Uganda - Fourth Highway Project

Document of The World Bank FOR OFFICIAL USE ONLY Report No. 14554 IMPLEMENTATION COMPLETION REPORT UGANDA FOURTH HIGHWAY PROJECT (CREDIT 1803-UG) JUNE 1, 1995 Energy and Infrastructure Operations Division Eastern Africa Department Africa Region 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 authorization. CURRENCY EQUIVALENT Currency Unit = Uganda Shilling US$ 1.00 = U Sh. 1400 (June 1986) U Sh. 1.00 = US$0.0007 WEIGHTS AND MEASURES 1 meter (in) = 3.28 feet (ft) 1 kilometer (kim) 0.62 mile (mi) 1 sq. kilometer (kn) = 0.386 square miles (sq mi) I hectare (ha) = 2.47 acres (ac) 1 metric ton (m ton) = 2.204 pounds (lbs) ABBREVIATIONS MOW = Ministry of Works MLG = Ministry of Local Government PRRMP = Pilot Rural Road Maintenance Program FISCAL YEAR July 1 - June 30 FOR OFFICIAL USE ONLY IMPLEMENTATION COMPLETION REPORT UGANDA FOURTH HIGHWAY PROJECT (CREDIT 1803-UG) TABLE OF CONTENTS Page No. P R E F A C E ............................................................................................................................ i EV A LU A TION SU M M A RY ............................................................................................. ii PART I - PROJECT IMPLEMENTATION ASSESSMENT ...........................................1 A. STATEMENT/EVALUATION OF OBJECTIVES .......................................... O bjectives ....................................................................................................t Evaluation of O bjectives.............................................................................. B. ACHIEVEMENT OF OBJECTIVES ................................................................2 Physical O bjectives......................................................................................2 Institutional Development Objectives..........................................................3 Econom ic Re-evaluation..............................................................................3 C. MAJOR FACTORS AFFECTING THE PROJECT..........................................3 D. PROJECT SUSTAINABILITY .........................................................................5 E. BAN K PERFORMAN CE ..................................................................................5 Project Identification/Preparation ................................................................5 Project A ppraisal..........................................................................................6 Project Supervision ......................................................................................6 F. BORROWER PERFORMANCE .......................................................................7 Project Preparation .......................................................................................7 Project Im plem entation ................................................................................7 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 authorization. G. ASSESSMENT OF OUTCOME ....................................................................... 8 H . FU TU R E O PER A TIO N ....................................................................................8 I. KEY LESSONS LEARNED...............................................................................8 PART II - STATISTICALTABLES .................................................................................9 TABLE 1: SUMMARY OF ASSESSMENTS....................................................................9 TABLE 2: RELATED BANK LOANS/CREDITS...........................................................10 TABLE 3: PROJECT TIM ETABLE.............................................................................. TABLE 4: LOAN/CREDIT DISBURSEMENTS: CUMULATIVE ESTIMATED AND A C T U A L ..................................................................................................................12 TABLE 5: KEY INDICATORS FOR PROJECT IMPLEMENTATION.................................13 TABLE 6: STUDIES INCLUDED IN PROJECT..............................................................14 T ABLE 7: PROJECT C OSTS ...................................................................................... 15 TABLE 8: PROJECT FINANCING .............................................................................. I6 TABLE 9: ECONOMIC COSTS AND BENEFITS...........................................................17 TABLE 10: STATUS OF LEGAL COVENANTS............................................................18 TABLE 11: BANK RESOURCES: STAFF INPUTS.......................................................19 TABLE 12: BANK RESOURCES: MISSIONS .............................................................20 APPENDICES A. Mission's Aide Memoire B. Borrower contribution to the ICR MAP Uganda, Highway Network (IBRD 19263) IMPLEMENTATION COMPLETION REPORT UGANDA FOURTH HIGHWAY PROJECT (CREDIT 1803-UG) PREFACE This is the Implementation Completion Report (ICR) for the Fourth Highway Project in Uganda for which Credit 1803-UG in the amount of SDR 14.1 million (US$18.0 million equivalent) was approved on May 21, 1987 and made effective on September 11, 1987. The Credit was closed on December 31, 1994, compared with the original closing date of December 31, 1993. Final disbursement took place on March 15, 1995, at which time a balance of SDR 1,014,646.55 was canceled. The ICR was prepared by Mr. S.L. Kathuria, Task Manager, AF2EI of the Africa Region and reviewed by Mr. Stephen Weissman, Chief, AF2EI, ad Mr. Surendra Agarwal, Project Adviser, AF2DR. Preparations of this ICR was begun during the Bank's completion mission during January 1995. It is based on materials in the project file. The borrower contributed to preparation of the ICR by preparing own evaluation of the project's execution and initial preparation. - 11 - EVALUATION SUMMARY Introduction 1. Uganda's transport infrastructure comprises some 28,400 km of roads, a railway system totaling 1,232 kin, a port on Lake Victoria providing rail-ferry link to Tanzania, an international airport at Entebbe and eleven domestic airfields. Of the total 28,400 km of the country's road network, some 8,000 km form the classified road network and the remaining about 20,400 km of the road system constitute the rural/feeder network. 