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Document of
The World Bank
Report No: ICR00004551
IMPLEMENTATION COMPLETION AND RESULTS REPORT (IDA-55230, IDA-57340, IDA-59340, IBRD-85460)
FOR A
SERIES OF IDA CREDITS
IN THE AMOUNT OF SDR 9.7 MILLION, SDR 7.2 MILLION AND SDR 6.8 MILLION
(US$15 MILLION, US$10 MILLION AND US$9.34 MILLION EQUIVALENT)
AND AN IBRD LOAN
IN THE AMOUNT OF US$5 MILLION
TO
GRENADA
FOR THE
FIRST, SECOND AND THIRD PROGRAMMATIC RESILIENCE-BUILDING DEVELOPMENT POLICY FINANCING
December 21, 2018
Macroeconomics, Trade and Investment Global Practice Caribbean Countries Management Unit
Latin America and the Caribbean Region
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CURRENCY EQUIVALENTS (Exchange Rate Effective as of December 21, 2018)
Currency Unit = Eastern Caribbean Dollars (XCD)
US$1.00 = XCD 2.70
FISCAL YEAR January 1 – December 31
ABBREVIATIONS AND ACRONYMS
ASYCUDA Automated System for Customs Data
AMC Asset Management Company
BMIS Beneficiary Management Information System
CARCIP Caribbean Regional Communications Infrastructure Program
CDB Caribbean Development Bank
CDF Comprehensive Debt Framework
COS Central Office of Statistics
CPI Consumer Price Index
DeMPA Debt Management and Performance Assessment
DfID Department for International Development
DMU Debt Management Unit
DPA Department of Public Administration
DPC Development Policy Credit
DPF Development Policy Financing
DPC-1 First Programmatic Development Policy Credit
DPF-2 Second Programmatic Development Policy Financing
DPC-3 Third Programmatic Development Policy Credit
DSA Debt Sustainability Analysis
ECCB Eastern Caribbean Central Bank
ECCU Eastern Caribbean Currency Union
ECERA Eastern Caribbean Energy Regulatory Authority
ECF Extended Credit Facility
EMIS Education Management Information System
FDI Foreign Direct Investment
FRA Fiscal Responsibility Act
GDP Gross Domestic Product
GFDRR Global Facility for Disaster Reduction and Recovery
GIPE Grenada Institute of Professional Engineers
GLCI Grenadian Living Conditions Indicator
GPRS Growth and Poverty Reduction Strategy
GTA Grenada Tourism Authority
HR Human Resources
ICRR Implementation Completion and Results Report
IDA International Development Association
IDB Inter-American Development Bank
IDF Institutional Development Fund
IMF International Monetary Fund
IRD Inland Revenue Department
LAC Latin American and the Caribbean
MNIB Marketing and National Importing Board
MoAFF Ministry of Agriculture, Forestry and Fisheries
MoE Ministry of Education
MoFE Ministry of Finance and Energy
MoSD Ministry of Social Development
MoTCACC Ministry of Tourism, Civil Aviation, Culture and Cooperatives
MTDS Medium-Term Debt Management Strategy
NEP New Economy Plan
NPL Nonperforming Loan
OECS Organization of Eastern Caribbean States
PDO Program Development Objective
PPP
PRBDP
Public-Private Partnership
Programmatic Resilience-Building Development Policy Program
PURC Public Utilities Regulatory Commission
RGSM Regional Government Securities Market
RPS Regional Partnership Strategy
SDR Special Drawing Rights
SEED Support for Education, Empowerment, and Development
SME Small and Medium Enterprise
SOE State-owned enterprise
SORT Systematic Operations Risk-Rating Tool
SSNA Social Safety Nets Assessment
WBG World Bank Group
Vice President: Jorge Familiar Country Director: Tahseen Sayed Sector Manager: Jorge Araujo
Project Team Leader: Annette De Kleine Feige ICR Team Leader: Tamoya Christie ICR Main Author: Suzana N. de Campos Abbott
The World Bank (P151821)
GRENADA Programmatic Resilience Building I-III Development Policy Program
TABLE OF CONTENTS
DATA SHEET
A. Basic Information…………………………………………………………………………………………………………………………………………………i
B. Key Dates………………………………………………………………………………………………………………………………………………………….…ii
C. Ratings Summary………………………………………………………………………………………………………………………………………………..ii
D. Sector and Theme Codes……………………………………………………….……………………………………………………………………………iii
E. Bank Staff…………………………………………………………………………………………………………………………………………………………..vi
F. Results Framework Analysis………………………………………………………………………………………………………………………………vii
G. Ratings of Project Performance in ISRs………………………………………………………………………………………………………………xii
H. Restructuring…………………………………………………………………………………………………………………………………………………….xii
1. PROGRAM CONTEXT, DEVELOPMENT OBJECTIVES AND DESIGN…………………………………………………………………………1
2. KEY FACTORS AFFECTING IMPLEMENTATION AND OUTCOMES…………………………………………………………………………..6
3. ASSESSMENT OF OUTCOMES…………………………………………………………………………………………………………………………….10
4. ASSESSMENT OF RISK TO DEVELOPMENT OUTCOME………………………………………………………………………………………..25
5. ASSESSMENT OF BANK AND BORROWER PERFORMANCE…………………………………………………………………………………26
6. LESSONS LEARNED…………………………………………………………………………………………………………………………………………….28
7. COMMENTS ON ISSUES RAISED BY BORROWER/IMPLEMENTING AGENCIES/PARTNERS…………………………………..29
ANNEX 1: POLICY MATRIX AND THE RESULTS FRAMEWORK……………………………………………………………………………………..30
ANNEX 2: MODIFICATIONS TO KEY OUTCOME INDICATORSDURING PROGRAM IMPLEMENTATION………………………..34
ANNEX 3: PRIOR ACTIONS UNDER DPC-1, DPC-2 AND DPC-3……………………………………………………………………………………39
ANNEX 4: ANALYTICAL WORK SUPPORTING PRBDP 1-3……………………………………………………………………………………………41
ANNEX 5: WBG INVESTMENT OPERATIONSSUPPORTING DESIGN/IMPLEMENTATION OF PRBDP 1-3………………………42
ANNEX 6: ISSUES WITH KEY INDIATORS IN PRBDP3………………………………………………………………………………………………….44
ANNEX 7: BANK LENDING AND IMPLEMENTATION SUPPORT/SUPERVISION PROCESSES…………………………………………46
ANNEX 8: SUMMARY OF BORROWER’S COMMENTS ON DRAFT ICR………………………………………………………………………..47
ANNEX 9: LIST OF SUPPORTING DOCUMENTS………………………………………………………………………………………………………….48
MAP………………………………………………………………………………………………………………………………………………………………………..49
The World Bank (P151821)
i
A. BASIC INFORMATION
Program 1
Country Grenada Program Name: Grenada First Programmatic
Resilience Building DPC
Program ID: P147152 L/C/TF Number(s) IDA-55230
ICR Date: 12/21/2018 ICR Type: Core ICR
Financing Instrument: DPL Borrower MINISTRY OF FINANCE
Original Total Commitment USD 15.00M Disbursed Amount USD 14.99M
Implementing Agencies: Ministry of Finance
Cofinanciers and Other External Partners:
Program 2
Country Grenada Program Name:
Second Programmatic
Resilience Building
Development Policy Credit
Program ID: P151821 L/C/TF Number(s) IBRD-85460,IDA-55230,IDA-
57340
ICR Date: 12/21/2018 ICR Type: Core ICR
Financing Instrument: DPL Borrower MINISTRY OF FINANCE
Original Total Commitment USD 15.00M Disbursed Amount USD 14.99M
Implementing Agencies: Ministry of Finance
Cofinanciers and Other External Partners:
Program 3
Country Grenada Program Name:
Third Programmatic
Resilience Building
Development Policy Credit
Program ID: P156761 L/C/TF Number(s) IDA-55230,IDA-59340
ICR Date: 12/21/2018 ICR Type: Core ICR
Financing Instrument: DPL Borrower GRENADA
Original Total Commitment USD 9.34M Disbursed Amount USD 9.09M
Implementing Agencies: Ministry of Finance
I N S E R T
D A T A S H E E T
H E R E
AFTER APPROVAL BY SENIOR GLOBAL PRACTICE DIRECTOR
AN UPDATED DATA SHEET SHOULD BE INSERTED
MANUALLY IN HARD COPY
BEFORE SENDING A FINAL ICR TO THE PRINT SHOP.
NOTE: The Data Sheet is generated by the system
using the information entered in the Operations Portal
The World Bank (P151821)
ii
Cofinanciers and Other External Partners:
B. KEY DATES
Grenada First Programmatic Resilience Building DPC P147152
Process Date Process Original Date Revised / Actual Date(s)
Concept Review: 03/12/2014 Effectiveness:
Appraisal: 05/06/2014 Restructuring(s):
Approval: 06/30/2014 Mid-term Review:
Closing: 06/29/2015 06/29/2015
Second Programmatic Resilience Building Development Policy Credit P151821
Process Date Process Original Date Revised / Actual Date(s)
Concept Review: 12/04/2014 Effectiveness: 11/30/2016
Appraisal: 09/17/2015 Restructuring(s):
Approval: 10/28/2015 Mid-term Review:
Closing: 11/30/2016 11/30/2016
Third Programmatic Resilience Building Development Policy Credit P156761
Process Date Process Original Date Revised / Actual Date(s)
Concept Review: 06/15/2016 Effectiveness: 11/30/2017
Appraisal: 11/10/2016 Restructuring(s):
Approval: 12/16/2016 Mid-term Review:
Closing: 11/30/2017 11/30/2017
C. RATINGS SUMMARY
C.1 Performance Rating by ICR
Overall Program Rating
Outcomes Moderately Satisfactory
Risk to Development Outcome Moderate
Bank Performance Moderately Satisfactory
Borrower Performance Satisfactory
C.2 Detailed Ratings of Bank and Borrower Performance (by ICR)
Overall Program Rating
Bank Ratings Borrower Ratings
Quality at Entry Moderately Satisfactory Government: Satisfactory
Quality of Supervision: Moderately Satisfactory Implementing
Agency/Agencies: Satisfactory
each time you use “Send Draft”, “Print” or “Submit Final” functions
The World Bank (P151821)
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Overall Bank Performance Moderately Satisfactory Overall Borrower
Performance Satisfactory
C.3 Quality at Entry and Implementation Performance Indicators
Grenada First Programmatic Resilience Building DPC P147152
Implementation
Performance Indicators QAG Assessments (if any) Rating
Potential Problem Program
at any time (Yes/No):
No Quality at Entry (QEA) None
Problem Program at any
time (Yes/No):
No Quality of Supervision
(QSA) None
DO rating before
Closing/Inactive status
Second Programmatic Resilience Building Development Policy Credit P151821
Implementation
Performance Indicators QAG Assessments (if any) Rating
Potential Problem Program
at any time (Yes/No):
No Quality at Entry (QEA) None
Problem Program at any
time (Yes/No):
No Quality of Supervision
(QSA) None
DO rating before
Closing/Inactive status
Satisfactory
Third Programmatic Resilience Building Development Policy Credit P156761
Implementation
Performance Indicators QAG Assessments (if any) Rating
Potential Problem Program
at any time (Yes/No):
No Quality at Entry (QEA) None
Problem Program at any
time (Yes/No):
No Quality of Supervision
(QSA) None
DO rating before
Closing/Inactive status
D. SECTOR AND THEME CODES
Grenada First Programmatic Resilience Building DPC P147152 Original Actual
Major Sector
Public Administration
Other Public Administration 14 14
The World Bank (P151821)
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Social Protection
Social Protection 14 14
Transportation
Other Transportation 7 7
Industry, Trade and Services
Other Industry, Trade and Services 50 50
Agricultural markets, commercialization and agri-
business
15 15
Major Theme/Theme/Sub Theme
Economic Policy 14 14
Trade 14 14
Trade Facilitation 14 14
Environment and Natural Resource Management 29 29
Climate change 29 29
Adaptation 29 29
Finance 7 7
Finance for Development 7 7
Disaster Risk Finance 7 7
Private Sector Development 129 129
Business Enabling Environment 29 29
Investment and Business Climate 29 29
Jobs 100 100
Public Sector Management 14 14
Public Administration 14 14
Administrative and Civil Service Reform 14 14
Social Development and Protection 14 14
Social Protection 14 14
Social protection delivery systems 14 14
Urban and Rural Development 21 21
Disaster Risk Management 21 21
Disaster Preparedness 7 7
Disaster Response and Recovery 7 7
Disaster Risk Reduction 7 7
Second Programmatic Resilience Building Development Policy Credit P151821 Original Actual
Major Sector
Public Administration
Central Government (Central Agencies) 29 29
Financial Sector
Banking Institutions 14 14
The World Bank (P151821)
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Social Protection
Social Protection 14 14
Industry, Trade and Services
Other Industry, Trade and Services 22 22
Agricultural markets, commercialization and agri-
business
21 21
Major Theme/Theme/Sub Theme
Economic Policy 14 14
Trade 14 14
Trade Facilitation 14 14
Private Sector Development 129 129
Business Enabling Environment 29 29
Investment and Business Climate 29 29
Regulation and Competition Policy 14 14
Jobs 100 100
Public Sector Management 14 14
Public Administration 14 14
Transparency, Accountability and Good Governance 7 7
Public Finance Management 20 20
Public Expenditure Management 10 10
Social Development and Protection 14 14
Social Protection 14 14
Social Safety Nets 10 10
Third Programmatic Resilience Building Development Policy Credit P156761 Original Actual
Major Sector
Public Administration
Central Government (Central Agencies) 30 30
Education
Other Education 10 10
Financial Sector
Capital Markets 10 10
Energy and Extractives
Renewable Energy Wind 3 3
Renewable Energy Solar 3 3
Renewable Energy Geothermal 3 3
Social Protection
Social Protection 10 10
Industry, Trade and Services
Trade 10 10
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Agricultural markets, commercialization and agri-
business
21 21
Major Theme/Theme/Sub Theme
Environment and Natural Resource Management 29 29
Climate change 29 29
Mitigation 10 10
Energy 10 10
Energy Policies&Reform 10 10
Human Development and Gender 10 10
Education 10 10
Education Governance, School-Based Management 10 10
Private Sector Development 129 129
Business Enabling Environment 29 29
Investment and Business Climate 29 29
Public Private Partnerships 10 10
Public Sector Management 14 14
Public Finance Management 20 20
Debt Management 10 10
Public Expenditure Management 10 10
Rule of Law 10 10
Legal Institutions for a Market Economy 10 10
Social Development and Protection 14 14
Social Protection 14 14
Social Safety Nets 10 10
Urban and Rural Development 21 21
Disaster Risk Management 21 21
Disaster Preparedness 7 7
E. BANK STAFF
Grenada First Programmatic Resilience Building DPC P147152
Positions At ICR At Approval
Vice President: Jorge Familiar Calderon Jorge Familiar Calderon
Country Director: Tahseen Sayed Sophie Sirtaine
Practice Manager/Manager: Jorge A. de Thompson R. Araujo Auguste Tano Kouame
Task Team Leader: Annette I. De Kleine Feige Rei Odawara
ICR Team Leader: Tamoya Annika Lois Christie
ICR Primary Author: Suzana Nagele de Campos Abbott
The World Bank (P151821)
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Second Programmatic Resilience Building Development Policy Credit P151821
Positions At ICR At Approval
Vice President: Jorge Familiar Calderon Jorge Familiar Calderon
Country Director: Tahseen Sayed Sophie Sirtaine
Practice Manager/Manager: Jorge A. de Thompson R. Araujo Miria A. Pigato
Task Team Leader: Annette I. De Kleine Feige Rei Odawara
ICR Team Leader: Tamoya Annika Lois Christie
ICR Primary Author: Suzana Nagele de Campos Abbott
Third Programmatic Resilience Building Development Policy Credit P156761
Positions At ICR At Approval
Vice President: Jorge Familiar Calderon Jorge Familiar Calderon
Country Director: Tahseen Sayed Sabine Hader
Practice Manager/Manager: Jorge A. de Thompson R. Araujo Miria A. Pigato
Task Team Leader: Annette I. De Kleine Feige Annette I. De Kleine Feige
ICR Team Leader: Tamoya Annika Lois Christie
ICR Primary Author: Suzana Nagele de Campos Abbott
F. RESULTS FRAMEWORK ANALYSIS Program Development Objectives (from Program Document)
The Program Development Objective is to support Grenada in implementing a program of policy and institutional
reforms to: (i) improve the investment climate and competitiveness; (ii) improve public resource management; and
(iii) enhance resilience against natural disasters.
Revised Program Development Objectives (as approved by original approving authority)
Indicator(s)
Grenada First Programmatic Resilience Building DPC P147152
Indicator Baseline Value
Original Target
Values (from
approval
documents)
Formally Revised
Target Values
Actual Value Achieved at
Completion or Target Years
Second Programmatic Resilience Building Development Policy Credit P151821
Indicator Baseline Value
Original Target
Values (from
approval
documents)
Formally Revised
Target Values
Actual Value Achieved at
Completion or Target Years
The World Bank (P151821)
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Third Programmatic Resilience Building Development Policy Credit P156761
Indicator Baseline Value
Original Target
Values (from
approval
documents)
Formally Revised
Target Values
Actual Value Achieved at
Completion or Target Years
Indicator 1: Tourist Receipts
Value quantitative or Qualitative
EC$307 million
EC$332 million (8
percent increase)
EC$447.9 million
Date achieved 12/31/2013 06/30/2018 12/31/2017
Comments (incl. % achievement)
Exceeded (35 percent over original target). The actual value achieved represents an
annual average growth rate of almost 9 percent in nominal tourist receipts.
Indicator 2: Leasing out of Government-owned agricultural estates to private entities.
Value quantitative or Qualitative
None
At least 3
Government-
owned estates
leased
2 Government-owned
estates leased
Date achieved 12/31/2013 06/30/2018 06/30/2018
Comments (incl. % achievement)
Partially Achieved. Two out of four potential Government-owned estates have been
leased to private entities.
Indicator 3: Area cultivated at leased Government-owned agricultural estates.
Value quantitative or Qualitative
Zero acres (out of
a total of 379
cultivatable acres
of Government-
owned land
selected for public-
private
partnerships
(PPPs)
186 acres 205 acres
Date achieved 12/31/2013 06/30/2018 06/30/2018
Comments (incl. % achievement)
Exceeded (10 percent above target). This represents approximately 54 percent of
cultivable Government-owned land selected for PPPs.
