PUBLIC DISCLOSURE AUTHORISED CARIBBEAN DEVELOPMENT BANK TWO HUNDRED AND SIXTY-FOURTH MEETING OF THE BOARD OF DIRECTORS TO BE HELD IN BARBADOS DECEMBER 11, 2014 PAPER BD 93/14 PAPER BD 93/14 Corr.1 ENHANCEMENT OF IMMIGRATION SERVICES - BARBADOS (President’s Recommendation No. 894) 1. The attached Report appraises a proposal from the Government of Barbados (GOBD) for a Loan to finance the enhancement of Immigration Services in Barbados. The expected outcome is the enhanced efficiency of Immigration Services. The Project will comprise the retrofitting, furnishing, and equipping of sections of the Princess Alice Highway Car Park Complex into new offices for the Immigration Department; information technology systems upgrade, legislative reform and institutional strengthening including organisational assessment, training in operations and client centred approaches to service delivery. 2. On the basis of the Report, I recommend a loan to GOBD of an amount not exceeding the equivalent of six million four hundred and seventy-four thousand United States dollars (USD6.474 mn) from the Ordinary Capital Resources of the Caribbean Development Bank (CDB), on the terms and conditions set out and referred to in Chapter 7 of the attached Report. 3. Funds are available within CDB’s existing resources and/or borrowing programme for the relevant disbursement period.
76
Embed
PUBLIC DISCLOSURE AUTHORISED CARIBBEAN …€¦ · BOQ - Bill of Quantities BTI - Barbados Tourism Investment Inc. ... 2 Compete C arib bean is p ogmme, j ntl yfun ded heI te -A mic
This document is posted to help you gain knowledge. Please leave a comment to let me know what you think about it! Share it to your friends and learn new things together.
Transcript
PUBLIC DISCLOSURE AUTHORISED
CARIBBEAN DEVELOPMENT BANK
TWO HUNDRED AND SIXTY-FOURTH MEETING OF THE BOARD OF DIRECTORS
TO BE HELD IN BARBADOS
DECEMBER 11, 2014
PAPER BD 93/14
PAPER BD 93/14 Corr.1
ENHANCEMENT OF IMMIGRATION SERVICES - BARBADOS (President’s Recommendation No. 894)
1. The attached Report appraises a proposal from the Government of Barbados (GOBD) for a Loan
to finance the enhancement of Immigration Services in Barbados. The expected outcome is the enhanced
efficiency of Immigration Services. The Project will comprise the retrofitting, furnishing, and equipping
of sections of the Princess Alice Highway Car Park Complex into new offices for the Immigration
Department; information technology systems upgrade, legislative reform and institutional strengthening
including organisational assessment, training in operations and client centred approaches to service
delivery.
2. On the basis of the Report, I recommend a loan to GOBD of an amount not exceeding the equivalent
of six million four hundred and seventy-four thousand United States dollars (USD6.474 mn) from the
Ordinary Capital Resources of the Caribbean Development Bank (CDB), on the terms and conditions set
out and referred to in Chapter 7 of the attached Report.
3. Funds are available within CDB’s existing resources and/or borrowing programme for the relevant
disbursement period.
PUBLIC DISCLOSURE AUTHORISED
CARIBBEAN DEVELOPMENT BANK
APPRAISAL REPORT
ON
ENHANCEMENT OF IMMIGRATION SERVICES – BARBADOS
Considered at the Two Hundred and Sixty-Fourth Meeting of
the Board of Directors on December 11, 2014.
(BD 93/14)
AR 14/10
Director (Ag.) -
Projects Department
Andrew Dupigny
Division Chief (Ag.) -
Economic Infrastructure Division
Daniel Best
DECEMBER 2014
This Document is being made publicly available in accordance with the
Bank’s Information Disclosure Policy. The Bank does not accept
responsibility for the accuracy or completeness of the Document.
Any designation or demarcation of, or reference to, a particular territory or geographic area in this Document
is not intended to imply any opinion or judgment on the part of the Bank as to the legal or other status of any
territory or area or as to the delimitation of frontiers or boundaries.
This Report was prepared by an Appraisal Team comprising:
Executing Agency: Barbados Tourism Investment Inc. (BTI)
Grace Period:
OCR: 5 years
Disbursement
Period:
September 30, 2015 to September 30, 2016
Source Amount (USD mn)
OCR – Loan:
6.474
Interest Rate:
Currently 3.95% (variable).
Counterpart:
4.475
Commitment Fee:
1% per annum (p.a.) on the
undisbursed balance of the
Loan, commencing from the
60th day after the date of the Loan Agreement.
TOTAL: 10.950 Risk Management
Country Rating:
Outlook:
Limit:
N/A
N/A
N/A
Overall Project/Entity Score: N/A
Public Sector Lending as at November 01, 2014: (USD ‘000)
Approvals: 410,842
Disbursements: 319,667
Repayments: 177.343
Undisbursed: 92,013
Outstanding Loans: 142,324
Availability (Adjusted for Approvals): N/A
Availability (Adjusted for Approvals and
Disbursements):
N/A
Incremental Capital Adequacy Charge: N/A
Office of Risk Management (ORM) Commentary:
This information is withheld in accordance with one or more of the exceptions to
disclosure under the Bank’s Information Disclosure Policy.
(ii)
Project Summary
Project Outcome and Description:
The expected outcome of the Project is enhanced efficiency of immigration services. Project components
include:
(a) Building: Sections of the ground and first floor to be provided for retrofitting works.
(b) Retrofitting Works.
(c) Information Technology (IT) Infrastructure.
(d) Furniture.
(e) IT Systems Upgrade.
(f) Relocation of staff, equipment and relevant furniture from existing offices to retrofitted
building on Princess Alice Highway.
(g) Institutional Strengthening:
(i) organisational support technical assistance (TA);
(ii) legislative reform; and
(iii) monitoring and evaluation (M&E) consultancy.
(h) Architectural and Supervision Services.
(i) Project Management.
CDB/Special Development Fund Contribution to Country Outcomes – Key Outputs:
Capacity Development
No. Indicator 2015 2016
1. Public sector employees trained in M&E 10 5
2. Immigration Department staff trained in trained in web based applications 25 50
3. Immigration Department staff trained in trained in Border Management Systems 40 40
4. Immigration Department staff trained in Customer Service 10 30
Gender Marker Summary
Gender Marker
Analysis Data Engagement Response Score Code
1.0 0.5 0.5 0.5 2.5 MM1
1 MM – Marginal Gender Mainstreaming. Project can make limited contribution to gender equality. See Appendix 4.2 for the
Gender Marker Analysis.
1. STRATEGIC CONTEXT AND RATIONALE
LOAN REQUEST
1.01 By letter dated April 3, 2014, GOBD requested that the Caribbean Development Bank (CDB) assist
with the financing of a project to enhance immigration services in the country. The Project forms part of
the reform of the country’s immigration services currently being executed through a Compete Caribbean2
programme, and was initiated by the recommendations of the Diagnostic Report which was the main output
of the programme.
MACROECONOMIC CONTEXT
1.02 During the past decade (2003-2013) the macroeconomic environment in Barbados became
increasingly strained, particularly post 2008 (as a result of the global crisis), characterised by acute
sluggishness in economic activity with the attendant consequences of heightening unemployment and
weakening already tenuous public finances. Key economic developments for the first 9 months of 2014
suggest that the economy remains severely challenged amid weak domestic and external demand, occasioned
by the lack of a robust recovery in the economies of its main trading partners, the United States of America
(USA) and the United Kingdom (UK). Consequently, job losses continued (especially in the tourism,
manufacturing and construction sectors) becoming more acute as a result of the Government’s retrenchment
programme.
1.03 The fiscal challenges have intensified, necessitating a consolidation of public finances; a 19-month
adjustment programme, which commenced in October 2013, is underway. Though the measures are a step in
the right direction, the magnitude of the fiscal correction appears insufficient, given the scale of the fiscal and
debt problem (fiscal deficit and gross debt estimated at 12.5% and 109.4% of gross domestic product (GDP)
respectively, at the end of the fiscal year 2013/2014). It is imperative and urgent that fiscal consolidation is
deepened so that it gives more emphasis to reforms of public enterprises and social expenditure. Over the
short term, fiscal tightening and a modest recovery in the USA and UK will constrain growth, with
implications for employment creation. However, over the medium term, the outlook is broadly positive,
premised on the implementation of strategies to: (a) maintain macroeconomic stability, by improving fiscal
outcomes; and (b) promote inclusive growth.
SOCIAL CONTEXT
Demography and Human Development
1.04 Barbados is categorised as a Small Island Developing State (SIDS) and, with an estimated population
of 277,8213, is one of the most densely populated countries in the Western Hemisphere. Despite its SIDS
categorisation, based on a number of vulnerabilities including small size, limited resources, poor economic
resilience and susceptibility to natural hazard impacts, the country, by international standards, has achieved
high human development. This level of development has been achieved through continuous and substantial
investment in the education and health sectors over decades.
