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I. Basic Information
Date prepared/updated: 03/17/2010
Report No.: AC5063
1. Basic Project Data
Country: Panama
Project ID: P119694
Project Name: Metro Water and Sanitation Improvement Project
Task Team Leader: David Michaud
Estimated Appraisal Date: March 17, 2010 Estimated Board Date: May 18, 2010
Managing Unit: LCSUW
Lending Instrument: Specific Investment
Sector: Water supply (60%);General water, sanitation and flood protection sector
(20%);Sewerage (20%)
Theme: Access to urban services and housing (100%)
IBRD Amount (US$m.):
IDA Amount (US$m.):
GEF Amount (US$m.):
PCF Amount (US$m.):
Other financing amounts by source:
Environmental Category: B - Partial Assessment
Simplified Processing
Simple []
Repeater []
Is this project processed under OP 8.50 (Emergency Recovery)
Yes [ ]
No [X]
or OP 8.00 (Rapid Response to Crises and Emergencies)
2. Project Objectives
The proposed Project Development Objective is to increase the quality, coverage and
efficiency of water supply and sanitation services for lower income areas in the Panama
Metropolitan Region (PMR). Progress towards meeting the PDO will be measured
through the following indicators:
Number of additional persons in targeted low income areas with access to reliable
water services; (1)
Number of additional persons in targeted low income areas with access to
improved sanitation facilities (2)
Revenue collection over total population in the project area.
(1) Reliable water is defined as piped potable water with adequate pressure and
continuity of at least 16 hours per day, 7 days per week.
(2) According to the JMP the following are considered as "improved" sanitation: (i)
connection to a public sewer; (ii) connection to a septic system; (iii) pour-flush latrine;
(iv) simple pit latrine; and (v) ventilated improved pit latrine . Sanitation solutions that
are not considered as "improved" are: (i) public or shared latrine; (ii) open pit latrine; and
(iii) bucket latrines. The Project will accept the following sanitation solutions as
improved under this project: (i) connection to a public sewer; and (ii) connection to a
septic system.
The relevant standard IDA indicators will be used to track outputs at component-level.
3. Project Description
In coordination with other externally-funded projects, the proposed Project will
expand coverage of WSS services, increase efficiency in the provision of these services
and support IDAAN's modernization through targeted investments and institutional
strengthening measures in selected areas of the PMR. IDAAN, the Bank and other
multilateral financial institutions, notably the IDB and CAF, have agreed to focus their
respective interventions based on geographical and institutional criteria. In geographical
terms, the proposed Bank Project and the CAF projects will target the areas east of the
Panamá Canal (including the city of Colon) while the IDB project will be mostly focused
in the areas west of the Panamá Canal. While the scope of the CAF-financed project is
still under definition, this operation will be focused on specific low-income areas of the
PMR east of the Panamá Canal. In terms of institutional strengthening, the IDB has been
and will continue to be involved in high-level corporate strengthening actions, while the
proposed Bank operation will focus on developing good practices for some of the most
pressing operational issues facing IDAAN, targeting specific pilot areas where the
interventions could have a significant and measurable impact and lead to valuable good
practices of relevance to the rest of the utility. Considering the above, the proposed
Project will have the following components:
Component 1: Water Supply and Sanitation Service Improvements in Lower Income
Neighborhoods - Cost US$30 million (IBRD US$27 million)
The objective of this component is to increase the coverage of reliable water
supply and sanitation services, in selected areas of the PMR where living standards are
lower and also the provision WSS services is of an inferior quality compared to the rest
of Panamá City. It will finance network extension and rehabilitation activities, initially
focusing on the neighborhoods of Alcalde Diaz and Chilibre in Panamá Metro, where
service is currently limited for a significant part of residents and sewer connection rates
are lower than other parts of the PMR. In addition, IDAAN's approach to working in
lower-income, peri-urban settlements will be revisited in-depth on the basis of regional
good practices and a strong social outreach program will be developed to ensure that new
users actually connect to the networks being built and do not become a financial burden
on the utility in terms of tariff payment. Planning and designs for works that will benefit
about 70,000 people are currently being contracted under the Bank-financed WSSLIC
Project, providing an opportunity to achieve relatively rapid results.
