Implementation Completion and Results Report (ICR) Document...GACL Ghana Airports Company Limited GCAA Ghana Civil Aviation Authority ... MoF Ministry of Finance MRH Ministry of Roads

Document of

The World Bank FOR OFFICIAL USE ONLY

Report No: ICR00004760

IMPLEMENTATION COMPLETION AND RESULTS REPORT

(IDA-46000, IDA-55490)

ON

CREDIT 46000

IN THE AMOUNT OF SDR 150.5 MILLION

(US$ 225 MILLION EQUIVALENT)

CREDIT 55490

IN THE AMOUNT OF SDR 16.2 MILLION

(US$ 25 MILLION EQUIVALENT)

TO THE

REPUBLIC OF GHANA

FOR THE

TRANSPORT SECTOR PROJECT

June 24, 2019

Transport Global Practice

Africa Region

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CURRENCY EQUIVALENTS

(Exchange Rate Effective January 2, 2019)

Currency Unit = Ghanaian Cedi (GHS)

At Appraisal

GHS 1.41 = US$1

US$0.66864 = SDR 1

At ICR

GHS 4.82= US$1

US$ 1.390640 = SDR 1

FISCAL YEAR

July 1 - June 30

Regional Vice President: Hafez M. H. Ghanem

Country Director: Henry G. R. Kerali

Senior Global Practice Director: Guangzhe Chen

Practice Manager: Nicolas Peltier-Thiberge

Task Team Leader(s): John Kobina Richardson

ICR Main Contributor: Leslie Nii Odartey Mills

ABBREVIATIONS AND ACRONYMS

AF Additional Financing

ALTFTFP Abidjan Lagos Transport and Transit Facilitation Project

CPS Country Partnership Strategy

DVLA Driver and Vehicle Licensing Authority

ERR Economic Rate of Return

GACL Ghana Airports Company Limited

GCAA Ghana Civil Aviation Authority

GoG Government of Ghana

GHA Ghana Highway Authority

GPHA Ghana Ports and Harbors Authority

GPRS Ghana Poverty Reduction Strategy

GRDA Ghana Railway Development Authority

GSGDA Ghana Shared Growth and Development Agenda

GTTC Government Technical Training Center

KNUST Kwame Nkrumah University of Science & Technology

LVD Land Valuation Division

MDA Ministries, Departments and Agencies

MoF Ministry of Finance

MRH Ministry of Roads and Highways

NRSC National Road Safety Commission

NPV Net Present Value

PIM Project Implementation Manual

PIT Project Implementation Team

RAI Rural Accessibility Index

RF Road Fund

RMU Regional Maritime University

RSDP Road Sector Development Program

ToC Theory of Change

TSP Transport Sector Project

VLTC Volta Lake Transport Company

TABLE OF CONTENTS

DATA SHEET .......................................................................................................................... 1

I. PROJECT CONTEXT AND DEVELOPMENT OBJECTIVES ....................................................... 5

A. CONTEXT AT APPRAISAL .........................................................................................................5

B. SIGNIFICANT CHANGES DURING IMPLEMENTATION (IF APPLICABLE) .......................................8

II. OUTCOME .................................................................................................................... 10

A. RELEVANCE OF PDOs ............................................................................................................ 10

B. ACHIEVEMENT OF PDOs (EFFICACY) ...................................................................................... 11

C. EFFICIENCY ........................................................................................................................... 14

D. JUSTIFICATION OF OVERALL OUTCOME RATING .................................................................... 16

E. OTHER OUTCOMES AND IMPACTS (IF ANY) ............................................................................ 17

III. KEY FACTORS THAT AFFECTED IMPLEMENTATION AND OUTCOME ................................ 18

A. KEY FACTORS DURING PREPARATION ................................................................................... 18

B. KEY FACTORS DURING IMPLEMENTATION ............................................................................. 19

IV. BANK PERFORMANCE, COMPLIANCE ISSUES, AND RISK TO DEVELOPMENT OUTCOME .. 21

A. QUALITY OF MONITORING AND EVALUATION (M&E) ............................................................ 21

B. ENVIRONMENTAL, SOCIAL, AND FIDUCIARY COMPLIANCE ..................................................... 22

C. BANK PERFORMANCE ........................................................................................................... 23

D. RISK TO DEVELOPMENT OUTCOME ....................................................................................... 24

V. LESSONS AND RECOMMENDATIONS ............................................................................. 25

ANNEX 1. RESULTS FRAMEWORK AND KEY OUTPUTS ........................................................... 28

ANNEX 2. BANK LENDING AND IMPLEMENTATION SUPPORT/SUPERVISION ......................... 38

ANNEX 3. PROJECT COST BY COMPONENT ........................................................................... 41

ANNEX 4. EFFICIENCY ANALYSIS ........................................................................................... 42

ANNEX 5. BORROWER, CO-FINANCIER AND OTHER PARTNER/STAKEHOLDER COMMENTS ... 59

ANNEX 6. SUPPORTING DOCUMENTS (IF ANY) ..................................................................... 60

The World Bank Transport Sector Project (P102000)

Page 1 of 63

DATA SHEET

BASIC INFORMATION

Product Information

Project ID Project Name

P102000 Transport Sector Project

Country Financing Instrument

Ghana Investment Project Financing

Original EA Category Revised EA Category

Full Assessment (A) Full Assessment (A)

Organizations

Borrower Implementing Agency

Ministry of Finance and Economic Planning Ministry of Roads and Highways

Project Development Objective (PDO) Original PDO

The project development objective (PDO) is to improve mobility of goods and passengers through reduction in travel time and vehicle operating cost, and to improve road safety standards. This objective will be achieved through strengthening the capacity of transport institutions in planning, regulation, operations and maintenance, and through infrastructure investment.


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FINANCING

Original Amount (US$) Revised Amount (US$) Actual Disbursed (US$)

World Bank Financing IDA-46000

225,000,000 224,995,120 220,463,716

IDA-55490

25,000,000 24,999,992 22,536,317

Total 250,000,000 249,995,112 243,000,033

Non-World Bank Financing 0 0 0

Borrower/Recipient 0 0 0

Total 0 0 0

Total Project Cost 250,000,000 249,995,113 243,000,033

KEY DATES

Approval Effectiveness MTR Review Original Closing Actual Closing

30-Jun-2009 12-Nov-2009 03-Jun-2013 30-Jun-2015 31-Dec-2018

RESTRUCTURING AND/OR ADDITIONAL FINANCING

Date(s) Amount Disbursed (US$M) Key Revisions

29-Jun-2018 231.34 Change in Results Framework Change in Loan Closing Date(s) Reallocation between Disbursement Categories Change in Implementation Schedule

KEY RATINGS

Outcome Bank Performance M&E Quality

Moderately Satisfactory Moderately Satisfactory Modest


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RATINGS OF PROJECT PERFORMANCE IN ISRs

No. Date ISR Archived DO Rating IP Rating Actual

Disbursements (US$M)

01 12-Nov-2009 Satisfactory Satisfactory 0

02 24-May-2010 Satisfactory Satisfactory .50

03 06-Dec-2010 Satisfactory Moderately Satisfactory 5.50

04 09-Oct-2011 Satisfactory Moderately Satisfactory 8.53

05 28-May-2012 Satisfactory Moderately Satisfactory 13.79

06 25-Feb-2013 Satisfactory Moderately Satisfactory 33.62

07 02-Oct-2013 Satisfactory Moderately Unsatisfactory 51.22

08 23-Feb-2014 Satisfactory Moderately Satisfactory 73.13

09 22-Jan-2015 Satisfactory Moderately Satisfactory 132.23

10 15-Nov-2015 Satisfactory Moderately Satisfactory 164.15

11 30-Jun-2016 Moderately Satisfactory Moderately Unsatisfactory 189.42

12 24-Jan-2017 Moderately Satisfactory Unsatisfactory 214.64

13 12-Nov-2017 Moderately Satisfactory Moderately Unsatisfactory 223.15

14 23-Jun-2018 Satisfactory Moderately Satisfactory 231.34

15 31-Dec-2018 Satisfactory Moderately Satisfactory 243.00

SECTORS AND THEMES

Sectors

Major Sector/Sector (%)

Transportation 100

Urban Transport 36

Public Administration - Transportation 13

Rural and Inter-Urban Roads 51

Themes

Major Theme/ Theme (Level 2)/ Theme (Level 3) (%)


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Private Sector Development 10

Public Private Partnerships 10

Urban and Rural Development 100

Urban Development 50

Urban Infrastructure and Service Delivery 50

Rural Development 50

Rural Infrastructure and service delivery 50

ADM STAFF

Role At Approval At ICR

Regional Vice President: Obiageli Katryn Ezekwesili Hafez M. H. Ghanem

Country Director: Ishac Diwan Henry G. R. Kerali

Senior Global Practice Director: Jamal Saghir Guangzhe Chen

Practice Manager: C. Sanjivi Rajasingham Nicolas Peltier-Thiberge

Task Team Leader(s): Ajay Kumar John Kobina Richardson

ICR Contributing Author: Leslie Nii Odartey Mills


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I. PROJECT CONTEXT AND DEVELOPMENT OBJECTIVES

A. CONTEXT AT APPRAISAL

Context 1. In 2009, Ghana’s vision of attaining middle income status was strongly underpinned by Government’s

objective to strengthen the provision of infrastructure services and improve Ghana’s business environment

to sustain broad-based growth. In particular, the importance of transport infrastructure was highlighted in

Ghana’s Poverty Reduction Strategy (GPRSII) where transport was recognized as an enabler to economic

growth and poverty reduction. The transport sector accounted for 5% of Ghana’s GDP and was instrumental in

providing access to jobs and markets.

2. Ghana had a fairly developed transportation system in 2009. Roads, being the predominant mode of

transportation, accounted for 94% of freight and 97% of all traffic movements in the country. In signifying its

commitment to road transport, Ghana had just completed its Road Sector Development Program (RSDP) in

June 2008. Achievements chalked under RSDP1 included:

i. Improvement in the quality of Ghana’s road network and a 40% increase in road length. Under the

program and over a 5-year period conditions observed in Ghana’s road network showed a 10%

increase in good condition, a 2% increase in fair condition and a 12% reduction of roads in poor

condition.

ii. Improvement in operations of an independent road fund, supported by a dedicated fuel levy

iii. Increase in maintainable network of feeder roads from 11500km to 30000km

iv. Decline in accident fatality rate from 27 per 10000 vehicles to 22; and

v. Completion of selected policy studies and action plans to improve sector strategy, financing,

management, delivery and private sector participation in road transport.

3. Gains made under RSDP were not reflective for other modes of transport in Ghana. These modes: rail,

maritime and inland water and aviation had suffered significantly lower prominence relative to road transport.

They were under-utilized and plagued by inefficiencies as a result of low investments as well as institutional

and infrastructure capacity constraints. During the Mid-Term Review of RSDP, it was noted that a contributory

factor linked to the inefficiencies of modes other than roads was the absence of an integrated and coordinated

approach to multi-modal planning. Specifically, laws, regulations, institutions, decision-making and financing

mechanisms affecting the entire transport sector were uncoordinated and had created significant barriers to

sector performance improvement while restricting opportunities that could be harnessed through domestic

and sub-regional movement of people, goods and services.

4. Generally, the performance of the transport sector was mixed when assessed holistically. On average, the

performance of a particular mode of transport was based on the level of attention and or commitment

Government of Ghana showed to that mode. In turn, the level of attention given to a particular mode of

transport was directly correlated to its traditional dominance as well as availability of investment opportunities

associated with the said mode. As such in terms of usage and performance, different modes exhibited varying

degrees of success and limitations.

1 Road Sector Development Program (Cr. No. 3554-GH)


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Theory of Change (Results Chain) 5. As at 2009, Ghana’s planning and decision making in the transport sector focused almost exclusively on

improving individual modes with very little attention paid to the interaction between different modes. The lack

of a comprehensive approach towards multi-modal planning and coordination had created inefficiencies in the

transport sector with direct consequences on the movement of people, goods and services. Secondly, Ghana

had yet to fully maximize opportunities presented through road transport, the dominant mode of transport in

the country. Opportunities such as improving rural, urban, regional and sub-regional connectivity through

roads had not been realized; and yet problems such as road accidents, uncontrolled vehicle growth, deferred

maintenance and lack of enforcement of traffic regulation were beginning to mount. With this backdrop, the

Transport Sector Project (TSP) was developed to remedy inefficiencies with coordination in the transport sector

and to expand road connectivity in the country.

6. The Transport Sector Project (TSP) utilized experiences from RSDP in formulating its objective. A key lesson

obtained from RSDP was that efficient mobility of goods and services in Ghana was hindered by the absence of

integrated and coordinated multi-modal planning. This had severely hampered Government’s objective of

“fostering effective modal integration and economic assignment of traffic to modes through market

mechanism in order to minimize over-all transport costs to users.”2. The objective was unfulfilled as at 2008.

7. TSP also recognized the dominance of road transport in Ghana. It therefore sought to magnify gains obtained

under RSDP where it had been established that a direct positive correlation existed between the incidence of

poverty and road condition.3 Specifically RSDP showed that improved roads over a 3 year period resulted in (a)

a 20% increase in the number of hospital trips; (b) a 23% increase in the price of maize received by farmers (c) a

65% lower cost of traveling to market; and (d) a 41% cost reduction in traveling to welfare services. Thus, TSP’s

motivation stemmed from an opportunity to fully maximize connectivity within Ghana’s road transport sector.

8. One critical assumption underlying TSP was that comprehensive multi-modal planning and coordination

amongst modes and their respective actors would lead to efficiencies in Ghana’s transport sector which would

ultimately translate to cost-savings for passengers, goods and services. It is also assumed that improved road

safety standards contribute to improved mobility of goods and passengers.