2. The Association has helped finance four highway projects in Uganda. In addition, it has helped finance a Railways Project, a Northern Reconstruction Project and a Transport Rehabilitation Project. The last two projects are under implementation currently. Project Objectives 3. The objectives of the project were to: (a) protect capital investment and to increase the service life of essential roads serving local and transit traffic to other land-locked countries; (b) help improve maintenance planning and operations of rural/feeder roads serving agricultural areas; and (c) strengthen institutions responsible for project implementation (Part I, Para. 1.1). 4. After a decade of neglect and ultimate destruction during the liberation war in 1979, the country's transport system was left in complete disarray; the road network had fallen into a state of disrepair. The situation was particularly severe for trunk roads serving transit traffic to other landlocked countries where high volumes and heavy loads had caused structural damage and made roads difficult and dangerous for traffic (Part I, Para. 2.1). 5. The Association helped develop a program for rehabilitation/strengthening of three high priority trunk roads namely, (i) Kampala - Jinja Road (72 km); (ii) Mbarara - Rubaare Road (85 km); and (iii) Mbarara - Ishaka - Katunguru Road (122 km) which had deteriorated to a point where passage of traffic had become both difficult and dangerous. The project as part of the larger program consisted of: (i) rehabilitation/ strengthening of the Kampala - Jinja Road (km 0 - 24) and Mbarara - Ishaka Section (60 km) of the Mbarara - Ishaka - Katunguru Road, and related supervision; (ii) a pilot rural road maintenance program; (iii) technical assistance; and (iv) feasibility study and, if feasible, detailed engineering of the Soroti - Lira Road (Part I, Para. 2.3). 6. Given the deteriorated state of the country's high priority trunk roads, the complete lack of maintenance on the rural/feeder roads and the urgent need to alleviate constraints in the movement, marketing and export of agricultural produce, the project objectives were clear, realistic and important for the sector, and in line with the Association's Country Assistance Strategy (Part 1, Para. 2.4). - 111 - Implementation Experience and Results 7. The project was scheduled to begin in early 1988 and be completed by June 30, 1993. Project implementation was the responsibility of Ministry of Works (MOW) and Ministry of Local Government (MLG). Road rehabilitation/strengthening works were carried out by contract under the supervision of consultants (Part. 1, Paras. 2.5 and 6). 8. The rehabilitation/strengthening works on the Kampala - Jinja Road (km 0 - 24) and Mbarara - Ishaka Road were satisfactorily completed. Some 190 km of rural/feeder road, compared to the 108 km targeted, was rehabilitated under the pilot rural road maintenance program (PRRMP); routine maintenance was carried out on some rural/feeder roads with the help of local contractors. Due to the Government delay in the procurement of road maintenance and workshop equipment, tools, etc., not much work was done in establishing road maintenance setups in the three districts chosen under PRRMP. The feasibility study of the Soroti - Lira Road carried out by consultants showed that upgrading of the road to paved standards was not economically viable and hence, detailed engineering of the road was dropped. The technical assistance included in the project helped train a number of freshly graduated engineers in MOW; the rural road maintenance expert on the technical assistance team assisted MLG in the preparation and implementation of PRRMP (Part I, Paras. 3.1 and 4.1). 9. The rehabilitation/strengthening of the Kampala - Jinja Road (km 0 - 24) was completed in July 1989, with minor delay. However, the works on the Mbarara - Ishaka Road proceeded slowly, and were completed in February 1991, about eighteen months behind the contrac, completion date. Disregarding the Bank procurement procedures, MOW proposed to award rehabilitation/strengthening works on the Kampala-Jinja Road (Km 0 - 24) to the second lowest evaluated bidder. In view of the lowest evaluated bidder's refusal to extend the validity date of his offer, however, the Association agreed to Government awarding contract to the former. Similarly, MOW proposed to award works on the Mbarara - Ishaka Road to a firm wrongly declared by consultants to be the lowest evaluated bidder. Contrary to the Association's advice, it insisted that the consultants' evaluation of the bids was correct; however, after protacted correspondence between Government and the Association, MOW finally awarded the contract to the lowest evaluated bidder (Part I, Paras. 6, 7 and 17.1). 10. MLG took long to prepare proposals for road camps, workshops, and road maintenance and workshop equipment, tools, etc. for PRRMP, despite assistance by the rural road maintenance expert. It finalized contracts for the supply of road maintenance equipment in January 1994, some six years after Credit effectiveness. The road maintenance and workshop equipment, tools, etc. arrived in the country between May and November 1994. The construction of road camps and small workshops was dropped from the program due to a change in Government policy to carry out most of the rehabilitation/ maintenance work on rural/feeder roads by contract in the future (Part I, Paras. 8 and 9). 11. The total final cost of the project is within the appraisal estimate. The disbursements under the Credit generally remained ahead of the appraisal estimates, which were - 1v - conservative. The Credit finally closed on December 31, 1994, within the standard disbursement profile for Uganda (Part I, Para. 11). 12. The project achieved its principal objective of protecting capital investment in the two very heavily trafficked roads. The pilot rural road maintenance program helped create road maintenance awareness in the districts, and provided a foundation for the larger feeder road rehabilitation and maintenance program included in the on-going Transport Rehabilitation Project. The technical assistance helped train a number of young engineers in MOW, besides assisting MLG in the preparation/implementation of PRRMP. The project is likely to maintain the achievements generated. The recalculated ERR for the road rehabilitation/ strengthening works on the Kampala - Jinja Road (km 0 - 24) and Mbarara - Ishaka Road, representing 85% of the total project cost, is 61% and 17%, compared to an ERR of 63% and 30% respectively, estimated at appraisal. The project outcome is rated as satisfactory (Part I, Para. 18). 