1.05 Since 2010, Barbados’ development was defined by episodes of improvement and decline.
The decline has been influenced by the worsening economic situation, influenced partly by the challenges
2 Compete Caribbean is a programme, jointly funded by the Inter-American Development Bank (IDB), the United Kingdom
Department for International Development (DFID) and the Foreign Affairs, Trade and Development Canada (DFATD),
and which in partnership with CDB, supports projects in 15 Caribbean countries. CDB’s support is targeted to the OECS Member
Countries its BMCs Website: http://www.competecaribbean.org/about-us 3 Population and Housing Census (2012) conducted by the Barbados Statistical Service.
posed by an undiversified economy and a weak performance in tourism. This notwithstanding, the country
recorded a number of social achievements in the midst of economic challenge, and achieved Very High
Human Development status. The 2013 Human Development Report (HDR4) revealed that Barbados had
improved its performance and was ranked 38th out of 187 countries. However, as a consequence of ongoing
socioeconomic challenges, sluggish and uncertain economic improvement, HDR 20145 determined that
Barbados’ rank had slipped to 59th out of 187 countries, and was now categorised in the High Human
Development category. Overall, Barbados’ human development has not been accompanied by a concomitant
reduction in gender inequality6. In an effort to systematically promote gender mainstreaming across all
sectors, GOBD is in the final stage of developing its National Policy on Gender7 which articulates the practice
of gender justice as a key approach to achieving sustainable development.
1.06 Despite its achievements, Barbados registered poverty and indigence levels of 19.3% and 9.1%,
respectively [Country Assessment of Living Conditions (CALC), 2010]8. Similar to other Borrowing
Member Countries (BMCs), female-headed households were overly represented in the poverty statistics,
accounting for 19.4% of the population compared with 11.5% in male-headed households. Barbados’
sluggish economic recovery, in the face of the impacts of the global downturn, has precipitated severe social
consequences. Vulnerable groups in society continue to face increasing risks as predicted by the 2010 Poverty
and Social Impact Assessment,9 with high levels of unemployment in the public sector resulting from
retrenchment and attrition and in the private sector, from layoffs and redundancies in response to declining
profitability in an environment where business activity contracted in the productive and services sectors. The
findings of the Country Gender Assessment (CGA, 2014)10 informed that within the context of lower
participation rates in the labour force, and higher unemployment rates for females, especially in the tourism
and services sectors where women predominate the labour market, together with higher levels of dependency
and poverty in female-headed households, the crisis is having a disproportionate economic impact on women
than on men. In the face of adversity, and drawing on lessons of experience across the globe, Barbados and
its CARICOM partners have recognised the importance of economic integration as a functional response to
the current challenges and in that regard, have sought to deepen functional cooperation.
Barbados and Caribbean Single Market and Economy
1.07 GOBD has highlighted the importance of productivity and competitiveness in improving the socio-
economic development of the country and in this connection, sees the free movement of persons within the
CARICOM Single Market and Economy (CSME) as critical to strengthening regional co-operation and
integration as a means to achieve this objective. The prevailing view is that free movement serves as a catalyst
to the fulfilment of improved standards of living and work, full employment across the region, and enhanced
levels of international competitiveness, as articulated in the Revised Treaty of Chaguaramas. Article 45 of
the Revised Treaty commits Member States, including Barbados, to the goal of free movement of nationals
within the Community.
4 UNDP HDR (2013): The Rise of the South: Human Progress in a Diverse World. 5 UNDP HDR (2014): Sustaining Human Progress: Reducing Vulnerabilities and Building Resilience. 6 According to the World Economic Forum (2013): Global Gender Gap Index -While the average Gender Inequality Index for
countries at the “very high human development” level was 0.193 in 2012, Barbados’ score was 0.343. In the same year
Barbados was ranked 27 out of 135 countries with a score of 0.723 on the Gender Gap Index. Barbados’ ranking slipped
further in 2013 and with a score of 0.730 was ranked 29 out of 136 countries. 7 The National Policy on Gender is being developed with the oversight of the Bureau of Gender Affairs. 8 CDB supported GOBD in undertaking the CALC which was the first comprehensive study on poverty and human development
undertaken in Barbados. 9 Social Implications of the Global Economic Crisis on Living Conditions in Barbados (Draft Final Report, 2010:22).
Commissioned by UNDP and prepared by Lynette Joseph-Browne. 10 CGA (the first for Barbados) was conducted by GOBD with CDB support during the period 2013-2014.
- 3 -
1.08 Despite the commitment to facilitating freer movement of persons within the Community, research
highlights a number of impediments to the movement of labour, particularly in relation to women. Persisting
gender inequality and traditional gender roles are recognised as limiting women’s propensity to migrate, and
adversely shape women’s participation in the formal labour market. Women’s experiences in the labour
markets of CARICOM are characterised by occupational segregation, concentration in the informal sector
and unpaid work, higher levels of unemployment, experiences of poverty, and a greater assumption of the
burden of care of children and the elderly (Vassell, 2011)11. Barbados’ Immigration Department (ID), in line
with others across the globe, is at the vanguard of facilitating the freer movement of people in and out of its
jurisdiction. However, ID has been challenged to efficiently and effectively perform its role in a globalised
environment which has significantly increased the movement of people across borders and elevated complex
issues around, inter alia, cross border crime, human trafficking and national security. In the current
environment of socio-economic challenges and increasing demands and heightened expectations for freer
movement of persons, GOBD has responded by initiating the process to modernise its existing Immigration
Policy to more efficiently respond to the challenges. It is within this context that efforts are underway, to seek
to strike the appropriate balance between protecting the legitimate rights and expectations of citizens, with the
need to accelerate the pace and deepen the quality of regional integration and economic growth. The ID’s
role as a facilitator in this process is fundamental given that the outcomes of its activities impact the social
and economic development of Barbados and the Region. (See Appendix 1.1 for more details on the macro
and social context)
THE IMMIGRATION DEPARTMENT
1.09 ID falls under the Defence and Security Division in the Office of the Prime Minister (OPM). The
mission of ID is to protect the national interest of Barbados through: (a) the enforcement of its immigration
and citizenship laws; and (b) offering reliable, professional, and humanitarian services to its clientele, both
national and non-national. In meeting these objectives, the Department must give priority to national security
and the promotion of sustainable social and economic development.
1.10 ID has a mandate to be responsive to the dynamics of business, enabling businesses to attract and
retain highly qualified and skilled immigrants that make a competitive difference to the country. The
Department must honour regional, hemispheric and international commitments about movement of people.
In addition, ID plays a pivotal role in securing the country against terrorism, transnational crime, human
trafficking, narco-trafficking and other criminal activity.
1.11 Most of the functions carried out, and services offered by ID are governed by the following legislation:
(a) The Constitution of Barbados.
(b) Barbados Citizenship Act, Cap. 186 and Regulations.
(c) Immigration Act, Cap. 190 and Regulations.
(d) Caribbean Community (Movement of Skilled Nationals) Act 2004.
(e) Passports and Travel Documents (Fees) Act, Cap. 81.
1.12 The Barbados Citizenship Act, in conjunction with the Constitution, makes provision for the
acquisition, deprivation, and renunciation of Barbadian citizenship. ID facilitates the granting of citizenship
to persons who qualify on grounds of descent, registration and naturalization. The Immigration Act and the
11 Vassell (2011) cited in Regional Gender Analysis of the CSME and Its Impacts-draft report prepared by Tamara A. Huggins
and Lebrechetta Nana Oye Hesse Bayne (2014).
- 4 -
accompanying Regulations make provision for the control of entry of persons into Barbados and for related
matters. It is the main legislation governing immigration matters in Barbados. The main focus of the
Caribbean Community (Movement of Skilled Nationals) Act is to facilitate the free movement of CARICOM
skilled nationals.
1.13 The Chief Immigration Officer (CIO) oversees all operations of the Immigration Department and
reports to the Permanent Secretary (PS) of the Defence and Security Division within the OPM. The CIO
and the Deputy CIO have management responsibility for all operational divisions, with a staff complement
of 200 employees. The staff is spatially located at 4 sites with half of the employees located at the
headquarters in Bridgetown; 80 officers are based at the Grantley Adams International Airport (GAIA), and
the remainder assigned to the sea ports in Bridgetown and Port St. Charles.
1.14 The services currently offered by ID are:
(a) Control of Entry and Departure of persons at ports of entry.
(b) Processing of applications for various forms of immigration status such as: Citizenship;
Permanent Resident Status; Immigrant Status; Work Permits/Training attachments;
Renunciation of Citizenship; Student Visas; Extensions of Stay; Issuing of Barbados
passports and other travel documents; CARICOM free movement; Entry Visas; and Special
Entry Permits
Issues and Constraints
Physical Infrastructure and Environment
1.15 The present layout of ID provides very limited accessibility for staff, special-needs persons and
customers in general. Many passages fall below the internationally accepted minimum required width of
1.12 m to accommodate persons with special needs, such as wheel chair accessibility. In addition, there are
telecommunication cables and electrical conduits that traverse the floors and are hazardous to staff and
customers. The Ministry of Housing and Lands (MOH) spatial assessment of ID determined that it did not
meet the required minimum space specifications for functionality for the various staff levels. For example,
the work area for 20 immigration officers’ currently averages 2.3 m2 per officer, compared to the minimum
requirement of 4.7 m2 per officer. The passport department housing 4 staff members and production
equipment share an average space of 2.8 m2 per staff member compared to the requirement of 6.0 m2. The
investigation unit occupies 55.7 m2 of space compared to the requirement of 151.4 m2. This situation is
further compounded as there are security concerns within the investigation unit in which there is currently
no separation of staff, the general public, and the detainees. Lack of bathroom facilities and the lack of
separation between the general public, staff and detainees also pose acute security challenges. Space
limitations also restrict the number of booths for conducting interviews and effective delivery of customer
service, particularly in the processing of applications. This contributes to the backlog of pending
applications.
1.16 Health and safety issues are a concern to both staff and the general public. On visual inspection, it
is evident that the structure has been poorly maintained over its 40-year plus life, with several structural
cracks in the walls and the floor. The growth of mould is prevalent on many of the walls as a result of the
structure being built of limestone, the presence of a high water table within Bridgetown, and the absence of
a damp-proof membrane in the foundation of the structure. The mould, along with the dust resulting from
the numerous files stored throughout the office, contribute to poor indoor air quality, which negatively
impacts staff health. In the last 2 years, an average of 44% of sick leave was attributed to respiratory
ailments related to environmental conditions at the work place.
- 5 -
Information Technology Systems
1.17 An IT audit12 in 2012, which was conducted jointly by an IT provider and ID, revealed that the IT
equipment and software do not meet the present or projected needs of the Department. The introduction of
online appointments for passports only, has improved quality of service in convenience, delivery time, and
reliability for this aspect of the Department’s mandate. Currently, there are no significant queues for the
application or collection of passports, and there is more reliability in processing passport applications within
10 working days. The deficiency in IT infrastructure however, is preventing the Department from having
similar success for other services. The existing IT infrastructure also constrains potential future advances
in immigration services such as performing biometric analysis on customers if recommended legislative
reforms are implemented.
1.18 ID’s filing and storage system is paper-based, with most of the activities involving printed or hand
written documents. This system has its origins in existing legislation13 and lack of training. The Diagnostic
Report notes the use of a “Registry” book to record applications and extensive storage of “hard copy”
correspondence even though duplicate information has already been captured electronically by the
department’s data entry staff. The Report also notes that a card index system is used to track application
folders within the department, and that this system becomes problematic when the card index is not properly
updated each time a file is moved.
Organisational Structure
1.19 The current organisational structure has not changed significantly since the formation of ID in the
1980’s. As the volume of work increased, posts were added, but ID did not benefit from an assessment of
skills needed to fulfil its mandate, particularly in a changing international environment. As shown in
Appendix 1.2, the CIO, who heads ID, has a Deputy CIO (DCIO) and 10 Section Heads, including 2
Assistant Chief Immigration Officers, (ACIO), under the CIO’s span of control. However, the post of
Deputy has been vacant for over a year, and only one of the ACIO posts is actually filled. While Section
Heads may approve applications for passports, work permits, citizenship by descent and student visas, all
other approvals, as well as all denials and sensitive investigative matters, are referred to the CIO. The practice
of having many approvals and virtually all denials handled by the CIO is counterproductive, places an
onerous supervisory and paperwork burden on the CIO, and inhibits the individual’s ability to manage the
operation effectively. While some of these pressures may be alleviated by the increased use of IT and a
revamping of existing human resource management and development practices, an appropriate level of
personnel with the right skill sets is critical to increases in productivity.
1.20 Over the years, training has been carried out in an ad hoc manner, primarily on-the-job and by
attendance at courses and seminars organised by the Government's Training Administration Division and
the Office of Public Sector Reform. While this approach has reaped some success, a systematic and
comprehensive training plan, is required to support the achievement of departmental objectives and
upgrade the skills and competencies of staff.
12 Audit conducted by GOBD in conjunction with IT consultant - IBM 13 Regulations requires paper-based documentation for extended period
- 6 -
Legislation, Operating Procedures and Practices
1.21 In 2009, the Ministry of Labour and Immigration tabled proposals for substantive legislative reform
in Barbados’ immigration sector to address gaps in the existing legislation and to amend certain provisions,
to more closely align them with practical issues faced by the ID. The most salient of the proposals related
to the Immigration Act and the Caribbean Community (Movement of Skilled Nationals) Act. The proposed
amendments to the Immigration Act included, inter alia:
(a) specifying clear conditions for potential business investors seeking immigrant status;
(b) introduction of additional penalties on both employee and employer with respect to breaches
of work permits;
(c) provisions to address the Economic Partnership Agreement between CARIFORUM States
and the European Community and its Member States;
(d) provision for “special entry permits” to persons wishing to retire in Barbados;
(e) provision for the immediate deportation of persons convicted of narco-trafficking and other
serious offences; and
(f) amendments to the constitution of the Immigration Review Committee.
Customer Satisfaction
1.22 In a 2010 National Initiative for Services Excellence (NISE) Customer Satisfaction Index (NCSI)
survey14, ID was ranked fifth out of 7 public sector services in customer satisfaction. The ID public sector
NISE score15 was 64. In addition, a comparison of the score was made with the United States (US) passport
control (76) and the UK-Identity and Passport Service (78). The indicators used for NCSI were perceived
quality, customer expectations, trust and customer complaints.
COUNTRY’S SECTOR STRATEGY
1.23 Among the priorities identified by GOBD as part of its Medium-term Growth and Development
Strategy (MTGDS) 2013-2020 are “enhanced international competitiveness, national productivity,
efficiency and service excellence” and “more modern and efficient public and private sector institutions”.
Immigration institutions in particular – and the services they provide – are key to enhanced competitiveness
and productivity as inputs to job-led growth and development. Immigration services facilitate travel for
tourism; investment and the establishment of enterprises; free movement of labour16, regional cooperation
and integration; and South-South collaboration for development. The modernisation of ID and support to
its enhanced delivery of services potentially adds significant value to other GOBD interventions aimed at
improving efficiency and productivity across a range of public sector services and institutions, as well as
encouraging labour and investment inputs to growth sectors.
1.24 An assessment of ID, conducted as part of a Compete Caribbean Initiative, included an internal
review of the Department’s policies, procedures, legal framework, facilities, working conditions, staff,
organisational structure and technological capabilities. The Diagnostic Report and Action Plan suggested
14 http://nisebarbados.org/downloads/NCSI_Advertorial.PDF 15 on a scale of 0 to 100, where 100 represent the highest possible score attainable 16 Both under work permit arrangements as well as under the Revised Treaty of Chaguaramas establishing the CARICOM
including CSME.
- 7 -
several recommendations for strengthening and modernising the Department’s operations in order to
streamline workflow and improve efficiency. GOBD intends to proceed with key recommendations from
the Diagnostic Report and Action Plan, which include:
(a) Relocation of ID to a retrofitted building.
(b) Evaluation of organisational structure and recommendations for changes.
(c) Reform of legislation, internal procedures and practices including review of the Immigration
Act and proposed legislation and updating of the Operations Manual.
(d) Technological updates to streamline operations.
(e) Training in client-centred approaches to service delivery.
LINKAGE OF PROJECT TO CDB’s STRATEGIC OBJECTIVE
1.25 The proposed Project is consistent with:
(a) CDB’s Strategic Objective of Promoting Good Governance; and
(b) CDB’s Corporate Priority to Support Capacity Development and Strengthen Economic
Management.
1.26 The Project is consistent with CDB’s proposed Country Strategy for Barbados 2015-2018 to
support the modernisation and institutional strengthening of ID to improve its service delivery, and by
extension, business facilitation with a view to addressing a key competitiveness constraint of businesses.
1.27 The CDB’s Draft Strategic Plan 2015-2019 identifies good governance as one of the Bank’s two
distinct but complementary development objectives, supported by the mainstreaming of three cross-cutting
areas, one of which is regional cooperation and integration (RCI). CDB’s objective of promoting good
governance as set out in its Strategy on Governance and Institutional Development (currently under
revision) aims as one of its three focal areas – to support BMC’s efforts such as supporting the creation
of a modern, effective and accountable public sector capable of delivering valued public services – and it
is this governance objective to which the proposed intervention responds.
PROJECT RATIONALE
1.28 The lack of adequate space at ID inhibits normal movement of staff, special needs persons, and
the general public. The limited spatial capabilities and poor environmental conditions affect not only
operational efficiency, but also staff health, safety, morale and general security. MOH’s spatial assessment
of ID in 2012 determined an additional 279 m2 is required based on staff and customer usage requirements.
In addition, it was reported by the Ministry of Labour that ID has breached 9 sections17 of the Health and
Safety Act (2005). For the period 2012 to 2013, 44% of staff of ID reported sick as a result of the health
challenges arising from their work environment.
17 Section 8 - Access to Place of Work; Section 6 – General Duties of Occupier or employer; Section 7 - General Duties of
Occupier to persons generally; Section 38 – Provision and maintenance of means of fire warning; Section 41 – Instructions as
to use of means of escape in case of fire; Section 43 – Floors and passages; Section 54 – Over crowding; Section 59 – Lunch
rooms; Section 64 – Sick Bay
- 8 -
1.29 The existing IT systems do not carry the requisite capacity for effective data management,
telecommunication speed, web-based information access and processing. With limited IT infrastructure ID
has been unable to introduce much needed online applications for many of its services. This has adversely
affected efficiency and impacted data management capacity and telecommunication speed. The outcome
of this deficiency has been poor time management, slow processing speeds, unreliability, and inconvenience
for the general public.
1.30 There have only been minor updates to the Immigration Act since it was enacted in 1975. Changes
are needed to allow for the adoption of modern enforcement and facilitation tools such as biometrics and e-
passports. A recent Study of ID concluded that authorisation levels and procedures relating to approval and
denial of applications for immigration benefits are out of date, and serve to inhibit the expeditious
processing of applications and permits. These outdated authorisations and procedures impinge on senior
managements’s ability to effectively manage operations. A detailed assessment of the organisational
structure, and staffing is therefore required to ensure that staff resources are aligned with the expected
changes in processes and technologies and to ensure optimum utilisation of available human resources.
1.31 GOBD recognises the importance of improved immigration services in enhancing productivity,
facilitating business and investment, and supporting regional cooperation efforts. In this context, the
country’s ID must improve the quality, effectiveness and efficiency of its services. The action proposed
by the Diagnostic Report is to: (a) improve the working environment; (b) upgrade its technology and
operations systems; (c) legislative reform; and (d) improve its organisational structure and human
resources. The Project components will address all four proposed intervention areas, with the objective
of enhancing efficiency and effectiveness of the immigration services.
2. PROJECT DESCRIPTION
PROJECT OUTCOME
2.01 The expected outcome of the Project is enhanced efficiency of Immigration Services. The
Design and Monitoring Framework is presented at Table 2.1.
PROJECT DESCRIPTION
2.02 The proposed project comprises the following components:
(a) Building: GOBD, through MOH will enter into a lease agreement with BTI, whereby
GOBD will lease sections of the premises owned by BTI at Princes Alice Highway Car
Park Complex, for the purpose of housing ID for a minimum period of 25 years.
(b) Retrofitting Works: retrofitting of sections of the ground and first floors of the four-storey
Princess Alice Highway Car Park Complex into the new offices of ID Headquarters.
(c) IT Infrastructure: Installation of computers, uninterrupted power supply (ups) and voice
over internet protocol (VoIP)
(d) Furniture: Installation of new office furniture.
(e) IT Systems Upgrade: Installation of additional servers, upgrade of BMS, passport
processing system, and web based applications.
- 9 -
(f) Relocation: Relocation of staff, equipment and relevant furniture from existing offices to
retrofitted building on Princess Alice Highway.
(g) Institutional Strengthening:
(i) Consultancy: consultancy services to conduct an assessment of the organisational
structure, operations systems and procedures of the Department, and
recommendations for the reorganisation, strengthening of ID and training of staff.
(ii) M&E: Consultancy services for establishing M&E systems.
(iii) Legislation Reform: Reform of legislation, internal procedures and practices
including review of the Immigration Act, Regulations and new proposed
legislation.
(h) Project Management.
(i) Architectural and Supervision Services (See Appendix 2.1).
2.03 Details of the Project components are presented in Appendix 2.2. The Draft Terms of Reference
(TOR) for the consultancies are set out at Appendices 2.3 and 2.4.
LESSONS LEARNT
2.04 Significant lessons drawn from the experience of CDB and other development agencies which are
applicable to this Project include the following:
(a) monitoring and impact indicators must be results-based and M&E systems should be
incorporated early in the project cycle for best results;
(b) the importance of setting realistic timeframes for project deliverables based on
implementation experience;
(c) institutional strengthening components should be delegated to appropriate government
agency to reduce unnecessary delays in the completion of these components and to
facilitate ownership by the agency; and
(d) ensuring that the requisite planning approvals for the works are expedited from the relevant
agencies.
2.05 These lessons indicated in the preceding paragraph have informed the design of this Project as
follows:
(a) An M&E consultancy has been incorporated in this Project to establish M&E systems that
will focus on results.
(b) Implementation durations of project tasks have been determined based on the experience
of previous development projects successfully implemented by BTI in the capacity of
Project Manager.
(c) ID will be integrally involved in the management of the Institutional Strengthening TA.
- 10 -
(d) All regulatory approvals with respect to the retrofitting works have been received from the
Town and Country Planning Office (T&CP) and permission has been granted to proceed
with construction.
TABLE 2.1: DESIGN AND MONITORING FRAMEWORK
Design Summary
Performance
Indicators/Targets
Data Sources/Reporting
Mechanisms
Critical
Assumptions
1. Impact:
Contribute to an improved enabling
environment for business, investment and
regional corporation and integration
Ease of Doing Business score
increased to 66 out of 100 by 2020
(Baseline 2014 - 61 out of 100).
World Bank Doing Business
Report
Macroeconomic stability.
2. Outcome:
Enhanced Efficiency of Immigration
Services.
1. Improvement in processing times for
the following services by December
2017:
(a) Citizenship applications
(disaggregated by sex) from 6
months to 3 months.
(b) Work permit applications
(disaggregated by sex) from 4
weeks to 2 weeks.
(c) Immigration status applications
(disaggregated by sex) from 6
weeks to 4 weeks.
2. Average sick leave (disaggregated
by sex) attributed to respiratory
ailments decreases from 44% to 20%
by 2017.
3. NCSI for ID increases from 64 to 75
by 2017.
1. Immigration Department Annual
Report.
2. Human Resources Records.
3. NCSI surveys.
Funding remains available for
operation and maintenance of
equipment and facilities
Intermediate Outcome:
1. ID demonstrating improved proficiency with
operating new systems.
2. Enhance capability in using M&E systems.
Percentage of staff (sex disaggregated)
meeting systems compliance
requirements by September 30, 2017.
(Target 100% male and female)
ID statistic report published yearly by
2017.
Staff appraisal assessment and staff
surveys.
Training and capacity
development translate to
improved performance of staff in
systems compliance and M&E.
- 11
-
Design Summary
Performance
Indicators/Targets
Data Sources/Reporting
Mechanisms
Critical
Assumptions
Outputs:
1. Retrofitted office completed and Operational
2. Feasible recommendations for improved organisational
structure and procedures developed.
3. ID staff trained.
4. Updated regulatory framework.
5. M&E systems developed.
1(a) 2050 m2 of office space retrofitted as
specified in the building contract by
June 2016.
1(b) Designated detainee areas for males and
females operational by June 2016.
2 Physical IT infrastructure installed as specified in
the building contract by June 2016.
3. ID Staff, furniture and equipment at new location
by July 2016.
4. Installation and commissioning of new BMS
application by July 2016.
5. Installation and commissioning of online
application by December 2016.
6. Organisational Assessment and Operational Plan
completed by March 2016.
7. Drafted regulatory framework by 2017.
8. Development of M&E System by
September 2015.
9. Male and female staff trained in M&E, web based
disruption of traffic flow creating inconvenience to users; and (e) exposure to health and safety hazards.
The environmental risks associated with these impacts are minimal and can be adequately addressed with
prudent risk management.
4.15 During the operational phase, the main issue relates to potential exposure of building occupants
to poor indoor air quality19 which has implications for their comfort and health. The close proximity of
the building to the busy Princess Alice Highway traffic corridor, bus terminus, car parks and the fresh
food market opens the possibility for contaminants such as carbon monoxide, volatile organic
compounds, and dust to enter the building and affect the air quality. Poor storage of working materials
such as paper-based files could also add to problems by contributing to dust loading. Dust particles, if
inhaled will lead to health hazards for staff and customers. The mitigation measures recommended for the
above-mentioned environmental impacts are as follows:
(a) cleaning of dust-ladened paper documents to be relocated to the new location by ID;
(b) installing of appropriate air filtration equipment in order to ensure that good quality air is
re-circulated in the building;
(c) monitoring CO2 levels to ensure the minimum recommended quantity of outside air to the
building occupants;
(d) locating the outdoor air intake away from potential sources of contamination; and
(e) developing and implementing a rigorous operation and maintenance plan.
4.16 Positive environmental impacts of the Project relate to the potential for the Project to contribute
to the more efficient use of natural resources, in particular, energy and water. This will result from the
implementation of water efficiency and energy efficiency measures which will reduce the environmental
footprint of the project. The project has a built-in component to promote water conservation with the
inclusion of a water storage tank with a minimum capacity of approximately 12,000 gallons to provide
water for secondary uses. Also, water protection and conservation of water measures during the
operational phase have been incorporated in the Mechanical Electrical Plumbing design specifications to
include water efficient faucets, urinals, and toilets.
