World Bank Documentdocuments.worldbank.org/curated/en/214871468279304… · · 2016-08-30CURREfNCY EOUUIVAENS Currency unit - Ringgit (M$) US$1.00 - M$2.70 M$1.00 - US$0.37 (as

Document of

The World Bank

FOR OFFICIAL USE ONLY

/.Al 3/fA-i

Report No. 7995-MA

STAFF APPRAISAL REPORT

MALAYSIA

HIGHWAY REHABILITATION AND IMPROVEMENT PROJECT

NOVEMBER 20, 1989

Infrastructure Operations DivisionCountry Department IIAsia Regional Office

Thi document has a resricted dItibution and may be used by re*ponS oly In the performance ofthir oflidcI dute. Its contets may not otherwise be didosed wthout Wodd Sank authorization.

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CURREfNCY EOUUIVAENSCurrency unit - Ringgit (M$)

US$1.00 - M$2.70M$1.00 - US$0.37

(as of October 31, 1989)

FISCAL-MMA

January 1 - December 31

WEIGHTS AND MEASURES

km kilometer (0.62 miles)mi - mile (1.6093 kilometers)sq iii - square mile (2.5900 square kilometers)

ABBREVIATIONS AND ACRONYMS

EPU - Economic Planning UnitERR - Economic Rate of ReturnHPU - Highway Planning UnitJKR - Department of Public Works (in MPW)ICB - International Competitive BiddingLCB - Local Competitive BiddingLIM - Malaysian Highway AuthorityNOT - Ministry of TransportN4OW - Ministry of WorksMPE - Ministry of Public EnterprisesNTPR - National Transport Policy ReviewVOC - Vehicle operating costVPD - Vehicles per day

FOR OMCIAL UR ONL'

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1AIAYSIA


Loan and Project Summary

Borrower: Malaysia

Amount: US$83.2 million equivalent

Terms: Repayable in 17 years including five years of grace, at theBank's standard variable interest rate.

Proiect The proposed project would assist Government to achieve theDescriptiol: Fifth Malaysia Plan's primary objective for the highway

subsector, that is, to preserve and improve the existingfederal highway network so that it can safely and adequatelycater to rapidly increasing traffic demand. Specifically, theproject would: improve road maintenance capabilities andoperations on the federal road network; improve thecoordination of highway planning at the state and federallevels; improve the existing network of national highways andbridges; reduce future damage to the roads through an enhancedtruck weight control program; and improve road safety. Theproject, which would focus on the needs of Peninsular Malaysia,has the following components: (a) implementation of aMaintenance Improvement Program, including the rehabilitationof some 562 km of road pavements and improvement of maintenanceoperations; (b) replacement of about 67 bridges; (c)improvement of about 56 km of road; (d) various physical worksto improve road safety; (e) construction of 35 weighbridgesfor a Truck Weight Control Program; (f) consultant servicesand technical assistance to, among other things, strengthenhighway planning and road and bridge maintenance capabilities;and (g) training. The project poses no unusual risks.

This document has a estricted distribution and way be used by recipients only in the performanceof their ofmcia duties. Its contents may not otherwise be disclosed without World Bank authorization.

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Estimated Co0t: Local Forein Total------- (U$ million)----------

Civil WorksMaintenance Improvement Program 42.9 23.1 66.0Bridge Replacement 7.7 9.5 17.2Truck Weight Control Program 5.7 3.8 9.5Highway Improvements 26.8 21.9 48.7Road Safety Improvement 14.7 ?.9 22.6

Equipment - 6.2 6.2Consulting Services, Technical

Assistance and Training 10.8 10.8

Total Base Costs 9 8 181.0

Physical Contingencies 9.8 8.3 18.1Price Contingencies 12.7 17.4 30.1

TotpalProject Cost1 120.A 108.9 229.3

Land Acquisition 9.9 - 9.9

Total Financing Reauired 130.3 108.9 239.2

Financing Plan:

Government of Malaysia 130.3 25.2 155.5World Bank (proposed loan) - 83.2 83.2

(Loan 2642-MA) - 0.5 0.5

Total 130.3 108.9 239.2

Estimated Disbursements: zx 1990 19 19292 I3 1994 1995-------------(US$ million)------------

Annual 2.0 8.0 15.0 30.0 26.0 2.2Cumulative 2.0 10.0 25.0 55.0 81.0 83.2

Rate of Return: 24%

Ha: IBRD 21488

1 Excludes taxes and duties estimated at US$27.5 million.

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WAYSE

HIGHWAY REHABILITATION AND IMPROV^2ENT PROJECT

STAFF APPRAISAL REPORT

Table of Contents

Page Ng,

Loa#n and Project S u mr ............ .. .. .. . . . . . . . . . . .. .

1. THE TRANSPORT SECTOR .1. . . . . . . . . ... . .A. Geographic and Economic Setting .1.. . . . . . .B. The Transport System .... . . . . . . . . . . 2C. Bank Lending to the Transport Sector and Sector

Strategy .... . . . . . . . . . . . . . . . . 3

2. THE HIGHWAY SUBSECTOR .... . . . . . . . . ... . 5A. The Network .5... . . . . . . . . . . . . . . . S

B. Traffic .... . . . . . . . . . . . . . . . . . 5C. Road Transport Industry .... . . . . . . . . . 7D. Highway Expenditures and Road User Chtarges . . 7E. Highway Investments under the Fifth Development

Plan ..... . . . . . . . . . . . . . . . . . 8F. Organization and Administration ... . . . . . . 8C. Planning . . . . . . . . . . . . . . . . . . . . 10H. Highway Design and Construction ... . . . . . . 10I. Maintenance ..... . . . . . . . . . . . . . . 11

3. THE PROJECT ..... . . . . . . . . . . . . . . . . 14A. Project Formulation .... . . . . . . . . . . . 14B. Project Objectives .... . . . . . . . . . . . 14C. Rationale for Bank Involvement ... . . . . . . 15D. Project Description .... . . . . . . . . . . . 15E. Project Cost and Financing ... . . . . . . . . 23F. Project Implementation ... . . . . . . . . . . 25G. Procurement .... . . . . . . . . . . . . . . . 27H. Disbursements .... . . . . . . . . . . . . . . 29I. Accounts and Audit .... . . . . . . . . . . . 30J. Monitoring and Reporting .... . . . . . . . . 30

4. PROJECT JUSTIFICATION .... . . . . . . . . . . . . 30

5. AGREEMENTS REACHED AND RECOMMENDATION ... . . . . . 32

This report was prepared by Mr. Maurice LeBlanc (Senior Transport Economist),Mr. Leonard Schiffman (Transport Engineer, consultant) and Mrs. Shirin Velji(Research Assistant) following appraisal of the project in April/May 1989. Thereport was edited by P. Brereton-Miller. Ms. Norsiah Sumardi also assisted inthe production of the report.

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TA,BLE61.1 Transport Investment Summary

2.1 Evolution of Peninsular Malaysia's Road Network2.2 Length of Roads in Peninsular Malaysia by State, 19872.3 Traffic Composition on Major Links of Federal Highways in Peninsular

Malaysia, 19862.4 Traffic at Selected Locations on Toll Expressways in Peninsular Malaysia.

1985-882.5 Cumulative Number of Motor Vehicles in Peninsular Malaysia by Type and

Year, 1977-862.6 Accident Statistics for Peninsular Malaysia2.7 Geometric Design Criteria for Major Roads in Rural Areas2.8 Geometric Design Criteria for Major Roads in Urban Areas2.9 Geometric Design Criteria for Roads in Rural Areas2.10 JKR 'Quarries" in Peninsular Malaysia2.11 Actual and Anticipated JKR Road Maintenance Budgets for Federal Highways

in Peninsular Malaysia by State, 1985-942.12 Distribution of Maintenance Personnel by State, 19892.13 Personnel Needed for Maintenance Program, 19892.14 Distribution of Bridges on Federal Highways in Peninsular Malaysia by State

3.1 Rehabilitation and Strengthening Program for Federal Roads in PeninsularMalaysia

3.2 Maintenance Improvement Program Action Plan3.3 Replacement of Timber Bridges for Federal Roads in Peninsular Malaysia3.4 Replacement of Substandard Bridges for Federal Roads in Peninsular Malaysia3.5 Highway Improvement Subprojects3.6 Road Safety Improvement Program: Improvement of Hazardous Locations3.7 Road Safety Improvement Program: Overhead Pedestrian Bridges3.8 Road Safety Improvement Program Action Plan3.9 Summary of Project Consulting Services and Technical Assistance3.10 Cash Flow Requirements3.11 Implementation Schedule3.12 Schedule of Estimated Disbursements

4.1 Economic Analysis of Project Components

ANNEXES1. Truck Weight Control Program2. Road Safety Improvement Program3. Project Execution and Monitoring4. Documents Available in the Project File

CHARTS1. Organization of Public Works Department, Peninsular Malaysia2. Organization of JKR Roads Branch, Peninsular Malaysia3. Organization of Highway Planning Unit

M Federal Highway Network, Peninsular Malaysia (IBRD 21488)

1. THE TRANSPORT SECTOR

A. Geographic an_ Economic Setting

1.1 The Federation of Malaysia comprises 13 states in two separate

geographical areas of Southeast Asia. Eleven states on the Malay Peninsula

comprise West Malaysia (51,000 sq mi) while two states, Sabah and Sarawak,

comprise East Malaysia (77,000 sq mi) on the northeastern part of the island

of Borneo, some 400 mi to the east of West Malaysia across the South China

Sea. Malaysia has land borders with Thailand to the north on the peninsula

and with Indonesia to the south on Borneo. It is separated by a narrow sea

channel from Singapore at the southern tip of the peninsula (Map IBRD 21488).

1.2 Only about 20% of Malaysia's area is cultivated; the remainder is

covered by tropical forest. Peninsular Malaysia is generally mountainous,

with over two thirds of its area lying above elevation 300 m. The western

coastal area, bordering on one of the world's most important shipping routes,

the Straits of Malacca, is developing at a faster pace than the rest of the

country. Two thirds of the population live on or near the western coast and

work either in the main urban centers where industrial zones have developed

or in the important west coast agricultural and mining areas, which produce,

among other things, rubber, palm oil and tin for export. East Malaysia is

also mountainous, with a long coastline and numerous rivers. Economic

activity in East Malaysia and the east coast of Peninsular Malaysia is

centered on the production of oil, gas, timber, cocoa and palm oil, as well

as fisheries.

1.3 Malaysia's population in 1988 totalled some 16.9 million,

reflecting an average 2.6% annual increase from 1981. About 82% of the total

population lives in Peninsular Malaysia while Sabah and Sarawak acccunt for

only about 8% and 10%, respectively. Population density is about 120 persons

per sq km in Peninsular Malaysia compared to 12.5 in Sarawak and 17.4 in

Sabah. The geographical distribution of economic activity in Malaysia is

very uneven. About 84% of GDP in 1985 was generated by Peninsular Malaysia,

including nearly 37% by the central region, 23% by the north, 14% by the

eastern part of the peninsula and 10% by the south. Sabah and Sarawak

accounted for only 7.6% and 8.0%, respectively.

1.4 During the past 15 years, Malaysia has experienced profound

economic changes. The oil shocks of the early 1970s accelerated the

development of an indigenous petroleum industry which produced rapid economic

growth and substantially increased revenues. The relatively recent collapse

of oil prices coupled with declining terms of trade from its other exports

caused the country to suffer from a severe economic recession in 1985-86,

creating serious shortfalls in revenue and tight resource constraints. GDP

growth, which had climbed by an average 8% p.a. in the lat.e 1970s,

decelerated to 6% in 1980.84 then turned negative in 1985/86. Although

growth resumed thereafter, with GDP rebounding by 8% in 1988, Malaysia's

public sector has lost the surplus revenue it formerly enjoyed and has

entered an era of fiscal conservatism.

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B. The Transport System

The Network and Its Development

1.5 Malaysia's rapid economic growth during the 1970s was accompaniedby a similarly rapid development of the transport sector. Largely fueled bymajor government investments in the sector (Table 1.1), output of transport,storago and communications increased at 12% annually, compared to 8% for theeconomy overall. During the decade, the sector's share of CDP increased from5% to 7%. The Government has attached great importance to the role oftransport in the economic development process, and under its four previousdevelopment plans (1966-85) channeled over M$14.5 billion to the sector.Under the ongoing Fifth Malaysia Plan (1986-90), allocations to transportamount to 15% of the development budget, second only to agriculture. Theactual amount budgeted, however, has had to be reduced from M$10.7 billion,as originally proposed, to N$6.5 billion, due to fiscal constraints. As aresult of this investment, the system is now relatively well developed fora country of Malaysia's size and income level. The major exceptions to thisare the transport systems serving East Malaysia.

1.6 Malaysia's transport system now comprises some 42,300 km of roads,1,643 route-km of railway, 18 airports (four of which are for internationaltraffic) and 37 airstrips, as well as 25 ports in West Malaysia and 30 portsin East Malaysia. The past decade was a period of high traffic growth inMalaysia and changing modal distribution, with. the railways losingsubstantial traffic to road transport, which is now the dominant mode. In1986, about 90% of total freight traffic and over 95% of passenger trafficin Peninsular Malaysia went by road. Between 1979, when rail freight trafficpeaked at 4.2 million tons of freight, and 1985, overall rail freight trafficdeclined by 30%. The decline in rail traffic has recently been checked,however, by the greater emphasis being placed by the Malayan Railway on thedevelopment of intermodal services. To meet the country's increasing demandfor international transport, which is served mainly by air for passengers andby sea for freight, major increases in capacity in these modes took placeduring the post-1975 period. However, due to recent shifts in trafficpatterns among the modes, some existing facilities are now underutilized.

Government Objectives for the Sector

1.7 Government's overall objective under the Fif::h MalaysiaDevelopment Plan (1986-90) is to promote domestic adjustmeat policies andstrategies to contain deficits and debt service obligations. During thefirst three years of the Plan period, this implied slow growth for theeconomy. During the remaining period, despite resumed economic growth, theGoverriment has taken a cautious approach to investment in view of thevulnerability of the economy to fluctuations in commodity (particularlypetroleum) prices. For the transport sector, the Government intends toconcentrate on: (a) developing an integrated approach to coordinatedevelopment of the transport system; (b) completing ongoing programs andprojects; (c) improving operations and management of the transport system;and (d) identifying and implementing programs for private sector financing

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and management. This seems reasonable in view of continued economicuncertainty, which makes long-range planning of transport investmentsdifficult, and the expectation of continued scarcity in budgetary resourcesover the next few years.

Institutional Framework

1.8 Responsibility for administration of the transport sector isdispersed among a number of ministries and agencies at both the federal andstate levels. The Ministry of Transport (MOT) is responsible for all mattersconcerning ports, railways and aviation, although the Malayan Railways, theMalaysian Airline System and Malaysia's nine port authorities operate withsome autonomy. The Ministry of Works (MOW) handles the planning, design,construction and maintenance of the federal road system, although the stategovernments, which are responsible fcr about 70% of the country's roadnetwork, independently plan, design and construct their own roads and arealso responsible for maintenance of their road networks. The Ministry ofPublic Enterprises (MPE) through its Licensing Board is responsible for thelicensing of road transport operations; MOT through its Road TransportDepartment is responsible for vehicle licensing, collection of road taxes andenforcement of highway regulations; the Ministry of Primary Industryregulates the sizes and weights of timber trucks, and NOW is responsible forregulations affecting all other vehicles using putlic highways. The federalpolice are responsible for enforcement of traffic and safety matters relatingto road transport. A number of semi-autonomous ports are also irvolved inmultimodal operations that require coordination with road and rail transport.Under the present administrative arrangements, however, such coordination isusually lacking.

1.9 The Economic Planning Unit (EPU) in the Prime Kinister's Office,which is responsible for planning and funding all federal governmentinvestments, also has the task of coordinating transport investments amongmodes. However, as the transport sector has grown larger and more complex,the EPU has not been able to keep up with the demands imposed upon it due toa lack of sufficient numbers of suitably qualified specialists to reviewtechnical design standards, evaluate engineering feasibilities, determinecost-effectiveness and compare alternative technical solutions. As a result,transport capacity is not spread evenly, with costly duplication in someareas, and the investments made are not always oriented to least-costsolutions. Review and coordination of non-federal public investments intransport are similarly inadequate. The Bank has initiated a sector dialoguewith the Government to explore means of improving transport planning andcoordination, including intermodal linkages.

C. Bank Lendinf to the Transport Sector and Sector Strategy

1.10 Since 1971, when the Bark first became involved in Malaysia'stransport sector, it has financed nine transport projects with l.oanstotalling US$246.6 million, including five highway and urban transportprojects (US$182.7 million), three ports projects (US$45.8 million), and arailway project (US$18.1 million). Two projects are still ongoing: the

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Sabah-Sarawak Road Project (Loan 2291-MA of 1983) and the Port Kelang Project(Loans 2686/2687-MA of 1985).

1.11 The five road/urban transport projects were all implementedsuccessfully despite cost increases due to inflation and delays generallyresulting from slow land acquisition, difficulties in removing squatters andpoor performance by some of the contractors. The first three projects (Loan851-MA of 1972 for US$16 million; Loan 931-MA of 1973 for US$19.5 million;and Loan 1214-MA of 1976 for US$26 million, less US$4 million cancelled in1982) financed the construction and/or improvement of several major highwaysin the IZuala Lumpur area. The remaining two projects were focused on EastMalaysia, although one of them, the Third Highway Project (Loan 1376-MA of1977 for US$35 million, less US$4.6 million cancelled in 1984), alsocontained a pilot road maintenance and pavement strengthening program forfive states in Peninsular Malaysia, including the establishment of a separatemaintenance unit at JKR headquarters and separate road maintenance units forfederal roads within the state JKRs. While the initial results of separatingconstruction and maintenance responsibilities led to greater efficiency andimproved maintenance operations, in recent years the effectiveness of thestate units has declined, primarily due to shortages of qualified personnel.A Bank Project Performance Audit Report on this project (PPAR No. 7303, June22, 1988) found it to be successful, achieving its objectives of improvingthe maintenance capability of the five project states and carrying out civilworks elsewhere satisfactorily. The ongoing Sabah-Sarawak Road Project (Loan2291-MA of 1983 for US$86.2 million) is proceeding, on the whole,satisfactorily, despite continuing problems with slow progress ofcontractors. Due to stiff competition among local contractors during therecent economic recession, bids for project works were much lower thanexpected, causing the Government in 1987 to request the cancellatien of US$15million of the original loan amount.

1.12 Despite this involvement, the impact of Bank lending in the sectorhas been limited, primarily because the assistance strategy in the past waslargely project-oriented and focused on the provision of transportinfrastructure rather than overall transport policy issues. Furthermore,during the 1980s, the Bank redirected its efforts to supporting investmentin East Malaysia's relatively underdeveloped transport sector. Thisorientation is now changing. The Bank is currently engaged in a dialoguewith the Government which has identified the need to refocus Bank attentionfrom a somewhat narrow concentration on individual project lending towariimproving overall sector policies to achieve necessary improvements intransport throughout the country. Much broader issues are being addressedwhich affect major segments of the transport system by, among other things,improving efficiency and thus increasing export competitiveness by loweringthe transport cost component of Malaysian exports. For transport, as forother sectors of the economy, changing conditions both within Malaysia andinternationally require a more prudent approach than was necessaryheretofore, when surplus funds were available. In a more resource-scarceenviromment, Government's efforts must be directed towards optimizing theuse of capital available and increasing the efficiency of transportoperations.

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1.13 The revised sector strategy arose in response to the findings ofa National Transport Policy Review, which was carried out by the Bank incoopesation with the Government in 1987-88. The Review was initiated atGovernment's request, out of concern that the massive levels of transportinvestment in the previous decade had not yielded commensurate levels ofimproved efficiency. The aim was therefore to identify areas whereefficiency gains could be made from existing investments. The Reviewidentified five general areas where Bank support could be beneficial: (a)transport coordination and planning; (b) road maintenance, rehabilitation andupgrading; (c) river transport in Sarawak; (d) port rationalization andefficiency improvements; (e) and railway efficiency improvemunts. Theproposed project would address the first two of these needs as an initialstep in helping the Government improve transport efficiency.

2. THE HIGHWAY SU=SECT0r

A. The phttork

2.1 During 1981-85, the Government expanded the road network at therate of 8% per annum, more than doubling the length of gravel roads andincreasing the paved road network by 37%. Presently, Malaysia's overall roadnetwork totals some 42,300 km, including 34,500 km of paved roads, 6,500 kmof gravel roads and 1,300 km of earth roads. About 70% of the roads are theresponsibility of the various states, about 22% are under the federalgovernment and the other 8% are municipal roads. The federal trunk networkin Peninsular Malaysia is now generally in place and consists of 10,531 km,of which 9,150 km (87%) are paved (including about 335 km of toll expressway)and about 1,385 km are gravel or earth. By comparison, in 1980 the federaltrunk network comprised 6,377 km: 5,269 km paved and 1,108 km gravel or earth(Table 2.1). Almost half of the total network (20,500 km) is on the westcoast of the peninsula, concentrated in the most populous states (Table 2.2).

2.2 According to a recent inventory of the federal highway network inPeninsular Malaysia, about 57% of the roads are in good condition, 20% arefair and about 23% are in poor condition. The high proportion of fair andpoor roads points to a major neglect of periodic maintenance (para. 2.24).In addition, weak and substandard bridges further diminish the usefulnessof many existing roads. Under the proposed project, the Government would beassisted in improving the country's road system through an enhancedmaintenance program involving, among other things, the establishment ofimproved maintenance planning and procedures.

B. ITaffic

2.3 Traffic levels in Malaysia reflect the country's varying levels ofeconomic activity and population density. Typical intercity roads carrybetween 800 and 3,000 vehicles per day (vpd) while roads in and around KualaLumpur carry loads as high as 100,000 vpd. Traffic growth rates range up to20*, with an average of about 8% (see Tables 2.3 and 2.4).

2.4 At present, there are almost four million motor vehicles inMalaysia: 30% cars, 4% buses, 6% trucks and 60% motorcycles. Between 1965and 1980, the number of motor vehicles in the country increased at a rate ofalmost 15% per annum. Although the rate of growth slowed somewhat during1981-85 to about 9% per annum (Table 2.5), it still resulted in the currentratio of 240 vehicles per thousand persons, the highest such ratio inSoutheast Asia. Even if the high percentage of motorcycles is excitded fromthe total, Malaysia's number of vehicles per thousand persons is relativelyhigh, at about 100 vehicles per thousand persons.

2.5 Current vehicle weight regulations in Malaysia allow a maximumlegal load for a single axle of 9 tons and for a tandem axle, 12 tons.Enforcement of the limits is the responsibility of the police who, becauseof understaffing and a lack of resources and equipment allocated for thispurpose, provide only sporadic coverage. As a result, overloading of trucksis commonplace, causing accelerated pavement deterioration and, in a numberof cases, premature road failure. Recent surveys have shown that about 70%of trucks checked were substantially overloaded, some weighing as much asdouble the allowable weight. In order to identify measures to correct thissituation, which is causing the country's roads to deteriorate very rapidly,the Government commissioned a comprehensive truck loading and pavement andbridge capacity study, the Axle Load Study, which was carried out byconsultants. The Study's conclusions and recommendations are now beingreviewed by the Government and, if accepted (as is likely), will lead to anupward revision in allowable axle loads for truc.-s and revised regulationsrelating to truck dimensions and configurations. Such revisions will, inturn, require reconsideration and revision of pave.aent and bridge designcriteria and standards, which are now geared to the current (low) loadlimits. At the same time, the currently ineffective monitoring andenforcement efforts of the Government should be restructured and improved sothat real control of truck weights can be established and the incidence ofoverloading substantially reduced. The proposed project would includesupport for an increased truck weight control effort (para. 3.12).

2.6 With the continued extension of the highway network and growth intraffic volumes and densities, the numbers and severity of traffic accidentshave been significant (Table 2.6). This situation is not acceptable to theGovernment. While many accidents result from driver error or lack ofcompliance with traffic regulations, many are due to the existence ofsubstandard or dangerous roadside conditions. A comprehensive review andexamination of accident records carried out by MOW's Highway Planning Unit(HPU), followed by detailed examination and analysis of identified sites byHPU and by JKRs. Roads Branch has resulted in the identification of 267hazardous locations on the federal road network where physical improvementswould reduce the frequency and severity of accidents. The Government hasalready begun to make the needed improvements and these efforts would beexpanded under the proposed project, along with support for more rigorousenforcement of traffic laws and speed limits, a public education and drivertraiuing campaign, and a stronger focus on accident prevention on the partof the police and MOW (see para. 3.15).

