Togo - Feeder Roads Project

Document of The World Bank FOR OFFICIAL USE ONLY Report No. 7046 PROJECT COMPLETI'N REPORT REPUBLIC OF TOGO FEEDER ROADS PROJECT, CREDIT 810-TO December 9, 1987 Western Africa Region Transportation Division This document has a restricted distribution and may be used by recipients only in the performaace of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.  FOR OMCAL USE ONLY THE WORLD 8ANlt Washington. DC 20433 U S A Opeat.nn lvaIawtbe December 9, 1987 MEMORANDUM TO THE EXECUTIVE DIRECTORS AND THE PRESIDENT SUBJECT: Project Completion Report on Republic of Togo Feeder Roads Project (Credit 810-TO) Attached, for information, is a copy of a report entitled "Project Completion Report on Republic of Togo Feeder Roads Project (Credit 810-TO)" prepared by the Western Africa Regional Office. Under the modified system for project performance auditing, further evaluation of this project by the Operations Evaluation Department has not been made. Attachment This document has a restricted distribution and may be used by recipients only in the performance of their official duties Its contents may not otherwise be disclosed without World Bank auhorization  Currency Exchange Rates Name of Currency (Abbreviation): CFA Francs (CFAF) Annual Report (May 1978) USS$ = 245 1978 US$1 = 220 1979 US$1 213 1980 US$1 = 211 1981 US$1 = 272 1982 US$1 = 329 1983 US$1 = 381 1984 US$1 = 437 1985 USSI = 449 Abbreviations DGR Directorate of Rural Engineering in MAR (Direction de G6nie Rural) DTP Public Works Department in MEPW (Direction des Travaux Publics) MAR Ministry of Rural Works (Ministere de l'Amenagement Rural) MEPW Ministry of Equipment and Public Works (Ministere de l'Equipement des Travaux Publics -- now the Ministere de 1'Equipement et des Postes et Te16communications) SNPR National Feeder Roads Service (Service Nationale des Pistes Rurales) SOTOGO Togolese Cotton Company (Societe Togolaise du Coton) SRD Feeder Road Utnit (Service des Routes de Desserte)  FOR OFmFCIAL USE ONLY REPUBLIC OF TOGO FEFDFR ROADS PROJECT, CREDIT 810-TO PROJECT COMPLETION REPORT Table of Contents Page No. Preface............................................... Basic Data Sheets ..................................... ii Highlights ............................................ iv I. INTRODUCTION .......................................... II. PROJECT IDENTIFICATION, PREPARATION AND APPRAISAL ......................................... III. PROJECT IMPLEMENTATION ................................ 4 IV. ECONOMIC REEVALUATION ................................. 7 V. INSTITUTIONAL PERFORMANCE ............................. 8 VI. THE ASSOCIATION'S PERFORMANCE ......................... 8 VTII. CONCLUSION AND RECOMMENDATIONS ........................ 9 TABLES 1. List of Feeder Roads Completed under the Project by Agency . . 10 2. Appraisal Estimates and Actual Project Costs .......... 11 3. Schedule of Disbursements .. 12 ANNEX Borrower Comments ......................... I ........... 13 MAP *BRD 13221 This document has a restricted distribution and may be used by recipients only in t:le performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.  - 1 - REPUBLIC OF TOGO FEEDER ROADS PROJECT, CREDIT 810-TO PROJECT COMPLETION REPORT PREFACE This report presents a completion evaluation of the Feeder Roads Project financed by Credit 810-TO for US$5.8 m, which was approved on May 23 1978. The credit closing date was March 31, 1986 and the undisbursed part of the credit, amounting to US$15,748.94 was cancelled. The report was prepared by the Western Africa Region. In accordance with the revised procedures for project perfor- mance audit reporting, this Project Completion Report was read by the Operations Evaluation Department (OED) but the project was not audited by OED staff. Minor comments were received from the borrower in a letter dated September 21, 1987; these have been taken into account in the present report (see Annex).  - ii - REPUBLIC OF TOGO FEEDER ROADS PROJECT, CREDIT 810-TO PROTECT COMPLETION REPORT BASIC DATA SHEETS KEY PROJECT DATA Original Actual or Item Expectation Current Estimate Total Project Cost (USS million) - 9.] 8.3 la Cost Over/Underrun (%) Government 2.5 2.6 TDA Credit Amount 5.8 5.8 Disbursed (end 12/8b) 5.8 5.7 Cancelled -- 0.02 /b Repaid Outstanding Completion of Physical Components (date) 12/82 06/86 Proportion Actually Completed by Expected Date (0%) 100 64 Economic Rate of Return (%) 18 17 CUMULATIVE ESTIMATED AND ACTUAL DISBURSEMENTS (Us$ million) FY79 FY80 FY81 FY82 FY83 FY84 FY85 FY86 FY87 Appraisal Estimate 2.25 3.14 4.06 5.06 5.80 -- -- -- lb Actual 0.76 2.41 2.97 3.62 4.41 4.89 5.22 5.56 5.78- Actual or % of Estimate 34 77 73 72 76 84 90 96 99 OTHER PROJECT DATA Actual or Itcm Original Amended Current Estimate First Mention in Files -- 03/76 Negotiations 04/78 04/78 Board Approval of the Credit 04/78 05/23/78 Credit Agreement Date 05/78 06/28/78 Effectiveness Date 09/28/78 03/02/79 Closing Date 06/30/83 03/31/84, 03/31/85 03/31/86 Borrower logolese Republic Executing Agency Ministry of Rural Works (MAR) Fiscal Year of the Borrower January 01 -- December 31 Follow-on Project Transport Rehabilitation Pro,iect /a Excludes USS0.8 m in taxes. /b USSI5,748.94 was cancelled effective December 31, 1986.  MISSION DATA No. of Mission /d Item /c Mo./Year Persons Composttion - Man Weeks Date of Report Identitication 03/76 1 E 0.7 (Report not in files) Preparation 09/76 I E 1.0 09/30/76 Preparation Follow-up 02-03/77 1 E 0.4 03/16/77 Preparation Follow-up 05/77 1 H 1.0 (Report not in files) Appraisal 07/77 2 E,H 2.0 08/01/77 /e Post Appraisal 12/77 2 H,P 0.5 01/05/78 Post Negotiations 05/78 1 H 0.3 05/30/78 Supervision 1 09/78 1 H 0.4 09/19/78 Supervision 2 10/78 1 H 0.4 11/15/78 Supervision 3 01/79 1 H 0.7 02/01/79 Supervision 4 04/79 1 H 0.7 04/26/79 Supervision 5 07/79 1 H 0.7 07/29/79 Supervision 6 12/79 2 E,H 1.4 12/20/79 Supervision 7 04/80 1 H 0.7 05/06/80 Supervision 8 08/80 1 E 0.5 09/02/80 Supervision 9 10-11/80 2 2H 1.9 12/05/80 Supervision 10 01/81 2 E,H 1.1 02/02/81 Supervision 11 05/81 1 E 0.7 06/10/81 Supervision 12 07/81 1 E 0.7 08/20/81 Supervision 13 09/81 2 E,H 1.1 09/18/81 Supervision 14 11/81 2 E,H 1.4 11/18/81 Supervision 15 /f 03/82 4 E, 3H 2.5 04/13/82 Supervision 16 10/82 3 E, 2H 1.0 11/19/82 Supervision 17 02/83 2 E,H 1.0 03/24/83 Supervision 18 10-11/83 3 E,F,H 0.7 12/21/83 Supervision 19 03-04/84 2 E,H 0.5 05/10/84 Supervision 20 07-08/84 1 H 0.5 08/21/84 Supervision 21 10/84 3 E,F,H 0.7 12/05/84 Supervision 22 02-03/85 3 E,F,H 0.7 04/15/85 Supervision 23 06/85 1 H 0.3 07/29/85 Supervision 24 09/85 3 C(H),D,E 0.4 09/30/85 Supervision 25 02-03/86 2 C(H),E 0.3 03/27/86 Supervision 26 06/86 3 E,F,H 0.4 06/19/86 Supervision ?7 10/86 4 D,E,F,C(H) 1.0 12/15/86 /c ldentification to Supervision Mission No. 15 were carried out by RMWA staff. /d C = Consultant; D = Division or Deputy Chief; E = Economist; F = Financial Analyst; 11 = Highwav Engineer; P = Loan Officer/Economist /c Issues Paper. /f one highway engineer (project officer) joined from HQ.  