Ghana - Urban Transport

 ICRR 10785 Report Number : ICRR10785 ICR Review Operations Evaluation Department 1. Project Data: Date Posted : 08/22/2000 PROJ ID : P000956 Appraisal Actual Project Name : Urban Transport Project Costs 87.37 81.28 US$M ) (US$M) Country : Ghana Loan /Credit (US$M) Loan/ US$M ) 76.2 75.1 Sector (s): Urban Transport Cofinancing 0 0 US$M ) (US$M) L/C Number : C2498 Board Approval 93 FY ) (FY) Partners involved : Closing Date 12/31/1998 12/31/1999 Prepared by : Reviewed by : Group Manager : Group : 2. Project Objectives and Components a. Objectives The objective of the project was to increase the quality and efficiency of urban transport services, make their delivery more equitable, and sustain the improved level of services. The project would also: (i) improve sector policy and build institutional capacity; (ii) increase safety of pedestrians and the users of non-motorized transport (NMT); and (iii) reduce fuel consumption and air pollution in the cities. b. Components The project had five components: (a) road rehabilitation; (b) traffic management improvements; (c) rehabilitation of lorry parks and bus terminals; (d) NMT facilities and access improvements to low-income areas; and (e) institutional strengthening of central and local government agencies. c. Comments on Project Cost, Financing and Dates The actual project cost is US$ 81.28 million, 7% lower than the appraisal estimate. The Bank financed US$ 75.1 million and the remaining US $ 1.26 million was canceled. The project closed on December 31, 1999, one year later than the original closing date. 3. Achievement of Relevant Objectives: The project achieved its objective of increasing the quality and efficiency of urban transport services. Vital sections of the arterial road network in Accra and Sekondi-Takordi were rehabilitated. Vehicle operating costs on major arteries dropped by 50% since 1998. Effective traffic management schemes improved traffic flow and reduced the traffic peak waiting time at major intersections by 40%. The condition of network in good condition increased form 24% of the total network in 1997 to 35% in 1999. The objective of making service delivery more equitable was partially achieved. The mobility needs of urban poor and vulnerable groups was not fully addressed. The project completed about 19 km (planned 25 km) of the access roads in the low income areas. The objective of sustaining the improved level of services was not achieved. The project objectives of improving sector policy and institutional development were not achieved. A comprehensive policy framework for urban transport was prepared but not implemented. The reforms highlighted in the "Government's Policy Letter" were not implemented. There was no effective reform of the Department of Urban Roads (DUR) to strengthen its policy development/coordination, planning, and quality control functions. The objective of improving safety of pedestrians and NMT users was partially met. Annual road accidents have declined by 19% between 1993 and 1998. Data collection for road accidents have improved.  Some paths for NMT users were constructed. The achievement of the objective of reduction in fuel consumption and air pollution in the cities are not clear as the ICR does not provide any indicators. 4. Significant Outcomes/Impacts: The significant impacts of the project are: preparation of a comprehensive policy framework for urban transport, based on consultative and broad based approach. promotion of private sector participation in construction and rehabilitation of infrastructure. increased focus on road maintenance and improvement in road maintenance programming. improvement in drainage and reduction of floods in low-income areas. 5. Significant Shortcomings (including non-compliance with safeguard policies): The main shortcomings of the project are: serious delays during project implementation due to lack of counterpart funding. shift in emphasis towards the Accra roads component caused reducton in critical components such as traffic management, accident reduction, institutional strengthening and NMT paths. This reduced the projects planned economic and social benefits. 6. Ratings : ICR OED Review Reason for Disagreement /Comments Outcome : Satisfactory Moderately Satisfactory The outcome rating is downgraded to "Moderately Satisfactory" because the project achieved most of its relevant objectives efficiently but with significant shortcomings. Physical targets for arterial road network were met with substantial cost overruns. The objective of making service delivery more equitable was partially achieved. Road safety program aimed at pedestrians and NMT users was partially implemented. Policy/institutional objectives were not met. Institutional Dev .: Modest Negligible The assessment of ID impact is negligible because the project's explicit ID objectives were not met. The project did not (a) implement the comprehensive policy framework; and (b) develop the framework for inter-agency co-ordination. Also, the government did not implement the reforms outlined in the policy letter. Sustainability : Likely Likely Bank Performance : Satisfactory Satisfactory Borrower Perf .: Satisfactory Satisfactory Quality of ICR : Satisfactory NOTE: NOTE ICR rating values flagged with ' * ' don't comply with OP/BP 13.55, but are listed for completeness. 7. Lessons of Broad Applicability: The ICR identifies the following lessons of broad applicability: Bank-funded projects should not only seek to establish the appropriate balance in project components during design, but should make sure that such balance is maintained during implementation.  The Bank should consider program approach (Comprehensive Development Framework) as opposed to project approach for the transport sector. It is important to place urban transport development in an integrated context. Borrower identified the following important lessons: Urban projects should increase the interaction with beneficiary communities to inform them about new concepts such as non-motorized transport schemes and road safety measures. This can be achieved through publicity and education campaigns. An urban transport policy should be developed with inputs from stakeholders to ensure effective usage of roadway thereby reducing congestion. Regular training program for contractors is essential for improving their quality of work. Governments ability to provide counterpart funding should be carefully determined if projects are not to be adversely affected by governments funding constraint. 8. Assessment Recommended? Yes No 9. Comments on Quality of ICR: The overall quality of ICR is Satisfactory. It is clearly written, and identifies all the relevant and important issues. The Lessons Learned section is insightful and useful. Borrower's contribution to the ICR was exemplary.