Component 2: Modernization of Water Supply and Sanitation Systems in IDAAN#s
Colón Business Unit - Cost US$20 million (IBRD US$10 million)
The objective of this component is to improve the efficiency and quality of water
supply services in one business unit of IDAAN. It will target the unit of Colón and
finance a series of structural (network optimization, leak reductions and meter installation
campaigns) and non-structural (capacity building and training, development of business
tools and improvements to overall operating process) measures. This component will
benefit from recent major infrastructure investments undertaken by IDAAN in water and
sewer networks, investments that did not result in significant service quality
improvements mostly for management reasons. The component#s activities and costs
were based on a rapid needs assessment.
Component 3: Institutional Strengthening and Project Management Cost US$5 million
(IBRD US$3 million)
The objective of this component is to strengthen the capacity of IDAAN to
implement, evaluate and learn from the project#s activities. For this the component will
include two sub-components, once seeking to strengthen the institution itself through the
development of a Management Information System covering all business units and
processes as well as capacity building activities, and one encompassing project
management and monitoring activities.
4. Project Location and salient physical characteristics relevant to the safeguard
The proposed Project will finance interventions in the PMR, which for this context means
the Cities of Panama and Colón and their surrounding metropolitan areas, including the
following IDAAN business units: Panama Metro and Colón.
5. Environmental and Social Safeguards Specialists
Ms Ximena B. Traa-Valarezo (LCSSO)
Mr Gunars H. Platais (LCSEN)
6. Safeguard Policies Triggered
Environmental Assessment (OP/BP 4.01)
Natural Habitats (OP/BP 4.04)
Forests (OP/BP 4.36)
Pest Management (OP 4.09)
Physical Cultural Resources (OP/BP 4.11)
Indigenous Peoples (OP/BP 4.10)
Involuntary Resettlement (OP/BP 4.12)
Safety of Dams (OP/BP 4.37)
Projects on International Waterways (OP/BP 7.50)
Projects in Disputed Areas (OP/BP 7.60)
II. Key Safeguard Policy Issues and Their Management
A. Summary of Key Safeguard Issues
1. Describe any safeguard issues and impacts associated with the proposed project.
Identify and describe any potential large scale, significant and/or irreversible impacts:
OP 4.01 Environmental Assessment. A preliminary assessment concluded that the project
will have positive and some potential adverse environmental impacts. On the positive
side, one can include improved waste water management in peri-urban areas (Panamá
Metro and Eastern Panamá City). The project will improve existing waste water systems
and not embark on the construction or enlargement of new systems. This will have the
immediate positive effect of improving environmental health quality by eliminating waste
water in public spaces such as streets. Negative issues range from small issues such as
inconveniences from construction such as dust and noise to larger ones associated with
final disposal of waste water (capacity of existing facilities to receive the extra volume).
It has initially been decided that the project will not tackle the issue of waste water
treatment in Colón. However, should it later be decided that the project will embark on
waste water treatment a full EIA will be undertaken in compliance with Panamanian
legislation which satisfies Bank Environmental Safeguards requirements given the
potentially serious environmental issues.
Appropriate mitigation measures have been identified and will be presented in the
Environmental Management Framework. This will be introduced into the Operational
Manual as it is finalized prior to Negotiations. Further improvements to the OM will be
consulted with Bank environmental and social safeguard staff in order to certify
compliance with Bank Safeguard policies.
OP 4.11 Physical and Cultural Resources. As the project will be implemented entirely in
existing urban areas OP 4.11 is not triggered; however, the Environmental Management
Framework provides clear guidane as to what procedures should be followed in the
unlikely chance find of a physical or cultural resource. These will also be reflected in the
Operational Manual.
OP 4.12 Involuntary Resettlement. Involuntary resettlement will be avoided where
feasible, or minimized, exploring viable alternatives. The urban water and sanitation
project may trigger the need for land acquisition of sites presently inhabited by social
units or economic activities, for the construction of water tanks, treatment plants and
other related infrastructure under the project.
OP4.10 Indigenous Peoples. Although specific neighborhoods have not been selected
yet in the Corregimientos of Alcalde Díaz, Chilibre, and the District of San Miguelito ,
the social assessment has identified the presence of indigenous communities (Kuna,
Ngäbe-Bugle and Emberá-Wounaan) living in those corregimientos, and others that may
be covered by the project.
2. Describe any potential indirect and/or long term impacts due to anticipated future
activities in the project area:
As the specific intervention areas have not yet been determined, the EMF prepared by
IDAAN, the counterpart agency, with technical assistance from the Bank, and published
on Infoshop on March 1, 2010, was designed to ensure that no negative impacts take
place as a result of activities planned under the Project and that any potential negative
impacts are prevented.
An Involuntary Resettlement Framework (IRF) and an Indigenous Peoples Planning
Framework (IPPF) were elaborated by the borrower, with technical assistance of the
Bank, to ensure no negative impacts take place as a result of activities planned under the
project, or any potential impacts may be prevented.
3. Describe any project alternatives (if relevant) considered to help avoid or minimize
adverse impacts.
In the case of land acquisition, there is agreement with the borrower that construction
sites that are publicly owned, or that has been donated to IDAAN for water facilities will
be preferred over land that needs to be purchased.
In the case of resettlement, there is agreement with the borrower that resettlement
should be avoided if feasible, and minimized as much as possible.
In terms of Indigenous Peoples, when screening indicates the presence of Indigenous
communities in the project area, the Indigenous Peoples Planning Framework will be
activated and applied.
4. Describe measures taken by the borrower to address safeguard policy issues. Provide
an assessment of borrower capacity to plan and implement the measures described.
OP 4.01 Environmental Assessment. Given that the scope of project activities is to
increase the quality and coverage of existing water supply and sanitation services it is not
expected that the project will create any new environmental issues. The environmental
management framework will provide clear guidance as to the measures that must be
taken in order to accommodate the increased flow of waste water to the treatment plants
in Panama Este and Metro. Once the specific areas of project intervention have been
determined an environmental analysis will be carried out to assess the baseline conditions
and potential impacts on these areas from the proposed expansion of WSS services and
related works. The project will not tackle the issue of waste water treatment in Colon
given the limited budget. The EMF will also provide clear guidance on mitigating minor
environmental impacts originating from construction activities (dust, noise, debris
management, etc.).
OP4.12 Involuntary Resettlement. If land must be acquired, valuation of the land and
assets seating on it will be carried out by the Contraloría de la República and MEF, as is
common practice. At present, IDAAN#s Legal Department is executing 18 cases of
resettlement of one or few families each, including indemnization/compensation to the
families and in some cases resettlement to new sites. Judging from the latter experience,
the team believes the borrower is capable of complying with the agreements under the
IRF proposed.
In cases where resettlement cannot be avoided, an Involuntary Resettlement Plan will be
elaborated for every case of resettlement. Every Plan will be submitted to the Bank for
financing approval, and will be executed before the public works initiate.
Each Resettlement Plan will include the following:
A description of the subproject and the area where it will be developed.
Location of the properties required by the subproject.
Results of the diagnosis (topographic information of the assets, land titles and
socioeconomic studies).
Identification and analysis of impacts for the displaced population.
Alternatives of solutions based on the type of impacts and the characteristics of
the population.
Eligibility criteria.
Description of the Disclosure and Information Program.
Land Acquisition Program.
Program for housing replacement.
Program for the reestablishment of social and economic conditions.
Institutional framework.
Required human resources.
Monitoring and evaluation mechanisms.
OP4.10 Indigenous Peoples Framework. The IPPF elaborated by the borrower includes
strategies to screen for Indigenous communities living in the neighborhoods intervened
by the project, and ensure their participation in the following ways: (a) as project
beneficiaries of water and sewerage connection, (b) as representatives of their sectors of
population to the neighborhood assemblies, (c) as beneficiaries of job opportunities under
the project, (d) as participants of training sessions on hygiene, environment, water
conservation and systems maintenance and financing, (e) as eligible members of Water
5. Identify the key stakeholders and describe the mechanisms for consultation and
disclosure on safeguard policies, with an emphasis on potentially affected people.