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C. Road Transport Industry

2.7 During 1982-86, Malaysia's truck fleet increased by an average of16.5% p.a., with some 120,490 trucks registered in 1986. The fleet comprisessmall vans (71%), 2-axle, 6-wheel rigid vehicles (21%) and 3-axle, 10-wheelarticulated vehicles (6%). The commercial road freight industry is tightlyrestricted through a licensing, regulation and taxation system which hasserved to suppress effective competition in commercial road transport andneglect the needs of transport users. Although the freight rates set byGovernment are high enough to allow competition, the restrictive licensingand regulatory environment raises the cost of operations so that actual ratescharged are higher than would be the case in a more open market.

2.8 Bus transport is also highly regulated, with each bus licensed fora defined area, route, frequency of service, etc. Any change in theseparameters necessitates a new license, obtained only after a lengthy approvalprocess. Bus fares are also regulated and, by being determined on the basisof distance, are identical for all bus sizes and services, thus favoringlarge bus operators on high density routes and penalizing small operators onless traveled routes. This results in less responsiveness to transportdemand than would be the case with a lack of regulation.

2.9 The distortions caused by excessive economic regulation of motorcarriers in Malaysia were identified in the NTPR, and the Government iscurrently examining alternatives to address this issue.

D. Highway Expenditures and Road User Charges

2.10 Highway expenditures in Malaysia have been falling continuously asthe Government's budgetary constraints have become more acute. In 1982,development and maintenance expenditures for federal roads in PeniusularMalaysia totalled some M$357 million and M$72 million, respectively, whilein 1985 only M$242 million and M$97 million were available and in 1986 onlyM$213 million and M$92 million were allocated (Table 1.1). Although theallocation between development and maintenance expenditures was satisfactoryin 1985-86, this is due to the overall lack of funds and is not typical ofallocations in more expansionary periods. During 1981-85, for example,federal road investments totalled about M$1.4 billion while operations andmaintenance expenditures amounted to only M$0.31 billion. This relativelylow maintenance budget was provided during a period when the federal roadsystem grew by approximately 54%.

2.11 Funding for highway investments is derived from a number of publicsources, with the federal highway investment program financed through thedevelopment budget, and maintenance funded through the recurrent budget.Generally, the policy of the Government is to avoid borrowing forexpenditures financed under the recurrent budget.

2.12 The revenues earned from road user taxes are substantial and havegrown rapidly in recent years; during the past five years, revenues from roaduser taxes have exceeded federal expenditures on roads by an average of 35%.

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The National Transport Policy Review (para. 1.13) found that disparitiesexist in cost recovery among the various transport modes and among varioustypes of road vehicles. For highway users, this disparity has led to truckoverloading by encouraging truckers to use vehicles with inappropriateconfigurations for the loads carried. Consequently, there is concern thatheavy vehicles are not paying for the damage that they cause to the roadswhile cars may be paying too much. A study of this issue would be carriedout under the proposed project.

F. Highway Investments under the Fifth Malaysia Plan

2.13 The rapid expansion of the highway network, fueled by largeinvestments made by the Government during the late 1970s and early 1980s haslargely ended, with the federal network generally in place and financialconstraints dictating a more prudent approach than was heretofore the casewhen surplus funds were available. The majority of roads included in theFifth Malaysia Plan and which the Government still intends to construct inPeninsular Malaysia between now and 1995 form parts of the North-South TollExpressway. About 636 km of new four-lane, high speed expressway are planned,at an estimated cost of M$3.2 billion. Another M$167.0 million is allocatedfor major improvements to existing roads which are to be carried out by 1992.In some cases, however, the Government, in keeping with its policy ofencouraging maximum privatization in all sectors, has decided to franchiseprivate sector consortiums to design, construct and operate sections of thetoll expressway system, thereby freeing the funds earmarked for thosedevelopments for use elsewhere. Three such contractual arrangements havealready been concluded, thereby mobilizing substantial financial resourcesfrom the private sector to aid in the further development of the country'shighway system.

F. Organization and Administration

Overall Organization

2.14 Responsibility for administration of roads and road transport isshared by a number of agencies. The Ministry of Works (MOW) is responsiblefor the planning, design, construction and maintenance of the federal highwaysystem and operates through its Highway Planning Unit (HPU) for highwayplanning and related studies, and through its Department of Public Works(JKR) for design, construction and maintenance of the road network. TheMalaysian Highway Authority (LLM) is currently responsible for all activitiesrelated to the toll expressways, although this responsibility is diminishingwith the gradual privatization of these facilities (para. 2.13). The stategovernments independently plan and construct their own road works and areresponsible for maintenance of their state road networks. In practice,however, the state public works departments act as local extensions of thefederal JKR which carries out work for the states in addition to itsresponsibilities for the federal road system. State technical staff areadequate in numbers but, again, are weak in planning and coordination. TheMinistry of Public Enterprises is responsible for the issuance of roadtransport permits while the Ministry of Transport's Road Transport Department

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issues vehicle and operators' licenses. MOW regulates the size and weightof all vehicles using the public roads except timber-carrying trucks, whichare regulated by the Ministry of Primary Industries.

Department of Public Works

2.15 The federal JKR (Chart 1) is organized under a Director General whohas two deputies: one overseeing three major divisions--the Roads Branch, theDesign and Research Unit, and the Directorate of Water Supplies--as well asseven other the activities of the Directorates of Buildings, Education Works,Military Works, Medical and Health Works, and Home Affairs Works as well asthe special JKR units responsible for operations in the federal enclaves ofKuala Lumpur and Labuan. The directors of the 11 state JKR offices inPeninsular Malaysia report directly to the Director General of the federalJKR and, at the same time, to the various state governments. Each of thesestate JKR directors supervises a number of district o;fices.

2.16 The Roads Branch of the federal JKR is headed by a Director, whois assisted by two deputies (Chart 2). One deputy director is responsiblefor the design and procurement related to all new road and bridgeconstruction, and the other deputy directs the supervision of constructionand maintenance as well as the reconstruction and improvement of existingroads. The federal JKR Roads Branch is responsible for the programming,coordination and administration of all maintenance work on federal roads,including rehabilitation and improvement, but carries out no physical works.The 13 state JKRs have been delegated the latter responsibility, along withmaintaining all state roads, except those maintained by severalmunicipalities. Most routine maintenance operations are performed by the 67state JKR districts while periodic maintenance is done under the directsupervision of the state JKR headquarters. Large-scale periodic maintenanceand rehabilitation works are carried out by contract and supervised eitherby the state JKR headquarters or by the federal JKR.

TLraining

2.17 JKR has established a large training and -esearch institute atBangi, near Kuala Lumpur. Among other things, research on pavement designand construction, including periodic maintenance operations, overlays andpavement strengthening is carried out with the help of two experts providedthrough British bilateral aid. Training in maintenance operations (both roadmaintenance and equipment maintenance) and in construction supervisionmethods form a part of the Institute's curriculum with relevant staff fromall JKR units periodically being sent to the school to attend courses ofthree days to six weeks duration, depending on the course material. Inaddition, courses are periodically held under the Institute's auspices atvarious locations throughout Malaysia, in order to more easily reach a largerproportion of JKR staff. A number of maintenance - oriented courses andactivities are pursued at the Institute. However certain deficiencies existin the standardization of course materials and overall planning concerninggoals. The proposed project would address these deficiencies through theprovision of technical assistance to the Institute to help in formulating and

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establishing an expanded and improved road and bridge maintenance andconstruction supervision training program (para. 3.30).

G. Planning

2.18 Highway planning has its beginnings with MOW's HPU, which isresponsible for identifying, analyzing and justifying all federal highwayprojects, which are ranked based on traffic levels and an annually revisedanalysis of road capacity (see Chart 3). The HPU also carries out highwayfeasibility studies on the basis of economic and technical criteria andperforms overall and detailed planning studies for the federal highwaynetwork. HPU submits its annual proposals to the EPU for its consideration.However, due to EPU's lack of capability to adequately assess transportsupply and demand, and the resultant intermodal considerations, excesscapacity has been created in some areas while congestion and delays due toan inadequate highway network have occurred elsewhere. The creation of astrong central planning unit to guide and coordinate overall highwaysubsector development, including state roads, is therefore recommended. TheHPU would be the logical entity to assume this role since it already fulfillsthis capacity for the federal road system and has the expertise required forsuch duties. During negotiations, agreement was reached with the Governmentthat HPU would be made responsible for coordination of federal and stateinvestments in highways and for coordination of these investments with othertransport investments planned by the Ministry of Transport. To assist HPU inassuming this new mandate, technical assistance would be provided to HPUunder the proposed project.

H. Highway Design and Construction

2.19 Design and supervision of construction for national highways andbridges are carried out by JKR, either directly or by employing consultants.The design criteria and standards used are generally sound and adequate forconditions in Malaysia, although highway designs have been based on low axleload parameters, resulting in underdesigned roads which are not adequate forthe actual loads carried. JKR is in the process of revising its designcriteria to take heavier axle loads into account. Design standards for majorroads in rural areas and for urban and rural roads in general are shown inTables 2.7 to 2.9. JKR staff have the requisite competence and experienceto carry out routine highway and bridge design work, but generally lack thecapacity to undertake more complicated projects. Using manual methods, JKRcarries out a substantial amount of road design and drafting for the smallercontracts. Due to increased road construction in recent years, the localconsulting engineering industry has grown rapidly, and a number of competentlocal firms now exist and are active in the subsector. For most major designassignments, JKR normally retains local consulting firms, sometimes in jointventure with foreign companies to supplement its own staff capabilities.

2.20 All major new road construction and reconstruction/improvement workin Malaysia is carried out by contractors under the direction of JKR'sfederal Roads Branch. Smaller works are usually executed by contractorsunder the direction of the state JKRs, either directly or through the JKR

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district offices. Minor construction, reconstruction or improvement worksare normally carried out by the JKR district offices through force account,using their own personnel resources but sometimes contracting outtransportation of materials. Most paving for periodic maintenance isperformed by the state JKRs which maintain asphalt mixing plants and relatedpaving equipment for the purpose (Table 2.10). The local road constructionindustry has grown rapidly, and many large and small contractors now competein the sector. Unfortunately, not all of the newer companies have therequisite experience, competence or financial resources to properly performthe works for which they apply.

2.21 JKR's ability to supervise contractors is currently limited by anadministrative arrangement whereby It is not able to control the assignmentsof its technical staff. This has led to acceptance of inadequate work,costoverruns and the rapid deterioration of completed works that were notperformed properly. Poor construction supervision has therefore increasedboth the amount and degree of maintenance requirements. Under the existingpersonnel assignment system, JKR's professional personnel (such as residentengineers) are under JKR's administrative control for assignment,mobilization or allocation; however, all support or subprofessional staff(such as technical assistants and technicians) are under the administrativecontrol of MOW for assignment or allocation. Due to this arrangement,construction supervision teams are not always formed in a timely manner andmay lack adequate numbers of qualified personnel. To improve the quality ofconstruction supervision, responsibility and authority for assignment of allstaff for construction supervision te.ms should be rationalized and placedunder a single unit, preferably JKR, which has adequate information about therequirements of particular projects being staffed. Further, to enhance staffcompetence in construction supervision, intensified training is needed.During negotiations, agreement was reached with Government that by June 30,1990 JKR would be given total authority over the assignments of its personnelat all levels. Technical assistance and training in this area would also beprovided under the project. While JKR is upgrading its capabilities, greateruse should be made of consultants for construction supervision.

I. Maintenance

2.22 The Maintenance Unit of JKR's Roads Branch is responsible forplanning, budgeting, administering and coordinating the maintenance of thefederal highway system, including bridges. Actual physical works are carriedout by the state and district JKR offices, either through force account orcontracting.

Roads

2.23 As indicated by the unsatisfactory condition of the highwaynetwork (para. 2.2), JKR has not been able to keep up with the expanding roadmaintenance needs. Between 1985 and 1988, as a result of the Government'sfinancial constraints, budgetary allocations for maintenance in current termsfell by 18%, and although the allocation for 1989 is close to the 1986 level,in real terms there has been a steady erosion of available resources for

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maintenance activities. Since anticipated allocations for 1991-94 (Table2.11) indicate only modest increaves in current terms over the presentlevels, further deterioration in the condition of the network should beexpected. If the current situation is to be reversed, budgetary allocationsfor routine maintenance should be increased to about M$4,500 to M$5,0Q0 perkm, or 10-20% above present levels. Allocations for periodic maintenanceshould be increased by about 15% in real terms over present levels, resultingin allocations of about M$llO to M$120 million p.a. over the next four years,an increase of about 22% over presently anticipated levels. Under theproposed project, the Government and the Bank would annually exchange viewson the budgetary allocations for road maintenance for each subsequent year.

2.24 Due to funding limitations, the system's increase in urgently-needed periodic maintenance requirements, which have been accompanied byexpansion of the network, rapid traffic increases and significant truckoverloading, have not received the attention needed. JKR has instead usedavailable funds mainly for routine maintenance in an effort to keep themajority of heavily-travelled roads in reasonably good condition untilimproved economic conditions and increased budgetary allocations would allowthe resumption of the more expensive periodic works, i.e., resurfacing.However, with continued budgetary constraints, the backlog of deferredperiodic maintenance has continued to accumulate and now totals about 2,000km or about 20% of the network. The lack of periodic maintenance and, tosome extent, inadequate initial designs, have caused some sections of thefederal road network in Peninsular Malaysia to deteriorate to such an extentthat normal periodic maintenance will not suffice to return them to thecondition required to support present and anticipated traffic levels. Majorrehabilitation and strengthening are now required. If these roads are notsoon dealt with, total reconstruction at an exceedingly high cost will beneeded. The situation in Sabah and Sarawak, where there are fewer pavedroads and truck overloading is much worse, is even more critical than thatin Peninsular Malaysia, and many of the roads there become impassable duringthe rainy season. Countrywide, the implications of the lack of maintenanceare significant in view of the importance of the road network in Malaysia'stotal transport system and the substantial economic losses being incurred bythe country due to the poor condition of its dominant transport mode.

2.25 A Highway Maintenance Improvement Program, including roadrehabilitation, improved staffing and administrative arrangements, and theestablishment of highway and bridge management systems, would be launchedunder the -roposed project to begin to address this situation. To eliminatethe backlog of periodic maineanance, the Government should resurface about1,400 km of the 2,000 km backlog during the next five years and thereafterresurface the remaining 600 km. Overall, this is expected to require anadditional M$200 million (US$70 million equivalent), at 1989 prices, abovethe amount required for normal recurrent maintenance. With thisaccomplished, resurfacing for periodic maintenance can be continued on acurrent basis at a rate of about 500 km a year.

2.26 In addition to the basic shortage of funds, maintenance operationsin Malaysia have also suffered from a significant shortage of qualified

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staff. The current distribution of maintenance personnel by state is shownin Table 2.12, and unmet staffing needs throughout JKR's Roads Branch areshown in Table 2.13. Staffing shortfalls have both limited the amount ofmaintenance that JKR can carry out itself and constrained its effectivenessin supervising maintenance works carried out by contractors. In 1977, theGovernment accepted the recommendations of a Highway Maintenance Study(financed by the Bank under Loan 851-MA) to establish separate maintenanceunits in the federal and state JKRs in order to properly maintain the federalroad network. The Government attempted to recruit and staff these units butwas able to find sufficient staff only for the federal headquarters unitwhich is now operating satisfactorily. Although two state maintenance unitswere established, they ceased to function as personnel were reassigned towhat were considered to be more urgent activities. At present, themaintenance function in the state and district offices is combined withconstruction, with the limited number of qualified staff available assignedlargely to construction works. Maintenance operations have suffered as aconsequence.

2.27 Staffing problems have also resulted in inadequate supervision ofmaintenance works carried out under contract. With periodic (resurfacing)maintenance requirements growing beyond the capacity of the state JKRs, JKRhas contracted out an increasing amount of this work to contractors, underthe supervision of the state and/or district offices. For similar reasons,it has begun very recently to contract out some routine maintenance, underthe supervision of its district offices. Although it is too early to makefinal judgments on the cost-effectiveness of this type of contractmaintenance, it is clear that such methods are more efficient than forceaccount systems and produce better quality work, provided that propersupervision of the contractor is carried out. Close supervision ofcontractor maintenance, particularly of recurrent maintenance, is requiredsince all work is authorized in advance and payment is made on the basis ofunit prices that are bid for specified work items utilizing bills ofquantities. Generally, however, due to the scarcity of resources availableand the lack of qualified personnel, supervision of contractors by JKR hasnot been satisfactory, leading to substantial cost increases in manycontracts and to unsatisfactory performance and/or results in a large numberof cases. This is also true of construction supervision carried out by JKR(para. 2.21). However, when consultants are used to supervise constructionon behalf of the implementing agency, results have been, on the whole, muchmore satisfactory. JKR's capability to supervise contractor maintenancealong with its proficiency in maintenance programming and operations isexpected to improve as a result of technical assistance and training to beprovided under the proposed project.

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Bridg2s

2.28 About 2,140 bridges are located on Malaysia's heavily travelledprimary road network (Table 2.14). In conjunction with the Axle Load Study,about half of these bridges were inspected, and it was found that about 5%of the bridges were not in sufficiently good condition to carry the presentlyallowable truck axle loads (9 tons per single axle) without danger ofcollapse, about 3% would not be able to carry the short-term load limits (11tons per single axle) recommended under the Axle Load Study, 52% would notbe able to carry the medium term allowable axle load of 12 tons per singleaxle recommended in the Study, while the remaining 40% would needstrengthening if the overall laden weight allowable were increased to thelevels recommended in the Study. Many of the country's bridges willtherefore require immediate strengthening or replacement, and, since it islikely that higher allowable load limits will gradually be introduced,continued strengthening, replacement or loading control (posting) will berequired in the future. The proposed project would therefore finance thereplacement of substandard bridges and the establishment of a BridgeManagement System for regular inspection, maintenance and repair of thebridge network (para. 3.11).

3. THE PROJECT

A. Project Formulation

3.1 Following preliminary discussions between the Government ofMalaysia and the Bank about a possible highway project, JKR submitted aproject proposal to EPU in late-1985, outlining the main components of a roadimprovement and maintenance project which was consistent with the thrust ofthe Fifth Malaysia Development Plan. The JKR proceeded with furtherpreparation of the project, but a Bank mission which visited Malaysia inlate-1986 found that the project would have to be postponed due to theserious resource constraints that had developed. After a hiatus of almost twoyears, the Government informed the Bank that it wished to reactivate theoriginal proposal and proceed with the proposed project. The Government'srenewed interest in the project comes from its realization that its capitalstock of road infrastructure has begun to deteriorate due to neglect and thatit must now piace the highest priority on rehabilitation and maintenance ofits roads and bridges. The Bank welcomed this development and sent apreparation mission in October 1988 and a preappraisal mission in January1989. Appraisal took place in April/May 1989.

B. Proiect Obiectives

3.2 The proposed project would assist the Government to achieve itsgoals for the highway sector as articulated in the Fifth Malaysia DevelopmentPlan, that is, the preservation and improvement of the existing federalhighway network so that it can safely and adequately cater to rapidlyincreasing traffic demand. To this end, the project has been designed to (a)improve road maintenance capabilities and operations on the federal road

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network and in the process improve maintenance planning, programming andmanagement to enhance the cost-effectiveness and timeliness of maintenanceoperations; (b) improve the coordination of highway planning at the state andfederal levels; (c) improve the existing network of national highways andbridges; (4) reduce future damage to the roads through an enhanced truckweight control program; and (e) improve road safety.

C. Rationale for Bank Involvement

3.3 With the federal road network largely in place and emphasis nowbeing given to improving and preserving the existing system, the Bank canassist the Government in formulating policies and taking actions which wouldimprove efficiency, lower road transport costs and preserve the capital stockof road investments while rationalizing institutional responsibilities in thehighway subsector. To this end, the focus of Bank activities under theproject would be two-fold: assisting in improving highway maintenanceplanning, operations and monitoring; and helping to improve overall highwayplanning and coordination by the various subsector agencies. The proposedproject is significant in marking the renewal of Bank operations in the mosteconomically-important area of the country and in supporting an activity,road maintenance, which, due to the dominance of highways in Malaysia's totaltransport network, can have very significant economic benefits throughout theproject area.

D. Project Description

3.4 The project would be focussed on the federal highway network inPeninsular Malaysia and would include the following components, which aredescribed in more detail below:

(a) implementation of a Maintenance Improvement Program, including therehabilitation and strengthening of some 562 km of road pavementsand improvement of maintenance operations;

(b) replacement of 43 bridges on primary roads and 24 timber bridgeson secondary roads of the federal highway system;

(c) construction of 35 weigh stations under a Truck Weight ControlProgram;

(d) improvement of two trunk highway sections totalling about 56 km;

(e) improvement of 42 hazardous road sections and construction of 27pedestrian bridges in conjunction with a Road Safety ImprovementProgram;

(f) provision of computer hardware and software to improve JKR'sComputer-Aided Design and Drafting (CADD) capability;

(g) consulting services for design and construction supervision ofproject components (a), (b) and (d) above;

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(h) technical assistance to (i) strengthen HPU's capacity to plan andcoordinate road investments; (ii) strengthen JKR's capabilities insupervising civil works contracts for both construction andmaintenance, disseminating a Pavement Management System,establishing a Bridge Management System and improving JKR'smaintenance training program; (iii) improve road safety monitoringand analysis; (iv) establish methodologies for determining theenvironmental impact of road works; and (v) improve JKR's CADDcapabilities in the highway sector; and

(i) staff training in maintenance programming and operations,computerized design and drafting, transport planning, and trafficengineering and road safety analysis.

The locations of federal roads to be improved under the project are shown inMap IBRD 21488.

Maintenence Imnrovement Program

3.5 The Government recognizes the high economic cost of poor roads andintends to carry out a major road and bridge maintenance improvement programcomprising: (a) road rehabilitation and strengthening; (b) improved highwaymaintenance operations; (c) expanded use of a recently-introduced PavementManagement System; and (d) the introduction of a Bridge Management System.

3.6 In the Fifth Malaysia Plan, the Government has identified eightsections of the federal road network in Peninsular Malaysia needingrehabilitation and/or pavement strengthening before they can be maintainedthrough normal maintenance operations. These road sections, totalling about562 km in length and located in the states of Kedah, Penang, Johor, Perak andPahang, would be rehabilitated and strengthened under the project. Landacquisition for this work has been completed. Table 3.1 provides details ofthe project roads.

3.7 Technical assistance would be provided under the project forimplementation of a computerized Pavement Management System, which Isexpected to provide prioritized maintenance programs and budgets for usethroughout the country (para. 3.24). Consultant assistance would also beprovided to establish a Bridge Management System which will permit rationaland cost-effective programming of bridge maintenance, repair and loadingcontrol (para. 3.25).

3.8 Most important, Government intends to improve its currentmaintenance operations under the project through increased funding andtraining, redeployment of technical staff, and increased use of consultantsand technical assistance for a variety of activities. Maintenanceexpenditures should be increased from the levels originally budgeted for1990-94 to the levels indicated in Table 2.11 with funding increasing fromM$92.0 million to M$125 million in 1990 and M$155.0 million in 1992 to coverthe cost of needed pavement resurfacing in order to reduce the backlog ofdeferred periodic maintenance while, at the same time, carrying out needed

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normal resurfacing work. In view of its very limited number of qualified

maintenanece personnel, equipment shortages, and the greater cost-

effectiveness of contractor maintenance, JKR intends to expand contract

maintenance operations, both for routine and periodic maintenance, and

gradually reduce its force account operations to a level where only emergerncy

and minor works are performed in-house. For contractor supervision, it is

in the process of increasing its supervisory staff and funds have been

included under the project for technical assistance to improve training in

construction supervision. However, since the effects of these efforts will

not be apparent for some time, JI^R will continue to use consultants for this

purpose when necessary. For overall supervision of maintenance works as well

as maintenance surveys, planning and monitoring, it will permanently assign

one qualified engineer to each district office in Peninsular Malaysia who

will have the sole responsibility of overseeing all maintenance operations

in that district, both force account and contracted. District maintenance

units will be provided with the appropriate resources needed, in terms of

equipment, vehicles, supplies and personnel to carry out their

responsibilities. They will not be involved in construction or improvement

work.

3.9 During negotiations, agreement was reached between the Government

and the Bank on: (a) an Action Plan for implementation of the Maintenance

Improvement Program (Table 3.2) during 1990-94; (b) annual consultations on

the scope and composition of the federal road maintenance program for the

coming year, and on procedures and methodologies to be appliud in its

preparation; (c) annual exchange of views between the Government and the Bank

concerning the proposed budgetary allocations for maintenance for the coming

year, including a comparison of total highway investments proposed and

maintenance allocations, to ensure an appropriate balance between

construction, rehabilitation and maintenance; and (d) a reduction by at least

70% by December 31, 1994 of the existing backlog of deferred periodic

maintenance of roads.

Bridge Replacement

3.10 Despite continuing efforts over the years to replace aged and

inadequate timber bridges throughout the country, there still remain about

24 such bridges on secondary roads in the federal network. Replacement of

these small timber bridges with concrete bridge structures or box culverts

would therefore be included under the project. Designs for the bridges have

been completed, and details are given in Table 3.3.

3.11 The Axle Load Study identified 92 bridges on primary roads of the

federal highway system which are in critical condition, requiring replacement

on a priority basis. JKR has already replaced 22 of these bridges which were

in danger of imminent collapse and is in the process of replacing another 27

which are considered dangerous to the travelling public. The remaining 43

substandard bridges would be replaced under the project (details are shown

in Table 3.4). Bridge replacement under the project would complement the

establishment of a Bridge Management System with the help of project-financed

technical assistance (para. 3.25).

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Truck Weight Control Program

3.12 The increased incidence of truck overloading in Malaysia has beena major cause of premature failure of the country's paved roads. The AxleLoad Study, which was commissioned in response to this problem, hasrecommended increased monitoring and control of truck load levels through,among other things, the construction of 43 weigh stations throughoutMalaysia. The proposed project would therefore provide for the constructionand equipping of the 35 weigh stations needed in Peninsular Malaysia; the 8stations needed in East Malaysia would be constructed under the ensuingDevelopment Plan. During negotiations, agreement was reached with Governmenton an Action Plan for Control of Truck Weights containing a time-boundschedule for implementation of weigh station construction and of theactivities necessary to provide adequate and effective enforcement of truckweight regulations, including the provision of adequate personnel andresources. The Action Plan and details of the program are described in Annex1.

Highway Imgrovements

3.13 The Government has identified two road projects included in theFifth Malaysia Plan which are particularly in need of improvement in view ofrapidly increasing traffic densities: the Kuantan-Gambang Road in Pahangstate (19.5 km) and the Johor Bharu-Kota Tinggi Road in Johor state (36 km).The project would therefore improve substandard geometrics, increase capacityand improve inadequate drainage as well as upgrade understrength pavementsand structures on the two road sections. Designs for both subprojects havebeen completed and land acquisition procedures are underway (details of thehighway improvements are shown in Table 3.5).

Road Safety Program

3.14 JKR has identified 267 locations on the federal road network wherephysical improvements would reduce the frequency and severity of accidents.JKR's state and district offices are currently making needed improvements ofa minor nature like improved road signing, while the project would financethe substantial physical improvements required in 42 of the highest prioritysites. Land acquisition procedures are well underway. Details are shown inTable 3.6. Designs for the improvement of 22 of these hazardous locationshave been completed, with completion of the balance expected by June, 1990.In addition, since close to 20% of road accident fatalities involvepedestrians in heavily travelled built-up areas, 27 other hazardous locationshave been identified where accidents involving pedestrians have frequentlyoccurred. Overhead pedestrian bridges would be constructed at these locationsunder the project to permit safe passage across the flow of traffic (Table3.7).

3.15 The physical improvements to be carried out under the project wouldbe complemented by the provision of technical assistance (para. 3.26) to helpintroduce an accident monitoring system and the Government's implementation

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of a Road Safety Improvement Program to more rigorously enforce its speed andothter traffic regulations, provide sufficient police presence, and intensifyits educational, driver training and public relations campaigns to increasethe care that drivers exercise on the roads and their adherence to safety-

increasing driving habits. During negotiations, agreement was reached with

the Government on an Action Plan for Road Safety Improvement delineating thetime-bound activities to be undertaken to carry out the physical improvementsneeded as well as strengthening training and education efforts and providinga stronger focus on accident prevention by the police and JKR. The Action

Plan is shown in Table 3.8 and details of the program are described in Annex

2.

Computer-Aided Design and Drafting (CADD)

3.16 While JKR's Roads Branch carries out a substantial amount of road

design, drafting and tender document preparation, it does so, in the main,

using relatively antiquated methods. Despite the Roads Branch's smallexisting computer installation, its design and drafting efforts are labor-

intensive and time consuming and it is severely limited in the amount of suchwork it can undertake during a given time period. With the development ofCADD computer systems in recent years, it is surprising that Malaysia remainsone of the very few countries not taking full advantage of present-daytechnology in the civil engineering field. To remedy this situation, and to

increase productivity along with the quality of work produced, the projectwill include the provision of improved computer hardware and software alongwith related technical assistance (para. 3.27) to establish a full-fledgedCADD system for the Roads Branch, incorporating the existing workstations and

personal computers into the system.

Consulting Services and Technical Assistance

3.17 Strengthening_of EPU. The Government has decided to provide HPU

with an enlarged mandate to coordinate all road invest-Aents proposed by thevarious federal and state agencies involved in the subsector and to liaise

with HOT in overall transport planning. To assist HPU in these functions,the project would finance the services of a transport planning expert for HPUfor a period of three years. As a first task, the advisor would assist HPU

and MOT to review cost recovery among the various transport modes in general

and the distribution among road vehicles in particular to determineappropriate levels of road-user charges. The review would be carried out

jointly by HPU and MOT for a period of six months.

3.18 Construction Supervision. Owing to a lack of sufficientpersonnel, both of professional and of technician level, JKR has found itdifficult to satisfactorily supervise all of the work carried out on its

behalf by contractors. While works being supervised by consultingengineering firms are generally being completed in a satisfactory manner andare of acceptable quality, the level of staffing for construction supervisionon projects being supervised directly by JKR staff varies from quiteacceptable to entirely unsatisfactory. Generally, adequate supervision,either through use of consultants or by specially mobilized JKR teams is

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provided for major high cost or high visibility projects. Projects, however,that are smaller, are spread out spatially or are located in less accessibleareas receive only sporadic attention, handled by part-time or ad-hocsupervision forces. The result has been that the quality of constructionworks suffers in direct proportion to the lack of adequate qualified staffwho are actually physically present during the time that works are executed.This situation can be expected to result In unnecessary increases, throughclaims and extra work, in costs of construction, in acceptance of inadequateand substandard work of less than acceptable durability and the need incertain cases to carry out major rehabilitative work long before it shouldbe necessary.

3.19 In order to improve the quality of construction supervision work,JKR will increase its use of consulting engineering firms to undertakeconstruction supervision in order to complement its own in-house resources.In addition, where JKR will supervise construction work or contractmaintenance work using its own personnel, arrangements will be made topermanently assign, on a full-time basis, sufficient professional andtechnician level personnel to adequately supervise the affected works sothat the present unsatisfactory level of quality and cost efficiency willbe improved.

3.20 The present JKR personnel assignment system divides control andauthority relating to personnel matters within JKR in such a way thatprofessional level personnel (such as Resident Engineers) are under theadministrative control of JKR for assignment, mobilization or allocation andall support level or sub-professional level personnel (such as TechnicalAssistants and Technicians) are under the administrative control of theMinistry lnvel personnel office for assignment or allocation. This strangearrangement results in inefficiencies and all sorts of difficulties wherebyconstruction supervision teams are not formed in a timely manner, do not haveadequate personnel or are formed with unqualified staff. The Governmentneeds to rationalize its arrangements for the assignment of all staff forconstruction supervision teams by placing responsibility and authority forsuch matters in the hands of a single unit, preferably JKR, which hasadequate information concerning the requirements of the particular projectbeing staffed.

3.21 In addition, in order to raise the level of competence insupervision of construction, JKR will extend and intensify its trainingefforts by means of on-site training, through use of its facilities at theBangi training center, the personnel available at the Bangi research center(both expatriate and local), and the two expatriate experts being financedunder Loan 2642-MA, presently on-going. In this latter connection, JKR willextend the contracts of these two experts, whose initial assignments arecompleted, for an additional two-year period or will obtain the services oftwo other experts to continue the work. The importaace of completing thetraining effort, which has barely begun, cannot be over-emphasized. At thesame time, the difficulties encountered by the two experts during theirinitial assignment which are related to the Government's inability to providecounterpart personnel, as had been agreed, should be avoided. JKR should

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provide at least one qualified road engineer to work full-time with theexperts who could help to overcome the language barrier and be in a positionto continue monitoring and training efforts after their assignment iscompleted.

3.22 In addition, the experts would also assist JKR to: (a) review andimprove its maintenance standards and practices; (b) produce and distributerelevant manuals; and (c) establish a quality control system for monitoringfield activities. In this latter connection, the formation of a permanentMaintenance and Construction Supervision Monitoring Unit at JKR headquarterswhich would among other things take over the functions now being performedby the two experts when their assignment is completed would provide a muchneeded standard-setting and control center to monitor field activities andpromote quality and efficiency in construction works and maintenance.

3.23 The project would also finance consulting services for designand/or construction supervision of the physical components of the project,including revision and updating of plans and contract documents completedearlier.

3.24 Pavement Manaeemeat System. JKR has recently installed acomputerized Pavement Management System, which is expected to provideprioritized maintenance programs and budgets for use throughout Malaysia.A special unit has been formed within the Maintenance and Reconstruction Unitof the Roads Branch of JKR to administer and operate this system. With thissystem, planning and programming of maintenance of road pavements would beimproved by integrating field data from observations and physical tests withtechnical, economic and financial criteria. Since the transition fromintroduction of the Pavement Management System to adequate, widespread useof the system has not yet been completed, technical assistance financed underthe project, will be obtained for at least two years to assist in making thesystem fully operational anJ to help in its wider dissemination among thestate JKR offices.

3.25 Bridge Mana8mn Stem. JKR intends to establish a comprehensiveBridge Management System to permit the rational and cost-effectiveprogramming of bridge maintenance, repair and loading control. Two years ofconsultant assistance for the design and introduction of this system as wellas the provision of a computerized Bridge Management System, includinghardware and software, will be financed under the project. A permanentorganizational unit within JKR, suitably staffed, will be formed to operatethe system so that Malaysia's stock of federal bridges and culverts can beregularly inspected and appropriate repair and maintenance interventionssatisfactorily programmed and executed.

3.26 Road Safety. Under the project, HPU would set up and operate acomputerized national road accident data bank and establish a permanentmonitoring and analysis unit to identify means of continuously improving roadsafety conditions and to collect, record, maintain and analyze meaningfuldata. To assist HPU in this activity, the project will finance the servicesof an expert in road safety data acquisition, manipulation and analysis for

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24 months. The Covernmont will also arrange for HPU staff to attend coursesin traffic engineering and road safety design.

3.27 CADD Sytem. In order to properly plan and implement a suitableCADD system for JKR's Roads Branch which will satisfy long-term needs whileintegrating existing equipment and software into the systeim, the project willfinance the services of an expert in CADD systems for a period of six monthsto assist JKR in studying its needs, choosing and obtaining suitable hardwareand software and establishing and implementing a complete CADI) system forhighways and bridges.

3.28 Environmental Im=act Studies. JKR, in cooperation with theDepartment of the Environment, is in the process of establishing proceduresfor conducting environmental impact studies relating to road construction andmaintenance works. Under the project, JER would engage an expert in thisfield for three months to provide advice and assistance in determiningprocedures and methodologies for field investigations and analyses todetermine the environmental effects of road construction and maintenance.

3.29 A summary of project consulting services and technical assistanceis shown in Table 3.9. An estimated 2,954 person-months of consultingservices would be provided under the project at a total cost of US$13.1million, including 204 person-months of expatriate assistance and about 2,750person-months of local assistance. During negotiations, agreement wasreached on the scope and timing of technical assistance and consultingservices to be provided under the project, including terms of reference (seeProject File) and estimated costs.

Training

3.30 To improve JKR's capabilities in maintenance programming andoperations, in construction supervision and in other facets of highway andbridge management and operations, financing would be provided under theproject for fellowships, study tours or other training costs to be identifiedin the course of project implementation. The project would also finance theservices of a training expert for a period of 24 months to assist the JKRTraining Institute at Bangi in improving and extending its maintenancetraining program. During negotiations, agreement was reached on the generalscope and composition of the maintenance training program to be implementedduring the project period.

Status of Project Preparation

3.31 The road sections to be rehabilitated and strengthened under theMaintenance Improvement Program have been identified and designs for two ofthe eight sections are being prepared by JKR; designs for the remainingsections will be prepared by consultants. For the bridge replacementprogram, design for the 24 timber bridges have been completed by JKR andtendering will take place during the latter half of 1989. Of the 43substandard bridges to be replaced under the project, designs for 12 havebeen completed by JKR, another 6 bridges will be designed in-house by end-

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1989 and the remainder will be designed by consultants over the next twoyears. Tendering of the bridges already designed will begin in the fall of1989. Of the 35 weighstations to be constructed under the project, 10 havebeen designed by JKR, five of which are already under construction and fivewill be tendered in late 1989. Designs for another 10 weighstations are nowbeing prepared by JKR. Designs for the two highway improvement subprojectshave been completed by consultants who are now reviewing and completing thetender documentation. Tenders for these works are planned for early 1990.Designs and tender documentation for 22 of the 42 hazardous locations to beimproved under the project have been completed by JKR, which expects tocomplete designs for the balance by June 1990. Tendering will take placeduring the 1989 to 1991 period. Consultants have been engaged for design andconstruction supervision of the highway improvement subprojects and fortechnical assistance for training in construction supervision methods, forfurther implementation of the pavement management system and for improvedroad safety analysis. Identification and appointment of the other technicalassistance experts and consulting engineering firms to be engaged under theproject will take place during late 1989 and 1990. The Government,recognizing that land acquisition has posed problems in the implementationof past road projects, has taken measures to accelerate the process of landacquisition by the states under the project including freezing of most of thenecessary rights-of-way.

E. Project Cost and Financing

3.32 The project cost is estimated at about X$644.7 million or US$239.2million equivalent, including a foreign exchange requirement of US$108.9million (45% of the total cost) and land acquisition costs estimated atUS$9.9 million equivalent. Taxes and duties equivalent to US$27.5 millionare not included. Cost estimates are based on prices as of June 1989 andinclude a 10% physical contingency. Price contingencies equal to 15% ofbase costs plus physical contingencies, have been estimatod based on thefollowing rates of inflation: for local costs, 2.8% for 1989-90 and 3.5%thereafter; and for foreign costs, 5.3% for 1989-90 and 4.1% thereafter. Costestimates are summarized (Table 1) below and cash flow requirements are shownby year in Table 3.10.

3.33 Cost estimates for highway improvement subprojects are based ondetailed engineering prepared by consultants and have been checked by JKRagainst costs of similar works being carried out. Compared with ongoingsimilar projects, the average costs per km of about US$1.5 million for afour-lane divided highway and US$500,000 for a major two-lane trunk highwayare considered to be reasonable and realistic. Cost estimates for pedestrianand timber bridges are based on detailed engineering prepared by JKR bs iedon standard designs previously constructed throughout the country, usingaverage unit prices of similar completed and ongoing works. Cost estimatesfor the first year of bridge rehabilitation and replacement are based ondetailed engineering, using standard designs and average unit prices ofsimilar bridges already constructed. Overall, the average cost of US$1,250per square meter of bridge deck is considered to be reasonable and realisticfor new vehicular bridges. The average cost estimate of US$115,000 per km

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for road rehabilitation and strengthening is based on current unit rates and

is considered reasonable and realistic. Similarly, cost estimates for the

road safety improvement program are based on detailed engineering performed

by JKR using unit rates averaged from current similar works. The costs of

consultant services are based on present rates for international consultants

currently engaged in similar work.

TABLE 1: PROJECT COST SUMKARY

.. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. .. . .. .. .. .. .. .......... ............ .. .. .. .. .

Project camponent Local Foreign Total tocal Foreign Total Foreign X of-------(NS Millions). .- USS Million)---- Cost X Total

Cost

......................................... ................................................................................. _. ................................

1. Civil Works 263.75 178.45 442.21 97.85 66.21 164.06 40.4X 68.6x

A. maintenance Irprovelunt Program 115.70 62.30 178.00 42.92 23.11 66.04 35.01 27.61

B. Replacement of Timber andSubstandard Bridges 20.88 25.52 46.40 7.75 9.47 17.21 55.0o 7.2S

- Timber Bridges 8.77 10.73 19.50 3.26 3.98 7.23 55.01 3.01

-Substandard Bridges 12.11 14.80 26.90 4.49 5.49 9.98 55.0o 4.2X

C. Truck Weight Control Program 15.48 10.32 25.80 5.74 3.83 9.sr 40.01 4.01

0. Highway lqprovemnts 72.11 59.00 131.11 26.75 21.89 48.64 45.01 20.31

- Johore Bharu- Kota Tinggi Road 27.06 22.14 49.20 10.04 8.21 18.25 45.01 7.61

- Kuantan - Gamtan Road 45.05 36.86 81.91 16.71 13.67 30.39 45.01 12.71

E. Road Safety lprovement Program 39.59 21.32 60.90 14.69 7.91 22.59 35.01 9.4x

11. Equipmn t 0.00 16.60 16.60 0.00 6.16 6.16 100.01 2.61........... ..... . ...... ...... ..... .------ ...... . ..... .... ........ ........ ...

Weighbridges 0.00 14.20 14.20 0.00 5.27 5.27 100.01 2.21

Computer Hardiare & Software 0.00 2.40 2.40 0.00 0.89 0.89 100.01 0.41

ti1. Consulting Servic4s, TechnicalAssistance and Training 0.00 29.20 29.20 0.00 10.83 10.83 100.01 4.s5

-Cornilting Services 0.00 20.40 20.40 0.00 7.57 7.57 100.0X 3.2X

- Technical Assistance & Training 0.00 8.80 8.80 0.00 3.26 3.26 100.01 1.41

Total Base Cost 263.75 224.25 488.01 97.85 83.20 181.05 46.01 75.71U8 S Saugus ==8su Saugu 238822 %=288 Susan

Contingencies 60.71 69.22 129.93 22.52 25.68 48.21 53.31 20.21............... .............. ... ...... ........ ...... ........ ...... ..... ... ...... ........ .........*..... ..

Physical Continencies 26.38 22.43 48.80 9.79 8.32 18.11 46.01 7.61

Price Contingencies 34.34 46.80 81.13 12.74 17.36 30.10 57.7X 12.61

Totat 324.46 293.47 617.94 120.38 108.88 229.26 47.51 95.81822 32222 2222 228 8222 12221 2222SU= 322

Land Acquisition 26.80 0.00 26.80 9.94 0.00 9.94 0.01 4.21

Total Project Cost 351.26 293.47 644.74 130.32 108.88 239.20 45.51 100.01................................. .........................................................................................

.................................................

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3.34 The proposed Bank loan of US$83.2 million would finance 36% of thetotal project cost (excluding the cost of land acquisition), and would cover theproject's foreign exchange cost, excluding contingencies, which would be financeddirectly by the Government, using their own resources. Some of the project'stechnical assistance would be financed by the Bank-assisted Land SettlementInfrastructure Project (Loan 2642-MA) (US$0.5 million). US$155.5 millionequivalent (including US$9.9 million equivalent in land acquisition costs) wouldbe financed by government budgetary allocations provided to NOW (Table 2).

Table 2: PROJECT FINANCING PLAN

Financing Source Amount(US$ million)

Government of Halaysia 155.5World Bank (proposed project) 83.2World Bank (Loan 2642-MA) 0.5

TOTAL 239.2

F. Proiect Implementation

3.35 The project would be carried out over a four-year period, with NOWas the executing agency. Under NOW's direction, the Roads Branch of JKR willimplement all physical works included in the project and will supervise theassociated consulting services. The Roads Branch will also be responsible forthe weigh station program and will supervise the technical assistance relatedto maintenance training, improvements to construction supervision capabilities,further implementation of the Pavement Management System and institution of aBridge Management System. HPU will be responsible for planning and monitoringthe Road Safety Improvement Program and for supervising the related technicalassistance. The EPU and the Implementation Coordination Unit (ICU) attached tothe Prime Minister's Office will both be involved in expediting and implementingthe agreed Action Plans and will perform a coordinating role with respect tolegislative and enforcement actions relating to truck weight control and roadsafety concerns. During negotiations, agreement was reached with the Governmenton an implementation plan and schedule (Table 3.11) for execution of the project.

3.36 Within the Roads Branch (Chart 2), the Road Design Unit and theBridge Design Unit will be responsible for designs, preparation of plans andcontract documents for the highway improvement subprojects, for all workconnected with bridges and box culverts and for physical aspects of the roadsafety program. Some of this work will be performed in-house and some will becarried out by consultants under JKR direction. These units will also beresponsible for the letting of tenders and the evaluation of bids. Afterapproval of their recommendations and award of contracts by the Tenders Board,however, their responsibility will end and the Project Unit of the Roads Branchwill become responsible for supervising construction of works, which will becarried out by consultants. For road rehabilitation and strengthening and forthe physical aspects of the Truck Weight Control Program, the Maintenance and

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Reconstruction Unit of the Roads Branch will, either directly or throughconsultants, carry out designs, and prepare plans and contract documents. ThisUnit will then let tenders and evaluate bids and, after approval of theirrecommendations and award of contracts by the Tenders Board, will be responsiblefor all construction work in the field, utilizing consultants for constructionsupervision.

3.37 The Maintenance and Reconstruction Unit of the Roads Branch will beresponsible for all project activities related to maintenance of roads andbridges, including provision of technical assistance for maintenance trainingand for maintenance planning and programming, for consulting services forconstruction supervision of periodic maintenance work carried out by contractors,and for coordinating and expediting the timely execution and implementation ofthe Action Plan for Maintenance Improvement as agreed with the Bank.

3.38 Maintertance training activities will be carried out by JgR Is Trainingand Research Institute located at Bangi in cooperation with the Maintenance andReconstruction Unit. JKR training resources will be supplemented by technicalassistance provided under the project. Training activities will include formalclassroom instruction and seminars at Bangi and at JKR headquarters in KualaLumpur as well as instruction, seminars, field demonstrations and on-the-jobtraining at state and district JKR offices and at work sites in the field.Existing instruction manuals and directives will be revised and updated, and newpublications, manuals and directives will be developed with the help of projecttechnical assistance, which would bring the benefits of the latest technologyto the attention of JKR personnel engaged in maintenance activities.

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G. Procurement

3.39 Procurement under the project will be carried out as shown below inTable 3.

Table 3: PROCUREMENT SUMMARY(UISIftfifn)

PRc dProject Caonent ICB LCB other Total

Cost

1. civ t Jh--Maintenance laprovement Program 83.9 - 83.9

(23.1) - (23.1)

Replacement of Timber and Stb-standard - 21.6 21.6Brldes (9.5) - (9.5)

Truck Weight Control Program 11.8 - 11.8- (3.8) (3.8)

Highway lirprovemts 61.2 61.2(21.9) (21.9)

Road Safety Improvement Program 28.6 28.6- (7.9) - (7.9)

It. EauldmntVeighbridges 6.9 - - 6.9

(5.3) - - (5.3)

Caputer Hardwure & Software 1.1 1.1(0.9) (0.9)

III. Consultina Services. Technical Assistance - - 13.1 13.1and Trainina - (10.8) (10.8)

TOTALS 152.0 62.0 14.2 228.2(50.3) (21.2) (11.7) 83.2)

Notes: 1. Amounts shom incluce contingencies.2. Figures in parenthesis are the respective amounts to be financed b the B* Loan.3. Flgures exclude the cost of land acquisition.

3.40 Civil Works contracts having an estimated total value of US$3.0million equivalent or more will be tendered by JKR using InternationalCompetitive Bidding (ICB), in accordance with the Bank Guidelines forProcurement. Contracts having an estimated value of less than US$3.0 millionequivalent may be tendered and awarded in accordance with Local CompetitiveBidding (LCB) procedures which are acceptable to the Bank.

3.41 For road rehabilitation and strengthening works included in theMaintenance Improvement Program, civil works having an estimated total value ofabout US$83.9 million, including contingencies, will be contracted out by JXR

- 28 -

under ICB. The six contracts for this work will vary in length of road fromabout 36 km to 150 km with estimated costs varying from approximately US$8.4million to US$23.1 million including contigencies. JKR will also let contractsfor the replacement of 67 timber and substandard bridges on the federal highwaynetwork at a total estimated cost,including contlngencies, of US$21.6 million.These contracts will be tendered under LCB and will cover from one to threebridges on the average, costing about US$300,000 to US$1.2 million each.Contracts having a total estimated value of US$11.8 million, includingcontingencies, will also be let under LCB for the civil works and equipmentinvolved in the provision of 35 weigh stations, at an average estimated cost ofUS$0.33 million each, under the truck weight control program. Under the highwayimprovement component of the project, five contracts having a total value ofapproximately US$61.2 million, including contingencies, will be let by JKR.These contracts, with estimated values varying from US$8.1 million to US$14.6million, will be tendered using ICB. In addition, contracts with a totalestimated value, including contingencies, of US$28.6 million will be let, usingLCB, for the civil works and pedestrian bridges involved in the improvement ofroad safety conditions which will vary in cost between US$107,000 and US$2.9million.

3.42 Equipment for weigh stations, including weigh-in-motion equipment,having an estimated total value of US$6.9 million including contingencies, willbe procured by JKR through ICB in accordance with the Bank Guidelines forProcurement. Computer hardware and software to be used for highway design anddrafting, having an estimated total value of US$1.1 million includingcontingencies may be procured by JKR on the basis of international shoppingprocedures in accordance with Bank guidelines.

3.43 fMtracting will be carried out using procedures and standard biddocumentation that has already been agreed with the Bank. Foreign contractorswill not be required to register with the Government unless they are beingawarded a contract. Prequalification of prospective contractors will be carriedout for all contracts whose estimated value exceeds US$2 million equivalent.The domestic construction industry is quite active and there are manyconstruction companies throughout Malaysia who would be prepared to bid on thesecontracts, although not all of those likely to apply have the requisite financialresources, experience, personnel or equipment to successfully carry out therequired work. For LCB, any foreign contractor who wishes to do so mayparticipate on an equal basis with the domestic contractors. Tenders will bearranged in such a manner so as to allow bids to be let simultaneously for oneor more contract packages with provision for appropriate discounts for the awardof combined packages. While it will be possible, due to combining of groups ofsmall contracts, for contractors to bid on more than one of these contractpackages at a time, nevertheless, the small size, geographical dispersion andisolation of most of the contracts to be let under LCB is expected to discourageforeign contractors from bidding. While prequalification of contractors willnot be required for contracts having a total value of less than US$2.0 million,a careful and thorough post-qualification exercise will be carried out by JKR,using procedures and evaluative methods satisfactory to the Bank, to ensure thatcontract awards are made only to firms with the necessary financial, technical,equipment and personnel resources to enable them to satisfactorily complete thework. There should be no difficulty in achieving meaningful competition.

- 29 -

3.44 ConsultLng services for technical assistance and training, for designof highway improvements, rehabilitation, and pavement strengthening, and for newbridges as well as for construction supervision of all civil works included inthe project, amounting to approximately US$13.1 million will be obtained inaccordance with the Bank's Guidelines for the Use of Consultants, The domesticconsulting industry is very active, qualified and experienced in the type of workneeded and would be able to satisfactorily carry out the work required with thepossible exception of certain specific expertise, such as may be needed for somebridge repairs or strengthening, that may not be easily available within thecountry. While the consultant selection process will include foreign firms, itis likely that foreign consultants, where needed, would be engaged as individualsor through joint ventures with local firms to provide the expertise or experiencethat may not be available domestically. The consultant's terms of reference,their suitability for the specific assignment and the draft contract to be usedwill be reviewed and approved by the Bank before their appointment.

3.45 Prior Review. All bidding packages for civil works estimated tocost US$2.0 million equivalent or more (i.e., 70% of the total civil worksfinanced under the project) would be subject to the Bank's prior review ofprocurement documentation. Bidding packages for civil works estimated to costless than US$2.0 million would not be reviewed routinely by the Bank but JKRwould maintain copies of the bid evaluation for the Bank's inspection and sendfinal contracts to the Bank for approval prior to submission of the firstwithdrawal application. All contractual arrangements with consultants will besubject to the Bank's prior review, and all arrangements for fellowships,training and study tours to be financed under the project will be subject to theBank's prior review and agreement.

H. Disbursements

3.46 Disbursements from the Loan Account would be made at 40% of totalexpenditures for civil works. For equipment procurement, technical assistancc,consulting services, fellowships, training and study tours, disbursements wouldbe made at 100% of total expenditures. Disbursements will average 46% ofexpenditures, not including contingencies or the costs of land acquisition.Including contingencies, the Bank loan will finance about 36% of totalexpenditures. To accelerate project start-up, retroactive financing is proposedfor expenditures incurred after May 1, 1989, up to a maximum of u8$8 million.

3.47 Disbursements for expenditures on individual contracts of less thanUS$150,000 equivalent would be permitted on the basis of Statements ofExpenditure (SOE). Supporting documentation would be retained by JKR, would besubject to auditing under agreed procedures and would be made available forinspection by Bank staff during project supervision missions. Disbursements forexpenditures on contracts valued in excess of US$150,000 would be fullydocumented.

3.48 A schedule of estimated disbursements is given in Table 3.12, whichalso shows the profile for previous transport projects in Malaysia. Given theproject's design and content, implementation is expected to be faster than

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indicated in the profile, with full disbursewent likely in five years. The loanclosing date would be June 30, 1995.

I. Accout and Audit

3.49 JICR would establish and maintain a separate project account forexpenditures under the project. Agreement was reached during negotiations thatannual audits of the project account would be carried out in accordance withgenerally accepted auditing standards and procsdures by independent and qualifiedauditors. Audit reports, in a format satisfactory to the Bank, for eachfinancial year would be furnished to the Bank within nine months of the end ofthe audited period. The audit would contain a separate opinion where statementsof expenditure have been used as a basis for disbursement.

J. Monitoring and Reporting

3.50 JKR would provide the Bank with quarterly reports on all phases ofthe project, including the progress of the agreed Action Plans. These reportswould be prepared by the Roads Branch using data and contributions from each ofits participating units, including the state and district offices, and from HPUand other agencies involved in implementation of the various Action Plans. Eachyear, JKR, EPU, the Treasury and the Bank would exchange views on JKR's annualbudget for maintenance to determine the adequacy of the funds provided and toreview the balance between capital investment in highway infrastructure andrecurrent expenditures for maintenance of existing roads. The Bank and JKR willalso hold annual consultations to review the various proposed programs for thecoming project implementation year, to assess the status of the project, thevarious Action Plans and JKR's maintenance operations and to discuss and resolveoutstanding issues and implementation problems. JKR will, in addition, provide,the Bank with a Project Completion Report within six months of the loan ClosingDate. During negotiations, agreement was reached with the Government onmonitoring targets for road maintenance and pavement rehabilitation andstrengthening for the project period and project reporting requirements. Annex3 shows project monitoring indicators and gives details of reportingrequirements.

4. M ECT JUSTIFICATION

Benefits and Sensitivitv Analysis

4.1 The main criteria for selecting components included in the projectis their economic rate of return (ERR). All road improvement, upgrading andrehabilitation components as well as the bridge replacement program have beensubjected to formal economic analysis. The replacement of substandard bridges,road safety improvements as well as pedestrian overpasses for which safety isthe principal justification have not been subjected to economic analysis in viewof the difficulty of imputing benefits to the value of life. The two highwayimprovement components have ERRs of 218 and 33%, respectively, while theupgrading, rehabilitation and timber bridge replacement components have ERRsranging from 128 to well in excess of 100% since these investments are merelypreserving or improving existing assets of substantial value. All projectcomponents yield ERRs above the opportunity cost of capital in Malaysia which

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is 10%. The weighted average ERR of all project components for which benefitshave been quantified is 24%, and under the most pessimistic sensitivity test

applied (20% increase in costs and 20% reduction in benefits), the weighted

project ERR ranges from 12% to 25%. still judged acceptable. Details of the

evaluations of the individual project components are contained in Table 4.1.

To ensure flexibility in investments to be made under the project, agreement was

reached with the Government on the methodology for evaluating potential project

investments, including the requirement that an ERR of 12% be demonstrated. The

following paragraphs describe the benefits considered in the evaluation process

for each project component.

4.2 Bridge Rehabilitation. For bridges not being replaced for safety

reasons, the benefits considered in the evaluation include: (a) the avoided

maintenance cost savings, (b) savings in vehicle operating costs (VOC) due tothe speed change cycle, (c) the avoided extra length VOC savings when bridges

are closed for repairs, (d) the removal of load restrictions, and (e) the removal

of waiting time.

4.3 Highwav Rehabilitation. The main benefits obtained from the proposed

project road improvements are the substantial savings in VOC accruing to road

users. Benefits such as reduced travel time, safety and riding comfort would add

substantially to the analysis but have not been quantified. The benefits of the

pavement rehabilitation are derived from reduced surface roughness, as well as

smoother vertical and horizontal alignments. Operating cost parameters for

various road alignment types were obtained from an inventory of all project roads

carried out by JKK.

4.4 Hiehwav Improvements. For improvement of the Kuantan-Gambang and

Johor Bahru-Kota Tinggi Roads, the only benefits considered in this analysis are

reductions in VOCs over the life of the investment. Traffic volumes were forecast

for the period up to 2012 based on traffic counts carried out by the Highway

Planning Unit. Three differentiated traffic sections were considered for the

Johor Bahru-Kota Tin"gi Road and two for the Kuantan-Gambang Road. The traffic

analysis produced annual growth rates ranging between 8% and 12% on the twosections. Economic costs and benefits were estimated for each of the five

sections net of taxes and related to each other over an economic life- of 20

years, assuming an implementation period of four years.

4.5 Improved Maintenance. Benefits expected from improved and expanded

maintenance operations as a result of the Maintenance Improvement Program and

project technical assistance and training are not quantified, but in the future

should translate into significant savings in vehicle operating costs.

Impact of the Project on the Poor

4.6 It is difficult to estimate the precise impact of the project on the

poverty group since the project benefits would accrue to the population at large

rather than any particular income group.

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Environmental Imnact

4.7 The proposed highway improvements and other road works included inthe project are expected to have no negative impact on the environment. Existingroad alignments will be followed to the extent technically feasible, and anydeviations are expected to be extremely minor. Consequently, the acquisitionof rights-of-way will be minimized. The project should, in fact, have afavorable effect on the environment in view of technical assistance to beprovided to establish procedures for environmental impact studies to be carriedout prior to road construction and maintenance. Erosion and flooding will alsobe reduced by the improvements to drainage facilities and appurtenances. Roadsafety would be enhanced by the implementation of the project road safetyimprovement program as well as by replacement of unsafe bridges, roadwaywidening, improved pavement and better maintenance. Since the road sectionsincluded in the project are mainly in rural areas, the urban impact of theproject is not significant.

Risks

4.8 The project poses no major risks. There is a possibility thatdifficulties with land acquisition could delay implementation of the projectcomponent for improvement of 56 km of road. This matter is, however, beingvigorously pursued by the Government, which has already frozen the necessaryrights of way. Some slack is also available for this activity in the projectschedule so that soi- delay can be accommodated.

5. AGREEMENTS REACHED AND RECOMMENDATION

5.1 During negotiations, agreement was reached with the Government onthe following:

(a) HPU would be made responsible for coordination of federal and stateinvestments in highways and for coordination of these investmentswith other transport investments planned by the Ministry of Transport(para. 2.18);

(b) by June 30, 1990 JKR would be given total authority over theassignments of its personnel at all levels (para. 2.21);

(c) annual consultations of the Government and the Bank in November ofeach year during the project period to review the scope andcomposition of the federal road maintenance program for the comingyear, and of procedures and methodologies to be applied in itspreparation (para. 3.9);

(d) to reduce by at least 70% by December 31, 1994 the existing backlogof deferred periodic maintenance of roads (para. 3.9);

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(a) details and timing of the Action Plans for Maintenance Improvement,

for Truck Weight Control and for Road Safety Improvement (paras.

3.9, 3.12 and 3.15);

(f) scope and timing of technical assistance and other consulting

services to be engaged, outline terms of reference and estimated

costs (para. 3.29);

(g) general scope and composition of the maintenance training program

for the project period (para. 3.30);

(h) an implementation plan and schedule for project execution (para.

3.35);

(i) audit procedures and reporting (para. 3.49);

(j) monitoring targets for road maintenance and pavement rehabilitation

and strengthening for the project period and project reporting

requirements (para. 3.50); and

(k) criteria and methodology to be used in determining eligibility of

subprojects to be financed under the project (para. 4.1).

5.2 Subject to the above assurances and conditions, the proposed project

provides a suitable basis for a Bank loan of US$83.2 million equivalent to

Malaysia, for a period of 17 years, including a grace period of five years, at

the Bank's standard variable interest rate.

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MAItYSIA Table: 1.1

HIGHWAY REHABILITATION AND IMPROVEMENT PROJECT-- - - - - -- -- -- - ....................

Transport Investment Summary(M$ Millions) 1/

. . ...... _... _......... .... ......... .... ......... ... ... _. .... ......... .........

Malaysia Investment Plans

4th Plan 4th Plan 5th Plan 5th PlanOriginal Actual Original Revised

Roads 2,467 4,167 7,644 4,228

Rail and Rapid Transit 300 651 1,049 232

Ports and Marine Service 736 1,484 401 497

Civil Aviation 612 874 1,667 1,568

Total Transport 4,115 7,176 10,761 6,525

Total Plan 49,025 74,063 69,000 43,181

Transport as % of Total Plan 8.4 9.7 15.6 15.1

Actual Development Expenditures for Federal Roadsin Peninsular Malaysia, 1976 - 1986

(M$ Millions) I/

Year Amount Year Amount Year Amount

---- _ - --- . ----.- --- - . -- . .. --- .- - ..-- --- .- -.-.-- -.. -.

1976 193 1980 203 1984 250

1977 192 1981 283 1985 242

1978 196 1982 357 1986 213

1979 195 1983 327

I/ In current terms.

Source: EPU and JKR.

July 1989

17-Jul-89Filename: Investment (B) No. 12

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MALAYSIA Tabte: 2.1


Evolution of Peninsular Malaysia's Road Network

(km)

Federal State Total Fed. dnd State GrandYear .............................. .............................. . . . Total

Paved Unpaved Total Paved Unpaved Total Faved Unpaved

1955 3,334 383 3,717 4,706 1,982 6,688 8,040 2,365 10,4051956 3,115 386 3,501 5,067 1,880 6,947 8,182 2,266 10,4481957 3,380 218 3,598 5,045 1,918 6,963 3,425 2,136 10,5611958 3,783 249 4,032 4,788 1,904 6,692 8,571 2,153 10,7241959 3,820 181 4,001 4,980 1,945 6,925 8,800 2,126 10,9261960 3,880 164 4,044 5,184 1,931 7,115 9,064 2,095 11,1591961 3,844 193 4,037 5,325 1,928 7,253 9,169 2,121 11,2901962 3,898 204 4,102 5,874 2,376 8,250 9,772 2,580 12,3521963 3,968 149 4,117 6,283 2,468 8,751 10,251 2,617 12,8681964 4,006 233 4,239 6,900 2,590 9,490 10,906 2,823 13,7291965 4,263 326 4,589 7,391 2,569 9,960 11,654 2,895 14,5491966 4,335 354 4,689 7,751 2,535 10,286 12,086 2,889 14,9751967 4,418 439 4,857 8,182 2,401 10,583 12,600 2,840 15,4401968 4,522 413 4,935 8,599 2,417 11,016 13,121 2,830 15,9511969 4,559 393 4,952 8,900 2,372 11,272 13,459 2,765 16,2241970 4,612 385 4,997 9,161 2,265 11,426 13,773 2,650 16,4231971 4,689 356 5,045 9,438 2,069 11,507 14,127 2,425 16,5521972 4,714 440 5,154 9,794 2,083 11,877 14,508 2,523 17,0311973 4,718 425 5,143 10,103 2,008 12,111 14,821 2,433 17,2541974 4,707 448 5,155 10,351 2,131 12,482 15,058 2,579 17,6371975 4,717 535 5,252 10,576 2,134 12,710 15,293 2,669 17,9621976 4,798 752 5,550 10,906 2,508 13,414 15,704 3,260 18,;641977 4,845 811 5,656 11,333 2,671 14,004 16,178 3,482 19,6601978 4,921 1,005 5,926 11,455 2,788 14,243 16,376 3,793 20,1691979 4,939 1,088 6,027 12,036 2,625 14,661 16,975 3,713 20,6881980 5,269 1,108 6,377 12,587 2,951 15,538 17,856 4,059 21,9151981 5,386 1,264 6,650 12,817 3,319 16,136 18,203 4,583 22,7861982 6,484 1,622 8,106 13,635 3,801 17,436 20,119 5,423 25,5421983 6,506 1,895 8,401 13,929 4,225 18,154 20,435 6,120 26,5551984 7,060 2,117 9,177 14,059 3,997 18,056 21,119 6,114 27,2331985 7,231 2,299 9,530 14,302 3,829 18,131 21,533 6,128 27,6611986 7,240 2,300 9,540 14,329 3,801 18,130 21,569 6,101 27,6701987 7,325 2,300 9,625 14,410 3,720 18,130 21,735 6,020 27,755

............... ............................ .. .. . ... . . . . . . . .. . . . . . . . . . . . .. . . .

Notes: 1. Figures do not include municipal roads.2. The unpaved category includes both gravel and earth roads.3. Figures for 1984 onwards reflect acdninistrative changes in road classifications.

Source: JKR

June 1989

14-Jul-89

- 36 -

MALAYSIA Table: 2.2, .......... ..........

NIGHNAY RENABILITATIOM AND IMPOVEMENT PROJECT

Lenwth ot Roads In Penirsular Nalaysia By State, 1987-km)

.........................................................................................................................

Federal Roads State Roads Toll Expressways............. .................................................. ....................................... ..............................................

States Unpaved Paved Total Unpaved Paved Total Compieted Under To Be Total

Construction Constructed

......................................................................... ................................................

Perlis 121 121 14 392 406 0

Kedah 69 309 378 890 1,990 2,880 56 24 31 111

Penang 125 125 139 865 1,004 14 51 65

Perak S5 713 768 229 2,061 2,290 50 25 173 248

Selangor 696 696 729 2,111 2,840 33 108 141

Negri Sembilan 375 647 1,022 157 902 1,059 60 36 96

Mblacca 118 118 26 777 803 48 48

Johore 520 1,235 1,755 273 2.202 2,475 28 36 112 176

Pahang 921 1,976 2.897 522 1,104 1,626 36 36

Yrernganu 136 856 992 212 1,254 1,466 0

Kelantan 224 529 753 529 752 1,281 0

Total 2,300 7,325 9,625 3,720 14,410 18,130 276 169 474 918

............................ I............... ................................................................

Source: JKR.

June 1989

14-Jut-89Filename: Roadstat (Disk 2), No. 54

- 37 -

Table: 2.3MALAYSIA

HIGHWAY REHABILITATION AND IMPROVEHENT PROJECT

Traffic Composition on Major Links of Federal HighwaysIn Peninsular Malaysia, 1986

(%)

Cars and Light Medium HeavyRoad Section Motor Utility Trucks Trucks Trucks Buses Total

Cycles Vans--------------------------- Percent -----------------------

Route 1 (Alor Setar - JB) 14.1 50.4 10.8 12.1 8.5 4.1 100

Route 2 (KL - Klang) 14.5 71.3 7.2 3.5 1.8 1.7 100

Route 3 (Kuantan-Kota Baru) 25.6 41.6 13.2 9.6 7.6 2.4 100

Route 4 (East-West Hwy) 10.8 36.4 15.9 14.3 20.2 2.4 100

Route 5 (Ipoh - Pontian) 27.8 44.4 10.9 9.6 3.8 3.5 100

Route 6 (Penang) 49.5 35.1 5.5 3.0 0.3 6.6 100

Source: HPU.

June 1989

14-Jul-89Filename: AADT (Disk 1), No. 1

MALAYSIA

HIGHWAY REMABILtTATION AID iMtROVEMENT PROJECT............ ,.............................

Traffic at Selected Locations on Toll Expressways in Peninsular Malaysia, 1985-1988

........................................................ ..................................................................................................................................

Canositfon (%) Caposmition (t) Composition (X) Coaposition (X)

AADt 2 Axtes 2 AxLes 3 Axles AA9D 2 Axles 2 Axles 3 Axles AADT 2 Axles 2 Axtes 3 Axles AADT 2 Axtes 2 Axles 3 AxlesToll Plana and 4 and 6 ard and 4 and 6 and and 4 ad 6 and Bus and 4 and 6 and Bus

wheels Wheels Above Wheels Wheels Above Wheels Wheels Above Wheels Wheels Above

.................................................................................................................................................... ................................................................................................

Sungai Besi 29,776 85.0 10.2 4.8 31,573 87.3 8.6 4.1 32,371 87.7 8.3 4.0 35,352 87.8 5.5 4.1 2.6

Sere,rban 17,903 80.6 13.0 6.4 19,365 84.5 9.8 5.7 10,192 89.2 3.6 2.2 5.0 10,895 89.1 3.7 2.3 4.9

Gorbak 11,417 82.6 10.7 6.7 12,252 83.5 10.0 6.5 12,481 83.4 10.2 6.4 13,01S 83.9 9.5 6.6

Sentong 7,186 75.8 13.9 10.3 7.652 77.0 12.8 10.2 8,045 77.5 12.9 9.6 8,324 78.3 12.0 9.7

Johor Bahru 24,502 83.5 12.1 4.4 23,974 83.1 12.1 4.8 26,312 83.6 11.8 4.6 28,239 84.3 11.3 4.4

Bukit Kayu Hitam 662 75.7 6.2 18.1 834 78.3 5.8 15.9 1,000 83.6 5.4 11.0 1,220 86.2 54 8.4

Senai 19,926 77.3 14.9 7.8 18,972 76.2 14.8 9.0 20,134 76.9 14.1 9.0 21,664 76.9 14.1 9.0 1

Alor Setar 4,735 96.5 2.8 0.7 3,607 96.6 2.7 0.7 W

Slim River 9,280 68.5 20.5 11.0 9,418 67.8 21.6 10.6 9,658 67.2 22.3 10.5 9,447 70.2 18.2 11.6Pe¶ang Bridge 11,236 93.2 5.4 1.4 10,612 92.6 5.5 1.9 12,256 92.3 5.7 2.0 16,590 92.2 5.9 1.9

11PM 6,868 94.1 4.1 1.2 0.6 7,4? 93.5 4.6 1.3 0.6

Kajang 10,595 93.2 4.5 1.8 0.5 11,547 93.2 4.5 1.8 0.5

Bangi 5,395 93.1 4.4 1.4 1.1 6,052 93.5 4.1 1.4 1.0

Wilta 3,427 77.2 13.4 7.4 2.0 3,742 76.8 14.2 7.1 1.9

Port Dickson North 4,946 86.7 5.8 6.0 1.5 5,256 86.9 5.7 5.8 1.6

Port Dickson South 4,665 86.6 5.8 6.0 1.6 4,879 86.6 5.7 6.0 1.7

Senawang 6,541 74.1 12.0 10.4 3.5 6,755 75.2 11.5 10.3 3.0

Pedas Linggi 498 95.5 3.1 0.6 0.8 544 95.7 3.1 0.7 0.5

Siapeng Aapat 3,823 84.7 7.0 4.7 3.6 3,969 85.1 7.4 4.5 3.0

Ayer Keroh 5,834 86.4 6.6 4.4 2.6 6,317 83.5 7.6 6.1 2.8

Changkat Jering 7,010 88.2 5.1 3.3 3.4 6,900 86.9 5.8 4.0 3.3

Kuala Kangssr 3,154 92.6 4.4 1.4 1.6 3,613 90.2 5.6 2.8 1.3

Jelapang 8,571 88.2 S.5 3.2 3.1 8,454 85.9 6.7 4.3 3.1

Hutan KanpunS 3,901 91.5 3.6 3.3 1.6

Ator Setar Worth 3,450 95.8 2.7 0.8 0.7

Alor Setar South 3,195 95.9 3.1 1.0

Gurun 3,619 92.5 3.1 2.7 1.7

......................... ................. .............. ........... .................. ............ .................... ... ... ............. ...................... .................. .................................. ...

Source: HPU

July 1989

17-Jul-89Filename: Toltplaza (Disk 2), No. 61

.5

MALAYSIA

NIGHWAY REHABIIITATION AND INPROV1ENT PROJECT

Cumulavive NuMber of Notor Vehicles in Peninsular Malaysia by Type and Year, 1977-1986

Year Motorcycles Motorcars Buses Taxis Hire I Drive Cars Goods Vehicles Other Vehicles Total

................ ............................... ................ ................................ ............ ................................ ............ .................................. ........................ ... .... .. ....Wisher X Wisher X Wisher X Wisher X Wisher X Wwmber X Wusber X Wisher X

1977 951,080 58.7% 491,933 30.3% 10,545 0.7% 10,907 0.7% 378 0.0% 112,025 6.9% 44,403 2.7% 1,621,271 100%1978 1,079,020 59.0% 555,358 30.3% 11,589 0.6" 11,587 0.6% 464 0.0% 122,543 6.7% 49,397 2.% 1,829,958 100%1979 1,195,997 59.1% 612,199 30.2% 12,276 0.6% 12,182 0.6" 523 0.0% 135,682 6.7% 56,479 2.8% 2,025,338 100% l1980 1,391,899 59.0% 714,742 30.3% 13,079 0.6% 13,644 0.6% 703 0.0% 154,543 6.6% 68,786 2.9% 2,357,386 l00%1981 1,556,516 59.1% 797,143 30.3% 13,898 0.5% 16,115 0.6% 991 0.0% 167,432 6.4% 79,853 3.0% 2,631,948 100%1982 1,744,433 59.5% 881,923 30.1% 15,199 0.5% 17,168 0.6" 1,238 0.0% 180,882 6.2% 89,258 3.0% 2,930,101 100%1983 1,948,342 59.9% 974,170 29.9% 16,069 0.5% 18,497 0.6% 1,897 0.1% 195,752 6.0% 98,506 3.0% 3,253,233 100%1984 2,132,791 59.8% 1,075,328 30.2% 16,944 0.5% 18,816 0.5% 2,292 0.1% 212,628 6.0% 106,668 3.0% 3,565,467 100%1985 2,289,669 59.9% 1,151,979 30.1% 17,841 O.S% 19,445 0.5% 2,544 0.1% 232,624 6.1% 111,393 2.9% 3,825,495 100%1986 2,396,679 59.8% 1,206,000 30.1% 18,703 0.5% 19,660 0.5% 2,721 0.1% 246,828 6.2% 114,581 2.9% 4,005,172 10X

. ............. ....................... ............ ....................... .... .......... .........................

Source: J.IR. Amual Statistical Bulletin, 1986.

Juty 1989

17-Jul-89Filenale:Register (Disk 1), Ho. 24

- 40 -

MALAYSIA Table: 2.6

HIGHWAY REHABILITATION AND INPROVEMEIT PROJECT................................................

Accident Statistics for Peninsular Malaysia

Vehicles Total Fatality Vehictes

Total involved tength totat Casuatties Deaths Rate per

Year Population Vehictes in of Number of ............................ . . .......... Due to per 1.000

Accidents Roads Accidents Fatat Serious Minor Total Injuries 10,000 Persons

(000's) (10,000's) (km) Sustained Vehicles...................................................................................................................... I.............

1978 10,945 183.0 91,122 21,438 56,021 1,909 4,535 15,215 21,659 2,561 14.0 167.2

1979 11,189 198.9 94,788 22,035 57,931 1,979 6,012 14,620 22,611 2,60Z 13.1 177.8

1980 11,442 235.7 99,485 23,113 59,084 2,001 5,664 14,739 22,404 2,568 10.9 206.0

1981 11,735 263.2 100,175 23,816 58,768 1,755 5,257 13,333 20,345 2,S00 9.5 224.3

1982 12,039 293.0 116,947 24,434 68,330 1,951 5,498 13,217 20,666 2,976 10.2 243.4

1983 12,345 325.3 128,198 27,440 72,634 2,282 6,057 15,589 23,928 3,220 9.9 263.S

1984 12,817 356.6 128,989 28,582 73,72? 2,303 6,052 14,722 23,077 3,344 9.4 278.2

1985 13,156 382.5 131,814 29,692 75,300 2,118 6,219 13,187 21,524 3,304 8.6 290.7

1986 13,492 400.5 124,628 29,805 71,557 2,124 6,042 12,900 21,066 3,185 8.0 296.8

1987 13,655 411.7 118,094 30,692 68,066 1,975 5,772 11,628 19,375 3,015 7.3 301.5

1988 13,959 427.4 111,986 31,600 1/ 65,127 2,070 6,015 12,464 20,549 3,022 7.1 306.2

1/ Estimated.

Source: HPU

June 1989

14-Jul*89Filename: Accident (Disk 2), No. 28

MALAYSIA

HIGHWAY REHABILITATION AND IMPROVEMENT PROJECT................. ...............................................

Geometric Des8gn Criteria for Major Roads in Rural Areas

Design Control and Criteria............................

Desgn Standard R6 RS R4 R3 R2 RI RIAAccess Control FULL PARTIAL PARTIAL PARTIAL NIL NIL NILArea Type F R N F R N F R N F R N F R N f R N F R NDesitn Speed Ks/hr 120 tO0 80 100 80 60 90 70 60 70 60 50 60 5 40 40 30 20 40 30 20

Cross Sectfon Elements......................

Lane Width a 3.50 3.50 3.25 3.00 2.75 (5.00) 1/ (4.50) 1/houtlder Width m 3.00 3.00 2.50 3.00 3.00 2.S0 3.00 3.00 2.00 2.50 2.50 2.00 2.00 2.00 1.50 1.50 1.50 1.50 1.50 11.50 1.5

Shoulder Width $000 m 1.00 1.00 1.00 0.50 0.50 0.50 0.50Nedian Width (Minimu) * 6.0 5.0 4.0 4.0 3.5 3.0 3.0 2.5 2.0 N/A N/A N/A N/AMedian Width (Desirable) m 18.0 12.5 8.0 12.0 9.0 6.0 9.0 6.5 4.0 N/A N/A N/A N/AMarginal Strip (Width) O.S0 0.50 0.25 0.25 0.00 0.00 0.00Ninima Reserve W idth m 60 60(50) 21 40(30) 2/ 20 20 12 12

Eleuents of Design...................

Stopping Slght ofstance a 285 205 102 40 85 180 120 8 120 85 0 85 65 45 45 30 20 45 30 20Passinig flght Distance m N/A 700 550 450 625 S00 450 500 450 350 450 350 300 300 250 200 300 250 200Ninio Radfus a 570 375 230 37 230 125 300 17S 125 175 12S 8OS 1258 S S0 50 30 15 5030 15Ninim Length of Spiral a 133 121 104 88 70 59 70 S9 55 59 SS 43 SS 43 39 N/A /AI

Naxia. Superelevation Ratio 0.10 0.10 0.10 0.10 0.10 0.10 0.10

Naxium Grade (Desirable) % 2 3 4 3 4 5 4 5 6 5 6 7 6 7 6 7 8 9 10Maximum Grade X 5 6 7 6 7 8 7 8 9 8 9 1 10 12 10 12 15 25

Crest Vertical Curve (K) 120 60 30 60 30 15 45 22 15 22 15 10 15 10 10 10 5 5 10 S 5Sg Vertical Curve (K) 60 40 28 48 28 1S 35 20 1S 20 1S 12 15 12 10 10 8 8 10 8 8

...........................................................................................................................................

1I Total width of pavement2/ Reserve width depends on road category

notes: 1. All values shoem above are minfew*Amxim. values. Efforts should be made to achieve as high a value as possible.2. Abbreviation: F * Flat, R a Rolling, N a Nountafnous, N/A a Not applicable

Source: JKR. Technical Instrurtions (Roads).

June 1989

07-Nov-89filename: Design (Disk 2), 43

MALAYSIA

HI6HWAY REHABILITATION AND INPROVENENT PROJECT

boeetrfc Design Criterfa for Major Roads In Urban Areas

.-...................................... ................................................................................................................

Design Control and Criteria............................

Desgon Standrd U6 Us U4 U3 U2 U1 UleAccess Control FULL PARTIAL PARTIAL PARTIAL/NIL NIL NIL NILArea Type I It III I II III I II III I It ItI I II III I II III F R NDesign Speed KWhr 100 80 60 80 60 50 70 60 50 60 50 40 N 40 30 40 30 2040 30 20

Cross Section Elements......................

Lene Width a 3.50 3.50 3.25 3.00 2.75 (S.00) I/ (4.50) 11Shoulder Width m 3.00 3.00 2.50 3.00 3.00 2.50 3.00 2.S0 2.00 2.50 2.00 1.S0 2.00 1.50 1.50 1.50 1.50 1.50 1.50 i.50 1.50Shoulder Width $0100 m 1.00 1.00 1.00 O.SO 0.50 0.50 0.50

aedian W*dth (Minima) m 4.00 3.50 3.00 3.00 2.50 2.00 2.50 2.00 1.50 2.00 1.50 1.00 N/A N/A N/AMedan Width (Oesirable) m 12.0 9.0 6.0 9.0 6.5 4.0 7.5 5.0 3.0 6.0 4.0 2.0 N/A N/A N/AMarginaL Strip (Width) a 0.50 O.SO 0.25 0.25 0.00 0.00 0.00Minima Reserve Width a 60 SO 40(20) 2/ 30(20) 2V 20 12 12

Elements of Design...................

toppinh Sfsht DOstance * 205 140 85 140 85 65 11S 8S 65 85 65 4S 65 45 30 45 30 20 45 30 20Passing Sight Distence m N/A S50 450 350 500 450 350 450 350 300 350 300 250 300 250 200 300 250 200Minium Radius a 45 280 150 280 150 100 210 150 100 150 100 60100 60 35 60 35 15 60 35 15Nini aLength oft piral 73 63 53 45 35 32 35 32 26 32 26 23 N/A N/A N/AMaxima Superelevat10n Ratio 0.06 0.06 0.06 0.06 0.06 0.06 0.06Noxou. Grade (Deafrabte) X 3 4 5 4 5 6 S 6 7 6 7 8 7 8 9 7 8 9 7 8 9Maxif Grade X 6 7 8 7 8 9 1 9 10 9 10 12 10 11 1 12 1 10 12 15Crest Vertfd Cwure (K) 60 30 15 30 15 10 20 15 10 15 10 10 10 10 5 10 5 5 10 S Ss "fertical Curve () 40 281S 28 15 12 20 15 12 15 12 10 12 1 0 8 10 8 8 108 S.................. ............................................. .................................

1t Total width of peveAmnt21 Rceseve width depends on roed category

"otes: 1. All values hon aboe are einba/exli- values. All effort should be ode to achieve as high a value a possible.2. Abbrvations I a Flat, II a Rolting, III a Nosmtinotus, N/A a Not applicabteI a Relatively free in reed locatien uwth vwery tittle problews as regards to land awquisitaon, affected buildins or other

socfal IV sensitive areas.it G Inteedisato beteen I and It.II1 I Vey restrictive in reed location with problem as to lan acquisition, affected buiLdings or other sensitive areas.

Source JOR. Technical Instructfons (Reads).

Je 1969

07-Nov-89Filena es: Urbweesign (DIsk 2), No. 641

- 43 -

NALAYSIA Table: 2.9

HIOMIAY RENABILITATION AND INPRONEIT PROJECT

Geometric Design Criteria for Roads in Rural Areas

Group Unit 01 02 03

ADT Two Mayp Veh/day <100 100-250 250-400

Terrain F R N F R N F R N

Design Speed Km/h 50 50 30 60 50 40 80 60 S0

Pavemmnt Type Laterite Laterite

Surface Width m 4.5 5.0 6.0

Usable Shoulder Vidth-Min 1/ m 1.25 1.25 1.00 1.25 1.25 1.00 2.00 2.00 1.00

Formation Width 2/ m 8.0 8.0 8.0 8.5 8.5 8.5 11.0 11.0 9.0

Reserve Width - Minimum m 20 20 30 30

Naximum Gradiebnt X 7 9 10 6 8 10 4 6 9

Critical Grade Length 3/ m Not Applicable Use LaY Byes 350 180 120

Stopping Light Distance-Nin 41 m 60 60 60 80 60 60 110 80 60

Passing Sight Distance-Ninimum m Use Lay eyes 430 350 350 560 430 350

Ninimum Radius m 80 80 30 120 80 50 210 120 80

Transition Curve Min Length 5/ m Not Applicable 70 60 60 80 70 60

Widening m 0.75 1.00 1.50 0.75 1.00 1.50 - 1.00 1.25

Superelevation Ratio 1s10 1:10 1:10

Camber/Cross Fall Ratio 1:25 1:30 1:30

Vertical Curve Crest Nin K 6/ as 10 10 10 15 10 10 30 1S 10

Vertical Curve Sag Min K 6/ mX 12 12 8 16 12 10 24 16 12

Bridges

Overpass Widths betweenParapets m 7.0 7.5 8.0

Underpass Widths between

Abut Walls m 7.0 7.0 8.5

Vertical Clearance OverRoadways m 4.50 4.50 4.50

1/ Shoulders to be paved with laterite material.

2/ Formation width includes 0.5 m each sIde for rounding.

3/ Use truck climbins lanes If critical grade length is exceeded.

4/ Stopping light distarce to be increased on downgrade.

5/ Values given are for mininum length required for 10X superelevation run-off.

6/ Ninifum length of vertical curve: 'L" KA. L a curve length in meters; A n AlSebraic difference

of grade in percent.

Abbreviations: m a meter; R a Rolling; F - Flat; N a Nobutainous; Veh a Vehicle; min a minifum.

Source: JKR

Jurm 1989

3 } ji | | || S ij 2 j i Table 2.10

a3. a.a aaa 31 a. a. a. a.ia. }313131- 3RS1 . a a 'i I

3 . -33 49es **jo

a] ! * * * .4 14~ t 49 9~

I 1. * 49 I9 49 49 49 N 4 e 9o *

| 3iI ea j, * * . * - a I4 s4 3

|1~~~~ ~~ N 49 !9 .4 49 --- 3 h'| I | 1 * 4 ee * fj *3X

3: * :}*, ! - -~ --~- a j

.! _b 1 _ -

3i i I | I |t *' Z a a ;^.eeoZg

* i41 4.. '. a e-be~

4 ' 4a I a.il:0sli

MALAYSIA

NIONWAY RENABILITATION AND IMPROVEMENT PROJECT..............................................

Actual and Antfipated JKR Road MaIntenance Budgets for FederalNHihways in Penimuwlar Malaysia By State, 1965-19K4

(M MltlIon) 1/

...............................................................................................................

Actual llocations Anticipated BudgetsRood Section -........................................................................................

1965 1986 its7 1968 1909 1990 1991 1992 993 1994

............ ........................ .. ............... ............................ ............................. ............... ............................... .....

PERLIS 1.50 1.06 0.82 0.81 0.71 1.87 1.94 2.12 2.10 2.28

KEDA" 5.70 6.38 2.32 3.49 3.75 5.41 5.63 5.85 6.09 6.33

PEINAS 2.68 2.98 1.67 1.58 0.99 2.86 2.98 3.10 3.22 3.35

PERAK 14.68 8.97 14.80 19.93 10.00 9.13 9.S0 9.88 10.27 10.69

SELAMOR 10.10 S.97 8.70 5.65 15.00 12.00 12.48 12.98 13.50 14.04

NEGRI SED ILAN 11.69 11.35 4.88 5.03 15.00 11.00 8.50 8.84 9.19 9.56

NMACCA 2.41 1.66 2.25 1.65 0.82 2.27 2.36 2.46 2.6 2.66

JONIRE 14.87 17.82 12.S8 14.68 17.00 19.00 19.76 14.00 14.6 15.14

PAHANG 17.21 11.56 16.12 10.72 10.00 9.31 9.68 10.07 10.47 10.89

TRENGAANU 11.55 9.11 9.39 9.74 7.55 9.39 9.76 14.00 14.56 15.14

KEUANTA 4.92 12.30 10.33 8.20 9.08 10.04 1O.44 10.85 11.29 11.74..... ......... .... ... .. ..... ... .... ... .... ... .... ....... .......... ....... ........... ..

Totals 21 97.31 92.16 83.86 81.48 89.90 92.28 93.03 94.15 97.81 101.82

Required Budgets 3/ O * - 125.00 155.00 155.00 160.00 165.00

if In Current term.2/ Does not Include allocation for fedhral headquarters in KuLal Lwpur.3/ Budget allocations needed to properly carry out routine and pertodIc maintenance, ncluding reducing

existing backlog of deferred periodic maintenance by 70% during 1990-1994.

Source: JKR

Jura 1989

18-Jul-89Fitlenuie: JKRBudget (Disk 1), No. 13 -

- 46 -

Table: 2.12MALAYSIA -

HIGHWAY REHABILITATION AND IMPROVEMENT PROJECT, ................ -- - - - - - - - - - - - - -

Distribution of Maintenance Personnel By State, 1989

------Professionals------ ---Operators--- LaborersStates Engineers Tech. Techni- Drivers Heavy Eq. Totals

Assistant cians Operators

Perlis 1 1 5 5 14 187 213

Kedah 12 9 26 28 46 692 813

Penang 2 3 11 12 12 476 516

Perak 11 20 26 39 62 1,627 1,785

Selangor 7 11 16 42 72 703 851

Negri Sembilan 9 8 24 16 56 870 983

Malacca 5 4 11 13 29 463 525

Johore 12 12 34 38 58 28 182

Pahang 11 13 27 40 113 1,104 1,308

Trengganu 6 7 22 33 60 651 779

Kelantan 7 11 28 16 46 371 479

LKTP Pahang 7 3 10 20

LKTP Bahau 2 2 10 14

Johor Tenggara 2 0 1 3

Pahang Tenggara 4 1 13 18.... --- --- -- -- --- --.- -

Totals 98 105 264 282 568 7,172 8,489

Note: JKR's headquarters in Kuala Lumpur has 9 professional staff in its maintenancedivision.

Source: JKR.

July 1989

14-Jul-89

- 47 -

MALAYSIA Table: 2.13


Personnel Needed to Manage and Execute Annual Maintenance Program, 1989

Existing Estimated SurplusPersonnel Total or(June 89) Required (Deficit)

Personnel Needed for Program Administration and Contract Supervision

Professionals, Management andSupervision of Contracts 104 120 (16)

Supervision of Force AccountWorks and Workshops 383 384 (1)

Administrative Personnel 180 194 (14)

Drivers 96 121 (25)

Subtotal 763 819 (56)

Personnel Needed for Force Account Work

Foreman 1,030 1,311 (281)

Operators 2,142 2,622 (480)

Skilled 2,183 3,933 (1,750)

Unskilled 5,097 6,555 (1,458)

Subtotal 10,452 14,421 (3,969)

Grand Total 11,215 15,240 (4,025)

Note: Assuming present productivity.

Source: JKR.

June 1989

14-Jul-89Filename: Persons (Disk 2) No. 49

- 48 -

Table: 2.14MALAYSIA -

HIGHWAY REHABILITATION AND IMPROVEMENT PROJECT.. .. . ...... . . .. . . .. ... -- - -- - -

Distribution of Bridges on Federal Highwaysin Peninsular Malaysia by State

Number

State ofBridges

PERLIS 45

KEDAH 85

PENANG 90

PERAK 330

SELANGOR 200

NEGRI SEMBILAN 250

MALACCA 85

JOHORE 450

PAHANG 310

TRENGGANU 175

KELANTAN 120

Total 2,140

Source: JKR.

June 1989

14-Jul-89Filename: Bridges (Disk 1), No. 3

MALAYSIA

HIGHWAY RENABILITATUN AND IMPROVEMENT PROJECT,. .... ...... ........... ...........................

Rehabilitation and Strengthening Program forFedwrat Roads In Peninsular talaysia

,.................................................................................. ...............................................................................

Locatlon Road Width (t) Average Estinstedsectlon Route State -------- L-e--------n-------- --------------------- -- Legth ------------------ Road Cost Cost

No. From To (Ku) Present Proposed Condition per Km (MS Milt)(MS OGOs)

..............................................................................................................................................

I I Penans Penang/Perak Boundary Kedah/Penmng Boundary 61 6.7 7.3 Fair 246 1S.0

2 1 Kedah 4 km South of Alor Setar Kedmh/Pearon Boundary 41 6.7 7.3 Poor 268 11.0

3 50 Johore Bstu Pahat Keluang 53 6.7 7.3 Fair 245 13.0

4 5 Johore 3 bk North of Batu Pahat 23kmn orth of Batu Pahat 20 6.7 7.3 Fafr S00 10.0

5 S Johore 8atu Padat Pontfan KeciL 73 6.7 7.3 Fair 247 18.0

6 3 Johore Kota Tfnigi Johore/Pahang Eoundary 129 6.5 7.3 Fair 333 43.0

7 3 Pahang Kuantan Johore/Phdang Boundary 149 6.1 7.3 Fair 336 S0.0

a 5 Perak T*Iuk Intan Perok/Selangor Boundary 36 6.1 7.3 FaIr S00 18.0

Totat 562 317 173.0..................................... .................................................................................. w.......................................................................

Notes: Sections 1 and 2 to be let as one contract.Sections 3 and 4 to be Let as one contract.Costs of land acWqisition and contingencies are not incLuded.

Source: JKR and Mission.

I-.

w

MALAYSIA

HIGMYAY REHABILITATION AND IPtOVYEMENT PROJECT

Action Plan for Maintenance Improvement

Federal Roads and Bridqes in Peninsular Malaysia

Item Dates

ho. Activity Agencfes Start End Remorks

1. Assigrmant of one quallf ed Road Engineer to Civitl Service Board. Janury 1990 December 1990 These are not teqrary assigtuents.

each JOR district office in Penfnsutar Malaysia Roads ranchh NOW

to be responsible for all mintenance activities. and JCR

He i8 to have no other responsibitites. Inaddition, at least one tehnicalt assistant andone technician are also to be assigned as supportstaff to each district office so that a viablesmintenance unit cmn be formed.

2. Altocation of adequate tunads for Maintenence of Treasury EPU end January 1990 December 1990 Se table 2.11

Federal Roads. MOW

3. further extensmon of Cosputeriled Pavement Roads Branch and JKR January 1990 Oecenber 1991 With technicat assistance provided I

Maintenance Wanagement (BSM) System to state Training & Research urder the project. ln

iCR off ices. institute o

4. Carry out Rehabilitation and Strengthening Roads Orench and JKR Jaeuary 1990 December 1993 See Table 3.1

Progra for Federal Roads in Peninsular Training & ResearchMalaysia. Institute

S. Iprovement of training for Maintenance Roada Branch and JKR January 1990 Decemter 1993 With technical assistance provided

Nwnagement Trainfng Centre under the proJect.

6. ExtensIon of Axle Load Study Roads Branch and HPU January 1990 Decefher 1993 Follow on to work begas by consultants.

T. Evaluation and Extension of Roads Branch and State January 1990 December 1991 For routine caintenance.

Maintenance Contract System JKRO&

S. improvement in superwision of Roa ds Branh and State January 1990 Deeimber 1991 With technieal assistance financed urder

Works by Contract and Force JKR14 Loan 2642-NA Id i3

Accoumt. t

9. Research and Use of New Technotogies Roads Branch and JKR Jansary 1990 Decerier 1991 With technical assistance provided through A m

for maintenance of roads and bridges Training & Research British bi-laterat aid. ow

Institute OftN

N-

Item DatesNo. Activity Agencies Start End Remarks

10. Ilwopvement & Updating of Condition Inentorfes Roads Branch and all Jamuary 1990 Decmber 1993 WIth technical assistance provided urderfor Roads and rIdbes State JKRs the project.

11. Establthdmnt of computertzed Bridge Nalntenmnce Roads Branch January 1990 Oeceaber 1992 WIth technfcal assistance provided underSystem the project.

Source: JKR and NlsslenJune 1989

V1

a -a

MiIJ

- 52 -

MALAYSIA Table 3.3


Replacement of Timber Bridges forFederal Roads in Peninsular Malaysia

Bridge EstimatedState Route Location Number Cost

(M$ 'OOOs)

Perak 58 Changkat Jong - Bider 51/5 80048/8 1,40051/4 1,200

60 Batu Hampar - Chankat Jering 45/5 30047/2 40048/3 70051/1 900

70 Changkat Jong - Kampar 27/2 60040/11 1,20047/6 800

73 Parit - Pusing 20/7 700

77 Pengkalan Hulu 135/1 900135/3 400

Johore 50 Klaung - Jemaluang 3/101 500

Pahang 9 Karak - Manchis MS 119 1,200MS 121 600MS 134 900MS 137 600

10 Triang 79/1 1,700

64 Maran - Jerantut 53/6 90060/1 1,000'85/2 80086/9 50093/12 500

Total: 24 Bridges Total Cost 19,500

Source: JKR and Mission.

July 1989

19-Jul-89Filename: Bridges (Disk 2) No. 39

- 53 -

Table 3.4

AlA"YSIA

................................HlIHNA? RERADILITATION *50 IIWROVIN!NT PROJECT

Reptacaent of Substandard Brfdges forFederal Roads in PenInsular Nalaysia

............ .................................................................................................. ......

State Route No. of Structuro Estimated CostNo. Bridges o. CMIMOOOs)

..... ....... ..................... ........................................... ......... .......................... ........ .

Kedabh 1 2 844/0 700862/1 200

1 t 8033 W800

PenWs I 724/5 4,0001 3 735/4 300

747/5 400mA 600

Perak 1 2 S91/0 2,500662/2 600

5 4 561/9 200562/9 400576/S 90063S/7 600

1 3 522/8 7005SS/4 100

S73/5 140

Selangor 1 1 439/3 300S 3 346/6 600

381/5 350491/6 300

Neri Sabilon 1 5 265/4 300280/5 60028z2/ 300297/1 600300/2 600

1 1 289/0 600

Nalacca 5 I a5eV5 200

ohore 1 1 29/8 3005 2 62/1 200

136/2 200t 5 176/6 160

213/2 5505S/6 20052/3 200

118/2 3003 1 1S9/4 250

Pahang 2 2 285/4 600317/9 600

3 I 191/1 3.0002 1 377/4 500

Trenggean 3 3 584/0 550589/6 700642/1 00

Total 43 26.900

.................... ........................................ .... ..................... ..................................

* first PhasSource: JER end Nissien.Novener 1989

MALYSIA

NIGNUAY REHASILITATION AND IMPROVEMENT PROJECT

NIGUNAY IMVEMNT SIJPROJECTS

Sub-Project Length AADT Estimated Average Costand Contract Descript1on (in) (vehletes) Features Cost (MSNW ) Per lb (oadl.)

I Kuantan to Baubana Road

Package I Kuantan Twmn to 2.91 30,000 Upgrading to 4 lanes 26.? 9.18Kuantan River and to JKR R6 Standard

One InterchangeOne Najor Bridge (2 Lanes)

Package 2 Kuntan Rliver to 8.09 28.000 Upgrading to 4 lanes 28.7 3.55Pekan Road and to JKR R6 Standard

One Interchange

Package 3 Pekan Roed to 8.38 18,OO0 Upgrading to 4 Lanes 26.5 3.16Besar River and to JKR R6 Standard

One Interchange U,One Bridge (4 Lanes)

Subtotal 19.38 4t.9 § Z3

II. Johra Bshru to Koto Tfnmaf Road

Package I on 12 to Ma 21 9.0 13,000 Upgrading to JKR RS Standard 17.6 2.0

Package 2 Km 21 to Km 48 27.2 10.000 Upgrading to JKR RS Standard 31.6 1.2

Subtotal 3 49.2 1.

Total VA

Note: Costs of land acqjpsittin and contingencies are not inctuded.

Source: JKR and Mission

Jure 1989

.

- 55 -

NALAYSIA Table 3.6

HIGHWAY REHABILITATION AND INPROVEIENT PROJECT Page:

Road Safety Inprovement Program of Hazardous Locations

Estimated Total StatusLOCATION PROBLEM SOLUTION Cost Factor of Land

(NS'O0O) Point Acquisition1/

1. Butterworth Alor Setar - 1. Presence of a T-Junction 1. ReLocation of bus stops. 200 609.4 None RequiredSumbong Lima N.S.13.00-14.00 near a bridge. 2. Putting up additional

2. Problem further compounded traffic signs and properby presence of 2 bus stops road markings.on both sides of road very 3. Improving juctionnear the Juction. geametrics.

3. Poor road markings.4. Restricted sight distance

ckae to existing buitdingand trees.

2. utterworth - Alor Setar - 1. Road width insufficient. 1. widening of road and 350 529.2 None Required-ukit Tenpah 1.S. 6.25-20.50 2. Vertical aligauent poor. shoulder.

3. Narrow road shoulders. 2. Improvemant of vertical4. Location of a junction on aligrnent.

a curve. 3. Retocation of services.5. Insufficient road markings 4. Improvement of super-

and roadside furniture, elevation.6. Services too near the road.5. Improve sight distance7. lproper superelevation. near junction.

6. Putting up eMitionalsignings and proper roadmarkings.

3. Jalan Butterworth - Ipoh - 1. Divided 2 lane road. 1. improve road markings & 750 251.4 CompletedSg. Sakap. H.S. 17.00-18.50 2. Uneve road surface. putting up additional

3. Low divider. road signs.4. Five Junctions along the 2. Increasing height of

stretch. divider (to be morevisible).

3. Improvement of Junctiongeometric,.

4. Jalan Sutterworth - Ipoh - 1. Insufficient road width. 1. Widening of road. 800 186.2 To acquireNibong Tebal 2. Pubtic services too near 2. Provision of storage lane

road edge. for right turning on main3. Insufficient road signs. road.4. Poor juction geometris. 3. To put up adequate road5. Location of Juctions in signs.

accident area. 4. Design of properT-juction.

5. From N.S. 43.00 to N.S. 45.00.1. Accident area. 1. Upgrading of road 150 180.8 Nlone RequiredKetulpeng Distriet of nulu 2. Winding roads and poor furniture (such asSelangor. Selanoor Darul Ehsan superelevation. guardrais af sigtboards

and road markings).

6. From Kg. Baru KeluqMV 1. Accident area. 1. Upgrading of road 400 366.4 None RequiredJuction to Keluqpan TOeM 2. Narrow shoulder and poor furniture (such asjuction superelevation. guardrails, siganoards,

3. Poor location of bus-bay. and road markings).4. Improper juction geometrics2. widening of shoulders.

3. Shifting of bus-bay.4. Improvement of juctfons.

7. Jalan Kelang - Sepang - Kg. 1. Area concerned is cross 1. Upgrading and widening 400 175.2 To acquireJenjarm. 11.S. 14.00-14.25 junction. of juctions & approach

2. Sight distance restricted roads with provisiondue to existing buildings. for traffic light

3. Placement of bus stops installation.

- 56

NALAYSIA Table 3.6

NIGIWAY RENABILITATION AND IMPROVENENT PROJECT Page: 2

Road Safety Improvement Program of Htazrdous iawations

Estimated Total StatusLOCATION PROSLEM SOLUTION cost Factor of Land

(NS'OOO) Point Acquisition1/

...............................................................................................................................too near juntion. 2. Puttirn up additional

4. Narrow roads. wsrnihg signs.5. Poor road warkings. 3. Remaval of sight6. Inadequate sign boards. obstructions if possibte.

4. Put up proper roadcarking.

8. Jatan Ketwn - Sepang, 1. Area concerned are 1. Improving atigrcent of 900 175.2 To acquireN.S. 18.00 19.00 T-junctions at M. S. 18.00 stretch between junctions.

and N.S. 19.00. 2. Upgrading of Junctions2. Poor design of juctions. with proper chamelization.3. Poor road markings and 3. Widening of effected

traffic signs. roads and approaches.4. Poor superetevation.

9. Ktang - Kuala Selangor - Sabekl. Accident area. 1. Improve horizontat atign- 80O 281.8 To acquireSenn from N.S. 20.00-20.50 2. Poor road geometry. ment and superelevation.

3. Insufficient road furniture2. lidening of road to 3.75mand road markings. and road shoulder to 3.0m.

4. Poor horizontal aligment. 3. Provide sufficient roadfurniture such assiuiboards and road markings.

10. Ktang - Kuala Selangor Sabaki. Presence of mini rouid 1. Improve horizontat align- 300 201.4 None Requiredserns N.S. 28.5 to M.S. about on the main road. ment and superelevation.29.001 4.00 2. Accident area - inadequate 2. WIdening of road to 3.75.

road geometry. and road ahoulder to 3.0m.3. Drivers driving from Ktang 3. Provide sufficient road

and Sabak Bernan (north and furniture such as sign-south) at excessive speed. boards end road markings.

4. Insufficient sign boards 4. Replace the roundaboutand road markings. T-junction with proper

S. Existing street light - not channelization. Under-lighted at night. ground cabte conduits are

6. Roundabout tayout and necessary to be installedapproach road to the rowud- for future trafficabout are improper. signatization.

7. Insufficient sight distance5. Irprove the existing roaddue to the ptanting of superelevation.shruts trees on bend 6. Provide sufficient andaround the roundabout. proper road furniture,

such as road signs, roadmarkings and others.

11. JaLan Batu Pahat Air Hitae: 1. Accident area. 1. Improvement of junctiln 2,000 2198.8 To acquireEatu Pahat N.s. 76.00 2. Narrow road and improper and access road.

road access. 2. Upgrading of road to R53. Improper junction standard.

geometrics. 3. Provide proper drainage4. Poor drainage system. system.

4. Upgrading of internaLroad in the housingscheme.

5. Relocation of eLectricalpoles.

12. Jalan Pontian - Batu Pahat; 1. Accident area. 1. Improvement of geocmtrics 1,800 1300.6 To acquireSatu Pahat, N.S. 73.00-76.00 2. Iqproper juction geometry. for juction ard road for I

km.2. Construction of new

pvenent over the new

- 57 -

PALAVSIA Table 3.6

NIGNYAY REHABILITATiON A"D INPROVNEN£T PR CJECT Page: 3..............................................

Road Safety lAprvment Program of lasardeus Locations

...............................................................................................................................

Estimated Total StatusLOCATION PROLEN SOLUTION Cost factor of Land

("IS'OO) Point AcquisitionI/

........................................................................................................................ .......

alS ient.3. laprovement of drainage to

suit the works includingconstruction & lengtheningof culverts.

4. Construction of roadamrkings d furniture aswell as other safetyfteatures.

S. Relocation of services andutilities.

13. Jalan Seresben - Taipin 1. Poor Juction geomatries. 1. Retlivmnmt of horizontal 1.300 693.8 To acquire(Federal Route 1) 2. Insufficient sight and vertical profitSle.intersection to Rantau distances. 2. laproveaent of Junction

3. Narrow road. g_ itrics.4. Presence of bridge after 3. Putting up additional

juctfon (000u from signs and proper roadJumction). mrkings.

5. Inadequate traffic signsand road markings.

14. Jatan SiSpang Pertang - Kerak 1. T-junction in built-up areal. Upgrading of jwuction 400 491.2 To acquire- iopeng Putang 2. T-junction right after gammetrics with proper

curve. chuielization.3. Inadequate sight distance 2. Reelignment of approach

due to existing building, road from Kusla Pilah.4. Poor shoulder. 3. Putting up additionalS. Inadeqltate traffic signs signs and proper road

and road markins. markings.

15. Persiopangan Sahau - Keratong 1. Poor Junction geomatrics. 1. Improvement of junction 650 62 None Required2. Narrow road. geometries.3. Poor sw4erelevation. 2. Widening of rood.4. Inadequate signing and 3. Ierve mnt of

road markings. superelevation.5. Putting op additional

traffic signs nd properrood markings.

S. Improvement of sightdistanee.

16. Kuala Trengganu - Kota haru 1. Very poor vertical and 1. Widening and reducing 1500 288.4 To acquirefrom N.S. 12.50-13.S0 horizontal aligrment. sharp bends of road

according to RS standard.2. Iaprove the vertical

atlfgment.3. loproved horizontal

atignment.4. Provide proper drainage

swtem.5. Provide now culvert to

accocmdate drainage system.6. Provide guardrail for the

safety of road users.

17. Kuala Brang/Kusla Ping 1. Poor sight distance. 1. Widening rood and icprove 2,000 261 To acquireJtmction at h.S. 23.50 Kuala 2. Poor horizontal end the vertical I horizontalTrengganu - Kota Ohmru Road vertical aligcmnts of the alignment as to provide

existing junction. gOad sight distance.2. Design Jurction to RS

- 58 -

MALAYS1A Table 3.6

NIONVAY RENAB1LtTATIOM *"1 IMPROVWEEUT PROCJ£C Page 4

Road Safety Irpwovement Program of Hazardous Locations

Estimated Total StatusLOCATION PROBLEM SOLUTION Cost factor of Land

(MStOOD) Point Acquisition1/

...............................................................................................................................

standard.3. Prowida peeper drainage

system.4. Provide new culvert to

accomodate the draingesystem.

18. Kuala Trenggm - Kuantut Roadi. Traffic congestion at the 1. Roundsabout to be replaced 650 56 Coqpleted(Jalan Kuabng Kurus/Jalan roundabout. with a ducaelited T*Jaker Cuka1 Town) 2. Narrow road with no junctf0n priority to the

provision of shoulder. straight through traffic3. Inadequate road markings from Kuantan - Kuela

and road signs. Trengganu and vfcr versa.2. Upgrading and widenirn of

road shoulder.3. Upgrading of road morkings

si road signs.4. Relocation of services and

utfitites.19. Jalan da Omar/Jalan Sulaimn/ 1. Poor Junction geometrics. 1. Upgrading of Junction from 1.150 56 To acquire

Jalan Air Puteh junction. 2. Inadequate road markings a double T-jumntin into aChuka1 Town and traffic signs. cross junction.

3. Inadequate traffic signet 2. Iqroveuent of drainagephasing. system.

3. Redesign of traffic signal.4. Upgrading of traffic signs

end proper lane markings.

20. Jalan Melaka - Uuw a Siepang 1. Narrow road. 1. Videning of road and 1,400 262.6 To acquireS&rkam (BT 11.50) 2. Cross-Jumctfon. iq pesvment of Junction

3. Poor 3umetion geometrics. geometries.4. Restricted sight distance. 2. Putting up addifftial

roed signs and proper lanemarkings.

3. Relocation af services andutilities.

4. Putting up street lighting.

21. Jatan Retaka - Muar Sifpang 1. Poor junction geometrics. 1. eproevinnt of IumctIon 1,200 100.4 To acquireDuyong, N.S. 3.00 2. Narrow road. geometries.

3. Inadequate signing. and 2. Widening of approach roadlane marking. to lunction (both sifds).

4. Road surface uncelating. 3. Putting up additional5. poor sight distance due signs ard proper road

to existing buildings. markings.pm 44. Overlaying of roads.

5. Relotation of services.

22. Jalan Melaka -uir Sicaenp 1. Junction right after curve.1. Ilprovement of Junction 2,000 207.8 To acquireKandang, M.S. 4.00 2. Poor junction geemetrics. geametries.

3. lnadeqluate signings and 2. Uifdning of approachlane markings. roads to Junttion.

4. Road supeteltvation is poor3. Putting up additionalS. Poor sight distance dce to signs end proper road

existing road. markings.6. Narrow road. 4. Overlaying of roads.

5. Relocation of services.

23. Jalan Kualt Tranggam - Kota 1. Road surface unoen. 1. To impfrve vertical and 6.000 294 CompletedBharu KM 3.2 Km 12.0 KM 2. Marrow carriageway. horizontal aligm nt.

- 59 -

AL"YSIA Table 3.6............... .............

NHIASUY REHABILITATION AND INPROWMNT PROIECT Page: 5..............................................

Road Safety Ilprovement Program of Hazardous Locations

Estimated Total StatusLOCATION PROLE SOWUTIOC Cost Factor of Land

("Slo0o) Point Acquisition1/

...............................................................................................................................

3. fradequate horizontal and 2. Put up adequate signsvertical aligenoet. ard road marking.

4. Insufficient road signsand markings.

S. Heavy traffic flow.

24. Jalan Ipoh - Kuala Lumpur 1. Heavily trafficked road. 1. I¢qrove vertical and 1.400 198 CoopletedKM 12.80 - KM 16.00 2. Inadequate horitontal horizontal atlireAnt.

profIle. 2. Put up additional signs3. Inadequate sight distance. and proper road markings.4. House close to road.

25. Jalan Kuala LuWr Ipch 1. Junction located on curve. 1. lIprovent of vertical 1.000 165 Completed(Sip2ng Kuala Kubu Baru) 2. Inadequate sight distance. and horizontal profile.

3. Inadaquate traffic signs 2. Putting up adequate trafficaid road markings. sign and proper lane

4. Location of gas station marking.very near to the Junction. 3. Improvmnt of Junction

5. poor Junction geometrice. geomtries.26. Jalan Ipoh Kuala Kangsar 1. Village area (Houses near 1. Iprovmmnt of vertical 1.200 130 Coapleted

Km 33-K 34 the road). and hortzontal profile.2. Heavy traffic flow. 2. Putting up adequate3. Minding road. traffic signs and proper4. auerous acess. lane markings.5. Poor geonwtrics. 3. Control aceess (provide

service road).27. Jalan Ipoh Kuala Lupur 1. Sharp corners with limited 1. Realisment of existing 1800 492 Conpleted

KM 35.4-KM 40.2 (Route 1) sight distance. road at locations with2. Ltndulating vertical profile sharp corners (to be

with poor sight distance. identified exactly afterenineering survey) andimprovement on verticalcuraes with adversegradient.

2. Improve, widen andehabilitate shoulders of

those sections of roadwith poor side table anddrainage structure,especially those sectionsnaming along rollingterrain.

3. Installation of morepromiinent warning signs.

28. Jalan lachang Malim KM 1. Numerous access, both 1. Upgrade the road to a 3.000 321 On going1.6-KM 5.0 (Route 19) legal and otherwise found deal 2-lan carraigeway

along this section of the since the road is a majorrcad. arterial to Melaka taem

2. Almost all junctiorns are with major frontagesub-standard and do ot development.comply to JOR standard 2. Minimize junctioncwing serious hazards to requirement and provideroad users. suitably designed

signalized Junetion atappropriate locations.

29. Jalan Simpeng Re_ega Km 1. Major Jutmtion at sharp 1. Upgrade the main trunk 1,800 228 Coamleted57.6-KM 84.8 (Route 1) curve in the heart of a read (Route 1) to a dual

toem. 2 lae carraigeway along

- 60 -

MALAYSIA Table 3.6

HIGINAY REHABILITATION AND I1PROVENENT PROJECT Page: 6

Road Safety Ioprovemant Program of Hazardous tocations

.................................................................................................... I...................

Estimated Total StatusLOCATION PROBLEN SOLUTION Cost Factor of Land

(0*000) Point AcquisitionI/

...............................................................................................................................

the town area.

30. Serecban - Port Dickson K 1. Windding and narrow roads. 1. Improvement of wvrtical 3,000 272 On goingSIN 11 2. Poor superelevation. and horizontal ali8nmmnt.

3. Inadequate sight distance. 2. Putting Up adequate4. Insufficient road signs signing and proper road

and road markings. markings.S. Numerous access roads. 3. Proper access design.

31. Sereotan Taqpin IN 9-KiN 13 1. Poor elignment control. 1. loprovement of vertical 2,000 166 On going2. Narrow road. and horizontal eligrnents.3. Inedaquwte signs. 2. Putting up adequate4. Poor superelevation. signings.

32. Persimpansan Di IN 30.4 Jatan 1. Ioadequate sight distance. 1. Itprovement of vertical 400 164 CoapletedKulai 2. Junction on vertical slope. ad horizontal alignoents.

3. Inadequate signs and road 2. Putting adequate trafficmarkins. signs and proper road

4. Junction in builtt-p area. markings.S. Poor geometrics. 3. Praopse signalization of

Junction.33. Jalan Kapela Batas - Jitre IN 1. Narrow road. 1. Wtdening of road. 2,000 235 Completed

20.8 - K 26.4 2. Heavy traffic. 2. Putting up adequate3. Houes near road. traffic signs and proper4. Inadequate signs and road road markings.

markings.

34. Jalan telaka - Nuar (SioPan 1. Presence of T-junction in 1. Upgrading of junction 500 To acquiresg. Usbhi) built tp area. geometrics with proper

2. Restricted sight distance chasmelization.c-- to existing building. 2. Widening of road.

3. Narrow road shoulder. 3. Putting up additional4. High traffic volue. traffic signs and proper

road markings.

35. Jatln Nelaka Nwuar (Sliuan 1. Presence of staggered 1. Upgrading of junction 800 To acquireJalan Parit Putat & Simpeng T-junction. geomatrics with properJalan Tanah Nerah) 2. Poor sight distance. chalmelization.

3. Narrow road shoulder. 2. Widening of road.4. High traffic volume. 3. Putting up additional

traffic signs d properroad markings.

36. salon Sereaban Tanpin 1. Accident area. 1. tmproving horizontal 1,200 To acquire(IN 32.1-IO 33.4) 2. Poor horizontal aligrant. aligusnt end

3. Poor supervision. super-elevation.2. Provide sufficient and

proper road furniture.

37. Jalan Kuale Trenggame Kota 1. Accident area. 1. lIprove horizontal and 1,700 285.8 Mone RequiredSharu (IN 27'IN 33) 2. insufficient road width. verticle aligments.

2. Putting up additionaltraffic signs and properroad mrkings.

38. Jalan Kuala Trengganu - Kota 1. Accident area. 1. lmprove horizontal and 300 254.2 Mone RequiredSharu (It 40Km 41) 2. insufficient road width. verticle alignments.

2. Putting up additionaltraffic signs and properroed mrkings.

- 61 -

VALAYSIA Table 3.6........ ............ ~~~~~.............

HIGHWY REHWILITATIN UI lPOVEIENT PlotMECT Pae: 7..............................................

Road Safety lsprvemnt Prprm of hazrdous Locations

Eatimted Total StatusLOCATION PULEN SOLWTION Cost Factor of Land

(S'000) Point Acquisition1/

...................................................................................................................I............

39. Jalan Kusla Trengaa - 1. Accident area. 1. lorizental realigomnt I 1,400 To acquireKuantan (KN 122.28-EN 127.11) 2. Insufficient road width. eOifn sharp bends

3. Sharp band. according to RS Standard.2. Putting up traffic signs

and proper read markings.

40. Jalan Kuala Trenganu- 1. Accident area. 1. orizantal realiwuent , 1800 286 on goingKuantan (IE 36-0N41) 2. Insufficient road width. redfnr sharp benca

3. Sharp bud. according to RS Standard.2. Putting up traffic signs

ad prepar road markings.

41. Nemperbaili Persiqman Di 1. Existing small roendabout 1. To repiace existinr 20 t Nomn RequiredSiqpang Labis, Johor hes low c pacity and roundatbut with properly

frequently causes safety dhannalized junction.hazard.

42. Neaperboili Pers1ipengan Di 1. Existing Kulai team has no 1. To provide suitably 500 None RequiredEsader Kulai, Jcoer proper traffic mwagement designed medians and

and pedestrian facilities. pedestrian crossing2. Haphazardly located fa*clities.

parking are has created 2. Signalized jumction.problem on road safety for 3. Relocation of bus laybysthrough-road traffic. and parking areas.

Estimated Total Cost 53.300

. . . . . . . . . . .. . . . . . . . . . . . .. . . . . . . . . . .. . . . . . . . . . . . . . . . . . . .

I/ Each of the 267 identified hazardous locations were rated as to dagree of hazard (factor points) and the 42 highestpriority sites were included in the project.

Source: JKR

July 1989

19-Jul-89Filename: Locations Disk 2. go. 47

- 62 -

MALAYSIA Table 3.7


Road Safety Improvement ProgramOverhead Pedestrian Bridges

_. _.. ... _.. ... ..... ............. ... ..... , . . . .... .. . .@..

EstimatedState Number of Cost

Locations (M$ '000)

Kedah 3 1,040

Penang 2 360

Perak 4 1,020

Selangor 3 1,070

Negri Sembilan 2 460

Johore 8 2,100

Pahang 3 850

Trengganu 1 300

Federal Territory of Labuan 1 400

Total 27 7,600

Source: JKR

June 1989

19-Jul-89Filename: RdSafety (Disk 2)

- 63 - Table 3.8- 634 -___

Page 1 of 4

MALAYSIA


ACTION PLAN FOR ROAD SAFETY IMPROVEMENT

I. The HPU, with the assistance of a Japanese road safety expert who hasbeen assigned to their office since April 1989 under the Colombo Plan,will carry out a long-ter-m road safety engineering program. The mainframework for this program covers the following areas:

a. Develop suitable methodologies for the analysis of road accidents.The methodologies adopted must take into consideration the expertiseand trained manpower at various levels.

b. Develop, in general, a list of immediate measures which can beimplemented under the normal road maintenance program withoutincurring any additional expenses. Similarly, a list of possible lowcost engineering measures and long term engineering measures (usuallyvery costly) will be developed.

c. A time frame will be drawn to cover the whole spectrum of activitiesunder this program--from collecting of road accident data tomonitoring the effectiveness of the improvement project. This timeframe is estimated to be about 10 years. The main activities in theframework are deiineated below. The immediate measures mentionedrefer to those minor works which are implemented under the normal roadmaintenance program. The long term measures are those which areexpected to incur rather high capital outlay, such as upgrading of theroad, signalization, major junction treatment, geometric changes, etc.

d. Develop a financial programme to identify the sources of funding foreach project. The likely source of funding could be one of thefollowing: maintenance grant, local project vote, or foreign funding.

e. A training programme will be implemented within this period. Trainingwill be given to personnel in the department, which include engineers,technical assistants and technicians. The details of the trainingwill be worked out under this long-term program.

f. Road safety findings will be published or presented at seminars,workshops, conferences and courses both locally and internationally.

- 64 - Table 3.8Page 2 of 4

Activity Begin End

1. Review the following:- existing road conditions- accident statistics- financial situation- vehicle composition- type of effective engineeringmeasures Jun. 1989 Nov. 1989

2. Comparison with the road safetyprogrammes in Japan Jun. 1989 Nov. 1989

3. List possible road safety measures Jun. 1989 Nov. 1989

4. Analyze accident data using SystemBS(T) Nov. 1989 Dec. 1989

5. Develop methodologies for:- analyzing road accidents- monitoring the implementation ofroad safety projects

- performing economic and financialevaluation of road safety improvementprojects

- feasibility study of road safetyimprovement projects Nov. 1989 May 1991

6. Implementation of proposed road safetyprojects (42) financed under theproposed project (see Table 3.6) Jan. 1991 Jun. 1993

7. Monitoring effectiveness of the aboveimprovement financed by the proposedloan Oct. 1991 May 1994

8. Performing specific research on roadsafety Jan. 1989 Dec. 1991

9. Arranging for increased funding forroad safety improvements Jan. 1989 Dec. 1989

10. Implementation of remaining identifiedroad safety projects based on the thirdexercise Jan. 1993 Dec. 1995


Activity Begin End

11. Monitoring effectiveness of roadsafety projects above Jan. 1993 Dec. 1998

12. Training of personnel Jan. 1989 Dec. 1993

13. Fourth exercise to identify high accidentareas on the Federal road network. Oct. 1992 Dec. 1993

14. Implementation of road safety projectsidentified based on the fourth exerciseabove, (a) Immediate Nov. 1994 May 1996

(b) Long Term Oct. 1994 May 1998

15. Monitoring effectiveness of roadsafety projects above Jun. 1995 Dec. 1999

16. Fifth exercise to identify high accidentareas on the Federal road network Jul. 1995 Dec. 1996

17. Implementation of road safety projectsidentified based on the fifth exerciseabove, (a) Immediate Nov. 1997 May 1999

(b) Long Term Jan. 1998 Dec. 1999

18. HPU to provide expertise and technicalassistance to the State and DistrictJKR's in road safety engineering forState road network Jan. 1989 Dec. 1999

19. Provide engineering expertise and know-howto other agencies in the field of roadsafety Jan. 1989 Dec. 1999


II. Apart from ensuring that roads are designed, constructed and maintained

to a safe standard, JKR's Roads Branch also will continue to undertake

projects concerned with road safety. Some of these are as follows:

a. Localized improvement of 42 high accident areas identified by HPU

under the proposed project.

b. Construction of overhead pedestrian crossings under the proposed

project.

c. Replacement of timber bridges which are sub-standard under the

proposed project.

d. Minor improvement works to road intersections using local funding.

e. Installation of traffic signals at identified road intersections.

f. Traffic management in smaller towns on the federal road network, for

example Kulai and Jerteh.

g. Resurfacing and rehabilitation of federal roads.

h. Installation of additional road signs and road pavement markings.

i. Study into the effectiveness of the yellow transverse bars on safety.

J. Study into the usage of road studs on road safety--especially during

night-time.

k. A comparison study into the effectiveness of post-mounted and

cantilevered warning signs.

1. Study into the guidelines for local speed limits.

Source: HPU, JKR and Mission

June 1989

MALAYSIA

HIGHWAY REIIABILITATIOM AND I"PROMENT PROJECT

Summary of Technical Assistance

Financing sourceIte Descrimtion HuiNber of Man-Months E s t i ma ted Proposed Other

Experts Cost (OSM) Proleet Scurce

Mafntenance Imurovemant PrOaram

Pavement Management Assist In further development and 1 24 0.50 XSystem dissemination of computerized model for

pavement mnagement.

Bridge Manaeement 1. Assist in formulating, establishing,System instituting and operating a

coqputeri zed bridge management systemincluding training of JKR staff fnits use, operatfon and maintenance. 4 72 2.00 X

2. Provide necessary hardware, software As required 0.85 Xand supplies.

3. Assist in development of new series 1 12 0.25 Xof standard bridge designs to conformto new bridge loading requirementsderived from increase in allowableaxle loads.

Training Assist training institute at Bangi in 1 24 0.75 Xformulating and instituting improvedand expanded road and bridgemaintenance and constructionsupervision training courses.

Construction Provide training in proper contruction 2 48 1.50 World Bank LwndSupervision supervision methods and systems. both Settlement

formal and on-the-job, to JKR staff Infrastructureengaged in construction supervision Project Loanwork for construction and maintenance 2642-MAof roads and bridges. Assist in theestablishment and initial operation ofa Maintenance and ConstructionSupervIsion Monitoring Unit withinJKR's headquarters maintenance unit.

0o

Financina sourceJim Descriotion Number of W5onthl E tima t ed Proposed ther

Experts cost ("SM) Proiect

ofahwav Platnino Un1t

Transport Planine Assist HPU in its new wider role as 1 36 0.85 Xcoordinator of all road investmentsamn the federal awencies and thestates, including liaison with mOT anoverall transport planning by providingadvice, safstance end trafning toconcerned HPU staff. Also assist HPUin reviewing cost recovery am.ntransport modes, with particularconcentration on roads.

Road Safety Assist NPM to set up and operate a 1 24 0.75 xpermanent road safety monitoring andanalysis unit utilizing a cowputerizeddata base including training of HPUstaff on-the-job and by means of forml courses at overseas Institutions intraffic engineering and road safetydesign.

Roads Branch

lighway Design Assist JKR's Roads Branch to establish 1 9 0.27 Xa full-fledged CADm system integratedwith the equipment presently being usedby carrying out a study to determinethe needs In terms of hardware andsoftware and recomending theappropriate faciitites tn be acquired.Provide assistance in obtainingsuitable hardware and software and inestablishing and implementing the CADDSystem includin3 training of JKRperswmel in its use.

Enviromental lopaect Assist JKR's Roads Branch to establish 1 3 0.08 XStudies procedures and methodologfes for ffeld

investigations and analysis of theenvironmental impact of roadconstruction and maintenance work,including training of JKR staff.

FinancinG sourceJim Deriation Number of Nan-onths E s t I ma ted Pro osed Other

Experts Cost (N9Ln Prodect Soure

FelLooship. Training To iwpove capabitity of JKR and HPU As required 1.00 Xand Study Tours staff in mintenance prograring and

operations, in constructionsupervision. In the use of computerizeddesign and drafting system and intraffic engineering and road safetyiatters, inctuding the evaluation andresearch activities in the road sectorbeing carried out by the JKR Trainingand Research Institute.

TOTAL PROJECT 252 8.80

Other FinancingSources 48 1.50

Total We Financingunder Proposed Loan la 0

0.

HALAYSIA

NZGIAY REMABLETAttON AND IMPROVEMENT POJECT

Stmrv of Consultina Services

Lu Aimri4tl an-ponths Estimated Cost (MS mfllion)

Malntenance Iwovement Proaran

Roed RehabiLitation and Strengthening Provide construction supervision 1200 9.00Program services, including laboratory

testing, for eight rood sectionstotalling about 562 km.

Replacement of Substandard Bridges Provide design and construction 4C0 2.90supervision services for approxiSatety25 out of a total of 43 bridges to bereplaced and construction siuprvistonservices onty for about half of theresminder.

Nishw.7 Improvement Subprojects. Provide design review and construction 1t50 8.50supervision services, Includinglaboratory testing, for two highwayImprovement subproJects to beconstructed in five sections totallingabout 56 km.

TOTAL 2750 20.4

Note: Contingencies not included.

"I@* -

0

o S

0.V

- 71 - Table 3.10

MALAYSIA

HIGHWAY REHABILITATION ANO IMPROVEMENT PROJECT... _. ........... ................................. .........

Cash Flow Requirements(USS Million Equivalent)

.......................... ... __......... .............. .............................. ____........... __._......... _...............

------------------ Detail Cost by Years ------------------Project Component 1989 1990 1991 1992 1993 1994 Total

1. Civil Works 0.19 17.62 71.96 69.10 45.27 3.06 207.20_.__- -- -- ...... .--- _._ -- -- ...... . ....... ... ...... ------ __...... . ..__. ... ..... ... .........

A. Maintenance Improvement Program 0.00 0.00 27.21 30.74 25.96 0.00 83.92

8. Reptacement of Tinber andSubstandard Bridges 0.19 4.53 7.32 7.32 2.26 0.00 21.62

- Timber Bridges 0.10 2.01 2.62 3.23 1.13 0.00 9.10- Substandard Bridge 0.09 2.51 4.70 4.09 1.12 0.00 12.52

C. Truck Weight Control Program 0.00 2.92 5.56 2.50 0.84 0.00 11.82

D. Highuay Iprovements 0.00 8.15 21.59 20.40 11.12 0.00 61.25

- Johore haru - Kota Tinggi Road 0.00 1.76 8.65 9.77 2.84 0.00 23.02- Kuantan - Gambang Road 0.00 6.39 12.94 10.62 8.28 0.00 38.23

E. Road Safety Improvement Program 0.00 2.03 10-28 8.13 5.10 3.06 28.60

it. Equipment 0.00 2.39 1.53 2.19 1.87 0.00 7.98------...... ....... ...... ---- ... ... ...... .......

Weighbridges 0.00 1.30 1.53 2.19 1.87 0.00 6.90Computer Hardware & Software 0.00 1.09 0.00 0.00 0.00 0.00 1.09

III. Consulting Services, TechnicalAssistance and Training 0.00 3.32 3.73 3.92 3.10 0.00 14.07i _.. ._................................. . ........... _ ...... ...... ......... ...... ......... ...... ------.............. ... ...

- Consulting Services 0.00 2.23 2.76 2.87 1.96 0.00 9.82- Technical Assistance & Training 0.00 1.09 0.97 1.05 1.14 0.00 4.25

Totat Cost 0.19 23.33 77.22 75.21 50.24 3.06 229.25===Z== =z:&U=z CU=CCZ U=w=== =U=WC` =5 5 C=Z

Land Acquisition 0.00 7.95 1.99 0.00 0.00 0.00 9.94

Total Project Cost 0.19 31.29 79.21 75.21 50.24 3.06 239.20U=SUIU 8uu 3Sg c=z; a== =un= ==rz

..... ....... ___.____....................__.._._ .__._............._._._.__................... ____________..............

Source: Mission and JKR Estimates.November 1989

i-- ----- - ---- - - - -

1 s | * T - - - - - - - - - - - - -

l~~~~~~~~~~~ *5 .[ W W .a a E i i.

.,,N,, I lEW g ig l,,O,UW 4'I-l- - - - - - - - - - - - - - - -

- - - - - - X, W

U. 'K~~%

: : A

- -- -__ __ __ - _ -

.0. - - ~ - ---- ----

-h S : - ----- ----- ----- ---- --- -- -- ---- - - - -

- 73 -

NALAYSIA Teble 3.12

NtZOJIY RERAILITATIUO AND NPRoVsENENT PROJECT....... ............ ...............

Schedule of Estimated Di0bursments(USS Nittin)

............................... .............................................................. -----

Sank Fiscat Year Seoester Cumulative Cumulative Sank Profile (%)and Quarter Ending Disburse- Disburse- () ........... .--

wnants mnt. Countty Sector... ..... ., .... ............. ... ...... . ...... , .....

Estimated Date of Effectivuiss: January 31. 1990.

FY90..........

June 30, 1990 2.0 2.0 2.S 1.4 1.2

FY91..........

December 31, 1990 3.0 5.0June 30, 1991 5.0 10.0 12.0 7.3 6.9

FY92..........

December 31, 1991 5.0 15.0June 30, 192 10.0 2S.0 30.0 17.6 17.1

FY93,..........

Decerber 31, 1992 10.0 35.0June 30, 1993 20.0 55.0 66.0 32.4 31.5

FY94..........

Deceiber 31, 1993 20.0 75.0June 30, 1994 6.0 81.0 97.0 49.S 48.3

FY95

December 31, 1996 2.2 83.2 100.0June 30, 1995 66.0 6C.8

FY96..........

Oecember 31, 1995June 30, 1996 79.5 79.3

FY97..........

Deceaber 31, 1996June 30, 1997 90.0 90.5

FY98..........

December 31, 1997June 30, 1998 97.4 96.3

FY99..........

December 31, 1998June 30, 1999 100.0 100.0

Closing Date: June 30, 1995.............................................................................

1/ Early disbursements reflect retroactive financing of initial works.Source: Sank StaffNovember 1989

* W-1 N --------------------------- _:

, #tt|$t0o!N4 0-4@.§IP- '~ 6 '''

* 0 a0 O; - :

S4 1 S 4

* 3 i= 0

: * 0 : 0:

*------------------------- 4---

* 6 0 0-C-6

,* g~|o§|*g29Xb$SSll*l 4- - C- 6

--------- ______________ ,, .

* 0t _ N00 N082 a gt$ ^ g , B!

.* .. .J .. II I. Zlpx . . 0 4

. .1,o-, 0lt w 8fi;i;t°8 8 ' 830.-

- - - - - - - - ---- - - - - - - - - - -- -

______________- ___ _ ---- 0 -f 0

Table 4.]1- 75 - Page 2 of 6

MALAYSIA

HIGHWAY REHABILITATION & IMPROVEMENT PROJECT

ECONOMIC EVALUATION

PACKAGE A: KUANTAN-GAMBANG

DISCOUNTYEAR BENEFIT COST BENEFIT COST

1989 0 17700 0 177001990 0 20000 0 18181.81991 0 14000 0 11570.21992 10201.6 360 7664.61 270.4731993 11017.4 369 7525.03 245.8851994 11899.0 360 7388.34 223.5321995 12850.7 360 7253.89 203.2111996 13878.9 360 7122.07 184.7371997 14989.4 360 6992.67 167.9431998 15439.4 360 6547.81 152.6751999 15901.8 360 6130.83 138.7962000 16379.4 360 5740.88 126.1782001 16870.7 360 5375.53 114.7072002 17376.7 360 5033.41 104.2792003 17898.1 360 4713.13 94.79932004 18434.9 360 4413.17 86.18112005 18988.2 360 4132.39 78.34652006 19557.8 360 3869.41 71.22412007 20144.4 360 3623.15 64.74922008 20748.7 360 3392.58 58.86292009 21371.3 360 3176.71 53.51172010 22012.1 360 2974.52 48.6472011 22673.0 360 2785.29 44.2246

IRR -21%NPV -$55870.4BCR -2.117FYRR -19.5%

Table 4.1Page 3 of 6

- 76 -

MALAYSIA

HIGHWAY IMPROVEMENT & RAHABILITATION PROJECT

ECONOMIC EVALUATION

PACKAGE B: KUANTAN-GAMLIANG ROAD IMPROVEMENT


1989 0 7500 0 75001990 0 8500 0 7727.271991 0 6000 0 4958.681992 5097.84 440 3830.08 330.5791993 5709.64 440 3899.76 300.5261994 6394.88 440 3970.72 273.2051995 7162.11 440 4042.82 248.3691996 8021.41 440 4116.25 225.791997 8948.29 440 4191.24 205.2631998 9253.4 440 3924.34 186.6031999 9531.25 440 3674.71 169.6392000 9817.07 440 3440.82 154.2172001 10111.5 440 3221.84 140.1982002 10415.2 440 3016.91 127.4522003 10727.0 440 2824.75 115.8662004 11049.3 440 2645.11 105.3332005 11380.9 440 2476.82 95.75682006 11721.9 440 2319.12 87.05172007 12073.8 440 2171.58 79.13792008 12436.0 440 2033.39 71.94352009 12809.5 440 1904.05 65.40312010 13193.2 440 1782.8 59.45752011 13589.0 440 1669.35 54.0522

IRR -250NPV -$37874.7BCR -2.625FYRR -22.7%

Table 4.177 - Page 4 of 6

MALAYSIA


ECONOMIC EVALUATION

JOHOR BAHRU-KOTA TINGGI MS 25.5-38.0 ROAD IMPROVEMENT


1989 0 6000 0 60001990 0 6000 0 5454.551991 0 5875 0 4855.371992 4977.46 572.75 3739.64 430.3161993 5426.77 572.75 3706.56 391.1961994 5915.76 572.75 3673.22 355.6331995 6446.33 572.75 3638.79 323.3021996 7027.88 572.75 3606.42 293.9111997 7659.81 572.75 3573.36 267.1921998 8041.95 572.75 3410.57 242.9021999 8446.68 572.75 3256.56 220.822000 8867.99 572.75 3108.18 200.7452001 9312.2 572.75 2967.15 182.4962002 9776.6 572.75 2831.93 165.9052003 10264.9 572.75 2703.07 150.8232004 10779.2 572.75 2580.45 137.1122005 11317.7 572.75 2463.07 124.6472006 11884.2 572.75 2351.23 113.3162007 12480.6 572.75 2244.75 103.0142008 13104.4 572.75 2142.67 93.64922009 13759.1 572.75 2045.2 85.13562010 14448.1 572.75 1952.38 77.3962011 15169.1 572.75 1863.46 70.36

IRR -27%NPV -$37518.9BCR -2.843FYRR -26.9%

Table 4.1- 78 - Page 5 of 6

NAIAYSIA


ECONOMIC EVALUATION

JOHOR BAHRU-KOTA TINGGI MS 13.0-25.5 kOAD IMPROVEKENT


1989 0 6000 0 60001990 0 6000 0 5454.551991 0 6463 0 5341.321992 7970.79 572.75 5988.58 430.3161993 8622.97 572.75 5889.61 391.1961994 9331.73 572.75 5794.27 355.6331995 10095.2 572.75 5698.5 323.3021996 10923.6 572.75 5605.54 293.9111997 11818.2 572.75 5513.28 267.1921998 12409.2 572.75 5262.7 242.9021999 13028.0 572.75 5022.87 220.822000 13679.5 572.75 4794.58 200.7452001 14365.4 572.75 4577.27 182.4962002 15085.3 572.75 4369.66 165.9052003 15839.2 572.75 4170.94 150.8232004 16631.1 572.75 3981.35 137.1122005 17461.6 572.75 3800.16 124.6472006 18336.1 572.75 3627.7 113.3162007 19252.2 572.75 3462.68 103.0142008 20215.7 572.75 3305.43 93.64292009 21225.9 572.75 3155.03 85.13562010 22287.0 572.75 3011.65 77.3962011 23402.3 572.75 2874.88 70.36

IRR -37%NPY -$69081BCR -4.315FYRR -41.8%

- 79- Table 4.1Page 6 of 6

_______________________________

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0 1~- ~ u 0.

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- ~ ~ ~ a~2- --- - - - - - - - - - - - -

0 g 0 0 : ^ o e 0 ** o 00

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C -r---- - - - - - - - - - - - -

5 i 2 ^ S M% b% VW In

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-----

c i I HI ls

0. _ -. ee

a. I I _ _ _ _ _ _ _ _ _ _ _ _ __-

- 80 -

Annex 1Page 1

MALAYSIA


TRUCK WRIGHT CONTROL PROGRAM

1. One of the main factors causing the rate of pavement deterioration to

accelerate in recent years in Malaysia has been the increasing prevalence of

truck overloading. The economic incentive to overload trucks, coupled with the

lack of enforcement of regulations, has resulted in widespread flouting of the

law related to maximum truck laden weights. In addition, under present

regulations, truck operating licenses specify not only the number of trucks to

be used on a given route but also the type and size of equipment that is

permitted. The size of conventional vehicles is generally restricted to two or

three axles with trailers limited to a length of 27 feet. In the present day

commercial climate, these vehicles are often too small to be economical and

overloading such vehicles by as much as 100% in not unknown. The maximum laden

weight limit, under present regulations, is 22 tons, with a 9 ton axle loading

limit for single axles and 14 tons for a tandem axle. Axle load surveys

conducted recently showed that over 70% of the trucks weighed were substantially

overloaded. Since the damage to pavements caused by trucks is proportional to

the fourth power of the wheel load, the damage to roads due to overloading is

exponentially more than that which would result from increased numbers of legally

loaded vehicles.

2. Recognizing the seriousness and extent of the truck overloading

problem, the Government embarked on a comprehensive truck overloading and

pavement and bridge capacity study, called the Axle Load Study, through a

consultant firm, covering about 2250 km of federal trunk roads and 966 bridges

in Peninsular Malaysia to determine, among other things: (i) the condition of

the roads and bridges on the most heavily travelled roads of the federal highway

network, with special attention to pavement conditions; (ii) the most economical

combination of axle loadings, vehicle configurations and pavement designs so as

to create an optimum condition in the vehicle-pavement system with respect to

cost, durability and level of service; and (iii) the optimum approach to road

maintenance and pavement management in order to identify the most cost-effective

maintenance Interventions, including types of treatment and timing, for various

traffic densities and pavement conditions. Subsequently, the Government decided

to commission a similar study to cover the federal road network in Sabah and

Sarawak, and this second study is now on-going, being carried out by a consultant

firm. In addition, the Government decided to extend the original study to cover

Annex 1- 81 - Page 2

the rest of the federal trunk road network in Peninsular Malaysia (another 2780km and about 1180 bridges and culverts), utilizing HPU and JKR staff to carryout the work. This Phase II Study is now on-going. The original study (calledthe Phase I Study) has now been completed and Is presently under review by theGovernment. If its major conclusions and recommendations are accepted, as islikely, it is expected to lead to a revision upward to allowable weights,dimensions and axle loadings for trucks, which will imply substantial changesto pavement and bridge design criteria. The Government will need to take actionto revise legislation and regulations in order to establish a revised allowableaxle loading for vehicles along with revised truck dimensions and overallweights. These revisions will require appropriate changes in criteria,standards and design axle loads for roads and bridges in order that design andconstruction be made consonant with the now standards. JKR has established acommittee comprised of technical staff to study and analyze the situation andto make recommendations concerning required revisions to pavement and bridgedesign criteria and standards.

3. The study recommended a phased increase in allowable single axle load,increasing it from the present 9 tons (22 tons overall weight) to 11 tons (32tons overall weight) in the first instance, then to 12 tons (44 tons overallweight) in the medium term, with the long-term goal set at 12 tons also but ata higher overall weight. Tandem axle loadings would also be appropriatelyincreased at the same time. The use of the 12 ton standard would be permittedonly after the existing stock of bridges had eventually been replaced with thosedesigned to carry such increased loadings. The Government has not yet made adefinite decision concerning future allowable axle loadings but is consideringan interim increase to 10 tons with a gross overall allowable vehicle weight of32 tons, a change which would not affect existing bridges which had been designedto the standard presently in use. The Phase I Study also identified bridges thatare presently unsafe, damaged or deteriorated, or substandard in terms of thebridge design standards presently in use. These bridges will be repaired,rehabilitated or replaced under the project. Except for certain otherwise soundbridges that require strengthening or reinforcement, bridges that are in goodcondition that were designed to the present standard will be able to supportincreased single axle loads of 10 or 11 tons provided that their pavements arestrengthened. Naturally, all roadway pavements will need to be strengthened overthe course of time so that they can adequately support the increased axleloadings and all now pavements and bridges will have to be designed andconstructed to an upgraded standard consistent with the loads that they will haveto bear over their lifetime. In the case of road pavements, this time horizonshould be about 20 years requiring pavement designs to take account of Governmentintentions relating to allowable loads during that time span. For bridges, atime horizon of 40 to 50 years is more appropriate and designs will need toconsider Government's intentions over that larger time span. The studyrecommended that new bridges should therefore be designed on the basis of thelong term design standard in order to avoid obsolescence. In order to permitrational planning and design of new bridges, it is necessary that the Governmentdecide on a policy on allowable axle loadings, along with a time-bound programfor gradually reaching the long-term axle load that it wishes to establish.

4. Since, as is well known, a large proportion ̂f trucks presently usingthe highways are substantially overloaded, if ways are not found to eliminateor substantially reduce the numbers oZ overloaded trucks, then the increase inthe allowable axle load will do little except to recognize the actual loads

- 82 - ~~Annex 1- 82 - Page 3

presently being placed on the roads and may in fact worsen the situation by

encouraging overloading to yet greater levels than is presently the case. The

present sporadic, inefficient and unsuccessful enforcement efforts need to be

restructured and improved so that rules and regulations established by the

Government will be effective. The improved enforcement effort should includerevised legislation placing restrictions on the dimensions and structuralcapacity of new vehicles licensed, whether imported or locally manufactured,including control of modifications. Licenses will need to be checked, at random

times and places, to ascertain whether the vehicle complies with the law. At

the same time, appropriate means and personnel will need to be provided to

monitor and control the axle loads of vehicles on the roads.

5. In order to provide the means for monitoring truck weights and axle

loadings, the Study recommended and the Government will establish a series of

weigh stations at strategic locations along the federal highway network. The

construction of these new weigh stations in Peninsular Malaysia, includingprocurement and installation of the associated equipment, will be included in

this project. Under the Government's overall weigh station program, a total of

43 weigh stations will be established under the Fifth and Sixth Malaysia Plans.

