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Transport Forum 2005
Performance-based Management and Maintenance of Roads (PMMR)
PMMR Implementation potential in Africa
Presentation by: Graham Williams
BCEOM – French Engineering Consultants
Washington D.C., March 8, 2005
The Project• Financed through GPOBA Trust Fund; • BCEOM appointed in June 2004;
Over-arching objective:
– Extend PMMR experience in Sub-Saharan Africa to demonstrate potential efficiency gains for road network conservation.
• Prepare pilot contracts in 4 countries Cape Verde, Chad, Madagascar, Tanzania
• About 12 packages covering approx. 2,800km of roads;• Carry out technical surveys;• Brief stakeholders;• Review capacity and funding constraints;• Define appropriate service levels;• Estimate costs;• Prepare prequalification and bidding documents
(based on Bank sample PMMR document);
• Assist agencies during procurement process.
The Assignment
‘Ideal’ ingredients for PMMR
• Lessons so far………– Relatively ‘mature’ contracting environment with local
contractors experienced in road maintenance;– Agencies with good contract management experience,
committed to the PMMR concept;– Good knowledge of the network, maintenance needs
and costs;– Well trafficked, economically important roads;– Predictable maintenance needs and limited emergency
works;
‘Ideal’ ingredients for PMMR……
– Roads close to maintainable condition, not too much rehabilitation;
– Assured funding to achieve at least ‘fair’ service levels;
– Contract duration long enough to span maintenance cycles and justify use of dedicated resources;
– Assistance to Govt. during procurement and start-up;– Frequent monitoring and evaluation during contract.
Typical Situation• Inadequate funding for maintenance;• Long procurement cycles;• Quality of work often disappointing;• Maintenance rarely carried out at the right time, so….• Investment lost as deterioration accelerates, leading
to….• Higher maintenance and rehabilitation needs, so….• True cost of ‘steady-state’ maintenance not really known.
Is there a place for PMMR?
• Should be an economic choice, but• Not enough evidence in SSA yet,• Need to lever limited local resources to maximise
benefits - that means,• Selecting roads with most traffic where maintenance
demand is highest – fair or better service level;• Efficiencies need to be proven before PMMR can be
mainstreamed into national road maintenance policies.
Service Levels• Set simply in terms of:
Accessibility Travel speed
Ride QualityDurability
Set using criteria that can be measured fairly easily;Ride quality and durability criteria varied to suit volume and type of traffic.
Expectations• Agency
– Better road conditions;– Reduced procurement workload for road management staff;– Assured maintenance funding for selected roads;– Lower maintenance costs - eventually;
• Road Users– Better, safer roads with more consistent conditions;– Assured access;– Quick clear up after emergencies.
• Private Sector– Guaranteed workload over long period;– Potential for increased margins;– Opportunities for business growth.
Resources for maintenance
* Expected revenue – Road Fund not yet active
Extended networks, low traffic.
Generally, resources generally only sufficient for routine maintenance but not enough for periodic maintenance and renewal.
Maintenance funding
0
5
10
15
20
25
30
35
40
45
50
Cape Verde Chad Madagascar Tanzania
US
$ m
illio
ns
0.67% GDP*
0.10% GDP
0.15% GDP
0.22% GDP
* Expected revenue – Road Fund not yet active
UK spends about 0.2% of GDP on maintenance of core roads
Maintenance funding
-
500
1 000
1 500
2 000
2 500
3 000
3 500
Cape Verde Chad Madagascar Tanzania
US
$/km
69% paved
15% paved
13% paved
15% paved
In Tanzania: Average annualised maintenance cost for PMMR gravel roads estimated at US$2,900 per km - Road Fund allocation in 2004, US$800 per km.
TanzaniaPrivate Sector Capacity:
• Good contracting base for unpaved road maintenance;• Growing consulting capacity.
Agency Capacity:• Well equipped with qualified personnel in the regions;• Several years maintenance contracting experience;• Committed to the PMMR concept;• Road Fund in place since 1999.
PMMR Road conditions:• Light motorised traffic but lots of NMT;• Backlog of periodic maintenance and spot rehabilitation.
Unpaved Trunk and Regional roads1,100 km in 3 regions.
Tanzania
Private sectorcapacity
Agency capacity PMMR roadconditions
Madagascar
Unpaved National, Provincial/Communal roads 930km in 2 zones.
Madagascar
Private sectorcapacity
Agency capacity PMMR roadconditions
Private Sector Capacity– Local capacity for rehab and maintenance improving;– Larger contractors busy with current rehabilitation programme;– Many small labour-based contractors.
Agency capacity– Road sector re-organisation underway;– Road Fund re-launched in 2003;– Management stretched with rehabilitation and upgrading programmes;– Community based maintenance being promoted on low-volume roads.
PMMR road conditions– Difficult soil and climatic conditions – high maintenance demand;– Large amount of reconstruction needed in the south.– High proportion of NMT.
Cape VerdePrivate Sector Capacity
– Limited maintenance contracting experience - historically, artisans employed directly for doing road repairs and improvements;
– Small contracting market - very few local firms equipped for roadworks.Agency Capacity
– New road agency in place since 2004;– Road fund to be re-launched in 2005;– Limited contract management experience;– Limited knowledge of network and maintenance needs.
PMMR Road Conditions– Mountainous terrain and flash floods – many slips/emergency works;– Busy roads being upgraded to asphalt concrete;– Maintenance needs of cobblestone pavement difficult to predict.
Cobblestone roads, National and Municipal330km on 3 islands
Cape Verde
Private sectorcapacity
Agency capacity PMMR roadconditions
ChadPrivate Sector Capacity
– Limited local road contracting capacity – international firms dominate;
– Very limited consulting capability;Agency Capacity
– Very limited management resources;– Road Fund in place since 2001;– Several years contracting experience including PMMR pilot project
(440 km).PMMR Road Conditions
– Proposed road currently under rehabilitation/construction;– Maintenance requirements should be modest.
Paved International Corridor450km (not yet surveyed)
Chad
Private sectorcapacity
Agency capacity PMMR roadconditions
Adapting PMMR• Contracting
– Vary packages to suit available capacity (e.g in Tanzania 5 packages 120 to 360km);
– Encourage the local industry and joint ventures (contractors and consultants);
– For prequalification, place emphasis on previous track record;
• Service Levels– Keep definition simple – not too many criteria;– Take local technical constraints into account;– Be careful about risk sharing for ride quality maintenance.
• Support mechanisms– Dedicated supervision;– Technical support during start-up.
Adapting PMMR…
Quantity- based payments for rehabilitation and emergency works
Performance related payment for maintenance through lump-sum fee per km.
Rehabilitation also includes backlog periodic maintenance
0
10
20
30
40
50
60
70
80
90
100
Rehabilitation Maintenance Emergencies
% c
on
trac
t p
rice
Limited to a ceiling value
Documentation to assist bidders
• Data sheets for each road in the contract network;
• Estimates for scope of initial rehabilitation works;
• Line diagrams;• Road drive-through on DVD.
Region: Road Name: km
Package:
Location Plan: Vertical Profile:
Annual rainfall: 900 mmPrincipal rain seasons: 1 2
Inventory DataNo of gravel pits:
Traff ic levels:
Est veh. per day Cross-section:
% Heavy vehicles
NMT level km
Settlements: Gradient:No of villages
kmStructures (No):
Culverts Travel w idth:BridgesDrifts km
Subgrade:Black cotton Light grey sandy Light red sandy Plastic soil Rock
km
Road condition (August 2004)
Surface type: Condition:
km km%
Required Service Level
Min. travel w idth (m): Ride quality standard:
Min. w idth in village centres (m):
Comments
Crossfall Cut
10 to 20%
Good
18.8 5.3
31.3 0.1
Poor
0.6
6m20.8 0.0
<5% 5 to 10% >20%
58.35
< 50
7
2m 3m 4m 5m
26.4
0.0
Embkt
Mwanza R146-Geita-Nkome
391
PMMR/TZ/1
Medium
Heavy
51.912
At G.L
3
Gravel Earth V. Good
13.5
21.5
36.4 22.020.9%12.2
Start : Junction w ith T4 in Geita tow nEnd : Fish market in Nkome village on Lakeshore
- Mining activities in the Geita area, 3 junctions w ith haul roads at ch 6.2 - 10.5 - 13.4- Lightly populated- In Nkome, ferry going to Mw anza
Fair
1.8
6.0 0.5
15.1
39.6% 29.5% 10.0%
2.5
Oct to Dec Mar to May
3.5
6
17.2 5.923.1
17.4
Fair
Gradient: > 10% < 10%
1000
1050
1100
1150
1200
1250
1300
1350
1400
1450
1500
0 5 10 15 20 25 30 35 40 45 50 55 60
km
elev
atio
n (
m)
• Tanzania– Procurement process underway. Project launch expected mid-2005;– W Bank and Road Fund financing.
• Madagascar– Agency reforms a priority at the moment;– Funds committed on rehabilitation programme;– Launch of pilot projects unlikely in 2005.
• Cape Verde– To be launched under local funding mid-2005;
• Chad– Current pilot project being extended under W Bank and local financing
(but with new contractor);– New project to be launched in 2006 under credit for Regional Transport
Facilitation.
Programme
Observations so far• Agency commitment essential;• Design (where possible) for the local construction market;• Only transfer risks that are understood;• Keep service levels realistic in view of funding constraints;• Management support and ‘mentoring’ essential during
implementation;• Most countries need external funding support to get
started.