A social assessment and free, prior and informed consultations are being carried out by a
team of IDAAN#s staff in 6 neighborhoods of the Corregimientos Alcalde Díaz, Chilibre,
Pacora, Pedregal and Tocumen and the District of Colón. As part of the assessment
stakeholder consultations (focus groups and interviews) were carried out with the
following stakeholders: Juntas Comunales, Local Boards, Water Boards, Corregimiento
Representatives, community leaders and community members. The results of the
assessment informed the project design.
The Involuntary Resettlement Framework and the Indigenous Peoples Plan will be
disclosed on the Bank's Infoshop of the Bank on March 16, 2010 and February 24, 2010,
respectively, and on the web page of IDAAN and the Ministry of Health, and in the
neighborhoods, particularly among those affected by the project.
B. Disclosure Requirements Date
Environmental Assessment/Audit/Management Plan/Other:
Was the document disclosed prior to appraisal?
Date of receipt by the Bank
Date of "in-country" disclosure
Date of submission to InfoShop
For category A projects, date of distributing the Executive
Summary of the EA to the Executive Directors
Resettlement Action Plan/Framework/Policy Process:
Was the document disclosed prior to appraisal?
Date of receipt by the Bank
Date of "in-country" disclosure
Date of submission to InfoShop
Indigenous Peoples Plan/Planning Framework:
Was the document disclosed prior to appraisal?
Date of receipt by the Bank
Date of "in-country" disclosure
Date of submission to InfoShop
Pest Management Plan:
Was the document disclosed prior to appraisal?
Date of receipt by the Bank
Date of "in-country" disclosure
Date of submission to InfoShop
* If the project triggers the Pest Management and/or Physical Cultural Resources,
the respective issues are to be addressed and disclosed as part of the Environmental
Assessment/Audit/or EMP.
If in-country disclosure of any of the above documents is not expected, please
explain why:
C. Compliance Monitoring Indicators at the Corporate Level (to be filled in when the
ISDS is finalized by the project decision meeting)
OP/BP/GP 4.01 - Environment Assessment
Does the project require a stand-alone EA (including EMP) report?
If yes, then did the Regional Environment Unit or Sector Manager (SM)
review and approve the EA report?
Are the cost and the accountabilities for the EMP incorporated in the
OP/BP 4.10 - Indigenous Peoples
Has a separate Indigenous Peoples Plan/Planning Framework (as
appropriate) been prepared in consultation with affected Indigenous Peoples?
If yes, then did the Regional unit responsible for safeguards or Sector
Manager review the plan?
If the whole project is designed to benefit IP, has the design been reviewed
and approved by the Regional Social Development Unit or Sector Manager?
OP/BP 4.12 - Involuntary Resettlement
Has a resettlement plan/abbreviated plan/policy framework/process
framework (as appropriate) been prepared?
If yes, then did the Regional unit responsible for safeguards or Sector
Manager review the plan?
The World Bank Policy on Disclosure of Information
Have relevant safeguard policies documents been sent to the World Bank's
Have relevant documents been disclosed in-country in a public place in a
form and language that are understandable and accessible to project-affected
groups and local NGOs?
All Safeguard Policies
Have satisfactory calendar, budget and clear institutional responsibilities
been prepared for the implementation of measures related to safeguard
Have costs related to safeguard policy measures been included in the project
Does the Monitoring and Evaluation system of the project include the
monitoring of safeguard impacts and measures related to safeguard policies?
Have satisfactory implementation arrangements been agreed with the
borrower and the same been adequately reflected in the project legal
D. Approvals
Signed and submitted by:
Task Team Leader:
Environmental Specialist:
Social Development Specialist
Additional Environmental and/or
Social Development Specialist(s):
Mr David Michaud
Mr Gunars H. Platais
Ms Ximena B. Traa-Valarezo
Mr Ivo Imparato
Approved by:
Sector Manager: