TABLE OF CONTENTS List of Acronyms and Abbreviations 2 …invest/documents/projectdocumentatio… · · 2015-12-23List of Acronyms and Abbreviations 2 Executive Summary 3 ... The

Cabo Delgado Tertiary Road Project

1

TABLE OF CONTENTS List of Acronyms and Abbreviations 2 Executive Summary 3 Introduction 5 Context 6 Project Rationale 24 Description of the Project 26 Risk Assessment 45 Management of the Project 46 Logical Framework Analysis 48 Project Implementation 55 Key Issues of the Project 57 Appendices


2

List of Acronyms and Abbreviations ANE Administração Nacional de Estradas – National Road Administration Asdi Swedish International Development Cooperation Authority ASIST Advisory Support Information Services & Training CFE Centro de Formação de Estradas – Road Training Centre CMU Core Management Unit CTA Chief Technical Advisor DETs Divisões de Estradas Terciárias DEP Provincial Department of Roads and Bridges DER Directorate of Regional Roads DFID Department for International Development (UK) previously ODA DNEP National Directorate of Roads and Bridges DPOPH Provincial Directorate of Public Works and Housing ECMEP Provincial Roads and Bridge Construction and Maintenance Company EU European Union FRP Feeder Roads Programme GOM Government of Mozambique IDA International Development Association IFAD International Fund for Agricultural Development ILO International Labour Organisation LCB Local Competitive Bidding MPF Ministry of Planning & Finance MOPH Ministry of Public Works & Housing MTC Ministry of Transport & Communications MT Meticais (unit of currency) NORAD Norwegian Agency for Development Cooperation OPEC Organisation of Petroleum Exporting Countries ROE Rate of Exchange ROCS Roads and Coastal Shipping Project TA Technical Assistance UNCDF United Nations Capital Development Fund UNDP United Nations Development Programme UNV United Nations Volunteer WB World Bank WFP World Food Programme


3

EXECUTIVE SUMMARY 1. The National Road Administration wishes to enlist the support of NORAD to provide a programme of

tertiary road improvement and maintenance in the province of Cabo Delgado. This programme would be implemented according to defined principles in keeping with the strategy now being developed for tertiary roads in the country.

2. In the first place the project is designed to meet the actual needs of the province. For that reason the

development of the project document has been carried out in close collaboration with the Provincial authorities and with key stakeholders in the road sector in the province.

3. Secondly, the project is designed to be executed by the Provincial authorities in keeping with the

recently introduced Road Administration System, under which responsibility for tertiary roads is decentralised to the provinces.

4. The project will be concerned first and foremost with the development of the capacity of the road sector

in the province. Actual rehabilitation of roads, though a key part of the project, will take second place to the development of the capacity of the province to be able to administer road rehabilitation and road maintenance works.

5. The project will support the development of the private sector in the province with the overall goal of

ensuring a capacity in the province to rehabilitate and maintain a core network some 1200 km of tertiary roads.

6. The project design recognises the need for technical assistance. However to the extent possible it intends

to make use of the capacity that already exists in the country whether this be in government institutions such as the Road Training Centre in Chimoio, other donor funded projects such as the ROCS programme and the DFID funded project in Zambezia. More specifically, the project will rely on the use of local consultants wherever they are in a position to be able to support the project.

7. The overall objective of the project is the improvement in access for the rural population to social and

economic services. This is inline with the policy of seeing tertiary roads as being the facilitator of economic and social development of the rural areas. The immediate objective has been defined as the development of a sustainable, appropriate and cost-effective road management system at provincial level.

8. The project includes the development of an effective tertiary roads planning and selection procedure and

the development of an evaluation procedure to measure the impact of the improved roads. These and other procedures required for the efficient operation of a decentralised tertiary road network will be developed in coordination with the DER of ANE, and will be standardised countrywide.

9. The project will be financed through the Road Fund at national level. Funds from the project can then be

used in unison with the funds provided by the government for rehabilitation and maintenance. 10. Training will form a key part of the project. This will cover all aspects of road administration and

implementation. A major effort will be placed on developing the capacity of the DEP to plan, monitor and control works and to cover all aspects of contract administration. In addition a detailed training programme will be developed for training of contractors.

11. In the first year at least the project will work in close collaboration with the DER particularly in the area

of providing training sites for the contractors. 12. Funding has been provided within the project budget for TRL, ILO/ASIST and Sweroad to carry out

research projects into appropriate engineering standards and factors effecting the environmental impact of tertiary roads


4

13. It is intended that the Technical Assistance would be supplied through competitive bidding. It is proposed that ILO/ASIST will provide a monitoring service to NORAD during the project.

14. The overall cost of NORAD support to the 5 year long project is estimated at $10,244,115, with a

Government contribution of $7,416,510.


5

1. INTRODUCTION NORAD has been providing support to the province of Cabo Delgado for several years in the area of rural development. This has included the rehabilitation of roads but was also concerned with other development activities. In late 1997, NORAD discussed with ANE and the Ministry of Finance the possibility of funding a programme of tertiary road rehabilitation and maintenance in Cabo Delgado. The government responded by asking NORAD to carry out a feasibility study for such a project and this was done in September of 1997. This report was discussed in ANE and with NORAD. It was felt that some further work should be done, in particular to involve the province more closely in the development of the draft Project Document. A consultant was hired by the ILO, on behalf of ANE, to prepare the draft and visit Mozambique in March 1998. An issues paper was prepared which was then discussed at a workshop held in Pemba in May. All the stakeholders were included in the workshop, including the private sector, several line agencies and District Administrators. The workshop was led by a facilitator and many of the key issues were fully discussed. A draft project document was produced based on the results of the workshop and interviews held by the consultant. The document derived from a both a full analysis of the situation in the province, and benefited from the fact that the province had been involved in its preparation. The project proposal was presented to NORAD in August 1998. The present document has been produced by updating the August ’98 proposal, taking into account comments from NORAD resulting from a project appraisal in November 1998. Certain key assumptions, implicit in the document, should be recognised. In the first place the project is designed to meet the needs of the province. It looks to the long term development of the province. This can only come about if the province, itself, has the capacity to look after its road network. The emphasis is therefore on developing the capacity of the road administration in the province. Second, the tertiary road sector in Mozambique is now being given close scrutiny by both the Government and its newly created Road Administration, ANE, and by several Donors. Legislation reforming the way Mozambique’s road network is administered was approved in April 1999. A framework for the management of tertiary roads is defined as part of the new system, but substantial detailed development work will be required as this framework is implemented. It is expected that this project will contribute to this development, serving as a pilot model for the introduction of procedures. Third, ANE is convinced that the commercialisation of the production of roads is the way forward. This is a relatively new concept in Mozambique. The document therefore tries to build on the experience that has already taken place in this area, whilst recognising that the development of the private sector in Cabo Delgado will require both time and effort. Finally, whilst the project is developed for the province, it cannot be seen nor implemented in isolation. It has to take account of the reform of the tertiary roads sector, which will be implemented during the lifetime of the project, and it must operate within the resulting framework set down by the road administration, ANE.


6

2. CONTEXT 2.1 Socio-economic Context and National Policies After many years of internal conflict, a peace agreement was signed in 1992 and since then the country has been struggling to grasp the opportunity offered by the political stability. Years of neglect have left the economy in disarray and the infrastructure to support economic growth has been destroyed or is in a very poor condition. Mozambique has one of the lowest per capita GDP in the World. Whilst having to cope with the aftermath of war, periodic drought and the effects of a poor economic management, the country has been left with a disastrously inadequate social and economic infrastructure. The results of years of inattention have resulted in a situation where Mozambique has high levels of child mortality, low life expectancy, low literacy levels and poor education. In addition the exodus of so many of the technical and managerial manpower after independence coupled with the limited levels of education available to the people created a vacuum which is only now being filled. With the help of several donors, who provide over 80% of the GDP, restructuring programmes have begun to take effect. The main objectives of these programmes are to privatise the economy, reduce the bureaucracy, give more authority to the decentralised structure, to reduce the debt burden (presently running at over 30% of export earnings) and to reduce poverty. In order that the country can benefit from the restructuring that is taking place, the growth in the economy, presently running at 10 %, has to be reflected in improved conditions both social and economic. To reduce the imbalance between imports and exports, the latter have to be vigorously supported. In the first place this means that the potential of the mainstay of the economy, agriculture, has to be exploited. This is in no small way dependent on the development of effective infrastructure both nationally and in the productive areas. 2.2 Road Sector Objectives The road sector will play a key part in the economic and social recovery of the country. This relates not only to the rehabilitation of the main arterial links but also ensuring that the cash crops that are available can be transported effectively on the rural roads that feed into the national system. In recognition of the importance of land transportation for the economic and social development of the country, the government, with assistance from the World Bank, has made wholesale changes in the management of the road sector. Under the framework of the ROCS programme, substantial investments have been made throughout the road sector. Major efforts have been made to repair key sections of the road system and, more importantly, to ensure that there is a maintenance capacity to keep the roads in a good condition. These changes are in line with the general trends in the overall economic situation in the country. The first stage of the implementation of the reforms was the adoption by the Government of a new National Road Policy in 1998. In April 1999 the Council of Ministers approved the New Road Administration System and the establishment of the National Road Administration. Prime objectives of the reform of the road sector are to :- - Introduce a private sector perspective into the management of the road network - Make the management of roads more responsive to the needs of the users - Create a more efficient and effective organisation through the use of results-based performance

packages and enhanced staff motivation - Execute road rehabilitation and maintenance at national and provincial level using competitive

contracting systems


7

Prior to the introduction of the reforms, the sector was managed by the National Directorate of Roads and Bridges (DNEP). Whilst the Ministry of Public Works and Housing is the line ministry responsible for the road infrastructure of the country, the actual day to day running of the sector was entrusted to DNEP. DNEP carried out the functions of programming, planning, contracting and supervision. Actual implementation is carried out either by major international or regional contractors, the ECMEPs or increasingly by small Mozambican private sector contractors. The ECMEPs were parastatal construction organisations based in each province. DNEP was represented at the Provincial level by the DEP, which, whilst administratively responsible to the Governor through the Provincial Directorate of Public Works and Housing, was technically responsible to DNEP. Since 1989 a Road Fund has been in operation. This was set up to ensure that funds from fuel tax and levies were used for the maintenance, and subsequently, the improvement of the road network. The fuel levy is collected by the Ministry of Planning and Finance, and a part of the total is paid into the Road Fund. Lack of regularity of the transfer of funds has been a constant problem for DNEP, and has resulted in delays in payments to contractors. 2.3 Road Sector Policies The new Road Policy, recently approved by the Council of Ministers, provides direction for the management of the Road Sector. Decisions taken by the various executive bodies in the sector must be in line with this policy. Particular aspects of the policy which relate to Regional Roads, and thus are of particular relevance to the Cabo Delgado Project, are listed below. - The Government will initiate and sustain the decentralization of rehabilitation and maintenance of

Regional Roads to provincial level - Non-classified roads will remain the responsibility of District Authorities - The programme for rehabilitation of Regional Roads will be continued in the medium term - Routine maintenance will be carried out, concentrating primarily on roads in good and fair

condition - The programme for periodic maintenance will be extended to Regional Roads - Works on Regional Roads will be prioritized in accordance with level of use - The use of local contractors in the rehabilitation and maintenance of Regional Roads will be given

priority - Labour-based techniques and nationally-available materials should be used to the maximum extent

possible in the maintenance and rehabilitation of Regional Roads - The Government will take steps to guarantee regular and sufficient funding for Regional Roads 2.4 Road Sector Organisation The key elements involved in the new system are:

• The Road Board • The National Road Administration - ANE • A reformed Road Fund, incorporated within ANE • Provincial Government

The organisational structure of the National Road Administration System, ANE and Funding Routes are shown in Figures 2.1, 2.2 and 2.3 respectively.


8

Figure 2.1 - National Road Administration and Project Structure

ProvincialDirectorateof Regional

Roads

Directorate ofNational Roads

Directorate ofAdministration

Road Fund

Provincial Delegationof ANE

Directorate ofRegional Roads

TechnicalAssistance

Road Board

Ministry of Public Works and Housing

MontepuezRegion

MuedaRegion

MacomiaRegion

DEPCabo Delgado

Provincial Directorateof Public Works and Housing

Provincial RoadCommission

Provincial Government


9

Figure 2.2 - National Road Administration Structure: Central Level

Department ofTertiary Roads

Department ofNon-classified Roads

Department ofUrban Roads

Department ofPlanning

Administration


Department ofPlanning

Department ofStudies and Designs

Department ofInspection

Department ofMaintenance


Provincial RoadFund Accounts

Road Fund

TrainingDepartment

PersonnelDepartment


Road Board



10

Figure 2.3 Road Sector Funding Route

Technical Assistance



Road Fund

Provincial Delegationof ANE


Road Board


Contractors

DEPCabo Delgado

ProvincialRoad Fund

Provincial Directorateof Public Works and Housing

Provincial Road Commission

Provincial Government


11

Road Board The Road Board is a new body that is responsible for the supervision of the management of the road network. The Board is made up of representatives from both the public and private sectors. Nominations to the Board are made by the Minister of Public Works and Housing, based on proposals from the appropriate Ministries and private sector organisations. The Board has a total of 11 members; a Chairman, Vice Chairman, 4 representatives from Ministries, 4 from the private sector and 1 from the university. The Chairman of the Road Board is also the Executive Director of ANE, responsible for the implementation of the contract programme and the overall management of ANE. The Vice-chairman of the Board acts as Chair of the Road Fund. The Road Board approves ANE’s annual plans, and proposes to the Minister the adoption of ANE’s contract-programme with the Government. They monitor the implementation of the programme, liquidity of the Road Fund, and reports and technical and financial audits of ANE’s performance. They ensure that the National Road Administration manages roads, and the Road Fund finances work on them, in accordance with the National Road Policy. National Road Administration The National Road Administration replaces DNEP. It is a legal entity and has financial and administrative autonomy. It has four Executive Directorates:- Directorate of National Roads Responsible for the management and execution of works on National ( Primary and Secondary ) roads. New construction, rehabilitation and periodic maintenance works on National Roads are all planned, procured and managed at central level by this Directorate. In addition it has responsibility for the control of the use of the road reserve, proposing updates of the classification of National Roads, budget preparation for work on National Roads and the management of road concessions Directorate of Regional Roads Has a policy-making, coordinating, monitoring and advisory role for work carried by the provinces on Regional ( Tertiary, Urban and Non-classified ) Roads. In relation to Tertiary Roads, the role of the Directorate of Regional Roads is one of support and monitoring of planning, budget preparation and the execution of work carried out in the provinces by the directorates of regional roads. The Directorate collates and compiles the annual budget submissions from the provinces for submission to the Road Fund. The Directorate is also responsible for monitoring the classification of Regional Roads, maintaining a road database, and carrying out research into developments relevant to its work. Of interest to this project are the Tertiary Road Department and the Planning Sections within the Directorate of Regional Roads. The Planning Section will have access to the national Highway Network Management System ( HNMS ) database, maintaining data on the tertiary, non-classified and urban roads. Traditionally, the old Planning Department of DNEP had been particularly concerned with the national road network, whereas the Maintenance Department had largely carried out the planning of tertiary road rehabilitation and maintenance. A strengthened planning function will be created within the Directorate of Regional Roads A key aspect of the new system of road administration is the decentralisation of the management of tertiary roads to the provinces. With the move to privatisation, capacity will have to be developed in the provinces to be able to administer contracts. Responsibility for the day-to-day management of tertiary roads will rest with the Department of Roads and Bridges, within the DPOPH, under the direction of the provincial governments advised by the Provincial Road Commissions


12

Road Fund Responsible for financial planning and the management of income and expenditure. Budget proposals from the Directorates of National and Regional Roads are coordinated and combined into an overall budget for approval by the Road Board and subsequent incorporation into ANE’s contract-programme with the Government. Directorate of Administration Responsible for internal resource management, human resources and training for the Road Administration. Provincial Government The Provincial Government is responsible through the Provincial Directorate of Public Works and Housing for the execution of maintenance and rehabilitation work on tertiary roads, and the routine maintenance of national roads. The Department of Roads and Bridges within the DPOPH carry out the day-to-day management of roadworks, the Chefe of DEP reporting to the Provincial Director of Public Works. The Provincial Government is required to approve these programmes and plans, checking that they conform to the policies and guidelines established by ANE. The DPOPH / DEP are referred to as Directorates of Regional Roads in the internal regulations of ANE. Two new bodies are established at provincial level under the new road administration system:- - Provincial Road Commissions, which will be advisory bodies to the Provincial Governments,

commenting on work programmes for Regional Roads and maintenance plans - Provincial branches of ANE, which will advise the regional roads directorates and monitor and

supervise maintenance planning, inspection, traffic counting and road condition surveys in addition to controlling the use of the road and road reserve.

The present organisation of the road sector is clearly affected by the changes that are taking place in administration and management of the sector. It is expected that the implementation of these changes will take place during the initial years of this project. Institutional strengthening in support of the reforms will continue at central and provincial level well into the course of the project. The institutional strengthening component for Cabo Delgado will be provided by this project. The reforms are well advanced. The Road Board has been appointed, the National Road Administration has been established and its internal regulations approved. Directors of the Executive bodies have now been appointed, and these Directorates’ internal regulations are being finalised. In the case of the Directorate of Regional Roads, a considerable expansion of staff numbers is underway. The project will be used as a vehicle to develop and test new procedures for the management of tertiary roads. This work will be coordinated through DER and the Tertiary Road Department. They will be responsible for the dissemination of successful procedures and lessons learned to other provinces. Contractors In line with the move to distinguish between the provider and the producer or road infrastructure, two further reforms are being implemented. In the first place it is intended that in the long term the ECMEPs will be privatised. As a first step in that direction, they have been converted into three regional public limited liability companies ( with SARL status ), the government being the majority shareholder. The other initiative is to set up regional plant pool companies which have majority private share holding. The plant pools are now being created and are in the process of being privatised. A significant part of the heavy


13

equipment that was used by the ECMEPs will form a part of the privatisation package. They will only become operational after privatisation is completed. The policy of the government to privatise the activities of the production of rural infrastructure as well as its maintenance is clear. The support being given by the World Bank to support and develop the private sector is a reflection of this policy. Project Organisation This project will fall under the Directorate of Regional Roads, which will be responsible for monitoring and coordination of the project on behalf of the Road Administration. Prime responsibility for the execution of the project will be at the provincial level, resting with the DPOPH, in line with the policy of decentralisation of work on tertiary roads. The Tertiary Roads Sector It is perhaps necessary to clarify what we mean by tertiary roads. There is a road classification system that divides the road network into primary, secondary and tertiary roads. This is also reflected in the numbering of roads. Primary and secondary roads are identified as EN, whilst tertiary roads are identified as ER. This classification is reflected in the division of responsibilities between the ANE and the DEP. ANE is responsible for the rehabilitation and periodic maintenance of primary and secondary roads, whilst the DEP is responsible for the routine maintenance of primary and secondary roads and the rehabilitation, periodic and routine maintenance of tertiary roads. In practice the situation is more diffused. The classification of roads dates from many years ago. In many cases roads have changed their function. The result for the tertiary network is that at the top end of the scale, some tertiary roads should be reclassified as Secondary Roads, whilst at the lower end some Tertiary Roads now serve no effective function. It is expected that during 2000 a new road classification system will be designed, followed by a complete reclassification of the road network. The only programme that has been involved with the sub sector for some considerable period of time is ANE’s Feeder Roads Programme, supported by a consortium of donors including UNDP and Asdi. The programme, which is supported by technical assistance from the ILO, has grown from pilot projects in the early 1980’s to today’s nation-wide programme. The FRP is involved with both secondary and tertiary roads. It is based in ANE, and supports both the management and execution of labour-based work. It works with ANE at national and DEPs at provincial level in the management of the programme, and with the DETs at provincial level in the execution of work. The DETs are labour-based units established within the ECMEPs. The ECMEPs were formerly provincial state companies and are now incorporated into regional, public companies. In recent years ANE has turned more of its attention to rural roads, recognising their importance in the social and economic development of the country. This has been reflected in the attitude of Donors who have begun to channel considerable resources into the sub sector. In addition there are major changes being implemented in the management and administration of the road sector in general which impinge on the sub sector. The FRP has, by general consensus, been a successful programme. It has introduced the use of effective labour based methods, has rehabilitated a considerable number of kilometres of rural roads and set up a routine maintenance system for these roads. Nevertheless, in the light of the current changes in administration of the roads sector, the FRP, as such, faces serious problems. In the first place the FRP is undergoing the process of integration into ANE at national and provincial level, having acted in the past as a semi autonomous organisation. Secondly, the FRP works through the DETs which is part of the ECMEPs, whose future status is unclear. The DETs themselves are an


14

artificial creation added on to the ECMEP to ensure the use of labour-based methods. Third, whilst in theory the work is contracted to the DET, the FRP retains some features of a direct labour operation. In the light of the above, this project has been designed to both take account of the reforms and changes that are presently taking place, whilst at the same time looking to work with and benefit from the work of the FRP in the province. Two fundamental differences however would apply in the manner in which the proposed project would operate. In the first place, the project would work directly through the province and its rural road administration, the DEP. Secondly, the project would work directly with the private contractors. On the other hand it intends to use the field activities of the FRP and DET labour-based brigades as training grounds for the private contractors. The role of the DET as potential private contractors in the project should not be ignored however. Experience has been gained in the DETs and skills created: it would be unfortunate if this cannot be developed. The project would therefore intend to include the DETs in the training programme for contractors on the assumption that it will be possible for the DETs to compete for work with local contractors. What is clear is that the DETs have the technical capacity to implement works. What is unclear at this stage is whether an effective framework can be found so that the DETs can be involved on equal terms with small contractors. Future Developments Following the success of the ROCS programmes, the Mozambican Government through ANE is currently preparing a successor programme, to be known as Estradas 3. The programme will comprise a strengthening of the existing ANE, developing its capacity such that is capable of functioning as envisaged in the institutional reforms, together with the rehabilitation and completion of missing links in the road network, and a continued programme of routine and periodic maintenance. Estradas 3 is being planned as a 10 year programme, with a combination of external and Government financing. The FRP will continue until the end of 2000. Clearly, the positive aspects of the FRP need to be retained. Nevertheless the recent mid term evaluation mission raises questions regarding the continuation of the FRP in its present form. It is intended that the FRP will be fully integrated into an overall strategy for rural roads. It is expected that Tertiary Roads, the use of labour-based techniques and the development of a provincial-level commercial road contracting environment will all feature as part of this programme. Asdi will carry out an evaluation of the programme in the first quarter of 2000, with a view to indentifying future areas for support. NORAD has expressed an interest in funding support for capacity building at central level for the Tertiary Road sector. Non-Classified Roads As the road network has been reopened over the past 7 years, the focus has been on the reopening of the links that give access to administrative and commercial centres. This leaves large areas of the country with access problems, and as population has moved back to these areas this lack of access is starting to be a constraint on development. Another feature of the current development process in Mozambique is the low level of traffic on many of the recently rehabilitated roads. As part of the World Bank’s involvement in Mozambique, the Rural Transport and Travel programme will be launched with a preliminary study and seminar planned for the first half of 2000. The programme aims to establish an administrative framework for the reopening of non-classified roads as well as dealing with lack of access through improved planning, alternative transport methods and appropriate infrastructure such as paths and footbridges.


15

It should be noted that it is only in recent years that attention, both of the government and the donors has been turned to the non-classified roads sector. This is reflected in the lack of a rural road strategy. Responsibility for the maintenance and rehabilitation of non-classified roads rests with the District Administrations. However they do not have the technical or financial resources necessary to carry out the work. As the RTTP initiative develops, it is expected that the project in Cabo Delgado may become involved in the support of some of these initiatives on non-classified roads. The provision of support to such work lies within the remit of DER, ANE’s provincial delegations and the provincial directorates of regional roads. Financing Funding for the improvement of the tertiary roads sector comes from the Government and the donors in the sector under the ROCS programme, principally Asdi and UNDP for the FRP, and DFID in Zambezia province. Limited funds only have been available for the provinces for road rehabilitation, although funds allocated for periodic maintenance are often used for what is in fact rehabilitation. The main source of government funding for roads is, of course, the Road Fund. Based on the published figures, some $450,000 is spent in the province from the Fund each year on routine maintenance. Donor Supported Activities Several donors are involved in the tertiary roads sector. The DFID funded project in Zambezia, which has completed 466 km by the end of June 1999, has already been mentioned as has the UNDP/Asdi funded Feeder Roads Programme. In addition, under the umbrella of the FRP, UNCDF has supported tertiary road rehabilitation in Nampula and Zambezia Provinces, construction on both projects having been completed by June 1999. Under the former a total of 318 km have been rehabilitated, and in Zambezia 102 km have been improved to gravel standard. In Niassa Province, OPEC and the Irish Government are funding the rehabilitation of individual roads. Also in the province, Asdi is considering a major programme that will include tertiary roads. USAID is funding a substantial tertiary and non-classified rehabilitation programme in Nampula and Zambezia implemented by World Vision, ADRA and Save the Children. DANIDA is in the final planning stage of an agricultural support programme for the provinces of Manica and Tete, which has a Tertiary road component involving the development of contractors and support to the DEPs in those provinces. IFAD also has a similar programme under preparation for the provinces of Niassa and Maputo.

NORAD Policies in Relation to the Project NORAD’s involvement in the tertiary roads sector in Cabo Delgado comes from two strands of their objectives for development aid in Mozambique. In the first place, NORAD recognises that, whilst roads are not enough to produce economic and social development, their improvement and sustainability will provide the platform on which development can take place. Moreover, as it has been clearly shown in Mozambique that labour-based methods are economically and technically viable for tertiary roads, there are short term benefits in a labour based programme. Funds for road improvement and maintenance are put directly into the rural economy in the form of wages and employment is created. Thus, supporting a labour based road programme will fully accord with NORAD’s concerns for poverty alleviation and growth in rural production and trade.


16

Secondly, NORAD feels strongly that it should support focussed projects concerned more with capacity building and less with production outputs and that, in this, it should be flexible in the manner in which it supports these focussed projects. In choosing Cabo Delgado for its support to the tertiary road sector, NORAD is continuing collaboration with the province that dates back some years. It has already been involved in a multi-sectoral rural development programme based in Montepuez, Balama and Namuno in the south west of the province. It is also involved in a community based resource management effort in Mecufi. 2.5 Cabo Delgado, the Present Situation Economic development in the province is severely restricted by the lack of transport and transport infrastructure. There are certain economic potentials such as the development of the marble industry and wood products. In addition there is the possibility of eco-tourism. Nevertheless the more generalised economic development of the province depends at one level on the access to local markets for the sale and purchase of basic items and at a higher level on the possibility of improving the access to the two main cash crops – maize and cotton. In the first place it should be recognised that even the most basic access to economic services is missing. Many villages do not have reasonable access to a market. This has serious implications for local people: • In the first place the limited number of traders in the market centres can pay well below the market value

of the crops being sold, safe in the knowledge that the farmer has made a long and arduous journey and will not return home without having sold his crop.

• Secondly, because traders have a monopoly they can charge high prices for the goods they are selling1 The prioritisation of road access should therefore take into account the number of people without access to a local market. This would be a support factor for the connection of each of the district centres to the network. In the more general sense of supporting the existing cash crop economy it is clear that the main emphasis should be on the two main cash crops , maize and cotton. The effect on maize prices of poor transportation is evident from a cursory glance at the prices. The price per kg in the main growing area around Montepuez is 1620 Meticais. By the time it has been transported to Pemba the same Kilogram costs 2300 Meticais. Transport representing therefore more than 25% of the cost in Pemba. Moreover, the cost, even in the growing area, is dependent on the access to these areas. The major areas for commercial maize production are Montepuez, Namuno and Balama that together contribute 70% of the total yearly output of 25,000 tonnes. The only other significant area is Mueda which contributes 20% of the total. In the case of cotton the emphasis on the Montepuez area is even more marked. Whilst some cotton is grown in the north and east, the vast majority comes from the south west of the province. Of the 19,000 tonnes produced in 1997, 15,000 came from the districts of Balama, Montepuez, Namuno and Chiure. Clearly transport is an important element of the evacuation of the crops to the ginnery. This is recognised by the private companies involved to the extent that they themselves contribute to the maintenance of the roads on which their trucks travel. The public company ICM also collects cotton from fixed collection points using tractors and trailers. Whilst the emphasis is presently on the south-west, it is suggested that Macomia would be an appropriate district to develop cotton production. Again however the viability of this would depend on the provision of reasonable access.

1 A recent promising initiative has been a mobile shop that will visit as many villages as it is able to access. Such an initiative could also be used to provide certain social services such as drugs and books.


17

Fish is another potential agricultural growth area. The eastern districts of the province are relatively poor compared with the rest of the province. This is partly because of their isolation. Fish, for instance, is difficult to obtain in Mueda and impossible in Montepuez. This is not because the fishermen of the coast are not producing the fish, but because it is too difficult and too costly to transport the fish to the interior.

An initial assessment of the economic potential of the province therefore would suggest that the main transport needs are in the south west primarily and then in the area around Mueda. It would be important to consider the other areas of economic potential such as tourism and small industry.

Social

In general access to primary schools is fair. There are insufficient to cater for the needs of all children. Only some 50% of school age children attend school but whether this is due to lack of access or to ingrained attitudes towards the need for education is impossible to say. Certainly the drop out rate is high and this could relate to the distance that children have to travel to schools that, in any case, may have limited facilities and staff.

In the whole province there are 10 secondary schools some of which are private. These are concentrated in Pemba, Mueda and Montepuez.

There are a total of 4 Hospitals in the province – in Mueda, Mocimba da Praia, Montepuez and Pemba. In each district there is a health clinic in the district centre and, on average, 4-5 health posts scattered around the district. Access to health services is certainly a problem both in terms of obtaining attention in urgent cases and also in terms of providing essential medicines, such as malarial prophylactics, in the rural areas.

Political/Administrative It is clearly important for the internal cohesion of the province that the district centres are well connected to each other and to the main network. This is not presently the case. In addition it is important that the province is well connected to the neighbouring provinces. This is the case to Nampula in the south but the connections to Niassa through Balama and Negomano are poor. Figure 2.4 shows the population in each district and indicates that there is an uneven distribution over the province. The south-west and the north have higher concentration of population than the rest of the province. This is important in terms of the distribution of the benefits of the proposed project. Investments should be made which benefit the maximum number of people. It is also worth noting that several district centres, Ancuabe, Namuno, Nangade, have poor or bad road access. Roads Tables 2.1 shows the overall length of roads in the province divided into type and classification. Table 2.2 provides an indication, from the available information, of the condition of the roads.


18

POPULATION> 150,000

100-150,000

50-100,000

< 50,000

District Centres

Figure 2.4. Population Distribution in Cabo Delgado In the first place the condition of the roads in the province is generally poor. It is difficult to specify with any degree of accuracy the extent of the degradation of the network. A road condition table is drawn up every year. However this relates to major stretches of road and describes them only in terms of their overall condition.

Primary Secondary Tertiary Total Paved 169 310 12 491 Gravel 0 445 506 951 Earth 0 268 935 1203 Total 169 1023 1453 2645

Table 2.1 Kilometres of Classified Roads in the Province

Source: ANE It is useful to look at Table 2.2 in terms of the poor and bad roads. These are roads where improvement will be necessary to put them into a maintainable condition.

19


Good Fair Poor Impassable Total

Paved 0 394 97 0 491 Unpaved 0 1054 836 264 2154 Total 0 1448 933 264 2645

Table 2.2 Condition of Roads in the Province (km.)

Source: ANE / DEP Cabo DelgadoTables 2.1 and 2.2 should be seen as indicative of the situation rather than exact figures. As discussed later, a detailed condition inventory will be required to establish the actual

situation. Figure 2.5 shows the planned roads improvements in Cabo Delgado for the coming two years. The African Development Bank are committed to rehabilitation of the EN242 from Pemba to Montepuez. The World Bank programme will rehabilitate some roads in the North and West of the province. The Feeder Roads Programme will concentrate its activities in the North and Centre. Clearly these roads need no further investigation as they have been already programmed for the coming years. On the other hand the presumption is that these roads are part of the core network and therefore maintenance budgets should be set aside for them. Figure 2.5 indicates the present situation in relation to roads in the province. Whilst there has been road improvements over the past years the lack of maintenance means that many of these improvements have

Regional RoadsFRP Projects

No Work PlannedOther Planned Projects

National Roads


20

already fallen into disrepair. Figure 2.5. Road Network and Planned Improvements

The implication is that in planning the core network, note needs to be taken of the proposals for road improvements. However it would be incorrect to assume that roads that have been improved over the past 3-4 years are still in good or even maintainable condition. It would be better therefore to include as one of the preparatory activities a full inventory of the classified secondary and tertiary roads to assess which parts are still in a maintainable condition. Part of the definition of a core network would be to use a simple selection procedure. Such a procedure is presented in the annex. This is provided to give some indication of the type of planning procedure that could be adopted by the project. The existing planning procedures involve coordination by the province of proposals emanating from the districts. Nevertheless they presently are a form of “wish list” rather than a realistic assessment of the roads that respond to the access needs of the population. A more scientific basis is required. In developing the work plan, the DEP with assistance from the TA team, will consider whether it would be preferable in the first year of the NORAD project to concentrate on one district or group of districts. This would have several advantages: • It would allow the project to develop effective planning systems on a pilot stage which could then be

expanded to the rest of the province • The capacity of the selected districts could be effectively tested and improved • It would allow the project to make a realistic assessment of the resources available in the districts and

the constraints to be overcome Road Financing In the section above, we have described the intended plans for road improvement in the province and the factors that should influence the definition of a core network. The NORAD programme would naturally be an addition and a complement to this funding for road improvement. The objective of the project is not to improve roads, although clearly this would be a significant component of the project. The objective is couched in terms of the capacity of the province to maintain a sustainable road network. Discussions of funding for improvement therefore are secondary to the discussion of funding for road maintenance. Presently road maintenance funding comes from two sources - the Road Fund and donors. In addition the funding from the Road Fund is presently conditioned by the overall priorities as defined by the Road Board. It is evident that at this stage the provinces need some assistance in making decisions on which roads are to receive maintenance. One drawback to the existing situation is that routine maintenance is not yet seen as an activity that needs to take place every year on a continuous basis. Roads that are improved must be put under maintenance immediately after improvement. This will ensure that the required periodic maintenance, the regravelling of the road, can be delayed as long as possible. Equally a strategic plan must be drawn up for an effective phasing of periodic maintenance over a defined period. If routine maintenance is effectively carried out then periodic maintenance should only be necessary on a 3-4 year cycle. Taking the ANE projections for both periodic and routine maintenance funding in the province as a basis, the first assessment suggests that in the case of routine maintenance considerable funds will be available.


21

Type of Maintenance 1999 2000 2001 2002 Routine RF - Major contracts 0.21 0.43 0.43 0.48 RF - Small contracts 0.55 0.44 0.46 0.49 Total 0.76 0.87 0.89 0.97 Periodic WB - Major contracts 4.16 1.67 - - RF - FRP contracts 0.32 0.32 0.34 0.35 Total 4.48 1.99 0.34 0.35 RF - Road Fund, WB - World Bank

Table 2.3. Budget for Maintenance (Million US$) Source: ANE

Various points need to be made regarding these figures: • Minimum values based on continuation of current budget figures are shown. Efforts are being made to

secure increased funding for future years • The figures for Periodic Maintenance relate to money allocated to specific roads. There are three roads

(EN 106, 243 and 246) under the World Bank project and the various roads improved under the FRP programme

• The figures for Routine Maintenance relate to the rehabilitated classified network The existing plans therefore suggest that all classified roads in the province will, by the year 2001, have sufficient funding for them to be maintained. Another major concern is the flow of funds to the province of funds allocated from the Road Fund. Whilst funding for maintenance may have been approved and agreed between ANE and MPF, it is often the case that the funds do not flow to the province in the required manner. ECMEP and its subsidiary, DET, are contracted by the Provincial Public Works Department to carry out the maintenance. Clearly they cannot operate efficiently, and evidence suggests that they do not operate, if there are no funds available. Use of the Private Sector In accordance with the National Road Policy, it has been agreed that the project will promote the use of private contractors both for road improvement and maintenance. The capacity in the province both for the contractors and the DEP is presently limited and will need to be developed. Under the ROCS programme some contractors in the province have already been introduced to road works. Initially the contractors were contracted sections of road for routine maintenance. The bill of quantities was developed by ANE and the contractors were provided with training both on the job and at the training centre in Chimoio. Difficulties arose relating to the flow of funds, the responsibilities of the contractors and the level of training. In addition the development of small contractors has been initiated under a DFID funded project in Zambezia. Here, the support to the contractors has been more intense, delays in payments have been minimised and the project has produced impressive results Discussions with the DEP and with local contractors in the province suggest that the number of contractors that would be able to take on road works, with suitable training is relatively small, of the order of six or seven. Nevertheless this would be sufficient to initiate a reasonable size programme. Clearly the future of the ECMEPs is a major issue in the discussion of the development of the private sector. Regional ECMEPs have now been established as companies with SARL status, the Government of Mozambique being the principal shareholder. It is expected that the labour-based brigades, the DETs, will continue to operate well into the life of this project. However the proposed project should not count on the ECMEP for its implementational capacity. This is not to suggest that the ECMEPs, and more specifically the


22

DETs, should not be provided with the opportunity to be involved in the project. However they would have to be involved on an equal footing in terms of the terms and conditions of the contracts. The development of the private sector is not however confined to the efforts that must be invested in developing the contractor’s side of the work. Of equal importance is the development of the capacity of the Public Works Department to be able to administer contracts. This will involve considerable resources and training.


23

3. PROJECT RATIONALE The immediate objective of the project has been defined in terms of the development of the sustainable capacity of the DEP to manage tertiary roads in the province. This objective reflects both the policy of the Government, in terms of supporting the decentralisation of responsibility for tertiary roads to the provinces, and the objectives of NORAD in terms of providing a major support to the economic and social development of the province. Clearly the Government, through ANE, is concerned to ensure that the provincial network is both improved and effectively maintained. ANE is the road administration for the country and their objective is to ensure an effective road transport system in the provinces. NORAD, on the other hand, does not necessarily see the road sector as the main target of its support. Rather it would see the provision of aid to the road sector in the province as a means to an end. This being the improvement of the living conditions of the people in the province in the long term and the generation of employment and income through the use of labour based methods in the short term. Fortunately, the objectives of the two partners coincide in this project. What is explicit in the defined objective is that, whilst capacity building and road infrastructure development are both parts of the project, it is the capacity building component which will define the development of the project. This is because the overall goal of improved access for the rural population will only be achieved if there is a capacity in the province to sustain the improvements in the road network. Given the choice that has been made to implement the project at the Provincial level, certain key factors needed to be addressed in the preparation of the project document. These were:

• The integration of the procedures and systems developed with the province with those being developed by ANE for the roads sector and in particular for Regional Roads

• The development of an effective and transparent system of funds allocation to the project which would relate to government procedures (financial authority)

• The involvement of all the key stakeholders in the implementation of the project (planning, socio-economic profiles)

Several donors including NORAD are now embarking on road projects in the provinces. For example DFID have been involved in a contractor based rural road rehabilitation project in Zambezia. Asdi is preparing a project in Niassa. DANIDA will fund work in Tete and Manica. An issue that arises is the coordination of rural road programmes. This task falls to the Directorate of Regional Roads, recently established under the National Road Administration System. The Cabo Delgado project, whilst clearly breaking new ground in terms of its manner of implementation, will have to ensure that it establishes neither parallel procedures nor procedures which are in conflict with those being developed nationwide by ANE. In the section on risks, the danger of having no effective coordination of rural road policy at the central level is identified. Although support to the Feeder Road Programme will terminate in 2000, ANE is conscious that some continuing support will be needed as the Directorate of Regional Roads develops and starts to assume its responsibilities of policy making, coordination and monitoring. This support will form part of the Estradas 3 programme. This project has been formulated to ensure that there is no duplication of work being carried out elsewhere. Work has been done both under the ROCS programme and the DFID funded project in Zambezia on contractor development. The training centre in Chimoio is providing courses in this area. In developing the contract administration procedures and the training for contractors, the project will make use of what has been developed and will also need to coordinate with ANE to ensure standardisation of procedures and systems.


24

In relation to the financial management of the project, several options were discussed at the project workshop in Pemba. The general feeling of the participants was that funds should be placed directly into the province. Subsequently a study has been carried out to propose a suitable financial mechanism for the project. Funds for the execution of rehabilitation and maintenance work will be channelled through the National Road Administration’s Road Fund to the provincial Road Fund. This is in accordance with standard procedures for funding in the road sector. Experience shows that the involvement of the stakeholders in the planning of rural road projects is a prerequisite for their success. This was reinforced at the Pemba workshop where the district administrators made a strong plea that they should be involved in the planning of the core tertiary network. The proposals made in the annex on road planning reflect this concern.


25

4. DESCRIPTION OF THE PROJECT 4.1 Introduction and Overall Approach By the end of the project it is expected that there will be capacity in the province to maintain a defined core network of tertiary roads relying on the private sector using labour based methods for implementation of the works. The tertiary road network of the province amounts to nearly 1500 km. Only a minority of these roads are in a maintainable condition. As can be seen from figure 2.5, some of the tertiary roads are scheduled for improvement under the World Bank and FRP projects. However as can be seen also from the figure this still leaves a considerable proportion of the network for which there are no planned improvements. In an ideal situation one would plan for the improvement of all the tertiary roads, provided of course that they met some basic criteria of utility, cost per person served, for instance. However this would be unrealistic. The size of the network to be maintained is conditioned by two principal factors. First is the level of maintenance funding that can be realistically expected to be available for the tertiary roads sector in Cabo Delgado. Second is the capacity of the province to be able to administer the network and improve and maintain the network. In the country as a whole there are some 14,000 km of tertiary road. Based on the figure of $180 per km, the government estimates that it is routinely maintaining about a quarter of this total. This a probably an over optimistic assessment, as the real cost of routine maintenance, which would become evident if routine maintenance was carried out by private contractors, is more like $500 per km. If all the tertiary roads in the province were put under routine maintenance this would require a budget of some $600,000. Periodic maintenance, in the form of regravelling would add another $1500 per km., based on a four year cycle. The total maintenance cost in Cabo Delgado would therefore be in the order of $2.85 million per annum. It is difficult to compare these estimates with the actual and planned expenditures for maintenance as maintenance funds are also used for the national roads and in any case the condition of most roads is so poor that periodic maintenance is often used for rehabilitation. The available budget for routine maintenance of tertiary roads in 1999 in the province was of the order of $200 - 300,000. It would of course be possible to define a programme of rehabilitation and maintenance based on a certain target of kilometres. The alternative however is to look at what is feasible in terms of the capacity of the private sector and the DEP, to implement maintenance and improvement. The present output of the FRP in Cabo Delgado is some 20-25 km of rehabilitation work per brigade per year. Experience from elsewhere would suggest that private contractors would, when fully operational, would be capable of producing something of the order of 25 km of gravel road per annum. Similar output levels could be expected for periodic maintenance works. On the assumption that it will be possible to identify at least 4 contractors capable of improvement works, this would suggest that over a 5 year period it would be possible to carry out a total of some 500 km of rehabilitation and periodic maintenance. On the other hand the number of kilometres that will be put under routine maintenance is related to the capacity of the contractors. From the figures available it is possible to suggest that there are some 300 km of tertiary roads presently in a condition to be routinely maintained. In addition a further 300 km will be rehabilitated under the World Bank project. On this basis it would be possible to think of a network of 1000 km of tertiary roads under maintenance by the end of the project. It should be emphasised however that these figures are not targets as such. They are provided merely to suggest what could be possible if the capacity of the province could be built up effectively.


26

Setting the Scene The first technical task for the project will be to carry out a condition inventory of all tertiary roads in the province in order to establish rehabilitation costs. Indeed, as this information is critical to the planning and programming of the first year of the project and will be a significant input into the planning process it is recommended that this inventory is carried out prior to the start of the project. A more detailed inventory will be carried out at a later stage in order to establish contract budgets. Preparing the inventory will involve the updating of existing survey and network data. Equally, it is necessary to carry out a socio-economic base line profile of the province. Not only will this provide the basis for future monitoring of the project but will be critical in the development of an effective planning process. Again this survey should be carried out before the start of the project. This survey will not be carried out in relation to individual roads but as a more general assessment of the conditions in the province. It will be coordinated with other studies into the socio-economic impact of road rehabilitation that ANE has commissioned. A similar socio-economic survey would be carried out at the end of the project as part of the final evaluation. Basic indicators will be monitored during the course of the project. This would allow changes which have occurred over the life of the project to be identified. Whilst it may be difficult to attribute such changes directly to the project, it will be possible to gain an overall picture of the developmental situation in the province. These surveys should be coordinated with ANE’s nation-wide socio-economic monitoring programme. 4.2 Approach to physical works The few contractors that do exist in the province have already expressed an interest in the project at the workshop in Pemba. Two have already been involved in the ROCS training programme and have some experience of routine maintenance. It would therefore be sensible to initiate routine maintenance works by contract in the first year. This could be done using the FRP routine maintenance projects implemented by the brigades from the ECMEP as training sites. The detailed training programme is presented in the annex. Road Routine Maintenance (km) Periodic Maintenance (km) EN 242 Montepuez-Balama 43 15 ER 509 Montepuez-Machoca 87 15 ER 509 Montepuez-Nairoto 38 0 ER 509 Nairoto-Mueda 125 0 ER 509 Mueda-Negomane 160 10 ER 530 Mueda-Xitaxi 41 0 ER 531 Mueda-Nangade 64 10 ER NC X ER 509-Mirate 13 10 ER 531 Mueda-Nangade 64 10

Table 4.1 Proposed FRP Maintenance Programme for 2000. The strategy of the project will be to put the tertiary roads currently in good or fair condition under maintenance in the first year in collaboration with the DEP. Table 4.1 shows the work programme of the FRP for 2000. One of these locations would be chosen as the training site for the contractors involved in the programme. On successful completion of their training and subject to their effectively providing tenders for the next stage of their development programme, they would each be contracted a stretch of road to routinely maintain. Equally in the first year it is intended to work with the ECMEP so as to use a rehabilitation site as a training site for the contractors. Detailed plans for work to be undertaken under the FRP during 2000 are now being


27

finalised. Liaison with the DEP, ECMEP and ANE will be necessary to identify suitable worksites to be used for training activities It will be necessary to plan how project funds could be used to finance work in 2001/2. Although it is anticipated that the labour-based brigades will continue within the ECMEPs, prior to the commencement of the NORAD project it should become clearer what their future will be. In the best scenario, the DET will be able to continue as a private contractor and be involved in the future implementation of the project, bidding for work on equal terms with the other contractors trained under the project. During 2000, the Regional ECMEPs will receive limited technical assistance that will support them in the development of business plans and improved commercial practices. The status of the DET in Cabo Delgado will need to be clarified in the light of the changes that will take place over the coming months, and within the framework of the ECMEP business plans. As discussed elsewhere, it would be unfortunate if the capacity developed in the DETs was wasted. However this implies that the DETs need to be developed into effective private sector organisations. A tentative output of physical works in kilometres is shown in Table 4.2. This plan was prepared in February 1999 as a part of the planning work that was undertaken for the preparation of preliminary documentation for the Estradas 3 programme. It represents an ideal scenario, limited by existing and planned contracting capacity, unconstrained by finance. Roads for which the project would provide funding are indicated together with those financed by the Road Fund. It should be noted that the values planned for 2000 at the time of preparation of this table have been superseded by the 2000 plan recently proposed by the province - Table 4.1. It is expected that contractors trained under the programme will work on both roads funded by NORAD as well as the Road Fund.

Table 4.2 Tentative Tertiary Road Programme - Cabo Delgado Item 2000 2001 2002 2003 2004 2005 Totals

Rehabilitation ( km ) Total 46 82 69 69 69 58 393NORAD - 60 69 69 69 58 325

GOM 46 22 - - - - 68

Periodic Maintenance Total 79 118 131 131 131 142 732( km ) NORAD 20 60 90 70 50 30 320

GOM 59 58 41 61 81 112 412

Routine Maintenance Total 847 893 975 1086 1155 1224 -( km/year ) NORAD 40 100 80 60 40 20 -

GOM 807 793 895 1026 1115 1204 -

Source: ANE - Estradas 3 preparatory study

28

Table 4.3 Road Fund Budgets: 1998 - 1999 Figures in 000 MT – 1 USD ~ 12,500 MT

Province 1998 1999

R Maint Tert. Rehab Total R Maint Tert. Rehab Total

Maputo 4,100,000 1,079,400 7,340,200 4,365,561 5,840,000 11,822,631

Gaza 4,200,000 1,370,800 7,633,700 4,356,567 12,280,000 18,170,667

Inhambane 7,500,000 1,754,100 11,040,200 8,456,844 10,080,000 20,468,229

Sofala 3,700,000 453,000 6,417,600 7,411,411 13,040,000 22,370,281

Manica 4,500,000 919,600 7,859,300 12,251,958 2,000,000 16,073,851

Tete 6,500,000 0 9,389,300 15,099,881 0 17,522,921

Zambezia 5,500,000 1,343,700 10,166,400 13,503,773 14,200,000 30,730,548

Nampula 6,000,000 1,734,800 11,264,600 9,802,627 12,630,000 25,376,471

Cabo Delgado 4,000,000 1,706,200 8,530,000 6,856,206 16,000,000 24,723,706

Niassa 4,000,000 1,638,400 7,511,700 2,977,564 13,600,000 18,150,508

TOTALS 50,000,000 12,000,000 87,153,000 85,082,391 99,760,000 205,409,811

R Maint Total budget for maintenance of Primary, Secondary and Tertiary Roads Tert Rehab Budget for Rehabilitation and Periodic Maintenance of Tertiary Roads Total Total provincial budget, including bridge maintenance and erection, repairs and DEP operating costs

29


30

4.3. Approach to Capacity Building Capacity building is at the core of this project. The objective is couched in terms of developing the provincial capacity to administer a maintainable network of roads. In the development of the road network, the project will be concerned with improving only roads that can be maintained in the future. The project is the means to developing the capacity, not a means to develop the network as such. When the project is completed its success will be measured not by how many roads it has improved but by the capacity that it leaves behind to administer the network. The approach to capacity building must therefore be based on a realistic assessment of the resources that will be available to the province after the project is completed. By this same argument it would be wrong to increase levels of staffing in the DEP in order to rehabilitate more kilometres of road. The level of staff in the DEP and the number of contractors trained must match the province’s ability to absorb the cost and provide work in the future. This being said it is clear that the present level of technical staff in the province is limited and it would be expected that this could be increased to bring the staffing levels in line with other provinces, such that they are sufficient to manage the expected network size. The technical assistance provided to the project should be limited to that which is necessary to develop the capacity of the province within the constraints of personnel and finances that it has. External inputs will be required to build the capacity in the province. These inputs should however be carefully chosen. The project is designed with a limited number of key personnel provided to develop the capacity. Some of this is international but it also includes inputs from local consultants who would provide basic training and provide specific inputs into road planning, contract administration and contract management. 4.4. Project Financing Funds for the project will come from three sources. In the first place there would be the funds provided by the province for the salaries and allowances of the national staff involved in the project, principally the DEP. Secondly funds from the Road Fund will be allocated for the routine and periodic maintenance of the tertiary roads. Finally funds would be provided by NORAD for rehabilitation, some maintenance, technical assistance and training costs and equipment. The allocation of funds from the Road Fund would be according to the standard criteria laid down by the Road Board and would go to the provincial Road Fund to be spent against approved annual plans. Examples of Road Fund budget allocations for all provinces are shown in Table 4.3. Projections from ANE of proposed allocations suggest that sufficient funds would be available for routine maintenance by the year 2001. However these figures have to be treated with some caution as they are predictions only. The funds from NORAD would have several components. The bulk however would go direct to the Road Fund for transmission to the province for training, surveys, rehabilitation and maintenance works. In addition there would be funds for equipment and for technical assistance. The bulk of the funds would be channelled through the National Road Fund to the Provincial Road Fund administered by the Provincial Department of Roads and Bridges on behalf of the Provincial Directorate of Public Works and Housing. The Provincial Director of Public Works and the Chefe of DEP are joint signatories of the account. The DPOPH would be responsible to NORAD for all expenditures made against this account. A local consultant would be hired through the project to audit the accounts. Funds for the purchase of equipment by the contractors would be deposited directly with Bank or Finance Company designated for the purpose. This would have the advantage that funds for rehabilitation and maintenance both from the Government and the project ( NORAD ) would be channelled through the same system. For ease of accounting, it is proposed


31

that funds from NORAD are deposited into special accounts, both at central and provincial levels. The standard ANE accounting procedures are used to operate such accounts. The use of such special accounts to segregate donor funding is a standard practice adopted to facilitate accounting. ANE will have an internal audit unit reporting to the Road Board, and will also appoint external auditors. NORAD had initial concerns that the payment of funds directly to the Road Fund would result in the bypassing of the Ministry of Planning and Finance, and the non-recording of funds in the Government budget. However, direct payment of credits and donor funds to ANE is the standard procedure for the Road Sector. The Road Fund has the responsibility for reporting on all income and expenditure in the sector. For example the World Bank funds for improvement and maintenance of roads are channelled directly into ANE accounts. In addition other donors such as DANIDA and Asdi also place their funds directly with ANE, the funds then being channelled to the Provincial Public Works Department. Perhaps most important however is the fact that the participants at the Workshop in Pemba strongly recommended that the funds be channelled directly to the DPOPH. ANE are of the opinion that funds should be disbursed to the DPOPH via the Road Fund, as this is the procedure which is lad own in the ANE enabling legislation and internal regulations. The proposed funding methodology is as follows. Annual expenditure plans would be prepared by the DEP based on the approved work plan for the province, showing ‘project’ and ‘non-project’ activities. This would indicate both the project funds and the road fund allocation, which would need to be accounted for separately. The proposed work plan and the annual financial plan would be submitted to ANE for incorporation into the overall budget, copied to NORAD and the PDPF for information. On receipt of a request from the Road Fund, and subject to their agreement to the plan, NORAD would place an advance of funds in the Road Fund special account. Disbursement to the provincial Road Fund would follow. Payments of contractors’ invoices would be made from the provincial account at the request of DEP, with authorisation by DPOPH. Every three months thereafter the DPOPH would submit to the Road Fund a justified statement of expenditure from the provincial fund over the previous three months, together with a statement of expected expenditure for the following six months, prepared with the assistance of the local consultant auditor. The National Road Fund would then check the accounts and authorise payment for the following period. The National Road Fund would submit requests to NORAD for further disbursement of funds based on satisfactory justification of the expenditure of 60 % of the previous payment. Payments made by the provincial Road Fund account are authorised only with the signatures of both the Provincial Director of DPOPH and the chief of DEP. The other major financial issue to be addressed is the question of equipment to be used by the contractors. One major incentive for contractors to participate in this type of project and to persevere through the training is that of eventually owning their own equipment. Also ownership of equipment leads to a much more responsible approach to mechanical maintenance and thus utilisation and availability levels are high. Relying upon equipment hire, even if it is a practical alternative, is generally discouraging and less productive as the contractor loses control over availability, performance and mechanical condition. There is little evidence that a 'plant-pool' system has operated successfully in the rural areas of developing countries. Projects trying to operate on a ‘shared plant’ arrangement also run into serious problems. Normally small contractors have difficulty in obtaining loans for the purchase of equipment as they have limited collateral. A finance scheme that allows contractors to gain access to equipment based on future expected workload is being prepared for use on the project. Various options of purchasing, leasing, loans and hire purchase are being investigated. Key criteria in the design of the scheme are sustainability and freedom of choice for contractors to choose the type of equipment which best suits their business needs.


32

Alternatively, the project may deposit funds with either a Bank or, if possible a credit finance organisation. Funds would be advanced to the contractor and the repayments would be deducted directly from his monthly payments and paid to the finance institution. These funds would be used by the project through the DEP as additional income for road improvement and maintenance. The project will adopt the most appropriate scheme. The equipment proposed for the contractors is based on current experience in Mozambique (and elsewhere) and is judged adequate to ensure good (and profitable) productivity at optimum equipment utilisation. The total capital commitment for new plant would be around USD 160,000 per contractor. This would comprise one pedestrian roller, one truck, two tractors and trailers, one pick-up, a water bowser, a set of hand tools, a motorcycle and two bicycles. This is considered a basic minimum for the contractor. The expected level of contracts awarded to the contractors would be sufficient for the repayment with interest in 3 years, but a 4 year period would give more flexibility if the workload is assured. Where equipment is available locally, hiring may be an alternative for additional items. Procurement of equipment would be the responsibility of the contractor although they would be supported by the project in this area. The contractors will be responsible for the maintenance of their own equipment. The availability of service agencies will be one of the factors to be taken into account in the selection of equipment. 4.5 Technical Issues Technology - The project will utilise the methods of labour based rehabilitation and maintenance developed by the FRP and already being used in the province. The FRP mid-term evaluation had some suggestions to make regarding the improvement of technical quality of the work being done by the FRP. These, and other current technical issues are: • the equipment presently used for hauling, tractors and trailers, may not be the most appropriate given

the long haul distances that apply in many parts of the country, including Cabo Delgado • the quality of material available for gravelling is often poor • a labour based technical manual needs to be developed to ensure that the quality expected is achieved The first issue is relevant to the design of this project, and will be addressed by giving the contractors the freedom of choice in deciding which items of equipment best suit their needs. The second issue is a problem common to many provinces in Mozambique. ANE is carrying out trials into the use of low cost bitumen emulsion surfacing materials that which may prove to be economic because of the savings in maintenance costs that they can bring when available materials are poor. TRL is planning two research projects that will study the life cycle costs and environmental impact of low-volume roads respectively. It is expected that ANE will collaborate with the programme. Funding for a total of two years of project activities, a total of 400,000USD, is included in the project budget to allow for this collaboration, although full project details are not yet available. Both of the projects are international, with research being carried out in various countries, managed by a joint venture between TRL, ILO - ASIST and Sweroad. Independently of the Cabo Delgado project, NORAD is contributing to the funding of the coordination of the projects, with other donors funding the activities in individual countries. The purpose of the first project, entitled ‘Performance criteria, engineering standards and life-cycle costs for low-volume and labour-based roads’ is to determine and set appropriate standards for very low-volume feeder, access and village roads and tracks. Outputs of the project include the establishment of deterioration relationships for low volume roads, the development of methodologies for life cycle costs determination, the development of appropriate engineering standards for different categories of tracks and roads in different environments and the establishment of methods for the monitoring compliance with these standards. The purpose of the second project is to establish environmental issues and procedures into rural road construction and maintenance practice. Outputs are, firstly a problem identification report which uses case studies to detail how rural road technology addresses the vulnerability of the natural environment, and


33

secondly a report which outlines institutional, documentation, training and other requirements necessary to establish means of limiting the environmental impact of rural roads. It is possible that the project may also be involved in the research work, but in any case the findings of the studies will be used by the Cabo Delgado project. NORAD is supporting SATCC in the development of uniform standards for roads throughout the SADC region. This project will take into account relevant aspects of these standards when defining the designs for roads to be rehabilitated. An extensive selection of training manuals has been prepared by the FRP and these will be used to train the contractors on the technical aspects of labour-based works. Road Standard - The feasibility report prepared by NorConsult discussed in some detail an approach to the development of the network that was concerned with providing basic access. They recommended three levels of a staged improvement of roads, the lowest level being opening up the road for access to four-wheel drive vehicles in the dry season only. This approach has some merit when one is dealing with limited funds being available and the development of the unclassified network. However the project will deal with the classified network and in particular the tertiary roads. These roads provide the mainstay of the transport system in the province. Most of the district centres, for example, rely on the tertiary roads to connect them to the main network. In addition the tertiary roads are vital for the evacuation of the cash crops which provide the major potential for the economic development of the province. It would be wrong therefore to treat these roads as simple feeder roads. They actually form the bulk of the required road network in the province. The use of spot improvement techniques which provide basic access are being adopted on a pilot basis in Zambezia by the DFID project. The methodology forms part of the strategy that is proposed for the tertiary network in the Estradas 3 programme. It is to be expected that some roads in Cabo Delgado will be identified as suitable for the use of these techniques. Within this framework there is still scope for ensuring that the funds allocated for improvement are spent effectively. Indeed the skill of effective management of limited funds to maximise the benefits to road users is a key capacity that must be created within the DEP. Some of the tertiary roads that are identified as being in poor or bad condition are not universally in need of wholesale improvement. In many cases the roads are difficult to traverse because of one or two bad spots or because of a broken culvert or small bridge. The improvement programme should be based on bringing the roads up to Class C standard. Nevertheless this does not mean that each road has to be improved from start to finish. The actual scope of the works on each selected road will depend on the detailed condition inventory that will identify the amount of work necessary to bring the road to the required standard. For this reason it is somewhat difficult at this stage to give a precise figure for the cost of improvement of each road. A range of figures do exist from ANE and in particular the FRP programme and from the DFID project in Zambezia and these have been used as indicative figures in the development of the project document. Also it is not yet possible to identify the full impact of commercial tendering on the costs of road rehabilitation. The variation of cost figures for rehabilitation reflects a variety of factors including the extent to which gravelling has been carried out, whether the roads have been fully rehabilitated or merely spot improved, whether all costs, including depreciation and supervision have been taken into account. Full gravelling in Zambezia by contractor on one particular road has resulted in cost of $18,000 per km. However the road carries heavy traffic and the soils are of poor quality, which resulted in increased costs. Conversely on other roads in the DFID project where gravelling is restricted to 50-60 % and spot improvement techniques are being adopted, the costs are in the order of $8,500 per km. Gravelling itself is estimated to cost between $2,500 and $5,000 per km, depending on the haul distance. The NorConsult report quotes figures for the FRP of $8,000 per km. for partial gravelling and $14,000 per km for full gravelling. Recent FRP reports suggest a


34

figure of $11,000 per km. For budgeting purposes a nominal figure of $13,500 per kilometre for rehabilitation works has been used, which is marginally lower than the long term value of $15,000 per km adopted in the planning of Estradas 3. 4.6 Road Maintenance The NORAD funded project will need to assist the province in the development of an effective maintenance strategy. To be able to take up this responsibility there will need to be a clear understanding of the manner in which road maintenance is to be planned and implemented. In general the approach should follow the flow chart shown below:

Define Core Road Network

Establish Condition Inventory of all roads in

network

Define maintenance costs for core roads

Establish maintenance on maintainable roads

Prioritise rehabilitation of unmaintainable roads

using appropriate selection criteria

Rehabilitate unmaintainable roads

Expand maintenance to include rehabilitated

roads

The proposed budget for routine maintenance, if it were actually used for routine maintenance, would be sufficient to cover a significant part of the network. However the allocation of the budget suffers from an unclear definition of the both the scope and method of maintenance. DER through the FRP is working with the provinces to improve capacity in the areas of definition and cost control of maintenance activities. Budget management is made more difficult by the fact that funds for maintenance from the Road Fund are not always made available on a timely basis. As maintenance is central to the objective of the proposed project, it is necessary to define the modalities of routine and periodic maintenance from the very beginning For routine maintenance in Mozambique, it has been shown the lengthworker system can be effective over the majority of the country. The system can operate either by individual contracts or by contracts through a contractor who would then supervise several lengthworkers. In Cabo Delgado, some problems have been encountered with the lengthworker system and maintenance activities have been reorganised using groupwork systems. The project team will need to examine the alternatives and guide the contractors in making a choice that suits their individual capacities and resources. In regard to maintenance by contract, it is much easier to set up these type of contracts now that the level of service contract for routine maintenance is being adopted. It will be necessary however to provide some further support to the DEP and contractors in the use of the contract. Modifications to the standard contract form may be necessary given the nature of tertiary roads.


35

4.7 Environmental Impact An environmental impact assessment of the project has been commissioned, and will be completed by the time of implementation of the project. The EIA requires the following actions to be taken: • Initial Reconnaissance of the road construction and maintenance programme outlined under the project • Identification of probable target roads to be rehabilitated under the project • Preparation of an Environmental Impact Statement and the identification of mitigation and monitoring

measures which may be necessary • Preparation of an EIA and monitoring procedure suitable for use by the DEP • Identification of likely impacts which require action by organisations which lie outside the road sector,

and the development of appropriate monitoring and mitigating procedures for them The environmental impacts that result from the project may be divided into two parts - those that are directly connected to the construction process, and those which result from the subsequent use of the road. Whilst the first of these types of impact can be addressed by actions on the part of DEP, the control of the subsequent use of the road and the surrounding land to which it gives access is a much wider issue, and lies outside the control of the DEP. The Environmental Impact Assessment will address this by producing two sets of environmental assessment and mitigation measures, one designed for implementation by the DEP within the scope of this project, and the other for use by organisations outside the road sector and outside the scope of this particular project. Environmental mitigation and monitoring procedures will thus be available for use by the project. In addition, ANE has produced guidelines on good environmental practice in road construction, and one inspector in each province is responsible for monitoring environmental impact of roadworks. 4.8 Technical Assistance The level and scope of technical assistance has to be commensurate with the objectives of the project. On the one hand the project will place a major strain on the capacity of the province. It will also be the first major programme that will be run through the provincial structure. This would speak for a significant level of technical assistance. On the other hand, the major emphasis is on capacity building. The objective of the technical assistance therefore is not to ensure large numbers of kilometres being improved but of developing the availability resources in the province so that they can administer a maintainable network. It has to be recognised that the existing capacity in the DEP is limited. In addition they are being asked to take on the responsibility for the administration of fully commercial contracts, something they have not done before. The technical assistance has been designed to support the DEP and the province. The tasks of the TA team will be to train the staff of the DEP and the contractors. In addition they will carry out those tasks which will allow the DEP to start developing their capacity. For example, contractor training has to be put in place, and in coordination with the DER of ANE, the contract administration systems, road planning procedures and proper monitoring and reporting systems all have to be developed. All these tasks will be part of the remit of the TA team. The composition of the TA has been established based on the belief that there is a significant amount of in country experience that can be used to support the province. In addition this would mean that the project would support the local consultant sector as well as local contractors. The TA team will probably need to provide some support and mentoring for these local consultants during the first years of the project. The focus of national policy is towards involvement of the private sector and this project aims to initiate the development of small-scale local contractors while simultaneously building capacity within the provinces to move to the management of contract works. This will demand new skills being acquired by both groups


36

since contractors can only survive by making profits and need to learn how to manage efficient construction in order to do so. For the Provincial staff the commercial world is one of legal contractual obligations: deadlines and work schedules and contractors looking for ways to maximise income and profit which may not always be compatible with proper construction standards. For contractors, labour-based construction can only be really profitable if well organised and managed in terms of labour input and productivity; and for inspectors generally a higher level of inspection is required than for equipment-based work. For contracts managers, labour-based contracts are usually smaller and more numerous than those using equipment and thus the administrative workload is increased. For these reasons technical assistance is required at a relatively concentrated level when contractor development projects are initiated since there is a large component of training involved. Technical assistance to this project can be summarised as follows, • to develop the capacity of the provincial government in the implementation of the road rehabilitation

and maintenance programme. • to train and develop local small-scale and petty contractors in road rehabilitation and maintenance using

labour based methods • development of planning, environmental, contractual, monitoring and reporting methodologies in

coordination with ANE that are compatible with those adopted nationwide • management of equipment procurement and local consultancies • to provide on-the-job training to provincial government staff on design, planning, contract management,

environmental monitoring and daily supervision of the road rehabilitation and maintenance works using labour-based methods and utilising private sector contractors.

• to ensure proper implementation of administrative and financial procedures to allow the labour-based

contractors to compete for and execute contracts effectively. The proposed level of TA is: • Team Leader: His/her job will be to organise and manage the support to the project. S/he should be a

senior rural road engineer, preferably with experience in Mozambique. • Training Adviser: S/he will be responsible for the training programmes covering the full range of

contractor and government staff. • Short Term International Consultants: For contract development, rural road planning, contract

administration, finance and management inputs • Local Consultants: Responsible for a range of tasks defined in the annex. 4.9 Training Training will be a key part of the development of the capacity of the province. Four areas can be identified where the TA team will provide training in collaboration with local institutions. • training of DEP and DPOPH in planning, road network management and contract management • training of the administrative staff of the province in effective financial and administrative management • training of contractors in both contract management and the use of labour based methods • technical training of engineers, technicians, supervisors and workgroup leaders from the contractors


37

The technical training of both the DEP staff and the contractors will be based on material already developed both in Mozambique and elsewhere and use will be made of the training courses developed at the Road Training Centre ( CFE ) in Chimoio. Training in planning and network management will be needed. Contract management is an area much ignored in the development of the move to commercialisation. Short term consultants will be required to develop the necessary materials. However it is envisaged that the courses will be arranged and run by local consultants with support from the international consultants. Training in finance and administration is perhaps the key to the effective running of the project. The project TA will guide local consultants in the development of the material and the running of the courses. Training has been provided to contractors in Zambezia and, on technical issues, at the CFE in Chimoio. Nevertheless it will be necessary to develop course material for this. Again this will be developed by short term consultants and provided by local consultants. Clearly, training that is provided must be coordinated with other activities that are ongoing or planned in the country. Under the FRP, on the job training is being provided to contractors. The Chimoio centre presently offers courses on labour-based methods. Consultants are also providing support to the DEPs on quality control and inspection. In addition the UNDP is providing support to the training of Provincial administrations in particular on planning and financial management. In developing the training programmes the TA team in collaboration with the province would need to ensure that proposed courses are integrated with the ongoing work, avoids duplication and benefits from collaboration with these efforts. In liaison with ANE’s training Division, the TA will be required to monitor the progress made in the transfer of technology and the resulting increases of the capacity of the DEP and contractors. 4.10 Project Cost The overall value of NORAD support for the project is budgeted at $10,254,115. This is distributed as shown in the tables below. A contribution from the Government of Mozambique of $7,416,510 is anticipated, part linked directly to the project and part to fund the general tertiary road maintenance and rehabilitation programme in the province. This level of funding is compatible with the 1999 Road Fund allocation for the province, with some $1.5M being budgeted for Tertiary Road rehabilitation and maintenance. Capital Costs The Capital Costs are of the physical rehabilitation and maintenance works and the costs of the equipment to be supplied to the contractors. They are summarised in Table 4.5. The capital costs for roadworks are based on planned production figures for the entire tertiary road output in the province in terms of routine and periodic maintenance and rehabilitation. This plan has been developed in the preparation of the initial Estradas 3 proposal. The periodic maintenance of roads previously rehabilitated in the province provides a substantial part of the workload. The figures have been divided into work to be funded by NORAD under the project and work funded by the Government of Mozambique through the Road Fund, as part of the tertiary road programme in the province. In the preparation of the budget, the following unit costs for works have been adopted: Activity Cost per km Rehabilitation $13,500 Periodic Maintenance $9,000 Routine Maintenance $500 per year


38

In the first year it has been assumed that the DET will be provided with project funds to rehabilitate and periodically maintain a total of 20 km . Routine maintenance funds provided by the project are intended to augment the road fund on a sliding scale over the life of the project. Equipment Funds for construction equipment are budgeted to permit the initial purchase of equipment in the early stages of the project. The procurement method that is most suitable will be defined as part of the result of the plant study that is being carried out. Local purchase direct from Mozambique-based suppliers may have the advantage of speed, although it will be relatively expensive. International tendering should produce lower prices, but will need to be coordinated and organised through the project or plant finance company, may result in long delivery times, and will be less sustainable. It has been assumed that 70 % of the initial cost of the equipment will return to the project in repayments from contractors. This income is offset against the capital costs funded by NORAD and GOM, being divided equally between the two parties. The equipment considered for budget purposes for the six contractors is shown in Table 4.4 below. Item CIF Cost Duties No. NORAD GOM Total

Ped Roller 8 300 400 12 99 600 4 800 104 400 6t Truck 41 000 12 300 6 246 000 73 800 319 800 Tractor 4x2 14 000 4 200 12 168 000 50 400 218 400 Trailer 4 000 1 200 12 48 000 14 400 62 400 Water Bowser 4 500 1 350 6 27 000 8 100 35 100 Pick-up 15 000 4 500 6 90 000 27 000 117 000 Motorcycle 2 700 2 025 6 16 200 12 150 28 350 Hand Tools 11 000 3 300 6 66 000 19 800 85 800

TOTALS 760 800 210 450 971 250 Table 4.4 Contractors’ Equipment - Costs in USD

Cabo Delgado Tertiary Road Project Table 4.5 Capital Costs Item Unit Cost Source

USD/km 2000 2001 2002 2003 2004 2005 Total

Rehabilitation * 13,500 NORAD - 810,000 931,500 931,500 931,500 783,000 4,387,500 GOM 621,000 297,000 - - - - 918,000Periodic Maintenance *

9,000 NORAD 180,000 540,000 810,000 630,000 450,000 270,000 2,880,000

GOM 531,000 522,000 369,000 549,000 729,000 1,008,000 3,708,000Routine Maintenance *

500 NORAD 20,000 50,000 40,000 30,000 20,000 10,000 170,000

GOM 403,500 396,500 447,500 513,000 557,500 602,000 2,920,000Equipment NORAD 456,480 304,320 - - - - 760,800 GOM 126,270 84,180 - - - - 210,450

Contingencies NORAD 40,000 50,000 40,000 - - - 130,000

Less: Equipment Hire

- 135,975 135,975 135,975 135,975 135,975 679,875

Totals NORAD 696,480 1,686,333 1,753,513 1,523,513 1,333,513 995,013 7,988,365 GOM 1,681,770 1,231,692 748,512 994,012 1,218,512 1,542,012 7,416,510 Total 2,378,250 2,918,025 2,502,025 2,517,525 2,552,025 2,537,025 15,404,875

* Based on production figures from Table 4.2

39

Cabo Delgado Tertiary Road Project Table 4.6 Non Capital Costs Item 2000 2001 2002 2003 2004 2005 TotalPersonnel

Team Leader Training Eng

Short Term Conslt Local Conslt

Total

m 6 4 4 5

75,000 40,000 59,600 40,000

214,600

m 12 12 4

10

150,000 120,000

59,600 80,000

409,600

m 12 8 -

10

150,000

80,000 -

80,000

310,000

m 6 - 2 4

75,000

- 29,800 32,000

136,800

m

2 2

- -

29,800 16,000

45,800

m - - 2 2

- -

29,800 16,000

45,800

450,000 240,000 208,600 264,000

1,162,600

Admin Support Duty Travel

2,000 5,000

3,000 12,000

3,000 10,000

2,000 6,000

1,000 1,000

1,000 1,000

12,000 35,000

In Service Training Social Issues

Study Tour

40,000 5,000

-

40,000 5,000

15,000

10,000 3,000

-

5,000 2,000

-

2,000 2,000

-

2,000 2,000

-

99,000 19,000 15,000

Local Procurement O&M costs

365,150 10,000

15,000 20,000

5,000 20,000

- 15,000

- 10,000

- 5,000

335,150 80,000

Review and Evaluation

4,500 7,000 10,000 7,000 7,000 12,500 48,000

Reporting Costs 3,000 2,000 2,000 1,000 1,000 1,000 10,000 TRL & ILO/ASIST

Studies 100,000 200,000 100,000 - - - 400,000

Total 749,250 728,600 473,000 174,800 69,800 70,300 2,265,750 Budget Summary - USD NORAD GOM Total Capital costs $7,988,365 7,416,510 15,404,875 Non Capital costs $2,265,750 - 2,265,750 Total 10,254,115 7,416,510 $17,670,625

40


41

Non-capital Costa Table 4.6 shows the non-capital costs and budget summary for the project. Long Term International Staff This will comprise of the Team Leader for a total period of 3 years and a Training Engineer for 2 years. This is the minimum that is considered necessary for the smooth execution of the project. It may indeed be necessary to extend these two positions depending on the recommendations of the scheduled review missions. Unit rates of $12,500 and $10,000 per month have been allowed for the Team Leader and Training Engineer respectively, to include all staff overhead costs but not including in-country travel. Short Term International Staff A total of 16 months of short term international inputs are scheduled over the 5 year period. This will cover such issues as contract administration, rural road planning, and small contractor development. In addition short term inputs have been added at the end of the project for follow up and support to the project in its later stages following withdrawal of the long term technical assistance team. A budget figure of $14,900 including in-country travel allowances has been used. Local Consultants It is felt that local consultants can provide a considerable amount of the support to the project. This will relate to much of the actual implementation of training, the assistance with the development of the finance and administration systems and the development of the road inventories and planning systems based on socio-economic surveys. A total of 31 months has been provided, costed at $8,000 per month including in-country travel. Administrative Support and Travel Costs Funds have been included for the provision of support staff to the TA team in terms of secretarial staff and drivers. In addition a sum has been included for the TA team and their counterparts in the province when on duty travel in the province In-Service Training A considerable sum has been set aside for this in line with emphasis of the project on capacity building. It will provide for daily allowances, courses at CFE, the running of workshops and the production of the training materials. Study Tour There are several programmes presently operational in the region where small contractors are being developed for use on labour based road works. It would be particularly useful for some of the DEP and DPOPH staff to visit one of these projects in order to see at first hand the problems encountered and results that have been achieved. Local Procurement The following equipment is expected to be required for the smooth running of the project. Allowance has been made for the operating needs of the DEP personnel as well as the technical assistance staff. The majority of this equipment will be purchased using local procurement to allow for a rapid improvement in the functionality of the DEP, and hence their active participation in the early stages of the project.


42

Item Unit Cost ($) Total ($) 6 desk-top personal computers with shared printers 4,550 27,3001 lap-top computer with printer 5,850 5,8508 4WD vehicles 29,800 238,40014 motorcycles 4,725 66,1502 photocopier 5,200 10,4008 sets of office tables, chairs and book shelves 520 4,1601 overhead projector 1,950 1,9501 typewriter 820 8204 radios 1,950 7,8001 video camera with TV and recorder 2,320 2,320TOTAL 365,150

Table 4.7 Equipment for the DEP Vehicles and motor-cycles have been included to allow the re-equipment of the DEP, as the lack of transport was found to be a major constraint on the satisfactory operation of the DEP in the province. Operation and Maintenance Costs The funds allocated here are for the operation and maintenance of the vehicles allocated to the TA staff and the general running costs of the office. Review and Evaluation Missions by independent reviewers and ILO/ASIST are included under this budget line. Reporting Costs Several reports need to be produced by the project in addition to the various contract documents and training materials. Demining Although mines have been discovered in Cabo Delgado, they have not had any significant impact on the FRP rehabilitation programme. Some provincial capacity exists for carrying out isolated demining operations. A budget figure has therefore not been included for demining. 4.10 Reporting, Monitoring and Evaluation Reporting - A Project Inception Report should be prepared by the Team Leader (in close collaboration with the Chief of DEP) not later than 3 months after the start of the project. This should set out in detail the Workplan suitably amended after an assessment of the realities of the project environment (eg resource availability, planning process). The Chefe de DEP should prepare quarterly project progress reports with the TA team contributing on their own specialist areas of responsibility (eg Training, Capacity Building). Project progress should be monitored against the logical framework and other suitable indicators. Monitoring - It is proposed that the ILO would provide a monitoring role on behalf of NORAD in this project. They would have no formal managerial status and would be hired directly by NORAD. The experience and knowledge from both Mozambique and elsewhere of the ILO in the field of labour-based


43

methods would be invaluable to the project. ILO would undertake monitoring field visits from the ILO/ASIST office in Harare. These are proposed at no greater than 6 monthly intervals. Reviews - Review Meetings would be held annually when project review and policy decisions would be taken. These would normally be immediately preceded by joint NORAD/ANE field visits to familiarise the parties with the up-to-date situation. An in depth review has been scheduled for the end of year 2, which will assess the project implementation strategy and make such adjustments as may be found necessary. Evaluation - An evaluation mission should be fielded a minimum 3 months before the end of the project to complete an in depth evaluation which also assesses the initial impact of the project and outlines a strategy for future developments. Clearly the LogFrame would be the basis of this evaluation. In addition an update of the socio-economic base line survey should be undertaken prior to the evaluation. A proposed evaluation plan is shown in the annex.


44

5. RISK ASSESSMENT The project is innovative in that it is one of the first in the roads sector to work through the provincial structures, to utilise and develop small contractors and to apply labour based methods. There are therefore many possibilities for problems to arise with the project. Some of these are listed below.

Nature of Risk Possible Solutions Effective road planning, design, implementation and monitoring systems are not developed

Work plan adapted to the speed of development of the DEP. Roles and functions of the TA clearly defined and targeted.

Financial procedures for payment of works ineffective

Financial procedures clearly defined. Fund disbursement from NORAD dependent on proper accounting

Contractors either not available or incompetent Rely on the DET for prolonged period, investigate alternative sources for private sector development

Difficulty in developing effective equipment loan procedures.

Provide effective guarantees to loan institution or Bank

Contractors default on loans due to irregular workload or payment of invoices

Guarantee work load over loan repayment period Apply penalty for non payment of invoices

Delay or non transfer of funds from Road Fund for maintenance

Funds for improvement works from NORAD should be dependent on transfers from Road Fund

Irregularities in financial management Accounts open to audit by NORAD’s representatives. NORAD able to limit flow of funds dependent on proper use of funds

Labour based technology not being effectively used

Terms of Reference for TA team clearly establish the qualifications of the personnel required Contractors required to use labour-based techniques

Contractors prices exceed acceptable levels In the initial stages have fixed unit rates Potential mine hazard Consultation with local authorities and population

on level of risk Take necessary precautions in areas of risk. Demine or bypass mined areas

Districts not fully involved in road planning and implementation

Planning process involves workshops at District levels. DAs part of the planning team

Contractors exploiting workers Clear instructions and clauses written into contract explaining penalties for non compliance

Because of the innovativeness of the project and the fact that the existing capacity of the province is limited, a level of Technical Assistance commensurate with the need has been provided in the document. Comparisons with other donor funded projects in the country suggest that the TA is by no means excessive. It is felt that this is the minimum requirement for the implementation of the project.


45

6. MANAGEMENT OF THE PROJECT The Provincial Directorate of Public Works and Housing is responsible for the maintenance of all roads in the province and for the improvement of all tertiary roads. The DPOPH delegates the responsibility for the roads sector to the DEP. The DEP in turn has a structure whereby it has regional offices in Mueda, Macomia and Montepuez. The Director, who is a qualified Engineer, and five technicians, staffs the DEP in Pemba. In the Regional offices the staff are all technicians. Each region has at least four technicians, although their grades are different, some being basic and others middle level technicians. The Provincial Department of Planning and Finance is the provincial body for overall planning and for financial management for all sectors other than roads. It is reasonably well staffed and has been provided with some training from external projects. The road budget is disbursed through the Road Fund, the provincial Fund receiving payments and reporting back to the central Fund. The Road Fund is used for the payment of road maintenance on all roads, and also the rehabilitation and periodic maintenance of tertiary roads. The DPOPH will be the executing agency for the project. Funds will be transferred to the province from the Road Fund as described in Section 4.4. The DPOPH will delegate the day to day running of the project to the DEP. The Technical Assistance Team Leader will report directly to the Director of the DPOPH. On a day to day basis he will advise the Chefe of DEP. The annual work plan and financial plan will be developed by the DEP with the assistance of the TA team. Both work funded by NORAD and other works will be included in the plan. It will be submitted to the Director of the DPOPH with the co-signatures of the Chefe of DEP and the Team Leader. In the first year the works will be carried out through contracts negotiated with the ECMEP/DET or other contractors. Routine maintenance contracts will be made with contractors according to the principals set out in the annex. These contracts will be made between the DEP and the contractors. The TA team, working with the DEP and taking into account the initiatives of DER to standardise contract documents nationally, will define the details of the contracts between DEP and the contractors. The DEP will set up a road planning system in the first year of the project based on the condition inventory carried out by local consultants and the planning procedures developed by the TA team. This process will involve the district staff, particularly in relation to local needs for access. This planning system will, of course be developed in collaboration with DER to ensure standardisation and lack of duplication. Also in the first year, the socio-economic baseline survey will be carried out by local consultants which will feed into the planning process. ANE through the Directorate of Regional Roads, DER, clearly has a role to play in this project, being the road authority of the country. They will be fully informed through progress reports of the project. The provincial representative of ANE will act as the main channel of communication between the project and DER, and will monitor progress on behalf of DER. However, given the innovative nature of the project it is expected that DER staff involved in tertiary roads from Maputo will visit the project on a regular basis. The technical assistance team will be hired through ANE. Given the nature of the project the inputs to the technical assistance needs to be flexible. For this reason, it is proposed that the team be hired through a consulting company. The selection of the consultants would be done through the normal ANE tendering procedures. However it is strongly recommended that the province, and particularly the DPOPH and DEP, is involved in the selection process. The TOR of the consultants should make it clear that local consultants will be involved to the level suggested in this document and for the tasks outlined in the annex. The project document does not envisage additional staff being assigned to the DEP for this project, except in cases where vacancies exist in the planned DEP staffing structure. This is because to increase the staff solely


46

for project implementation would not be sustainable. The project must develop at the speed at which the defined structure of the DEP can allow. Again the idea of the capacity building defining the output rather than the other way round.

7. LOGICAL FRAMEWORK ANALYSIS

Means of Action Indicators Means of Verification Assumptions Development Objective

Improved living conditions for the rural population through improved access to markets, health services and schools

Increased family sector agricultural production and household incomes Increased attendance at schools and health clinics Increase in traffic

Socio-economic baseline, mid-term review and end-of-project survey Traffic counts

Immediate Objective

To develop a sustainable, appropriate and cost-effective road management system at provincial level

Self-sustaining capacity to manage and execute tertiary roadworks in place and operating satisfactorily Sufficient rehabilitation and maint-enance activities continue at the end of the project

Through mid-term review and final project evaluations

Capacity can be developed with existing staff Contractors available and trained Sufficient funds from Road Fund transferred to the Province

Output 1 Training

1.1 DEP staff trained in selection, planning, design, implementation and management of contracts for road rehabilitation and maintenance by local small-scale contractors 1.2 DEP inspectors and contractors’ supervisory staff trained in the efficient planning, implementation, supervision and inspection of labour-based road rehabilitation and maintenance works carried out by the private sector

At least 4 senior / medium level technical staff trained At least 10 DEP inspectors trained At least 30 contractors’ staff trained Quality of executed work

Quarterly reports Quarterly reports Project monitoring missions

Sufficient staff provided to DEP Training courses made available Funds available for maintenance

Output 2 Maintenance

2.1 Routine and periodic maintenance programmes established and under implementation for the roads rehabilitated as well as previously rehabilitated tertiary roads in the province.

km maintained All previously rehabilitated tertiary roads under maintenance by e/o 2001

Quarterly reports

Sufficient funds from Road Fund transferred to the Province

Output 3 Rehabilitation

3.1 A core network of tertiary feeder roads rehabilitated and under regular maintenance by contract using labour-based methods.

km rehabilitated in accordance with implementation plan. Maintenance being carried out on rehabilitated roads

Quarterly reports

Road plans approved by Province and ANE Sufficient funds from Road Fund transferred to the Province Contractors perform satisfact-orily

47

Means of Action Indicators Means of Verification Assumptions Output 4 Capacity Building

4.1 A functional and effective tertiary road rehabilitation and maintenance management system in place, fully staffed at provincial and regional levels

Year-round access being provided to core tertiary road network at reducing cost as project progresses. All project tasks being performed by national staff by end of PY3

Road condition and costs monitored against implementation plan in quarterly reports Transfer of technology and training aspects of quarterly report

Potential staff available

Activity 1 Training

1.1 At least 4 DEP technicians receive on the job and some formal training 1.2 Approximately 10 DEP inspectors trained in supervision of labour-based contractors 1.3 Approximately 30 supervisory staff from the road rehabilitation contracting firms trained in the efficient planning, execution and management of labour-based road rehabilitation and for maintenance works

Skill levels increase 150 formal training weeks for inspectors and follow-up visits at monthly intervals 500 formal training weeks for contractors staff and follow-up visits at 2-weekly intervals

Transfer of technology / training aspects of quarterly report Quarterly reports

Potential staff available

Activity 2 + 3 Maintenance and Rehabilitation

2.1 An efficient system for contracts management tested and established within the DEP. This will include tender procedures, contract documents, payment procedures. 2.2 Six small-scale contracting firms developed to operate effectively as labour-based road construction & maintenance enterprises. 2.4 Six small-scale contractors equipped with a set of the hand tools and light equipment required for undertaking road rehabilitation and maintenance works, financed by private financial loan agreements

Workplans being implemented without significant delays Contractors paid on time 6 companies actively competing to win works contracts Sufficient equipment made available to contractors Loan agreements signed and being reimbursed

Quarterly reports Quarterly reports Quarterly reports Project monitoring missions

Contractors able to effectively implement contracts Effective supervision by DEP staff NORAD prepared to provide guarantees

48

Means of Action Indicators Means of Verification Assumptions Activity 4 Capacity Building

4.1 An effective monitoring and reporting system established complete from site level to headquarters describing up to date details on the performance of the contractors in terms of manpower, equipment and material inputs, productivity’s achieved and average cost per kilometre 4.2 A well documented system for identification and selection of potential contractors developed and established within the DEP 4.3 Road selection and priority ranking criteria introduced based on road condition inventories and collection of socio-economic data.

Detailed progress reports on costs, physical production, roads under maintenance being `produced Contractors classified and identified Established selection criteria being used Condition inventory up to date

Project progress reports DEP classification DEP records and information from district administrators

Data collected on the sites and transmitted in timely fashion to the DEP Contractors available Districts fully cooperate in selection process

49


50

7.1 Development Objective The condition of roads in Cabo Delgado, as in many other parts of the country, is a serious impediment to economic and social development. Roads alone do not produce development. However they do provide the opportunity for development. Without an effective road network in the province, other efforts to develop the local economy will be seriously impaired. The devastation of the years of conflict, the lack of effective maintenance and the limited capacity at the provincial level have all played their part in producing a situation where access of the population to economic and social services is very poor. This has major consequences for the local economy and for the social development of the population. From an economic point of view, the cash crops that are produced are difficult to evacuate and the cost of doing so is high. From a social point of view, the poor access of the population to education, health and administrative services has obvious effects in terms of school attendance and limited health services. The lack of effective connection to district centres results in a lack of administrative cohesion in the province. The development objective has therefore been defined as: Improved living conditions for the rural population through improved access to markets, health services and schools The development objective is couched in terms of the benefits which arise from improved access. Access to services provides the opportunity for development. 7.2 Immediate Objective The project however is focussed, within the context of access, on the provision of developing a sustainable core network of roads. The project is defined in terms of the province’s capability to maintain a core network of roads. The project will have an objective which reflects the necessity to set up effective planning, design, implementation and maintenance systems at the provincial and district levels to ensure a rehabilitated and maintained network. The immediate objective addresses the need for capacity development. It is: To develop a sustainable, appropriate and cost-effective road management system at provincial level This objective is ambitious. It follows directly from the assumption that the national policy of devolving responsibility to the provinces can be mirrored by the development of the capacity at the provincial level to accept this responsibility. The objective is ambitious on two counts. First, because the present capacity of the DEP is limited. A major effort of training and support will therefore be needed to develop the required capacity. Moreover it is the speed at which this capacity will be developed which will govern the rate at which road are rehabilitated and maintained and not vice versa. Second, is the issue of the change in approach that will be required of the DEP and the DPOPH. Under the centralised system that has applied heretofore, the DEP has responded to orders and instructions from the centre. In the decentralised system, the centre, in the form of ANE will still be there to provide programming and policy guidelines. However it is the province which will have to take on the proactive role of planning and implementing the works. In addition they will have to develop the capacity to deal with the private sector. 7.3 Project Outputs


51

Output 1 - Training 1.1 DEP staff will receive training in road planning based on socio-economic criteria; road

traffic levels; development needs and technical specs; and project design; contract preparation and management.

1.2 Site supervisory staff for both DEP and the contractors will be trained in site management;

administration; labour incentive schemes; work methods and technical aspects of road rehabilitation and maintenance. Approximately 10 inspectors from DEP and 30 supervisors from the contractors will be involved. Formal training for these staff will take place at CFE – Chimoio.

DEP counterpart engineers, technicians and inspectors will be trained together with the

contractors staff in overall management, administration and control procedures for labour-based roadworks.

Output 2 - Maintenance

2.1 DEP staff will be introduced to the routine and periodic maintenance management

procedures and be assisted in working out their practical implementation.

They will be assisted in preparing annual workplans and budgets and the preparation and management of contracts for maintenance

Maintenance of the majority of tertiary roads currently under a routine maintenance system

(by DET and others) will remain the responsibility of the Government. Roads rehabilitated under the project will be added after completion. By the end of the project it is expected that some 1,200 km of tertiary roads will be under routine maintenance. This total will be reviewed after the identification of the core tertiary road network. Over 700 km of periodic maintenance will be carried out, 320 km being funded by NORAD.

Contracts for routine maintenance for stretches of 20 km each are awarded to the 6

contractors

Similarly the more competent contractors are awarded periodic maintenance regravelling contracts of 20 - 30 km for a one year completion.

Output 3 - Rehabilitation

3.1 Road selection criteria will be produced. Based on the provincial road inventory and these

criteria, the core tertiary road network will be identified, and a prioritised list of roads for rehabilitation developed.

Under the initial training phase (training contract) approximately 25 km of rehabilitation

works will be completed in the province.

Negotiated contracts are subsequently awarded to 6 selected contractors through the DEP for approximately 25 km of roads each, for completion in one year,

Although a detailed implementation programme will be prepared at the start of the project, it

is expected that nearly 400 km of road will be rehabilitated during the course of the project, with 325 km of this funded by NORAD. Should it be decided to use spot-improvement techniques, this output could be greatly increased, although providing a reduced quality of access.


52

Output 4 - Capacity Building 4.1 A functional provincial road management organisation is seen as a key to the maintenance of

a sustainable tertiary road system in the province. This will be created through the institutional strengthening of the DEP offices both in the provincial capital, Pemba and the regional offices of Montpuez, Mueda and Mocima. This will involve an expansion of the existing functions of the DEP, so that it has the capacity to provide good value for money using commercial, competitively tendered procurement methods.

Activity 1 - Training

The Training Adviser will be responsible for the overall management of the training

programmes (which are set out in the annex) and he/she will work in close collaboration with the Training Division of ANE and his counterpart in the DEP.

1.1 The Chefe of DEP and Regional Engineers will receive on-the-job and some formal training

to develop road network and contract management capacities. The project technical assistance team will carry out the training with support from external consultants, based on training needs assessments. Formal training on individual technical issues will be provided if identified as necessary.

1.2 DEP supervisory staff based in the field will receive training in the supervision of labour-

based contractors performing maintenance and rehabilitation operations. Basic technical issues, together with topics relating to the specifics of contract supervision will be covered.

Training will be based on existing labour-based training manuals and new course material

which is being developed by the FRP for the training of inspectors. 1.3 Contractors will be trained in business management (book-keeping; budgeting; cost control;

cashflow planning; material purchase; personnel and labour management; banking; labour regulations) and contract management (bidding and tendering; estimating; contract documents; variations; claims; payment procedures). A part of this training material exists, but it will be necessary to develop new material based on the contracts and procedures to be adopted in Cabo Delgado.

Supervisors employed by the contractors will be trained at CFE using the extensive range of

course material that is used by CFE in Chimoio. Activity 2 & 3 – Maintenance and Rehabilitation 2.1 DEP staff are assisted in carrying out road condition surveys, traffic counts and engineering

assessments and advised on the selection and prioritisation of roads for the establishment of a provincial plan for tertiary roads.

DEP staff will prepare contracts for rehabilitation and maintenance to be awarded,

dependent upon available funding. Contract documentation and management procedures already under development by ANE

and the DFID project will be tested and established within the DEP, for both rehabilitation and maintenance.

DEP staff will be assisted in the initial implementation of the financial management and

control of the contracts.


53

The TA team assists the DEP in the progressive increase of contracts for routine

maintenance works to eventually cover 1200 km of tertiary roads 2.2 The TA team will assist in the choice of 6 small-scale contractors for participation in the

rehabilitation training programmes.

The TA team will assist in assessing the tools and equipment needs of each chosen contractor, agree with all parties concerned the overall procurement requirements, and initiate the procurement process.

2.3 Upon the successful completion of training, 6 contractors will negotiate loan agreements for

the appropriate items of equipment and tools required to establish each one for road rehabilitation contracts.

Activity 4 - Capacity Building

4.1 DEP staff will be assisted in the overall management and planning process through the

introduction of a monitoring and reporting system. This will cover physical progress; labour employment; contractor performance; road condition surveys; traffic counts, work productivities and costing.

Based on projected workloads for the DEP, levels of staffing will be confirmed for the

provincial and regional offices of the DEP. Existing skill levels will be assessed, and technology transfer plans produced for individual staff members based upon these results.

The performance of the DEP as an institution will be monitored. Team–building or other

exercises will be introduced as required. 4.2 Based on the initial experience of the contractor selection procedure through public

awareness meetings; detailed questionnaires to interested companies; technical and financial assessment and subsequent performance, a documented procedure will be established

Project staff will feedback the experience to ANE for consideration. 4.3 Together with DEP staff and in consultation with ANE, criteria will be prepared for the

prioritisation of roads to be rehabilitated. The criteria will be based on socio-economic indicators and will take into account estimated construction costs.

Provincial staff will be trained in the regular use of these criteria, as a first stage in the road

management process.


54

8.0 PROJECT IMPLEMENTATION One of the first tasks of the TA Team and DEP will be to develop a detailed implementation programme as part of the Project Inception Report. A preliminary implementation programme is included as a guide as to what activities can be can be expected. 8.1 Mobilisation and Preparation

Prior to the commencement of field operations the TA team will assist the DEP in the preparation activities

i) Brief the Project Personnel on their duties and responsibilities within the project and

give any further specialist training if necessary.

ii) Procurement of equipment for DEP and TA Team iii) Prepare a detailed Workplan for the first full project year comprising:-

- A first year ( 2001 ) road rehabilitation and maintenance programme, based on a

priority list of roads and detailed road condition surveys. This initial selection will be made on technical and training needs criteria and socio-economic considerations

- DEP capacity building

iii) Initiate contractor identification iv) Confirm procedures for plant finance scheme v) Preparation of Project Inception Report, to include 5 year implementation

programme vi) Training needs assessment for contractors and DEP/DPOPH vii) Socio-economic baseline study

8.2 Initial Implementation

i) Identify initial group of contractors ii) Initiate plant procurement iii) Start training of contractors in routine and periodic maintenance activities on training

site / under training contract iv) Training of DEP personnel in preparation of road inventories and measurement of

works for tender documents v) Preparation of standard contract documents and tendering procedures vi) Identification of core tertiary road network


55

vii) Training of contractors’ staff in rehabilitation works viii) Initiate identification of further contractors, if necessary ix) Direct award of first contracts

8.3 Project Activities i) Prioritisation of rehabilitation and maintenance activities ii) Capacity building in reporting, monitoring and supervision iii) Socio-economic monitoring of project iv) Business training for contractors v) Initiate award of contracts by tendering vi) On the job training for contractors and DEP staff vii) Implementation of environmental guidelines viii) Monitoring of training ‘gaps’ ix) Budgeting and long-term planning for DEP staff


56

9. KEY ISSUES OF THE PROJECT The table below summarises the key issues to be addressed by the project. MAJOR ISSUES ASPECTS TO BE CONSIDERED Planning • plans for tertiary road rehabilitation in the province

• procedures for the definition of a core tertiary road network taking into account the potential level of maintenance funding, the linkage of district centres, the areas of agricultural production, the provision of social services and the level of access of the population to transport services

• existing planning procedures and whether these effectively and efficiently reflect the actual transport demand

• what resources and inputs would be required to develop an effective road planning system

Finance • an assessment of the existing finances available to the province for both

road improvement and maintenance from central government, principally the Road Fund, and from local resources

• an evaluation of the financial procedures presently used for road improvement and maintenance

• a definition of what improvement could be made to ensure the more effective flow of funds for road improvement and maintenance

Private Sector • the existing capacity of the private sector in the province

• lessons from previous and ongoing attempts to develop the private sector both in the province (ROCS) and elsewhere (Zambezia)

• training required to develop private contractors into effective road improvement and maintenance contractors

• the capacity of the DEP to administer and supervise contracts and the training required to develop that capacity

• existing contract procedures for road works and their appropriateness • equipment requirements for the contractors and modalities of hiring,

leasing or purchasing • the harmonisation of the inputs of the project with those of other projects

(e.g. Estradas 3)

Technical Issues • the definition of the levels of access to be provided in relation to potential traffic levels and distribution

• the use of labour based methods • the value and cost of spot improvements as against complete rehabilitation • avoidance of damaging environmental impacts • the importance of routine maintenance, level of service contracts and

definition of activities • the application of improved condition inventories and the regular updating

of the road database • Potential for the use of low-cost surfacing materials


57

Rehabilitation • assessment of the existing state of the network, the achievements

of rehabilitation work in the province under the FRP, IDA and other programmes

• realistic assessment of the annual output of rehabilitation works • definition of a 5 year indicative programme of rehabilitation

works taking into account the issues raised under Road Planning • Prioritisation of roads for rehabilitation and spot improvement

interventions

Maintenance • establishment of a road maintenance strategy • definition of the problems and deficiencies in the existing road

maintenance programme • development of a road maintenance financial requirement • the definition of procedures for routine and periodic

maintenance • development of cost-effective tertiary road maintenance

management systems

Organisation • assess the existing capacity of the DEP, Obras Publicas and the Finance and Planning Department in relation to the planning, financing, supervision and monitoring of road rehabilitation and maintenance works

• define the key constraints • assess the potential for the involvement of the District

Administrations, NGOs, Road Associations and private organisations in the tertiary road sector

• the role of ANE in the tertiary road network in the province and in the implementation of the project

Training • assess the need for training at all levels for the development of

an effective road maintenance and rehabilitation capacity • assess the scope and content of a contractor training programme • identify the potential providers of training

Evaluation and Monitoring • identify the scope and content of a socio-economic baseline and end-of-project surveys

• monitor the project resources required and used • make provision for the setting up of a benefit monitoring system • adjust programme to suit progress and actual conditions


1-1

ANNEXES. 1. Contractor and Contract Management Training 2. Methodology for Prioritisation of Road Improvement Works 3. Evaluation Plan 4. Job Descriptions for International Staff, major tasks of local consultants


A 1 - 1

Annex 1 Contractor and Contract Management Training 1 Training Needs

The first training related activity will be to carry out a survey of contractors available in the province. During interviews with the contractors, their exact size and experience as well as formal training background of their staff can be identified. The detailed content and extent of a training programme should therefore only be finalised once the final screening and selection of the contracting firms have been carried out. However, at this stage it is possible to identify the main topics which need to be included in a training programme (see Tables A1.1 and A2.2).

2 Training Programme

The training will concentrate on skills development specially required for the planning, execution and supervision of the envisaged road rehabilitation and maintenance works carried out by the small-scale contractors. Training will include both DEP staff and personnel from the contracting firms ranging from general management to plant operators, mechanics, store keepers and site supervisory staff.

The objectives of the training programme are to:

Λ Establish a cadre of domestic small-scale contractors capable of undertaking road

rehabilitation and maintenance works using labour-based methods. This implies that the firms are fully conversant with the technology, contract management, business administration and supervision of labour, machines and materials;

Λ Create a capacity within DEP to plan, manage and supervise road works carried out by

private contractors using labour-based methods;

Λ Establish a local capacity for training government and private sector staff in the use of labour-based rural infrastructure rehabilitation and maintenance technology.

3 Strategy

In order to achieve the above objectives training will be provided to: • Provincial government department, in particular the DEP and DPOPH, staff including Engineers,

Planners, Technicians, Supervisors and contracts administration staff • Contractors' staff from managers, supervisors, clerks, mechanics to plant operators, and • Representatives of the local communities, policy makers, planners and administrators.

The training for the various categories of staff needs to be carried out with varying durations and through different approaches such as on-site and classroom training, workshops, seminars and study tours.


A 1 - 2

4 Methodology

On-the-Job Training

It has been proved over the years in a number of countries that on-the-job training is the most effective tool for training most categories of government and private sector staff. This approach will also be used during this training programme and the training of technical staff will therefore be carried out through demonstration and practice at training sites. This approach can be used for managers, engineers, inspectors, supervisors, foremen and machine operators with the on-site training being supported by classroom components tailored for the various categories of staff.

A training/demonstration site will be fully equipped with the same type of hand tools and light equipment with which the contractors will be provided once they have successfully completed the training course. Two sets of equipment for this purpose should be made available to provide two training construction units for the intended 6 contractors. This could either be provided by the project or through discussions with the FRP from the equipment provided by the DET.

Formal Training

Provision has been made for the training of the contractors’ supervisors and inspectors at CFE in Chimoio, taking advantage of suitable courses which are offered there. Alternatively, this training could be carried out by project personnel on the training site to be established in Cabo Delgado. The final choice of venue and methodology for this training will be influenced by the project’s needs, CFE course programming and practical constraints: a combination of the two types of training may prove to be the most suitable solution. Short Courses

Intensive refresher courses for periods of one to two weeks will be organised to supplement on-the-job training for some of the technical staff. It will also include independent courses for other staff categories such as storekeepers, accountants, pay clerks and administrative officers.

Seminars Seminars will be organised as a means of disseminating data and information, in particular to senior government officials at central and provincial level, as well as representatives for other government agencies, donors and the private sector. Thus, seminars will be a useful platform for policy makers, planners and administrators to review the implications of using labour-based methods and to enhance the domestic private sector participation in road rehabilitation and maintenance works. Project results may also have implications for other parts of the road network as well as other sectors.

Study Tours

Visits to similar but more advanced programmes in other countries can be very stimulating and inspiring for managers, engineers and trainers. It is therefore proposed to organise study trips to the ongoing feeder roads construction and maintenance programmes in Africa where domestic contractors have been trained in the use of labour-based methods (e.g. Lesotho and Tanzania).

International Courses

To strengthen the capacity as well as to motivate the Provincial Engineers and Technicians, it is recommended that selected staff are sent for further training in the management of labour-based road construction and maintenance at the Kisii Training School in Kenya. These courses, organised and supported by ILO, and the Swiss Development Corporation in collaboration with the Ministry of


A 1 - 3

Public Works in Kenya, are aimed at improving the efficiency of the management of labour-based road projects introducing the participants to latest information and techniques for the effective use of labour and other local resources drawing upon the experience from ongoing projects worldwide.

5 Curricula

The training package will consist of the following four major elements:

- Labour-based road construction and maintenance technology for contractors and DEP staff, - Tertiary road management and management of labour-based road construction and

maintenance contracts for DEP staff, - Business and contract management for contractors, and - Operation and maintenance of mechanical equipment.

The training courses will be based on existing literature already developed by the programme but adjusted to the specific needs related to the private sector involvement. In addition, the training programme will benefit from training materials developed under similar contractor development programmes in other countries (e.g. Lesotho, Tanzania, Ghana and Uganda). The Technical Enquiry Service of ILO/ASIST in Nairobi, Kenya will be able to provide literature developed by these programmes. In addition, the courses will be coordinated with the Chimoio training centre and with the ROCS project.

(i) Labour-based Road Technology

This topic will constitute the major part of the training programme. Although the contractors may recruit some of their site supervisory staff from government, their managers, technicians and possibly some additional supervisors, who may be required, will through this training receive their first introduction to labour-based road technology. DEP inspectors will also participate in the technical aspects of the course in order to gain a thorough understanding of labour-based techniques. The curricula for contractors who will be engaged in labour-based road rehabilitation works should cover the subjects as outlined in the Table A1.1.


A 1 - 4

Subject

Contents Trainees

Planning

how a labour-based project is planned at different levels, discusses the planning responsibilities of the various levels of staff, work plans, organising site camps, planning of tools and equipment, and he hiring and organisation of casual labour t

Contractor Managers, Technicians and Supervisors, Provincial Engineers and Site Inspectors

Reporting and Control

administrative control of a work site, production control and quality control

Contractor Engineers, Technicians and Supervisors, Provincial Engineers and Site nspectors I

Work Organisation

sequence of labour-based work activities, gang balancing, instruction and motivation of labourers

Contractor Engineers, Technicians and Supervisors and Site Inspectors

Tools and Equipment

selecting appropriate tools and equipment, how it is handled, its use and maintenance and the role of the store-keeper

Contractor Engineers, Technicians and Supervisors, Plant Operators, Storekeepers Provincial Engineers and nspectors I

Survey and Setting Out

setting out horizontal and vertical alignments, cross sections, curves and how to use various setting out equipment such as profile boards, templates, string line levels etc.

Contractor Engineers, Technicians and Supervisors, Provincial Engineers and Inspectors

Clearing

clearing the alignment of vegetation and boulders

Contractor Engineers, Technicians and Supervisors Provincial Engineers and nspectors I

Drainage

the vital importance of a well functioning drainage, how to construct side and mitre drains, camber, catchwater drains, scour checks, and culverts

Contractor Engineers, Technicians and Supervisors, Provincial Engineers and nspectors I

Earthworks

how to measure and estimate earth works done by labour, the organisation of excavation, levelling, hauling, loading, unloading, filling and spreading, compaction and erosion control


Compaction

presents simple soil mechanics, optimum moisture content, indirect compaction, direct compaction and the use of hand rammers, deadweight and vibrating compaction

Contractor Engineers, Technicians and Supervisors, Provincial Engineers and nspectors I

Gravelling

how to organise gravelling operations, and testing of gravel quality


Maintenance

the organisation and implementation of the various activities on labour-based routine, periodic and emergency road maintenance, and the required tools and equipment


Structures

construction and maintenance of small bridges, drifts, causeways, culverts and box culverts


Table A1.1 Labour-based Road Technology


A 1 - 5

(ii) Tertiary Road Management and Management of Labour-based Contracts

The DEP staff will need training in tertiary road network management skills, work definition and the tendering process. It is important to recognise the difference in function between the site inspectors and the contractors’ supervisors. The checking of the quantities and quality of work, certification of payment certificates and the monitoring of the progress of the contract require skills which are significantly different from those needed by contractors, staff. This training component should be offered to the various cadres of staff as outlined in Table A2.2.

Subject

Contents

Trainees

Tertiary Road Management

road selection methods, inventories and condition surveys, prioritisation of works

Provincial Engineers

Contract Management

preparation of tender documents, unit rates, tender evaluation, contract negotiation, contract variations, evaluating claims, payments, monitoring and reporting on progress

Provincial Engineers and Inspectors

Contract Supervision

contract conditions, work inspection, certification of work, communications with the contractor, contract variations and claims, payments, contract administration

DEP staff and DPOPH administrative staff.

Table A2.2 Road and Contract Management (iii) Business and Contracts Management

It is proposed that the contracting firms are offered short-courses in essential aspects of management such as pricing and bidding, site operations, book-keeping, accounting, marketing, office work and planning. This training component should be offered to the various cadres of staff as outlined in Table A2.3.

Subject

Contents

Trainees

Business Management

bookkeeping, profits, budgeting, cost control, cash flow planning, material and equipment purchase, personnel management, banking, taxes, labour regulations

Contractor Managers and clerks

Contract Management

bidding and submission, unit rates, estimating, tender preparation, contract documents, contract variations, claims, payments, monitoring of costs and progress

Contractor Managers, Technicians and clerks

Table A2.3 Business and Contracts Management (iv) Operation and Maintenance of Equipment

Through loan arrangements the contractors will be supplied with light construction equipment and tools to a maximum value of US$ 160,000. In order to ensure that the equipment is well maintained, the programme should provide the mechanics and operators with proper training in preventive maintenance and correct use of the equipment, and the managers with instruction in efficient equipment utilisation and economics.


A 1 - 6

6 Training Site

The training will be executed through a combination of classroom and on-site training. For this purpose, the project will establish a classroom in the province based in one of the Regional DEP offices and a demonstration site in close proximity.

The classroom will need sufficient capacity for 20 trainees, and will be fully equipped with training aids such as overhead projectors, slide projectors, video equipment, training manuals, flip charts, black boards, etc. For the development and production of training materials the project will need a personal computer with good printing facilities and a photocopier.

The demonstration site will be fully equipped with the same type of hand tools and light equipment with which the contractors will be provided once they have

7 Instructors

In order to achieve a sustainable programme, it is crucial that the training capacity for this type of programme is fully institutionalised in the country. To achieve this objective, there is a demand for a structured plan for the involvement of local consultants.

From the onset of training, local consultants must be attached to the training site. They should be trained by the international staff to take over gradually responsibility for the training from the project training specialists, and cater for a future expansion of the labour-based road technology. This will ensure that, once the training material and the first training course has been conducted, it should be possible for local consultants to take the lead in conducting further courses.

The demonstration site will require instructors fully conversant with all aspects of site activities, and it is therefore proposed that local consultants are recruited for the training.

The business management training should be carried out together with a local consultant with capacity in this field. Possible collaborators in this field should as soon as possible be identified so that a programme can be prepared before training commences.

8 Training Material

For the training and development of petty and small-scale contractors, there already exists a certain amount of training material produced by the FRP and the DFID project. This training material consists of (i) general literature on labour-based road construction and maintenance technology developed by the ILO, and (ii) project specific material developed for contractor development and management.

In addition, the ILO has produced a series of publications on contractor development and management for the construction industry in general under its Improve Your Construction Business Programme (IYCB). This material is relevant, however, it was originally developed for the building construction industry and therefore needs to be modified before it can be used in a training programme for labour-based road sector programmes.


A 1 - 7

Table A3.3 provides a brief overview of some materials currently available to the project.

Mozambique ILO Cambodia Lesotho Botswana Uganda Kenya

• Training Course for Supervisors in Labour-based Road Rehabilitation • Maintenance Manual • Training Course for Technicians and Foremen • Manual on Construction Economics for Contractors • Manual on Construction Planning • Manuals on Culvert Design and Construction • Training Material in Gender Issues • Guide to the Training of Supervisors • International Course for Engineers and Managers of Labour-based Road Construction and

Maintenance Programmes • Introductory Training Course for Labour-based Road Construction for Engineers and

Technicians • Introductory Training Course in Labour-based Works Management for Engineers and

Technicians • Introductory Training Course in Labour-based Works Project Planning for Labour-based

Contractors • Rural Feeder Road Maintenance Using Labour-based Technology, Short Training Course • Preventive Maintenance for Labour-based Vehicles and Equipment and Safety Guidelines

for Operators and Drivers • Training Videos for Labour-based Road Construction and Maintenance Supervisors • LCU training material • Training Course Notes for Gangleaders • Training Course Notes for Technical Assistants • Labour-based Contract Maintenance Programme, Orientation Course for district

Engineers • Course notes for inspectors and overseers • Maintenance Management Manual

IYCB

• Interactive Contractor Training • Improve Your Construction Business • Material currently being developed for Lesotho

Table A3.3 Available Technical and Managerial Training Material

Required Training Material Yet to be Developed

Training material for DEP inspectors is currently being prepared. When commencing the project, the above mentioned Mozambique-specific literature needs to be evaluated, and any missing areas filled by adapting other available training material, taking into consideration local conditions, technical standards and type of works to be carried out. It should also be carefully adapted to the level of education among the target group, in relation to the skills of the staff of the contractors, as well as the government implementing agency, i.e., supervisors, inspectors, mechanics, administrative staff, etc. Finally, whilst some material already exists in Portuguese, it will be necessary to translate a significant amount of material into Portuguese.


A 1 - 8

9 Training Programme

Pre-training Phase

It is vital for the success of the training programme that the participants know what will be required of them and what they can expect to gain. This is particularly important in the case of the contractors who during the training period must make key staff available for up to three months. During this period, it is expected that the contracting firms will provide for their staff in terms of costs for accommodation, training materials and allowances. Trainees should also be paid for the duties they perform on site. In addition, these firms may be engaged in other contract work in parallel, therefore, they must be provided with a precise timetable for the training so that they can programme other work accordingly.

This will be arranged by inviting the participating government staff and the contractors to a seminar in advance of starting the training activities. The seminar will explain the strategy and action plan for developing the government's capacity to plan effectively and control gravel road rehabilitation and maintenance works which will be carried out by small-scale contractors using labour-based/light equipment-supported methods.

The complete training package for the contracting firms can be described in three phases:

Phase 1: Demonstration Phase

The government with technical assistance from the ILO has during the last three years established the efficient use of labour-based methods to rehabilitate and maintain gravel roads. During the initial phase this capacity will be transferred in a structured manner to the contracting firms through a training programme provided to all cadres of staff involved in the programme.

During the demonstration phase the DEP will still be in charge of the road works, and a training site will be established for on-the-job teaching purposes where the contractor's staff and DET Inspectors are seconded to the various operations under close guidance of DEP staff and technical assistance staff acting as instructors.

Phase 2: First Trial Contract

After the demonstration phase, the contractors will be given a fixed rate trial contract for routine or periodic maintenance of a maximum of 20 km. of road which will be executed under close guidance of a project training adviser and local instructors. At this stage, the responsibility for the work sites is transferred to the contractors, however, in a safe environment where the instructors still closely monitor and advice the contractors, thereby avoiding errors and sub-standard works at an early stage. The second trail contract, to be given as soon as the routine maintenance contracts are working effectively, will consist of approximately 10 km of road rehabilitation works. Ideally, it would be preferable to award trial contracts to all contractors simultaneously, after successful completion of the demonstration phase thereby maintaining the momentum gained during the initial training. However, due to the demand for intense supervision and support during the initial stage of the first trial contract (site organising, establishing proper logistics procedures, etc), it is recommended that the contracting firms are split into two groups, one group on routine maintenance, one on rehabilitation, and contracts awarded to each group. Practically, this could be done by first starting the routine maintenance contracts and then initiating the rehabilitation contracts. This will enable the project staff to concentrate the area of operation


A 1 - 9

during the initial phase of the trial contracts avoiding lengthy travel distances for site inspectors/instructors.

Phase 3: Second Trial Contract

When the contractors have successfully completed their first trial contract, they are awarded negotiated contracts of 15-20 km road rehabilitation. This is the final show-piece for the contractors. During this phase, the contracting firms will not have access to the close technical support given by the project during the first trial contract, and the government will act in the normal manner as the Client (DPOPH) and Engineer (DEP).

The time schedule for the above training and development programme will depend on the capacity and performance of each of the contractors. However, it is expected that the first trial contract can be completed in 4 to 5 months and that the second trial rehabilitation contract will require a period of one year.

10 Training Methods

Six training methods, described as following, are recommended for the programme:

Β subject learning (in classroom) Β project work (in classroom) Β action learning (in classroom) Β demonstrations (in classroom or on-site) Β on-site application Β review sessions (in classroom or on-site)

Subject Learning

This means learning the substance of a topic and its general applications. Exactly which method is most suitable will vary from topic to topic. Parts of some topics will be best conveyed by lecturing and illustrating on the blackboard. For others, the optimal method may be for the participants to study and discuss the theory in groups before going on to solving subject-related exercises. This approach makes the maximum use of the participants' previous experience. Exercises and plenary discussions should be used to reinforce the learning. For the keeping of records and reporting, "in-basket" 2 exercises should be considered. Human relations could be learned effectively through role plays. Project Work

This involves utilising the participants' knowledge acquired in subject learning in developing the management system for the test-site. Project work will be particularly suited to those topics related to the planning and organisation of the work on-site. For example, following subject learning for planning where they learn the application of the planning principles for labour-based road construction, the participants would prepare a plan for a section of their test road - labour allocation, materials scheduling, equipment scheduling and expected expenditure. When doing the project work, they should receive support from the instructors. The outcome of the project work, for example a detailed work programme, will then be implemented on the test-site. In this way, the participants are able to put into immediate practice what they learn and experience the effects of it during implementation.

2 "In-basket" exercises are simulations of the situation in an office where the trainees respond to incoming

documentation by taking action, such as registering data and filing.


A 1 - 10

Action Learning

Action learning is suggested for topics which are best learned by the participants devising a procedure based on their insight and experience rather than on theory learned from training material or from the trainer. This is an effective way of learning when local parameters are important and the trainees' own experience and judgement are important inputs. The advantage of employing action learning is that the end product will automatically be tailored to their own situation.

The procedure for action learning would be similar to that of project work. The main difference between use of the two methods is that project work is based on having learned the theory of a skill and applying it to the test road, whereas action learning is used to learn a system of management through devising it with the trainees' own capability and experience applied to the local conditions.

Demonstrations

Some topics, or parts of topics, are best suited to demonstrations. Appropriate setting out methods, for example, are best learned by demonstration after the theory has been taught. For some demonstration purposes a scale model of the test road can be made in the classroom to reinforce the learning of the theory.

A major part of the demonstrations will take place at the road site. Work there will be coordinated with classroom activities so that after a certain topic has been dealt with, trainees are able to see its practical implementation on the test-site.

On-site Application

Following classroom training, trainees will assume functions on the test-site. When arriving on site, they should have the necessary skills to organise and coordinate the work. On the test site, these skills will be improved by working under the guidance of engineers/supervisors and technical assistance staff. On the site, the project engineers will be equipped with the means of monitoring the trainees' performance for use at review sessions back in the classroom. In addition to standard forms for performance evaluation, video equipment will be used to record certain operations for playback in the classroom.

Review Sessions

Having learned a number of skills, and after having applied these on the test-site, the trainees will convene for review. At the review sessions they discuss the experiences they have had. The site instructors give their comments, and video, if recorded, is shown to help with the analysis. To become effective, these sessions will be carefully structured by the training team so that shortcomings are rectified for future site-work and particularly skilful applications are presented in such a way that the other trainees benefit from them. Several alternatives are at hand, plenary discussions, individual presentations, analysis of particular aspects of application, preparation of action plans and additional learning sessions. These sessions can be run on-site or in the classroom, whichever is more convenient.

Review sessions will serve both as a means of monitoring progress made by trainees and of providing instructions related to project work and on-site application. In particular, physical progress, expenditure and unit costs will be reviewed and compared with what was originally planned. Trainees should make the necessary modifications under the guidance of the trainer and analyse discrepancies.


A 1 - 11

11 Trainees

It is proposed that a total of six contracting firms are invited to participate in the first training programme. These six firms will, after successful completion of the training programme, be provided with the possibility of a guaranteed work load through awarded contracts to carry out road rehabilitation and periodic maintenance works. Should identification of suitable contractors prove difficult, or should there be a wide range of abilities between the contractors, it may be preferable to group the contractors into two streams.

12 Classification of Contractors

It is important that newly established labour-based road contractors are registered by the Government and certified to carry out a certain type of contract. This will enable the government to streamline its activities in this sector and provide a uniformity to all projects wishing to use this approach to rural road rehabilitation and maintenance. Furthermore, it will enhance the contracting firms future market prospects and thereby maintain this capacity in the private sector.


A 3 - 1

Annex 3 Programme Evaluation Plan The evaluation plan for the programme will be closely integrated with its logical framework and will be designed to monitor the achievement of the project’s objective and goal i.e. its short term effect and longer term impact. In monitoring terms, this means that the evaluation plan must be able to demonstrate that the programme is on target, addressing its objectives and delivering measurable benefits to its stated beneficiaries. To achieve this the plan will adopt a classic evaluative framework as the following table illustrates: Table Evaluation Analysis Framework

Monitoring Stage Project Dependant Changes Project Independent Changes

Baseline survey Pattern of travel and transport before project improvements.

Patterns of travel and transport without project improvements

Post- project effects and impact

Pattern of travel and transport after project improvements.

Patterns of travel and transport without project improvements.

At this stage, it is envisaged that this framework will largely focus on the analysis of traffic to monitor the effects of road improvements on its modal characteristics, costs and seasonality. This will necessitate the blending together of quantitative and qualitative methodologies. Thus, the use of sample surveys of transport operators, passengers, pedestrians along side carefully supervised traffic counts can provide a considerable amount of useful and relevant impact data. This methodology differentiates between transport users and operators in order to identify their share of the benefits brought about by the project improvements. In the case of road users i.e. pedestrians and passengers, travel changes by the poor and women will be of particular significance. In a road improvement impact study recently completed by the company in Bangladesh indicated that the reduction in fares and modal shifts enhanced the ability of poorer groups to use public transport. Even pedestrians were shown to benefit from the reduction in time and effort which followed road improvements (Airey and Islam, 1997). In another monitoring project undertaken for Danida, the disaggregation of pedestrian and passenger flows by occupation, age and gender proved to be extremely important in the analysis of likely project effects on women and poorer groups (Airey and Sarkar, 1995). In the second, inter modal competition between motorised and non-motorised transport modes will be of concern both as a means of monitoring reductions in the cost, speed and frequency of travel and ensuring that non-motorised operators, who tend to be from poorer groups, do not lose out from project improvements. Thus, in the above impact study of Bangladesh we were able to show that rickshaw pullers were able to maintain and even increase their incomes by switching operations and generally benefiting from the propensity of households to travel more often after road improvements. Road improvements will also have direct and indirect employment effects. The direct employment effects begin with project management records that are kept as part of its progress monitoring of project implementation. These records need to be supplemented by sample studies if the poverty and gender impact of project employment is to be assessed. Similarly, the indirect employment effects of the programme will need to consider employment opportunities in the transport sector as well as business and agricultural activities. Participatory Rural Appraisal (PRA), case studies and sample studies can all be used to throw light on these indirect project effects


A 3 - 2

Finally, it seems appropriate that PRA techniques should be used to investigate changes in the economic and social activities of carefully selected communities situated within the zone of influence of the improved roads. The purpose of these studies is to isolate and attribute the effects of transport improvements on the wider developmental activities of the communities served by the project roads. In all these approaches a small representative sample of roads will be subjected to intensive evaluative study. It is envisaged that much of this data collection activity will be synchronised and integrated to make it more cost effective in both financial and research terms.


A 4 - 1

Annex 4 Job Descriptions of Key Personnel Project Title: Cabo Delgado Tertiary Roads Project Title of Post: Team Leader Duty Station: Pemba Duration of Appointment: 36 Months Scheduled Starting Date: July 2000 GENERAL PROJECT INFORMATION The project is designed to meet the actual needs of the province. For that reason the development of the project document has been carried out in close collaboration with the Provincial authorities and with key stakeholders in the road sector in the province. For this reason the project is designed to be executed by the Provincial authorities in keeping with the defined policies of decentralisation of responsibility to the provinces. The project will be concerned first and foremost with the development of the capacity of the road authority in the province. Actual rehabilitation of roads, though a key part of the project, will take second place to the development of the capacity of the province to be able to administer road rehabilitation works. The project will support the development of the private sector in the province with the overall goal of ensuring a capacity in the province to rehabilitate and maintain a core network of tertiary roads. The project intends to make use of the capacity that already exists in the country whether this be in government institutions such as the ANE of the Chimoio training centre, other donor funded projects such as the ROCS programme and the DFID funded project in Zambezia. More specifically, the project will rely on the use of local consultants wherever they are in a position to be able to support the project. The overall objective of the project is that access of the rural population is improved access to social and economic services. This is in line with the policy of seeing tertiary roads as being the facilitator of economic and social development of the rural areas. The specific objective has been defined for the project and relates to developing a sustainable, appropriate and cost-effective road management system at provincial level. The project includes the development of an effective tertiary roads planning and selection procedure and the development of an evaluation procedure to measure the impact of the improved roads. The project will be financed through the Provincial Department of Public Works and Housing. Funds from the project can then be used in unison with the funds provided by the road fund for rehabilitation and maintenance. Training will form a key part of the project. This will cover all aspects of road administration and implementation. A major effort will be placed on developing the capacity of the DEP to plan, monitor and control works and to cover all aspects of contract administration. In addition a detailed training programme will be developed for training of contractors. In the first year at least the project will work in close collaboration with the Feeder Roads Programme particularly in the area of providing training sites for the contractors.


A 4 - 2

DESCRIPTION OF DUTIES General This senior TA team member will be the Team Leader, who is responsible for advising on overall planning and implementation of all project activities as outlined in the project document. He/she will coordinate the work of a team consisting of the Team Leader, a Training Engineer, Local Consultants and Short Term International Consultants. The TL will work closely with the Provincial Public Works Department and specifically the DEP concerning planning of major activities, progress, problems arising and before major decisions are taken. He/she will report directly to the Director of the DPOPH. Specific A major activity at the beginning of the project will be to prepare a work plan together with the chief of DEP. This work plan will include the following activities: (a) Advise and assist on the establishment of a capacity within the DPOPH to plan, implement, and

monitor road rehabilitation and maintenance works executed by contractors. (b) Manage and participate in the development, establishment and presentation of training courses and

seminars on labour-based road construction and maintenance works. (c) Assist the DPOPH in preparing work plans, implementation and material schedules and other

programmes for the smooth implementation of the project. (d) Prepare equipment requirements for the training sites and initial trial contracts. (e) Prepare the technical specifications for all procurement of plant and equipment, tools, materials, both

local and overseas. (f) Negotiate with local banking institutions appropriate arrangements for the contractors' acquisition of

tools and equipment. (g) Assist in defining the detailed organisational and administrative framework in which the project will

be implemented. (h) Monitor and adjust as appropriate, in close consultation with the DEP, of systems, procedures and

regulations with a view to optimising the prospects of expanding the medium and long term application of labour-based domestic contractors for road construction and maintenance.

(i) Participate in the further development/adaptation of standard documentation, guidelines and procedures related to the implementation of labour-based works including technical design standards, work methods, organisation, contract documents, bill of quantities, tendering documents, procedures for contract award, etc. based on initial field trials where the newly developed procedures are tested.

(j) Monitor the work of the DEP and project staff in the area of contract supervision and quality assurance.

(k) Monitor payment procedures to contractors with specific reference to the requirements of regular (monthly) payments.

(l) Assist in the development of an appropriate cost accounting system for project contracts, preferably as a computerised system.

(m) Assist in the establishing of appropriate unit rates for the various categories of work activities executed by the contractors.

(n) Define and prepare terms of reference for short-term consultancies. (o) Recruit and supervise short-term consultants, and evaluate their outputs; (p) Facilitate the effective presentation of the project to visitors, in a planned manner which ensures that

suitable on-site facilities and relevant data are available at all times. (q) Assist in formulating and preparing proposals for labour-based projects and discuss these with the

government and donors. (r) Provide the daily management of the project team and its various project activities.


A 4 - 3

EXPERIENCE AND QUALIFICATIONS REQUIRED (a) A degree in civil engineering; (b) Not less than 10 years of experience in road construction and maintenance management, with at least

5 years working in a senior capacity with labour-based techniques for rural infrastructure works in developing countries;

(c) Experience in private sector development or in the management of contracts systems and procedures in the civil engineering sector;

(d) A proven managerial capability and leadership ability in the context of collaboration with governments of developing countries, with local representatives of donor agencies, and with a heterogeneous team composed of consultants, experts, and local collaborators of different educational and cultural background;

(e) An ability to establish good working relations with local and international staff with a background different from his/her own and be able to communicate effectively and impart his/her knowledge to subordinates and national counterparts;

(f) An ability to manage project monitoring, administrative and accounting systems with the assistance of personal computers;

(g) A willingness to frequently travel and work in the rural areas where the project's main activities are located;

(h) An ability to write clear and concise reports in English. LANGUAGE Fluent in both spoken and written English and a good working knowledge of Portuguese.


A 4 - 4

Project Title: Cabo Delgado Tertiary Roads Project Title of Post: Training Adviser Duty Station: Pemba Duration of Appointment: 24 months Scheduled Starting Date: September 2000 GENERAL PROJECT INFORMATION The project is designed to meet the actual needs of the province. For that reason the development of the project document has been carried out in close collaboration with the Provincial authorities and with key stakeholders in the road sector in the province. For this reason the project is designed to be executed by the Provincial authorities in keeping with the defined policies of decentralisation of responsibility to the provinces. The project will be concerned first and foremost with the development of the capacity of the road authority in the province. Actual rehabilitation of roads, though a key part of the project, will take second place to the development of the capacity of the province to be able to administer road rehabilitation works. The project will support the development of the private sector in the province with the overall goal of ensuring a capacity in the province to rehabilitate and maintain a core network of tertiary roads. The project intends to make use of the capacity that already exists in the country whether this be in government institutions such as the ANE or the Chimoio training centre, other donor funded projects such as the ROCS programme and the DFID funded project in Zambezia. More specifically, the project will rely on the use of local consultants wherever they are in a position to be able to support the project. The overall objective of the project is that access of the rural population is improved to social and economic services. This is in line with the policy of seeing tertiary roads as being the facilitator of economic and social development of the rural areas. The specific objective has been defined for the project and relates to developing a sustainable, appropriate and cost-effective road management system at provincial level. The project includes the development of an effective tertiary roads planning and selection procedure and the development of an evaluation procedure to measure the impact of the improved roads. The project will be financed through the Provincial Department of Public Works and Housing. Funds from the project can then be used in unison with the funds provided by the road fund for rehabilitation and maintenance. Training will form a key part of the project. This will cover all aspects of road administration and implementation. A major effort will be placed on developing the capacity of the DEP to plan, monitor and control works and to cover all aspects of contract administration. In addition a detailed training programme will be developed for training of contractors. In the first year at least the project will work in close collaboration with the Feeder Roads Programme particularly in the area of providing training sites for the contractors.


A 4 - 5

DESCRIPTION OF DUTIES General A Team Leader will be responsible for advising on overall planning and implementation of all project activities as outlined in the project document. He/she will coordinate the work of a team consisting of Team Leader, a Training Engineer, Local Consultants and Short Term International Consultants. Under the direction and close collaboration with the Team Leader and the Director of DPOPH, the Training Engineer will be responsible for the overall planning, management and coordination of all training activities as outlined in the project document. He/she will coordinate the training inputs from a team. He/she will also liase directly with training related activities of the ROCS programme, the FRP and the Chimoio training centre. Specific (a) The development of the regional training unit the office and equipment. (b) Management of the training unit including its field activities. (c) Carry out detailed training needs assessment of the various cadres of Provincial and contractors'

staff. (d) Supervise and coordinate training components on maintenance of equipment and business

management. (e) Development of training management systems including selection of trainees, performance

evaluation, certification, registration, etc. (f) Prepare a day to day programme for the first training courses. (g) Guide the local consultants on training methodology for practical oriented courses for adult

professionals. (h) Conduct training at the training unit’s courses. (i) Carry out an in-built post-evaluation of the performance of the first courses. (j) Participate in refining the training material after the first course taking into consideration the

experience made during the initial courses. (k) Facilitate the effective presentation of the training centre and sites to visitors in a planned manner

which ensures that suitable on-site facilities and relevant data are available at all times. EXPERIENCE AND QUALIFICATIONS REQUIRED (a) A degree in civil engineering; (b) Not less than 10 years of experience in providing training in all aspects road construction and

maintenance management, with at least 5 years working in a senior capacity with labour-based techniques for rural infrastructure works in developing countries;

(c) A thorough knowledge, experience and understanding of the use of local resources for the construction and maintenance of roads;

(d) A solid experience and understanding of the principles and practice of construction management, management training for small businesses and enterprise development;

(e) A proven ability to impart his/her knowledge to others both in classroom and on-the-job training; (f) An ability to establish good working relations with local and international staff with a background

different from his/her own and be able to communicate effectively with different levels of staff; (g) A willingness to live and work in the rural area where the project's main activities are located; (h) An ability to write clear and concise training material. LANGUAGE Fluent in both spoken and written English and a good working knowledge of Portuguese Tasks of the Local Consultants The Local Consultants will be responsible for the following activities:


A 4 - 6

• Organising and supervising the conduct of a detailed condition inventory of all secondary and tertiary

roads in the province. • Defining and implementing a socio-economic base line survey in the province and defining the

monitoring procedures during the project • Implementing the training courses, under the supervision of the Training Adviser, for all levels of the

DEP and DPOPH staff relating to the effective technical, financial and planning aspects of tertiary road rehabilitation and maintenance

• Implementing training courses, under the supervision of the Training Adviser, for a local contractors in relation both the technical and managerial aspects of tertiary road rehabilitation and maintenance

• Assisting the province and the district in the development of an effective tertiary road planning procedure using the methodology developed by the international consultants

• Under the supervision of the Team Leader, working with the local Bank or financing institutions in the development of an effective system for purchase and procurement of equipment by the local contractors

• Assisting the Team Leader in the establishment of an effective reporting and monitoring procedure • Financial auditing Short Term Consultants Short term international consultants will be required for the following activities: • Development of effective contract documentation • Definition of contract management procedures • Introduction of a system for purchase of equipment • establishment of planning criteria and systems for the screening, prioritisation and selection of tertiary

roads • establishment of effective financial procedures in the DEP and DPOPH

Documents

TABLE OF CONTENTS List of Acronyms and Abbreviations 2 …invest/documents/projectdocumentatio… · · 2015-12-23List of Acronyms and Abbreviations 2 Executive Summary 3 ... The