address a strategic outlook for options and costs o f restoring public confidence, for vaccination to protect from the threat o f new Avian Influenza infections, or for the safe restocking o f poultry population.

4.3 International Support to the Avian Influenza Emergency

67. Several international organizations have mobilized assessments o f the situation and identified areas in need o f support. A Rapid Expert Mission was carried out by WHO from March 30 - April 6, 2006, and addressed mainly human health issues. On the animal health side, the FA0 conducted a mission from April 17 - 29, 2006, to make a rapid assessment for combating Avian Influenza. The World Bank carried out i t s Rapid Assessment Mission from March 28 - April 15, 2006, during which the mission conducted intensive consultations with several UN agencies (including WHO, FAO, UNRWA and UNDP) in order to consolidate efforts to produce the UN Interagency Framework for Avian Influenza and Pandemic Response” currently being coordinated by UNDP. However, despite all these collective efforts, only modest funds have been mobilized, due in part to donor hesitancy about aid levels and distribution mechanisms in the context o f recent political developments:

68. Some donor commitments have materialized recently. The Islamic Development Bank (IDB) financed the purchase o f two PCR machines for the M O A veterinary labs; a contribution from the Russian Government financed a total o f US$1.7 mill ion in cash payments to all the farmers who lost their poultry stock through the mandatory culling that was implemented. In addition, during the first week o f June 2006, the PA was able to make some additional compensation. F A 0 and WHO have also been using their own funds to assist the PA in carrying out capacity building activities, training for staff, and provision o f specialized technical advice. FA0 has also provided some urgently needed supplies for surveillance activities, such as PPE. The UN Interagency Framework for Avian and Pandemic Response contains a preliminary budget o f around US$30 mill ion to cover containment and compensation, public health, nutrition and food security needs, institutional and technical capacity strengthening, and agricultural recovery. The Bank’s intervention within the Framework wil l consist o f US$10 mil l ion from the TFGWB and an additional US$3 mil l ion under the Avian and Human Influenza Facility Trust Fund, to be implemented directly through the UN system for immediate needs.

4.4 Lessons Learned

69. This i s the f i rst GPAI project within the framework o f a fragile or conflict-affected country. Lessons from other AI projects should therefore be adapted to the circumstances o f WBG, where experience in implementing previous emergency projects also provides valuable guidance, notably:

- Any project o f this type must be kept simple in terms o f objectives, number and complexity o f components, and implementation arrangements - particularly with respect to simplified financial and procurement arrangements. Simplified implementation arrangements are a key to achieving the overall objective within the limitations and timeframe imposed by an emergency context.

l2 Collective effort of UN agencies (WHO, FAO, UNICEF, WFP, UNDP and UNRWA) to develop an integrated conceptual framework that identifies the roles/ ways o f coordination to meet the objectives through a joint program.

17

- Proper coordination with international organizations and national and non-government institutions in order to ensure a comprehensive, collective approach and to minimize both duplication o f efforts and gaps in coverage i s o f critical importance.

- For the purpose o f quick implementatioddisbursement, project implementation through a national counterpart that has already acquired adequate capacity and knowledge in implementing Bank-financed projects i s the most efficient approach. Such an arrangement might be done through a retained national counterpart or by an existing Project Implementation Unit (PIU).

- Given the need for an immediate response and in recognition o f the limited capacity o f the PA to respond immediately and effectively to the Avian Influenza threat, drawing on international technical assistance and implementation o f activities - particularly those related to critical surveillance and startup activities - i s an appropriate approach. I n the context o f West BanWGaza (weakened P A institutions and an area prone to conflict) the Rapid Assessment team concluded that immediate implementation o f critical activities through the UN system with Government approval may be the only effective solutioni3.

Note on Approaches to Avian Influenza in Fragile States, dated April 24,2006 and revised May 7,2006. Operations 13

Policy and Country services, The World Bank.

18

WEST BANK and GAZA: Avian Influenza Prevention and Control Project

Appendix 2: Results Framework and Monitoring

70. of the project operations manual where baselines for the results indicators would be identified.

The following i s an indicative results framework to be reviewed and refined in the preparation

71. Project Development Objective: To achieve a minimum level o f spread of AI to humans through better preparedness, control, and response; and achieve a minimum level of income loss of targeted farmers through compensation.

72. As measured by:

0

e 0

Sustained prevention rate o f 100% among high risk groups Reduced Infection rate of poultry A percentage of farmers’ income loss compensated (to be determined)

19

N N

d- N

*. - W a m 0. e U

.I U

E

2 .I

a B v1

.e U u Q

'f?

B .I Q

4-

VI e) 0 I '2 e)

m

0 0

8 3 3

I - 5 -0 8

0 0

2 10

Chart: Compensation Fund Core Functioning

SOURCES OF FUNDS: 1- Russian

HIGH COMMITTEE

(17

2- WorldBank 3- Local (Palestinian authorities):

- Taxes on poultry industry

- Palestinian funds held by Israel - Charges associated to poultry

4- Other?

CULLING TEAM 3 to 4 persons including: - Veterinarian from government - Technicians (2) - Member o f the sub-committee

0 t 3

%

REGISTRATION/CULLING FORMS - The forms need 3 carbon sheets. These would be for: 1) the owner o f poultry culled, 2) governor, 3) a member of the culling team - Each of the forms should include signatures o f the three persons above mentioned

Should include info on: - Number animal culled; - Categories; - Track of animal movement - Surveillance - Etc.

CALCULATION OF AMOUNTS In the responsible department of the CF should calculate amounts for each owner through the culling forms information

DISBURSEMENT THROUGH - Cheques to industrial producers - Cash for smallholders (?)

DISBURSEMENT BY - Culling team (?) - Sub-committee (?) - Local NGOs (?) The owner should present the registratiodculling form carbon sheet.

FARMERS INDUSTRIAL PRODUCERS AND

SMALLHOLDERS

31)

Component 2: Human Health (US$2.9 million)

Detailed activities and costing table:

Globa Component I1

Prevention and Human Safety

Surveillance Capacity Building

Health system response

Program for Aviai Activities

Community awareness and social mobilization Procurement of PPE for highly exposed health staf f categories Procurement of PPE for health centers Procurement o f Seasonal Influenza for High risk exposed groups

Prophylaxis treatment

Procurement o f equipment and reagents for lab Strengthen the laboratory diagnostic capacity

Establish/ rehabilitation and equipment o f specialized isolation units in the designated referral hospitals, development o f staffing strategy

Vaccination

[nfluenza and Human Pandemic Preparedness and Response (G Detailed activities/description

Community awareness and social mobilization activities. Campaign that emphasis on personal hygiene, promotion through hand washing, and proper cocking and distribution and use o f masks. Procurement o f PPE for highly exposed health staff categories, PPE disposables: (10,000)

Procurement o f PPE for MoH, UNRWA and specific NGOs’ health centers and at central level in West Bank and Gaza (in total around 500 Centers Influenza Vaccine For 20, 000 persons. This amount should cover health professionals, chronic disease patients, elderly, and persons with close contact. Vaccines should be administered between September and October in year 2007. Tami flu Stockpile should cover five seasons. The total amount o f treatments (doses) i s 2500 per season. Since we are talking about five seasons, the total amount 12500 doses (each dose consist o f 10 capsules). This amount wi l l only cover the prophylactic and post exposure needs that enable the MOH to cope with upcoming waves o f AI.

Procurement o f equipment and reagents for lab. That necessary to enable the MOH to conduct the tests, collect and transport the samples. This should cover the period Feb 2007- Aug. 2008. Two deliveries are expected per year, depends on the demand and the usage. (See Annex 1 for details).

In the five designated referral MOH hospitals the MOH wi l l establish specialized isolation unit for receiving patients with A I infection and related pneumonia diseases. These hospitals wi l l be enabled with the necessary equipments. (See annex 2 )

,I) Budget

72,000

60.000

100,000

250,000

75,000

2,350,000

TBD Provision o f Avian Influenza vaccination among- high-risk workers (when vaccine becomes available).

31

Drug therapy: Stockpile o f Tami-flu for upcoming waves o f pandemic AI.

32

TBD 2,907,000

WEST BANK and GAZA: Avian Influenza Prevention and Control Project

Component Subcomponent Cost in US$ Grand Total US$ ~

Appendix 4: Project Costs and Financing

Animal Health A. Surveillance and Diagnostic 680,000

Contingencies Operational Cost (at 6%)

2,907,000 Unallocatedj I Public Awareness, Environmental I

Risk, etc) 519,900 713,100

TOTAL PROJECT COST I 10,000,000

Local us

$million Project Cost By Component and/or Activity

3 3

Total Foreign

$million us U S %million

I- I

I I

I

I

I

I

I

I

-B

I

I

I

I

I

I

I I I I I I I I I I I I I

I

I -

- I

I

i

I

I

I

I

I I I I I I I I I I I I I I I I

;----- B I I I I I I I I I

I I I I I I I I I I I I I I

B

rcl 0

Project Coordination

Planned Actual PCN review Init ial PID to PIC Init ial ISDS to PIC Appraisal June 15,2006 July 15, 2006 Negotiations July 15,2006 August gth, 2006 BoardRVP approval September 4*, 2006 September 7'h 2006 Planned date o f effectiveness September 30th, 2006 January 2,2007 Planned date o f mid-term review Planned closing date October 30th 2008 January 3 1,2009

October 30th, 2007

Key institutions responsible for preparation o f the project:

Bank staff and consultants who worked on the project included:

Name Title Unit Husam Abu Dagga Sr. Operations Officer M N S R E Colin S. Scott Lead Specialist M N S R E Jean-Philippe Tre Regional AI Coordinator M N S R E Siaka Bakayoko Sr. Financial Specialist MNAFM Ahmed Merzouk Sr. Procurement Specialist MNAPR Imad Subhi Dweik Health Specialist MNSHD Saida Ismaeel Hamad Communication Officer MNC04

Suha Rabah Program Assistant MNC04 Faouzi Kichred Consultant L ina Abdallah Consultant MNC04 Ali Awais Counsel (consultant) LEGMS

Stefanie Brackmann Natural Resources Spec. M N S R E

Bank funds expended to date on project preparation: 1. Bank resources: US$50,000 2. Trust funds: 3. Total:

Estimated Approval and Supervision costs: 1. Remaining costs to approval: US$20,000 2. Estimated annual supervision cost: US$lOO,OOO

35

WEST BANK and GAZA: Avian Influenza Prevention and Control Project

Appendix 6: Financial Management and Disbursement Arrangements

FINANCIAL MANAGEMENT ARRANGEMENTS

73. The PIU will be responsible for coordination on behalf of MOH and MOA and for financial management under the Project. I t will be responsible for ensuring that the Project establishes and maintains: (i) adequate accounting systems and procedures; (ii) flow-of-funds mechanisms facilitating timely disbursement of funds and timely payments for goods, works and services; (iii) regular reporting on the use o f funds; and (iv) appropriate arrangements for regular financial audits. These responsibilities will be described in detail in a manual o f financial procedures and summarized in the Financing Agreement.

74. Staffing. The existing FMS staffing in the PIU consisting of a Coordinator, a financial officer, a procurement specialist and a disbursement officer would be adequate to meet the implementation requirements o f the project at the initial phase (first six months), but additional staff will be needed to strengthen the existing capacity and to allow for periodic visits to the producers and to review the implementation of the Compensation Fund. The additional staff will report to the financial officer and together with the disbursement officer, they will be responsible for disbursement functions as well as project accounting -- maintaining books o f accounts, reporting day-to-day transactions and preparing accounting reports and financial statements, as well as monitoring financial flows to project beneficiaries. The financial officer will have primary responsibility for the quarterly financial reports (FMRs) and will prepare the annual financial statements for audit.

75. Financial Reporting. For project monitoring purposes, quarterly financial monitoring reports will be required. The PIU will be responsible for designing appropriate financial monitoring reports (FMRs) to include: (a) Project Sources and Uses of Funds, (b) Uses o f Funds by Project Activity, (c) Special AccountLocal Bank Account Statements, (d) Physical progress report - - output, and (e) Procurement monitoring report-narratives and tables. These financial reports will be submitted to IDA within 45 days of the end of each quarter. The first quarterly FMR will be submitted after the end o f the f i rs t full quarter following the initial disbursement. Formats of the annual financial statements and the FMRs will be incorporated in the Project Operatinal Manual (POM).

76. Disbursement Arrangements. The Recipient will establish a Special Account in a commercial bank, acceptable to IDA. Disbursements o f the IDA Grant proceeds will be made based on disbursement methods such as reimbursements, advance, direct payments and Special Commitments. Supporting documentation will include Statements o f Expenditures (SOEs) and/or records (copies of records o f payment, e.g., invoices, receipts). For certain payments, above the Minimum Application Size as specified in the Disbursement Letter, the PIU will submit withdrawal applications to the Bank for payments to suppliers and consultants directly from the Grant / Credit Account.

77. Quick Disbursable Funds. The Recipient would obtain quick disbursing funds since we are already in an emergency situation. These funds would be disbursed from the Avian Influenza Trust Fund (AITF) and managed by the UNDP toward the financing of critical activities which have already been identified in an AITF technical annex prepared by the UN agencies and submitted to the IDA. The UNDP

36

will be the coordinator and establish a PIU to that end. To preserve the integrity o f the project however, UNDP will liaise with the project PIU for overall implementation and fiduciary aspects.

78. Internal Controls. It i s expected that both the PIU and the Compensation Fund sub-component would maintain adequate internal control systems. Although the Compensation fund does not have previous experience in managing resources o f this size, appropriate measures have been considered to providing the needed mechanisms for an efficient management of the fund. The PIU on the other hand, could be strengthened so that it maintain an effective internal control system to ensure that project expenditures are properly authorized, supporting documents are maintained; accounts are reconciled periodically; project assets, including cash, are safeguarded, and cash compensation grants are properly accounted for. Irrespective of the accounting basis followed, detailed assethnventories register will be maintained as part of the project internal control procedures. The PIU will implement appropriate controls over inventories o f drugs, vaccines, medical equipment, and other sensitive and/or expensive assets will be especially important for the project.

79. Compensation Fund. The Government has established a national Compensation Fund from which the producers of birds culled will be compensated. The required implementation arrangements still need to be developed and put in place, and the Project will provide support to that end. The necessary legal, institutional and operational details will be developed and agreed upon starting from appraisal and continue during the first months o f project implementation and will be included in the Operational Plan.

80. As a condition of disbursement of funds under the Compensation Fund sub-component, the PIU will implement appropriate internal control procedures and flow-of-funds arrangements acceptable to the Bank and documented in the operational/financial manual. The Project will provide US$ 5.6 million to finance and operate this Fund. U S $ 0.8 million will be disbursed through the AITF so as to launch the compensation process and keep the producers involved. The remaining $4.8 million will be disbursed into a specially established account, so as to provide sufficient resources for immediate and future needs.

8 1. Internal Control Arrangements for the Compensation Fund. The procedures for recording poultry culled under government orders and for establishing and recording poultry producer’s claims for compensation payments will be established and agreed upon. A number of minimum internal control procedures and risk mitigation measures will be implemented with respect to recording and verifying poultry culling and claims for compensation payment before any flow of funds i s initiated.

0

0

0

0

82.

The financial and operational manuals will detail the mechanisms for identifying those eligible for compensation payments, ensuring that there will be no multiple claims. I t i s expected that a Compensation Fund database will be maintained by the Project to facilitate record keeping, claim verification, payment facilitation, monitoring and auditing. The culling and the preparation and processing o f culling records and compensation claims will be done in accordance with the agreed upon procedures of the compensation fund. Al l forms to be used to record poultry culling and compensation claims will be provided by the Project. They will be pre-numbered and recorded in the database o f the Compensation Fund. Al l unused forms, as well as any invalid or incorrectly completed forms, must be returned to the Compensation Fund when the culling records are submitted. Compensation payment to poultry producers will be either by checks or by bank transfers. There will be no vouchers. Payment will be made within a few weeks from the date o f culling.

The backyard poultry producers will, at the time of culling, receive a pre-numbered Culling Certificate in multiple copies noting the date and the type and number of birds culled. Each certificate will be signed by Community Culling Technical Committee (CCTC) and countersigned by the poultry

37

producer. Certificates not signed by a l l members of the CCTC and the poultry producer would be considered invalid. Payment will be made in person and by checks in the beneficiary name at the village level. To receive payment, each poultry producer will be required to present hidher culling certificate; the date and amount of payment will be recorded on the certificate and countersigned by the poultry producer.

83. For medium- and large-scale poultry producers with more than 3,000 birds (medium = 3,000 - 10,000 and large >10,000), the producer or manager will, at the time of culling, receive an Enterprise Poultry Culling Record, signed by the Veterinary services representative. The producedmanager countersigns. This document i s the official record that establishes the poultry producers’ right to compensation. Actual compensation payments will be based on the approved number o f birds culled as confirmed by the compensation committed. The compensation payments will be made by transfers through the banking system. The Compensation Fund will transfer the funds to the commercial banks. The latter will instruct i t s branches in the appropriate locations to credit the account(s) of the producers.

84. Flow-of-Funds Arrangements for the Compensation Fund. Flow-of-funds arrangements for making compensation payments are designed to minimize the risk of errors or fraud and ensure funds reach the intended beneficiaries in a transparent manner. Once authorized by the PIU, compensation payments will be effected by the Compensation Fund in one of two ways: (i) in person and by checks in the beneficiary name in the village or (ii) transfers through the local banking system or any other reliable structure operating in WB&G..

85. Reviews and Audits for the Compensation Fund. The PIU will carry out, or will arrange to have carried out, additional checks to ensure that the eligible poultry producers, and only they, are paid and are paid in full. This will include, but not be limited to, periodic operational reviews, under TORS acceptable to IDA, to confirm the validity and legitimacy o f the compensation payments made. The reviewers will be required to verify compensation claims and payments made in randomly selected samples o f villages; this verification will include: checking against the database maintained by the Compensation Fund, collecting and verifying information available and obtained at the village level, checking with individual poultry producers, checking forms and reports, etc. Any significant weaknesses identified will be promptly rectified in close consultation with IDA. In addition, the external independent auditors will be asked to provide an opinion on the reasonableness of the accounting, reporting and internal controls in respect o f the operations of the Compensation Fund, and the audit TORS (acceptable to IDA) will include these specific requirements. Al l ineligible claims will be refunded to the Compensation Fund and to IDA.

86. Financial Audits. There will be annual audits of the project financial statements, covering all aspects of the project, including specific requirements for the Compensation Fund. The audits will be performed by independent auditors acceptable to the Bank, and in accordance with International Standards on Auditing (ISA), and the Bank’s guidelines on auditing as stated in the guidelines: Audit Policies and Practices for World Bank-financed activities (June 2003). The auditors’ TOR will be prepared by the PIU and cleared by the Bank before the engagement of the auditor. They wil l include both the audit o f financial transactions, an assessment o f the internal control, funds flow mechanisms, and the reasonableness o f the accounting, reporting and internal controls in respect of the Compensation Fund. The annual audit reports will consist o f a single opinion on the financial statements o f the project, incorporating the project accounts, including Special Account Reconciliation, and SOE Withdrawal Schedule; as well as a Management Letter. The audit reports will be submitted to the Bank not later than six months after the end of the fiscal year to which they relate. The cost of the audits will be eligible for financing from the Grant./ Credit The PIU will provide the auditor with full access to project-related documents and records, including the compensation claims database, and with the information required for the purpose of the audit. Sample TORS for project audit will be included in the Financial Manual.

38

87. Accounting System, Accounting Policy and Procedures. The PIU existing financial management system will be upgraded to satisfy the reporting needs of the new projects. I t will be comprehensive with accounting system comprising an adequate chart of accounts which i s in compliance with the existing laws and regulations in WB&G. The internal control with contain the necessary safeguard measures for segregation of duties and adequate authorization and approval mechanisms for prevention of errors and irregularities.

88. Books of Registry. In addition to any information system installed, and the books needed to maintain an accurate and complete record of transactions, the PIU will maintain a set of additional books of registry, either within their systems or outside them for control purposes. These books will include and not be limited to (i) Fixed assets register; (ii) records o f compensation payments, etc.

89. Budgeting. The project annual budget process will follow WB&G budget cycle which operates on an annual basis. The project budget and work plan will be prepared by the PIU on the basis o f information provided by the main Implementing Agencies and al l other implementing entities. The final consolidated budget will be reviewed and approved by the National Emergency Committee for Avian Influenza Control, before submission to the IDA by November, latest, for the following implementation year.

90. Project Financial Statements. In addition to the quarterly financial reports related to the project activities, the PIU will produce its customary Annual Financial statements and consolidated FMRs. These project annual financial statements will be composed of: (a) consolidated Statement of Sources and Applications o f fund; (b) consolidated use of funds by project categoriedactivities; (c) SOE withdrawal schedules, listing individual withdrawal applications relating to disbursement through the SOE, by reference number, date and amount; (iv) notes on significant accounting policies and accounting standards adopted for the preparation of the accounts; and any supplementary information or explanation that may be deemed appropriate by Management to enhance understanding of the financial situation of the project.

91. Country Risks. The Country Financial Accountability Assessment (CFAA) dated June 2004 concludes that the overall Public Finance Management (PFM) risk in WB&G i s adequate insofar as the Bank’s criteria and standards for approval o f a general budget support operation (or adjustment lending) are concerned. At the project level however, the Financial Management risk Assessment dated November 2005 has concluded that the financial management project risk at 42% was one of the highest in the region. Project compliance with the FMRs i s relatively low and the quality o f those received needs improvement. Furthermore, the PA’s liquidity crisis i s unprecedented and civil servant salaries haven’t been paid since March 2006. A massive strike by the staff from MOA and MOH would bring project implementation to a halt.

92. Project risk. The project risk from a financial management perspective i s considered substantial given the prevailing fiscal situation o f the PA. Furthermore, the capacity constraint at the level of the PIU could negatively impact the financial management at the initial stage o f project implementation. Mitigating measures would be considered under the AITF grant to build the capacity and ensure full compliance with the IDA financial reporting requirements. These measures have been summarized in the action plan table below.

93. Supervision. Financial supervision activities will include inter-alia, review o f quarterly FMRs, review o f annual audited financial statements and management letters as well as timely follow up on issues arising there from. I t will also include participation in Bank overall supervision missions of the project, as appropriate. Statements o f Expenditures will be systematically reviewed on a quarterly basis. There will be about two financial management supervisions during the f i r s t year two years and thereafter, it will be once a year. Bank supervision missions will consist o f visits to the PIU as well as to the

39

implementing agencies to review to review financial management practices, procurement methods, payment procedures and documentation.

94. Financial Management Action Plan. Financial management arrangements o f the PIU require a number o f actions to ensure that arrangements are fully satisfactory for the project, with i t s specific FM needs, especially with respect to the Compensation Fund. The following action plan will be discussed with the Borrower during appraisal and at Negotiations. Satisfactory implementation o f the action plan will ensure the establishment o f a financial management system that fully meets requirements o f the Project and o f the Bank.

40

95 *

Action Implementation o f appropriate internal control procedures and fund f low arrangements for the Compensation Fund component

Staffing Recruitment o f Financial accountants to reinforce the PIU. This i s only an action for capacity building and not a F M condition. FM Procedures Manual. Establish a manual o f procedures to fully document the procedures for accounting and internal control, including disbursement and flow o f funds (including flow chart), financial reporting, including FMR, annual reDorts and audit. Project Accounting and Financial Reporting System. Upgrade existing accounting system and software to meet new project reporting requirements (automatic generation o f FMRs) . Test the accounting and reporting system by producing sample FMRs for submission to the Bank for review and comments.

UNDP / P IU

UNDP / P IU

UNDP / P IU

Due Date Ready before project effectiveness

Ready before- project effectiveness

Ready before project effectiveness

Ready by end o f f i rst quarter o f f irst year o f project implementa- tion.

Remarks Document produced by Compensation committee to serve as the basis for the completion o f the Compensation Guidelines Key staff are already in place but additional junior staff are needed

The ESSP manual would be revised and upgraded to meet the reporting needs o f the project

The f i rst quarter FMRs wi l l serve for reviewing and re-assessing the system capability.

Flow of funds and Banking arrangement. The proceeds o f the Grant wil l be through Special accounts opened and operated by the P IU under the aegis o f the Ministry o f Finance. There will be two accounts for the compensation and the regular operations o f the projects respectively. The PIU will manage both accounts and keep records o f the actual uses o f the resources. The Head o f the PIU wil l be a co-signer o f the two accounts with MOF for the regular operations and the Head o f the compensation committee for the payments under the compensation scheme.

96. The P IU wil l process all payments, prepare the checks and complete the supporting documents for transmission to the MOF for the second signature (regular project o f operations) and the compensation committee for the compensation. The PIU wil l also be responsible for the preparation o f the monthly bank reconciliations. The complete procedures for the funds management wil l be spelled out in the project manual o f procedures.

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Allocation of Grant Proceeds

42

WEST BANK and GAZA: Avian Influenza Prevention and Control project

Appendix 7: Procurement Arrangements

A. General

97. Procurement for the proposed project would be carried out in accordance with the World Bank's "Guidelines: Procurement under IBRD Loans and IDA Credits" dated May 2004; and "Guidelines: Selection and Employment of Consultants by World Bank Borrowers" dated May 2004, and the provisions stipulated in the Legal Agreement. The general description of various items under different expenditure categories are described in general below. For each contract to be financed by the Grant the different procurement methods or consultant selection methods, the need for pre-qualification, estimated costs, prior review requirements, and time frame are given in the General Procurement Plan. The Procurement Plan wi l l be updated at least annually or as required to reflect the actual project implementation needs.

98. The procurement procedures and Standard Bidding Documents to be used for each procurement method, as well as model contracts for works, goods and consultant services wi l l be presented in the Project Operational Manual (POM).

99. Civil Works estimated at an aggregate amount o f US$1,176,000 include upgrading and extensions works for MOA laboratories and isolated units in five hospitals in the West Bank and Gaza Strip.

Procurement of Works:

100. Procurement of Goods: Goods are estimated at an aggregate amount o f US$2,305,000 to be procured under the proposed project include office, communication, and laboratory equipment, offices supplies, software and hardware, personnel protective equipment and drugs.

101. project. Due to the emergency nature of the project, the threshold for shopping would be US$200,000.

Shopping procurement would cover most o f the equipment and vaccination required for the

102. Direct contracting: Where certain goods are available only from a particular supplier or in cases where compatibility with existing equipment so requires, such goods may be procured under Direct Contacting in accordance with paragraph 3.6 of the Procurement Guidelines. A l l Direct Contracting shall be subject to Prior Review and the concurrence of the Bank.

103. Procurement from UN Agencies: A number o f specialized UN Agencies are able to act as suppliers o f drugs, vaccines, specialized equipment and supplies, according to their own procurement procedures. Specialized products where the number of suppliers i s limited may be procured from United Nations Agencies (e.g. WHO, FAO, UNICEF, IAPSO). If it i s the most appropriate way of procuring the goods, those activities wi l l be identified in the Procurement Plan.

104. Selection of Consultants: The Project wi l l finance consulting services estimated at an aggregate amount o f US$4 12,000 including consulting services for upgrading civil works, training and communication. Quality and Cost Based Selection (QCBS) procedures, as described in Section 11, paragraphs 2.1 to 2.31 of the Consultants guidelines wil l be used for larger assignments under a l l Components of the Project. Short l is ts o f consultants for services estimated to cost less than US$200,000 equivalent per contract may be composed entirely o f national consultants in accordance with the provisions of paragraph 2.7 of the Consultant Guidelines. .

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105. Services estimated to cost less than US$lOO,OOO equivalent per contract may be procured under contracts awarded in accordance with the provisions o f paragraphs 3.1, 3.7 and 3.8 o f the Consultant Guidelines. The least Cost Selection procedure wil l be used for the selection o f an auditor to carry out audit and financial statements o f the project.

106. Services for assignments that meet the requirements set forth in the f i rst sentence o f paragraph 5.1 o f the Consultant Guidelines may be procured under contracts awarded to individual consultants in accordance with the provisions o f paragraphs 5.2 through 5.3 o f the Consultant Guidelines. Under the circumstances described in paragraph 5.4 o f the Consultant Guidelines, such contracts may be awarded to individual consultants on a sole-source basis. The recruitment o f consulting services will include hiring o f Research Institutes and Universities, and individuals from these entities wil l also be contracted to carry out various studies, data collection, and monitoring and evaluation.

107. Training: A training program including on job training for laboratories technicians will be carried out in accordance with agreed procedures and on training programs with itemized budgets approved by the Bank. For continuation and cost-effective raisons, a training program for M O A laboratories technicians on the use o f CPR will be carried out in a specialized Institution in Israel.

108. Operating Costs: Operating Costs estimated at an aggregate amount o f US$713,100 include staff per diem field allowances, travel expenses, costs o f vehicles operation and maintenance, offices consumables.

109. Compensation Guidelines which will form an integral part o f the POM

Others: Payments o f US$4,800,000 under the compensation scheme wil l be governed by the

B. Assessment o f the agency’s capacity to implement procurement

110. to be set up and anchored to Ministry o f Health.

Procurement activities wil l be carried out by a se l f contained Project Implementation Unit (PIU)

111. The PIU wil l be headed by a Project Coordinator who wil l report directly to the National Emergency Committee for Avian Influenza Control (NCAIC) chaired by the MOH for policy matters and all technical and operational details concerning overall Project implementation.

112. The PIU wil l comprise, in addition to the Project Coordinator, 1 Financial Controller, 1 Accountant, 1 Procurement Consultant, 1 Procurement Officer, 1 Agricultural Expert, 1 Health Expert, 1 Monitoring and Evaluation Specialist, 1 Outreach Specialist and 1 support staff. Other than the Procurement Consultant, the M&E Specialist and the Outreach Specialist who are not ready available and need to be hired, all other P IU staff will be civi l servants. The two Experts will be designated from the Ministries o f Agriculture and Health and the three fiduciary staff will be designated from the PCU at the Gaza MOH under ESSP 11.

113. The P IU will report to the MoF for compliance with the principles and procedures o f Public Financial Management in WBG as defined by the Organic Budget Law, financial directives, and operational decrees applicable to ministries. In that vein, the MOF will remain responsible for signing and processing withdrawal applications (WAS). The PIU wil l be anchored to M O H and established in Gaza. To ensure, that West Bank i s fully covered, a branch office will be maintained at the M O H in West Bank and appropriately staffed with at least four technical staff (procurement, FM, agriculture and health ) who wil l work in coordination with the main PIU in Gaza. An assessment o f the capacity o f the Implementing Agency to implement procurement actions for the project has been carried out in May 2006 by the Procurement Specialist assigned to the project team.

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114. The assessment has determined that the PIU will need to be established and strengthened so as to be brought in line with the implementation requirements under the Avian Project. This will be supported by UNDP-executed Avian and Human Influenza Facility Trust Fund Grant (UNTF Grant) for the immediate implementation o f critical activities before the main project i s launched. Under that Grant, the UNDP will finalize the job description of the fiduciary staff and assist the PA with their recruitment. UNDP will also provide capacity-building as a means to gradually strengthen the main PIU prior to project effectiveness. This will entail, inter-alia, (i) backstopping the PIU Procurement officer in the preparation o f the Procurement Plan with on the job training, (ii) assisting the Financial staff in setting up the financial management system to comply with the Bank financial reporting requirements and (iii) Finalization o f the Project Operational Manual (POM).

1 15. The overall project risk for procurement i s High.

C. Procurement Plan

116. A Procurement Plan (PP) for project implementation covering the initial 12 month period o f project implementation will be prepared by negotiations. The updated PP for each subsequent year will be submitted to the Bank for approval before the end o f the previous year and will use a pre-defined format which will, as a minimum, l i s t (i) goods and services to be procured during the following calendar year, (ii) their value; (iii) the method o f procurement; and (iv) the time table to carry out the procurement.. The Procurement Plan will be updated in agreement with the Project Team annually or as required to reflect the actual project implementation needs and improvements in institutional capacity. An initial PP i s attached to the present appendix and shall be finalized and agreed on at Negotiations.

D. Procurement Methods and Thresholds

117. The Grant agreement will define the appropriate procurement and selection methods. The annual Procurement Plan (PP) shall set forth those contracts which shall be subject to Bank’s prior review process. Al l other contracts shall be subject to post review.

E. Advertisement 118. The General Procurement Notice (GPN) shall be published in the online edition o f DgMarket and Development Business upon Board presentation. Special Procurement Notices (SPN) for a l l ICB goods contracts and Requests for Expression o f Interest for consulting assignments with firms exceeding the value o f US$200,000 shall be published in at least two National dailies of a wide circulation and the on- line edition of the DgMarketAJNDB.

F. UN Agencies as Procurement Agents

1 19. In accordance with the Procurement Guidelines Section 3.9, the Project’s procurement arrangements would include the use o f Specialized Agencies of the United Nations (WHO, FA0 and UNICEF) as suppliers of goods mainly for drugs and vaccines (total estimate of US$350,000) and some medical supplies such as reagents and lab equipment. Drugs to be procured under the project are registered in Israel which will avoid difficulties which usually face the import and registration of drugs offered from abroad. In addition, it i s foreseen under the Project to use the UNDP as procurement agent to support the PIU procurement function. The use o f UN Agencies as agents will have to meet the requirements of Sections 3.10 and 3.15 of the Procurement Guidelines. The procurement agents will follow the Bank’s Procurement Guidelines under the standard agreement between the Bank and the respective agency.

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G. Procurement Supervision

120. Given the high procurement risk o f the project and in addition to the prior review supervision to be carried out from Bank offices, two (2) supervision missions per year are recommended to visit the field to carry out ex- post review o f procurement actions.

H. Procurement Audits

12 1. Because the Project has high level o f flexibility built in the procurement arrangements and to help the Bank carry out post-reviews o f procurement actions, independent consultants, as part o f the project and at the cost o f the project, under TOR acceptable to the Bank, wil l be hired to review and audit the procurement process during the implementation. The scope of work o f the consultant to carry out the procurement audit, does not replace the Bank obligation to carry out i t s ex-post review at least once a year.

I. Fraud, Coercion and Corruption

122. standard of ethics during the procurement and execution of contracts financed under the Project in accordance with paragraphs 1.15 & 1.16 of the Procurement Guidelines and paragraphs 1.25 & 1.26 of the Consultants Guidelines. The PIU wi l l follow the Bank’s anti-corruption measures and wi l l not engage services o f firms and individuals debarred by the Bank. The listing o f debarred f i r m s and individuals i s located at: http://www. worldbank.org/html/opr/procure/debarr.htm.

All procuring entities as well as bidders, suppliers and contractors shall observe the highest

46

Procurement Plan

1

2

3

4

I- General

Procurement Methods Prior Review Threshold Comments ( us $)

NCB(Goods) > 100,000 Al l subject to prior review

Shopping ( Goods) > 100,000 Al l subject to prior review

NCB (Works) > 200,000 Al l subject to prior review

Shopping ( Works) > 100,000 Al l subject to prior review

1 - Agreed date o f the Procurement Plan Original: August 8,2006 Revision 1:

1

2

3

2- Date of General Procurement Notice : estimated September 10,2006

Selection Method Prior Review Threshold ( US $) Comment

Competitive Methods ( Firms) Al l subject to prior review QCBS Competitive Methods ( Firms) Al l subject to prior review LCS Competitive Methods ( Firms) Al l subject to prior review CQ Individual Consultant > 25,000 Al l subject to prior review

Sole Source Selection ( Firms and Al l subject to prior review Individuals)

> 100,000

> 50,000

> 50,000

11- Goods and Works and Non Consultinp Services

2- Any other Special Procurement Arrangements: payments o f compensation wil l be governed by the Compensation manual which will form an integral part o f the Project Operational Manual (POM).

3- Procurement Items with Methods and planned dates: See planning below

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2- Short l i s t comprising entirely of national consultants: Short l i s t o f consultants for services, estimated to cost less than U S $200,000 equivalent per contract, may comprise entirely o f national consultants in accordance with the provisions of paragraph 2.7 of the Consultants Guidelines.

3- Consultancy assignments with Selection Methods and planned dates: See planning below

IV- Training

Training activities under the project wi l l be carried out in accordance with agreed procedures and on training programs with itemized budgets approved by the Bank.

V- Other

Ex- Post Review: Al l other contracts below Bank’s prior review thresholds are subject to bank’s ex-post review. Periodic review by bank’s staff wi l l be undertaken during supervision missions. Procurement documents, such as bidding documents, bids, bid evaluation reports and correspondences related to bids and contracts wi l l be kept readily available for Bank’s ex-post review during supervision missions or at any other point in time.

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0 v,

-I-

T

j

T

1

T T

WEST BANK and GAZA: Avian Influenza Prevention and Control Project

Appendix 8: Environmental and Social Issues

123. impacts that can be managed during the implementation o f the project.

The project has been classified as category B Project since it involves moderate environmental

124. Prevention-focused activities are expected to have positive environmental impacts as project investments in facilities, equipment, laboratories, and training will improve the effectiveness and safety o f existing AI handling and testing procedures by meeting international standards established by the OIE. This would be reinforced by the mainstreaming o f environmental safeguards into the protocols and procedures for culling and disposal o f animals during A I outbreaks, decontamination o f production facilities, and laboratory biosafety. However, adverse environmental health impacts, mainly inadvertent spread o f HPAI, could occur when an emergency operation involves containment o f HPAI outbreaks through quarantine, isolation and stamping out actions and when relevant mitigation measures are not in ~ 1 a c e . l ~

125. The primary potential risks can be grouped into three categories:

(a) Inadvertent human exposure and spread o f the virus due to: improper culling and disposal o f dead birds (wild birds,16 sick and dead birds from backyard and commercial poultries); lack of, or improper use o f personal protection equipment (PPE); improper disposal o f farm waste (i.e., bedding, manure, washings, etc. during and/or after an outbreak); l7 and inadequate lab biosafety protocols.

(b) Inadvertent release o f chemicals in the environment from unsatisfactory decontamination procedures (for personnel, poultry sheds, and transport vehicles, etc.).

(c) Release o f chemicals and infectious agents into the environment from inadequate laboratory and medical facility waste management.

126. The project triggers OP 4.01 on Environment Assessment and OP 4.09 on Pest Management. The safeguard issues which pertain to the Project are (i) selection and implementation o f culling methods; (ii) selection and implementation o f disposal methods for culled poultry and associated waste; (ii) safe disposal o f medical waste; and (iv) mitigating the negative economic impacts o f disease-inducted death and/or mandated culling o f poultry on small-scale and backyard poultry producers.

127. OP 4.09 on Pest Management: The procurement o f any pesticide will be contingent on an assessment o f the nature and degree o f associated risks, taking into account the proposed use and the intended users. The Project will require that any pesticides it finances be manufactured, packaged, labeled, handled, stored, disposed of, and applied according to standards acceptable to the Bank. The

l5 Interim Guidelines for Managing Potential Environmental And Social Safeguard Issues in Bank-Assisted Avian Influenza Control Projects, Quality Assurance and Compliance Unit, World Bank April 2006 l6 Interim Guidelines for the Protection of Persons Handling Wild Birds With Reference to Highly Pathogenic Avian Influenza H5N1, dated August 23, 2005 - httrd/www.nwhc.uses.eov/uublications/wildlife health bulletins/WHR 05 0 3 . i ~ ~ .

These include dead birds, after post mortem examination, decontamination and routine laboratory wastes. See WHO fact sheet httu://~~~.who,int/mediacentre/factsheets/fs28 lleni and WHO/World Bank (2005) “Better Health Care Waste Management” by P. Rushbook and R. Zghondi.

57

Bank does not finance formulated products that fa l l in WHO classes IA and IB, or formulations of products in Class 11, if (a) the country lacks restrictions on their distribution and use; or (b) they are likely to be used by, or be accessible to, lay personnel, farmers, or others without training, equipment, and facilities to handle, store, and apply these products properly.

128. The project wi l l not finance activities which would trigger OP4.12 on Involuntary Resettlement. e.g., selected disposal sites, landfills and burial pits, wi l l be on public land rather than private sites to avoid land expropriation.

129. The project wi l l be processed under OP8.50 and the f i rs t activity o f this project wi l l be the development of an EMP, which wi l l be disclosed in the country and in the Infoshop. The proposed investments in laboratory facilities, equipment and staff training wi l l improve the effectiveness and safety o f Avian Influenza and testing procedures by meeting international standards by the World Organization for Animal Health (OIE). Whatever medical waste i s generated in health care facilities and waste from the animal health component wi l l be managed using existing guidelines in the countries. The country project wi l l also support updating these guidelines, training of health care workers to manage medicinal waste following these guidelines and the purchase of equipment for the proper handling and disposal o f medical waste in selected facilities. This provision would be included in the project operational manual (or equivalent).

130. Overall, the Project would assist the government entities to develop a strategy for managing future emerging and re-emerging diseases outbreaks. As such the project wi l l improve environmental and social safeguards in following areas: (a) mainstreaming environmental safeguards into protocols and procedures for the culling and disposal o f animals and waste during an outbreak, in particular by adopting OIE standards and aligned with WHO procedures and recommendations, and improving bio-medical- waste management systems in health facilities and laboratories; (b) financing safe culling and disposal options; and (c) development of policies on compensation for poultry farmers affected by future outbreaks.

13 1. Since the project supports investments for the culling and disposal o f carcasses and laboratory wastes, an Environmental Management Plan (EMP) wil l be prepared. The EMP wi l l be developed following the “Interim Guidelines for Managing Potential Environmental and Social Safeguard Issues in Bank-Assisted Avian Influenza Control Projects”, Quality Assurance and Compliance Unit, April 2006. The EMP wi l l cover the selection of appropriate culling methods, clean-up o f animal wastes o f infected and culled poultry and selection and management of disposal facilities. The scope of this EMP wi l l be specified during the initial period of Project implementation.

132. Under the project an Environmental Specialist will be hired to oversee the implementation of the Environmental activities. The disclosure of the EMP in the country and InfoShop wi l l be a condition for disbursement for the implementation o f culling and disposal activities. On the conditions of disbursement on the compensation component: any conditions wi l l apply for future culling, not past culling, with the conditionality applying only to the completion and operation o f the EMP.

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Appendix 9: Additional Background on Compensation ’*

Determining the Reasons for Compensation

133. The reason for compensation affects decisions about who should be compensated (see 2) and how the process should work (see 3-5). Compensation can therefore be considered for different reasons, which are:

0

Compensation increase the incentives to report suspected cases o f AI influenza in poultry It i s arguably a government responsibility to compensate when private assets o f citizens are destroyed for public purposes; Livelihood support: Provide a “safety net” to protect the different groups o f farmers against the economic losses incurred by having to wait for restocking and/or when they cannot se l l their birds anymore due to the enforcement o f movement restrictions. This may take the form o f insurance or some kind o f social security. Strictly speaking this i s not compensation, although it i s often discussed at the same time that compensation i s being planned, and in countries with a well-funded livestock sector, both compensation and livelihoods support mechanisms may be in place.

134. These reasons justify a typical compensation process where any farmers whose birds are culled by “culling teams” (as decided by authorities) are compensated for the birds destroyed. If the government provides complete compensation whenever things go wrong, individuals are not encouraged to take steps to reduce risk. Therefore, compensation would not normally be 100% o f lost revenues. Instead risks are shared between farmers and the government, and part of the risk may be borne by some kind o f insurance scheme to which farmers contribute (see later).