13. The Association assisted Government in mobilizing donors to finance roads that were included in the program but did not form part of the project; as an outcome of the Association's efforts, the rehabilitation/strengthening of section Km 24 - 72 of the Kampala - Jinja Road, and Ishaka - Katunguru section of the Mbarara - Ishaka - Katunguru Road were financed by AfDB, and the Mbarara - Rubaare Road by EEC (now EU) (Part I, Para. 13.1). 14. The Association's performance during the project cycle was satisfactory (Part I, Paras. 13.1, 14.5 and 15.1). Summary of Findings, Future Operations, and Key Lessons Learned 15. The rehabilitation/strengthening works included in the project were satisfactorily completed. The PRRMP component of the project suffered long delays in its implementation; not much work was done in establishing road maintenance setups in the chosen districts. The road maintenance and workshop equipment, tools, etc. procured under the program will be utilized for contractor training in rural/feeder rehabilitation/ maintenance under the ongoing Transport Rehabilitation Project. Government was in general compliance with the Credit covenants; however, the audit reports were generally received very late. Also, the funds allocated/released for road maintenance were generally far below the requirement (Part 1, Paras. 3.1 and 17.3). 16. The key lessons learned are that: (a) a mid-term review of project implementation, as now generally practiced, and closer supervision would bring to light any inaction on the part of the borrower/implementing agency(ies)/consultants; (b) the terms of reference of technical assistance staff should include a detailed work program with verifiable inputs and outputs for each individual staff; and (c) an appropriate funding mechanism and tight administration of project conditionality need to be established to assure availability of adequate funds for road maintenance in a timely manner (Part I, Paras. 20, 21 and 22). IMPLEMENTATION COMPLETION REPORT UGANDA FOURTH HIGHWAY PROJECT (CREDIT 1803-UG) PART I - PROJECT IMPLEMENTATION ASSESSMENT A. STATEMENT/EVALUATION OF OBJECTIVES 1. Objectives 1.1 The project objectives were to: (a) protect capital investment and to increase the service life of essential roads serving local and transit traffic to other land-locked countries; (b) help improve maintenance planning and operations of rural/feeder roads serving agricultural areas; and (c) strengthen institutions responsible for project implementation. 2. Evaluation of Objectives 2.1 After a decade of neglect and ultimate destruction during the liberation war in 1979, the country's transport system was left in complete disarray; the road network had fallen into a state of disrepair. Due to the lack of proper maintenance, the paved roads had developed deep potholes and surface cracks besides extensive edge raveling, and in the worst cases they required major rehabilitation/strengthening. Most gravel roads had completely lost their gravel and had reverted to earth roads. The situation was particularly severe for trunk roads serving transit traffic to other landlocked countries (Kenya, Rwanda, Burundi and Zaire) where high volumes and heavy loads had caused structural damage and made roads difficult and dangerous for traffic. 2.2 The Government's objectives for the transport sector were to alleviate constraints in the movement, marketing and export of agricultural produce and to ensure that basic transport services were available in the country by (a) restoration of trunk roads, and in particular the main transit routes; (b) rehabilitation of Government's road maintenance capacity; and (c) rehabilitation of the railways. The Association's Country Assistance Strategy in support of Government's efforts was to (i) help prevent further deterioration of the country's road network by strengthening Government's road maintenance capacity (Third Highway Project, Cr. 1445-UG); (ii) rehabilitate roads of key economic importance (The Project); and (iii) support rehabilitation of the railway (Cr. 1986-UG). 2.3 Following engineering investigations carried out with financing from Technical Assistance Credit 1077-UG, the Association helped develop a program for rehabilitation/strengthening of three high priority trunk roads namely, (i) Kampala - Jinja Road (72 km); (ii) Mbarara - Rubaare Road (85 km); and (iii) Mbarara - Ishaka - Katunguru Road (122 km) which were heavily trafficked and had deteriorated to a point where passage of traffic had become both difficult and dangerous. The project as part of the larger program consisted of: (i) rehabilitation/strengthening of the Kampala - Jinja Road (km 0 - 24) and Mbarara - Ishaka Section (60 ki) of the Mbarara - Ishaka - Katunguru Road, and related supervision; (ii) a pilot rural road maintenance program; (iii) technical assistance; and (iv) feasibility study and, if feasible, detailed engineering of the Soroti - Lira Road. 2.4 Given the deteriorated state of the country's high priority trunk roads, the complete lack of maintenance on the rural/feeder roads and the urgent need to alleviate constraints in the movement, marketing and export of agricultural produce. the project objectives were clear, realistic and important for the sector, and in line with the Association's Country Assistance Strategy. 2.5 The project was relatively simple and its concept and design appropriate. Project implementation v.. s the responsibility of Ministry of Works (MOW) and Ministry of Local Government (MLG). Road rehabilitation/ strengthening works were carried out by contract under the supervision of consultants. B. ACHIEVEMENT OF OBJECTIVES 3. Physical Objectives 3.1 The rehabilitation/strengthening works on the Kampala - Jinja Road (km 0 - 24) and Mbarara - Ishaka Road were satisfactorily completed. Some 190 km of rural/feeder road, compared to the 108 km targeted, was rehabilitated under the pilot rural road maintenance program (PRRMP); routine maintenance was carried out on some rural/feeder roads with the help of local contractors. Due to the Government delay in the procurement of road maintenance and workshop equipment, tools, etc. (Para. 9), not much work was done in establishing road maintenance setups in the three districts (Mbale, Kapchorwa, Tororo) chosen under PRRMP. The feasibility study of the Soroti - Lira Road was completed. The results of the study showed that upgrading of the road to paved standards was not economically viable and hence, detailed engineering of the road was dropped -- the road is included for rehabilitation/ regravelling under the Northern Reconstruction Project (Cr. 2362-UG). The achievement of physical objectives was substantial. 