Natural Hazards Assessment
4.17 The main hazards to which the project will be exposed throughout its design life are hurricanes,
floods, storm surge, earthquakes, and fire. Potential adverse impacts from exposure to these hazards will
be significantly mitigated in some instances due to design features of the existing building and those to be
included in the retrofitted building. Some of these features include:
19 Poor indoor air quality has been linked to symptoms like headaches, fatigue, trouble concentrating, and irritations of the eyes,
nose and throat (United States Department of Labor, 2014).
- 19 -
(a) The conformance of the building to the Barbados Building Code20, which specify the
minimum requirements to adequately safeguard the health, safety, and welfare of building
occupants. One aspect of this is the design of the building in three separate blocks each
with three-inch expansion joints to allow for movement during an earthquake.
(b) Design of the building to withstand a Category 3 Hurricane in keeping with the Barbados
Building Code.
(c) Integration of the building’s storm water drains with the existing drainage system of
Bridgetown in order to minimise storm water flooding.
(d) Incorporation of fire precaution measures in the designs for the refurbishment.
4.18 Given the multiplicity of hazards to which the building and its occupants may be exposed, (in
particular fire, flooding and storm surge) there is need for the development of an Emergency Response
Plan (ERP) for the building. The ERP will provide the protocols for responding to hazard emergencies
either occurring on or affecting the building and its occupants. It shall be a condition of the Loan that
GOBD shall develop and implement an ERP for the building by September 2016.
SUSTAINABILITY AND MAINTENANCE
4.19 Sustainability of the project benefits will depend on the following:
(a) effective maintenance of the building facilities which includes Mechanical, Electrical and
Plumbing (MEP) fixtures, doors and windows and physical infrastructure21;
(b) effective maintenance of the IT systems;
(c) training undertaken and improvement of the organisational structures established to
improve immigration services; and
(d) the commitment of GOBD to implement the recommendations of the Institutional
Strengthening Studies.
4.20 Maintenance of MEP fixtures and the physical structure shall be the responsibility of BTI. It will
be a condition of the Loan that BTI will be responsible for the maintenance of the MEP fixtures and
physical structure of the building.
4.21 The maintenance of the IT Infrastructure and Systems, and furniture shall be the responsibility of
GOBD. It will be a condition of the Loan that GOBD adequately maintains the furniture, IT Infrastructure
and Systems financed under the project.
4.22 It should be a condition of the Loan that GOBD shall within a time-frame acceptable to CDB,
implement or procure the implementation of such of the recommendations arising out of the consultancies
(Institutional Strengthening) set out at Appendices 2.3 and 2.4 to this Report.
20 There is a published Building Code dated 1993 in Barbados but it is not the subject of legislation. However, all the professional
consultants design to international standards (either US, UK or the local building code). 21 sewer pipes and manholes
- 20 -
4.23 It should be a condition of the Loan that GOBD shall by September 30, 2016, or such later date
as CDB may otherwise agree, furnish to CDB evidence satisfactory to CDB that the position of DCIO
within the ID has been filled by a suitably qualified and experienced person as set out at paragraph 1.19
of this Report.
5. RISK ASSESSMENT AND MITIGATION
5.01 A summary of key risks impacting the Project is outlined in Table 5.1.
TABLE 5.1: SUMMARY OF RISK ASSESSMENT AND MITIGATION
Risk Type Description of Risk Mitigation Measures
Financial Credit: risk of repayment
of the loan.
The loan being requested is not significant in the context
of the country’s existing debt stock. As well, the loan
has a principal moratorium of 5 years which provides
time for the economy and the country’s fiscal position
to improve in the medium term.
Implementation Construction Risk – risk of
cost overruns and time
delays.
Output and Outcome are
not realized in timely
manner.
An engineering consultant will be tasked with the
responsibility of supervising the installations. This
oversight should help keep the schedule on track.
M&E systems will be in place early in the Project
Operational Maintenance Risk:
inadequate funding and
value engineering.
The design is expected to incorporate value engineering
concepts to reduce total maintenance cost and energy
consumption.
6. BORROWER, EXECUTING AGENCY, PROJECT
MANAGEMENTAND IMPLEMENTATION
GENERAL
6.01 The Borrower is GOBD and the Executing Agency is BTI.
THE BORROWER
6.02 The Borrower is GOBD. GOBD may, pursuant to Section 3(1) of the Loans (Caribbean
Development Bank) Act, Chapter 97A of the Laws of Barbados (the Loans (CDB) Act), in such manner
and on such terms and subject to such conditions as may be agreed with CDB, borrow, or guarantee the
borrowing of, such sums from CDB as are required for the purpose of financing or promoting economic
and social development in Barbados. An agreement between GOBD and CDB in respect of any amount so
borrowed must be made in the name of GOBD and may be signed on behalf of GOBD by the Minister
responsible for Finance or by a person authorised thereto in writing by the Minister. A copy of the
Agreement must be laid before the House of Representatives as soon as possible after it is concluded. All
amounts required for the repayment of any sums borrowed or guaranteed by GOBD under the authority of
the Loans (CDB) Act, and the payment of all interest and other charges in respect of such sums, are charged
upon and payable out of the Consolidated Fund.
- 21 -
6.03 The loans by CDB to the statutory authorities have been guaranteed by GOBD under the authority
of the Loans (CDB) Act. CDB has approved a loan of USD8,896,00 to the University of the West Indies of
which an amount of USD772,333 has been guaranteed by GOBD pursuant to Section 3 of the Loans (CDB)
Act.
THE EXECUTING AGENCY
6.04 The Project will be executed by BTI. Further details of the legal status of BTI are set out at
Appendix 6.1.
MACROECONOMIC IMPACT
6.05 Notwithstanding the likely benefits of the proposed project (discussed in Chapter 1), the financing
of this project will add to an already heavy fiscal burden and high debt stock. However, the fiscal impact
will be minimal given the quantum of the loan. Moreover, investment in socio-economic infrastructure
cannot be neglected. Debt servicing difficulties are not assessed to be high, given GOBD’s good track
record of honouring its obligations even in the midst of its acute fiscal challenge. Moreover, the grace
period proposed will limit upward pressures on public finances in the short term. Furthermore,
reprioritising and curtailment of current expenditure (as part of GOBD’s ongoing fiscal consolidation
programme) should make it less onerous for GOBD to meet the interest payments on this loan. The fiscal
situation is expected to improve over the medium term on the assumption that the current fiscal
consolidation programme will, of necessity, be deepened. Stronger fiscal consolidation over the medium
term should help to anchor solvency expectations.
PROJECT MANAGEMENT AND IMPLEMENTATION
Project Management
6.06 Project management will be undertaken by BTI. BTI has been effective in implementing several
development projects under the Urban Rehabilitation Programme 2001-2014. BTI will assign a Project
Coordinator (PC), support staff, as required, to ensure the successful completion of the Project. The PC
shall be supported by Project Coordinator, Institutional Strengthening (PCIS), who shall be assigned by
GOBD. PCIS will facilitate the work of the TA Consultants to make available relevant information and
will act as liaison between consultants and GOBD and shall report to the PC. The cost of the PCIS will be
borne by GOBD. CDB staff is satisfied that BTI has the project management and administrative capacity
to execute the Project on behalf of GOBD. It will be a condition precedent to first disbursement of the
Loan that a Project Coordinator (PC) is appointed, whose qualifications and experience are acceptable to
CDB, to manage the Project. It will be a condition precedent to first disbursement of the Loan that a PCIS
is appointed, whose qualifications and experience are acceptable to CDB, to manage the Institutional
Strengthening component. The responsibilities of the PC and the Project Management Organisational Chart
are set out at Appendix 6.2 and 6.3 respectively.
6.07 Consultants will be engaged to assist BTI throughout project implementation. In particular, TA
consultants will be engaged early in the project cycle for the institutional strengthening components. In
addition, Architectural consultants22 have been engaged by BTI to prepare the bidding documents, and
supervise the implementation of the Retrofitting Works. CDB is satisfied that the selected Architectural
Consultants possess the qualifications and experience required to undertake the requisite architectural and
engineering services during the Project implementation. The costs of these services will be financed by
GOBD.
22 Non-Bank Financed component of the Project.
- 22 -
6.08 GOBD, through MOH, will enter into a lease agreement with BTI, whereby GOBD will lease the
premises owned by BTI and situated at Princess Alice Highway, St. Michael, Barbados for the purpose of
housing ID. It will be a condition precedent to first disbursement of the Loan that GOBD shall enter into a
lease agreement acceptable to CDB, with BTI, for a minimum period of 25 years for the occupation of the
premises.
Implementation Schedule
6.09 The Project is scheduled to be implemented over a period of 28 months. Consultants for the
Institutional Strengthening will be mobilised from the second quarter of 2015. The Legislation Reform
consultancy will be followed by the M&E and Organisational Assessment consultancies. It is anticipated
that the institutional strengthening component will be completed before the completion of the Retrofitting
Works. Implementation of the Retrofitting Works is estimated to take 12 months and will commence by
September 30, 2015. The proposed Project Implementation Schedule is presented in Appendix 6.4. An
Implementation Support Plan is set out at Appendix 6.5.