9. Theory of Change (ToC) was not a requirement at the time of Project Preparation. However, one has been

formulated for the ICR using the PAD & Additional Financing Project Document. The TOC is shown in Figure 1.

Project Development Objectives (PDOs) 10. The original PDO was to improve mobility of goods and passengers through reduction in travel time and vehicle

operating cost, and improvement in road safety standards. This PDO was to be achieved through strengthening

the capacity of transport institutions in planning, regulation, operations and maintenance, and through

infrastructure investments. The PDO as stated in the Financial Agreement is the same as in the approved PAD.

Key Expected Outcomes and Outcome Indicators 11. The original PDO indicators were (a) Average travel time reduced by at least 20% on project financed roads; (b)

Average VOC (in real terms) reduced by at least 10% on project financed roads; (c) Fatality rate reduced from

22 per 10,000 vehicles to 19 per 10,000 vehicles (d) Rural Accessibility Index (RAI) increased from 53% to 57%;

2 www.ghana.gov.gh 3 “Baseline Studies of the RSDP,” Ministry of Roads and Highways (2006), Ghana


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(d) Condition of trunk road network in good and fair condition improved from 83% to 88%; from 36% to 50%

for urban roads; and from 72% to 85% for feeder roads.

Figure 1: Theory of Change for TSP

Components 12. Project Components with corresponding activities are shown in Table 1 below

Table 1: Project Components

Component Activities Cost Estimates

(2009)

Cost Estimates

(2015 AF)

Actual Costs

(2018)

A – Support to

Ministry of Roads &

Highways (MRH)

(a) Integration of GIS of Road

Agencies; (b) Organization of

Development Partners’

Conference; (c) Preparation of

Feasibility Studies; (d) Capacity

Building

$US 4.2m $US 4.2m $US 4.127m

Activities Outcomes

Improved mobility of

goods & passengers on selected

roads

Reduction in travel time & Vehicle

Operating Costs

% Reduction in Road Fatalities

Improved Institutional

Capacity

Outputs

Length of Road

Network Rehabilitated

Increase in Rural & Urban Accessibility

Increase in good & fair condition of

road network

Increase in Road Fund

Contribution Enacted

Regulation & Completed

Institutional Plans

Number of awareness

creation opportunities

Rehabilitation of roads & ancillary

infrastructure

Launch legislative & institutional

instruments to strengthen transport subsector capacity

Launch road safety

interventions

Enhanced Road Safety

Awareness

A2

A1

Key Assumptions A1: Implementation of Enactments & Plans A2: Road users apply knowledge gained from safety campaigns


Page 8 of 63

B – Support to Road

Sector and

Educational Entities

Support to DVLA, NRSC, KNUST &

GTTC

$US 6.5m $US 6.14m $US 5.238m

C – Improvement of

Trunk Roads

(a) Rehabilitation of Ayamfuri –

Asawinso Road; (b) supervision

(including environmental & social

safeguards); (c) Capacity Building

& Equipment

$US 64m $US 71.64m $US 86.965m

D – Improvement of

Urban Roads &

Infrastructure

(a) Provision of Urban Transport

Infrastructure; (b) Rehabilitation

of Burma Camp Road; (c)

Rehabilitation of Giffard Road; (d)

Capacity Building; (e) Supervision

(including environmental and

social)

$US 78m $US 95.86m $US 79.442m

E – Improvement of

Feeder Roads

(a) Improvement/ Rehabilitation

of Feeder Roads; (b) Supervision

(including environmental and

social; (c) Capacity Building

$US 50.5m $US 50m $US 46.763m

F – Support to MoT

& Other Transport

Entities

Support to MoT, GACL, GCAA,

GMA, VLTC, GPHA and RMU

$US 13.5m $US 13.5m $US 12.145m

G – Project

Management

Procurement of Vehicles &

Equipment; Human Resource

Development

$US 8.3m $US 8.66m $US 8.320m

Total $US 225m $US 250m $US 243.000m

13. With reference to Table 1, the project amount of $225mil in 2009 was increased to $250 mil in 2015 through

Additional Financing (AF). This additional credit of $25mil was used to fund a financing gap created as a result

of cost-overruns on the rehabilitation of the Ayamfuri-Asawinso road and targeted urban roads in the Accra

East corridor. AF was also used to adjust cost estimates of individual components. The difference in the 2015

estimated costs and 2018 actual project costs is $7 mil. This difference was used to cover exchange rate

losses.

B. SIGNIFICANT CHANGES DURING IMPLEMENTATION (IF APPLICABLE)

Revised PDOs and Outcome Targets 14. For additional financing in 2015, the PDO was revised as “to improve mobility of goods and passengers on

selected roads through reduction in travel time, reduction in vehicle operating costs, and enhanced road safety

awareness.” Additional Financing was approved with Level 1 restructuring.


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Revised PDO Indicators 15. All indicators in the parent PDO were maintained except for the following:

(a) “Fatality rate reduced from 22 per 10,000 vehicles to 10 per 10,000 vehicles” was moved to an Intermediate

Outcome level.

(b) “The number of direct beneficiaries and the percentage of which were females” was added.

(c) End-of-Project target value for Increase in Rural Accessibility Index changed from 57% to 68%

Revised Components 16. There were no changes to the parent components

17. It is stated here that the outcomes and indicators proposed in the AF were not activated within the

Operations Portal. As a result, AF outcomes and indicators were not monitored throughout implementation;

but rather monitoring of parent outcomes & indicators continued. For the purposes of this ICR, assessment of

outcomes will be done using indicators which were monitored throughout the project implementation phase.

Other Changes 18. Overall: In April 2010, the project was restructured to reallocate US$2 million out of US$3 million of project

funds allocated to the Volta Lake Transport Company (VLTC) for studies and to purchase engines for ferries operated by VLTC. The original closing date for the IDA Credit was June 30, 2015 but was extended for thirty-six months under additional financing in the amount of SDR 16.2 million (US$25 million) for cost overruns on the major civil works until June 30, 2018. In June 2018, the project was extended to December 31, 2018, on account of delayed payment of resettlement compensation on the Ayamfuri-Asawinso road works. Project restructuring also involved a reallocation of proceeds to allow contingency funds to be applied to Category 1 of the project.

19. Specific Changes to 2015 AF Intermediate Outcome Indicators are as follow: (a) 2 indicators were revised. “The Implementation of the Axle Load Control Action Plan” became “Number of

Axle Load Vans Deployed”; and “Contribution of the Road Fund to planned maintenance expenditures” became “Road Fund (RF) share of annual expenditures on road maintenance.”

(b) 4 of 13 intermediate outcomes were dropped. These were strengthened Road Fund (RF) Management;

feasibility studies for the dualization of the Tema Meridian Road; operationalization of GRDA; and

completion of detailed design and safeguard reports for the Takoradi Airport.

20. Reasons for dropping and revising each respective Intermediate indicator in 2015 AF

(a) Axle Load - deployment of mobile axle load vans shows more specificity than implementation of Axle Load

Control Action Plan

(b) Road Fund – the revised indicator is a better measure of improved financing of road maintenance.

(c) Strengthened RF Management - dropped due to measurement issues, and impact of better RF management

is expected to be captured by the indicator on RF contribution to maintenance expenditures

(d) Feasibility Study for the dualization of Tema Meridian Road - dropped as a result of Government decision to

transfer the preparation of studies and works to funding from the China Development Fund4

(e) GRDA - dropped as the project supports the preparation of institutional and regulatory studies and not

operationalization of recommendations

(f) Takoradi Airport - GACL failed to reach an agreement with the military on adaptation of the existing military

airport at Takoradi for civilian use.

4 The planned CDF funding had not materialized at the time of project closure


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Rationale for Changes and Their Implication on the Original Theory of Change 21. The revised PDO sought to clarify that mobility improvements are targeted for project funded roads and not the

country as a whole; and that project interventions support enhanced road safety awareness rather than road

safety standards. With the revision of the PDO, the indicator for fatality rate was no longer relevant at the PDO

level and was therefore moved to the intermediate level. Tracking of safety improvements in Ghana was to be

monitored as an indirect indicator of raised safety awareness. Revisions do not affect ICR Theory of Change

(ToC) since proposed changes in the AF were incorporated in the formulation of the ICR ToC.

22. A split rating was not applied in assessing the outcomes of TSP. The main justification was that phrases in the

parent PDO that were vaguely worded were clarified in the revised PDO. Specifically, roads that were initially

referenced in the original PDO should have been specified as project funded roads. For road safety standards,

even though its related phrase was reworded to road safety awareness, the indicator on fatalities was still

monitored as a PDO indicator. This occurred as a result of proposed changes made at AF not being incorporated

into the M & E framework. More so, the indicator for fatalities was met prior to AF and at project close, hence

there was no reason to apply a split rating due to the change proposed for this outcome at AF.

II. OUTCOME

A. RELEVANCE OF PDOs

Assessment of Relevance of PDOs and Rating 23. The PDOs remain highly relevant. They are consistent with the Ghana-World Bank Group (WBG) Country

Partnership Strategy (CPS) for FY13-165, which was extended up to FY186. Transport is prominently mentioned Under Pillar II as one of the sectors that could improve competitiveness and enhance job creation. One of the outcomes for Pillar II lists improved mobility of goods and passengers with its related indicator being the condition of trunk roads in fair and good condition. Furthermore, the CPS cites the potential for road, rail, air, maritime and inland water transport to open up access to markets through better connectivity. The CPS also recommends the promotion of investments targeted at the decongestion of urban roads; modernization of existing main corridors linking major regional centers and the capital as well as neighboring countries; rehabilitation of major ports and airports; and improving roads to better serve rural communities.

24. Ghana’s national development agenda continues to pursue objectives and outcomes covered under TSP. The Ghana Shared Growth and Development Agenda II (GSGDA II) mentions the challenges the transport sector faces, and reflects the same challenges identified by TSP. Key challenges facing the sector include poor coordination and cooperation among relevant institutions; rural-urban disparities in access to transport services; poor linkages between land use and transport planning; inadequacy of funding for construction, maintenance and management of all modes of transport; absence of legal framework for developing PPPs; inadequate enforcement of transport regulations, premature road deterioration, increasing traffic congestion, rise in road accidents and inadequate infrastructure to sustain rail, aviation, maritime and inland water transport. GSGDA II identifies the constraints these challenges pose to Ghana’s vision to become a hub and

5 CPS Report number 76369 6 New CPF is under preparation


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gateway to West Africa. Similar challenges are also reflected in Government’s Coordinated Programme of Economic and Social Development Policies7. This Programme highlights the constraints challenges in the transport sector pose to Government in its agenda to stimulate job creation opportunities.

25. Considering the above, the rating for Relevance of the PDO is High.

B. ACHIEVEMENT OF PDOs (EFFICACY)

26. Using the revised PDO, TSP aimed to improve mobility of goods and passengers through reduction in travel time and vehicle operating costs on project-funded roads. The project outcome was broadly supported by the following intermediate level outcomes: enhanced infrastructure investment, enhanced road safety awareness and improved capacity of transport institutions to efficiently undertake planning, regulation, operations and maintenance for different modes. With a combination of ISR data and random surveys of project beneficiaries, the ICR rates overall achievement of PDOs as Substantial. The motivation for this rating is established in the subsequent sections where each Component is analyzed to assess how project outcomes were achieved. Information obtained through interviews during the ICR mission using random surveys is also presented.

7 Government’s Coordinated Programme of Economic and Social Development Policies 2017-2014

Assessment of Achievement of Each Objective/Outcome 27. The assessment of TSP’s PDO is realized by analyzing the extent to which its related PDO outcomes were

achieved. With reference to the Theory of Change in Figure 1, the project’s objective of improving mobility of goods and passengers on selected roads were to be achieved through reduction in travel time and vehicle operating costs as well as enhanced road safety awareness.

28. Outcome 1 - Reduction in Travel Time and Vehicle Operating Costs (VOCs): This was to be achieved locally through improvement in road conditions of selected trunk, urban and feeder roads within TSP. Simultaneously, this outcome was broadly assessed by the percentage of the country’s road network in good, fair and poor condition; rural and urban accessibility as well as funding for road maintenance. Whereas reduction in travel time was obtained through improved road conditions on project-specific roads; vehicle operating costs depicted an increase at project closing. For VOC’s an observation made during the project cycle showed a trend of reducing costs for majority of the project cycle, followed by increased costs at project closing. One contributory factor for this trend was inadequate funding for maintenance to keep roads in good condition after improvements had occurred; thus, vehicle operating costs were observed to increase with deteriorating conditions of previously maintained roads. Share of Road Fund contributions to maintenance remained at 60% throughout the project and did not increase as demands for maintenance increased. For accessibility, initial improvements in road conditions meant increased accessibility for road users. Under TSP, project components C, D and E were designed to realize this outcome and are analyzed here.

29. Component C - Improvement of Trunk Roads: Post-rehabilitation, travel time on the Ayamfuri-Asawinso road after rehabilitation was 55 minutes compared to a baseline value of 90 minutes and an end-of-project value of 65 minutes. On the national network, percentage of trunk roads in good & fair condition increased from a baseline value of 83% to 93% by project close. The end target value of 88% was exceeded. In assessing improved conditions on the Ayamfuri-Asawinso road, a site visit was undertaken as part of the ICR mission. Interviewees approached during the site visit comprised market women, Dominase residents, a headmaster at Amubaka and taxi drivers at Asawinso. In spite of the remaining minor engineering works, road users were highly satisfied with the improvement in road conditions. They reported reduction in travel times and vehicle operating costs as well


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as increased access to social services. Generally, individuals living in communities along the project route testified to a marked improvement in the movement of people, goods and services after rehabilitation of the road.

