Support to the Bogotá Metro Line 2 Project

According to project documents, the project development objective (PDO) is to improve readiness and start the implementation of the Bogotá Metro Line 2 (BML2). Under BML2, the Bank is supporting the construction of a 15.5-kilometer metro line, which will improve connectivity and access to services for residents in the northwest of Bogotá, and it is expected to be integrated with other transport systems in the city. BML2 is expected to support climate mitigation by facilitating a shift to electric public transport and promoting active transportation.

The project will be co-financed with other Multilateral Development Banks (MDBs), including the European Investment Bank (EIB), the Inter-American Development Bank (IDB), the Banco de Desarrollo de América Latina (CAF), and the private sector.

BIC is partnering with Asociación Ambiente y Sociedad, Asdown, and Renacer to monitor the design and implementation of the BML2 and engage in advocacy around: a) how the project will incorporate the mitigation hierarchy to avoid and minimize impacts to biodiversity (with special considerations to critical habitats) and consider climate change mitigation and adaptation in its development and implementation; b) how the project will be accessible for persons with disabilities; and c) how risks of child sexual exploitation, abuse, and harassment (SEA/H) are addressed.

To identify lessons learned for improving Bogotá Metro Line 2, our partners also reviewed the project design and conducted fieldwork on the implementation of the Bogotá Metro Line 1, which is currently under construction with financing from the World Bank and other financial institutions. This analysis aimed to identify key gaps and opportunities for improvement. BIC, along with our partners, has identified the following concerns:

Stakeholder engagement and access to information. Partners found that the consultations carried out did not include all relevant groups in the Project’s direct and indirect impact areas. For example, only three disability groups are listed in the BML2 Stakeholder Engagement Plan (Plan de Participación de Partes Interesadas) as having been consulted. The disability groups engaged during field visits shared that they have not been provided with the necessary information to understand the possible impacts of the project or actively participate in the planning. As a result, not only have they been unable to use their experience and expertise to contribute to the design of an inclusive and accessible metro, but they also have not been informed or had the opportunity to provide input on mitigating potential risks. Also, there has been no engagement with children, youth, or child rights institutions on how SEA/H risks may impact children differently and the targeted measures to address these. For example, students in schools located near construction sites may face particular risks that have not been assessed. This demonstrates that there has been a lack of clear information on the potential environmental and social risks and impacts associated with the two projects.

Adverse impact on wetlands of international importance. One of the main environmental concerns in the BML2 is the potential impact of the project on two wetlands that have been recognized as Ramsar sites and are classified as critical habitats under the World Bank’s Environmental and Social Framework (ESF). The current project documents do not clearly identify the scope of expected impacts and risks on wetlands, which would include earthworks, changes in hydrology, and water and soil pollution. Water contamination is also likely to have an adverse social impact as it poses a threat to health and livelihoods. Our partners reported that local disability councils shared that persons with disabilities may face a higher risk of infection due to organic water contamination. The project documents also neglect to mention that the wetlands are heritage sites of the Muisca Indigenous Peoples of Suba.

Climate considerations are missing from project design. Bogotá is highly vulnerable to climate change, particularly extreme heat, heavy rain and flooding, fires, landslides, and earthquakes. Despite recognizing Bogotá’s vulnerability, the project documents do not explain the measures that will be incorporated into the project design to reduce climate risks and enhance resilience. The project design should clearly state how it will be resilient to climate change and maintain service in the event of extreme weather. It is also important to recognize how climate change disproportionately impacts marginalized groups, such as persons with disabilities. For instance, Bogotá experiences the urban heat island effect, and extreme heat can cause destabilization in people who use prostheses, wheelchairs, or other devices that are affected by high temperatures. The project design should take into consideration how persons with disabilities could be impacted by climate change and incorporate specific adaptation measures in the design.

Barriers to mobility. During field visits, persons with disabilities shared that they experience barriers impeding their mobility. For example, some cab drivers refuse to transport those who use wheelchairs, and there are accessibility barriers in the current public transport system which make it difficult for persons with disabilities to reliably use public transport.