4. Institutional Development Objectives 4.1 The technical assistance included in the project helped train a number of freshly graduated engineers in MOW in road survey and design, besides assisting MOW in the preparation of draft road design manual, tender documents and specifications for road and bridge works. The rural road maintenance expert on the technical assistance team assisted MLG in the preparation and implementation of PRRMP. The achievement of the institutional development objectives was, however, partial. 5. Economic Re-evaluation 5.1 The recalculated ERR for the road rehabilitation/strengthening works on the Kampala - Jinja Road (km 0 - 24) and Mbarara - Ishaka Road, representing 85% of the total project cost, is 61% and 17%, compared to an ERR of 63% and 30% respectively, estimated at appraisal. A lower than the estimated ERR in the case of the Mbarara-Ishaka Road is due to the lower than expected traffic volume on the road. C. MAJOR FACTORS AFFECTING THE PROJECT 6. The project was scheduled to begin in early 1988 and be completed by June 30, 1993. The rehabilitation/strengthening of the Kampala - Jinja Road (km 0 - 24) was completed in July 1989, with minor delay. With regard to the Mbarara - Ishaka Road, Government invit:d bids for the works in November 1986 with deadline for the submission of bids as February 13, 1987. Consultants' evaluation of the bids showed a UK construction frm to be the lowest evaluated bidder and MOW agreeing with the consultants' evaluation recommended award to this firm. A review by the Association of the consultants' evaluation report, however, showed that the consultants had attempted to erode the difference in bid prices by admitting a discount offer by the firm found three days after the public bid opening and by misinterpreting certain provisions of the bidding documents. The firm's letter offering discount had the date "23rd February, 1987", while the closing date of the bids was February 13, 1987; and the same was neither stamped nor endorsed by the Government Central Tender Board, unlike other discount offers. Furthermore, the firm's bid cover letter made no reference, whatsoever, to any discount offer, nor was it read out at the public bid opening. Contrary to the Association's advice, MOW insisted that the consultants' interpretation of the bidding documents was correct and that the discount offer in question was genuine. After protracted correspondence between Governr -ent and the Association, MOW proposed and the Association agreed to Government negotiating a contract with the lowest evaluated bidder (Hungary); a contract between Government and the contractor was signed on February 15, 1988, one year after the bid opening. (At a meeting between the Association and consultants senior management, in March 1988, the consultants admitted, and later confirmed it in writing that they had made mistakes in bid evaluation, and promised to improve their internal quality control). -4- 7. The commencement date of the said contract was set as March 1, 1988, with completion by August 28, 1989. The construction works on the road proceeded slowly -- as of May 1989, the overall physical progress of the works was about 5%, while some 80% of the contract period had elapsed. In July 1989, MOW served the contractor with a notice of expulsion from site and of its intention to take over his construction plant, temporary works and materials for use in completing the works. But, later it allowed the contractor to continue by subcontracting parts of the work to two locally available international contractors, one Chinese and the other UK national. In July 1990, the contractor entrusted certain additional works to the Chinese sub-contractor, and also subcontracted the supply of stone aggregate to a local supplier. The works on the road were finally completed in February 1991, about eighteen months behind the contract completion date. 8. The Development Credit Agreement (Schedule 4, Para. 3), required MLG to prepare, with the assistance of a rural road maintenance engineer, a rural road maintenance program for the Association's review, prior to its implementation. It was not until October 1990 that MLG submitted an initial road maintenance program to the Association, followed by proposals for road camps and workshops in September 1992. However later, in July 1993, MLG proposed construction of feeder road offices and storage facilities, in lieu of the road camps and small workshops envisaged in the program, since the latter were no longer found to be necessary, in view of the Government policy to carry out most of the rehabilitation/maintenance work on rural/feeder roads by contract in the future. The construction of road camps and workshops was, therefore, dropped from PRRMP. 9. A review by the Association of the final bidding documents for the supply of road maintenance equipment issued to the suppliers by MLG showed that: (i) the same did not fully incorporate the Association's comments on a series of earlier drafts; (ii) the time allowed (24 days) for the preparation and submission of bids was inadequate; and (iii) the bid evaluation did not follow the criteria specified in the bidding documents. In December 1992, MLG invited fresh bids for the equipment after canceling contracts which it had already signed with the suppliers, and finally signed fresh contracts with the suppliers in January 1994, some six years after Credit effectiveness. Similarly, it took MLG long to finalize contracts for the supply of workshop equipment, tools, etc. for PRRMP. The road maintenance and workshop equipment, tools, etc. arrived in the country between May and November 1994. 10. Government retained consultants to provide technical assistance services to MOW and MLG; a contract between MOW and the firm was signed on May 2, 1989, with completion by December 18, 1991. The consultants team leader and a road design engineer arrived in the country in June 1989, while the remaining two staff (a road design engineer and a rural road maintenance engineer) in August/September 1989. Due to the late arrival of some of the staff, the TA contract was extended by six months to June 18, 1992 -- the services of a road design engineer were retained for another six months. The -5- consultants failed to find a replacement for one of the road design engineers who resigned and left the count-y in June 1991. The consultants progress reports mostly dwelt on the achievement of technical assistance team objectives rather than showing specific tasks performed by individual staff. 11. The total final cost of the project is within the appraisal estimate (Part II, Table 7); however, a small excess occurred over the cost of construction supervision due to the delay caused in the completion of works on the Mbarara - Ishaka Road which was offset by savings on other items. The disbursements under the Credit (Part II, Table 4) generally remained ahead of the appraisal estimates, which were conservative. The Credit finally closed on December 31, 1994, within the standard disbursement profile for Uganda. D. PROJECT SUSTAINABILITY 12. The road rehabilitation/strengthening works which consisted of pavement strengthening/reconstruction, widening/reconstruction of shoulders and improvement of roadside drains were designed for a service life of fifteen years, and were satisfactorily completed. The technical assistance helped train a number of freshly graduated engineers in MOW, besides assisting MLG in the preparation/implementation of PRRMP. The experience gained under PRRMP was applied in designing the ongoing Transport Rehabilitation Project which will help improve road maintenance planning and operations. The project is likely to maintain the achievements generated. E. BANK PERFORMANCE 13. Project Identification/Preparation 13.1 The project was identified, prepared and appraised at a time when the country's transport system was in complete disarray. The Association helped develop a program for the rehabilitation/strengthening of the country's three high priority trunk roads (Para. 2.3). It also assisted Government in mobilizing donors to finance roads that were included in the program but did not form part of the project; as an outcome of the Association's efforts, the rehabilitation/strengthening of the Kampala - Jinja Road (km 24 - 72) and Ishaka - Katunguru section of the Mbarara - Ishaka - Katunguru Road were financed by the AfDB, and the Mbarara - Rubaare Road by EEC (now EU). The Association's performance in project identification, as well as project preparation assistance was highly satisfactory. -6- 14. Project Appraisal 14.1 The project was appraised in May 1985. However, in view of the unstable political situation in the country at the time, it was decided to defer presentation of the project to the Loan Committee. Following formation of a new Government, the appraisal mission returned to Uganda in June/July 1986 to seek Government agreement with the project scope and content, and to update the appraisal. 14.2 To alleviate the impact of understaffing in MOW, road construction was planned to be carried out by contract under the supervision of consultants; technical assistance was included to help improve MOW's capacity in highway planning and design, and to provide assistance to MLG in the preparation and implementation of PRRMP. The project required Government to fill two key vacant positions (a chief planning engineei and a chief road maintenance engineer) in MOW with suitably qualified and experienced persons by a specified date (October 31, 1987). The risk that project implementation might be delayed due to MOW/MLG's lack of administrative capacity was thus minimized. 14.3 To avoid any unforeseen increases in cost, bids for road rehabilitation/ strengthening works were received prior to Board presentation. To ensure allocation of adequate funds for maintenance of the main road network, it was agreed that Government would review with the Association the budgetary requirements and the proposed budgetary allocation for road maintenance over the period FY 1988 - 93, and would ensure that any shortfall in the allocation of funds during the past year is made up as appropriate in the subsequent year. 14.4 The implementation schedule and project monitoring indices agreed with Government were adequate. 14.5 The Association's performance in project appraisal is rated as satisfactory. 15. Project Supervision 15.1 The Association's supervision effort was more than adequate, with thirteen missions fielded over seven years; however, there was lack of continuity in project supervision during FY89 and FY90 due to a change in the task management responsibility. The project implementation progress reporting was adequate and the performance ratin given in Supervision Form 590s appropriate; the implementation problems were correctly identified and appropriate and timely advice given to the implementing agencies. The Association spent a great deal of time and effort in assisting MOW/MLG in the procurement of civil works and goods contracts. It did not, however, push MLG early enough to pay attention to establishing road maintenance setups in the districts, instead of its focusing attention on road rehabilitation. The Bank's supervision performance was generally satisfactory. -7- F. BORROWER PERFORMANCE 16. Project Preparation 16.1 The borrower helped expedite engineering studies for the roads included in the program and the receipt of bids for road rehabilitation/strengthening works prior to Board presentation. The borrower performance in project preparation was satisfactory. 17. Project Implementation 17.1 Project coordination in MOW was weak until a new Deputy Engineer-in-Chief (Development) assumed charge of the post in November 1990 -- prior to this, the highway engineer (project coordinator) on the technical assistance team acted as deputy engineer-in-chief. Disregaroing the Bank procurement procedures, MOW proposed to award rehabilitation/strengthening works on the Kampala - Jinja Road (km 0 - 24) to the second lowest evaluated bidder on the grounds that the lowest evaluated bid was significE ntly lower than the consultants estimate of cost and that the bidder, a prequalified contractor, did not have an established organization in Uganda, nor did he have previous experience on similar works in the country. In view of the latter's refusal to extend the validity date of his offer, however, the Association agreed to Government awarding contract to the second lowest evaluated bidder. Similarly, MOW proposed to award rehabilitation/strengthening works on the Mbarara - Ishaka Road to a firm wrongly declared to be the lowest evaluated bidder. Contrary to the Association's advice, it insisted that the consultants' evaluation of the bids was correct; however, after protracted correspondence between Government and the Association, MOW finally awarded the contract to the lowest evaluated bidder (Para. 6). 17.2 Despite assistance by a rural road maintenance expert, MLG took long to prepare proposals for setting up road camps and workshops and to finalize contracts for the supply of road maintenance and workshop equipment, tools, etc. for PRRMP (Paras. 8 and 9). 17.3 Government was in general compliance with the Credit covenants; however, the audit reports were generally received very late -- the audit reports for FY88 - FY91 were received in July 1992, after several reminders. Also, the funds allocated/released for road maintenance were generally far below the requirement. 17.4 The borrower performance in procurement procedures for civil works and goods contracts, and covenant compliance was deficient. -8- G. ASSESSMENT OF OUTCOME 18. The project achieved its principal objective of protecting capital investment in the two very heavily trafficked roads. The pilot rural road maintenance program helped create road maintenance awareness in the districts and provided a foundation for the larger feeder road rehabilitation and maintenance program included in the ongoing Transport Rehabilitation Project. The technical assistance helped train a number of young engineers in MOW, among other things. The recalculated ERR for the road rehabilitation/strengthening works on the Kampala - Jinja Road (km 0 - 24) and Mbarara - Ishaka Road, representing 85% of the total project cost, is 61% and 17%, compared to an ERR of 63% and 30% respectively, estimated at appraisal (Para. 5.1). The project outcome is rated as satisfactory. H. FUTURE OPERATION 19. The road maintenance and workshop equipment procured under PRRMP will be utilized for contractor training in rural/feeder road rehabilitation and maintenance under the ongoing Transport Rehabilitation Project which will help improve road maintenance planning and operations. Apart from allocating agreed levels of counterpart funds, the project requires Government to introduce an effective financing mechanism for road maintenance by a specified date. I. KEY LESSONS LEARNED 20. The pilot rural road maintenance program component of the project suffered long delays in its implementation. A mid-term review of project implementation, as now generally practiced, and closer supervision would have brought to light the inaction on the part of the borrower/implementing agency(ies)/consultants. 21. The progress reports on technical assistance services provided by consultants did not show specific tasks performed by individual staff. The terms of reference of technical assistance staff should include a detailed work program with verifiable inputs and outputs for each individual staff. 22. The funds allocated/released by Government for road maintenance were generally inadequate. This underlines the need for establishing a funding mechanism and tight administration of project conditionality that would assure the availability of adequate funds for road maintenance in a timely manner. -9- PART II - STATISTICAL TABLES TABLE 1: SUMMARY OF ASSESSMENTS A. Achievement of objectives Substantial Partial Negligible Not applicable MEcroeconomic policies X Sector Policies X Financial objectives X Institutional development X Physical objectives X Poverty reduction X Gender concerns X Other social objectives X Environmental objectives X Public sector management X Private sector development X Other (specify) X B. Project sustainability Likely Unlikely Uncertain x C. Bank Performance Highly satisfactory Satisfactory Deficient Identification X Preparation assistance X Appraisal X Supervision X D. Borrower performance Highly satisfactory Satisfactory Deflclent Preparation X Implementation X Covenant compliance X Operation (if applicable) Highly Highly E. Assessment of outcome satisfactory Satisfactory Unsatisfactory unsatisfactory x - 10 - TABLE 2: RELATED BANK LOANS/CREDITS Loan/Credit Title Purpose Year of Status Approval Preceding operations 1 Credit 108-UG Construction to paved standards of the 1967 Completed First Highway Mbarara - Katunguru Road; and Project construction of small agricultural and feeder roads, and detailed engineering of 740 km of main and feeder roads 2. Credit 164-UG Construction/Reconstruction of 665 km of 1969 Completed Second Highway primary, secondary, and feeder roads; a Project highway investment maintenance and organization study; feasibility and detailed engineering studies of about 400 km of roads; & technical assistance 3. Credit 1445-UG Carrying out of a 4-year road maintenance 1984 Completed Third Highway program of the classified road network; Project institutional strengthening; and a pilot program for the development of the local construction industry Following operations 1 Credit 1986-UG Repair and rehabilitation of the Kampala - 1989 Completed Railways Project Kasese line, providing track maintenance plant and equipment, etc., and institutional strengthening 2. Credit 2362-UG Reconstruction of essential economic and 1992 On-going Northern social infrastructure including regravelling, Reconstruction reseal ing/rehabilitation of selected main Project roads (457 km); rehabilitation of priority feeder roads (270 km); and institutional strengthening 3. Credit 2587-UG Carrying out of a 4-year main roads, as 1994 On-going Transport well as feeder roads maintenance program; Rehabilitation upgrading, regravelling/ rehabilitation of Project selected main roads (194 kn): rehabilitation of feeder roads (680 km); and institutional strengthening - 11 - TABLE 3: PROJECT TIMETABLE Steps in project cycle Date planned Date actual Identification NA December 1984 Preparation NA February/March 1985 Appraisal April 1985 May 1985 Negotiations January 20, 1986 April 14, 1987 Board presentation March 25, 1986 May 21, 1987 Signing May 29, 1987 May 29, 1987 Effecti%eness August 28, 1987 September 11, 1987 Project completion June 30, 1993 December 31, 1994 Loan closing December 31, 1993 December 31, 1994 - 12 - TABLE 4: LOAN/CREDIT DISBURSEMENTS: CUMULATIVE ESTIMATED AND ACTUAL (US$ thousands) FY88 FY89 FY90 FY91 FY92 FY93 FY94 FY95 Appraisal 1,000 5,000 9,000 13,000 16,000 18,000 estimate Actual 3,350 6,480 12,820 14,810 16,260 16,510 17,340 17,414 Actual as % 335 130 142 114 102 92 - - of estimate Date of final March 15, 1995 disbursement - 13 - TABLE 5: KEY INDICATORS FOR PROJECT IMPLEMENTATION Key implementation indicators in SAR Estimated Actual 