Deciding Who Will be Compensated

135. The questions that need to be considered are: (i) which actors or stakeholders? (ii) should compensation be limited to farmers or also include processors and marketers? (iii) Should all sizes of farms/poultry production sectors be included? (iv) how wil l social biases (e.g., anti-poor, gender, ethnic group, etc.) be avoided?

136. The aim o f targeting who i s going to be compensated i s based on:

Encouraging early disease reporting; 0 Encouraging people to take part in official compensation schemes, everyone whose birds are culled

needs to be included.

137. If care i s not taken in planning, certain key stakeholders (often the most vulnerable or those with least “voice”) can be excluded from compensation programs. This can reduce the effectiveness o f control programs and the bio-security status in affected areas.

138. Especially at the beginning o f the epidemic, if there i s no compensation for dead animals there i s the risk o f animal movement (Le. disease spread). However death might not be due to HPAI but to similar diseases (e.g. Newcastle Disease).

’* This approach to compensation provided by FA0 consultant following April 2006 mission to WBG. 59

Agreeing on the Level of Compensation

139. Special attention has been given up to now on the mechanism on how to determine the compensation level. This i s indeed a delicate but crucial area that needs to be seriously debated between stakeholders in the poultry sector. Points that the government needs to take into account when deciding the price for compensation are:

It i s generally better to have uniform prices at national level to avoid people/farmers moving birds. This i s to avoid movementwf birds due to price differences, as this would increase disease spread nationally; Different prices by species and category (age, broiler or layer) should be negotiated but it i s advised not to include too many categories. Keep the l i s t short to make it administratively implementable; Decide in advance what compensation price will be based on production costs in the case o f West Bank and Gaza Strip given that market prices are distorted; State a date when the compensation will be received by the farmer (and stick to it); It may also be necessary also to include production losses from “downtime” or birds that die from HPAI. For farmer compliance with the emergency contingency scheme. If farmers are adequately compensated they are more likely to comply with culling schemes. Losses from downtime can be considerable. However, while estimating losses i s quite simple for commercial flocks, it i s more difficult for backyard flocks. WHY?

Deciding Whether the Costs of Control Measures will be Refunded

140. Funds should be readily available through pro-rata estimates (e.g. amount per farm/household culled) for direct disease control measures associated to the culling activities such as disinfection, protection for culling teams etc.

141. A contingency or compensation plan wil l be less effective if it does not take into account the direct costs o f culling and control measures that may be borne by farmers. Compensation programs might provide good opportunities for building capacity in biosecurity. Funds may be provided to allow upgrading o f biosecurity (e.g. bird proofing farms etc).

Administering and Enforcing Compensation

142. Governments need to decide in advance on the way people have to register for compensation. The date o f compensation needs to be clearly stated to farmers for compliance. The numbers o f animals reported need to be checked for accuracy taking into account that each production system presents a different kind o f challenge. Accuracy checking i s also important to avoid “double compensation” or people missing out.

143. However an accurate and accountable registration scheme may be difficult to implement (see chart below). State culling teams could register the number o f birds culled, but they need to work fast, otherwise infected birds might die or people cull their own birds before they can be registered.

144. The system to make payments needs to be simple and make use o f existing institutions (e.g. veterinary services, financial institutions, NGOs etc). Farmers might not have a bank account for receiving a payment. The efficiency o f these institutions, though, needs to be evaluated before engaging them.

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Funding Strata

145. The setting up, source o f funding and management o f the fund need to be planned in close collaboration with the Ministry o f Finance and may require changes o f legislation. Areas that need to be discussed in advance are:

Estimate how much i s needed to set up the fund (from previous information, i.e. number o f animals, categories and compensation levels); Sources o f funding may be from national and/or local levels. Depending on the structure o f public finances o f the country i.e. devolution levels; Ideally, funding i s from both public and private sources. With a well organized private sector, it i s possible to set up a fund for livestock emergencies, to which the government and the private sector can contribute. This sharing i s to encourage reporting, help to ensure against losses, share the financial risk between the public and private sector so that both will take steps to reduce the disease risk; Commercial farmers may take out private insurance if a scheme i s available. Insured farmers w i l l probably be asked to jo in a quality management scheme; In case o f international contribution, there i s a need to agree on how the funds wil l be disbursed and the monitoring process. HPAI being a Global Public Good (GPG) there i s a rationale for international contribution; Decide who i s going to manage the fund and where it i s going to be located (i.e. ministry o f finance (MoF) / ministry o f agriculture (MOA)). Decide on fast mechanisms to disburse those funds to the local level. MOA tends to have the technical expertise but generally M o F does not allow other ministries to manage funds for what i s labeled as “accountability reasons” (see chart below).

146. Finally, it i s important to take a clear decision on what i s the authorities’ strategy whenhf the disease becomes endemic with regard to the compensation scheme above elaborated. When dealing with endemic HPAI and the possibility o f poultry vaccination, attention should be drawn to the interventions needed to modify biosecurity conditions associated to the existing poultry production system in the country (Le. backyard raising and smallholder producers).

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Appendix 10: Documents in the Project File

- Highly Assessment of Country Preparedness (Prevention and Control Capacity): J. - Lambers,

- Poultry Production in the West Bank and Gaza: Summary - Vulnerability Analysis and Mapping, Market Monitoring: FA0 - Interagency Framework for Avian Influenza and Pandemic Response: UN - Interagency Framework for Avian Influenza Costs: UN - Appeal for Avian Flu Epidemics and Pandemic Preparedness, Containment and Response in the

- Impact o f Avian Flu on Livelihoods and Food Security (suggested outline) - Proposed Compensation Strategy: Ministry o f Agriculture - Infected Areas o f Avian Flu in West Bank & Gaza - MAP: WHO - L i s t o f Needed supplies: Ministry of Health - List of Culled Birds in Gaza and West Bank: Ministry o f Agriculture - Organization of the Ministry of Agriculture - Project Organ Gram - Project Steering Committee: Ministry of Agriculture - Project Implementation Chart: Ministry of Agriculture - Organizational Structure o f the GD for Planning and Policy: MOA - Purchasing Cycles: MOA - Poultry Sector, Agricultural Statistics: MOA - L i s t of poultry producers compensated through the Russian Fudnig: MOA - Compensation Strategy - West Bank and Gaza Strip: A. Riviere-Cinnamond, contracted FA0

contracted FA0 consultant

West Bank and Gaza: FA0

Consultant. June 3 - 15,2006

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