Grievance redress mechanisms. The BML2 plans to rely on the grievance redress mechanism (GRM) established for the BML1. This raises concerns, as the existing GRM lacks child-friendly features, such as multiple reporting channels and accessibility in spaces frequented by children and youth, like schools and parks.

The following recommendations are intended to improve the design and implementation of Bogotá Metro Line 2. However, measures to strengthen stakeholder participation, improve the inclusion of persons with disabilities, and enhance the prevention and response to child SEA/H risks can and should also be integrated into the ongoing construction of Line 1.

Provide meaningful stakeholder engagement and more readily available access to information. The Bank should take proactive actions to reach all impacted population groups, such as local disability councils and the Children and Adolescent Advisory Council, throughout the project cycle. It should also provide clear and accessible information regarding the potential social and environmental risks and impacts and mitigation measures. Utilizing local councils to engage with the community will help all stakeholders in the project area to learn about the project and meaningfully engage and provide input, suggestions, or feedback on project design, construction, and implementation. Project information should be widely disseminated in a manner that is clear, understandable, accessible, and easy to read. All information should be made publicly available without the need to request it.

Avoid and mitigate risks to critical habitats for biodiversity. The Bank should provide more clarity on the scope and dimension of potential risks and adopt the mitigation hierarchy to avoid, minimize, or restore impacts to wetlands and freshwater to avoid loss of biodiversity and soil contamination. This should include more clarity around assessing and managing the effects of land use change, alteration of water flows, displacement of endemic fauna, and soil and water contamination during construction and operation. Prior to project approval, the Bank should publish the Biodiversity Management Plan.

Mainstream disability inclusion in climate mitigation and adaptation. The design of BML2 should be resilient to climate change. Any design features or interventions that aim to increase resilience to climate change and climate hazards should be disability-inclusive. For example, any measures to improve the metro’s resilience to flooding should be universally accessible and not hinder persons with disabilities’ access.

Align with universal access standards. To comply with the Bank’s safeguards as well as Colombian national regulations, the Bank should adhere to universal access standards in the design, construction, and operation of BML2. This should include accessible, easy-to-read information systems and train and line identification by color, number, and loudspeaker. In addition to physical accessibility, the Bank should prioritize accessibility for those who are blind, deaf, or have intellectual disabilities. To facilitate a meaningful modal shift from private vehicles to public transport, the Bank should prioritize accessible intermodal connectivity between BML2 and other metro lines and public transport systems in Bogotá, such as Transmilenio.

Establish a child-friendly GRM. The Bank should include in the project documents a strategy to make the grievance and complaints mechanism child-friendly and accessible for children and adolescents, in line with the Bank’s Good Practice Note. This involves assessing the capacity of victim support services and coordinating with reporting lines such as 141 (Colombian Institute of Family Welfare Institute), 106 (Health Secretariat), 123 (Emergency Services), the Alert System of the District Education Secretariat, and any other relevant institutions for the protection of children.

Complete a risk analysis on the needs of children, adolescents, and persons with disabilities. Prior to the preparation and approval of the BML2 Project Appraisal Document (PAD), the Bank should conduct a risk analysis on both the needs of children and adolescents and persons with disabilities. The assessment should consider the risks of child SEA/H in and around construction sites and how these risks will be mitigated. In addition, the risk analysis should consider how persons with disabilities are excluded from transport, how climate change disrupts mobility, and how the project will overcome these issues.

Develop and publish a SEA/HAction Plan. Prior to project approval, the Bank should have a publicly available action plan to prevent and respond to child SEA/H. It should specify activities, the actors in charge, and responsibilities throughout the project cycle. The action plan should be developed and implemented in coordination with specialized entities such as the District Council for the Comprehensive Care of Victims of Domestic Violence and Sexual Violence and Exploitation. The plan should include details on training for officials of Empresa Metro de Bogotá and workers on the prevention, identification, and activation of care routes.

Improve capacity-building. The Bank should facilitate capacity-building sessions that train transportation staff, operators, and station personnel on the risks of violence against children and adolescents and disability inclusion. For trainings focused on children and adolescents, they should provide guidance to recognize behaviors and actions that are criminal and help to prevent risky situations. Disability inclusion trainings should increase awareness of persons with disabilities and their transport needs.