Of these, 8 will be located in East Malaysia. The other 35 will be located in

Peninsular Malaysia and will be constructed and equipped under the Project. The

civil works for these 35 weigh stations are estimated to cost a total of 14$ 25.8

million, not including contingencies or the cost of land acquisition. The

necessary equipment, including the weigh-in-motion equipment, is estimated to

cost a total of II$ 14.2 million, including the cost of training. Constructionwork will be carried out through contract, using LCB, with constructionsupervision provided directly by JKR. Five of these weigh stations are presently

under construction, and will be financed retroactively. Another five stations

have been designed and will be tendered in the near future. JKR. is proceedingwith the design of the balance, which will be designed and constructed during

the project implementation period.

6. In order that enforcement efforts be improved, the present arrangement

whereby authority and enforcement responsibility is divided among NOT, the police

and JKR with little coordination should be improved. At the weigh stations,

police presence needs to be ensured during monitoring operations, especially if

impoundment or unloading of vehicles is required. The Government will need to

make appropriate arrangements and provide neces4oary personnel so that weighing

operations can be followed up by appropriate action.

7. The progress of the Phase II Study in Peninsular Malaysia is being

hampered by a lack of sufficient personnel. The results of the Phase I Study

have clearly shown the utility of this operation by, at the least, identifyingunsafe and substandard bridges and understrength pavements so that appropriateaction can be undertaken to remedy such deficiencies. The work should be

completed in a reasonable time before continuing deterioration causes even more

serious problems and it is therefore necessary that the Government assign

sufficient qualified staff to expeditiously complete the Phase II Study.

8. During negotiations, agreement will be reached between the Government

and the Bank on an Action Plan for Truck Weight Control (Table 1, attached) which

will provide a time-bound schedule of activities to be undertaken to provide,

over the project period, the required weigh stations, suitably staffed and

equipped. The Action Plan will also include the activities needed to establish

- 83 - Anmex I

Page 4

the necessary revisions to the legal framework and the enforcement arrangements,including police presence, and will, in addition, cover the actions required toexpeditiously complete Phase II of the Axle Load Study in Peninsular Malaysia.

June 1989

- 84 -

Annex 1Table 1

MALAYSIA


ACTION PLAN FOE IMPROVED TRUCK UEIGHT CONTROL

ACTIVITY AGENCY DATESTO IMPLEMENT FRON TO

1. Continuation of Axle LoadStudy HPU Jan. 1989 Dec. 1993

2. Establishment of InterimAxle Load Regulations JKR Jul. 1989 Dec. 1990

3. Establishment of 35 truckweighing stations in PeninsularMalaysia JKR Jan. 1990 Jun. 1992

4. Decision on level of short-termand medium-term axle loadingregulations including timing MOW Jan. 1990 Jul. 1990

5. Provide increased policepresence at truck weighingstations and augment JKR'spolice powers Police Jul. 1990 Dec. 1991

6. Establish revised regulationsrelating to truck dimensionsand loading, including axle loadsand overall weights, fines andother legal sanctions againstviolations and introduceappropriate enabling legislation P.M.Office Jan. 1991 Dec. 1991

Source: JKR and Mission

June 1989

- 85 -

Annex 2Page 1

MALAYSIA


ROAD SAFETY tMPROVEMENT PROGRAM

1. As Malaysia's road network was expanded and improved during the 1970'sand early 1980's, road safety became an increasingly serious problem. As theroad infrastructure developed, the vehicle fleet increased correspondingly. Sodid the number of accidents. This rapid increase in numbers of vehicles and invehicle-kilometers travelled in recent years has exacerbated the road safetyproblem in Malaysia. Unsafe driving habits, high speeds and recklessness hasalways produced, in Malaysia, relatively high accident rates but the explosionin road usage has caused road accidents to increase very substantially (Table2.6). In 1974, a total of 24,581 accidents were reported, with 923 fatalities.Since 1982, with increasing motorization, there have been about 70,000 accidentseach year with approximately 3000 fatalities annually, of which about 20% havebeen pedestrians. The fatality rate in Malaysia in 1982 was about 10 deaths per10,000 vehicles registered when the country's motorization rate was approximately240 vehicles per thousand inhabitants. By 1987, with the motorization rateincreasing to about 300 vehicles per thousand inhabitants, the fatality rate hadonly fallen to 7.3 deaths per 10,000 registered vehicles, about two and one-halftimes the rate in most European countries where motorization rates are similarand about three times the fatality rate in Japan and Sweden. Since motorcyclesrepresent about 60% of total vehicles in Malaysia, the fatality rate can beexpected to be somewhat higher than that in countries with similar totalmotorization rates but with lesser proportions of motorcycles. Nevertheless,as the motorization rate approaches that in developed countries, the fatalityrate should not remain at the present, unacceptably high levels. In addition,with continuing expansion in motorization, further increases in traffic growthare inevitable, giving rise to more traffic conflicts. As a result, even moreaccidents and fatalities may be anticipated under present conditions. Means mustbe found to change the conditions that are causing the present situation.

2. Although Malaysia's chief regulatory law, the Road Traffic Ordinance,provides for the establishment of speed limits, such limits have actually beenset only very recently for roads outside urban areas and enforcement is, at best,spotty. Lack of adequate enforcement of speed limits, combined with the highproportion of motorcycles in the vehicle fleet and their lack of road disciplineas well as the public's feeling that the payment of high road user taxes andtolls permits driving in any way they choose, including speeding, also hascontributed to the unacceptably high accident rate. There is now an urgent need

-86 - Annex 2Page 2

for both a driver education program aimed at increasing public awareness of

highway dangers and the clarification of police responsibilities in enforcing

the traffic laws. The National Road Safety Council has an on-going program which

encompasses public relations and education elements for school children and the

general public, using personal appearances, radio, television and other media.

These efforts need to be extended and intensified, particularly in the areas of

driver training and enforcement.

3. While further strenuous efforts by the Government are required in the

areas of public education, driver training and improved enforcement of speed

limits and other regulations, there are many locations where physical conditions

increase the likelyhood of accidents. While many accidents are the results of

driver error or lack of compliance with traffic regulations, many are due to the

existence of substandard or dangerous roadside conditions. These dangerous

situations can be removed or mitigated by appropriate physical means and the

Government has begun a program to identify and improve physical road conditions

at these hazardous locations. A comprehensive review and examination of accident

records carried out by HPU followed by detailed examination and analysis of

identified sites by HPU and by JKR's Roads Branch has resulted in the

identification of 267 hazardous locations on the federal road network where

physical improvements would reduce the frequency and severity of accidents.

Where needed improvements are minor or related to road signing or road furniture,

JKR's state and district offices are carrying out the needed work. Of the

balance of hazardous locations, 42 have been identified (Table 3.6) as priority

locations needing substantial physical improvements to reduce or eliminate

dangerous road conditions. The work required to accomplish this will be included

under this project and is estimated to cost about M$ 53.3 million, not including

contingencies or the cost of land acquisition. Design work for the improvement

of 22 of these hazardous locations has been completed by JKR (June 1989) and the

balance is expected to be finished and ready for tender before the end of 1989.

This work will be carried out by contractors under LCB with constructionsupervision provided directly by JKR. Over the course of time, as additional

resources become available, the Government will continue to improve the rest of

the locations where hazardous conditions exist as well as others that are later

identified under HPU's on-going accident monitoring program. In addition, JKR

is in the process of producing a manual on road safety-oriented highway design

that will be distributed to all JKR staff involved in design, construction or

maintenance so that new works or improvements will be carried out in a safety-

conscious manner, reducing in the future the incidence of hazardous situations

caused by physical conditions.

4. Since close to 20% of road accident fatalities involve pedestrians in

heavily travelled built-up areas, 27 hazardous locations (Table 3.7) where there

have been frequent accidents involving pedestrians have also been identified and

overhead pedestrian bridges, including appropriate ground level barriers placed

at least 150 meters either side of the bridge to prevent crossirg by pedestrians,

will be constructed at those locations to permit safe passage across the flow

of traffic. These bridges will be included for financing under this project,

will be designed by JKR, tendered through LCB and supervised during construction

by JKR personnel.

5. In order to ascertain the efficacy of these measures in reducing or

eliminating dangerous conditions and thereby reducing the frequency and/or

severity of traffic accidents, HPU will introduce a system for monitoring the

- 87 - Annex 2Page 3

occurence of accidents at these hazardous locations so that, over time, furthermeasures could be established for these and other areas to effectively improve

Malaysia's traffic safety experience. In addition, HPU will establish a

computerized Road Accident Databank on a countrywide basis to permit therecording and analysis of accident data collected by the police so that hazardousconditions can be continuously identified and monitored. In order to assist theHPU in setting up and operating a permanent monitoring and analysis unit to

continuously find means of improving road safety conditions and to collect,record, maintain and analyze meaningful data, the Government has secured bi-

lateral aid from the Government of Japan to finance the services of an expert

in road safety data acquisition, manipulation and analysis for a period of about24 months.

6. At the same time that these physical improvements to reduce or

eliminate dangerous conditions are carried out, it will be necessary for the

Government to more rigorously enforce its speed and other traffic regulations,providing sufficient police presence and intensifying its educational and public

relations campaigns to increase the care that drivers exercise on the roads andtheir adherence to safety-increasing driving habits. During negotiations,agreement will be reached with the Government on an Action Plan for Road Safety

Improvement which will include, in addition to the physical improvements,technical assistance and institutional arrangements to be made or provided under

the proposed project (Table 3.8), more rigorous enforcement of traffic laws andspeed limits, a public education and driver training campaign, and a strongerfocus on accident prevention on the part of the police and JKR.

June 1989

- 88 -

ANNEX 3Page 1

MAIAYSIA


PROJECT EXECUTION AND MONITORING

1. Execution of the Project will be the responsibility of MPW which willcarry out the work through JKR and HPU, implementing the various components andAction Plans included in the Project in accordance with the agreements andconditions agreed with the Bank during negotiations, following the steps and timeframe in the agreed Implementation Plan for the Project (Table 3.11), andcomplying with the physical targets for the project as set forth in theparagraphs below. The status of compliance will be reviewed with the Bank atleast annually with particular attention being paid to the targets for routineand periodic maintenance which have been set taking into account the gradualincrease in resources that are to be made available and the improvements inefficiency , capability and technical expertise that are to be expected withtime. The corresponding annual budgetary allocations for maintenance that willbe provided will be monitored on the basis of the amounts shown in Table 2.11.

2. As a condition of approval by the Bank of the relevant components tobe financed under the proposed loan, MPW, through JKR, will submit to the Bankannual programs for execution of the various project components based upon theagreed economic and technical criteria. All construction work financed underthe project will be carried out through tendering. Once a program has beendeclared eligible, JKR will prepare, advertise, tender and award contractssubject to prior zeview by the Bank, except that, if procurement procedures tobe used for a particular contract or group of contracts have been agreed tobetween the Government and the Bank and tender documentation to be used has beenapproved by the Bank in advance, then prior review for each contract will bewaived and the contract documentation will be reviewed by the Bank only aftercontracts have been awarded and signed.

3. For contracts to be let under International Competitive Bidding (ICB)or Local Competitive Bidding (LCB), procedures for preparation, advertisement,prequalifi:ation (where required), tender, evaluation and award as well as forBank review will be followed in accordance with the Bank's Guidelines forProcurement, and in accordance with the agreements made during negotiations.Tender documentation for ICB and LCB will be prepared in conformity with theappropriate standard documentation agreed between the Government and the Bank

89 - Annex 3

Page 2

for use under ICB and LCB respectively. In addition, the following procedureswill be followed:

(a) Where contract values are estimated to be in excess of US$ 7.5million equivalent, tendering will be through ICB and contract packaging willbe in accordance with agreements made with the Bank. Where several contractsare to be let simultaneously, bidders will be allowed to tender for one or moreof the contracts providing that they possess the requisite qualifications. Inall cases, where ICB is used, bidders will be pre-qualified, using proceduresand evaluation methodology agreed with the Bank.

(b) Where contract values are estimated to be less than US$ 7.5 millionequivalent in value, tendering may be through LCB with contract packaging inaccordance with agreements made with the Bank. Where several such contracts areto be let simultaneously, bidders will be allowed to tender for one or more ofthe contracts providing that they possess the requisite qualifications. For LCB,pre-qualification of bidders will not be required, except that local contractorswill need to be registered with the Government. Where estimated contract values,under LCB, exceed US$ 2.0 million equivalent, formal post-qualification will becarried out during bid evaluation in a manner and using procedures and evaluationmethodology as agreed with the Bank, in order to ensure that the successfulbidder has the technical and financial qualifications to complete the work.

(c) For LCB, foreign contractors will not be required to register withthe Government in order to receive tender documentation or to bid and allregulations which would tend to prevent their bids from being considered on anequal footing with local contractors will be waived. For contracts having anestimated value of US$ 2.0 million equivalent or less, formal post-qualificationwill not be required but in keeping with JKR's normal practice, thequalifications of the successful bidder will be carefully checked and reviewedat the time of bid evaluation to ensure that he is capable, both technically andfinancially, of successfully completing the work;

(d) Contract awards will be made to the lowest evaluated bidder, exceptin the most unrrsual of circumstances. During the course of post-qualification,the low 1-1'der will not be disqualified unless very specific grounds are foundfor such action; the bidder is provided an opportunity to explain or refute thecause(s) for such action; and the Bank's concurrence is received.

4. Except as described below, all tender documentation will require theBank's prior review unlesr standard formats and documentation have beenpreviously agreed upon between the Government and the Bank. For contracts havingan estimated value less than US$ 2.0 million equivalent, however, such priorreview of documents will not be required. Instead, post-review of tenderdocumentation after contract award may be used, at the Government's option. Insuch a case, the Bank reserves the right to refuse to finance a particularcontract where agreed procedures have not been followed or other unacceptableconditions exist and to cancel the associated amount from the Loan.

5. Except as described below, copies of each signed contract, togetherwith the tender evaluation report giving the award decision and its rationalewill be provided to the Bank. For contracts having a value less than US$ 2.0

- 90 - Atnex 3Page 3

million equivalent, for which disbursements are made on the basis of Statementsof Expenditure, the signed contracts will not be sent to the Bank but insteadwill be kept on fil by JKR in its central office in Kuala Lumpur, for inspectionand review by Bank staff during project supervision missions. In cases wherereviews show that agreed tender or award procedures had not been followed, theBank reserves the right to refuse financing for the specific contract involvedand to cancel the corresponding amount from the Loan.

6. In order to permit satisfactorily close monitoring and supervision ofproject execution and progress by MPW and the Bank, comprehensive quarterlyreports covering all aspects of the project will be prepared for MPW by JKR andHPU and sent to the Bank. The reports will contain a narrative summary relatingto the status of each of the Project's components, as well as to the status ofthe various Action Programs and of the Project as a whole, providing a shortresume of the Project's history up to the date of the report, which will givein detail the events of the previous quarter. The report will also coverproblems encountered in implementing each of the Project's components for thequarter under review, solutions proposed, and results anticipated. The narrativesection will provide advance information, to the extent it is available, onproblems likely to be encountered during the ensuing months, together withactions to be taken to mitigate or avoid the anticipated difficulties. Data(possibly in chart or graphical form) will be presented, giving the absolutequantitites and percentage completion of each project component (in terms offinancial expenditure, physical accomplishment, and elapsed time, separately),along with an estimate of the anticipated time of completion of each projectcomponent, of each of the agreed Action Plans and of the overall project, relatedto the periods originally estimated.

7. These quarterly reports for the Bank will be supplemented by a semi-annual report which will provide information on the current and anticipatedmaintenance and investment budgets, including a breakdown by category ofexpenditures and also by force account and contract. Lengths of road beingmaintained, separately by routine and by periodic maintenance works and also byforce account and by contract will be documented, including costs and status ofwork, and compared; and compliance with agreed project implementation targetsand conditions and covenants in the Loan Agreement. Detailed cost breakdownswill be provided for costs incurred in implementing the Project up to that point,for estimates of additional costs likely to be incurred in future, along withthe reasons and justifications therefor and an estimate of the anticipated totalcosts at the time of project completion. Cash flow requirements and thedisbursement schedule will be reviewed, and recommendations made for eventualmodifications of the programs (if any) and, as needed, of the reportin-requirements.

8. As a means of providing easily monitored key project indicators andparameters, to aid in determing whether project progress is satisfactory, theGovernment and Bank will reach agreement during negotiations on a series oftargets to be met, in order to help the expeditious and satisfactory executionof the Project and the various Action Plans as well as JRR's maintenanceimprovement efforts. These parameters and the targets proposed are listed below.

- 91 - Annex 3Page 4

MONITORING PARAMETERS

Parameter Target(units per year)

ROUTINE MAINTENANCEClearing

Right-of-Way 10,000 kmRoadway Section 5,000 kmDitches & Culverts 5,000 km

Grading-Unpaved Shoulders 2,000 kmCleaning Culverts 5,000 kmBituminous Eavements

Patching 5,000 kmCrack Treatment 5,000 km

Patching & Repairing StabilizedShoulders 2,000 kmRoad FurnitureMaintenance and Repairof Signs & Road Furniture 10,000 kmRenewal of Road Markings 2,000 kmPainting and Repair of GuardRail and Barriers 2,000 kmBrkd±srainting of Steel Bridge Components 250 BridgesMaintenance of Bridge Joints andBearings 250 BridgesClearing and Erosion Control ofBridge Openings and Substructure 250 BridgesPatching and Repair of BridgeConcrete Components 250 Bridges

PERIODIC MAINTENANCEBit%=inous Plavement

Resealing 2,500 kmResurfacing 800 km

BridgesRepair & Rehabilitation 100 Bridges

EQUIPMENT AND WORKSHOPSScrapping of Unusable Equipment 300 unitsRepair and Rehabilitation of ExistingEquipment 500 unitsRepair and Rehabilitation of Workshops 20 units

TRAININGTraining Accomplished 2,400 Persons

- 92 - An_e 3Page 5

9. Records of accomplishments compared to these goals will be kept by JKR,and annual reports, showing the comparison, provided to the Bank at the time ofthe annual consultations on project progress. These reports will also providethe reasons for any shortfalls experienced and will identify difficulties andproblems preventing improved performance, together with proposed and intendedactions to be taken by JKR to remove obstacles and increase accomplishments.An updated detailed Implementation Plan (Table 3.11) will be presented by JKR,at the time of the annual consultation, for project execution during the comingyear, which will address any difficulties or problems encountered or anticipatedin order to increase or maintain the rate of project progress.

10. In addition to the goals delineated above, the Government and theBank will reach agreament during negotiations on a set of operational targetsto be used as project monitoring Performance Indicators, which will provide dataand information on the status and quality of JKRas maintenance operations,providing benchmarks against which improvement in road and bridge maintenancaoperations and capability can be measured. A list of such monitoring indicatorsis given in the table below:

KEY PERFORMANCE INDICATORS

Item Unit Present Level Standard

Roads Inventoried km/year 3000 5000Bridges Inventoried no./year 600 1000Percent of PermanentlySidelined Equipment FleetScrapped %/year 5 20Availability ofEquipment Fleet * 10 80Periodic Road MaintenancePerformed using ForceAccount /_1 I

Bituminous Seal 100 80Resurfacing 50 20

/j Percentage of total annual periodic road maintenance carried out by forceaccount (by the state JKR quarries) with the balance being executed by contract.

11. At the time of the annual consultative meeting on project progress,JRR will provide the Bank with a set of comparative data, showing actual valuesof the performance indicators as they relate to the year just past, comparod tothe standard values listed, giving reasons for any shortfalls or differences,together with an Action Plan listing specific actions that will be taken torectify any discrepancy.

-93 Annex 3Page 6

12. JKR will also provide the data and information listed below and duringthese meetings, the Government and the Bank will discuss and roach pertinentagreements on the following, among other things:

(a) Financial summary showing the status of implementation of theProject;

(b) Compliance with agreed targets for works and procurementfinanced under the Loan;

(c) Economic evaluation of works to be included in the annualprogram for the coming year;

(d) Use and deployment of consulting services for training and otherpurposes;

(e) Review of audit reports, data, and documents kept on file byJKR, and consolidation and comparison of disbursements against actualexpenditures;

(f) Updated targets and objectives of the Project;

(g) Proposed maintenance budget and detailed maintenance programfor the coming year; and

(h) Proposed disbursement schedule for the balance of the projectperiod.

June 1989

- 94 -

Annex 4Page 1

MAIAYSIA


SELECTED DOCUMENTS AND DATA AVAILABLE IN THE PROJECT FILE

A. GENERAL REPORTS AND STUDIES ON THE SECTOR OR SUBSECTOR

1. Malaysia: Matching Risks and Rewards in a Mixed Economy, 3volumes, October 1988, World Bank.

2. Malaysia: Industrializing a Primary Producer, 2 volumes, June1986, World Bank.

3. Malaysia: National Transport Policy Review, June 1988, World Bank.

4. Handbook of Environmental Impact Assessment Guidelines, MalaysianDepartment of the Environment, Government of Malaysia, July 1987.

5. Report on the Improvement of the Road Traffic Accident Recordingand Analysis System in Malaysia, United Nations, ESCAP, May 1985.

6. Yearbook of Transport Statistics, Malaysia, 1984, 1985, 1986,Ministry of Transport, Government of Malaysia.

7. Annual Statistical Bulletin, Ministry of Transport, Government ofMalaysia, 1986.

B. GENERAL REPORTS AND STUDIES REIATING TO THE PROJECT

1. Reports of the technical assistance experts for improvement to theconduct of construction supervision, Inception Reports (2 volumes)and Progress Reports 1 and 2 (4 volumes), 1987/1988.

2. JKR Training and Research Institute: Annual Report (1989) andResearch Project Descriptions (Geotechnical and Pavement Design),11 volumes, 1988.

3. Report on the Feasibility Study for the Upgrading of the JohorBahru-Kota Tinggi Road.

- 95 -

hnx 4Page 2

4. Report on the Feasibility Study for the Improvement of the Kuantan-Gambang Road.

5. Timber Bridges Replacement Program - Economic Evaluation, April1989.

6. Highway Rehabilitation and Improvement Project. Project Outline,January 1989.

7. JKR Manuals: Bridge Design (1987); Pavement Design (1988); RoadDesign (Geometric, Survey and Engineering) (1987); ConstructionSupervision (1989); and Inspection and Testing (1989).

8. Interim Report- JKR Bridge Loading Committee, May 1989.

9. Standard Conditions of Contract for International CompetitiveBidding (ICB), JKR, 1989.

10. Standard Conditions of Contract for Local Competitive Bidding(LCB), JKR, 1989.

11. General Information, Malaysian Roads, JKR, 1985, 1986, 1987.

12. Deta-iled Report on Road Maintenance Program by State, JXR, 1989.

13. Standard Specifications for Road Works, JKR, 1988.

14. Axle Load Study, Peninsular Malaysia, 12 volumes, Draft Report byconsultants Rendel Palmer & Tritton, October 1987.

15. Report on Continuation of Axle Load Study in Peninsular Malaysia,Phase II, - iception Report, August 1988 and Progress Report, May1989, HPU.

16. Report on Establishment of Truck Weighing Stations in Malaysiausing Weigh-In-Motion and Automatic Recording Equipment, JKR,January 1988.

C. SELECTED WORKING PAPERS

1. Price Analysis Report, JKR, 1989.

2. Report on Bridge Component for Proposed Highway Rehabilitation andImprovement Project, JKR, May 1989.

3. Report on Road Rehabilitation and Strengthening Component forProposed Highway Rehabilitation and Improvement Project, JKR, April1989.

- 96 -

Annex 4Page 3

4. Report on Road Safety Improvement Component for Proposed HighwayRehabilitation and Improvement Project, JKR, April 1989.

5. Report on Truck Weight Control Stations Component for ProposedHighway Rehabilitation and Improvement Project, JKR, April 1989.

6. Working Paper No. 1 - Previous Bank Operations in the HighwaySector in Nalaysia.

7. Working Paper No. 2 - Malaysia's Federal Road Network: Status andNeeds.

8. Working Paper No. 3 - Bridges on the Federal Road Network: Statusand Needs.

9. Detailed Cost Estimates and Calculations.

10. Worklng Paper No. 4 - JKR's Accounting, Budgetting and Auditingsystem.

11. Working Paper No. 5 - The Toll Road System, the Malaysian HighwayAuthority and Privatization.

12. Working Paper No. 6 - Draft Terms of Reference for technicalassistance consultancy services.

- 97 - Ch8rt l

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