IV- - REPUBLIC OF TOGO FEEDER ROADS PROJECT, CREDIT 810-TO PROJECT COMPLETION REPORT EVALUATION SUMMARY 1. Project execution took three vears longer than the four years estimated at appraisal. During the "irst two vears, project imple- mentation was delayed by insufficient local funds, fuel shortages, and organizational difficulties. Progress improved with the establishment of the SNPR and the appointment of a competent director. In 1983 local funds dried up, but from 1984 to 1986, progress improved considerablv, despite the absence of consultants, with more local funds available and better management. Alm,st 65% of the feeder roads called for at ap- praisal were completed. The quality of construction was generally good (paras 3.01 and 3.09). 2. There is insufficient data available to recalculate a precise ERR, but a rough estimate indicates that it is about 17% which is slightly lower than the appraisal estimate of 18% (para 4.01). 3. One of the main objectives of the project was to establish an efficient institutional framework for planning, constructing and main- taining feeder roads. Some progress was made in this regard and part way through the project, the Government established a national director- ate (SNPR) to take over responsibility for feeder roads which had been delegated among separate ministries in the past. The Government's commitment to the project's goals improved towards the end of the pro- ject. However, more needs to be accomplished. The new national road organization which was established early in 1987 should be expanded into planning and maintenance of feeder roads and its management strengthened (paras 5.01-5.03). 4. In retrospect, project preparation efforts by the Association could have been more thorough; however, supervision was adequate (pa- ra 6.01). 5. The project provided useful lessons for the Association in preparing the next project. The Transport Rehabilitation Project, which was appraised in March 1987, contains a component for feeder roads. It includes specific provisions for expediting procurement, upgrading maintenance, carrying out more road construction by contract and im- proved budgeting procedures (para 7.03).  REPUBLIC OF TOGO FEEDER ROADS PROJECT, CREDIT 810-TO PROJECT COMPLETION REPORT I. INTRODUCTION 1.01 The first Feeder Roads Project was the seventh Bank Group operation in Togo and was based in part on a study financed under the Second Highway Project. At the time of appraisal, in 1977, the agricul- ture sector employed 75% of the country's total work force and was responsible for nearly 40% of the countrv's total export earnings. About 4,000 km of the country's total of 5,000 km or feeder roads were serving on-going or planned agricultural projects. 1.02 The six earlier IDA credits were equally distributed between agricultural and highwav construction/maintenance projects. UJnder the Highway Maintenance and Second Highway Projects (Credit 131-TO, US$3.7 m, 1968 and Credit 450-TO, US$8.7 m, 1973, respectively), mainte- nance of the primary and secondary road network improved noticoably in the first half of the 1970s following reorganization and training of staff in the Public Works Department (DTP). Further improvements were expected from additional tec'.nical assistance and maintenance/workshop equipment provided under the Third Highway Project (Credit 693-TO, US$10.0 m, 1977). However, the administration and development of feeder roads was ill-defined and shared among several Government agencies without clear strategy for planning, construction, and maintenance. Consequently, the condition of the feeder roads deteriorated rapidly, and a n;: