The World Bank
Yemen Desert Locust Response Project (P174170)
REPORT NO.: RES58619
RESTRUCTURING PAPER
ON A
PROPOSED PROJECT RESTRUCTURING
OF
YEMEN DESERT LOCUST RESPONSE PROJECT
APPROVED ON JUNE 17, 2020
TO
FOOD AND AGRICULTURE ORGANIZATION (FAO)
AGRICULTURE AND FOOD
MIDDLE EAST AND NORTH AFRICA
Regional Vice President: Ferid Belhaj
Country Director: Stephane Guimbert
Regional Director: Meskerem Brhane
Practice Manager/Manager: Marianne Grosclaude
Task Team Leader(s): Artavazd Hakobyan
The World Bank
Yemen Desert Locust Response Project (P174170)
ABBREVIATIONS AND ACRONYMS
CFW Cash for Work
COVID-19 Coronavirus Disease 2019
DLCC Desert Locust Control Center
ESF Environmental and Social Framework
FAO Food and Agriculture Organization of the United Nations
IDA International Development Association
MAI Ministry of Agriculture and Irrigation
PDO Project Development Objective
TPM Third-party monitoring
IP Implementation Progress
BASIC DATA
The World Bank
Yemen Desert Locust Response Project (P174170)
Product Information
Project ID Financing Instrument
P174170 Investment Project Financing
Environmental and Social Risk Classification (ESRC)
Substantial
Approval Date Current Closing Date
17-Jun-2020 29-Dec-2023
Organizations
Borrower Responsible Agency
Food and Agriculture Organization (FAO)
Project Development Objective (PDO)
Original PDO
The Project Development Objectives are to control the desert locust outbreak, support livelihoods in locust-affected
areas and strengthen Yemen’s preparedness for future locust infestations.
OPS_TABLE_PDO_CURRENTPDO
Summary Status of Financing (US$, Millions)
Net
Ln/Cr/Tf Approval Signing Effectiveness Closing Commitment Disbursed Undisbursed
IDA-D6710 17-Jun-2020 14-Jul-2020 14-Jul-2020 29-Dec-2023 25.00 24.97 0
Policy Waiver(s)
Does this restructuring trigger the need for any policy waiver(s)?
No
I. PROJECT STATUS AND RATIONALE FOR RESTRUCTURING
A. Project Status
The World Bank
Yemen Desert Locust Response Project (P174170)
1. This Restructuring Paper seeks the approval to restructure the Yemen Desert Locust Response Project (DLRP). The
proposed restructuring consists of an extension of the closing date by six months, from December 29, 2023 to June
29, 2024. This would be the first extension of the closing date of the project.
2. The project was approved on June 17, 2020 and became effective on July 14, 2020. The Project Development Objective
and Implementation progress (IP) are rated Moderately Unsatisfactory due to delays in the construction of the Desert
Locust Control Centers (DLCC) and incremental risks associated with the deployment of vehicles for the DLCCs financed
by the project. Project funds have been fully disbursed to the Implementing Entity – Food and Agriculture Organization
(FAO) and are being paid to contractors and implementing partners as project activities are nearing completion and
delivery to final beneficiaries.
3. The project development objectives (PDO) are to control the desert locust outbreak, support livelihoods in locust-
affected areas and strengthen Yemen’s preparedness for future locust infestations. In the context of Yemen, the
expected outcomes of the project are described as follows: (i) a response to the locust infestation outbreak
encompassing improved locust surveillance, monitoring, and control activities; (ii) livelihood support focusing on
protection and restoration in the locust-affected areas; and (iii) strengthened national preparedness systems including
three main elements—establishing a network of Desert Locusts Control Centers, establishing an early response
system, and connecting Yemeni systems with regional networks to exchange information and data and improve
coordination of the locust response.
4. The project is expected to achieve its objectives through the following components:
a. Component 1 - Surveillance and Control Measures, which aims to improve the capacity for surveying and
surveillance of breeding and infestation areas and for gathering meteorological data, support locust control
activities (spraying), and implement risk mitigation measures for the workers and affected communities.
b. Component 2 - Livelihood Protection and Rehabilitation, which includes two types of measures: (i) creation of
temporary employment opportunities, and (ii) restoration of lost assets.
c. Component 3 – Coordination and Early Warning Preparedness, which aims to strengthen the national capacity
for early warning and early response, linking these efforts to regional locust surveillance and control networks
thereby enhancing climate resilience.
d. Component 4 – Project management, which covers the costs associated with project management, such as
implementation support, financial management, procurement, monitoring the project environmental and
social aspects, and overall monitoring and evaluation.
5. The main achievement under Component 1 (Surveillance and Control Measures) has been the extensive surveillance
and monitoring, which considerably exceeded the project’s target, generating valuable information about locust
breeding areas and movements. This information is important for locust monitoring not only in Yemen, but also for
the entire region covering North Africa, Middle East and Arabian Peninsula. Cumulatively, under the project 3,298,750
The World Bank
Yemen Desert Locust Response Project (P174170)
ha have been covered including a total area of 819,360 ha covering the hot spots for desert locust swarms, breeding
groups and spreads.
6. Under Component 2 (Livelihood Protection and Rehabilitation), eleven land and water infrastructure sub-projects
were completed in four governorates. A total of 5,367 workers were involved with 121,240 person-days of inputs.
FAO estimates that the total number of direct beneficiaries, i.e., people who directly benefit from labor or from the
improved community assets, is 20,820. As part of the sub-component 2.2, focusing on rehabilitating agricultural and
pastoral livelihoods, more than 5,485 affected households were supported with agricultural input packages, such as
feeds, seeds, livestock, and beehives.
7. Under Component 3 (Coordination and Early Warning Preparedness), the project has helped establish the desert
locust early warning system, which was assessed by FAO to be operational. In addition to monitoring systems and staff
capacity building, the system preparedness also requires proper infrastructure and facilities in place, which are
supported by the project, but which recorded slow progress as further described below.
8. The Project is in compliance with the Environmental and Social Framework (ESF). The latest financial reports of the
project are up-to-date and deemed Satisfactory and there are no overdue financial audits for the project.
B. Rationale for Restructuring
9. The rationale for the extension of the closing date by six months is to complete the construction of the Desert Locusts
Control Centers (DLCCs) which are critical facilities to achieve the project’s PDO. The proposed extension will also
enable the completion of other activities which are important for the sustainability of the project’s achievements (see
below). The delays observed with the implementation of those activities stem from project start-up and
implementation delays during the COVID-19 pandemic as well as the volatility of Yemen’s conflict-related operating
environment. Specifically, and as outlined in FAO’s request letter dated October 17, 2023:
a. COVID-19 related restrictions significantly slowed down the project start, delaying the mobilization of project
staff, and movement of goods. Field activities were delayed for almost two years until the restrictions were
lifted in early 2022.
b. There were delays in implementation due to difficulties in obtaining clearances from the Supreme Council of
Management and Coordination of Humanitarian Affairs (SCMCHA) for the implementation of project activities
in the North.
c. Negotiations with Social Fund for Development (SFD) on the technical and operational aspects under the
Operational Partnership Agreement (OPA) took longer than expected. The OPA was signed in late February
2022 and the actual implementation of Component 2 activities started in the summer of 2022.
d. Identification and launch of construction works of the DLCC was delayed due to difficulties related to the
identification of government-owned sites, challenges associated with obtaining land permits and lengthy
negotiations with the authorities on the types of constructions, technical approvals and tendering. All
construction works started in 2023.
The World Bank
Yemen Desert Locust Response Project (P174170)
e. There were difficulties associated with the intended use of a limited number of vehicles procured under the
project.
10. The Task Team confirms that the requirements of the World Bank Policy on Investment Project Financing have been
met. Namely: (i) the PDO remains achievable; (ii) the performance of the Recipient (FAO) remains moderately
satisfactory; (iii) the World Bank and the Recipient (FAO) have agreed on actions to be undertaken to complete the
project on time (an action plan has been prepared and agreed upon); and (iv) the Project is not subject to suspension
of disbursements.
II. DESCRIPTION OF PROPOSED CHANGES
C. Description
11. Closing date extension. The proposed restructuring would extend the project closing date from December 29, 2023,
to June 29, 2024. The extension of the closing date would allow completion of the construction and proper handover
of DLCCs under Component 3. As an added benefit, it would allow to extend the project-financed desert locust
monitoring and surveillance activities, generating locally and regionally important information for desert locust
outbreaks under Component 1. It would also allow for continued monitoring of the intended use of vehicles financed
by the project. Lastly, the proposed extension would allow for the implementation of additional livelihood activities
to support affected communities in four governorates. It is expected that the project IP and DO indicators will improve
as a result of the proposed restructuring and implementation of the Action Plan agreed between the World Bank and
FAO.
12. Component 1. An additional area of locust affected land will be surveyed during the project closing date extension
period with benefits both for Yemen and for the broader sub-region. Additional training of government staff in charge
of locus control and monitoring, thereby increasing the sustainability of project results.
13. The extension of the closing date would also allow to strengthen the monitoring of the intended use of vehicles
provided under Component 1. The project financed the delivery of 62 field vehicles, meeting the quality, standard
specifications, and quantity specified in the project documents. Third-party monitoring (TPM) inspections of all
vehicles have been conducted and found that only 12 vehicles were registered and used in the North; and while all
vehicles were registered in the South, only 2 of them were used. As part of the action plan, the World Bank and FAO
have agreed that monthly TPM checks will be conducted to verify the intended use of vehicles. In addition, GIS tracking
devices have been installed on all vehicles, and a vehicle use log has been adopted both in the North and South to
record movements of vehicles and their use. During the extension this monitoring will continue, and FAO will engage
in continuous dialogue with the authorities for proper registration, maintenance and intended use of the vehicles.
14. Component 2. As part of the action plan, the World Bank and FAO have agreed that some additional 3,000 affected
vulnerable households would be supported with agricultural input packages, which would include agricultural input
The World Bank
Yemen Desert Locust Response Project (P174170)
kits (seeds, seedlings, fertilizers, and training). This would be achieved utilizing project savings associated with the
cancellation of further vehicles procurement.
15. Component 3. As part of the action plan, the World Bank and FAO agreed that more time is required to complete the
civil works for at least three out of the five DLCC sites. The extension of the closing date would allow completing the
construction, delivering the required furniture and equipment, and handing over the sites to the relevant desert locust
control authorities. In addition, the extension would allow the necessary follow-up with the contractors during the
Defect Liability Period after the completion of works. Specifically, out of 5 DLCCs in construction, only two (Shabwah
and Seyoun) will be completed by end of December 2023. The three remaining DLCCs will require additional time as
described in Table 1 below:
TABLE 1. ACTION PLAN FOR COMPLETING DLCC CONSTRUCTION.
Action Expected Monitoring Date to be Responsible FAO
Result Indicator Completed Unit
Aden DLCC Fully percent 31-Mar-24 FAO DLRP team
1. Completing the finishing works in the operational completion of
Administration Building. This includes the Locust Center pending works
masonry works, plastering, painting, tiling
and electrical installation.
2. Completing the remaining finishing works
in the Training Center, warehouse, and the
workshop.
Sana’a DLCC Fully percent 28-Feb-24 FAO DLRP team
Completing the finishing works in the Training operational completion of
Centre. This includes installation of marble Locust Center pending works
tiles for the floor, installation of doors and
windows, painting, electrical installations.
Al-Hodeida DLCC Fully percent 31-Jan-24 FAO DLRP team
Finishing up minor activities in the second operational completion of
floor of Administration Building such locust center pending works
electrical installations, tiling, painting works
installation of windows and doors
16. The project implementation arrangements and project management will remain the same, and FAO will remain the
implementing entity of the project. Other than the extension of the project closing date, the proposed Level 2
Restructuring does not entail any changes in allocation of the Grant amounts, scope or nature of project objective(s)
or activities, implementation arrangements, or any other amendments to the Grant Agreements. There are also no
changes to the project’s ESF instruments and risks.
ES NOTE TABLE
The World Bank
Yemen Desert Locust Response Project (P174170)
III. SUMMARY OF CHANGES
Changed Not Changed
Loan Closing Date(s) ✔
Implementation Schedule ✔
Implementing Agency ✔
DDO Status ✔
Project's Development Objectives ✔
Results Framework ✔
Components and Cost ✔
Cancellations Proposed ✔
Reallocation between Disbursement Categories ✔
Disbursements Arrangements ✔
Disbursement Estimates ✔
Overall Risk Rating ✔
Legal Covenants ✔
Institutional Arrangements ✔
Financial Management ✔
Procurement ✔
Other Change(s) ✔
Economic and Financial Analysis ✔
Technical Analysis ✔
Social Analysis ✔
Environmental Analysis ✔
IV. DETAILED CHANGE(S)
OPS_DETAILEDCHANGES_LOANCLOSING_TABLE
The World Bank
Yemen Desert Locust Response Project (P174170)
LOAN CLOSING DATE(S)
Original Revised Proposed Proposed Deadline
Ln/Cr/Tf Status Closing Closing(s) Closing for Withdrawal
Applications
IDA-D6710 Effective 29-Dec-2023 29-Jun-2024 29-Oct-2024
.
The World Bank
Yemen Desert Locust Response Project (P174170)