Indicator 4: Number of farmers served by MNIB
Value quantitative or Qualitative
1,623
At least 2,500 2,000
Date achieved 12/31/2013 06/30/2018 06/30/2018
The World Bank (P151821)
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Comments (incl. % achievement)
Partially Achieved (20 percent below target). With 2000 farmers, the MNIB serves about
30 percent of farmers registered in 2017. However, the MNIB faces competition from
competing non-profit organizations offering similar services.
Indicator 5: Percentage of licensed food premises and street food premises in Grenada that have been
inspected by the Food Safety Authority under the Food Safety Act.
Value quantitative or Qualitative
Zero
75 percent (share
of food premises
and street food
premises licensed
by the Food
Safety Authority)
80 percent
Date achieved 12/31/2013 06/30/2018 06/30/2018
Comments (incl. % achievement)
Exceeded (5 percentage points above target).
Indicator 6: The number of border control agencies processing trade transactions through ASYCUDA
World.
Value quantitative or Qualitative
2 agencies
At least 6
agencies
2 agencies
Date achieved 12/31/2013 06/30/2018 06/30/2018
Comments (incl. % achievement)
Not Yet Achieved. The update to ASYCUDA World was delayed, occurring only in
September 2018. The revised timeline to achieve the target is for three agencies in the
Ministry of Agriculture by December 2018 and the additional agencies in the Ministry of
Health and the Police Force by June 2019.
Indicator 7: Number of agencies sharing trade and taxation related information through ASYCUDA
World.
Value quantitative or Qualitative
Zero
At least 2 2 agencies
Date achieved 12/31/2013 06/30/2018 06/30/2018
Comments (incl. % achievement)
Achieved. Data sharing by the Inland Revenue Department and the Central Office of
Statistics is currently in place.
Indicator 8: Share of PPP projects under development that conform to the processes and
requirements defined in the PPP policy.
Value quantitative or Qualitative
Zero
100 percent 100 percent of projects
under development
Date achieved 12/31/2013 06/30/2018 09/30/2018
The World Bank (P151821)
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Comments (incl. % achievement)
Achieved. A PPP project was approved in September 2018 between the Government and
Digicel, an ICT company, under the Caribbean Regional Communication Infrastructure
Program.
Indicator 9: Share of renewable energy in total installed power-generation capacity.
Value quantitative or Qualitative
1 percent
3 percent 6.3 percent
Date achieved 12/31/2013 06/30/2018 06/30/2018
Comments (incl. % achievement)
Exceeded. Presently 6.3 percent of Grenada’s energy capacity is accounted for by
renewable sources, mostly solar.
Indicator 10: The PURC is fully operational, with evidence from the Government that the PURC has (i)
issued a three-year business plan; (ii) a dedicated place of work; (iii) hired staff, and (iv) an
operating budget.
Value quantitative or Qualitative
No
Yes Partially operational
Date achieved 12/31/2013 06/30/2018 10/31/2018
Comments (incl. % achievement)
Partially Achieved. Three out of four requirements have been fulfilled. Constraints in
recruiting high caliber staff has delayed the fulfillment of requirement (iii). The PURC is
expected to be fully operational by January 2019.
Indicator 11: Development of job descriptions.
Value quantitative or Qualitative
None
The Ministry of
Education has
formally
established job
descriptions with
clearly defined
competencies
and
responsibilities
for the key task
areas of public
administration,
including
planning,
monitoring
results, and
strategic
personnel
management
All 27 job descriptions
developed and approved
The World Bank (P151821)
xi
Date achieved 12/31/2013 06/30/2018 06/30/2018
Comments (incl. % achievement)
Achieved. This indicator was scaled back to apply only to the Ministry of Education instead
of all five pilot ministries first considered.
Indicator 12: Publication of contract awards.
Value quantitative or Qualitative
Zero
All contract
awards are
published, in
conformity with
the new
procurement law.
Zero. Expected for January
2019
Date achieved 12/31/2013 06/30/2018 06/30/2018
Comments (incl. % achievement)
Not Yet Achieved. The Government procurement website is operational with the
publication of contract awards expected for January 2019. Currently, information on
disposal of assets is available on the website.
Indicator 13: Share of SEED program beneficiary households identified in the PO Plan as ineligible and
non-vulnerable that have been transitioned out of the program.
Value quantitative or Qualitative
Zero
95 percent 100 percent
Date achieved 12/31/2013 06/30/2018 06/30/2018
Comments (incl. % achievement)
Achieved. In accordance with the Phase Out plan, 100 percent of households in the non-
vulnerable category have been removed from the beneficiaries list.
Indicator 14: Share of public and publicly guaranteed debt with a maturity of less than 90 days.
Value quantitative or Qualitative
17 percent
10 percent 4.2 percent
Date achieved 12/31/2013 06/30/2018 06/30/2018
Comments (incl. % achievement)
Exceeded. The Government performed better than targeted as it was able to extend
maturities of short-term debt on the Regional Government Securities Market (RGSM).
Indicator 15: Share of membership of the Grenada Institute of Professional Engineers (GIPE) registered
in accordance with the 2015 Engineering Act.
Value quantitative or Qualitative
Zero
40 percent Zero
Date achieved 12/31/2013 06/30/2018 06/30/2018
Comments (incl. % achievement)
Not Yet Achieved. Timeline for the establishment of the Registration Board, in accordance
with the Enginering Act, has been set for the first quarter of 2019.
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Indicator 16: Establishment of the Building Inspection Unit at the Ministry of Communication, Works,
Physical Development, Public Utilities, ICT and Community Development.
Value quantitative or Qualitative
None
Unit established Planned
Date achieved 12/31/2013 06/30/2018 06/30/2018
Comments (incl. % achievement)
Not Yet Achieved. The Government is exploring options as to how this unit should be
structured.
Indicator 17: Provisions for loan losses to nonperforming loans (NPLs) for the banking sector.
Value quantitative or Qualitative
30 percent of NPLs
60 percent of
NPLs
71.7 percent
Date achieved 12/31/2013 06/30/2018 06/30/2018
Comments (incl. % achievement)
Exceeded. The provisions as a percentage of NPLs were 71.7 percent, surpassing the
Program target of 60 percent.
G. RATINGS OF PROJECT PERFORMANCE IN ISRs
Grenada First Programmatic Resilience Building DPC P147152
No. Date ISR
Archived DO IP
Actual Disbursements
(USD millions)
1 10/27/2015 Satisfactory Satisfactory 14.99
Second Programmatic Resilience Building Development Policy Credit P151821
No. Date ISR
Archived DO IP
Actual Disbursements
(USD millions)
1 11/04/2016 Satisfactory Satisfactory 14.98
H. RESTRUCTURING (IF ANY)
Not applicable.
The World Bank (P151821)
1
1. PROGRAM CONTEXT, DEVELOPMENT OBJECTIVES AND DESIGN
1 The Programmatic Resilience-Building Development Policy Program (the Program, PRBDP) was designed as a
programmatic series of three Development Policy Operations. The first operation, PRBDP1, was approved on June 30,
2014 and became effective on July 9, 2014; the second operation, PRBDP2, was approved on October 28, 2015 and
became effective on November 19, 2015. The third operation, PRBDP3, was approved on December 16, 2016, became
effective on December 23, 2016. The final operation in the series closed on November 30, 2017. The Program supported
selected reforms of the Government of Grenada’s (the Government) broader plans under the New Economy initiative
built around strategies for economic growth, fiscal sustainability, social development and debt management. The
measures supported by the Program address four key policy areas consistent with the 2010 Comprehensive Debt
Framework (CDF) developed by the World Bank at the request of the Heads of Government of the Caribbean Community
(CARICOM) countries to address the challenge of high debt levels facing many small states. The CDF was structured
around four pillars to address the structural interdependent causes of high debt and low growth in small island states:
(Pillar 1) creating conditions for private investment in a sustainable manner; (Pillar 2) supporting improved public-sector
management and better targeting of social safety net programs; (Pillar 3) enhancing resilience to natural disasters, and
(Pillar 4) facilitating debt portfolio restructuring and improved debt management.
1.1 Context at Appraisal
2 PRBDP was prepared in 2014, as Grenada, a small, open and highly indebted middle-income island state, faced
significant systemic vulnerabilities and structural challenges. Due to a combination of high exposure to natural disasters,
its small size and limited diversification, Grenada is very vulnerable to external shocks. Continued low growth, combined
with high budget rigidities and persistently large fiscal deficits, had contributed to high debt levels. Further, there had
been an overreliance on public expenditure to respond to shocks and stimulate growth, and the fiscal management
framework had not emphasized fiscal discipline and expenditure efficiency. The resulting lack of fiscal space and weak
institutional capacity had limited the Government’s ability to mitigate the social impact of crises and to protect the poor
and vulnerable.
3 Grenada’s social indicators were strong, but poverty appeared to be worsening despite improvements in some
social areas. The latest available poverty data (2008) at the time of appraisal estimated that around 38 percent of the
population was considered poor, 2.4 percent of which were indigent or extremely poor.1 Compared with earlier data
from 1999, this data revealed that poverty had increased by around 17 percent, while the indigence level fell by more
than 80 percent over the 1999 to 2008 period. With a cumulative 5.7 percent decline in GDP from 2008 until 2014, it was
unlikely that the incidence of poverty would have improved since 2008. Still, Grenada had made progress in social
indicators: the share of the population that was malnourished, the under-5 mortality rates and adolescent fertility rates
(highly associated with social vulnerability) had decreased and net enrollment rates in primary and secondary education
remained high resulting in an increased literacy rate.
1 Estimates are national official poverty and extreme poverty rates based on the Cost of Basic Needs method. Internationally comparable consumption-based poverty rates are slightly lower than the official rates at 30.4 percent (US$5.50 a day 2011 PPP) and 0.5 percent (US$1.90 a day 2011 PPP), respectively.
The World Bank (P151821)
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4 Although Grenada’s economy had started to recover, between 2009 and 2012 the country suffered one of the
worst recessions in decades. Tourism revenues and foreign direct investment (FDI) flows had collapsed in the aftermath
of the global financial crisis, and GDP contracted by a cumulative 8.2 percent during the period. The economy’s hotel and
restaurants sector (a proxy for tourism), transportation and communications and wholesale and retail sectors all
contracted. The current account deficit remained large at 21.1 percent of GDP in 2012 and with the drying up of FDI,
financing relied more heavily on debt-related flows, including increases in bank’s foreign liabilities. The fiscal deficit
worsened, reaching 5.9 percent of GDP in 2012 (Table 1).
5 The economy began to recover in 2013, with GDP increasing by 2.4 percent led by the construction sector, but
the fiscal position continued to worsen. Tourism declined a further 4.0 percent in 2013 and external imbalances persisted,
with the current account deficit further deteriorating to 23.2 percent of GDP reflecting an increase in imports and a
decrease in current transfers. The overall public-sector deficit increased to 7.3 percent of GDP in 2013, as the Government
extended temporary tax breaks to the business sector. The primary deficit (including grants) reached 2.5 percent of GDP
in 2012 and widened to 3.9 percent of GDP in 2013. With negative net external transfers and shortfalls in revenues, the
Government issued significant amounts of short-term government paper to meet its financing needs. Domestic unpaid
claims increased, and the Government accumulated some arrears vis-à-vis external creditors.
6 Grenada’s public debt increased sharply during the global financial crisis and continued to worsen in 2013,
culminating in the announcement of a public debt restructuring in March 2013 by a newly elected administration. By
2013, the public debt-to-GDP ratio had increased to 107.6 percent, with domestic debt rising to 37.2 percent of GDP
increasing the exposure of domestic banks, and external debt growing to 70.4 percent of GDP. External debt service
increased significantly, especially to commercial creditors, putting upward pressure on interest rates. The unsustainability
of the public debt and a solvency crisis led the Government to announce a “comprehensive and collaborative
restructuring of its public debt”, and to default on coupon payments due on its US and EC dollar bonds maturing in 2025.
Initial discussions with creditors were put on hold until after discussions with the International Monetary Fund (IMF) on
the Extended Credit Facility (ECF) were concluded. Subsequently, the agreement reached on the debt restructuring
exercise included a 50 percent principal haircut on both domestic and external debt to private and bilateral official
creditors, which helped Grenada bring the debt-to-GDP ratio down to 70.8 percent by end 2017.
Table 1. Selected Economic Indicators 2009-2017
2009 2010 2011 2012 2013 2014 2015 2016 2017
Annual percentage change
Real GDP growth -6.6 -0.5 0.8 -1.2 2.4 7.3 6.4 3.7 5.1
Inflation (CPI) -2.3 4.2 3.5 1.8 -1.2 -1.0 -0.5 1.6 0.9
Percent of GDP
Current Account Balance
-22.2 -23.7 -23.6 -21.1 -23.2 -16.5 -16.5 -14.5p -15.3p
Fiscal Balance -5.2 -3.6 -5.2 -5.9 -7.3 -4.7 -1.5 2.3 3.0
Debt 91.1 96.9 100.7 103.3 107.6 101.8 90.1 82.0 70.8
Primary Balance -3.0 -1.5 -2.7 -2.5 -3.9 -1.2 1.9 5.2 5.7 Source: World Bank. P – Projections as at November 2016. The methodology for the BOP, including the current account balance was updated in
2016, causing a break in the series. Estimates for the current account balance in 2016 and 2017 under the new methodology are -3.2 and -6.7
percent, respectively.
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7 Grenada’s financial and banking sector remained fragile, following the collapse of systemic insurers in 2009.
Grenada’s single domestic bank (there are also four foreign banks), whose assets represented 28.3 percent of GDP as of
end-2012, faced increasing non-performing loans (NPSs), insufficient provisioning, declining earnings and capital. It was
also exposed to Grenada’s sovereign debt with holdings representing about 22 percent of its reported capital. With the
economic downturn in 2009 and 2010, NPLs in the banking sector increased overall, and most banks experienced losses.
Faced with weak economic conditions and increased NPLs, credit institutions had become wary about lending, thereby
tightening access to credit for small and medium enterprises (SMEs).
8 The PRBDP series was part of a multi-donor effort to support key reforms in Grenada. The PRBDP was
contemplated in the Progress Report of the Regional Partnership Strategy for the OECS presented to the World Bank’s
Board in April 2012, especially insofar as that strategy aimed to provide Grenada with flexible, demand-driven and
focused support for fostering economic growth with the help of more transparent, effective and efficient institutions.
The PRBDP complemented a then proposed 36-month Extended Credit Facility (ECF) by the IMF that focused on short-
term fiscal consolidation, while the Program supported the longer-term policies to build resilience against systemic
vulnerabilities. A programmatic lending program by the Caribbean Development Bank (CDB), closely aligned with the
PRBDP was expected to be approved in July 2014. The Government agreement with the IMF on the ECF arrangement was
approved by the IMF Board in June 2014. The ECF arrangement focused on improving medium-term growth prospects,
restoring fiscal sustainability and strengthening the financial sector.
9 The foundation for the Government’s program, the New Economy Plan (NEP), outlined in its 2013 budget
presentation, responded to the challenges Grenada had faced over the past several years. The NEP, a long-term
development strategy, was based on strategies for economic growth, fiscal sustainability, social development and debt
management. The key issues that were to be addressed were fiscal and debt sustainability, public sector management,
vocational training, sustainable development and the private sector as the key driver of growth. The strategy for growth
emphasized tourism, agriculture and fisheries, energy development (including renewable energy), and a dynamic export
sector as drivers of future economic growth. The strategy for social development and empowering the population was
built around the formation of human capital through improved training and employment opportunities for youth, better
access and quality of education, improved health care services and facilities, and provision of affordable housing to low
income families. It also addressed greater social inclusion through a further strengthening of the flagship safety net
program “Support for Education, Empowerment and Development” (SEED) envisaged to ensure that its benefits reached
the neediest.
10 Grenada’s macroeconomic policy framework was deemed adequate when PRBDP1 was approved. Growth was
expected to pick up in the medium term fueled by a stronger performance in tourism and larger FDI inflows, and inflation
was projected to remain subdued in the face of weak domestic demand and moderate commodity inflation. The medium-
term fiscal and debt outlook was predicated on adopting the needed fiscal consolidation measures agreed under the IMF
ECF. After deteriorating slightly due to retroactive payments, the fiscal situation was expected to reverse to a primary
surplus in 2015 and beyond. Debt levels were expected to decline but remain high. The Government’s policies were
calibrated to accommodate a gradual but sustained recovery of the real sector coupled with a strong fiscal consolidation
adjustment supported by the IMF program.
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11 The PRBDP was consistent with the Progress Report of the Regional Partnership Strategy (RPS) for the OECS (Report No. 66577-LAC), presented to the Board in April 2012. The PRBDP was expected to influence RPS outcomes in all of the priority assistance categories, as follows: (i) improving fiscal and debt sustainability; (ii) protecting and improving human capital; (iii) strengthening climate resilience; (iv) strengthening the domestic financial sector, and (v) improving access to quality services for a more competitive environment. All of these areas were addressed under the series’ four pillars.
1.2 Original Program Development Objectives (PDO) and Key Indicators
12 The Program Development Objective of the PRBDP series, as defined in PRBDP1, was to support the Government
of Grenada to implement a program of policy and institutional reforms. These reforms would aim to: (i) create conditions
for private investment in a sustainable manner; (ii) support improved public sector management and better targeting of
social safety net programs; (iii) enhance resilience against natural disasters, and (iv) facilitate debt portfolio restructuring
and enhance debt management. This original PDO was modified slightly in the following two operations (Section 1.3).
The original and revised Key Outcome Indicators and targets are presented in Annex 2.
1.3 Revised PDO and Key Indicators, and Reasons/justification
13 In the Program Document (PD) for PRBDP2, the PDO was reworded slightly to read: the PDO of the proposed
DPC/DPL series is to support Grenada in implementing a program of policy and institutional reforms to: (i) create
conditions for private investment in a sustainable manner; (ii) support improved public resource management; and (iii)
enhance resilience against natural disasters and key elements of resilience in the banking sector. The PD for PRBDP3
reworded the PDO further to read: the PDO of the DPC-3 operation is to support Grenada in implementing a program of
policy and institutional reforms to: (i) improve the investment climate and competitiveness; (ii) improve public resource
management; and (iii) enhance resilience against natural disasters. This ICR evaluates achievement of the Program’s
objectives according to the objectives of PRBDP3, and the final Key Indicators for each of the objectives supported by the
series of operations.
14 The PDs for PRBDP2 and PRBDP3 do not mention specifically why the PDO was reworded in each of these
operations. The PRBDP2 PD mentions that the DPC/DPL2 “focuses on fewer strategic policy measures to strengthen the
selectivity of the operation”, and that “some measures, such as those related to trade logistics, the energy sector reform,
and the physical planning regulatory system to reduce the risks associated with natural disasters, have been postponed
to the DPC3 to allow the Government to achieve stronger results in these critical areas, while a measure related to
strengthening the tourism and agribusiness linkages, has been advanced due to faster progress”. Similarly, the PRBDP3
PD mentions only that “some of the indicative triggers that had been originally envisioned proposed in earlier operations
on policy measures that are related to tourism and the financial sector have been dropped to reflect changes in the
Government’s strategy. Other originally envisioned measures, notably those related to trade logistics, PPPs and social
safety nets have been modified to reflect the evolution and current status of the reform process. The results indicators
for the proposed operation have been updated to reflect changes in the program’s prior actions”. Throughout the series,
the PDs referred to areas where Prior Actions were dropped to increase the selectivity of the respective operations.
15 Revisions to the PDO and selected triggers were the culmination of extensive discussions between the Bank team
and the Grenadian authorities. The changes, mutually agreed by both parties, were undertaken to better reflect the pace
of progress in program areas, as well as meet emerging priorities. The revisions to Prior Actions and Key Outcome
Indicators are presented in Annex 2.
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1.4 Original Policy Areas Supported by the Program
16 The objective of the PRBDP series was to be achieved through supporting reforms carried out by the Government
in four pillars of policy areas under three consequent operations: (i) Pillar 1 - creating conditions for private investment;
(ii) Pillar 2 - supporting fiscal consolidation through reducing fiscal, financial and social vulnerability; (iii) Pillar 3 -
enhancing resilience against natural disasters, and (iv) Pillar 4 - facilitating debt portfolio restructuring and improved debt
management. The Program was consistent with the Government’s development strategy, the GPRS 2014-2018, and
supported the Government’s objectives of accelerating economic growth, restoring fiscal and debt sustainability, and
improving social development indicators. The objectives of specific reforms under each of the four pillars is presented
below:
Pillar 1: Creating conditions for private investment
• Objective 1.1: Strengthening the Institutional Governance Framework for the Tourism Sector;
• Objective 1.2: Improving the Productivity and Competitiveness of the Agribusiness Sector;
• Objective 1.3: Strengthening the Business Environment through Improved Trade Logistics;
• Objective 1.4: Promoting New Investments under a Public-Private Partnership (PPP) Policy and Institutional
Framework, and
• Objective 1.5: Strengthening the Policy and Regulatory Environment for the Energy Sector.
Pillar 2: Supporting fiscal consolidation through reducing fiscal, financial and social vulnerability
• Objective 2.1: Promoting the Effectiveness and Efficiency of the Public Sector through Public Service
Modernization;
• Objective 2.2: Strengthening Public Procurement Systems;
• Objective 2.3: Improving Financial Sector Stability through Improved Regulation and Supervision, and
• Objective 2.4: Strengthening Social Safety Nets.
Pillar 3: Enhancing resilience against natural disasters
• Objective 3.1: Reducing the Risk to External Natural Hazard Shocks through a Strengthened Physical Planning
Regulatory System.
Pillar 4: Facilitating debt portfolio restructuring and improved debt management
• Objective 4.1: Strengthening the Institutional Debt Management Capacity and Facilitating Debt Portfolio
Restructuring.
1.5 Revised Policy Areas
17 The Policy Areas were not revised, per se, but Pillars were renamed, and Pillar 4 (and its Objective 4.1) was
incorporated within Pillar 2, with the result that PRBDP2 and PRBDP3 had only three Pillars.
1.6 Other significant changes
18 Not applicable.
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2. KEY FACTORS AFFECTING IMPLEMENTATION AND OUTCOMES
2.1 Program Performance
19 PRBDP was designed as a programmatic series of three operations to be delivered in single tranches. PRBDP1
was financed by an IDA Credit in the amount of SDR 9.7 million (US$15 million equivalent) approved on June 30, 2014.
PRBDP2 was financed by an IDA Credit in the amount of SDR 7.2 million (US$10 million equivalent) and a World Bank loan
in the amount of US$5 million, both approved on October 28, 2015. PRBDP3 was financed by an IDA Credit in the amount
of SDR 6.8 million (US$9.34 million equivalent) approved on December 16, 2016. The World Bank released proceeds upon
effectiveness (Table 2).
Table 2: DPL Series Disbursement
Operation # Amount Expected Release Date Actual Release Date Release
DPC-1 US$15 million July 14, 2014 July 14, 2014 Regular
DPF-2 US$15 million December 09, 2015 December 09, 2015 Regular
DPF-3 US$9.1 million January 03, 2017 January 03, 2017 Regular
20 The PRBDP1 PD outlined seven Prior Actions and 12 Indicative Triggers for PRBDP2, and nine Indicative Triggers
for PRBDP3. The PRBDP2 Program Document outlined 7 Prior Actions and 12 Indicative Triggers for PRBDP3. Revision to
Prior Actions and Triggers, including minor changes in wording of Prior Actions and Triggers are summarized in Annex 2.
21 A summary of the PRBDP’s Prior Actions, Indicative Triggers and Key Indicators by pillar, as described in the
Program Document of each of the operations is provided in Annex 1. A summary of the 24 Prior Actions completed over
the PRBDP series is provided in Annex 3.
2.2 Major Factors Affecting Implementation
22 The PRBDP was implemented in a difficult environment in which Grenada’s public debt had become
unsustainable. The consequent solvency crisis had led the then recently elected Government to announce a
“comprehensive and collaborative restructuring of its public debt”, to define a plan of substantive reforms in tax and
public administration. The new Government reached out to the International Financial Institutions (IFIs) to jointly help
develop and support those reforms. Sound underpinnings, based on the extensive analytical work by the World Bank, as
well as coordinated donor support and the social compact between the Government and civil society were important to
ground the Program’s design and implementation. Overall, implementation presented a mixed picture where despite
continued Government commitment towards adopting important legislative and institutional reforms supported by the
PRBDP series, actual results were impacted by factors such as weak institutional and technical capacity, the short period
for actually implementing the reforms, and exogenous factors. The main factors that affected its implementation are
described below.
23 The Government’s commitment to its ambitious fiscal consolidation and reform agenda and the PRBDP series
was strong throughout preparation and implementation, and consistency in the administration impacted outcomes
positively. Strong Government ownership of the Program and the never wavering commitment to see the Program
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through were paramount for the level of success achieved. Continuity in the Government administration, orientation,
and policy priorities throughout implementation of the PRBDP series, ensured that the commitment to the Program
remained strong. Furthermore, the social partnership arrangement with key stakeholders in civil society was instrumental
in monitoring the Government’s performance under the adjustment program.
24 The PRBDP’s design was grounded in and supported by a strong program of analytical work and complemented
by World Bank investment lending operations in key areas supported by the Program. The analytical work and the World
Bank’s technical and advisory support was carried out before the Program’s approval and, then, throughout the
implementation of each of its three phases. The World Bank’s extensive program of analytical work supported the
PRBDP’s key policy areas (Annex 4). Policy reforms carried out within the framework of the PRBDP were also supported
by World Bank investment lending in most areas of the Policy Matrix (Annex 5).
25 The design and implementation of the PRBDP counted on the Government’s collaboration and strong
coordination with Grenada’s donors. The World Bank and the IMF collaborated closely in the preparation of the PRBDP
series and throughout its implementation. The Program’s Prior Actions were designed to complement the IMF’s ECF
arrangement approved in June 2014. The Caribbean Development Bank (CDB) also supported the Government’s New
Economy Program under a US$10 million three-phase programmatic instrument that was closely aligned with the
objectives, Prior Actions and Key Indicators of the PRBDP series. Grenada also counted upon assistance from several
bilateral and multilateral agencies, including the European Union (EU), the Canadian International Development Agency
(CIDA), the UK Department for International Development (DFID), the US Agency for International Development (USAID),
the Pan-American Health Organization (PAHO) and the CDB (which in addition to its own funds lends funds from the
Interamerican Development Bank). These agencies were all active participants in the Eastern Caribbean Donor Group,
and the World Bank together with the Government of Grenada worked to promote donor coordination and exploit
synergies. In addition to the World Bank’s technical advisory support, the PRBDP counted on strong technical advice from
the IMF in the areas of public financial management, tax reform and the reform of state-owned enterprises. The UK DFID
and Canada’s Department of Foreign Affairs, Trade and Development provided US$7 million to the World Bank to support
its regional strategy, including for financial sector reforms. Finally, the CDB supported the development of a regional
center of excellence in public procurement financed by a US$320,000 IDF grant. Coordination with the ECCB and other
regional institutions also facilitated successful implementation of the Program.
26 Despite all of the World Bank’s technical advisory support and complementary investment lending operations,
and the coordinated advisory and financial support of Grenada’s donors, there were several policy areas where more
hands-on assistance would have been required given capacity constraints. These include, for example, the areas of trade
logistics, public employment management, and physical planning regulation. In the area of trade logistics, the PD for
PRBDP3 reported that software, budgetary and professional-skills constraints slowed the full implementation of the full
range of the reform, despite the Government’s full commitment. It further mentions that “linking the trade transactions
of all border control agencies that process trade transactions through ASYCUDA World required extensive coordination
and negotiation, major inter-agency agreements, and sufficient funds to finance the necessary technical assistance”. In
the area of public employment management, the PD for PRBDP2 reported that “improving public employment
management will require an incremental approach that reflected capacity limitations”, and that “relatively low staffing
levels and hiring restrictions also place a considerable burden on the permanent secretaries tasked with institutional
modernization”. For physical planning, while legislation and subsequent regulations were successfully passed in
Parliament, the implementation of the laws and establishment of supporting units never materialized, compromising the
achievement of program objectives.
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27 Also, despite extensive consultations with interested stakeholders, some policy areas proved politically difficult
to fully implement during the Program period and had to be carried out over an extended timeframe and on a phased
basis. These included public employment management and full implementation of the SEED Phase-Out Plan. These, and
other reforms that would impact employment and income proved difficult to implement over the short term, without
phasing, despite commitment to the broad objectives and notable progress. In a small country, reducing public sector
employment proved difficult as employment possibilities in the private sector are limited in the absence of sustained
growth. As a result, the Government opted for a mixture of attrition and phased implementation, and the Prior Actions
and Key Indicators were adjusted over the series.
28 Exogenous factors also impacted performance over the PRBSP series, both positively and negatively. Grenada’s macroeconomic performance improved considerably over the implementation period, supported mostly by short-term stabilization measures (para. 8). The extent to which this also impacted the urgency of carrying through with reform measures that would promote growth over the medium term is difficult to ascertain. Nevertheless, an improvement in the international economic environment undoubtedly aided tourism performance, as reflected in increases in receipts, arrivals and employment in the sector. On the negative side, despite having in place the appropriate policy and regulatory framework, difficulties in identifying suitable private investors for the commercialization of government-owned agricultural estates and other potential PPPs, as well as unexpected changes in the financing sources of one leased government estate, moderated the expected impact on private investment.
2.3 Monitoring and Evaluation (M&E) Design, Implementation and Utilization
(a) Design
29 The Program and the Policy Matrix were prepared in close cooperation with the IMF and the CDB as a coordinated
effort to help close the financing gap and support the implementation of structural reforms. The Policy Matrix provided
a coherent framework to monitor progress and Key Indicators were associated directly to the Program’s PDOs. The
indicators were clear, many quantitative, and easy to monitor. As a program focusing on institutional reforms that would
produce results with a lag, many of the Key Indicators reflected institutional achievements as opposed to final outcomes
that would result from those achievements. The Results Framework and timing of reforms across the series was well
designed, with those expected to generate early impact front-loaded (e.g., tourism). All original indicators had baselines
at approval of PRBDP1 (for the year 2013), as did all new indicators introduced throughout the Program’s subsequent
operations (PRBDP2 and PRBDP3). Nevertheless, the original and revised Key Indicators presented several issues,
including those of difficulties in attribution (e.g., tourism), over-ambitiousness (e.g., public sector modernization), overlap
(e.g., agricultural estates), and lack of clarity (e.g., PPPs). These issues are presented in a table in Annex 6.
(b) Implementation
30 The MoFE was responsible for monitoring and reporting progress under the PRBDP series and coordinating
actions among other agencies involved in implementing the reform program, including the Ministry of Social
Development (MoSD), the Ministry of Agriculture, Forestry and Fisheries (MoAFF), the Ministry of Tourism, Civil Aviation,
Culture and Cooperatives (MoTCACC), the Department of Public Administration (DPA) and the Ministry of Works (MoW).
Together with the MoFE, these institutions were responsible for collecting the necessary data to assess implementation
progress and results, and providing these data to the World Bank. The World Bank also monitored actions and reviewed
progress according to the expected program outcomes outlined in the Policy Matrix and the Results Framework (Annex
1). Monitoring was carried out through ongoing dialogue with the Government, and was supported by complementary
investment projects, hands-on technical assistance and analytical activities (Annex 4 and 5).
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(c) Utilization
31 As a programmatic operation, throughout implementation, monitoring and evaluation was utilized to adjust the policy matrix, including Prior Actions and Key Indicators to reflect the pace of implementation and to focus selectively on only some key indicators—several original indicative triggers were excluded to focus on key priority areas (Annex 2). Further, as mentioned in Section 1.5, the policy areas were streamlined with Pillar 4 (and its Objective 4.1) being incorporated into Pillar 2, with the result that PRBDP2 and PRBDP3 had only 3 pillars. 2.4 Expected Next Phase/Follow-up Operation
32 As a three-phase programmatic operation, a next phase is not contemplated. However, the SDR 20.9 million
(US$30 million equivalent) First Fiscal Resilience and Blue Growth Development Policy Credit, a programmatic series of
two Development Policy Credits, was approved by the World Bank’s Board on June 22, 2018. The operation takes a
comprehensive approach to strengthen macroeconomic, fiscal and environmental sustainability, and resilience to shocks.
It does so by supporting the implementation of fiscal reforms that keep public debt on a downward trajectory and support
fiscal consolidation. Additionally, it takes a more balanced and sustainable growth approach that safeguards natural
resources and measures to better deal with climate change and natural disaster shocks. The program’s first pillar supports
Prior Actions covering key fiscal reforms that support implementation of the 2015 Fiscal Responsibility Act (FRA), a new
rules-based fiscal framework, customs reforms and strengthened monitoring and oversight of state-owned enterprises.
The program’s second pillar includes measures to strengthen marine and coastal management, and to strengthen climate
change resilience.
33 The FRA has facilitated Grenada’s return to a sustainable fiscal position, and this new operation supports
continued efforts in this direction through: (i) institutionalizing a Fiscal Responsibility Oversight Committee responsible
for monitoring of the fiscal rules and preparing and presenting to Parliament an Annual Report on the status of
implementation of the FRA; (ii) operationalizing a contingency fund to strengthen the response to emergencies and
natural disasters, and (iii) enacting and operationalizing a new compensation management policy framework aimed at
improving public sector productivity within fiscally sustainable paraments, in line with the FRA. It also supports further
reforms aimed at streamlining and strengthening customs administration, including the establishment of an Appeals
Commission to improve trader services and enhance compliance, improving processes through the adoption of electronic
declarations and other automatic processes, decreasing clearance time and strengthening post clearance audits and
enforcement capabilities and presenting an assessment of contingency risks in the Annual Fiscal Risk Report.
34 The new program also supports a continuation of efforts under the PRBDP towards strengthening climate change
resilience and disaster mitigation. Specifically, under the program, the Government has modified its building codes to
improve the resilience of housing infrastructure and adopted a policy on sustainable public procurement and
implemented standards, specifications and contractual conditions which enforce sustainability requirements in publicly-
funded contracts.
35 This follow-up operation is closely aligned with two new strategy products for the OECS region, and by extension
Grenada. The Performance and Learning Review (PLR) of the Regional Partnership Strategy (RPS) for the OECS, approved
in May 2018, revised the RPS, adding a strong focus on macroeconomic and fiscal policies, with an emphasis on the use
of budget support operations to boost policy reforms in these areas. The PLR also suggested a one-year extension of the
RPS, now effective though FY20. Among the lessons highlighted in the PLR was the need for greater consolidation, more
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selectivity and less complexity in Bank-supported interventions, given capacity constraints in small-island states. The
second strategy product, the Systematic Regional Diagnostic (SRD) for the OECS was approved in June 2018 and
presented substantial evidence on the main constraints to inclusive growth and poverty reduction in the OECS. The SRD
identified five priority areas for revamping inclusive and sustainable growth: (i) building resilience to external shocks from
a 360° perspective, (ii) embedding growth in the blue economy, (iii) strengthening and harnessing human capital, (iv)
embracing new technologies to transform productivity, and (v) promoting regional integration and connectivity.
3. ASSESSMENT OF OUTCOMES
3.1 Relevance of Objectives, Design and Implementation
Rating: High
36 The ICR team assesses the overall relevance of objectives and design implementation as High, due to appropriate
identification of objectives despite minor shortcomings in Program ambitiousness, given capacity limitations in small
states, and the initial design of the Results Framework (that was adjusted during implementation).
37 Both during preparation and today, the relevance of the Program’s objectives is High. The Program’s objectives
are fully consistent with the Regional Partnership Strategy (RPS) for the Organization of Eastern Caribbean States (OECS,
of which Grenada is a member) for the period FY15-19.2 The RPS notes that for years, the OECS had been trapped in a
spiral of low growth, high debt, limited fiscal space and growing social problems, exacerbated by a number of external
shocks, including the effects of the global economic and financial crisis and natural disasters. To address these, the RPS
prioritized three areas of engagement; all ranked as high priorities by governments and stakeholders: competitiveness,
public sector modernization, and resilience. The PRBDP program addressed six of the RPS’s nine objectives within these
three areas of engagement: (i) improved investment climate; (ii) increased tourism benefits with stronger linkages to
agribusiness; (iii) improved budget management and transparency; (iv) strengthened capacity to manage PPP; (v)
improved targeting and reduced fragmentation of social protection system, and (vi) increased capacity to manage natural
hazards. The Program’s objectives were consistent and coordinated with those of the IMF’s ECF.