PARTICIPATION OF STAKEHOLDERS AND BENEFICIARIES
6.10 The preparation and appraisal of this Project involved consultation with a wide range of
stakeholders. Meetings were held with representatives of the Ministry of Finance and Economic Affairs,
the Ministry of National Security, the MOH, management and line staff of ID, BTI, clients of ID, and
consultant architects contracted to provide Project designs. These discussions provided the opportunity for
stakeholders to share their experience and knowledge, as well as to express opinions and provide insights
into the proposed Project. As usual, the participatory approach proved very useful as CDB staff benefitted
from discussions with key stakeholders and gleaned historical and background information which provided
a clearer perspective about the pressing challenges the Project would be designed to address.
6.11 CDB staff undertook two site visits during appraisal. The first was to ID to obtain a visual
impression of the physical environment within which staff were functioning and the facilities available for
clients, as well as to interact with stakeholders to hear their views, concerns and expectations related to the
Project. The second entailed a visit to the proposed Project site and this provided further opportunity for
stakeholder engagement. Overall, the discussions confirmed tremendous widespread support for the
Project. Stakeholder participation, while already central to appraisal and design will be strengthened both
during implementation and post-implementation stages of the Project. During Project implementation,
opportunities will be provided for ID’s clients to provide feedback on service delivery through online
surveys and suggestion box modalities. Information gathered will be used as necessary to improve ID’s
service delivery.
6.12 It will also be a condition precedent to first disbursement, that GOBD establish a Project Advisory
Committee (PAC) to promote participation of, and information sharing among major stakeholders during
implementation and to ensure that the Project is implemented in a coordinated manner to achieve intended
outcomes. It is proposed that PAC comprises representatives of the: (a) Defence and Security Division of
OPM; (b) the Ministry of Finance and Economic Affairs (MOF); (c) ID; and (d) BTI. PAC will be chaired
by the PS with responsibility for Defence and Security, with the PC as Secretary. PAC will be required to
meet quarterly and to submit reports of the meetings to CDB.
6.13 As part of CDB implementation support plan CDB will include resources such as IT and EE
specialists to assist GOBD in implementation.
- 23 -
DISBURSEMENTS
6.14 Disbursement of the CDB Loan will be made in accordance with CDB’s Guidelines for the
Withdrawal of Loan Proceeds. It is expected that the first disbursement from the Loan will be made by
September 30, 2015. The Loan is expected to be fully disbursed by September 30, 2016. An Estimated
Quarterly Disbursement Schedule is presented in Appendix 6.6.
PROCUREMENT
6.15 Procurement of CDB-financed consultancy services shall be in accordance with CDB's Guidelines
for the Selection and Engagement of Consultants by Recipients of CDB Financing. Contracts for capital
works and equipment to be financed by the CDB Loan, will be procured in accordance with CDB’s
Guidelines for Procurement. The Procurement Plan is provided at Appendix 6.7.
MONITORING AND EVALUATION
6.16 It will be a condition of the Loan that PC shall furnish, or cause to be furnished to CDB, the reports
listed in Appendix 6.8 in such form or forms as CDB may require, not later than the times specified therein
for so doing.
PERFORMANCE EVALUATION RATING
6.17 The composite performance rating based on CDB’s Project Performance Evaluation
System (PPES) has been estimated at 6.0. This is a ‘highly satisfactory’ rating, which suggests that there
is a good probability that the Project will achieve its expected outcomes. The details of the PPES are
presented in Table 6.1.
- 24 -
TABLE 6.1: PROJECT PERFORMANCE EVALUATION SYSTEM RATING
Criteria Score Justification
Strategic Relevance 7.5 The Project is of high priority as it supports the modernisation
and institutional strengthening of ID to improve its service
delivery, and by extension, business facilitation with a view to
addressing a key competitiveness constraint of businesses.
Poverty Relevance 4.5 The Project indirectly contributes to poverty reduction to the
extent that it facilitates better access to immigration services by
clients represented in quintiles I and II. Given that the ID will
remain centrally located in Bridgetown, it will reduce time and
transportation costs that would otherwise be incurred by poorer
persons in trying to reach ID to conduct business.
Efficacy 6.0 The Project has been designed to enhance the physical
environment and the institutional framework for improving
efficiency of the immigration services. The use of an
experienced entity to provide services as executing agency in
conjunction with an effective and responsive PAC will increase
the likelihood of successful project implementation and the
achievement of the intended Project outcomes.
Cost Efficiency 6.0 The most feasible least cost option for achieving project
objectives was selected. Project benefits are expected to
outweigh the cost, given the expected improvements in
efficiency.
Institutional
Development Impact
6.5 Institutional strengthening will contribute towards the
enhancement of ID and capabilities in the area of enforcement,
and the use of technologies to streamline workflow and improve
efficiency.
Sustainability 6.0 Improvements in operational efficiency and the adoption of the
revised operational plan will contribute toward the sustainability
of the Project.
Overall Performance 6.0 Highly Satisfactory
7. TERMS AND CONDITIONS
7.01 It is recommended that CDB lend to GOBD from CDB’s OCR an amount not exceeding the
equivalent of six million four hundred and seventy-four thousand United States dollars (USD6,474,000)
(the Loan) to assist GOBD in financing the enhancement of Immigration Services (the Project) on CDB’s
standard terms and conditions, and on the following terms and conditions:
(1) Repayment: Repayment of the Loan shall be made in forty-eight (48) equal or
approximately equal and consecutive quarterly instalments, commencing five (5) years
after the date of the Loan Agreement.
(2) Interest: Interest shall be payable quarterly at the rate of three decimal nine five percent
(3.95%) p.a. (variable) on the amount of the Loan withdrawn and outstanding from time to
time.
(3) Commitment Charge: A commitment charge at the rate of one per cent (1%) p.a. shall be
- 25 -
payable on the amount of the Loan unwithdrawn from time-to-time. The commitment
charge shall accrue from the 60th
day after the date of the Loan Agreement and shall be
payable quarterly.
(4) Disbursement:
(a) The first disbursement of the Loan shall be made by September 30, 2015, and the
Loan shall be fully disbursed by September 30, 2016, or such later dates as CDB
may specify in writing.
(b) Except as CDB may otherwise agree:
(i) the Loan shall be used to finance the components of the Project
allocated for financing by CDB, as shown in the Financing Plan for
the Project at Appendix 3.1, up to the respective limits specified
therein; and
(ii) total disbursement shall not exceed in the aggregate fifty-nine per cent
(59%) of the total cost of the Project.
(c) The Loan shall not be used to finance, directly or indirectly, any part of the
cost of the Project which consists of identifiable taxes or duties.
(5) Procurement: Procurement shall be in accordance with the procedures set out and/or
referred to in the Loan Agreement between CDB and GOBD, or such other procedures as
CDB may from time to time specify in writing. The Procurement Plan approved by CDB
is set out at Appendix 6.6 of this Report. Any revisions to this Plan shall require CDB’s
prior approval in writing.
(6) Conditions Precedent to First Disbursement:
(a) The PAC referred to in sub-paragraph 8 (a)(i) below has been established.
(b) The PC referred to in sub-paragraph (8)(b)(i) below has been appointed.
(c) The PCIS referred to in sub-paragraph (8)(a)(ii) below has been appointed.
(d) GOBD shall, through the MOH, have entered into a lease agreement, acceptable to
CDB, with BTI for a minimum period of 25 years for the occupation of the premises
situated at the Princess Alice Highway Car Park Complex.
(7) Conditions Precedent to Disbursement in respect of Retrofitting Works:
The consultants referred to in sub-paragraph (8)(b)(vi) below have been engaged.
- 26 -
(8) Other Conditions:
(a) GOBD shall:
(i) establish and, for the duration of the Project, maintain a PAC with the
composition and functions set out in paragraph 6.12 of this Report;
(ii) appoint as PCIS, a person with qualifications and experience acceptable to
CDB, who shall have day-to-day responsibility for managing the
Institutional Strengthening component and report to the PC. The
qualifications and experience of any person subsequently appointed to the
position of PCIS shall be acceptable to CDB;
(iii) except as CDB may otherwise agree, execute the Project through BTI;
(iv) contribute to the Project an amount of not less than the equivalent of eight
million nine hundred and fifty-one thousand Barbados dollars ($8,951,000)
which shall be expended in a timely manner on the components of the
Project designated for financing by GOBD as shown in the Financing Plan
for the Project, unless CDB shall otherwise specify in writing;
(v) carry out the Project at all times, with due diligence and efficiency, with
management personnel whose qualifications and experience are acceptable
to CDB and in accordance with sound technical, environmental, financial
and managerial standards and practices;
(vi) within a time-frame acceptable to CDB, implement or procure the
implementation of such of the recommendations arising out of the
consultancies set out at Appendices 2.3 and 2.4 to this Report;
(vii) keep the furniture, IT Infrastructure and Systems financed from the Loan, or
cause the same to be kept, in good repair and condition and provide the
necessary resources to adequately carry out maintenance of the infrastructure;
(viii) undertake a condition assessment of the facilities financed under the Project
upon receipt of such request from CDB;
(ix) by September 30, 2016, or such later date as CDB may otherwise agree,
furnish to CDB evidence satisfactory to CDB that the position of DCIO
within the ID has been filled by a suitably qualified and experienced person
as set out at paragraph 1.19 of this Report.; and
(x) by September 30, 2016, or such later date as CDB may otherwise agree, have
developed and implemented the Emergency Response Plan for the building,
as set out at paragraph 4.24 of this Report.
- 27 -
(b) BTI shall:
(i) appoint as PC, a person with qualifications and experience acceptable to
CDB, who shall have day-to-day responsibility for the coordination of
the Project, in accordance with the responsibilities set out at Appendix
6.2. The qualifications and experience of any person subsequently
appointed to the position of PC shall be acceptable to CDB;
(ii) during implementation assign additional counterpart staff, as required,
for the purposes of the Project;
(iii) in accordance with the procurement procedures applicable to the Loan
select and engage competent and experienced consultants to provide the
services outlined in the TOR at Appendices 2.3 and 2.4 to this Report, as
set out at paragraph 2.03 of this Report;
(iv) in accordance with the procurement procedures applicable to the Loan,
select and engage competent and experienced contractors to carry out the
Retrofitting Works to be financed from the Loan;
(v) keep the MEP fixtures and physical structure of building, or cause the
same to be kept, in good repair and condition and provide the necessary
resources to adequately carry out maintenance of the MEP fixtures, as set
out at paragraph 4.20 of this Report;
(vi) select and engage architectural consultants whose qualifications and
experience are acceptable to CDB, to undertake the architectural services
required during the implementation of the Project, including providing
the services outlined in the TOR at Appendix 2.1 to this Report;
(vii) provide such administrative and other support as may be necessary to
ensure the successful completion of the Project, including the collection
and storage of, and provision of access to reports, drawings, studies and
any other relevant documents; and
(viii) except as CDB may otherwise agree, furnish or cause to be furnished to
CDB, the reports listed in Appendix 6 .7, in such form or forms as CDB
may require, not later that the times specified therein.
(c) GOBD and BTI shall:
(i) institute and maintain organisational, administrative, accounting and
auditing arrangements for the respective components of the Project; and
- 28 -
(ii) carry out the Project at all times, with due diligence and efficiency, with
management personnel whose qualifications and experience are
acceptable to CDB and in accordance with sound technical,
environmental, financial and managerial standards and practices.
(d) Section 3.11 of the General Provisions Applicable to Loan Agreements with an
Executing Agency, which requires the Executing Agency to repay the Loan on
behalf of the Borrower, shall not apply to this Loan.
APPENDIX 1.1
MACROECONOMIC AND MACROSOCIAL CONTEXT
1. MACROECONOMIC CONTEXT
Recent Developments
1.01 The economy is estimated to have remained flat during the first nine months of 2014, underpinned
by tepid performances in the key economic sectors: tourism, international business, construction,
manufacturing and agriculture. The average unemployment rate was estimated at 13.2% at end-June 20141.
However, the rate would have accelerated since then, given several business closures and downsizing of
the public sector. Regarding inflation, consistent with the economic slack and moreover, given the retreat
in international fuel prices, the 12-month moving average rate of inflation slowed to 1.7% at end-July 2014,
compared with the average rate of 2.2% in the corresponding period in 2013.
1.02 The fiscal position of the Central Government worsened during the review period, with the overall
deficit widening to 12.5% of GDP in the 2013/2014 fiscal year (April-March), up 3.8 percentage points
from the ratio in fiscal year 2012/2013. Weak revenue performance more so that rising expenditure
underpinned the expansion of the deficit. The deficit added to an already large gross public debt stock2/,
which was estimated to be around 109.4% of GDP at the end-September 2014; up from 105.2% in the
corresponding period of 2013.
1.03 Based on the real sector developments for the first nine months of 2014; particularly, a weaker-
than-expected performance in tourism, economic activity is expected to be tepid at best in 2014. By 2015,
growth is expected to pick up on the premise that tourism performance will strengthen with a firmer
recovery of the economies of Barbados’ main trading partners. Additionally, growth-promotion measures
(including beefed-up tourism marketing), if implemented as planned are also expected to spur medium-
term growth. Public finances are projected to improve on the assumption that the Government will stay the
course of fiscal consolidation.
2. MACROSOCIAL CONTEXT
Demography and Human Development
2.01 Barbados is categorised as a Small Island Developing State (SIDS) and, with an estimated
population of 277, 8213, is one of the most densely populated countries in the Western Hemisphere. Despite
its SIDS categorisation, based on a number of vulnerabilities including small size, limited resources, poor
economic resilience and susceptibility to natural hazard impacts, the country, by international standards,
has achieved high human development. This level of development has been achieved through continuous
and substantial investment in the education and health sectors over decades.
2.02 Barbados’ development progress is also reflected in its efforts to achieve the
Millennium Development Goals (MDGs) and the Caribbean-specific MDGs. Having adopted the
MDG˗plus agenda to focus its development trajectory on sustaining high human development, the country
has achieved four Goals and is making progress to achieve, and where possible, surpass the remainder4.
1 The latest period for which data are available. 2 Gross Central Government plus total Government Guaranteed. 3 Population and Housing Census (2012) conducted by the Barbados Statistical Service. 4 Barbados has achieved Goals: 2, 3, 4 and 5 (Universal Primary Education, Reducing Child Mortality and
Improving Maternal Health, respectively). The country is progressing towards achieving the remaining Goals: 1,
3, 6, 7 and 8 (Reducing Extreme Poverty and Hunger, Promoting Gender Equality and Empowering Women,
APPENDIX 1.1
Page 2 of 5
Of concern, however, is the country’s health profile which is now similar to that of a developed country.
While major contagious diseases have long been eradicated or brought under control, lifestyle-related
diseases, including heart disease, cancer, stroke, diabetes and hypertension, present the greatest challenge
to the country. The spread of HIV remains a challenge despite a decline in infection rates in 2011.
The current MDG status for Barbados is shown in Table 1 below:
TABLE 1: THE MILLENNIUM DEVELOPMENT GOALS
AND THE STATUS OF BARBADOS
MDGs Status
1. Eradicate Extreme Poverty and Hunger Partial
2. Achieve Universal Primary Education Achieved
3. Promote Gender Equality and Empower Women Achieved
4. Reduce Child Mortality Achieved
5. Improve Maternal Health Achieved
6. Combat HIV/AIDS, Malaria and Other Diseases Changes Needed
8. Develop a Global Partnership for Development Insufficient Information
Source: Country Assessment of Living Conditions (CALC, 2010:13).
2.03 Since 2010, Barbados’ development was defined by episodes of improvement and decline.
The decline has been influenced by the worsening economic situation, influenced partly by the challenges
posed by an undiversified economy and a weak performance in tourism. This notwithstanding, the country
recorded a number of social achievements in the midst of economic challenge. Among the achievements,
Barbados was ranked 47th out of 187 countries by the United Nations Development Programme (UNDP) in
its 2011 Human Development Report (HDR)5. Despite slipping from the previous rank of 42nd out of 162
countries (Human Development Report, 2010)6, Barbados, up to that time, remained the only country within
the Caribbean to be ranked in the Very High Human Development category. The 2013 HDR7 revealed that
Barbados had improved its performance and was ranked 38th out of 187 countries. However, as a
consequence of ongoing socioeconomic challenges and uncertain economic improvement, HDR 20148
determined that Barbados’ rank had slipped to 59 out of 187 countries, behind Bahamas, which was ranked
at 51. Both countries are currently ranked in the High Human Development category.
Controlling HIV and other Diseases, Promoting Environmental Sustainability and Promoting the Global
Partnership for Development, respectively). 5 UNDP, HDR (2011): Sustainability and Equity: A Better Future For All. 6 UNDP HDR (2010): The Real Wealth of Nations: Pathways to Human Development. 7 UNDP HDR (2013): The Rise of the South: Human Progress in a Diverse World. 8 UNDP HDR (2014): Sustaining Human Progress: Reducing Vulnerabilities and Building Resilience.
APPENDIX 1.1
Page 3 of 5
Gender and Development
2.04 Overall, Barbados’ human development has not been accompanied by a concomitant reduction in
gender inequality. While the average Gender Inequality Index for countries at the “very high human
development” level was 0.193 in 2012, Barbados’ score was 0.343. In the same year Barbados was ranked
27 out of 135 countries with a score of 0.723 on the Gender Gap Index and slipped further in 2013, ranking
29 out of 136 countries with a score of 0.7309. Achievements of girls with regard to secondary education
exist alongside low female representation in Parliament, relatively low labour force participation, and high
rates of adolescent fertility.
2.05 In an effort to systematically promote gender mainstreaming across all sectors, GOBD is in the
final stage of developing its National Policy on Gender10. This policy envisions a society which is based
on the principles of equality of opportunity and equity in the allocation of status, power, and resources for
boys, girls, men and women. It also envisions a society in which boys, girls, men and women achieve their
full potential and take part fully in all aspects of national life. It articulates the practice of gender justice as
a key approach to achieving sustainable development.
Poverty
2.06 Against Barbados’ achievements, social imbalances have increased. Barbados recorded poverty
and indigence levels of 19.311 and 9.1%, respectively, and an inequality level of 0.47 based on the 2010
CALC12. The Study showed an increase in the level of transient poverty of those employed in the
construction sector and in seasonal employment viz the tourism industry, outcomes that correlate to the
lingering effects of the global economic downturn.
2.07 Poverty is concentrated among households headed by women, which account for 47.5% of all
households. The rate of poverty in female-headed households was 19.4%, compared with 11.5% in
male˗headed households and 15% in all households. Poor female-headed households also have the highest
dependency ratio, with 74.8% non-earners per household, as compared with 68.6% in poor male-headed
households, and 49.9% in the total population. The social consequences of the crisis have been enormous.
Vulnerable groups in society continue to face increasing risks as predicted by the 2010 Poverty and Social
Impact Assessment13. Although specific analysis on the gender dimensions of the crisis has yet to emerge,
the findings of the Country Gender Assessment (CGA, 2014)14 inform that within the context of lower
participation rates in the labour force, and higher unemployment rates for females especially in the tourism
and services sectors where women predominate the labour market, together with higher levels of
dependency and poverty in female-headed households, the crisis is having a disproportionate economic
impact on women than on men.
9 World Economic Forum (2013): Global Gender Gap Index. A total of 136 countries were ranked. 10 The National Policy on Gender is being developed with the oversight of the Bureau of Gender Affairs. 11 Although not strictly comparable with the earlier Poverty Study undertaken in Barbados (1996/97), which showed
a poverty level of 13.9%, the CALC findings serve to demonstrate an increase in the poverty level and highlight
causality through the triangulated methodological approach to the Study. 12 CDB supported GOBD in undertaking the CALC. The Study was supported by the Cabinet-approved National
Assessment Team, comprising multi-sectoral composition. The CALC consists of the following components:
Survey of Living Conditions/Household Budgetary Survey, Institutional Assessment, Macro Social and
Economic Assessment, and the Participating Poverty Assessment. The CALC further revealed the following:
Average per capita poverty line: $7,861.00 and average per capita indigence line: $3,970.00. 13 Social Implications of the Global Economic Crisis on Living Conditions in Barbados (Draft Final Report,
2010:22). Commissioned by UNDP and prepared by Lynette Joseph-Browne. 14 CGA (the first for Barbados) was conducted by GOBD with CDB support during the period 2013-2014.
APPENDIX 1.1
Page 4 of 5
2.08 Poverty reduction and human development continue to be of high priority on Barbados’
development agenda. GOBD, through a multi-dimensional approach to poverty reduction that promotes
social inclusion, continues to pursue strategies and programmes that include: (i) the development and
modernisation of public institutions and social management; (ii) the strengthening of mechanisms to
facilitate civil society participation in order to overcome poverty and discrimination; (iii) the promotion
and financing of social investment; (iv) the implementation of strategies and programmes to combat
marginalisation and discrimination against women and other vulnerable groups (including children, The
elderly and Persons with Disabilities, and persons living with Human Immuno-deficiency Virus/Acquired
Immune Deficiency Syndrome (HIV/AIDS); and (v) implementation of programmes to empower the poor.
2.09 Barbados’ social outlook, as articulated in the Medium Term Development Strategy
(MTDS 2010˗2014,) was crafted in a vision that seeks to build social and economic equity, based on
cooperation, participation, sustainability, and respect. MTDS placed particular emphasis on social
protection by seeking to empower vulnerable groups (children, women, persons with disabilities,
the elderly, young people, and displaced persons) given their susceptibility to poverty, heightened by
economic shock and/or socioeconomic circumstances. Despite fiscal and other challenges, GOBD
committed to ensure the continuation of social provisioning, with a measure of rationalisation, in the areas
of housing, education and health over the medium term. GOBD proposed to also improve service delivery
in these areas by addressing issues of inefficiency and ineffectiveness, and has implemented the necessary
expenditure cuts over the planning period to ensure fiscal sustainability.
Security Enhancement
2.10 Given the relationship of crime and violence to (citizen) security and development (particularly
within the context of SIDS with an over reliance on the tourism industry), Barbados is mindful of the
importance of strengthening its immigration policies and processes in efforts to maintain its record of safety
and low levels of crime against citizens and tourists. Empirical evidence suggests that criminal activity is
linked to economic performance and the current underperformance of the economy could likely increase
opportunities for criminal activity and deviance. In addition, and as articulated in the Comprehensive
Review of Immigration Policy and Proposals for Legislative Reform15, authorities are particularly mindful
of the importance of enhancing the Immigration Policy Framework to systematically support inter alia, the
freer movement of people cross borders, the imperative of addressing border security issues, and the need
to strengthen institutions in order to enhance Barbados’ standing as one where investment is not only
welcomed but, equally important, can be facilitated in a stable and productive environment, given its nexus
with economic activity and growth, and poverty reduction..
2.11 Barbados’ Immigration Policy is currently being reviewed and updated. The imperative of
updating it was driven by the recognition by GOBD and a significant majority of citizens, that the policies
as well as the legislation governing current practices were in need of significant review (Ibid:1). There is
the recognition that, for the most part, the instruments have served the country well, however, times have
changed. Recent events and challenges have influenced the manner in which immigration policies and
practices impact the lives and well-being of the population, and a range of other stakeholders. Some of the
challenges faced include Barbados’ commitments to CARICOM and globalisation and its attendant
demands. In this connection, the articulation of the new policy is being anchored in the pivotal role that
the Immigration Department must play in national development and security. It therefore seeks to strike
the appropriate balance between protecting the legitimate rights and expectations of citizens, with the need
to accelerate the pace and deepen the quality of economic growth, while attracting high-end foreign
investment. Consequently, the modernisation of this Policy is grounded philosophically in the principles
of equity, transparency and increased accountability, a reflection of a vision that recognises the close
15 Green Paper (2009). Ministry of Labour and Immigration.
APPENDIX 1.1
Page 5 of 5
relationship between the economy, enhanced safety and security of its people, and the imperative of
embracing the tenets of internationally accepted levels of good governance, as the hallmarks of progressive
immigration policy.
AP
PE
ND
IX 1
.2
APPENDIX 2.1
RESPONSIBILITIES OF ARCHITECTURAL CONSULTANTS
1. The Architectural Consultant will undertake the following tasks:
(a) preparation of construction drawings and bidding documents for all retrofitting works;
(b) assistance to BTI in the evaluation of tenders, including the preparation of tender reports;
(c) assistance to BTI in negotiation of contracts for the retrofitting works;
(d) technical inspection of construction for compliance with the contract documents;
(e) environmental monitoring and reporting during construction;
(f) certification of work done for payment;
(g) consultation and advice to BTI during construction;
(h) preparation of monthly reports on the progress of the Works, indicating any Architectural
or Engineering difficulties affecting their efficient and timely execution, commencing one
month after the start date as defined in the construction contract;
(i) revision of designs to suit unforeseen conditions which may arise during construction;
(j) issuance of Certificates of Completion to the contractor upon completion of the
construction contract; and
(k) preparation of a Completion Report on construction of the Project, and as-built drawings,
within three months after the date of issue of a certificate of practical completion of the
Project.
APPENDIX 2.2
ADDITIONAL PROJECT DETAILS
BUILDING
1. Approximately 2,100 m2 of floor space of the Princess Alice Highway Car Park complex to be
retrofitted to office and customer services accommodations. This consist of using 1,670 m2 of the ground
floor and 210 m2 of first floor. The retrofitting works includes constructing two stairways.
Value of the building space for retrofitting is USD
RETROFITTING WORKS
2. Retrofitting works entails:
Retrofitting Works Activities
External Works
Demolitions;
Constructing Two (2) Stairways
Earthworks and Drainage - civil works
Internal Works
Internal Wall Partitions Fittings and fixtures
Doors Plumbing Installation
Windows Electrical Installation
Wall finishes Air-conditioning Installation
Floor finishes Intrusion detections
Ceiling finishes Fire alarm Installation
CCTV installation
Estimated Cost (USD)
INFORMATION TECHNOLOGY INFRASTRUCTURE
3. This component entail the installation of Unlimited Power Supply (UPS) units, 12 works station
computers and Voice-Over Internet Protocol (VoIP)
Estimated Cost (USD)
FURNITURE
4. This component entails the placing of workstations, chairs, tables, waiting area seating, beds and
high density storage units at the new ID.
Estimated Cost (USD)
This information is withheld in accordance with one or more of the exceptions to
disclosure under the Bank’s Information Disclosure Policy.