30. Component D - Improvement of Urban Roads and Infrastructure: The major activities under this component have been undertaken. Percentage of urban roads in good & fair condition increased from a baseline value of 36% to 54% by project close. The end of target value for this indicator was 50%. The Mission visited the Giffard and Burma Camp roads that were rehabilitated under this component. Per the drivers interviewed on site, road rehabilitation had markedly improved driving conditions with associated reduction in travel time and vehicle operating costs. Pedestrians along the route also reported feeling safe as road users; and no pedestrian accidents or fatalities have been recorded. However, drivers raised concerns about non-functioning street and traffic lighting systems. They reported witnessing vehicular accidents at junctions where due to lack of maintenance, traffic signals were not operating as designed. In addition to the urban arterials, the Mission visited the 2 bus terminals upgraded as part of Component D. At both terminals, representatives from the Municipal Assemblies, driver unions and contractors briefed the Mission on the importance of the modern bus terminals in their municipalities as well as the status of civil works. Representatives described in-situ conditions that existed before the terminals were upgraded. Prior to the upgrade, drivers and passengers operated in an unsafe environment in which lorry stations were exposed to weather elements, and poor sanitary and security conditions. With the new terminals, users (including minority groups like the physically challenged) now have state-of-the-art facilities to support bus operations.

31. Component E – Improvement of Feeder Roads: All activities aimed at improving rural access through efficient and sustainable feeder roads rehabilitation, maintenance and cost-effective feeder roads improvement have been completed. Percentage of feeder roads in good & fair condition increased from a baseline value of 72% to 75% by project close. However, the end target value of 85% was not met. At the close of TSP, Rural Accessibility Index (RAI) met its end target value of 57%. RAI in 2018 stood at 66.6%. This marked achievement in RAI meant the percentage of rural people who live within two kilometers of an all-season road had increased. Selected feeder roads across 3 regions were visited as part of the Mission. Different groups of road users of project financed feeder roads appreciated the impact of road improvement in their day to day activities. Traders commented on how efficient their businesses had become due to the ease of moving commodities from wholesale centers to their shops. Teachers and students recounted challenges faced in commuting from home to school pre-road improvement; especially during rainy seasons. In general, most interviewees testified to the positive impacts project rehabilitated roads have had on their lives. Areas of concern for project beneficiaries that were expressed during the site visit were poor drainage provisions, the presence of dust and an increase in the number of over-loaded vehicles using improved roads.

32. Outcome 2 – Enhanced Road Safety Awareness: In conjunction with other road safety initiatives in Ghana, TSP contributed to reducing road fatalities per 10000 vehicles from 22 in 2009 to 9.74 in 2018. End target value for Project was 19 fatalities; thus a significant reduction was recorded at project close. TSP achieved this through targeted road safety initiatives such as road safety education campaigns, improved driver testing facilities and provision of road safety equipment and infrastructure to assist with road safety enforcement and post-crash care. Under TSP, Component B was designed to achieve this outcome and is analyzed here.

33. Component B - Support to Road Sector and Educational Entities: As part of improving road safety standards and enhancing investments in infrastructure, TSP supported DVLA in the construction of two driver testing ground testing facilities. The testing facility at Tema has been constructed and is in use; while that of Kumasi is 85% complete. The ICR Mission visited both driver testing grounds. Managers at the completed facility in Tema described the usefulness of the testing facility which presently serves as a primary feature in assessing the competencies of new drivers. Using the facility prior to in-traffic tests ensures safety for DVLA assessors. In the


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pre-project dispensation, assessors conducted in-traffic tests without any preliminary tests to assess new driver competencies. This exposed assessors, new drivers and mainstream road users to significant risks during in-traffic testing. Such risks are now substantially reduced as drivers have to first pass critical driving maneuvers at the test facility before they are taken out onto the road for further assessment. The testing facility at Tema has provided an additional benefit to DVLA. Private driving schools have shown interest in using the new facility for a fee. DVLA’s engagement of the private sector in this regard is highly commendable.

34. As part of Component B and in improving road safety awareness, NRSC engaged in extensive road safety campaigns throughout the country, utilizing road safety information, education and teaching materials designed under the project. In addition, using TSP support, NRSC spearheaded other interventions such as the provision of road safety equipment for compliance monitoring as well as the construction of eight pilot emergency response centers. The mission visited the center at Gomoa Okyereko where first-aid can be given to accident victims prior to transfer to nearby hospitals. The location of this center has reduced the estimated reaction time accident victims receive medical assistance by one hour.

35. A key factor identified towards the realization of the two PDO outcomes was improved institutional capacity. The motivation here is to develop legislative and institutional instruments to enhance performance of Ministries and agencies within the transport sector. It also comprises building the human resource capacity of these institutions to improve efficiency. Within TSP, short-term gains were attained through the support provided to implementing and beneficiary agencies to build capacity within their human resource personnel. However long-term gains related to over-all institutional reforms proved difficult to assess as various institutional and legislative instruments funded under the project are at varied stages of adoption and implementation. Components A, B and F were conceptualized to achieve institutional strengthening of the transport sector. They are discussed as follow:

36. Component A - Support to Ministry of Roads and Highways (MRH): All studies under TSP that were assigned to the MRH have been concluded. Studies targeted but were not limited to strengthening institutional capacities in areas such as policy and institutional reforms. Examples of study outputs are review of Ghana’s tolling policy; development of road operating and safety standards and axle load control; a monitoring and evaluation system for roads; a human resource strategy for the Ministry etc. With studies complete, the next step of institutionalization of outputs within MRH is at different levels. For example, while study recommendations on axle load control have been incorporated into MRH’s decision-making process; recommendation on the tolling policy is serving as input into broader deliberations on PPP legislation in Ghana.

37. Component B also provided support to educational entities. As a result, both KNUST and GTTC have elevated their transport programs. Graduate transport programs developed within KNUST’s Transport Research Center as part of TSP have been leveraged to transform the Center into an Africa regional center of excellence in mobility training and research. This visibility has also spurred on international collaboration with leading universities in transport, the latest being the Technical University of Munich and École Polytechnique Fédérale de Lausanne. With its new status, the Center will continue to train professionals in an interdisciplinary environment where all transport modes form the basis of teaching and learning. Graduates, who naturally progress as professionals in transport agencies will continue to contribute to the coordination of transport sector policies from a multimodal perspective. At GTTC, TSP support had provided a 4-story classroom block as well as some teaching and learning materials, notable among which was a vehicle maintenance simulator. The completion of the classroom block enabled student enrollment to increase from 80 students to 120 students at entry level. The vehicle maintenance simulator funded under TSP has raised the profile of the Center’s curriculum which had in turn fostered collaboration between the Center and SCANIA AB, a global trucking manufacturer. This collaboration includes opportunities for internships for students as well as knowledge transfer opportunities. TSP’s contribution to training at GTTC offers a capacity building avenue for the next generation of Ghanaian transport


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C. EFFICIENCY

Assessment of Efficiency and Rating

39. The civil works including contingencies represented about 85% percent of total project costs. The

economic analysis has been developed based on the scope and costs of the civil works, which consist of reconstruction, rehabilitation, and upgrading of the: (a) Ayamfuri-Asawinso; and (b) urban road network, specifically the Giffard and Burma Camp Roads. Both ex ante and ex post analyses are presented in this section. The economic analyses were undertaken using the road planning model Highway Development and Management Model version 4 (HDM 4). A discount rate of 12% is applied to all cases.

professionals. 38. Component F - Support to Ministry of Transport (MOT) and other Transport Sector Entities: Consultancy

studies for agencies under MOT to improve the planning and management of sub-sector agencies, and procurement of some critical equipment for Volta Lake Transport Company (VLTC) and Regional Maritime University (RMU) were completed. Key outputs achieved through the support of TSP were the enacted road traffic regulation; a public expenditure and institutional review for the transport sector; a national airport system plan, development of regulations for Ghana Civil Aviation Authority (GCAA), a Railway Business Plan and an Organizational Developmental Plan for Ghana Railway Development Authority (GRDA); a Masterplan for Inland Water Transport on Volta Lake etc. Through TSP, RMU has also made strides in developing its academic curriculum and building capacity amongst Ghana’s next generation of marine professionals. Whereas the University used to send students to KNUST for practical training, support from TSP in acquiring state-of-the art laboratory equipment has assisted RMU to expand and introduce new 12 courses and assign cadets to vessels for on-board practical training. RMU’s end of project target for courses was 8; and expectations have been exceeded. Collaboration with global shippers like Bernhard Schute and PIL Singapore has given students the opportunity to intern and acquire best practices from such renowned shippers.

Table 2: Achievement of PDO Indicators

PDO Indicators Baseline Target 2018 Status

Average travel time (minutes): - Ayamfuri-Asawinso - Burma Camp - Giffard Road

90 60 40

65 45 30

50 45 30

Average VOC reduced (in real terms) (US$/veh-km) 0.20 0.17 0.23

Fatality Reduced (per 10,000 vehicles) 22 19 9.74

Increase in RAI 53 57 66.6

Condition of road network in good and fair condition - Trunk - Urban

Feeder

83 36 72

88 50 85

93 54 75

Justification of Overall Efficacy Rating From Table 2, seven of the nine PDO outcomes were achieved. Thus, a proposed rating of Substantial is proposed.


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40. In 2008, economic analyses of the 3 roads were done as part of project preparation. Results obtained are shown in Table 3. The Net Present Values (NPVs) were positive; & Economic Rate of Return (ERR) percentages were higher than the discount rate of 12%.

Table 3: 2008 Ex Ante Economic Analysis

Road Link NPV (@12%) (US$mil) ERR

Ayamfuri-Asawinso 55 17.9%

Giffard Road 2.5 20%

Burma Camp Road 2.7 15%

41. Assumptions made in computing the indicators in Table 3 are as follows:

• It was assumed that population and income growth will provide the basis for traffic growth forecasts.

• For Ayamfuri-Asawinso, the highest growth rate was assumed for light vehicles where a growth rate of

7.1% was adopted from 2008-2015; and 6.5% in the period 2015-2025.

• For the urban roads, traffic was assumed to grow at 3% from 2010 – 2016; 4% from 2017 – 2029.

42. For Additional Financing in 2015, economic analyses yielded the values shown in Table 4. Here again values for

full road lengths were positive for NPV; and ERR was greater than the discount rate of 12%.

Table 4: 2015 AF Economic Analysis


Ayamfuri-Asawinso 16.07

15.01%

Giffard Road 23.82 48.4%

Burma Camp Road 1 Burma Camp Road 2

8.76 24.88

21.7% 60.8%

43. Assumptions made in computing the indicators in Table 4 are as follows:

• Analysis for Ayamfuri-Asawinso assumed completion of works in 2016, and design life of 15 years

• For Burma Camp & Giffard Roads, a base year of 2012 was selected, and a design life of 27 years was used.

44. Ex Post Economic Analyses was conducted as part of Government’s ICR using the following inputs presented in Table 5. A summary is presented in the table with an extensive description being provided in Annex 4.

Table 5: Inputs for Ex Post Analysis

Road Name Giffard Burma Camp 1 Burma Camp 2 Ayamfuri-Asawinso

Design Life 20 years 20 years 20 years 15 years

Const. Start Date 09/2012 11/2012 09/2012 05/2013

Opening to Traffic 10/2016 09/2017 06/2015 05/2017

Road Type 4 Lane Major Arterial 4 Lane Major Arterial 4 Lane Major Arterial 2 lane Trunk Road

Surface Material Asphalt Concrete Asphalt Concrete Asphalt Concrete Asphalt Concrete

Road Length 5.7km 4.86km 3.4km 52.2km

Project cost (US$) 28.001mil 30.803mil 16.91mil 86.965mil


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45. The economic outputs obtained ex-post showed results were mixed. The main benefits of rehabilitation realized are due to savings in VOC and travel time. Table 6 highlights the performance of the selected economic indicators for the different road links.

Table 6: Results of Ex-Post Analyses


Ayamfuri-Asawinso -15.275 1.9%

Giffard 2.80 12.9%

Burma Camp 1 84.85 33.1%

Burma Camp 2 45.82 40.0%

46. The following observations are made from Table 6.

• Maximizing economic efficiency was not attained for Ayamfuri-Asawinso. The NPV value was negative and ERR was below the discount rate of 12%. A key factor that contributed to this was cost over-runs associated with rehabilitation. Actual costs in 2018 exceeded 2008 cost estimates by 36%; and exceeded 2015 AF cost estimates by 21% (Table 1). The main reasons for the overruns were unforeseen ground conditions as well as higher than expected growth in traffic after preparation of road designs, resulting in a need for modified designs. AADT grew by almost 300% between road design completion and commencement of construction. The change in traffic levels necessitated the strengthening of the pavement structure with an additional 100 mm of crushed rock base. Drainage requirements were also impacted and updated with additional provisions for slope stabilization (previously not considered critical) to prevent premature failure of specific cut sections.

• Economic efficiency for urban roads was attained. NPV values for both Giffard and Burma Camp roads were positive; and ERR percentages were above the discount rate of 12%. Referencing Tables 4, 5 and 6; economic gains from the Burma Camp Road post-construction far exceeded NPV and ERR values estimated at project appraisal and during approval for Additional Financing. In the case of Giffard, economic gains in 2018 were lower than estimates made for Additional Financing. For 2008 estimates, NPV values were similar, while ERR for 2008 was higher. Key economic benefits accrued after improvement of this urban corridor are vehicle operating cost savings and time savings.

• The project was extended twice due to implementation delays. Remediation measures to rectify engineering and traffic challenges posed to construction of civil works as described in Par. 46 resulted in an extension period of 1 year for the completion of works. Separately an additional extension of 6 months was given on account of delayed payment of resettlement compensation on the Ayamfuri-Asawinso road.