1. Road rehabilitation/strengthening (i) Kampala - Jinja Road (km) 24 24 (ii) Mbarara - Ishaka Road (km) 60 60 2. Pilot Rural Road Maintenance Program (%) 100 80 3. Feasibility Study and, if possible, detailed engineering of the Soroti - Lira Road (i) Feasibility study (%) 100 100 (ii) Detailed engineering (%) 100 Dropped 4. Technical assistance (staff-month) 120 125 - 14 - TABLE 6: STUDIES INCLUDED IN PROJECT Study Purpose as defined Status Impact of Study at appraisal Feasibility Study To determine the The feasibility study Not Applicable and, if feasible, technical and had been completed; detailed engineering economic feasibility detailed engineering of the Soroti - Lira of upgrading the was dropped since Road (120 km) road to paved upgrading the road to standards paved standards was not found to be economically viable - 15 - TABLE 7: PROJECT COSTS Appraisal estimate Actual Item (USSM) (USSM) Local Foreign Total Local Foreign Total Costs Costs Costs Costs I. Highway Rel'abilitation/strengthening (i) Kampala-Jinja Road (km 0-24) 0.9 4.9 5.8 0.8 6.1 6.9 (ii, Mbarara-Ishaka Road (60 km) 1.6 6.5 8.1 1.1 6.9 8.0 11. Pilot Rural roads Maintenance Program 0.2 0.8 1.0 0.0 0.5 0.5 III. Consultant Services (i) Construction Supervision 0.3 1.4 1.7 0.1 2.0 2.1 (ii) Technical Assistance 0.3 1.2 1.5 0.1 1..4 1.5 (iii) Studies 0.1 0.5 0.6 0.1 0.5 0.6 Sub-Total 3.4 15.3 18.7 2.2 17.4 19.6 Contingencies (i) Physical 10% on items I and III 0.3 1.5 1.8 (ii) Price on items I and III 0.2 1.1 1.3 Total Project cost 3.9 17.9 21.8 2.2 17.4 19.6 - 16 - TABLE 8: PROJECT FINANCING Source Appraisal estimate (USSM) Actual (USSM) Local Foreign Total Local Foreign Total Costs Costs Costs Costs IBRD/IDA - 17.9 17.9 - 17.4 17.4 Cofinancing institutions - - - - - - Other external sources - - - - - - Domestic contribution 3.9 - 3.9 2.2 - 2.2 TOTAL 3.9 17.9 21.8 2.2 17.4 19.6 - 17 - TABLE 9: EcoNoMIC COSTS AND BENEFITS Year Kampala - Jinja Road (km 0 - 24) Mbarara - Ishaka Road Costs Benefits Net Benefits Costs Benefits Net Benefits ---------- US$ million ---------- ---------- US$ million ---------- 1988 1.34 0.00 -1.34 1.98 0.00 -1.98 1989 4.80 0.00 -4.80 1.43 0.00 -1.43 1990 0.91 3.40 2.49 2.24 0.00 -2.24 1991 0.08 3.41 3.33 1.65 1.58 -0.07 1992 0.08 4.54 4.46 0.20 2.46 2.26 1993 0.08 6.05 5.97 0.20 1.76 1.56 1994 0.08 8.06 7.98 0.20 1.60 1.40 1995 0.08 8.46 8.38 0.20 1.60 1.40 1996 0.60 8.89 8.29 1.50 1.65 0.15 1997 0.08 9.33 9.25 0.20 1.70 1.50 1998 0.08 9.80 9.72 0.20 1.78 1.58 1999 0.08 10.29 10.21 0.20 1.87 1.67 2000 0.08 10.80 10.72 0.20 1.97 1.77 2001 0.60 11.24 10.64 1.50 2.06 0.56 2002 0.08 11.68 11.60 0.20 2.17 1.97 2003 0.08 12.15 12.07 0.20 2.28 2.08 2004 0.08 12.64 12.56 0.20 2.39 2.19 2005 1.20 13.14 11.94 3.00 2.51 -0.49 ERR 61% ERR 17% - 18 - TABLE 10: STATUS OF LEGAL COVENANTS Agreement Section Covenant Present Original Revised Description of Covenant Comments Type Status Fulfill Fulfill Date Date DCA 3.03 11 CP The Borrower and the The funds allocated/ Association shall released for road beginning 1988 and maintenance were ending with 1993 generally far below review and agree on the requirement. the adequacy of the budgetary allocation for road maintenance 3.04 8 C 10/31/87 The Borrower shall Complied with take measures to fill the vacant positions of Chief Planning Engineer and Chief Road Maintenance Engineer in MOW no later than October 31, 1987 4.01(b) I CD The Borrower shall Audit reports were furnish to the generally received Association not later very late. than six months after the end of each fiscal year a certified copy of the report of audit of project records and accounts Status: C - Complied with CD - Compliance with Delay CP Complied with Partially - 19 - TABLE 11: BANK RESOURCES: STAFF INPUTS Stage of project cycle Planned Revised Actual Weeks USS Weeks USS Weeks USS Through appraisal NA NA NA NA 26.6 NA Appraisal - Board NA NA NA NA 4.4 NA Board - Effectiveness NA NA NA NA NA NA Supervision 75.0 NA 85.0 NA 79.1 NA Completion 11.0 NA 11.0 NA 6.2 NA TOTAL 116.3 NA - 20 - TABLE 12: BANK RESOURCES: MISSIONS Performance ratingl Stage of Month/ Number Days Specialized Implementation Development Types of4 project cycle year of In staff skills status impact problems persons fled represented Through 1. 12/84 1 12 HE appraisal 2. 2-3/85 2 10 HE, EC 3. 5/85 3 15 HE (2), EC Appraisal through 6-7/86 3 16 HE (2), EC Board approval Board approval 7/87 2 14 HE (C), EC thru' effectiveness Supervision 1. 10-11/87 1 13 HE (C) 2 1 M 2. 3/88 1 8 HE (C) 2 1 M 3. 6-7/88 I 10 HE (C) 2 I M 4. 11/88 2 8 HE, HE (C) 2 1 M 5. 5/89 I 10 HE 2 1 M, T 6. 10-11/89 1 20 HE 2 1 M, T, F 7. 4-5/90 1 21 HE 2 1 M, T, F 8. 9-10/90 1 21 HE (C) 2 1 M, F 9. 7/91 1 7 HE (C) 2 1 M, T, F 10. 7/92 1 19 HE (C) 2 1 M, T, F 11. 12/92 1 17 HE (C) 2 1 M. T, F 12. 9-10/93 I 11 HE (C) 2 1 M, T, F 13. 7/94 1 16 HE (C) S S M Completion 1. 1/95 1 14 HE (C) - - I - Problem free; 2 - Moderate problems; S - Satisfactory 2 Combined with supervision/preperation missions for other highway projects HE - Highway Engineer; HE (C) - Highway Engineer, Consultant; EC - Economist M - Managerial; T - Technical; F - Financial UGANDA Appendix A FOURTH HIGHWAY PROJECT (Cr.1803-UG) Page 1 of 2 AIDE MEMOIRE 1. A World Bank Mission consisting of Mr. S.L. Kathuria, Highway Engineer Consultant, visited Uganda from January 19 to January 31, 1995 to review with Government, inter alia, the implementation record, project achievements and final completion costs of the Fourth highway Project. 2. The mission received a copy of the progress report showing the current status of the project as of the Credit closing date (December 31, 1994). The rehabilitation/strengthening of the Kampala-Jinja Road (Km O-2N) and Mbarara-Ishaka Road (60 km) is satisfactorily completed. The Pilot Rural Road Maintenance Program (PERMP) included in the project is also completed; some 190 km of rural road has been rehabilitated under the Program. 3. The progress report presented to tVe mission does not show the actual date(s) of arrival and final costs of the road maintenance and workshop equipment, tools, survey and dray'ng office equipment, etc. for the PRRMP. The report also doas not rvide complete details in support of the expenditure on technical assistcce (US 3 2.016 million) and PRRMP ($S 1.229 million). Besides. there are some discrepancies in the final costs of other elements of the projest. MWTC will submit a revised report on the project to the Bank by February 10, 1995. 