38 The relevance of the PRBDP program’s design and implementation is rated Substantial. Its design reflected
proper diagnostics carried out either before or in the course of preparation, as reflected in the vast amount of AAA and
TA (Annex 4), considered lessons learnt from the performance of previous World Bank-financed programs, and was
complementary to other ongoing World Bank-financed investment operations in Grenada (Annex 5). The Program’s
design, with four objectives and four pillars matching each of the objectives, was structured to match exactly the four
pillars of the World Bank’s Comprehensive Debt Framework 2010 (CDF), that was designed to address debt sustainability
in the Caribbean.3 Specifically, its design incorporated lessons that highlighted that a programmatic approach, supporting
2 World Bank, Regional Partnership Strategy for the Organization of Eastern Caribbean States (OECS) for the Period FY15-19, Report No. 85156-LAC dated October 17, 2014. 3 In 2010, facing among the highest public debt indicators in the world, the Heads of Government of CARICOM countries requested the World Bank to develop a Comprehensive Debt Framework to address the challenge of high debt levels facing many small states, especially the Caribbean countries. The CDF acknowledges that growth could not be achieved without fiscal prudence and vice versa and the challenges that the region was facing were severe and could not be solved by fiscal adjustments and debt restructuring alone
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a multi-stage program with a longer-term horizon, would have a stronger development impact than a stand-alone one-
year program, and that, given limited implementation capacity in small states, the policy matrix should be concise with
few clearly defined measures and indicators. The Prior Actions and other policy reforms supported by the PRBDP series
were strongly linked to the Program’s objectives. Nevertheless, the Key Indicators selected monitor progress towards its
PDO presented some issues (Annex 6) and PRBDP1 underestimated the time required to implement several of the policy
reforms supported, even considering its programmatic approach. Further, while the PRBDP documents highlighted the
series’ selectivity, in reality, the sheer number of objectives, while supporting the broader objective of fiscal sustainability
and growth, required implementation by numerous institutions that were responsible for a large number of different
initiatives. The Program maintained its relevance throughout implementation through the consistent updating of the
triggers, Prior Actions, and Key Indicators.
3.2 Achievement of Program Development Objectives
Overall Achievement of Objectives
39 This ICR evaluates PRBDP based on the final policy matrix for the third operation, which has three pillars with
three overarching objectives. The Program Development Objective of the PRBDP series, as defined in PRBDP3, was to
support the Government of Grenada to implement a program of policy and institutional reforms to: (i) improve the
investment climate and competitiveness; (ii) improve public resource management, and (iii) enhance resilience against
natural disasters. Each pillar has multiple sub-objectives that are measured with several result indicators. Out of 17 Key
Indicators in PRBDP3, six indicators exceeded targets, four indicators met targets, three indicators partially met targets,
and four did not meet targets, despite significant progress in legislative and institutional reforms. Overall, achievement
of the objectives of Pillar 1 was deemed moderately satisfactory, those of Pillar 2 as satisfactory, and those of Pillar 3 as
moderately unsatisfactory.
Overall Rating: Moderately Satisfactory
40 The specific achievements of the Program are more broadly reflected in the adequacy of the macroeconomic
policy framework and the strong macroeconomic performance since implementation. Sound macroeconomic policy in
Grenada is underpinned by a rules-based fiscal framework and fiscal responsibility legislation that cap expenditure
growth and the public wage bill; a medium-term debt strategy that targets a public debt to GDP ratio of 55 percent by
2020; and a pegged exchange rate system. Macroeconomic performance, in turn, has shown consistent economic growth
and declining public debt levels. Real GDP growth rebounded strongly in 2014-2015, to over 6 percent, on the back of
stronger tourism, investment and agricultural sector growth (Table 1). Growth moderated to 3.7 percent in 2016 due to
drought that affected agricultural output, but rebounded quickly to 5.1 percent in 2017, and is expected to reach 5.2
percent for 2018. Adherence to the fiscal rules and tax reforms have strengthened Grenada’s fiscal stance. The fiscal
balance shifted into surplus of 2.3 percent of GDP in 2016—the first in a decade, with a 3.0 percent surplus for 2017.
Meanwhile, a primary surplus of 5.7 percent of GDP was achieved in 2017, by far exceeding the target of 3.5 percent set
by the Fiscal Responsibility Act. Debt restructuring which began in 2013, has resulted in the successful renegotiation of
debt obligations with the insertion of hurricane clauses and lengthening of maturities.4 This has significantly improved
but required structural reforms. These reforms were needed to create conditions for economic growth so that debt reduction was not achieved at the expense of economic growth but rather led to a virtuous cycle of lower debt and faster economic growth. The framework was structured around four pillars, exactly the same as those in the Program’s PDOs. 4 The hurricane clause provides for automatic liquidity relief from debt servicing in the event of a qualifying disaster.
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the post-restructuring redemption profile of Grenada’s debt and lowered interest costs. The public debt-to-GDP ratio
declined to an estimated 70.8 percent in 2017 and is on track to fall below 55 percent by 2020. FDI inflows have been
consistently above 8 percent of GDP since 2015 as conditions for private investment have improved. International
reserves are adequate, covering 3.5 months of imports in 2017. Inflation is low and stable, and the banking sector remains
sound. Having undergone significant balance sheet shore up, banks are profitable and adequately capitalized. At the close
of the IMF ECF arrangement in May 2017, it was concluded that Grenada had achieved the core objectives of the ECF-
supported macroeconomic program of restoring fiscal sustainability, strengthening the financial sector and creating
conditions for sustainable growth.
Pillar 1: Improved Investment Climate and Competitiveness
41 The achievement of the first objective of improved investment climate and competitiveness is Moderately
Satisfactory. Major progress towards investment climate reforms in tourism, agribusiness, trade logistics, PPPs and the
energy sector, as measured by Key Development indicators and other outcomes support this rating.
Objective 1.1: Strengthening the Institutional Governance Framework for the Tourism Sector
Key Indicator:
• Status: Exceeded. Tourist Receipts (Baseline 2013=EC$307 million; Target 2018=EC$332 million; Actual 2017=
EC$447.9 million).
42 The Government’s Tourism Strategic Plan for 2011-2014 aimed to increase tourist arrivals, length of stay,
receipts and employment in Grenada’s tourism sector. Its total contribution to GDP and employment are 23 percent and
21 percent respectively and it is responsible for bringing an increase in private capital flows for tourism-related
construction projects. When PRBDP1 was being formulated, the lack of a governance mechanism for the tourism sector
impeded the development of a shared and holistic vision and common implementation strategy. Efforts to modernize
sector governance gained momentum with the enactment of the Grenada Tourism Authority (GTA) Act in January 2014,
supported as a Prior Action under PRBDP1. The act established the GTA as a statutory body, tasked with overseeing the
tourism sector, as well as designing and implementing sector policies. PRBDP2 instituted a new regulatory framework for
the tourism sector in accordance with the GTA Act. Recognizing the importance of publicity and promotion for the growth
of tourism, the GTA began by formulating a Strategic Marketing and Product Development Policy through a consultative
process with private sector participation. The policy called for: (i) the creation of an internationally recognized “Pure
Grenada” brand; (ii) the development of cultural tourism as a discrete subsector; (iii) the prioritization of the yachting
and eco-tourism subsectors, and (iv) the launching of joint marketing initiatives with airlines in key source markets. At
the time of approval of PRBDP2 and responding to four regulations to the GTA Act that had been approved in 2015, the
team had proposed to include a trigger for PRBDP3 related to the establishment of an Airlift Committee with a broad
mandate to renegotiate airlift agreements with international carriers, to improve tourism receipts and reduce public
expenditures related to subsidy payments, or minimum revenue guarantees for international carriers. This trigger was
dropped however due to the change in the Government’s strategy and its expected timeline.
43 The PRBDP series achieved Objective 1.1, as measured by the Key Indicator defined to measure progress. Tourist
Receipts increased from EC$307 million in 2013 to EC$447.9 million in 2017 and EC$406.9 million from January to June
2018. Some caution is warranted with this indicator, however. While the Government’s institutional reforms to improve
the implementation of sector strategies no doubt helped achieve these results, there are exogenous factors such as an
improving international environment and the absence of hurricanes and other disasters that undoubtedly helped to
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facilitate this target. Nevertheless, between 2013 and 2017 growth of tourism in Grenada has well exceeded that in the
rest of the OECS countries.5
Objective 1.2: Improving the Productivity and Competitiveness of the Agribusiness Sector
Key Indicators:
• Status: Partially Achieved. Leasing out of Government-owned agricultural estates to private entities (Baseline
2013=none; Target 2018=at least 3 Government-owned estates leased; Actual 2018=2);
• Status: Exceeded. Area cultivated at leased Government-owned agricultural estates (Baseline 2013=zero acres
out of a total of 379 cultivatable acres of Government-owned land selected for PPPs; Target 2018=186 acres;
Actual 2018=205 acres);
• Status: Partially Achieved. Number of farmers served by MNIB (Baseline 2013=1,623; Target 2018=at least 2,500;
Actual 2018=2,000); and
• Status: Exceeded. Percentage of licensed food premises and street food premises in Grenada that have been
inspected by the Food Safety Authority under the Food Safety Act (Baseline 2013=zero; Target 2018=75 percent
share of food premises licensed; Actual 2018=80 percent).
44 The PRBDP series supported the Government’s efforts to improve the productivity and competitiveness of the
agribusiness sector, increasing value added in the sector by boosting its technological sophistication and strengthening
linkages between agriculture and tourism. Specifically, it aimed to boost the productivity and export competitiveness of
agricultural products such as nutmeg and cocoa that alone represented about 50 percent of merchandise exports. It
aimed to do so by: (i) commercializing loss-making Government-owned estates, attracting private investment and
encouraging the use of improved technologies in those estates; (ii) strengthening agricultural extension and marketing
services by modernizing the role of the Marketing and National Importing Board (MNIB) into a voluntary, demand-driven
provider of extension and marketing services, and (iii) establishing an appropriate food-safety and product-quality
regulatory framework adopting international standards to facilitate exports and improve linkages to the tourism sector.
45 The PRBDP series substantially achieved this objective, as measured by the Key Indicators defined to measure
progress. The Government had early success in the commercialization of two out of four state-owned agricultural estates.
As Prior Actions under PRBDP1 and PRBDP2, the Government appointed a committee which outlined the criteria for the
commercialization of its estates. By the time PRBDP3 was approved, the Government had, as a Prior Action, signed two
commercial agribusiness lease agreements with separate private entities. These agreements have been effective since
June 2015, with appropriate safeguards in place, but the experience to date has been mixed.6 Even as the Government
5 From 2013 to 2017, total receipts, as the main result indicator of the DPC, reached EC$447.9 in 2017 and well exceeded the target of EC$332. It increased 18.5 percent cumulatively in Grenada between 2013 and 2017, while only 10.5 percent in the rest the OECS countries. The number of jobs in tourism increased 25.7 percent cumulatively from 2013 to 2017 in Grenada; while the rest of OECS experienced a more modest expansion of 14.4 percent. Growth in total arrivals in Grenada also exceeded regional counterparts at 43.3 percent versus 26.7 percent in the OECS during the same period. 6 The first estate, Belle Vue, is performing well, with increased cocoa and nutmeg production. The second estate, Grand Bras, has not progressed as expected because the private investors have not been able to mobilize the resources required to commercialize the estate. A third estate, Mt. Reuil, has been earmarked for commercialization but the Government has not been able to finalize any leasing arrangements due to concerns that the property does not lend itself well to mechanization. A fourth potential estate, Lim Blair, has been identified, and a potential investor has expressed interest.
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remains committed to the leasing of additional estates, terms and conditions in lease agreements that mandate
production of cocoa and nutmeg may be proving restrictive to investors who seek to commercialize other products on a
larger scale. In addition, the requirement for private investors to contribute to severance packages of existing workers
may also serve as a deterrent to potential investors. Nevertheless, with only two estates commercialized, the area
cultivated at leased Government-owned agricultural estates totaled 205 acres in 2018, surpassing the 50 percent target
of 186 acres set out in the Program.
46 It had been estimated that only 58 percent of tourism expenditures filtered into local economies in the OECS and
reforms to the MNIB, launched in its strategic plan, were expected to better facilitate economic linkages between tourism
and agribusiness sectors. It would do so by enabling the sale of local agricultural products to hotels, restaurants and
resorts upon their meeting the hospitality industry’s demands in terms of volume, quality consistency and safety
verification. As a Prior Action under PRBDP2, the Government had by December 2014 restructured MNIB, expanding its
role to include the provision of information on markets, product quality and standards, as well as marketing services,
available on a voluntary, demand-driven basis. The number of farmers served by MNIB increased from 1,623 in 2013 to
2,000 by 2018, reflecting less than half of the targeted increase set for this result indicator. However, this indicator, that
was expected to serve as a proxy for linkages between tourism and agribusiness, does not adequately capture the total
extent of extension services provided to farmers. That is because MNIB is only one extension service provider that faces
competition from other agencies, including Non-Governmental Organizations that provide similar services. 7 The
establishment of an internationally harmonized regulatory framework on quality and safety standards for agricultural
products was required to expand access to export markets and enable producers to meet the hospitality industry’s quality
and safety requirements. This framework was established by Parliament’s enactment of the Food Safety Act (a Prior
Action for PRBDP3). Since its approval in 2015, 80 percent of licensed food premises and street food premises in Grenada
have been inspected by the newly-established Food Safety Authority, exceeding the Program target.
Objective 1.3: Strengthening the Business Environment through Improved Trade Logistics
Key Indicators:
• Status: Not Yet Achieved. The number of border control agencies processing trade transactions through
ASYCUDSA World (Baseline 2013=2 agencies; Target 2018=at least 6 agencies; Actual 2018=2); and
• Status: Achieved. Number of agencies sharing trade and taxation related information through ASYCUDA World
(Baseline 2013=zero; Target 2018=at least 2; Actual 2018=2).
47 The PRBDP supported reforms to trade logistics and the administration of cross-border trade, an important
aspect of the Government’s economy-wide investment climate reforms. A new Customs Bill that aligns Grenada’s
legislation with international good practice and enables the establishment of a modern customs administration through
modern risk management, electronic processing, record keeping, and audit powers, self-assessment and clear
accountability and delegation of authority was approved by Parliament in 2014, supported as a Prior Action under
PRBDP1. Also, to facilitate and reduce average clearance time for border-control procedures, the Government aimed to
process at least 80 percent of all trade transactions through the Automated System for Customs Data (ASYCUDA) World
by the end of the PRBDP series. ASYCUDA World allows traders to submit declarations through a web-enabled processing
system, reducing the need to physically visit customs facilities. Together with the establishment of a single payment
7 Actual purchases of local agricultural produce from commercial buyers, including hotels and supermarket chains, increased by 25 percent each year between 2013 and 2015.
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point, the use of ASYCUDA World was expected to reduce by half the average clearance time for border-control
procedures. Implementation of this system and the establishment of a single-payment point took longer than expected
due to software, budgetary and professional-skills constraints, as well as the extensive coordination and negotiation
required among multiple agencies. In view of slower than expected implementation of this system, a related Prior Action
for PRBDP2 was modified to a trigger for PRBDP3. By the time PRBDP3 was prepared, these difficulties persisted, and the
Prior Action for PRBDP3 was limited to the progress that had been made. i.e., connecting the Bureau of Standards (of the
MoFE) to ASYCUDA World, and to improve interagency coordination by providing the Inland Revenue Department and
the Central Office of Statistics, both under MoFE, access to statistical data from ASYCUDA for improved tax compliance
and trade monitoring. As a Prior Action under the new First Fiscal Resilience and Blue Growth Development Policy Credit,
the Government has signed a contract for the upgrade of the ASYCUDA which includes the expansion of the ASYCUDA
World Licenses and Permits module to: (i) incorporate three additional trade-related government agencies into the
automated electronic clearance processing of import and export consignments; (ii) implement an exemption module to
assist in the processing of conditional duty relief, exemptions, concessions and waivers, and (iii) implement a system of
e-payment services with financial institutions. These changes have brought benefits, defined clearer processes, provided
more chance for interaction with the public and greatly improved transparency. Significant progress has been made
recently following the upgrade of ASYCUDA in September 2018, and the remaining agencies are scheduled to approve
their license in the application on a phased basis. Specifically, integration of border-control agencies in the Ministry of
Health, the Royal Grenada Police Force and three units in the Ministry of Agriculture is scheduled by June 2019.8 Currently
all trade-related transactions in the Customs Division are processed through ASYCUDA. In addition, a single payment
point for trade duties and taxes was established for all ports in March 2018. Data sharing by IRD and the Central Office
of Statistics continues, but there is no immediate intention to integrate other agencies. The PRBDP series substantially
achieved Objective 1.3, as measured by the Key Indicators defined to measure progress.
Objective 1.4: Promoting New Investments under a Public-Private Partnership Policy and Institutional Framework
Key Indicator:
• Status: Achieved. Share of PPP projects under development that conform to the processes and requirements
defined in the PPP Policy (Baseline 2013=zero percent; Target 2018=100 percent; Actual 2018= 100 percent of
projects under development);
48 The Government is committed to increasing both domestic and foreign investment. The PRBDP series supported
its efforts to expand the use of Public-Private Partnerships (PPPs) to mobilize private investment in infrastructure
and public services under a well-defined policy and institutional framework. The Government’s PPP policy,
approved in February 2015, outlined principles and processes for identifying and managing PPPs. It included a
strategy for developing a PPP pipeline and defined institutional responsibilities for implementing PPP projects (a
Prior Action for PRBDP2). As a Prior Action under PRBDP3, the Government, by Cabinet Resolution, established the
necessary institutional arrangements within the MoFE to ensure that PPPs are prepared and managed according
to the approved guidelines. A PPP Policy Steering Committee was established under the MoFE and received
assistance from the Caribbean Regional Technical Assistance Centre and the World Bank’s regional PPP support
program. It meets whenever a potential PPP project is to be discussed. A PPP unit to support the work of the
8 The units in the Ministry of Agriculture are scheduled for the first phase, to be completed by December 2018.
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Steering Committee was also slated to be established in the Macroeconomic Policy Unit of the MOFE. However,
the Government has delayed staffing the unit, citing the lack of a steady stream of projects in the pipeline.9 The
Government’s low appetite for risk and strong emphasis on finding the right fit are factors in the slow progress in
establishing suitable PPPs. In this context, while still supporting its PPP Policy, the Government is reconsidering its
plan to establish a separate PPP unit. It feels that the added expense is not justified given the absence of a pipeline
of PPP projects and believes staff in other units can handle preparation and management of any future
partnerships. With the finalization in September 2018 of the PPP between the Government and Digicel, an ICT
company, under the World Bank-supported Caribbean Regional Communications Infrastructure Program (CARCIP),
the key indicator for Objective 1.4 is met.
Objective 1.5: Strengthening the Policy and Regulatory Environment for the Energy Sector
Key Indicators:
• Status: Exceeded. Share of renewable energy in total installed power-generation capacity (Baseline 2013=1
percent; Target 2018=3 percent; Actual 2018=6.3 percent);
• Status: Partially Achieved. The Public Utilities Commission is fully operational (Baseline 2013=no; Target
2018=yes, with evidence from the Government that PURC has (i) issued a three-year business plan; (ii) a
dedicated place of work; (iii) hired staff, and (iv) an operating budget; Actual 2018=PURC has (i) issued a
three-year business plan; (ii) been provided with a dedicated place of work; (iii) hired a Chief Executive Officer,
a Regulatory Economist and a high-level Administrator, and is short-listing for Engineers, and (iv) been
provided an operating budget.
49 The high and volatile costs of electricity in Grenada reduce the competitiveness of enterprises and increase the
burden on the poor, and the country’s dependence on imported diesel exposes Grenada to oil price volatility and
contributes to climate change. The Government aimed to strengthen the policy and regulatory environment for the
energy sector to: (i) reduce electricity tariffs; (ii) incentivize investment in renewable energy, and (iii) progress toward a
low carbon economy. The Government’s National Energy Policy: A low carbon development strategy for Grenada,
Carriacou, and Petite Martinique, adopted in 2011 outlined a twenty-year vision for the energy sector to be achieved
within a competitive and liberalized commercial and legislative framework that attracts independent power producers.
The Government was participating in setting up a regional regulator (the Eastern Caribbean Energy Regulatory Authority,
ECERA), supported by an IDA Credit, that was assisting OECS countries in establishing independent energy regulatory
bodies and enhanced regulatory procedures. In Grenada, ECERA has assisted the Government to establish the legislative
framework for a new Public Utilities Regulatory Commission (PURC), approved and published in the Government Gazette
on July 15, 2016. As a Prior Action supported by PRBDP3, the Government enacted the Public Utilities Regulatory
Commission Act establishing a national independent energy regulator and endorsed the MoFE’s participation in the
ECERA. This legislation formally established the PURC and facilitates its engagement with ECERA. Progress towards the
Key Outcome Indicator is advancing steadily, despite minor setbacks in recruiting staff of the required caliber and
expertise. To date, the following requirements to fully operationalize the PURC have been met: (i) a draft business plan
was published in November 2015,; (ii) a dedicated place of work has been provided at the Petro Caribe building and all
9 Although several potential PPP projects had been identified when the Program was initially formulated (Geothermal Energy, the Grenada Postal Corporation, the Fort George Tourist Facility and the Waste-to-Energy program) only one project has been approved, and this, in a regional context.
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office equipment and supplies have been procured; (iii) a Chief Executive Officer, a Regulatory Economist and a high-level
Administrator have all been hired and are in place, and PURC is presently short-listing for Engineers, and (iv) funding for
the PURC’s operation has been budgeted. The PURC is expected to be fully operational by January 2019. In parallel, the
Government pursued renewable energy initiatives with the national electric utility and other stakeholders, including
assessing the potential for geothermal energy, building a wind farm, and facilitating the installation of additional
distributed photovoltaic systems on public, commercial and residential buildings. Progress towards the Key Indicator
relating to the share of renewable energy in total installed power generation capacity was exceeded, as presently 6.3
percent of Grenada’s energy capacity is accounted for by renewable sources, mostly solar. A total of 9.6 percent of peak
demand is met through renewable energy sources. The PRBDP series Achieved this objective, as measured by the Key
Indicators defined to measure progress.
Pillar 2: Improved public resource management
50 The achievement of the second objective to support improved public sector management and better targeting
of social safety net programs is Satisfactory. Major progress towards policy and institutional reforms in public service
modernization, public procurement, financial sector regulation and supervision, debt management and administration
of social safety nets, as measured by Key Development indicators and other outcomes support this rating.
Objective 2.1: Promoting the Effectiveness and Efficiency of the Public Sector through Public Service Modernization
Key Indicator:
• Status: Achieved. Development of job descriptions (Baseline 2013=none; Target 2018=The Ministry of
Education, Human Resource Development and the Environment has formally established job descriptions
with clearly defined competencies and responsibilities for the key task areas of public administration,
including planning, monitoring results, and strategic personnel management; Actual 2018= All 27 job
descriptions developed and approved).
51 The PRBDP series supported efforts to promote the effectiveness and efficiency of the public sector through two
dimensions of public sector modernization: (i) improving management of public employment, and (ii) introducing formal
accountability for results in the public administration. Supported by a Prior Action under PRBDP1, the Government
developed its Public Sector Modernization Strategy that established inter alia procedures for: (i) strategically realigning
public employment; (ii) strengthening management of selected agencies, and (iii) developing a results focus in planning
and budgeting. These measures were expected to reduce the public sector wage bill as a share of GDP, thereby supporting
the Government’s fiscal consolidation efforts as agreed under the ECF. This would be achieved by adjustments in staffing
and relative wages and stricter controls on new hiring, as well as monitoring the process of staff reallocation from low to
high demand activities and support development of adequate skills among public employees. This was to build upon the
results of human resource audits carried out in 2012-2013 for three ministries and one department (supported by a
World Bank IDF Grant), with the objective to align public sector positions and employee skills with the functions and
programs for which those organizations are responsible.10 The PRBDP series originally envisioned that human resource
10 With assistance from the World Bank IDF Grant (TF#95433) which closed in 2012, the Government conducted human resource audits in pilot ministries and departments, including the Ministries of Health, Agriculture, and Legal Affairs, and the Supreme Court Registry. Audit recommendations included strengthening strategic planning, human resources and performance-management systems.
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audit recommendations would be followed by action plans developed and implemented under PRBDP2. Nevertheless,
institutional weaknesses and insufficient financing for technical assistance hampered the implementation of the action
plans. As the Department of Public Administration (DPA) was reviewing staff allocations and job descriptions in the
Ministry of Education (MoE, which has the largest number of public employees), the trigger for PRBDP2 was dropped and
the trigger for PRBDP3 was modified to support the establishment of the MoE’s computerized personnel records for
teachers and ministry personnel to increase the efficiency of human resource management. The launch of the MoE’s
Education Management Information System (EMIS) to manage human resources data in September 2016 was a Prior
Action for PRBDP3. Solid progress has been made with computerizing personnel records for teachers and ministry
employees, as well as for student enrollment. The system is expected to facilitate workforce planning in the public sector
by enabling the MoE to readily access reliable data on public employees to optimize the total number and allocation of
teachers and ministry personnel, both regionally and by school. Efforts to improve public sector productivity within
fiscally sustainable parameters are being continued under the First Fiscal Resilience and Blue Growth Development Policy
Credit. As a Prior Action under that operation, the Government approved a Compensation Management Policy
Framework for the public sector in line with the parameters of the Fiscal Responsibility Act. Compensation reform will
involve setting parameters for public service compensation within a sustainable and affordable wage bill and rationalizing
and standardizing disparities in compensation and strengthen the alignment of pay to performance.
52 The PRBDP also supported the Government’s efforts to improve strategic planning capacity and strengthen
accountability. The Government piloted strategic planning techniques—including the development of a three-year
corporate plan and an annual action plan—in three ministries and the Department of Public Administration (DPA), then
scaled them up to include all ministries and departments. Combined with the recommendations from the human
resource audits, the action plans support results-base management according to the objectives and expected results set
for each ministry. The Government also introduced mechanisms to hold public agencies accountable for results. The 2014
Public Financial Management Act mandated that all ministries, departments, and statutory bodies submit quarterly and
annual performance reports to the Cabinet Office; the first quarterly reports were prepared in 2015 and the first annual
performance report was presented to Parliament in 2016. These steps are critical to assert the oversight of the Cabinet
Office. Finally, the DPA has developed generic job descriptions for key areas of public administration, such as planning
and results monitoring, organizational management, and human resources. These generic descriptions are being adopted
by line ministries and departments, and the MoE was the first public entity to adopt the new job descriptions, with the
expectation of strategically reorienting employees as needed in order to enhance administrative efficiency and
institutional performance. The MoE had developed all 27 job descriptions by June 2017. In May 2018, they were approved
by the technical review team with signoff by the Permanent Secretary of Education. Final approval of the job descriptions
was issued by the Permanent Secretary of the DPA. All of the job descriptions have been adopted by the MoE, and the
Government is proceeding systematically to conduct functional reviews across all ministries on a phased basis, by
performing horizontal and vertical reviews in five core areas: (i) planning; (ii) human resource management; (iii) registry;
(iv) finance, and (v) procurement. The PRBDP series Achieved this objective, as measured by the Key Indicators defined
to measure progress.
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Objective 2.2: Strengthening Public Procurement Systems
Key Indicator:
• Status: Not Yet Achieved. Publication of contract awards (Baseline 2013=zero; Target 2018=All contract
awards are published, in conformity with the new Procurement Law; Actual 2018=Expected for January
2019).
53 Significant progress was made in strengthening Grenada’s public procurement system, including the institutional
reforms necessary for making the system more transparent and efficient, but the ultimate implementation of the
procurement website is still awaiting completion of final activities. Public procurement in Grenada operated under the
framework of an outdated and not completely implemented 2007 Public Procurement and Contract Administration Act.
Reforms to increase transparency, strengthen the private sector’s confidence and make systems less bureaucratic and
more oriented towards results and value-for-money was a priority for the success of Grenada’s strict fiscal adjustment
program. A new Public Procurement Law, consistent with international best practices, was approved by Parliament in
August 2014 (a Prior Action for PRBDP2) to increase efficiency by centralizing procurement in select government
agencies, leveraging economies of scale, reducing transaction costs and alleviating capacity constraints at the
decentralized level. The law provides for electronic and regional procurement, and includes provisions related to conflict
of interest debarment, whistle-blower protection and due process for bidders. A Public Procurement Board is responsible
for policy advice and operational oversight, and an independent Review Commission is tasked with addressing bidder
complaints. In June 2015, the Cabinet approved regulations governing: (i) public procurement and the disposal of public
property, including setting monetary thresholds for the application of various procurement methods and providing
detailed procedural rule for the operations of institutions set up under the law; (ii) the activities of the Review
Commission, including the procedural rules for the submission and handling of appeals by bidders, and (iii) the activities
of the Disposal Committee and procedures for disposing of state-owned assets. Subsequently, as a Prior Action under
PRBDP3, the Government through the MoFE: (i) appointed the Chief Procurement Officer in the MoFE, and (ii) fully
staffed and operationalized (a) the Public Procurement Board; (b) the Public Procurement Review Commission, and (c)
the Public Procurement Disposal Committee. A website for the publication of procurement information, including the
award of contracts was launched in May 2018 (www.procurement.gd). Tenders for disposal of public assets have been
published on the website and information of contract awards is available upon request. Nevertheless, members of the
three procurement agencies are on a voluntary basis so the performance of their responsibilities is compromised. For
example, quarterly meetings cannot be guaranteed in the Public Procurement Disposal Committee and decisions often
fall to the discretion of the Committee Chair, in conjunction with the Chief Procurement Officer. Also, the communication
gap between the Chief Procurement Officer and the Public Procurement Board has caused a delay in the publishing of
contract awards. Recognizing the importance of public procurement, the Government is working to amend related
regulations and expects to publish all contract awards in conformity with the new Procurement Law by the end of January
2019. The PRBDP series has not yet achieved this objective, as measured by the Key Indicators defined to measure
progress.
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Objective 2.3: Improving Financial Sector Stability through improved Regulation and Supervision
Key Indicator:
• Status: Exceeded. Provision for loan losses to nonperforming loans (NPL) for the banking sector (Baseline
2013=30 percent of NPLs; Target 2018=60 percent of NPLs; Actual 2018=71.7 percent).
54 The PRBDP series helped improve the stability of Grenada’s financial sector through improved regulation and
supervision. The global financial crisis had severely affected the banking sector in many Caribbean countries, and the
PRBDP series supported Grenada’s participation in regional efforts to strengthen banking regulation and supervision to
bolster the Eastern Caribbean Central Bank’s (ECCB) resolution powers and reinforce the loan classification and
provisioning requirements (since banking regulation and supervision and the framework for bank resolution are regional
results hinged mostly on the implementation of regional reforms). In February 2014, the Eastern Caribbean Currency
Union (ECCU) Monetary Council approved a regional strategy to strengthen the banking sector that included: (i) a
comprehensive diagnostic; (ii) legal and institutional reforms with a new banking and asset management company (AMC)
legislation and the establishment of a regional AMC; and (iii) restructuring strategies for weak banks. The Government
completed the diagnostic and valuation of the assets of Grenada’s weak banks in the first half of 2015. A new legal
framework consisting of the uniform Banking Act and amendment to the ECCB Agreement Act was approved by
Parliament in April 2015 (a Prior Action under PRBDP2). It significantly strengthens prudential regulation, supervision and
problem bank resolution. Based on the comprehensive diagnostic and approval of the legal framework, the ECCB and the
Government began discussing how to incorporate the results of the analysis into restructuring plans. The PRBDP series
achieved this objective, as measured by the Key Indicator defined to measure progress: by June 2018, the provisions as
a percentage of NPLs were 71.7 percent, surpassing the Program target of 60 percent. (The provisions at the end of March
2018 as a percentage of NPLs was 64.8 percent.)
Objective 2.4: Strengthening Social Safety Nets
Key Indicator:
• Status: Achieved. Share of SEED program beneficiary households identified in the Phase Out Plan as
ineligible and non-vulnerable that have been transitioned out of the program (Baseline 2013=zero;
Target 2018=95 percent; Actual 2018=100 percent).
55 The PRBDP series was very successful in strengthening the system of social protection through safety nets and
has made good progress in phasing out ineligible household beneficiaries from the main safety net program. The
Government’s NEP aimed to strengthen its social safety nets, ensuring not only that they reached the poorest and
neediest households but also to improve public resource management through better-targeted social spending. Based
upon recommendation from the 2009 Social Safety Net Assessment (SSNA), the Government had created the conditional
cash transfer program ‘Support for Education Empowerment and Development’ (SEED) that consolidated the top three
of Grenada’s over 30 social protection programs and was working to develop a robust targeting mechanism, the
Grenadian Living Conditions Indicator (GLCI), to re-certify existing beneficiary households and identify new ones. As a
Prior Action under PBDRP1, the Government adopted a policy framework for the strengthening of the design and
programming of its social safety nets, that included: (i) strengthening the systematic production and use of evidence on
poverty and vulnerability for better policy design and programming (research, monitoring and evaluation); (ii) increasing
the poverty reduction focus through social safety net policy design and programming; (iii) carrying out social and legal
reforms to improve access to services for the poor and vulnerable; (iv) helping families achieve economic independence,
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and (v) ensuring an efficient, effective, transparent, participative and accountable social protection service delivery
(modernizing systems and building capacity).
56 Starting in 2014, the Ministry of Social Development and Housing (MoSDH) began working to develop the GLCI
and pilot the targeting instrument. By 2015, the Beneficiary Management Information System was operational, and the
GLCI began being applied to existing SEED households beginning in end-2015. Given strong progress, the indicative trigger
for PRBDP2, that required the Government to include the establishment and implementation of eligibility criteria for the
application of the targeting instrument and started its implementation was modified into a Prior Action that also included
a requirement that the Government prepare a Phase-Out Plan to remove ineligible households. A phased approach was
considered essential given the political and financial implications of applying a targeting instrument. The Phase-Out Plan
was approved by the Government in August 2015, providing an action plan for managing the phase out process for
ineligible households and setting a road map for complementary enrollment of new households that had not previously
been receiving SEED transfers but were now eligible based on new targeting criteria. As a Prior Action for PRBDP3, the
Government institutionalized the implementation of the Phase-Out Plan for the SEED program, notifying all ineligible
beneficiary households of their status and completing the transitioning out of the program for the first two of three
groups (at least 70 percent) of beneficiary households identified in the Phase-Out Plan as ineligible and non-vulnerable.11
All the households falling in the ‘Non-vulnerable’ category, totaling 434, were notified and phased-out; only 34 have
appealed the decision. The Program has therefore exceeded the 95 percent target for the share of ineligible SEED
Program beneficiary households identified in the Phase-Out Plan that were transitioned out of the program.
57 The removal of ineligible beneficiaries has allowed the Government to increase the coverage of the poorest
households in the SEED Program, a complementary aspect to the objective of strengthening social safety nets. Though
not explicitly monitored in the Program, social safety net coverage has also improved. One of the result indicators under
the recently closed Social Safety Net Project showed that the percentage of poor households receiving the SEED cash
transfer increased from 69 percent in 2016 to 82 percent by the close of the project in September 2018, surpassing the
target of 80 percent. In addition, the Government has been using the new targeting tool exclusively for new enrollments
in SEED since 2016 and plans to apply the tool for all of its social programs. It has also recently completed installation of
the new Beneficiary Management Information System and sees it as a critical element in the development of a central
beneficiary registry.
Objective 4.1: Strengthening the Institutional Debt Management Capacity and Facilitating Debt Portfolio Restructuring12
Key Indicator:
• Status: Exceeded. Share of public and publicly guaranteed debt with a maturity of less than 90 days
(Baseline 2013=17 percent; Target 2018=10 percent; Actual June 2018=4.2 percent).
11 The GLCI targeting tool grouped households into 5 categories, based on need. It was determined that SEED eligibility would be defined as households falling within the ‘Most Deprived’ and ‘Mid Deprived” categories. However, considering the challenges faced by existing SEED households and the need to ensure a smooth transition, the MoSDH decided that existing Beneficiary Households falling in the ‘Least Deprived’ and ‘Vulnerable’ categories would be given a grace period to remain on SEED for two years unt il mandatory recertification. Thus, only ineligible households falling in the ‘Non-vulnerable’ category were included on the Phase-Out list to be transitioned out of the program, on a staggered basis, over 9 months. 12 This objective was a separate Pillar 4, Facilitate debt portfolio restructuring and enhance debt management, under PRBDP1. It was later included under Pillar 2 for each of PRBDP2 and PRBDP3.
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58 The measures under the PRBDP series improved the composition of Grenada’s debt portfolio and contributed to
the country’s long-term debt sustainability. The Government has made steady progress in improving its debt profile, and
the share of public and publicly guaranteed debt with a maturity of less than 90 days fell from 17 percent in 2013 to 7.9
percent in 2017. As of June 2018, it had declined to 4.2 percent, as the Government extended maturities of short-term
debt on the Regional Government Securities Market (RGSM) in February 2018.
59 At 100 percent of GDP at end 2013, Grenada’s debt to GDP ratio was among the highest in the world. The
Government’s cash flows had come under pressure, and discussions with creditors on a comprehensive debt
restructuring were underway. To complement the measures taken by the Government on debt restructuring, the PRBDP
series aimed to strengthen the Government’s capacity to ensure medium-term debt sustainability by building upon
efforts supported by the ECCB’s Debt Management Advisory Services to bolster institutional capacity on debt
management. The series would also help develop an in-house detailed Medium-Term Debt Management Strategy
(MTDS), aligned with budget discussion to give a clear signal to markets and creditors of the country’s medium-term
commitment to its debt strategy. Consistent with the 2015 Public Debt Management Act, the MoFE’s Debt Management
Unit (DMU) developed an MTDS, which was submitted to the Cabinet in October 2015. The DMU subsequently prepared
a revised MTDS to include progress achieved in the debt restructuring process as of end-2015. The MTDS is expected to
allow the Government to analyze how debt composition affects relative costs and risks by using scenario analysis to
achieve a desired composition that captures the Government’s tradeoff preferences.
60 By the time PRBDP3 was approved, the DMU was implementing the recommendations of the joint World Bank-
ECCB technical assistance mission that developed the Debt Management and Performance Assessment (DeMPA) in July
2015.13 It developed a statistical bulletin for publication as part of the debt-management framework and incorporated it
into the Debt Sustainability Analysis (DSA), the MTDS and the debt portfolio review. An annual borrowing plan, consistent
with the MTDS was completed in 2016. The DMU adopted its Procedures Manual that was developed with assistance
from the ECCB. And finally, as a Prior Action under PRBDP3, the Government approved the MTDS for the 2016-2018
period. A second DeMPA was carried out in 2018 and found improvements in several areas, including enactment and
implementation of key debt management legislation, development and reporting results of the DSA, development and
approval of the MTDS, as well as publication of a quarterly debt statistical bulletin. The report noted that consolidation
of debt management functions, as well as several other areas required further enhancement.
Pillar 3: Enhanced resilience against natural disasters
61 The achievement of the third objective to enhance resilience against natural disasters is rated Moderately
Unsatisfactory, as targets for Key Indicators were not met. However, as described below, the legislative and institutional
reforms approved within the context of the PRBDP series have laid the regulatory basis for improving physical planning
and the Bank is providing further support to the Government under the follow-on Fiscal Resilience and Blue Growth
Development Policy series.
13 The DeMPA methodology is used to assess the strengths of debt management policies and operations and identifies areas requiring further improvement. Five debt management areas are included in the DeMPA evaluation, including governance and legal framework, coordination of debt with monetary and fiscal policies, borrowing and related financing activities, coordination with cash management and operational risk management of central government debt including allocation of roles and responsibilities.
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Objective 3.1: Reducing the Risk to External Natural Hazard Shocks through a Strengthened Physical Planning Regulatory
System
Key Indicators:
• Status: Not Yet Achieved. Share of membership of the Grenada Institute of Professional Engineers (GIPE)
registered in accordance with the 2015 Engineering Act (Baseline 2013=zero percent; Target 2018=40
percent; Actual 2018=0); and
• Status: Not Yet Achieved. Establishment of the Building Inspection Unit at the Ministry of Communication,
Works, Physical Development, Public Utilities, ICT and Community Development (Baseline 2013=none; Target
2018=unit established; Actual 2018=planned).
62 The measures under the PRBDP series are expected to significantly improve the quality of new construction and
reduce the risks associated with natural disasters. Grenada’s high exposure to natural hazards required a series of
initiatives to reduce the risks of shocks arising from these events. The PRBDP series supported short- and medium-term
policy measures to strengthen the physical planning regulatory system. PRBDP1 supported improved building standards,
better zoning processes and planning, and the professionalization of engineers and architects. Specifically, Prior Actions
included: (i) approval of the Grenada Building Code and the Grenada Building Guidelines by the Cabinet; (ii) approval of
the Physical Planning and Development Control Bill, 2014, for submission to Parliament; and (iii) submission to Parliament
of the Architects (Registration) Bill and the Engineers Registration Bill, establishing procedures for the professional
practice of both. PRBDP3 supported enactment of the Building Code Act in 2016 (and Guidelines that were promulgated
by the Executive) and the revised Physical Planning and Development Control Bill as amended in 2017 to introduce
additional regulations to make infrastructure design, including for housing, more resilient to extreme weather events.
The new building codes apply to new as well as existing buildings. In addition to strengthening the resilience of roads,
bridges, and overall built environment to torrential rains, tropical storms and hurricanes, the codes will also contribute
to greenhouse gas emission reductions through energy efficiency improvements.
63 Implementation of the new laws called for the establishment of a Building Inspection Unit at the Ministry of
Communication, Works, Physical Development, Public Utilities, ICT and Community Development to ensure that new
public, commercial and residential buildings were constructed only in safe and regulated areas and in compliance with
the new building codes. The Building Inspection Unit would have complemented the work of the Physical Planning Unit,
which has responsibility for approving building permit applications and conducting quality control but is presently
understaffed and unable to carry out all its quality assurance functions. The Building Inspection Unit, a key result
indicator, has not been established. One reason cited for the delay is the decision to take a regional approach to
harmonizing building codes through an OECS initiative. Another reason, is a lack of high caliber staff, both locally and
regionally, with the requisite technical expertise to carry out quality assurance. In addition, the Physical Planning Unit
has been relocated to the MoFE, amid plans to transition it out of Central Government to an autonomous body. In short,
while during the permit application phase, only plans conforming to the new building codes are approved, there is limited
due diligence during the construction phase to ensure compliance. In 2017, 602 new building applications were approved,
all in accordance with the new codes. Of buildings that went on to be constructed, about 65 percent were inspected for
development control, but only about 2 percent were inspected for quality assurance. These constituted a few large-scale
commercial constructions tagged as pilot cases to test operations for the planned Building Inspection Unit. For the full
operationalization of the unit, more staff with the requisite technical expertise, as well as geographical data for zoning
requirements are needed.
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64 The Program also supported measures to strengthen the physical planning regulatory system through the
professionalization of engineers and architects. The 2015 Engineering Act provided the framework for the registering of
professional engineers through the formation of an Engineering Registration Board, but this has yet to be established. In
the interim, membership in the Grenada Institute of Public Engineers (GIPE), a professional association, is used
unofficially by the Physical Planning Unit and Ministry of Infrastructure and Works to determine certification of engineers
to approve construction plans.14 The GIPE has no legal authority, however, to determine a person’s right to practice as
an engineer. It was intended that by the end of the Program, the share of membership of the GIPE registered in
accordance with the 2015 Engineering Act would have increased from zero percent in 2013 to 40 percent in 2018, but
targets were not achieved for this indicator. 15
3.3 Justification of Overall Outcome Rating
65 The PRBDP series partially achieved its PDO as per the results under each of the individual objectives as described
above, and Outcome is rated Moderately Satisfactory. As can be expected under any operation this complex, progress
among the various objectives has varied, with results under some objectives exceeding those of others. Nevertheless,
despite its complexity, with multiple objectives and activities across many sectors and areas, the PRBDP series provided
a relevant instrument to complement similar assistance by the CDB and the IMF’s ECF-supported program aimed at
restoring short-term fiscal sustainability. Despite issues with the ambitiousness of the first operation as prepared,
subsequent operations were adjusted and adapted to reflect progress and implementation capacity. Together, in a short
six-year period, these three complementary programs have helped restore Grenada’s macroeconomic balances,
including fiscal and external debt profiles, and, through important institutional and policy reforms, helped put in place
the legislative and institutional framework to put the country on a sustainable growth path, with adequate social
protection for vulnerable populations and promising, albeit not yet implemented, arrangements to avoid adverse impacts
from natural disasters (and the economic consequences that any such event would precipitate). These arrangements are
now being supported by the follow-on First Fiscal Resilience and Blue Growth Development Policy Credit (para. 32).
3.4 Overarching Themes, Other Outcomes and Impacts
(a) Poverty Impacts, Gender Aspects, and Social Development
66 The PRBDP’s main poverty impact was through the reforms to social safety net policies. Specifically,
implementation of the new Social Safety Net Policy Framework has resulted in an improved approach to the delivery of
social safety nets, with a unified and more focused mechanism to target benefits to the poor and vulnerable.
(b) Institutional Change/Strengthening
67 By supporting measures to improve fiscal accounts over the medium term, to improve the business environment,
promote private sector participation in the environment, streamline public sector employment and processes, protect
the poor, and improve disaster resilience, the PRBDP series was designed to address fundamental medium-term reforms,
14 The GIPE does due diligence for engineers seeking to join the organization by verifying their level of education and accreditation of institution, and requiring proof of work experience (four years for corporate membership). 15 Communication failure between the Ministry of Infrastructure and Works and the GIPE seems to be at the heart of this matter. The Engineering Act authorizes the GIPE to nominate members to the Registration Board. However, for the Ministry of Infrastructure and Works to consider these nominations, it requires documentation certifying the association has been properly constituted and that the leaders acting on behalf of the association are duly authorized to do so. Inquiry by World Bank staff has brought attention to the issue with a new timeline for the establishment of the Registration Board now set for the first quarter of 2019.
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mostly institutional, that responded to the country’s longer-term development needs. Institutional reform was at the
very center of the PRBDP’s objectives, and achievements are described in detail in Section 3.2. Implementation of
important institutional change and strengthening under the PRBDP counted upon significant analytical and technical
advisory assistance, both by the World Bank and other donors, including assistance provided under investment loans that
complemented the policy areas (Annex 5).
(c) Other Unintended Outcomes and Impacts
68 Not applicable.
3.5 Summary of Findings of Beneficiary Survey and/or Stakeholder Workshops
69 Not applicable.
4. ASSESSMENT OF RISK TO DEVELOPMENT OUTCOME
Ratings: Moderate
70 The Risk to Development Outcome is rated Moderate considering the risks of policy reversals, of not maintaining
outcomes, or of not continuing to pursue further strengthening and enforcement of reforms supported by the PRBDP.
71 The overall risk for PRBDP1 was considered Substantial. The main risks included macroeconomic risks related to
uncertain global development, especially in the euro zone and the United States, to which Grenada is highly exposed. A
weaker than anticipated global recovery would suppress a revival in tourism, remittances, GDP growth and FDI,
exacerbating the acute financing gap and making fiscal adjustment more difficult. Another overarching risk that was seen
as potentially affecting the outcomes of the PRBDP was Grenada’s exposure to natural disasters, especially since if a
disaster materialized, it could impact the productive sector, hamper reforms and add pressures to an already difficult
fiscal situation. Governance and political risks were considered, given the ambitiousness of the program that would
require steady political commitment over the reform period. Finally, implementation capacity risks were also highlighted,
especially in view of the limited number of technical staff in several core ministries. By and large, these risks were
highlighted in each of the succeeding phases of the PRBDP. The overall risk for PRBDP2 was considered High. The increase
in rating may have been due to the still uncertain economic environment, coupled with the fact that several triggers from
the first operation had to be reformulated, dropped or delayed to the third operation. By the time PRBDP3 was prepared,
the overall risk for achievement of the operation’s objectives had fallen to Moderate, mostly reflecting reduced
macroeconomic risk, given notable improvements in Grenada’s macroeconomic situation (rated Moderate), and a
dropping of the governance and political risk, presumably a reflection of sustained political commitment to the reforms
over the two earlier phases. The only risk that PRBDP3 identified as Substantial was the risk related to implementation
capacity risks, and in fact, this was the only risk that materialized over the PRBDP’s implementation period.
72 Prospects for future sustainability of reforms supported under the Program are High, and the risk of policy
reversal or of not sustaining outcomes are Negligible given the results that have been witnessed to date and the vastly
improved macroeconomic situation. Most of the reforms supported by PRBDP are grounded in legislation and require
only continued commitment and continued technical support for the full benefits to be sustained. The risk of not pursuing
further strengthening of reforms is also considered negligible, especially since the Government remains committed to
the PRBDP’s objectives and has continued to pursue further reforms with World Bank support under the First Fiscal
Resilience and Blue Growth Development Policy Credit. The main risk to sustainability continues to revolve around
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institutional capacity. These, however, will likely be mitigated by continuing World Bank and donor technical support in
key reform areas.
5. ASSESSMENT OF BANK AND BORROWER PERFORMANCE
5.1 Bank Performance
(a) Bank Performance in Ensuring Quality at Entry
Ratings: Moderately Satisfactory
73 The World Bank’s performance in Ensuring Quality at Entry is rated Moderately Satisfactory. As a programmatic
operation, preparation is considered preparation of the first operation; preparation of the subsequent operations, and
follow-up thereafter are discussed under Quality of Supervision below. On the positive side, this is supported by: (i)
responding to the Government’s financial and reform priorities in a timely manner; (ii) designing the PRBDP around
critical reform issues that responded to the Government’s program and identified priorities; (iii) grounding the PRBDP’s
design in issues identified in earlier and then ongoing analytical work, and other complementary World Bank-financed
operations; (iv) preparing the PRBDP in close coordination with Grenada’s donors, especially the IMF and the CDB; and
(v) incorporating lessons of previous experience with development policy lending in Grenada, including the need for
simplicity and selectivity in program design, together with a programmatic approach supporting a multi-stage program
with a longer-term horizon for stronger development impact. Shortcomings included: (i) the ambitiousness of the
Program, with multiple pillars and diverse policy areas, and initially very ambitious targets; (ii) underestimating the impact
of weak institutional capacity on implementation, and on the Program’s design, and (iii) issues with the design of the
Results Framework (para. 29).
(b) Quality of Supervision
Ratings: Moderately Satisfactory
74 The World Bank’s performance in Quality of Supervision is rated Moderately Satisfactory. On the positive side,
this is supported by: (i) timeliness in the preparation of the second and third phases of the Program; (ii) flexibility and
pragmatism in adjusting the Program to align with what could be more reasonably achieved in the given timeframe, and
(iii) continued coordination with Grenada’s donors, especially the IMF and the CDB. Shortcomings included: (i) continued
issues with the Program’s Results Framework over time; (ii) lack of proactivity in terms of mobilizing technical assistance
in critical areas, (iii) discontinuity in the World Bank’s Task Team, especially after approval of the second phase of the
Program, and (iv) an apparent lack of implementation supervision in the final phase of the Program due to staff absence
because of illness.
(c) Justification of Rating for Overall Bank Performance
Ratings: Moderately Satisfactory
75 Overall Bank Performance is rated Moderately Satisfactory. Despite issues with Supervision, the flexibility
demonstrated in gradually adjusting the Program to reflect actual implementation and priorities was instrumental in
achieving a Moderately Satisfactory Outcome rating.
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5.2 Borrower Performance
(a) Government Performance
Ratings: Satisfactory
76 The Borrower Performance is rated Satisfactory. This is supported by: (i) continuity in Administration, in
commitment to its fiscal consolidation and growth reform objectives over the implementation period; (ii) commitment
to passage of key legislation that lays the institutional framework for supporting its reform objectives, and (iii) its
pragmatism in terms of adjusting the implementation of its reform Program to what was achievable and to what made
sense, but to nonetheless remain committed to continuing pursuing its objectives in the future. The Borrower questioned
for example whether it made sense for the Program to support the establishment of several new units in Government
when one of the Program’s objectives was to streamline public sector employment, and opted to “house” the functions
of certain units together with similar units that were already existing (e.g., a new PPP Unit when no proposals have been
put forth). Shortcomings included: (i) the lack of technical capacity to pursue difficult reforms in certain areas and (ii)
difficulties in recruiting qualified staff to fill positions in the local market.
(b) Implementing Agency or Agencies Performance
Ratings: Satisfactory
77 Implementing Agency Performance is rated Satisfactory. As the Program had a strong institutional building focus,
the PRBDPL series contemplated implementation by several agencies, under the overall coordination of the Ministry of
Finance (MoFE). The implementing agencies included: (i) Ministry of Tourism; (ii) Grenada Tourism Authority; (iii) Ministry
of Agriculture and Lands; (iv) Marketing and National Importing Board (MNIB); (v) Food Safety Authority (vi) Customs and
Excise Division, Ministry of Trade; (vii) PPP Policy Steering Committee; (viii) Ministry of Infrastructure and Works; (ix)
Department of Public Administration; (x) Chief Procurement Officer in the MoFE; (xi) Ministry of Social Development and
Housing (MoSDH); (xii) Support for Education Empowerment and Development (SEED); and (xiii) Physical Planning Unit.
The MoFE’s commitment and leadership were strong throughout implementation. As mentioned earlier, institutional
capacity was weak in several already established institutions, with higher levels of management in the institutions
stretched in various directions to implement their respective reforms and activities. Other implementing agencies were
created under the PRBDPL series, based on approved legislation, and their performance was mostly strong. The one
exception was the performance of the Physical Planning Unit. The Unit’s weak performance was partly a management
issue, and the Unit was subsequently transferred to the MoFE to be more directly under the leadership of the Minister
of Finance who is also the Prime Minister. The Unit was also affected by efforts to adhere to the timeline of regional
harmonization initiatives, and lack of technical expertise.
(c) Justification of Rating for Overall Borrower Performance
Ratings: Satisfactory
78 Overall Borrower Performance is rated Satisfactory, based on similar ratings for Government and Implementing
Agency performance.
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6. LESSONS LEARNED
79 The use of a programmatic instrument is appropriate when supporting a multi-stage program with a
longer-term horizon, but even this approach requires realism in what is achievable over the implementation of
three operations. The Program Document for the first phase of the PRBDPL highlighted that one of the lessons
learned and incorporated was that a programmatic approach could have a stronger development impact than
a stand-alone one-year program. That lesson holds, and the use of a programmatic approach made sense for
the PRBDPL. Nevertheless, even a programmatic instrument to support a reform to be carried out over an
extended period needs to be realistic in what can be reasonably accomplished during its implementation period.
Under the PRBDPL, several of the initial triggers were overly optimistic and were subsequently adjusted to
equate them with the realities of implementation. As an example, the original indicative trigger for the
management of public employment under PRBDPL2 was that “public employment structure in three ministries
and one government department have been aligned with the functions and tasks of government entities in line
with the recommendations of the HR audit conducted in 2010-2013”. By the time PRBDPL2 was prepared, it
was clear that improving public employment management would require an incremental approach that
reflected capacity limitations.
80 Related to the above, public employment management (and downsizing) requires time. While HR Audits,
strategic staffing plans and job descriptions can be prepared, the actual downsizing cannot take place over
night, especially in a small economy with fewer options for alternative employment. While the reforms
supported by the PRBDPL series have been continuously advancing, and the Government has made progress
in reducing the public sector wage bill, it has done this mostly through a process of attrition.
81 Small countries have different dynamics that need to be considered when developing reform programs
and selecting indicators and targets. The PRBDPL series supported a series of institutional reforms aimed at
promoting private sector involvement, and others at establishing government agencies charged with improving
the physical planning regulatory system, for example. While the Government approved the required legislation
in both areas and established the planned institutional frameworks, there were difficulties in fully achieving
Program objectives. In the case of PPPs, for example, only one partnership was ultimately approved, and this
within the context of a World Bank-supported regional program. Similarly, only three investors have expressed
serious interest in the Government’s agricultural estates, and of these, only two leasing agreements have been
signed, just one of which is operating profitably. Finally, plans for the operationalization of the Building
Inspections Unit and the Public Utilities Regulation Commission have experienced delays due, in part, to lack
of qualified experts in the respective fields. One lesson from the successful establishment of the PPP between
the Government and Digicel, in the context of Grenada’s component in the regional project, implies that a
regional approach should be prioritized for some types of reforms, considering the limitations of small states.
82 While appraisal of reform programs normally identifies sources of analytical and technical work that
helped define the priorities together with sources of ongoing assistance in the respective fields, the analysis
needs to consider carefully those areas in which hands-on, just-in-time technical support will be required to
compensate for weak institutional capacity. There were several areas supported by the PRBDPL series where
more hands-on assistance would have been required by the Government, including but not limited to public
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employment management, energy sector reform and the physical planning regulatory system. The
programmatic development policy finance instrument is not the most appropriate vehicle for providing this
type of technical assistance, especially in environments with capacity limitations. Supervision of these
instruments is normally carried out in the context of preparation of a subsequent phase, and supervision after
approval of the last phase tends to be compromised. The World Bank could have strategically leveraged its IDA
investment lending portfolio to also support complementary activities aimed at capacity-building. Finally, while
continuity in Task Management cannot be expected given staff rotation, as a minimum, a solid hand-over is
desirable to ensure sustained technical support throughout implementation and especially in the final phases
through completion.
83 Policy operations that support fiscal consolidation and a reduction of the public sector should be
cautious of requiring the establishment of separate new units or agencies to implement policies. The PRBDPL
series required the establishment of numerous new units to manage the legislative initiatives it supported.
While the Government has progressed in the establishment of these units, it has now concluded that the
establishment of new, separate units is not always required, and that it might suffice to assign responsibility
for implementation of these initiatives to dedicated staff in existing units. This is the case, for example, of the
PPP Unit, which is now being reconsidered, especially since only few proposals have been put forward.
7. COMMENTS ON ISSUES RAISED BY BORROWER/IMPLEMENTING AGENCIES/PARTNERS
(a) Borrower/Implementing agencies
84 No issues were raised by the Borrower.
(b) Cofinanciers
85 Not applicable.
(c) Other partners and stakeholders
86 Not applicable.
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ANNEX 1: POLICY MATRIX AND THE RESULTS FRAMEWORK
Prior Actions under DPC-1 Prior Actions for DPF-2 Prior Actions for DPC-3 Results
(June 2018)
Pillar 1: Improved investment climate and competitiveness
Prior action #1: Parliament
has enacted the Grenada
Tourism Authority Act,
establishing the institutional
framework for governance of
the tourism sector.
Prior action #1: The Grenada
Tourism Authority (GTA) has
instituted a new regulatory
framework for the tourism
sector in accordance with the
2013 Tourism Authority Act.
Indicator: Tourist receipts.
Baseline 2013 = EC$307
million; Target 2018 = EC$332
million (8 percent increase)
Prior action #2: The
Government has (i)
appointed a committee for
the commercialization of
selected Government-owned
estates and (ii) approved the
criteria for the
commercialization of such
estates.
Prior action #2: The
Government has commenced
commercialization of selected
Government-owned estates
by entering into two
commercial agreements with
private entities for
commercial use in the
agribusiness sector.
Prior action #1: The
Government has advanced
the commercialization of
selected state-owned estates
by signing two agribusiness
lease agreements with
separate private entities for a
duration of at least 20 years.
Indicator: Leasing out of
Government owned
agricultural estates to private
entities. Baseline 2013 =
none; Target 2018 = at least 3
Government-owned estates
leased
Indicator: Area cultivated at
leased Government-owned
agricultural estates. Baseline
2013 = zero acres (out of a
total of 379 cultivatable acres
of Government-owned land
selected for public-private
partnerships (PPPs); Target
2018 = 186 acres
[no prior action] Prior action #3: The
Government has approved a
strategic plan to strengthen
tourism and agribusiness
linkages by transforming the
Marketing and National
Importing Board (MNIB) into
a service provider of
information on markets,
product quality, and
standards.
Prior action #2: The
Government has, through the
Parliament, enacted the Food
Safety Act, which establishes
standards for food quality
and prevention of food safety
risks.
Indicator: Number of farmers
served by MNIB. Baseline
2013 = 1,623; Target 2018 =
at least 2,500.
Indicator: Percentage of
licensed food premises and
street food premises in
Grenada that have been
inspected by the Food Safety
Authority under the Food
Safety Act. 2013 Baseline =
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zero; 2018 Target 2018 = 75
percent (share of food
premises and street food
premises licensed by the Food
Safety Authority)
Prior action #3: The
Government’s Customs Bill
has been submitted to
Parliament on May 9, 2014,
establishing (i) procedures for
electronic processing of trade
transactions, (ii) procedures
for record keeping and audit
powers by the Customs and
Excise Division of the Ministry
of Finance and Energy, and
(iii) accountability procedures
and delegation of authority in
decision-making.
Prior action #3: The
Government has, through the
Ministry of Finance and
Energy (MoFE), connected
the Bureau of Standards
(MoFE) to ASYCUDA World to
process trade transactions;
and provided the Inland
Revenue Department (MoFE)
and the Central Office of
Statistics (MoFE) with
statistical data access to
ASYCUDA World.
Indicator: The number of
border control agencies
processing trade transactions
through ASYCUDA World.
Baseline 2013 = 2 agencies;
Target 2018 = at least 6
agencies
Indicator: Number of
agencies sharing trade and
taxation related information
through ASYCUDA World.
Baseline 2013 = zero; Target
2018 = at least 2
[no prior action] Prior action #4: The
Government has approved a
policy framework with clear
guiding principles and
processes for identifying
PPPs, and set out institutional
responsibilities for
developing a PPP pipeline and
implementing PPP projects.
Prior action #4: The
Government has established
a PPP Unit in the Ministry of
Finance and Energy, as
evidenced by a Cabinet
conclusion.
Indicator: Share of PPP
projects under development
that conform to the
processes and requirements
defined in the PPP policy.
Baseline 2013 = zero percent;
Target 2018 = 100 percent
[no prior action] Prior action #5: The
Government has enacted the
Public Utilities Regulatory
Commission Act to establish a
national independent energy
regulator; and has endorsed
the Ministry of Finance and
Energy’s participation in the
regional energy advisory
body, the Eastern Caribbean
Energy Regulatory Agency
(ECERA).
Indicator: Share of renewable
energy in total installed
power-generation capacity.
Baseline 2013 = 1 percent;
Target 2018 = 3 percent
Indicator: The Public Utilities
Regulatory Commission is
fully operational. 2013
Baseline = no; 2018 target =
yes, with evidence from the
Government that PURC has (i)
issued a three-year business
plan, (ii) a dedicated place of
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work, (iii) hired staff, and (iv)
an operating budget
Pillar 2: Supporting Improved Public Resource Management
Prior action #4: The
Government has endorsed a
public sector modernization
policy, establishing
procedures for: (i)
strategically realigning public
employment; (ii)
strengthening management
of selected agencies; and (iii)
developing a results focus in
planning and budgeting.
Prior action #6: The
Government has, through the
Ministry of Education, Human
Resource Development and
the Environment, established
computerized personnel
records for teachers and
ministry personnel, and has
produced a report of
personnel records to increase
monitoring, reporting and
analysis of human resource
management, as evidenced
by a letter from the Ministry
of Finance and Energy.
Indicator: Development of
job descriptions. Baseline
2013 = none; Target 2018 =
The Ministry of Education,
Human Resource
Development and the
Environment has formally
established job descriptions
with clearly defined
competencies and
responsibilities for the key
task areas of public
administration, including
planning, monitoring results,
and strategic personnel
management
[no prior action] Prior action #5: Parliament
has approved a new public
procurement law, the Public
Procurement and Disposal of
Public Property Act of 2014,
consistent with international
best practices.
Prior action #7: The
Government, through the
Ministry of Finance and
Energy, has: (i) appointed the
Chief Procurement Officer,
and (ii) fully staffed and
operationalized (a) the Public
Procurement Board, (b) the
Public Procurement Review
Commission, and (c the Public
Procurement Disposal
Committee, as evidenced by
the Cabinet Conclusion No.
734 dated May 23, 2016, the
MoFE Letter of Appointment
for the Disposal Committee
dated July 18, 2016, and the
MoFE Letter of Appointment
for the Chief Procurement
Officer dated 20 June, 2016.
Indicator: Publication of
contract awards. Baseline
2013 = zero; Target 2018 = All
contract awards are
published, in conformity with
the new procurement law
Prior action #5: The
Government has adopted a
policy framework for
strengthening the design and
Prior action #6: The
Government has approved a
phase-out plan to improve
the targeting of beneficiaries
of the Support for Education,
Empowerment, and
Prior action #8: The
Government has, through the
Ministry of Social
Development (MoSD),
institutionalized the
implementation of the Phase
Indicator: Share of SEED
program beneficiary
households identified in the
PO Plan as ineligible and non-
vulnerable that have been
transitioned out of the
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programming of its social
safety nets.
Development (SEED)
program.
Out (PO) Plan for the SEED
program by notifying all
ineligible beneficiary
households of their status,
and completing the
transitioning out of the
program for the first two of
three groups (at least 70%) of
beneficiary households
identified in the PO Plan as
ineligible and nonvulnerable.
program. Baseline 2013 =
zero; Target 2018 = 95
percent
[no prior action] Prior action #9: The
Government has approved
the MTDS for the 2016-2018
period, as evidenced by
Cabinet Conclusion No. 935
dated June 27, 2016.
Indicator: Share of public and
publicly guaranteed debt with
a maturity of less than 90
days. Baseline 2013 = 17
percent; Target 2018 = 10
percent
Pillar 3: Enhancing resilience against natural disasters
Prior action #6: The
Government has approved (i)
the Grenada Building Code
Prior action #7: The
Government’s Architects
(Registration) Bill and the
Engineers Registration Bill,
establishing procedures for
the professional practice of
architects and engineers in
the Government’s territory
have been submitted to
Parliament.
Prior action #10: The
Government has, through the
Parliament, (i) enacted the
Physical Planning and
Development Control Bill and
(ii) approved the Grenada
Building Code and Guidelines.
Indicator: Share of
membership of the Grenada
Institute of Professional
Engineers (GIPE) registered in
accordance with the 2015
Engineering Act. Baseline
2015 = zero percent; Target
2018 = 40 percent
Indicator: Establishment of
the Building Inspection Unit
at the Ministry of
Communication, Works,
Physical Development, Public
Utilities, ICT and Community
Development. Baseline 2013
= none; Target 2018 = unit
established
[no prior action] Prior action #7: Parliament
has approved a new Banking
Act to strengthen bank
regulation, supervision, and
resolution.
Indicator: Provisions for loan
losses to nonperforming
loans (NPLs) for the banking
sector. Baseline 2013 = 30
percent of NPLs; Target 2018
= 60 percent of NPLs
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ANNEX 2: MODIFICATIONS TO KEY OUTCOME INDICATORS DURING PROGRAM IMPLEMENTATION
Grenada Resilience Building Development Policy Credit and Loan Key Indicators
Objectives DPC1 DPC/DPL2 DPC3
Pillar 1: Creating Conditions for Private Investment
Tourism Development Tourist receipts. Baseline 2013 = EC$307 million; Target 2016 = EC$332 million (8 percent increase).
Tourist receipts. Baseline 2013 = EC$307 million; Target 2017 = EC$332 million (8 percent increase).
Tourist receipts. Baseline 2013 = EC$307 million; Target 2018 = EC$332 million (8 percent increase).
Renegotiation of airlift agreements by the Airlift Committee. Baseline 2013 = zero; Target 2017 = at least 2 agreements renegotiated.
Agribusiness Development
Increase in total output of commercialized agricultural estates. Baseline 2013 = 350 tons; Target 2016 = 100 percent increase.
Total output of commercialized agricultural estates. Baseline 2013 = 350 tons; Target 2017 = at least 500 tons.
Commercialization of Government-owned agricultural estates. Baseline 2013 = 0; Target 2018 = at least 3 Government-owned estates commercialized.
Leasing out of Government-owned agricultural estates to private entities. Baseline 2013 = none; Target 2018 = at least 3 Government-owned estates leased.
Number of farmers served by MNIB. Baseline 2013 = 1,623; Target 2016 = 3,000.
Number of farmers served by MNIB. Baseline 2013 = 1,623; Target 2017 = at least 2,500.
Number of farmers served by MNIB. Baseline 2013 = 1,623; Target 2018 = at least 2,500.
Area cultivated at leased Government-owned agricultural estates. Baseline 2013 = zero acres (out of a total of 379 cultivatable acres of Government-owned land selected for public-private partnerships (PPPs); Target 2018 = 186 acres
Percentage of licensed food premises and street food premises in Grenada that have been inspected by the Food Safety Authority under the Food Safety Act. Baseline 2013 = zero; 2018 Target 2018 = 75 percent (share of food premises and street food premises licensed by the Food Safety Authority).
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Trade Logistics Reduction of the clearance time of border control procedures by half. Baseline 2013 = approximately six working days; Target 2016 = approximately three working days.
Average clearing time for border control procedures. Baseline 2013 = approximately six working days; Target 2017 = approximately three working days.
The number of border control agencies processing trade transactions through ASYCUDA World. Baseline 2013 = 2 agencies; Target 2018 = at least 6 agencies.
Number of agencies sharing trade and taxation related information through ASYCUDA World. Baseline 2013 = zero; Target 2018 =at least 2.
Public Private Partnerships (PPP)
Increase in the share of PPP projects under development that are proceeding according to the processes and requirements defined in the PPP policy. Baseline 2013 = zero percent; Target 2016 = 100 percent.
Share of public-private partnership (PPP) projects under development that conform to the processes and requirement defined in the PPP policy. Baseline 2013 = zero percent; Target 2017 = 100 percent
Share of PPP projects under development that conform to the processes and requirements defined in the PPP policy. Baseline 2013 = zero percent; Target 2018 = 100 percent.
The Energy Sector Implementation of a new mechanism for electricity tariff setting. Baseline 2013 = There is no existing electricity tariff setting mechanism; Target 2016 = New electricity tariff setting mechanism is implemented.
Share of installed power generation capacity from renewable energy technologies. Baseline 2013 = 1 percent; Target 2018 = 3 percent.
Share of renewable energy in total installed power-generation capacity. Baseline 2013 = 1 percent; Target 2018 = 3 percent.
The Public Utilities Regulatory Commission is fully operational. Baseline 2013 = no; 2018 Target = yes, with evidence from the Government that PURC has (i) issued a three-year business plan, (ii) a dedicated place of work, (iii) hired staff, and (iv) an operating budget.
Pillar 2: Supporting Fiscal Consolidation through Reducing Fiscal, Financial and Social Vulnerabilities
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Public Employment Management
Better alignment of the government employment structure with the recommendations of the HR audits. Baseline 2013 = Functions and tasks in government entities are not aligned with the recommendations of the HR audits; Target 2016 = Functions and tasks in government entities that employ at least 70 percent of the total government workforce as well as HR and payroll information are aligned with the recommendations of the HR audits.
Establishment of the government employment structure based on the recommendations of recent human resource audits. Baseline 2013 = 0; Target 2017 = At least 4 ministries and 1 department have established official job descriptions with clearly defined responsibilities, including the Ministry of Agriculture, Ministry of Labor, Ministry of Legal Affairs, Ministry of Education and Department of Public Administration.
Development of job descriptions. Baseline 2013 = none; Target 2018 = The Ministry of Education, Human Resource Development and the Environment has formally established job descriptions with clearly defined competencies and responsibilities for the key task areas of public administration, including planning, monitoring results, and strategic personnel management.
Accountability for Results in the Public Administration
Increase in the number of public entities that publish annual performance reports. Baseline 2013 = No public entity publishes annual performance reports; Target 2016 = At least three ministries publish annual performance reports.
Procurement Increased transparency of public procurement and confidence of the private sector in the system. Baseline 2013 = Contract awards are not published; Target 2016 = Contract awards consistent with the new procurement law are published.
Publication of contract awards. Baseline 2013 = zero; Target 2017 = All contract awards are published, in conformity with the new procurement law.
Publication of contract awards. Baseline 2013 = zero; Target 2018 = All contract awards are published, in conformity with the new procurement law.
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Financial Sector Development/ The Banking Sector
Reduction of the share of NPLs in the total loan portfolio of banks. Baseline 2013 = 9 percent; Target 2016 = 5 percent.
Provisions for loan losses to NPLs for the banking sector. Baseline 2013 = 30 percent of NPLs; Target 2017 = 60 percent of NPLs.
Provisions for loan losses to nonperforming loans (NPLs) for the banking sector. Baseline 2013 = 30 percent of NPLs; Target 2018 = 60 percent of NPLs.
Social Safety Nets Increase in the number of social programs using the targeting tool to identify beneficiaries. Baseline 2013 = 0; Target 2016 = 3 programs.
Share of SEED program beneficiaries that are identified by using a targeting tool. Baseline 2013 = zero; Target 2018 = 80 percent.
Share of SEED program beneficiary households identified in the Phase Out Plan as ineligible and non-vulnerable that have been transitioned out of the program. Baseline 2013 = zero; Target 2018 = 95 percent
Pillar 3: Enhancing Resilience Against Natural Disasters
Natural Disasters Increase in the proportion of new public/commercial buildings and private housing built in safe regulated areas, in accordance with regulatory acts. Baseline 2015 = 0 percent; Target 2016 = 50 percent.
Share of new public/commercial building and private housing built in safe and regulated areas in accordance with regulatory acts. Baseline 2015 = 0 percent; Target 2016 = 40 percent.
Increase in the percentage of engineers registered. Baseline 2013 = 0 percent; Target 2016 = 40 percent.
Share of engineers registered. Baseline 2013 = 0 percent; Target 2017 = 40 percent.
Share of membership of the Grenada Institute of Professional Engineers (GIPE) registered in accordance with the 2015 Engineering Act. Baseline 2015 = zero percent; Target 2018 = 40 percent.
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Establishment of the Building Inspection Unit at the Ministry of Communication, Works, Physical Development, Public Utilities, ICT and Community Development. Baseline 2013 = none; Target 2018 = unit established.
Pillar 4: Facilitating Debt Portfolio Restructuring and Improved Debt Management
Debt Management Decrease of the share of debt with a maturity of less than 90 days. Baseline 2013 = 17 percent; Target 2016 = 10 percent.
Share of debt (public and publicly guaranteed) with a maturity of less than 90 days. Baseline 2013 = 17 percent; Target 2017 = 10 percent.
Share of public and publicly guaranteed debt with a maturity of less than 90 days. Baseline 2013 = 17 percent; Target 2018 = 10 percent.
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ANNEX 3: PRIOR ACTIONS UNDER DPC -1, DPC -2 AND DPC -3
Prior Actions DPC-1
Pillar 1: Creating Conditions for Private Investment
The Recipient’s Parliament has enacted the Grenada Tourism Authority Act, establishing the institutional framework for the governance of the tourism sector. (No. 1)
Completed
The Recipient has (a) appointed a committee for the commercialization of selected estates of the Recipient, and (b) approved the criteria for the commercialization of such estates. (No. 2)
Completed
The Recipient’s Customs Bill establishing inter alia: (a) procedures for electronic processing of trade transactions; (b) procedures for record keeping and audit powers by the Customs and Excise Division of the Ministry of Finance, and (c) accountability procedures and delegation of authority in decision making has been submitted to Parliament. (No. 3)
Completed
Pillar 2: Supporting Fiscal Consolidation through Reducing Fiscal, Financial and Social Vulnerabilities
The Recipient has endorsed a public sector modernization policy establishing inter alia procedures for (a) strategically realigning public employment; (b) strengthening management of selected agencies, and (c) developing a results focus in planning and budgeting. (No. 4)
Completed
The Recipient has adopted a policy framework for the strengthening of the design and programming of the Recipient’s social safety nets. (No. 5)
Completed
Pillar 3: Enhancing Resilience Against Natural Disasters
The Recipient’s Cabinet has approved: (a) the Grenada Building Code and the Grenada Building Guidelines, and (b) the Physical Planning and Development Control Bill, 2014, for submission to Parliament. (No. 6)
Completed
The Recipient’s Architects (Registration) Bill and the Engineers Registration Bill establishing respectively procedures for the professional practice of architects and engineers in the Recipient’s territory, have been submitted to Parliament. (No. 7)
Completed
Prior Actions DPC/DPL-2
Pillar 1: Creating Conditions for Private Investment
The Grenada Tourism Authority has instituted a new regulatory framework for the tourism sector in accordance with the 2013 Tourism Authority Act. (No.1)
Completed
The Government has commenced commercialization of selected government-owned estates by entering into two commercial agreements with private entities for commercial use in the agribusiness sector. (No. 2)
Completed
The Government has approved a strategic plan to strengthen tourism and agribusiness linkages by transforming the Marketing and National Importing Board (MNIB) into a service provider of information on markets, product quality and standards. (No. 3)
Completed
The Government has approved a policy framework with clear guiding principles and processes for identifying PPPs and set out institutional responsibilities for developing a PPP pipeline and implementing PPP projects. (No. 4)
Completed
Pillar 2: Supporting Fiscal Consolidation through Reducing Fiscal, Financial and Social Vulnerabilities
Parliament has approved a new public procurement law consistent with international best practices. (No. 5) Completed
Parliament has approved a new Banking Act to strengthen bank regulation, supervision and resolution. (No. 7) Completed
The Government has approved a phase out plan to improve the targeting of beneficiaries of the Support for Education, Empowerment and Development (SEED) program. (No. 6)
Completed
Prior Actions DPC-3
Pillar 1: Creating Conditions for Private Investment
The Government has advanced the commercialization of selected Government-owned estates by signing two agribusiness lease agreements with separate private entities for a duration of at least 20 years. (No. 1)
Completed
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The Government has, through the Parliament, enacted the Food Safety Act, which establishes standards for food quality and prevention of food safety risks. No. 2)
Completed
The Government has, through the Ministry of Finance and Energy (MoFE) connect the Bureau of Standards (MoFE) to ASYCUDA World to process trade transactions and provided the Inland Revenue Department (MoFE) and the Central Office of Statistics with statistical data access to ASYCUDA World. (No. 3)
Completed
The Government has established a PPP Unit in the Ministry of Finance and Energy, as evidenced by a Cabinet conclusion. (No.4)
Completed
The Government has enacted the Public Utilities Regulatory Commission Act to establish a national independent energy regulator; and has endorsed the Ministry of Finance and Energy’s participation in the regional energy advisory body the Easter Caribbean Energy Regulatory Agency (ECERA). (No. 5)
Completed
Pillar 2: Supporting Fiscal Consolidation through Reducing Fiscal, Financial and Social Vulnerabilities
The Government has, through the Ministry of Education, Human Resource Development and the Environment, established computerized personnel records for teachers and ministry personnel, and has produced a report of personnel records to increase monitoring reporting and analysis of human resource management, as evidenced by a letter from the Ministry of Finance and Energy. (No. 6)
Completed
The Government, through the Ministry of Finance and Energy, has: (a) appointed the Chief Procurement Officer and (b) fully staffed and 0eprationalized (i) the Public Procurement Board; (ii) the Public Procurement Review Commission and (iii) the Public Procurement Disposal Committee, as evidenced by the Cabinet Conclusion No. 734 dated May 23, 2016, the MoFE Letter of Appointment for the Disposal Committee dated July 18, 2016 and the MoFE Letter of Appointment for the Chief Procurement Officer dated June 20, 2016. (No. 7)
Completed
The Government has, through the Ministry of Social Development (MoSD), institutionalized the implementation of the Phase Out (PO) Pan for the SEED program by notifying al ineligible beneficiary households of their status and completing the transitioning out of the program for the first two of three groups (at least 70%) of beneficiary households identified in the PO Plan as ineligible and non-vulnerable. (No. 8)
Completed
Pillar 3: Enhancing Resilience Against Natural Disasters
The Government has, through the Parliament: (a) enacted the Physical Planning and Development Control Bill, and (b) approved the Grenade Building Code and Guidelines. (No. 10)
Completed
Pillar 4: Facilitating Debt Portfolio Restructuring and Improved Debt Management
The Government has approved the MTDS for the 2016-2018 period, as evidenced by Cabinet Conclusion No. 935 dated June 27, 2016. (No. 9)
Completed
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ANNEX 4: ANALYTICAL WORK SUPPORTING PRBDP 1-3
PRBDP Pillar Underpinning Analytical Work
Pillar 1: Creating Conditions for Private Investment
• World Bank, “Logistics Connectivity in the Caribbean; Current Challenges and Future Prospects” (2012)
• OECS-World Bank, “Improving the Organization of Eastern Caribbean States’ Regional Competitiveness through Tourism: the importance of a regional approach and the means to implement it”, Caribbean Growth Forum (August 2014)
• World Bank, Report No. 44060-LAC, OECS, Increasing Linkages of Tourism with Agriculture, Manufacturing and Service Sectors (2008)
• World Bank, “Food Safety Standards, Economic and Market Impacts in Developing Countries”, Viewpoint Note 341 (July 2014)
• World Bank, Report No. 31863-LAC, OECS, Towards a New Agenda for Growth (2005)
• World Bank, Report No. 31725-LAC, A Time to Choose: Caribbean Development in the 21st Century (2005)
• Caribbean Growth Forum, Grenada Chapter, Investment Climate Working Group (March, 2013)
• World Bank, Report No. ACS7995-LAC, Caribbean Infrastructure PPP Roadmap (2014)
• Draft PPP Policy for Grenada, prepared under a technical mission to Grenada under DPC1
Pillar 2: Supporting Fiscal Consolidation through Reducing Fiscal, Financial and Social Vulnerabilities
• HR audits, World Bank staff analyses, and agreements reached between the Department of Public Administration and World Bank staff
• World Bank, Report No. 31863-LAC, OECS, Towards a New Agenda for Growth (2005)
• World Bank, Country Procurement Report on OECS (2003)
• World Bank, Policy Note on Fiduciary Management in OECS (2007)
• World Bank, Social Safety Net Assessment (2009)
• World Bank, Tailoring Social Protection to Small Island Developing States, Lessons Learned from the Caribbean (2013)
Pillar 3: Enhancing Resilience Against Natural Disasters
• CDKN Guide: Tackling Exposure, Placing Disaster Risk Management the hand of National Economic and Fiscal Policy (2012)
• WPS5429 – Financial protection of the state against natural disasters (Ghesquierre and Mahul, 2010)
• Global Facility for Disaster Reduction and Recovery (GFDRR), Grenada Country Note (2010)
• WPS5232 - Assessing the Financial Vulnerability to Climate-Related Natural Hazards (Mechler et al 2010)
• IMF, WP/09/159, Macroeconomic Fluctuations in the Caribbean: the Role of Climatic and External Shocks (Sosa and Cashin, 2009)
• WPS5956 – Fiscal Implications of Climate Change (Bones et al, 2012)
• GFDRR, Building Regulation for Resilience - Managing
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ANNEX 5: WBG INVESTMENT OPERATIONS SUPPORTING DESIGN/IMPLEMENTATION OF PRBDP1-3
Project Name Project ID Project Cost
US$ m
Approval
Date Objectives
Pillar 1: Creating Conditions for Private Investment
OECS Regional Tourism
Competitiveness
P152117 26.00 04/06/17 To: (i) facilitate the movement of tourists
within the participating countries using
ferries; (ii improve selected tourism sites, and
(iii) strengthen implementation capacity for
regional tourism market development
OECS Regional Agriculture
Competitiveness Project
P158958 9.66 05/25/17 To enhance access to markets and sales for
competitively selected farmers and fishers, as
well as their allied aggregators and agro-
processors.
Caribbean Regional
Communications Infrastructure
Program
P114963 25.00 05/22/12 To increase access to regional broadband
networks and advance the development of
Information and Communication Technologies
enable services industry. (The project included
a component to support the enabling
environment that would ensure PPPs in the
ownership, management and competitive
access to the infrastructure).
Pillar 2: Supporting Fiscal Consolidation through Reducing Fiscal, Financial and Social Vulnerabilities
IDF Grant-Strengthening
Personnel Expenditure
Management
P117873 To support improvements in the
Government’s capacity to manage personnel
expenditures; (The IDF supported HR audits
and expenditure reviews, prepared
recommendation on improving staffing in
pilot ministries and departments and helped
agencies develop job descriptions;
strengthened the Cabinet Office’s capacity to
coordinate the government planning process.
Eastern Caribbean Energy
Regulatory Authority (ECERA)
P101414 To: (i) establish ECERA, and (ii) to
operationalize ECERS for the first three years;
(Support was provided to establishing and
implementing appropriate regulations for
each country, developing new licensing
recommendations, setting cost-reflective and
performance-based tariffs and promoting
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renewable energy as a key sector
component).
Caribbean Energy Statistics
Capacity Enhancement
P155034 0.50 09/21/17 To enhance energy statistics and planning
capacity within five Caribbean countries
IDF Grant-Development of
Accountability Mechanisms for
Capital Projects
0.40 To support audit, accountability and public
procurement of selected OECS countries—
Grenada was a pilot country for procurement
system reforms.
Safety Net Advancement Project P123128 5.00 07/05/11 To: (i) strengthen the basic architecture of the
consolidated conditional cash transfer
program and the capacity of the Ministry of
Social Development to implement it; (ii)
improve coverage of poor households
receiving cash transfers, and (iii improve
education outcomes of poor children and
health monitoring of vulnerable households.
Support to Implementation of
the Regional Education Strategy
P158836 2.00 07/05/16 To: (i) use quality learning standards to
support evidence-based teaching and learning
at the primary level; (ii) improve teacher
practices at the primary level; (iii) strengthen
primary school leadership and accountability,
and (iv) initiate the strengthening of sector
monitoring and evaluation capacity in support
of evidence-based strategic management and
decision-making.
First Fiscal Resilience and Blue
Growth DPC
P164289 30.00 06/22/18 To: (i) support fiscal measures and compliance
with the Fiscal Responsibility Law, and (ii)
support Grenada’s transition to a Blue
Economy by strengthening marine and coastal
management, marine ecosystem health and
climate resilience.
Pillar 3: Enhancing Resilience Against Natural Disasters
Regional Disaster Vulnerability
Reduction Project and AF
P117871
P149259
10.00 + 8.8 AF 06/23/11
06/08/15
(AF)
To measurably reduce vulnerability to natural
hazards and climate change impacts (through
institutional capacity improvements).
First Fiscal Resilience and Blue
Growth DPC
P164289 30.00 06/22/18 To: (i) support fiscal measures and compliance
with the Fiscal Responsibility Law, and (ii)
support Grenada’s transition to a Blue
Economy by strengthening marine and coastal
management, marine ecosystem health and
climate resilience.
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ANNEX 6: ISSUES WITH KEY INDICATORS IN PRBDP3
Indicator Issues with Indicator
Alternative Indicator to
Measure Achievement of
Objective
1. Tourist receipts.
Baseline 2013 = EC$307 million; Target
2018 = EC$332 million (8 percent
increase).
• Attribution • Increase in tourist receipts in
neighboring countries—
baseline and completion
• Increase in visitor arrivals
2. Leasing out of Government-owned
agricultural estates to private
entities.
Baseline 2013 = none;
Target 2018 = at least 3 Government-
owned estates leased.
• Difference between this indicator and
Indicator 4 below.
• Indicator reflects inputs rather than
outputs or outcomes.
• Increase in production at
leased government-owned
estates.
3. Number of farmers served by
MNIB.
Baseline 2013 = 1,623;
Target 2018 = at least 2,500.
• Does not entirely reflect expanding access to export markets and expanding supply to hospitality industry.
• Does not take into account competing cooperatives offering similar services.
• Increase in sales of
agricultural products to
tourism industry
4. Area cultivated at leased
Government-owned agricultural
estates.
Baseline 2013 = zero acres (out
of a total of 379 cultivatable acres of
Government-owned land selected for
public-private partnerships (PPPs);
Target 2018 = 186 acres
• See Indicator 2 above.
6. The number of border
control agencies processing trade
transactions through ASYCUDA World.
Baseline 2013 = 2 agencies;
Target 2018 = at least 6 agencies.
• Number of transactions
processed through ASYCUDA
World
• Total number of trade
transactions processed
• Value of transactions
processed through ASYCUDA
World
• Total value of trade
transactions processed
• Average clearance time for
border control procedures
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(before and after ASYCUDA
World)
9. Share of renewable energy in total
installed power-generation capacity.
Baseline 2013 = 1 percent;
Target 2018 = 3 percent.
• What increase in installed power-
generation capacity could be expected in a
short three-year period?
• What in increase in renewable energy
installed capacity would be required to
increase its percentage in total capacity?
• Does this really measure “strengthening
the policy and regulatory environment”?
• This indicator measures much more than
simply the above objective, and depends
on exogenous factors, including prices of
different alternatives (i.e., the price of oil)
• Renewable energy projects
under consideration by new
PPP Policy Steering
Committee
• Increase in total installed
power-generation capacity
during implementation
period and of what type?
10. The Public Utilities
Regulatory Commission is fully
operational.
Baseline 2013 = no; 2018
Target = yes, with evidence from the
Government that PURC has (i) issued a
three-year business plan, (ii) a dedicated
place of work, (iii) hired staff, and (iv) an
operating budget
11.Development of job descriptions.
Baseline 2013 = none;
Target 2018 = The Ministry of
Education, Human Resource
Development and the Environment has
formally established
job descriptions with clearly defined
competencies and responsibilities for
the key task areas of public
administration, including planning,
monitoring results, and strategic
personnel management.
• This indicator measures a subset, albeit the
largest, of public sector employment
• Change in public sector wage
bill-baseline and completion
• Change public sector
employment-baseline and
completion
• Number of job descriptions
developed for the Ministry of
Education (and other
ministries, if applicable)
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ANNEX 7: BANK LENDING AND IMPLEMENTATION SUPPORT/SUPERVISION PROCESSES
(a) Task Team members P147152
Names Title Unit Responsibility/
Specialty
Lending
Rei Odawara Senior Economist GMTMD Task Team Leader
Plamen Stoyanov Kirov Senior Procurement Specialist
(ADM Responsible)
GGOPZ Team Member
David I Sr Financial Management
Specialist
GGOLF Team Member
Jose C. Janeiro Senior Finance Officer WFACS Team Member
Ruth Jo Goorman Finance Analyst WFAST Team Member
Valerie Asfour Financial Officer WFAAS Team Member
John Oliver Moss Lead Procurement Specialist GGOPL Team Member
Supervision
Rei Odawara Senior Economist GMTMD Task Team Leader
(b) Staff Time and Cost
Stage of Project Cycle
Staff Time and Cost (Bank Budget Only)
No. of staff weeks USD Thousands (including travel and consultant costs)
Lending
P147152 – PRBDP1 35.9 224,283.75
P151821 – PRBDP2 63.2 324,580.12
P156761 – PRBDP3 41.8 295,152.86
Total: 140.9 844,016.73
Supervision/ICR
Total:
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ANNEX 8: SUMMARY OF BORROWER’S COMMENTS ON DRAFT ICR
The Borrower provided comments on the draft ICR in the areas summarized below:
• Enhancing Section 1.3 by providing details of the extensive discussions that occurred between World Bank staff
and Government authorities regarding the reformulation of pillars and triggers (prior actions) to emphasize that
decisions were mutually agreed and to demonstrate Government ownership of the program design.
• Highlighting the key role of the Social Partnership in contributing to the implementation success of the DPC series.
• Elaborating on the approval of the PPP with Digicel, under the Caribbean Regional Communication Infrastructure
Program.
• Elaborating on the difficulties with the commercialization of government estates.
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ANNEX 9: LIST OF SUPPORTING DOCUMENTS
1. World Bank, Program Document for the First Programmatic Resilience Building Development Policy Credit,
Report No. 87023-GD, June 11, 2014.
2. World Bank, Program Document for the Second Programmatic Resilience Building Development Policy
Credit and Loan, Report No. 92951-GD, September 29, 2015.
3. World Bank, Program Document for the Third Programmatic Resilience Building Development Policy Credit,
Report No. 87023-GD, November 15, 2016.
4. World Bank, Program Document for the First Fiscal Resilience and Blue Growth Development Policy Credit,
Report No. 123987-GD, May 23, 2018.
5. World Bank Group, Performance and Learning Review of the Regional Partnership Strategy for the
Organization of Eastern Caribbean States (OECS) for the Period FY15-FY19, Report No. 118511-LAC, May 1,
2018.
6. World Bank Group, Organization of Eastern Caribbean States (OECS) Systematic Regional Diagnostic, Report
No. 127046-LAC, June 27, 2018.
7. World Bank Group, Debt Management Performance Assessment (DeMPA): Grenada, June 2018.
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