47. Based on the above, an Efficiency is rated Modest.

D. JUSTIFICATION OF OVERALL OUTCOME RATING

48. Using the ratings for relevance, efficacy and efficiency, the project’s overall outcome is rated Moderately Satisfactory. With an objective to improving mobility of goods and passengers on selected roads, TSP achieved significant reduction in travel time on project funded roads and contributed to increasing road safety awareness country-wide. Data collected during monitoring and evaluation of the project as well as random surveys conducted within beneficiary communities demonstrated the positive impacts of improved


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connectivity on residents living in these communities. Implementation delays faced by TSP however increased project costs and affected the timeliness in delivering project outputs & outcomes.

E. OTHER OUTCOMES AND IMPACTS (IF ANY)

Gender 49. There is little evidence of TSP’s impact in terms of gender. This is because no monitoring was done for gender-

related outcomes within the project. A general observation that applies to gender was made as regards trading

activities within beneficiary communities. Most of the traders found within these communities are women, and

improved mobility of passengers and goods implies positive developments for small businesses. During surveys,

traders indicated decreased travel times in getting goods and agricultural produce from wholesale centers to

market stalls. Likewise, customers who were patrons shared the ease with which they could access markets due to

improved roads. Improved roads have translated to increased accessibility for traders and customers; compared to

pre-road improvement conditions where poor roads generated services characterized by irregular, infrequent and

delayed accessibility to markets and small businesses. In addition, the construction of 2 markets along the

Ayamfuri-Asawinso road has significantly improved the physical working environment for traders.

Institutional Strengthening 50. Components A and F provided unique opportunities targeted at institutional strengthening within Ghana’s

transport sector. The various legislative and institutional instruments that have been undertaken as part of TSP will

aid Government in streamlining operations at the Ministry of Roads and Highways, Ministry of Transport and their

related agencies. These instruments comprising studies, plans and a regulation provide the foundation for public

entities to improve efficiency within the transport sector; however full benefits aimed at institutional strengthening

will only be realized once recommendations made within these instruments are enforced.

51. Short-term gains have been attained though capacity-building opportunities offered under TSP. Officials from

implementing and beneficiary agencies undertook various trainings in technical and administrative subjects.

Examples of technical capacity-building opportunities included trainings in Transport Planning and Engineering,

Procurement Management, Performance Based Contracts and Auditing. Administrative training covered areas such

as human resource development, administration and management as well as strategic public relations. About fifty-

one (51) officers benefitted from about sixty-nine (69) training programs. Officials who undertook training were

interviewed during the ICR mission. They indicated new skills had been attained that were being applied to their

day to day tasks within their respective jurisdictions.

Mobilizing Private Sector Financing

52. Not applicable under TSP

Poverty Reduction and Shared Prosperity

53. Poverty reduction and shared prosperity were not directly measured as part of the project. However various

classes of road users such as taxi drivers, teachers, school-children, traders etc. testified to improved accessibility to


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55. TSP was developed following a participatory design process. The process was based on an all-inclusive

approach to engage all transport decision-makers and to provide a platform for exchange of information among all stakeholders. With such an approach, the project sought to use multi-modal coordination and planning to address inefficiencies within Ghana’s transport sector.

56. Steps for Inter-Agency collaboration: The institutional arrangement for TSP was organized such that agencies that had limited experience with Bank funded projects were dependent on the processes of more experienced agencies. Such an arrangement provided comprehensive management support to all implementing and beneficiary agencies that had been assigned activities as part of the project. The institutional arrangement put in place during project preparation comprised:

• A Project Steering Committee (PSC) as an inter-ministerial oversight body;

• A Project Implementation Team (PIT) for coordinating implementation of project activities and reporting;

• A Finance Management Team (FMT), as part of the PIT, for the overall financial management and reporting; and

• A Procurement Team (PT), as part of the PIT, with direct responsibility for procurement activities and to provide quality control.

The set-up was intended to streamline decision-making within TSP and to provide essential support as well as accountability to all participating agencies. To achieve its goal, the proposed institutional arrangement was incorporated into the Project Implementation Plan. 57. Acknowledgement of Potential Risks: Potential risks that could curtail and or undermine TSP were

identified during project preparation. Upon identification, risk mitigation measures were prescribed by both the Client and the Bank. Examples of risks considered during preparation included:

• Weak commitment of Government to institutional reforms in the transport sector

• The risk of funds not being used for intended purposes, economically and efficiently

• Investment programs of different sub-sectors not being well-coordinated and leading to sub-optimal investments

• Inadequate performance of the local construction industry and quality assurance of work contracts

• Increased supply of improved roads may lead to higher traffic accidents and fatalities 58. Instituting a Monitoring and Evaluation Framework: It was noted during project preparation that a good

various centers of attraction as well as significant reductions in travel time and relieved congestion. Such a

development could implicitly lead to positive economic generating opportunities as well improvements in standard

of living both in the short-term & long-term. One immediate, direct economic benefit taxi operators realized from

TSP was the creation of business for routes between Dunkwa and Ayamfuri, where taxi services had not existed

prior to the Ayamfuri-Asawinso road improvement.

Other Unintended Outcomes and Impacts

54. NA

III. KEY FACTORS THAT AFFECTED IMPLEMENTATION AND OUTCOME

A. KEY FACTORS DURING PREPARATION


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project monitoring system was essential for effective management of the project. As a consequence, a detailed monitoring and evaluation component, including collection of all baseline data was designed and built into TSP.

59. Design of Environmental and Social Safeguard Instruments: Project preparation emphasized the significance of using Environmental Impact Assessments (EIAs), Environmental Management Plans (EMPs), (Environmental & Social Management Framework (ESMF), and Resettlement Action Plans (RAPs) as demanded by a given context prior to the commencement of any construction, rehabilitation, maintenance or any related activity under the Project. Assessment and disclosure of these instruments were paramount in ensuring project beneficiaries as well as their natural and cultural environs were protected or compensated from the negative impacts of project delivery.

60. Sustainability: TSP recognized the role of sustainability within the overall project strategy for ensuring quality, continuity and reliability of the institutional, regulatory and infrastructural improvements carried out under the project. Each of the project sub-components was designed with sustainability in mind, with achievements dependent on the following factors:

• continuing attention to maintenance issues and committing sufficient resources to it;

• government’s willingness to create a rational institutional structure for the sector and create an incentive framework to attract and retain suitable technical manpower to address sectoral issues in a comprehensive manner; and

• strengthening local construction industry and the role of the private sector in the transport sector

B. KEY FACTORS DURING IMPLEMENTATION 61. Implementation of Proposed Inter-Agency Arrangement: Overall project implementation philosophy was

achieved via a mainstreamed project implementation structure with staff of the line ministries and agencies directly responsible for the project implementation as part of their routine schedules. In relation to Par. 55 and 56, implementation was carried out using an Annual Work Plan and Budget prepared by the MRH, with inputs from other participating MDAs. A Project Implementation Manual (PIM) was prepared by GOG for: (a) institutional coordination and day-to-day execution of the project; (b) disbursement and financial management; (c) procurement; (d) environmental and social guidelines; (e) monitoring, evaluation, reporting and communication; and other administrative, financial, technical and organizational arrangements and procedures as were required for the project. During preparation of credit for additional financing it was observed that poor intra-agency coordination had been one of the main factors slowing implementation. Based on this experience, the agencies suggested a revival of Agency Implementation Teams (AIT) composed of core technical and safeguards staff, led by a designated team leader. Due to lack of dedicated commitment, the inter-agency Procurement Team (PT) and Financial Management team (FMT) had been less effective and were proposed to be discontinued. These changes were reflected in the updated PIM. In view of challenges in implementation, MRH and its agencies had hired Contract Management Specialists and a Project Accountant to support the project.

62. Delays in project implementation: The project closing date was extended by 42 months overall as a result of a number of challenges that led to delays in project implementation. Firstly, procurement of major activities was slow and procurement documents required several clarifications before contracts could be cleared for signature. The structure of the procurement team as constituted in the PIM was bearing out several coordination issues that contributed in part to the delay. Secondly, design weaknesses were identified during the course of the major civil works. Anticipated traffic on the trunk roads had increased due to revival of mining activities in the area, while the alignment of the urban roads, previously thought to be secure in a military facility had been encroached by the time of contract signature. In addition, several


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issues relating to optimization of the chosen alignment in the urban area as well as inadequate provisions for relocating of utilities necessitated a considerable level of redesign after the contract was awarded. Further delays were consequently experienced. Finally, on the trunk roads component, compensation payment to project affected persons also delayed inordinately leading to further delays in completion of critical road sections as well as increased costs (see further discussed in Para 63 and 64). Consequently, the disbursement was slow in the initial years of the project, but this picked up significantly thereafter as the emerging issues were successfully resolved.

63. Challenges with social and environmental safeguards implementation: Per TSP’s Financial Agreement, all safeguards triggered by the project that required assessment and disclosure were duly processed. However, there were challenges in the implementation of safeguard instruments that negatively impacted implementation progress. For social safeguards, delays in paying resettlement compensation to Project Affected Persons (PAPs) during implementation severely curtailed some civil works and resulted in additional costs to the project. The civil works implementation for the Ayamfuri-Asawinso corridor revealed several gaps in the identification of PAPs, leading to increased compensation. This was coupled with a much-delayed procedure of valuation reflecting major coordination problems between the Ghana Highway Authority (GHA) and LVD. Failure for the Client to pay compensation on time accosted the project about 2 years and US$15m in contractor claims for idle time. Government is yet to settle on claim with contractor. For environmental safeguards, there were shortcomings with the slow response time in addressing drainage issues with civil works that ultimately resulted in flooding. There were also issues with inadequate reinstatement of borrow pit sites as well as the Client’s inability to keep up with implementation schedule for post construction environmental mitigation measures. On the administrative front, inadequate reporting on the safeguards aspects of progress reports, and the general lack of commitment in addressing safeguard issues affected safeguards ratings. For example, the Overall Safeguards Rating was downgraded to Moderately Unsatisfactory in June 2013 due mainly to the outstanding release of funds by the Ministry of Finance for compensatory payments to affected people. By project’s end ratings were Moderately satisfactory as government was able to resolve all major safeguards concerns. A forward -looking approach to addressing safeguards was also adopted; an example of which a RAP audit was launched for TSP and the Abidjan Lagos Transport and Transit Facilitation Project (ALTTFP).

64. Occurrence of cost overruns: There were unforeseen cost increases which threatened to jeopardize delivery of project outputs for road improvement. Cost overruns were specifically associated with civil works as part of the Ayamfuri-Asawinso road rehabilitation and construction of selected urban roads in the Accra East Corridor. Additional resources to cover overruns were obtained through Additional Financing in 2015. Cost increases for civil works were largely as a result of an absence of due diligence in infrastructure design, unforeseen technical occurrences as well as forex movements. In the case of Ayamfuri-Asawinso, unforeseen ground conditions as well as the higher than expected growth in traffic observed after design preparation necessitated the need for modified designs. The detailed designs for Ayamfuri-Asawinso were completed in 2006 after which time average annual daily traffic (AADT) went up by almost 300 percent, from 800 to 2,364 vehicles per day; and much more than the 1,304 vehicles per day projected for 2013. For the urban roads, relocation of utilities, design of ancillary structures like a railway bridge, revised corridor alignment and ground improvements to correct for soft soil contributed to cost increases.

65. Managing Risk and Monitoring & Evaluation Components: Risks were monitored during the entire project implementation phase and overall risk fluctuated between moderate and substantial. Specific risks that were rated substantial in the last 3 years of the project were:

• Political and governance risk: due to inadequate oversight of project activities by the Client that could lead to instances of non-compliance with operating procedures and policies.


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• Macroeconomic: due to a burgeoning fiscal deficit as a percentage of GDP

• Institutional Capacity for Implementation and Sustainability: Risk of inadequate Client technical, procurement and management capacity to supervise and deliver a sustainable project

• Safeguards: Risk posed by weak compliance to Bank’s social and environmental safeguard policies

IV. BANK PERFORMANCE, COMPLIANCE ISSUES, AND RISK TO DEVELOPMENT OUTCOME

A. QUALITY OF MONITORING AND EVALUATION (M&E)

M&E Design 66. At project preparation, M & E component was given critical attention as a key pillar to achieving TSP’s PDO.

As a result, M &E design was robust and relevant indicators were identified in a collaborative effort between the

Bank and Government. Indicators were largely selected to measure performance and provide a continuous

assessment of activities supporting the realization of the PDO. Monitoring and evaluation of the overall project

was the responsibility of the PIT. However, each participating agency was responsible for collecting information

on their respective components including collection of all baseline data. The performance indicators were

monitored annually with extensive consultations amongst stakeholders.

67. A risk that was flagged for M & E during design involved the adoption of criteria that would not easily lend

themselves to measurement and would create challenges in evaluating project performance. To mitigate such

an occurrence, extensive deliberation between participating agencies and the Bank was undertaken to ensure

criteria for the selection of indicators aligned with project outcomes.

68. In preparing the ICR, the author is of the view that the PDO as stated was fairly broad and could have been

simplified. This will lead to the identification of outputs and outcomes that can easily be measured.

69. Also, outcomes and indicators that were proposed during Additional Financing were not incorporated into the

M & E framework. As such they were not monitored once the AF was approved. Indicators that were monitored

were ones that had been formulated during preparation of the parent project.

M&E Implementation 70. A robust M & E design translated to a well-structured M & E framework during implementation. Data on

indicators designed for the parent project was collected on a regular basis as project implementation activities

progressed. Information on assessed output performance was then disseminated amongst stakeholder.

Observations from M & E assessments were included in Quarterly Project Progress Report. Reporting covered

monitoring the outcomes of activities related to: (a) progress in civil works, services, institutional support, and

procurement activities; and (b) progress in achieving project development objectives and intermediate

outcomes. Assessment of project and contract management progress was also monitored and included in the

quarterly progress reports. Support for M & E activities was provided under Component G and the Department

of Monitoring and Evaluation at MRH was responsible for monitoring key outcome indicators.