4. The mission advised Government of the Bank implementation completion reporting requirements and the borrower's responsibility for preparing its own evaluation report on the project's execution, costs and benefits and he Bank's ard borrower performance of their respective obligations under the Development Credit Agreement. 5. The borrower eva7uation reort on the project should include: (i) an assessment of the project objectives, design and implemertation; (ii) an evaluation of the borrower's own performance during the evolution and implementation of the project, with special emphasis on lessons learned that may be relevant in the future; and (iii) an evaluation of the performance of the Bank, including the effectiveness of the relaticnship between the borrower and the Bank. Appendix A Page 2 of 2 6. It was agreed that Government evaluation of project imolementation in ten pages or less (with a summary if the report is larger that ten pages) will be submitted to the Sank by March 31, 1995. .LKathuria H.R. "ibuuka e WORLD BANK. ENGIN ER-IN-CHIEF DIREC OR OF ENGINEERING. January 31, 1995 Distribution: Hon. Minister, Ministry of Works, Transport and C.mmunications Hon. Min-ster. Ministry of Local Government Hon. Minister of State, Ministr of Works. Transort and Cocrunicaticns Permanent Sec1tary. Ministry of Works, TransDort a,-d Crmmuricaions Permanent Secretary, Ministry of Local Govenment Permanent Secretary, Ministry of Finance and Ecoeomic Planning Chief Engineer, Ministry of L.cal Government Commissioner, Aid CCordinai-n Resident Representative, World Bank APPENDIX B REPUBLIC OF UGANDA MINISTRY OF WORKS, TRANSPORT AND COMMUNICATIONS FOURTH HIGHWAY PROJECT (IDA CREDIT NO. 1803 UG) FINAL REPORT Engineer-in-Chief Ministry of Works, Transport and Communications P.O. Box 10 ENTEBBE (Tel: 42-20101/9) MARCH, 1995 1.0 INTRODUCTION The Fourth Highway Development Credit Agreement between the Republic of Uganda and International Development Association (IDA) was signed on 29th May, 1987. The Credit No. 1803-UG equivalent to 14.1 million Special Drawing Rights (SDA), became effective on the I Ith September, 1987 and expired on 31st December, 1994. The Fourth Highway Project included the following parts:- Part A: Highway Rehabilitation and Strengthening Part B: Rural Roads Maintenance Part C: Technical Assistance to M.O.W.T&C and M.O.L.G. Part D: Studies 2.1 PART A: HIGHWAY REHABILITATION AND STRENGTHENING (a) The Rehabilitation and Strengthening of Kampala - Jinja road went on as plav:ied except for only 2 1/2 months delay in completion. The project was executed to the desired quality standard. (b) The Rehabilitation and Strengthening of Mbarara - Ishaka road suffered significant delays right from the start because of the Contractor's failure to execute work in accordance with the project programme. As a result of these delays by the Contractor, the Ministry of Works, Transport and Communications saw it imperative to re-negotiate the Contract amendment with the Contractor whereby the Contractor had to subcontract some of the works to two Contractors. The project was completed to the desired standards 18 months later than the scheduled date of completion. 2.2 PART B: RURAL FEEDER ROADS The procurement of Civil Works Component was cancelled but procurement of Road Maintenance equipment and workshop tools effected. This was because the feeder roads that were scheduled to be maintained were in such a state of disrepair that they needed complete rehabilitation rather than maintenance. Some of the procured items have been received by the Client, others are still with the clearing agencies. -2- 2.3 PART C: TECHNICAL ASSISTANCE TO M.O.W.T&C AND M.O.L.G. These tasks were successfully undertaken by a team of Consultants. This team dealt with Project Coordination and preparation of 5-year Road Improvements plan (1992 - 1997), Improvement of Design Office capabilities and training of M.O.W.T & C staff in Project Implementation. The technical assistance team also prepared a Road Design Manual and Specifications for Roads and Bridges Construction. The technical assistance also covered Project Monitoring and technical assistance to Ministry of Local Government. The consultant Roughton and Partners provided a Road Maintenance Engineer to the Ministry of Local Government. This consultant prepared a Rural Road Maintenance program for the M.O.L.G. Because of the poor conditions of the roads the consultant assisted in putting the roads in a maintenable condition. The Consultant also assisted in implementation of the Rural Road Maintenance Programme. 2.4 PART D: STUDIES Techno-economic Feasibility Studies were carried out by Consultants Norconsult on Soroti - Lira Road. 2.5 BORROWERS OWN PERFORMANCE 2.5.1 The Borrower opened up a special dollar account for the credit with the Bank of Baroda and also paid all the fees and service rates as agreed. The borrowers Bank Account were properly and smoothly operated. 2.5.2 The Borrower also kept good accounting records including auditing, for the credit transactions and ensured to have adequate budgetary allocations for the road network administered by the Ministry, especially for the roads supported by the Bank. 2.5.3 The Borrower fulfilled all the agreements and conditions preferred by the Bank and particularly filled in vacant post of Chief Planning Engineer and Chief Road Maintenance Engineer by October 31, 1987. 2.6 PERFORMANCE OF THE BANK 2.6.1 The Bank's performance was generally excellent. The Bank made all its payments in time. The Bank also maintained a very good contact with the Borrower by periodically sending in supervision Missions to take stock of project progress and give advice on actions to be undertaken and advise on future actions. 2.6.2 The Bank has been very cooperative especially as the Borrower is still building up enough capicity to handle its operations. -3- 2.7 LESSONS LEARNED 2.7.1 Some delays were experienced in the implementation due to late payments of local funds to Contractors from the Ministry of Finance. To alleviate these problems it is recommended that a Road Fund for Road Maintenance be set up to enable timely disbursement of local funds to Contractors. 2.7.2 It was also learned that contracting most of the maintenance jobs to private contractors was more cost effective. As such the Ministry now contracts most of its Road Maintenance Operations. � -. _ ' иг�в. � . � ,о � �„ы,� , - . �.� � ц\ � ы�- ,� 1�оМ = � . . 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