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M&E Utilization 71. In addition to measuring performance in attaining project outcomes, TSP’s M & E framework provided a

feedback loop to both Government and Bank on modifications that could be made to ensure success in project

delivery. M & E assessment reports also served as critical input in guiding stakeholders to make informed

decisions at different stages of the project cycle. This was especially so during processing of credit for Additional

Financing where approval was influenced by progress in achieving project outcomes. Unfortunately changes

made to indicators and outcomes during the AF phase were not monitored during implementation. Finally,

reporting on M & E also guided PIT in tracking areas of progress and delays within the implementation schedule.

Justification of Overall Rating of Quality of M&E 72. Overall Rating of Quality of M & E for TSP is considered Modest. Rating is based on shortcomings during M&E

implementation and utilization where proposed changes made at AF were not fully incorporated into the M & E

framework.

B. ENVIRONMENTAL, SOCIAL, AND FIDUCIARY COMPLIANCE 73. Compliance of both social and environmental safeguards were rated moderately satisfactory at the

time of project close. Significant civil works to be undertaken as part of the project triggered the following safeguards: Environmental Assessment (EA), Physical Cultural Resources and OP 4.12 Involuntary Resettlement. As a result, the project was assigned the Environmental Category A; and an Environmental and Social Management Framework (ESMF), and a Resettlement Policy Framework (RPF) were prepared and disclosed accordingly. Funding for safeguard mitigation measures was the responsibility of the Client.

74. The following project operations were flagged as potential hazards to the environment: (a) establishment of base camps for contractors and resident engineers; (b) road construction operations resulting in dust, noise, and temporary loss of flora; (c) opening or re-opening of borrow pits and solid rock quarries, which could result in soil erosion and pollution and aesthetically undesirable alterations of the landscape; (d) opening of diversions; and (e) dumping of construction waste and accidental spillage of machine oil and lubricants. And the following were identified for social: (a) land acquisition (resulting in involuntary resettlement), loss of strips of land and (b) dislocation of social values induced by the influx of migrant workers (resulting in the spread of HIV/AIDS).

75. Safeguards mitigation measures pursued during implementation included (i) prioritizing the use of road alignments with minimal negative social and environmental impacts; (ii) inserting social and environmental protection clauses into bidding documents for works contracts (iii) extensive and participatory safeguards consultations with various stakeholders and affected groups (iv) training of environmental and social safeguards specialists for effective monitoring and supervision.

76. Identification of hazards and development of mitigation measures limited safeguard disasters. Main issues faced were inadequate drainage that led to flooding and delays in paying compensations to PAPs which led to delays and cost over-runs. Par. 63 highlights the extent of TSP’s safeguard issues.

77. Compliance with fiduciary obligations were rated moderately satisfactory under TSP. Financial management arrangements under the project were adequate and met the minimum requirements per Bank Policy. Whereas finance-related stipulations in the Financing Agreement were followed, concerns were raised by the Bank about the thoroughness of FM Reports. This stemmed from the non-effective


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use of financial management systems that were in place to support TSP. As a consequence, Bank advised the Client to improve the quality, content and details of the report. In addition, Client was encouraged to avoid occasional delays in the submission of acceptable interim financial statements and annual audited financial reports.

78. For procurement management, procurement delivery was in compliance with TSP’s legal agreement, the PAD, as well as the PIM. No ineligible expenses were recorded. Shortcomings with lengthy; as well as cumbersome approval procedures for invoices and subsequent payment caused delays in project implementation. This in addition to incoherent filing of contract PVs, invoices and waybills on procurement files contributed to procurement’s moderately satisfactory rating. There were also shortcomings in the lengthy procurement process and inadequacies in the quality of procurement documentation. Examples of delays encountered in procurement were 12-18 months on the major civil works projects; as well as delays in the procurement of engines for VLTC, though acquisition of engines was listed as an emergency.

C. BANK PERFORMANCE

Quality at Entry

79. The Bank worked closely with the Client to design a project tailored to meet GoG’s objective of strengthening

the provision of infrastructure services and improving Ghana’s business environment to sustain broad-based

growth. Both parties worked together to recognize the role transport played within this objective, and more

importantly how opportunities within different transport modes in Ghana could be harnessed to achieve

Government’s vision of becoming a middle-income country.

80. In developing TSP, collaborative work between Bank and Government was enhanced by Ghana’s Country

Assistance Strategy, the Bank-funded Road Sector Development Program and the UN Millennium Development

Goals. References from these documents provided useful material in laying out a well-defined project scope as

well as identifying higher-level objectives to which TSP could contribute to.

81. Project preparation involved Bank providing sound technical advice as it worked with the Client in determining

the type and composition of investment that would yield maximum benefits. Experts from across the Bank

offered input on TSP’s Project Development Objective as well as the structure of its underlining components.

Working with the Client forged a close interaction between Bank staff and Government officials which provided

a platform for information sharing and exchange of ideas throughout the project cycle.

82. The Bank also provided constant support in assisting Government develop instruments required as part of

project preparation. Bank support was provided on identifying appropriate lending instruments; establishing

required safeguard instruments; and setting up M & E and fiduciary guidelines for later stages in the project

cycle. Discussions between Bank and Client increased understanding of each party’s responsibilities and

requirements under TSP which contributed immensely to a Client that was ready for project implementation.

Quality of Supervision 83. The Bank provided regular hands-on support to the Client during Project Implementation. Throughout the

duration of TSP, regular implementation support missions were undertaken to review progress of work under the


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various components. This helped in monitoring the process required to achieving targeted project outcomes. Bank

staff together with government counterparts used missions to visit sites where works and services under TSP were

being undertaken. Missions offered Bank staff the opportunity to interact directly with project beneficiaries and

assess the level of Client compliance to requirements prepared during project preparation. Missions also gave staff

useful information on how project risks were being managed by the Client and an understanding of what changes

needed to be made to mitigation measures where applicable.

84. In between missions, regular meetings were held by video-conferencing at which time the Client provided

assessments on the status of project activities. The meetings provided a platform to discuss general and specific

issues in relation to progress of project components.

85. The presence of in-country transport bank staff contributed greatly to effective project supervision. It facilitated

a direct and face-to-face interaction with the Client and was essential in providing readily available support to the

Client. Different aspects of the project could be monitored closely for compliance and field trips were organized

more frequently to project sites. For the Client, having in-country task team support meant the availability of a

constant resource to address issues as they arose within the project.

86. The Bank team also had a strong engagement with the government team to deal with the delayed

compensation issues which affected the project. At the project level, the team met with high level officials of the

LVD and GHA to agree on a way forward and provide support for the completion of valuation. At the CMU level, the

country director also engaged with the Minister of Finance to ensure that the funds were available once the

bottlenecks had been resolved.

87. The fiduciary and safeguards teams also provided regular training on bank policies for the project staff to

resolve emergent issues on the project.

Justification of Overall Rating of Bank Performance 88. Based on the above, World Bank performance is rated Moderately Satisfactory.

D. RISK TO DEVELOPMENT OUTCOME 89. Reduced Political and Institutional Motivation to accelerate inter-agency coordination: In as much as

Components A and F have achieved a good first step in developing instruments that would lead to greater efficiency and coordination within the roads sub-sector, institutionalizing these studies is at a nascent stage. The impacts of these instruments will be observed in the long term, however in the interim Government needs to be committed to the uptake of recommendations from the study. A lack of commitment will mean a continuation of the status quo where fragmented multi-modal decision-making does not maximize the potential for transport to efficiently move people and goods across Ghana.

90. Insufficient Funding of Road Maintenance: Maintenance of roads continues to suffer from inadequate funding resources. Like any other jurisdiction, lack of investments in maintenance directly impacts road network condition by increasing the percentage of roads in poor condition. In addition, deferred maintenance of roads also has cost implications. Apart from increasing vehicle operating costs and travel time to service providers and passengers, rehabilitation cost for government to improve a previously maintainable road increases substantially. Unfortunately, contributions by Ghana’s Road Fund for road maintenance has not increased since TSP was approved. Condition of roads will suffer as a result ultimately contributing to reduced mobility for passengers, goods and services.

91. Risk of Increasing Road Safety Accidents: Increasing rate of motorization levels in Ghana contribute to an


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increase in road safety fatalities and injuries. A combination of increased motorization with existing deficiencies in road safety management, enforcement and infrastructure provision will result in increased risks of road accidents along Ghana’s road network. Vulnerable road users particularly suffer the most from these resulting accidents. As is the case for road safety awareness, solving the broader challenge of road safety in Ghana should involve targeted interventions aimed at other contributory factors such as limited capacity in road safety management and enforcement. The approach of the road safety interventions under TSP which involved the integration of road safety into the teaching curriculum in primary schools, and junior secondary schools is yielding positive results seen in a reduction in fatalities among the most vulnerable in society. Continued investment in in other modes of infrastructure may also provide various options to the public and may reduce the strong dependency on road transport, which will further reduce the risk overall to road users.

V. LESSONS AND RECOMMENDATIONS

92. Level of coordination: An overall satisfactory assessment was given for coordination at agency-level and with the Project Implementation Team that was formed to manage TSP. One area for improvement identified is greater involvement of divisions/departments that had peripheral, yet critical tasks associated with the Project, for example the Land Valuation Division as an external stakeholder whose actions impact specific project components. Another area for improvement calls for strengthening the role of the Project Steering Committee to enable Committee members consisting of senior management of participating agencies to interact more and make decisions quickly on project related issues. The practice of forming inter-agency teams based on expertise should be strengthened and committed to during project preparation and implementation. Development of teams for finance; procurement, safeguards across different agencies will improve coordination and delivery of both donor and government-funded projects. The final recommendation for improving the level of coordination borders on a strategy to minimize the unforeseen turn-over or re-assignment of Bank and client staff during the project cycle. Solutions proposed are the use of a transition phase for reassignments and establishing back-up project teams to step in during vacancies to avoid project delays.

93. Bank Role: More time and resources should be dedicated towards project preparation. The number of challenges faced during implementation could have been reduced with a more rigorous preparation phase. In addition, it is highly recommended that Bank continues the practice of providing regular training on Bank policies and instruments for implementing and beneficiary agency staff. Feedback from agencies indicate the offering of regular trainings led to understanding project requirements which ultimately led to efficiency in project delivery.

94. Project Monitoring and Quality Control: Monitoring and quality control under TSP could have been enhanced particularly at the design phase of civil works. One recommendation in this regard is the formation of an inter-agency design review committee that would review designs before commencement of construction for future projects. For TSP, this would have greatly reduced construction delays and cost over-runs. TSP also revealed gaps in communication on monitoring and quality control reporting. Examples include times when defects pointed out by monitoring teams were not complied with by contractors. There were also cases where quality control reports produced lagged behind approval of work done by contractors. As such there is the need for more engagement and improved communication channels with monitoring and quality control teams to guarantee satisfactory service delivery of project components. The Bank is also encouraged to be diligent in structuring its M&E framework such that it accurately reflects proposals that are agreed at specific times during the project.

95. Management of Social and Environmental Impacts: The major issue relating to social and environmental


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impacts was to do with compensation of project affected persons on the major civil works projects. Substantial delays and costs in the form of contractual claims were borne, particularly on the Ayamfuri-Asawinso Road Rehabilitation Works because of challenges in the granting of approvals by the Land Valuation Division (LVD) to implementing agencies to pay PAPs. Consequently, different implementing agencies achieved the task of paying compensations using different approaches with varying degrees of success. Both the Bank and the Client realized that such a system of operation is untenable and recommend that LVD should be engaged at the early stages in the project cycle, preferably at project preparation to assist in effective planning. Another challenge related to compensation was to do with the availability of funds to pay PAPs at the required time. Funds acquired from Government Budget are often not timely; so Government staff requested the Bank to explore ways by which compensation can be paid from Project Funds to enable civil works to proceed seamlessly without delays. Another option would be for Government to pay compensation and other resettlement costs from a dedicated escrow account during project preparation (this approach is currently mandated by Ghanaian Law, but rarely followed due to the lack of funds). Other initiatives that can be pursued include8:

• Support to the development of a National Resettlement Law: A national resettlement law would bring clarity to the existing legal framework and strengthen protections of affected persons’ rights. Such a law can be enacted through policy dialogue support in partnership with relevant ministries and possibly financed through Bank Technical Assistance (TA). The TA could include an institutional development and capacity program to support actors in strengthening systems and capacity to manage resettlement with a focus on areas like consultation, vulnerability, screening of resettlement impacts, assessment of losses, livelihoods restoration, benefit sharing, and documentation.

• Improved inter-agency coordination: It is recommended that LVD be directly involved in the preparation of RAPs via consultants, together with the implementing and beneficiary agencies. It is also recommended to engage Ministry of Finance (MoF) in the process so that Government is aware of its financial obligations well in advance of Negotiations. Support to a multi-agency dialogue around such institutional changes linked to inter-agency coordination could be part of a proposed TA.

• Use of Frameworks (RPFs): It is recommended that RAPs be prepared to the extent possible in project preparation, as opposed to or alongside RPFs. While this may not be feasible in all cases, to the extent that RAPs can be prepared during Preparation, doing so where possible allows for a more accurate estimate of the resettlement budget in preparation and reduces costs overruns, as the exact resettlement will be known before project approval. It is also recommended that regular training in the use and application of RAPs and other safeguard instruments be provided regularly.

• Ex-post evaluation: An ex-post evaluation process is recommended, aimed at following and recording

the situation of affected persons after compensation to serve as a basis for both an evaluation of the true success of resettlement actions and the improvement of future practices and policies.

96. Sustainability: Different project components had varying levels of sustainable interventions included within their set-up. For example, whereas results on sustainability of civil works in terms of maintenance of rehabilitated roads were checkered; marked overall success was achieved with the capacity building opportunities offered through the project. Agencies were highly satisfied with knowledge and skills attained by staff who participated in training seminars and workshops funded through TSP. Educational entities that

8 Thematic Review of Resettlement Issues and Challenges in Bank-Financed Projects in West Africa; World Bank


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had capacity building sub-components under TSP have also used successful project activities to gain international recognition and collaborations with well-renowned academic institutions as well as private firms. Avenues are presently being sought to expand these collaborations. All participating agencies were advised to have a strategic plan on sustainability to preserve investments made either in personnel, infrastructure or service delivery.

97. Financial Management and Procurement. Initial challenges to do with long list of signatories to approve invoices and certificates were resolved during project implementation. One example related to long delays in paying contractors for work done was resolved by paying them directly rather than using Ghana’s local government set-up. Bank is encouraged to strengthen fiduciary compliance of implementing and beneficiary agencies through regular trainings. Feedback from the client showed a direct relation between quality and frequency of training to the efficient delivery of financial and procurement related project functions.

98. Multi-modal coordination: Achieving coordination within the various transport actors is still work in progress. TSP contributed to the foundation through which integration of different modes could guarantee gains in efficiency for agencies and transport users alike. A key observation made during this review is that multi-modal coordination will not happen naturally without a proactive effort from stakeholders. One way to achieving an adequate level of coordination and integration within Ghana’s transport sector is to nominate a champion to rally stakeholders on the benefits to be accrued through such a paradigm shift. The Bank can also provide TA support for the uptake and mainstreaming of instruments developed under TSP that are aimed at multi-modal coordination.

.


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ANNEX 1. RESULTS FRAMEWORK AND KEY OUTPUTS

A. RESULTS INDICATORS A.1 PDO Indicators Objective/Outcome: Improve mobility of goods and passengers and improve road safety standards

Indicator Name Unit of Measure Baseline Original Target Formally Revised

Target

Actual Achieved at Completion

Average travel time for Ayamfuri-Asawinso Road

Minutes 90.00 65.00 50.00

27-Oct-2009 30-Jun-2015 31-Dec-2018

Comments (achievements against targets):


Target


Average travel time for Burma Road

Minutes 60.00 45.00 45.00

27-Oct-2009 30-Jun-2015 31-Dec-2018



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Target


Average travel time for Giffard Road

Minutes 40.00 30.00 30.00

27-Oct-2009 30-Jun-2015 31-Dec-2018



Target


Average VOC reduced Number 0.20 0.17 0.23

27-Oct-2009 30-Jun-2015 31-Dec-2018



Target


Increased RAI Number 53.00 57.00 66.60

27-Oct-2009 30-Jun-2015 31-Dec-2018



Target



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Condition of road network in good and fair condition - Trunk roads

Kilometers 83.00 88.00 93.00

27-Oct-2009 30-Jun-2015 31-Dec-2018



Target


Condition of road network in good and fair condition - Urban roads

Kilometers 36.00 50.00 54.00

27-Oct-2009 30-Jun-2015 31-Dec-2018



Target


Condition of road network in good and fair condition - Feeder roads

Kilometers 72.00 85.00 75.00

27-Oct-2009 30-Jun-2015 31-Dec-2018



Target


Fatality rate reduced (per Number 22.00 19.00 9.74


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10,000 vehicles) 27-Oct-2009 30-Jun-2015 31-Dec-2018


A.2 Intermediate Results Indicators

Component: Component A - Support to MRH


Target


Enacted road traffic regulations; implement axle load control policy action plan

Text Drafted Enacted Enacted

27-Oct-2009 30-Jun-2015 31-Dec-2018



Target


Share of road funds of the total road maintenance needs increased

Percentage 60.00 80.00 60.00

27-Oct-2009 30-Jun-2015 31-Dec-2018


Component: Component C - Improvement of Trunk Roads


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Target


Roads rehablitated Kilometers 0.00 52.00 52.20

20-May-2009 30-Jun-2015 31-Dec-2018

Roads rehabilitated - rural Kilometers 0.00 52.00 52.20

Roads rehabilitated - non-rural

Kilometers 0.00 0.00 0.00


Component: Component D - Improvement of Urban Roads and Infrastructure


Target



20-May-2009 30-Jun-2015 31-Dec-2018


Roads rehabilitated - non- Kilometers 0.00 14.80 14.80


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rural


Component: Component E - Improvement of Feeder Roads


Target


Length of road network improved (spot improvement) - Feeder roads

Kilometers 0.00 300.00 462.00

27-Oct-2009 30-Jun-2015 31-Dec-2018



Target



20-May-2009 30-Jun-2015 31-Dec-2018


Roads rehabilitated - non-rural

Kilometers 0.00 0.00 0.00


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Component: Component F - Support to MOT and other Transport Sector Entities


Target


GRDA made operational Text Railway Act Passed GRDA Operational Development of business and organizational development plan and railway regulations is completed.

27-Oct-2009 30-Jun-2015 31-Dec-2018



Target


Completion of Master Plan for Regional Airports

Text None Completed National Airport System Plan completed in December 2014

27-Oct-2009 30-Jun-2015 31-Dec-2018



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Target


Completion of feasibility studies for development of landing stages and reception facilities along the Volta Lake

Text None Completed Study completed in February 2015

27-Oct-2009 30-Jun-2015 31-Dec-2018



Target


Number of courses offered by Regional Maritime University

Text 2 8 12

27-Oct-2009 30-Jun-2015 31-Dec-2018



Target


Completion of feasibility study for dualization of Meridian road in Tema

Text None None Dropped during restructuring

27-Oct-2009 30-Jun-2015 31-Dec-2018



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B. KEY OUTPUTS BY COMPONENT

Objective: Improved mobility of goods and passengers on selected roads through reduction in travel time, reduction in vehicle operating costs, and enhanced road safety awareness.

Outcome Indicators

1. Average travel time (minutes) along project selected roads 2. Average VOC reduced (in real terms) (US$/veh-km) 3. Fatality rate reduced (per 10,000 vehicles) 4. Increase in RAI 5. Condition of road network in good and fair condition in 2018 for trunk, urban and feeder road network (national)

Intermediate Results Indicators

1. Enacted Road Traffic Regulation (Yes/ No) 2. Implement axle load control policy action plan (Yes/ No) 3. Share of road funds of the total road maintenance needs increased (%) 4. Length of road network rehabilitated nationally (km) 5. Length of road network improved (spot improvement) 6. Preparation of a National Airport System Plan (Yes/ No) 7. Completion of feasibility studies for development of landing stages and reception facilities along the Volta Lake (Yes/ No) 8. Number of courses offered by Regional Maritime University (Number)

Key Outputs by Component

1. Feasibility Studies for MRH program completed 2. GIS integration pilot for road agencies achieved 3. Eight road accident emergency response centers established 4. Vehicle driving test grounds at Tema completed 5. Provision of road safety equipment, production of handbills, production and distribution of road safety information materials undertaken.


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6. Training of NRSC staff in identifying black spots, conducting road safety audits undertaken 6. Provision of laboratory equipment, computers, construction of classrooms, asphalt lab and support to graduate transport program at KNUST completed 7. Construction of 4-storey classroom block for GTCC completed 8. Rehabilitation of Ayamfuri – Asawinso Road completed 9. Improvement of Burma Camp & Giffard Roads completed 10. Upgrading of 2 transport terminals in Greater Accra Metro 11. Improvement and rehabilitation of selected feeder roads to support agriculture and growth undertaken 12. Road Traffic Regulation Enacted 13. National Airport System Plan drawn 14. Development of Regulations for the Ghana Civil Aviation Authority completed 15. Development of Master Plan for the Transportation on the Volta Lake completed


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ANNEX 2. BANK LENDING AND IMPLEMENTATION SUPPORT/SUPERVISION

A. TASK TEAM MEMBERS

Name Role

Preparation

Ajay Kumar Task Team Leader

Anthony Mensah-Bonsu Procurement Specialist

Robert Wallace DeGraft-Hanson Financial Management Specialist

Arun Banerjee Team Member

John Hine Team Member

Antoine V. Lema Social and Environmental Specialist

Salli Wondergem Team Member

John Richardson Team Member

Tawia Addo-Ashong Team Member

Rajiv Sondhi Senior Finance Officer

Anne Njuguna Program Assistant

Charity Boafo-Portuphy Program Assistant

Manush Hrsitov Senior Counsel

John Stewart Snr. Environmental Specialist

Leslie Nii Odartey Mills ICR Author

Supervision/ICR

John Kobina Richardson Task Team Leader(s)

Bayo Awosemusi, Charles John Aryee Ashong Procurement Specialist(s)

Robert Wallace DeGraft-Hanson Financial Management Specialist

Arun Banerjee Team Member

Kavita Sethi Team Member

Demba Balde Social Specialist

Antoine V. Lema Team Member


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Salli Wondergem Team Member

Roger Gorham Team Member

Tawia Addo-Ashong Team Member

Desta Wolde Woldearegay Team Member

Anne Njuguna Team Member

Charity Boafo-Portuphy Team Member

Marc Marie Francois Navelet Noualhier Team Member

Asferachew Abate Abebe Environmental Specialist

Leslie Nii Odartey Mills ICR Author

B. STAFF TIME AND COST

Stage of Project Cycle Staff Time and Cost

No. of staff weeks US$ (including travel and consultant costs)

Preparation

FY07 6.050 35,870.55

FY08 7.225 70,684.45

FY09 37.400 232,969.28

FY10 0 0.00

Total 50.68 339,524.28

Supervision/ICR

FY10 18.279 64,302.76

FY11 19.540 68,402.31


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FY12 33.345 105,116.41

FY13 39.286 169,752.11

FY14 26.564 120,558.13

FY15 21.209 75,927.11

FY16 20.289 99,910.34

FY17 13.744 81,900.65

FY18 23.170 128,775.32

FY19 21.091 97,421.10

Total 236.52 1,012,066.24


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ANNEX 3. PROJECT COST BY COMPONENT

Components Amount at Approval

(US$M) Actual at Project

Closing (US$M) Percentage of Approval

(%)

Component A - Support to MRH

4.2 4.127 98.26%

Component B - Support to Road Sector and Educational Entities

6.5 5.238 80.58%

Component C - Improvement of Trunk Roads

64 86.965 135.88%

Component D - Improvement of Urban Roads and Infrastructure

78 79.442 101.84%

Component E - Improvement of Feeder Roads

50.5 46.763 92.6%

Component F - Support to MOT and other Transport Sector Entities

13.5 12.145 89.96%

Project Management 8.3 8.320 100.24%

Total 225 243.000 108%


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ANNEX 4. EFFICIENCY ANALYSIS

1. An economic analysis was conducted for the following: (a) Ayamfuri-Asawinso road (trunk road) and (b)

Giffard and Burma Camp Roads (urban roads in the Accra East Corridor). Analysis involved comparison of

measures of efficiency i.e. Net Present Value (NPV) and Economic Rate of Return (ERR) using the road

planning model Highway Development and Management Model version 4 (HDM 4). The HDM-4 analytical

framework is based on the concept of pavement life cycle analysis. This is applied to predict road

deterioration, road works effects, road user effects, and socio-economic and environmental effects.

Economic benefits are calculated as the difference between the “without” investment option (baseline

scenario) and the “with” investment scenario (upgraded, improved road).

2. The economic analysis used a 12% discount rate for all cases. Using design inputs that were developed for

detailed road designs, the analysis adopted a design life of 20 years for the urban roads; and a 15year design

life for the trunk road. The analysis was developed based on the scope and costs of the civil works, which

consist of reconstruction, rehabilitation, and upgrading of roads. Consideration was given to the fact that

most civil works components would have low residual values by the end of the design lives for respective

roads. Components such as earthworks, culverts and side-drains would have significant percentages of their

values remaining. For the purposes of this analysis, salvage value is estimated at 10% of the investment

capital. To convert financial costs to economic costs, a standard conversion factor of 0.83 was used. It is

consistent for other road sub-sector projects.

3. Using HDM-4, project analysis is undertaken for each of the 3 roads. It involves analyzing each road section

with user-selected treatments, with associated costs and benefits, projected annually over the analysis

period. Economic indicators i.e. NPV & ERR are then determined for the different investment options. Input

data required for HDM-4 project analysis is classified as follows:

• Road Network: defines the physical characteristics of road sections in a network or sub-network to

be analyzed

• Vehicle Fleet: defines the characteristics of the vehicle fleet that operate on the road network to be

analyzed

• Road Work Standards: defines maintenance and improvement standards, together with their unit

costs, which will be applied to the different road sections to be analyzed.

Data for the analysis is obtained from the Borrower’s ICR.

4. Definition of Road Network / Section Details: In order to establish the base case as a basis for the economic

analysis as required in the HDM-4 system, the sectional characteristics of the project roads that existed prior

to the project implementation were defined. Prior to the specification of the road network details, each

road was divided into homogenous sections based on variations in the surface class. In this regard, the

Giffard and Burma Camp roads were each considered as a single section whilst the Ayamfuri-Asawinso road

was divided into two sections (bituminous & gravel). Table 4.1 identifies section details which include:

• General details: section name, road length, carriageway width, number of lanes, shoulder width,

surface class, flow direction, speed flow type, traffic flow pattern, etc.

• Geometric details: rises+falls in m/km, number of rises+falls per km, superelevation, average

horizontal curvature, speed limit, drainage type, etc.

• Pavement details: type, structural adequacy, ride quality, surface condition, surface material, etc

• Condition: roughness, cracks, gravel thickness, rut depth, etc.


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5. Definition of Vehicle Fleet: Input for vehicle fleet is divided into three segments for the analyses. These are

as follow:

• Basic characteristics of vehicle fleet: The vehicle fleet by category using the project roads were

established through traffic counts and their basic characteristics such as tire type, number of wheels

and axles, number of passengers, passenger car equivalency factors, average vehicle life, etc. were

specified in the HDM-4 system. Table 4.2 provides detailed basic characteristics of the vehicle fleet

used for the analyses.

• Economic Characteristics of Vehicle Fleet: A market survey was conducted to ascertain the current

economic characteristics of the vehicle fleet for input into the HDM-4 system. The vehicle economic

parameters established included price of a new vehicle, tire replacement cost, fuel cost, lubricating

oil cost, maintenance labor cost, annual overhead cost, etc. These provided input for the vehicle

operating cost model of the system. Details of economic characteristics are presented in Table 4.3.

• Traffic Volumes and Growth Rates: Traffic volume counts were conducted on each of the project

roads (Giffard road, Burma Camp Road Ph 1, Burma Camp Road Ph 2 and Ayamfuri – Asawinso Road)

to establish the average daily traffic (ADT) after opening to traffic. The counts were conducted for

four days including one weekday 24-hour count, two weekday 12 hour count and one weekend 12

hour count. Using the counts and historical data traffic, growth rates were developed for both the

urban and trunk roads. Details of traffic volumes and related growth rates are presented in Table 4.4

6. Definition of Work Standards: Maintenance and improvement standards (interventions) for the

purposes of the economic analysis were specified for two scenarios; base case and ‘with project’

alternatives, for each road project. Routine and periodic maintenance activities usually undertaken by

the respective road agency and the associated costs were specified for the base case. For the ‘with

project’ alternative, the actual improvement interventions that were implemented and the associated

costs were specified together with the routine and periodic maintenance activities. A summary of the

work standards is presented in Table 4.5.


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Table 4.1: Section Details Prior to Project

DESCRIPTION SECTION DETAILS

Giffard Road Burma Camp Road Ph.1 Burma Camp Road Ph.2 Ayamfuri – Asawinso Road

General Section Details

Section name: Giffard Road Burma Camp Road Ph.1* Burma Camp Road Ph.2* Ayamfuri-Dominase Road (Section 1)

Dominase – Asawinso Road (Section 2)

Section ID: AC-KP-A-0001-076 AC-KP-A-0004-136 AC-KP-A-0004-136 IR8/01 IR8/02

Link name: Giffard Road Burma Camp Road Ph.1 Burma Camp Road Ph.2 Ayanfuri-Asawinso Road

Ayanfuri-Asawinso Road

Link ID: GR BCR01 BCR02 IR8 IR8

Length: 5.7km 4.86km 3.4km 14.0km 38.2km

Carriageway width: 7m 6.5m 6.5m 7.0m 7.0m

Shoulder width: 1.5m 0 0 - -

Flow direction: 2 way 2 way 2 way 2 way 2 way

Surface class: Bituminous Unsealed Unsealed Bituminous Unsealed

Speed flow type: Urban 2 lane standard Urban 2 lane narrow Urban 2 lane narrow Trunk 2 lane narrow Trunk 2 lane narrow

Traffic flow pattern: Commuter Commuter Commuter Free flow Free flow

Accident class: Two lane road Two lane road Two lane road Two lane road in rural setting

Two lane road in rural setting

Climate zone: Zone 4 (Coastal/Savannah)

Zone 4 (Coastal/Savannah)

Zone 4 (Coastal/Savannah)

Zone 1 (South Western Equatorial)

Zone 1 (South Western Equatorial)

Calibration item: Surface Treatment on Granular Base (STGB)

Gravel Gravel Surface Treatment on Granular Base (STGB)

Unsealed roads


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Calibration set: Coastal Zone Calibration Set

Coastal Zone calibration set

Coastal Zone calibration set

Rain Forest Zone Calibration Set

Road class: Major Arterial Major Arterial Major Arterial Inter-Regional Inter-Regional

Traffic: Urban high Urban high Urban high Trunk medium Trunk medium

Number of lanes: 2 2 2 2 2

Motorised traffic (ADT): 16080 12079 8528 1505 862

Non-Motorised traffic (ADT): 146 161 95 62 16

Year of ADT: 2011 2011 2011 2012 2012

Last surfacing/regravel (year):

2000 - - 2007 2004

Geometry: Mostly straight & gently undulating

Mostly straight & gently undulating

Mostly straight & gently undulating

Bendy & gently undulating

Bendy & gently undulating

Geometry Details

Rise + Fall (m/km): 10 10 10 15 15

No. of rises+falls (no./km): 2 2 2 2 2

Superelevation (%): 3 3 3 3 3

Average hori. Curvature (deg/km):

15 15 15 75 75

Adral (m/s2): 0.1 0.1 0.1 0.1 0.1

Speed limit (km/hr): 60 60 60 80 80

Speed limit enforcement: 1.1 1.1 1.1 1.1 1.1


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Altitude (m): 54 52 32 143 143

XNMT: 1 1 1 1 1

Road side friction: 1 1 1 1 1

XMT: 1 1 1 1 1

Drainage type: No change in drainage effect

- - Shallow-soft Shallow-soft

Pavement Details

Pavement type: Surface Treatment on Granular Base (STGB)

Gravel Gravel Surface Treatment on Granular Base (STGB)

Gravel

Structural adequacy: Poor - - Poor Poor

Construction/compaction quality:

Poor Fair Fair Poor Poor

Ride quality: Poor Poor Poor Poor Poor

Surface condition: Poor Poor Poor Poor Poor

Surface texture: Fair - - Fair -

Surface material: Double Bituminous Surface Dressing

Lateritic gravel Lateritic gravel Double Bituminous Surface Treatment (DBST)

Gravel

Subgrade material: Well-graded gravel-sands with small clay content, GC

Well-graded gravel-sands with small clay content, GC

Well-graded gravel-sands with small clay content, GC

Clayey gravel/sand or sandy clay/silt (low to medium plasticity)

Clayey gravel/sand or sandy clay/silt (low to medium plasticity)


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Most recent surfacing thickness:

14mm - - 24mm 25mm

Previous/old surfacing thickness:

24mm - - 24mm 25mm

Structural number (Dry season):

3.05 3.33 3.33 125mm (4.9in) 125mm (4.9in)

Subgrade CBR: 20 20 20 20 17

Last reconstruction: 1995 - - 2004 2004

Last resealing: 2000 - - 2007 -

Last overlay: 2000 - - - -

Last preventive treatment: 2000 - - 2007 -

Compaction method: - Mechanical Mechanical - Mechanical

Condition Condition at end of year: 2011 2011 2011 2012 2012

Roughness (IRI-m/km): 7.0 13 13 8 11

Gravel thickness: - 50mm 50mm - 25

All structural cracks (%): 15 - - 15 -

Wide structural crack (%): 9.5 - - 9.5 -

Thermal cracks (%): 0.0 - - 0.0 -

Ravelled area (%): 20 - - 20 -


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Number of potholes (no/km):

8 - - 50 -

Edge break area (m2/km): 100 - - 100 -

Mean rut depth (mm): 15 - - 15 -

Rut depth std. deviation (mm):

0 - - 0 -

Texture depth: 0.5 - - 0.5 -

Skid resistance: 0.4 - - 0.4 -

Drainage condition: Poor Poor Poor Poor -


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Table 4.2: Basic Characteristics of Vehicle Fleet

Name Base Type Tire Type Passenger Car Space Eqv.

No. of wheels

No. of axles

Base no. of recaps

Retread cost (% of new tyre cost)

Annual Km

Annual Working

Hours

Average Life in Years

Private use (%)

Passengers

ESALF Operating weight (kg)

Bicycles Bicycle Bias ply - 2 - - - 2500 150 10 - 1 - 100

Motor Bikes Motorcycle Bias-ply 0.5 2 2 1.3 15 10000 400 10 50 1 0 200

Taxis Small Car Radial-ply 1.0 4 2 1.3 15 23000 550 10 0 4 0 1600

Private Cars Small Car Radial-ply 1.0 4 2 1.3 15 23000 550 10 100 2 0 1600

Pickups/Vans/4WD Vehs Utilities Radial-ply 1.0 4 2 1.3 15 30000 1300 8 0 2 0.001 2452

Small Buses Mini-bus Radial-ply 1.2 4 2 1.3 15 30000 750 8 0 15 0.004 3468

Medium Buses/Mummy Wagons

Medium bus Radial-ply 1.5 6 2 1.3 15 70000 1750 7 0 40 0.7 9000

Large Buses Heavy bus Radial-ply 1.6 6 2 1.3 15 70000 1750 12 0 40 0.89 13395

Light truck (2-axles) Truck light Radial-ply 1.3 6 2 1.3 15 30000 1300 8 0 0 0.10 7755

Medium truck (2-axles) Truck medium

Radial-ply 1.5 6 2 1.3 15 40000 1200 12 0 0 2.10 16601

Heavy Trucks (3-axles) Truck heavy Radial-ply 1.6 10 3 1.3 15 86000 2050 14 0 0 4.27 26868

3-axle semi-trailer (light) Truck articulated

Radial-ply 1.8 10 3 1.3 15 86000 2050 14 0 0 4.27 26868

4-axle semi-trailer (heavy) Truck articulated

Radial-ply 1.8 14 4 1.3 15 86000 2050 14 0 0 4.27 33338


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Name Base Type Tire Type Passenger Car Space Eqv.

No. of wheels

No. of axles

Base no. of recaps

Retread cost (% of new tyre cost)

Annual Km

Annual Working

Hours

Average Life in Years

Private use (%)

Passengers

ESALF Operating weight (kg)

5- axle Truck Trailers Truck articulated

Radial-ply 1.8 18 5 1.3 15 86000 2050 14 0 0 4.27 39411

6- axle Truck Trailers Truck articulated

Radial-ply 1.8 22 6 1.3 15 86000 2050 14 0 0 4.27 45187

Extra Large Trucks & Others Truck articulated & constr. Equipment

Radial-ply 1.8 - - 1.3 15 86000 2050 14 0 0 4.27 50725


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Table 4.3: Economic Characteristics of Vehicle Fleet

Name New vehicle

(US$)

Replacement

tyre (US$ per

new tyre)

Fuel (US$

per litre)

Lubricatin

g oil

(US$/litre)

Maintenance

labour (US$ per

labour-hour)

Crew wages

(US$ per crew-

hour)

Annual

overhead

(US$)

Cargo

delay (US$

per hour)

Passenger

working

time per hr

Passenger

non-

working

time per hr

Bicycles 125.00 - - - 0.0 - 0.0 0.36 -

Motor Bikes 1895.83 50.00 1.09 4.20 3.00 0.0 200.00 0.0 2.00 0

Taxis 28,541.67 83.40 1.09 4.20 3.00 0.0 400.00 0.0 2.00 0

Private Cars 34,791.67 83.40 1.09 4.20 3.00 0.0 400.00 0.0 2.00 0

Pickups/Vans/4WD Vehs 44,000.00 250.00 1.09 4.20 3.00 0.0 500.00 0.0 2.00 0

Small Buses 40,416.00 145.83 1.09 4.20 3.00 4.00 500.00 0.0

Medium Buses/Mummy

Wagons

84,500.00 375.00 1.09 4.20 3.00 4.00 500.00 0.0 1.50 0

Large Buses 90,000.00 520.83 1.09 4.20 3.00 4.00 500.00 0.0 1.50 0

Light truck (2-axles) 48,541.60 375.00 1.09 4.20 3.00 4.00 800.00 0.0 0 0

Medium truck (2-axles) 28,000.00 375.00 1.09 4.20 3.00 4.00 800.00 0.0 0 0

Heavy Trucks (3-axles) 120,000.00 729.17 1.09 4.20 3.00 4.00 800.00 0.0 0 0

3-axle semi-trailer (light) 110,000.00 729.17 1.09 4.20 3.00 4.00 800.00 0.3 0 0

4-axle semi-trailer (heavy) 120,000.00 729.17 1.09 4.20 3.00 4.00 800.00 0.3 0 0


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Name New vehicle

(US$)

Replacement

tyre (US$ per

new tyre)

Fuel (US$

per litre)

Lubricatin

g oil

(US$/litre)

Maintenance

labour (US$ per

labour-hour)

Crew wages

(US$ per crew-

hour)

Annual

overhead

(US$)

Cargo

delay (US$

per hour)

Passenger

working

time per hr

Passenger

non-

working

time per hr

5- axle Truck Trailers 120,000.00 729.17 1.09 4.20 3.00 4.00 800.00 0.3 0 0

6- axle Truck Trailers 120,000.00 729.17 1.09 4.20 3.00 4.00 800.00 0.3 0 0

Extra Large Trucks & Others 140,000.00 729.17 1.09 4.20 3.00 4.00 800.00 0.3 0 0

N/B: US$ 1 = GHS 4.8


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Table 4.4 Vehicle Volumes & Traffic Growth Rates

a. Giffard Road

Vehicle class 2018 ADT (veh/day)

2011 ADT (veh/day)

Annual Growth Rates (%)

Non-Motorised Traffic (NMT):

Bicycles 168 146 2.03

Total NMT ADT 168 146

Motorised Traffic (MT):

Motorcycles 800 490 7.26

Taxis 4575 3333 4.63

Private cars 7266 5293 4.63

Pickup/Van/4WD 5758 4194 4.63

Small bus 2979 2103 5.10

Medium bus/Mummy Wagon 206 145 5.10

Large bus 147 104 5.10

Light Truck 267 213 3.27

Medium Truck 149 119 3.27

Heavy truck 58 46 3.27

3-axle Semi-Trailer 13 10 3.27


5-axle Truck Trailer 3 2 3.27


Extra-large truck & Others 15 12 3.27

Total MT ADT 22256 16080


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b. Burma Camp Road 1


2011 ADT (veh/day)



Bicycles 185 161 2.03




Taxis 2451 1785 4.63


Pickup/Van/4WD 3439 2505 4.63

Small bus 1186 837 5.10


Large bus 49 35 5.10








Extra large truck & Others 2 2 3.27



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c. Burma Camp Road 2


2011 ADT (veh/day)



Bicycles 109 95 2.03




Taxis 2191 1596 4.63


Pickup/Van/4WD 2952 2150 4.63

Small bus 538 380 5.10


Large bus 42 30 5.10








Extra large truck & Others 1 1 3.27



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d. Ayamfuri-Asawinso

Vehicle class Ayamfuri-Dominase Road (Section 1) Dominase – Asawinso Road (Section 2)

2012 ADT (veh/day)

2018 ADT (veh/day)

Annual growth rate (%)

2012 ADT (veh/day)

2018 ADT (veh/day)

Annual growth rate (%)


Bicycles 62 105 9.21 16 27 9.21

Total NMT ADT 62 105 16 27


Motorcycles 404 686 9.21 193 327 9.21

Taxis 522 886 9.21 275 466 9.21

Private cars 92 156 9.21 60 102 9.21

Pickup/Van/4WD 172 291 9.21 131 222 9.21

Small bus 137 233 9.21 59 100 9.21

Medium bus/Mummy Wagon 6 10 9.21 3 4 9.21

Large bus 7 12 9.20 5 8 9.20

Light Truck 46 78 9.21 33 56 9.21

Medium Truck 8 14 9.21 13 22 9.21

Heavy truck 9 15 9.21 2 3 9.21

3-axle Semi-Trailer 1 2 9.18 2 4 9.18

4-axle Semi-Trailer 1 2 9.18 2 4 9.18

5-axle Truck Trailer 9 15 9.21 8 14 9.21

6-axle Truck Trailer 74 125 9.21 68 116 9.21

Extra large truck & Others 17 29 9.21 10 16 9.21

Total MT ADT 1505 2554 862 1464


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Table 4.5 Defined Work Standards

Road

name

Base case With project alternative

Giffard

road

For this scenario, the road agency performs

routine pavement maintenance and periodic

works only such as pothole patching, edge

repair, keeping the drainage system in good

condition, crack sealing and resealing

The road was reconstructed in 2012 from a single carriageway (7m) to a dual carriageway (14m).

Construction took 4 years after which the road became a four-lane dual carriageway road. From 2016

onwards when the road was opened to traffic, it will receive 50 mm overlay whenever roughness

exceeds 5 IRI or whenever cracked area is 20% or more plus routine maintenance works such as pothole

patching, edge repair, keeping the drainage system in good condition and crack sealing.

Burma

camp road

Ph 1

The road agency performs routine and

periodic maintenance works only such as

grading/reshaping and spot regravelling.

The road was constructed into a paved dual carriageway (14m) in 2012. Construction took 5 years after

which the road became a four-lane dual carriageway road. From 2017 onwards when the road was

opened to traffic, it will receive 50 mm overlay whenever roughness exceeds 5 IRI or whenever cracked

area is 20% or more plus routine maintenance works such as pothole patching, edge repair, keeping

the drainage system in good condition and crack sealing.

Burma

camp road

Ph 2

The road agency performs routine and

periodic maintenance works only such as

grading/reshaping and spot regravelling.

The road was constructed into a paved dual carriageway (14m) in 2012. Construction took 5 years after

which the road became a four-lane dual carriageway road. From 2015 onwards when the road was

opened to traffic, it will receive 50 mm overlay whenever roughness exceeds 5 IRI or whenever cracked

area is 20% or more plus routine maintenance works such as pothole patching, edge repair, keeping

the drainage system in good condition and crack sealing.

Ayamfuri –

Asawinso

Road

Section 1: This is bituminous surfaced. The

road agency performs routine pavement

maintenance and periodic works only such as

pothole patching, edge repair, keeping the

drainage system in good condition, crack

sealing and resealing.

Section 2: In the case of this section which is a

gravel surface, the road agency performs

routine and periodic maintenance works only

such as grading/reshaping and spot re-

gravelling.

The road was rehabilitated (upgraded) in 2013 from a mix of gravel and surface treated single

carriageway to an asphalt concrete surfaced single carriageway for all the sections. Construction took

4 years after which the road became an asphalt concrete surfaced single carriageway road. From 2017

onwards when the road was opened to traffic, it will receive 50 mm overlay whenever roughness

exceeds 5 IRI or whenever cracked area is 20% or more plus routine maintenance works such as pothole

patching, edge repair, keeping the drainage system in good condition and crack sealing.


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7. Summary of Results: HDM-4 simulated, for each road section, year-by-year, the road condition and resources

used for maintenance under each strategy, as well as the vehicle speeds and physical resources consumed by

vehicle operation. After physical quantities involved in construction, road works and vehicle operation are

estimated, user-specified prices and unit costs are applied to determine financial and economic costs.

Relative benefits are then calculated for different alternatives, followed by present value and rate of return

computations. The following were obtained:

• Table 4.6: 2008 Ex Ante Economic Analysis


Ayamfuri-Asawinso 55 17.9%

Giffard Road 2.5 20%

Burma Camp Road 2.7 15%

• Table 4.7: 2015 AF Economic Analysis


Ayamfuri-Asawinso

• Ayamfuri – New Obuase (26km)

• New Obuase – Asawinso (26.2km)

16.07 25.50 -10.48

15.01% 21.1% 7.6%

Giffard Road 23.82 48.4%


8.76 24.88

21.7% 60.8%

• Table 4.8: Results of Ex-Post Analyses

Road Link NPV (@12%) (US$)

ERR Savings in MT VOC ($US)

Savings in MT Travel Time Cost (US$)

Ayamfuri-Asawinso -15.275mil 1.9% -3.55mil 4.35mil

Giffard Road 2.797mil 12.9% 9.51mil 14.04mil


84.849mil 45.822mil

33.1% 40%

77.49mil 43.21mil

16.74mil 8.98mil

8. Sensitivity analysis was conducted to test the effect of variations in key parameters that may arise due to

unforeseen events. The selected parameter was traffic growth rate; and the percentage variation was taken

as ±20 percent for normal traffic growth rate. The results are shown in table 4.9. Trend of NPVs was similar to

trend in Table 4.8.

Table 4.9: Results of Ex-Post Analyses

+10% ADT +20% ADT -10%ADT -20%ADT

Road Link NPV (US$m)

ERR NPV (US$m)

ERR NPV (US$m)

ERR NPV (US$m)

ERR

Ayamfuri-Asawinso -14.337 3.0% -13.297 4.1 -16.243 0.7 -17.222 -0.8

Giffard Road 8.120 14.6% 13.355 16.3 -2.674 11.1 -8.193 9.1


95.542 51.778

34.9% 42.8%

105.979 57.738

36.7 45.4

74.080 39.881

31.2 37.2

63.396 33.955

29.1 34.2


Page 59 of 63

ANNEX 5. BORROWER, CO-FINANCIER AND OTHER PARTNER/STAKEHOLDER COMMENTS

We appreciate and concur to the findings of the ICR and wish to assure the Bank that the lessons learnt and challenges within the ambit of the Ministry are being addressed on all projects and especially on the Bank funded projects especially the ongoing TSIP. We also acknowledge the gaps in identification of PAPs and the overall increase in the compensation cost on the trunk road component. This as has rightly been indicated, was due to delays in paying Project Affected Persons (PAPs). This delay also curtailed some civil works and resulted in additional costs to the project. We wish to indicate that, this could have been avoided if the compensation is built in the cost of the funding for the project. The Bank should consider this decision to enable us achieve the full social and economic benefit of projects with funding from the Bank. Once again, we are grateful for the cooperation in handling and implementing the TSP.


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ANNEX 6. SUPPORTING DOCUMENTS (IF ANY)

• Borrower’s ICR

Main Findings from Borrower’s ICR are presented here

1. LESSONS LEARNED FROM TSP

A. Effectiveness of Roles of Bank & Borrower A.1 Bank Supervision

• The Bank made sure it coordinated its activities with those of other technical and financial partners.

• Thanks to the Bank’s vigilance through its supervision missions, and that of the Borrower through the PMU, works quality was consistent and implementation schedules were respected, for the most part. In addition, although cost overruns in the parent project triggered the need for additional funding, all the objectives were achieved.

• The Bank carried out supervision missions; and recommended interventions through these missions was capital for the project. It made it possible to resolve problems in a concerted and effective manner, and with minimum delay. The performance of the Borrower/Donor, and that of the PMU, was equally satisfactory. The performance of the Bank also was satisfactory.

• Bank supervision was adequate in terms of the skills-mix and the practicability of the solutions proffered.

• Bank supervision was satisfactory and made it possible to resolve some technical issues encountered during the implementation phase.

In all the Bank management supervision was rated to be satisfactory by the borrower.

A.2 Effectiveness of Supervision by the Borrower

• Mitigation measures in respect of the works were set out in the ESMP. The Borrower took all the required measures.

• The Borrower paid attention to the conclusions and recommendations made by the Bank during its supervision of the project.

• The country implemented the recommendations of the supervision missions for the most part.

• The Borrower collected and used information from the monitoring process in its decision-making.

• The Borrower was able to redesign the project upon discovery of unanticipated obstacles during organization and operation.

• For the most part, the Borrower/Donor used the works progress reports, project account audit reports and the recommendations of supervision missions in their decision-making.

• Administrative capacity was inadequate for complex project components especially with regard to bureaucracy: legalistic, centralized and regulatory procedures which did not match the demands of the dynamics of such a project.

• Training did not include developing broader management skills and capabilities. As a result, there was failure to develop indigenous management skills by using project sub-components as training operations for staff to develop capacity to handle complex project components.

• Government did not readily have available resources to meet its obligations.


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• There was excessive fragmentation of responsibility for implementation among government organizations and agencies and insufficient coordination among organizations operating projects and programs in related development sectors.

• There was no cross exchange between organizations in setting project investment goals and establishment of overall development policies.

• There were delays in granting necessary national and international approval for project activation; procedural and bureaucratic delays within assistance agencies and national governments

• Resource and work scheduling systems were inadequate.

• Parallel project implementation mechanisms did not promote donor partnerships which might have helped other stakeholders to better respond to needed omitted project aspects.

• The borrower ensured the amendment of the Road Fund Act to grant the Road Fund a corporate status.

2. RECOMMENDATIONS

A. Project Implementation

• The lapses identified on this project has brought to fore the need to go through all the stages of project preparation before procurement. There is therefore the need for greater standards of due diligence during the project preparation and pre-appraisal stage to allow for adequate design decisions, relocation of utility assessments, time requirements for land acquisition, compensations etc. so as to minimize the opportunity for changed conditions and contract variations during construction with consequent costs in time and money. Specifically

▪ Ensure prompt processing and payment of invoices and payment certificates ▪ Crosscheck the BOQ with approved designs ▪ Checks on indices for fluctuation ▪ Review utility lines and cost by utility companies ▪ The need for timely visits to project site

• Dealing with compensation payments could aid in seamless project implementation.

• The need to procure relocation contractors about six months ahead of construction works is critical for proper implementation.

• The presence of a communication specialist on projects could also help in implementation.

• Public transport operators should be engaged on the proper use of the facility to prevent unnecessary congestion on the corridors.

• There should be good maintenance regime by committing sufficient resources to it.

• Simple project implementation guidelines accompanied with work break down structures for different project activities should be defined within the PIM.

• Project should be implemented effectively and efficiently, such that they can generate greater value for money. B. Safeguard Concerns

• There should be timely and adequate assessment of properties affected by project works during the pre-project appraisal phase to avoid delays during the project implementation phase.

• Standard rates for items to be compensated for should be established to streamline the property valuation process.

• Biodata of project affected persons (PAPs) should be recorded at the project valuation stage to


Page 62 of 63

avoid discrepancies at a later stage.

• There should be improved stakeholder engagements with PAPs and other stakeholders.

• Adequate funding should be made available for prompt payment to PAPs to avoid delays which also affects the progress of works with associated cost overruns. C. Project Management

• Building blocks of project activities must be identified and defined within a specific policy and program context linked to national plans for a broader development context.

• Increase in capacity building in project administration for good project governance in the transport sector is recommended.

• Creation of an incentive framework to attract and retain suitable technical manpower to address sectoral issues in a comprehensive manner.

• Project staffing set up should be institutionalized in the PIM to ensure appropriate rewards.

• Key project members should not be transferred till the project ends, if possible. Where this happens, the PIT needs to work on periodic refreshers for new staff coming on stream so that the defining project concepts are well understood by the team.

3. SUSTAINABILITY

• There should be continued coordination among the agencies through knowledge sharing, analytical and advisory services to sustain project gains.

• Maintenance capacity should be stepped up.

• Consideration should be given to design upgrades of some feeder roads with alternative surfacing types.

• Aspects of project scope not achieved such as support to the road fund and contractor capacity development should be implemented with alternative funding.

• Lessons from the project should inform future projects.

• There is need to build recommendations from institutional, regulatory and other essential studies developed for the different agencies.

• The practice whereby pre-financing of compensation payment by contractors was made to reduce delays could be considered in future projects.

• Innovative practices such as outsourcing the management of the Kasoa terminal to a private entity could be considered for future projects.

• Donor partners could consider allocating funds for compensation as part of the project cost to mitigate cost escalations due to delays in payment of compensation which result in contract idle time with related cost add-ons. For example, the contractor’s claim for idle time resulting from delayed payment of compensation on the Ayamfuri-Asawinso road project could have been avoided.


Page 63 of 63

Documents

Implementation Completion and Results Report (ICR) Document...GACL Ghana Airports Company Limited GCAA Ghana Civil Aviation Authority ... MoF Ministry of Finance MRH Ministry of Roads