Upper Volta - Fourth Highway Project

Document of The World Bank tilE CW'Y FOR OFFICIAL USE ONLY Report No. 3256-UV REPUBLIC OF THE UPPER VOLTA FOURTH HIGHWAY PROJECT STAFF APPRAISAL REPORT May 7, 1981 Western Africa Projects Department Highways Division 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 EQUIVALENTS Currency Unit = CFA Franc (CFAF) US Dollar 1.00 = CFAF 235 CFAF 1 million = US Dollar 4,255 FISCAL YEAR January 1 - December 31 SYSTEM OF 1EIGHTS AND MEASURES: METRIC 1 kilometer (km) = 0.62 miles (mi) 1 meter (m) = 3.28 feet (ft) 1 centimeter (cm) = 0.39 inches (in) 1 square kilometer (km) = 0.386 square miles (sq mi) 1 liter (1) = 0.22 imp. gallons = 0.26 US gallons 1 kilogram (kg) = 2.205 pounds (lb) 1 ton (t) 2,205 pounds (lb) ABBREVIATIONS AND ACRONMYS adt - average daily traffic voc - vehicle operating costs vpd - vehicles per day  FOR OFFICIAL USE ONLY GLOSSARY - GLOSSAIRE BPP Bureau of Planning and Programming Bureau de Planification et de Programmation BP Bureau of Programming Bureau de Programmation CIDA Canadian International Development Agence Canadienne pour le Agency Developpement International CFPTP Center for Technical Training Centre de Formation Professionelle des Travaux Publics DETN Directorate for Design and New Work Direction des Etudes et des Travaux Neufs DM Directorate for Equipment Direction du Materiel DGT General Directorate of Transport Direction Generale des Transports DGTP General Directorate of Public Works Direction Generale des Travaux Publics DR Regional Directorates Direction Regionale EDF European Development Fund Fonds Europeen de Developpement FAC French Aid Agency Fonds d'Aide et de Cooperation (France) FRU Feeder Roads Unit Division des Routes de Desserte MTPTU Ministry of Public Works, Trans- Ministere des Travaux Publics, port and Urbanism des Transports et de l'Urbanisme ORD Regional Development Organization Organisme Regional de Developpement RAN Railways Authority Regie des Chemins de Fer Abidjan- Niger SERN Maintenance Department for Service d-Entretien des Routes National Roads Nationales SERS Maintenance Department for Service d'Entretien des Routes Secondary Roads Secondaires 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.  C PI  UPPER VOLTA FOURTH HIGHWAY PROJECT STAFF APPRAISAL REPORT Table of Contents Page No. I. TRANSPORT SECTOR ............................................. 1 A. Geographic, Social and Economic Factors .................. 1 B. The Transport System ..................................... 1 Railways ................................................ 2 Access to the Sea ....................................... 3 Air Transport ........................................... 3 C. Transport Planning and Coordination ...................... 3 D. Bank Group Assistance to the Sector ...................... 4 II. THE HIGHWAY SUBSECTOR ........................................ 5 A. The Road Network ......................................... 5 B. Characteristics and Growth of Road Traffic .... ........... 6 C. The Road Transport Industry and Regulation .... ........... 7 D. Administration ........................................... 8 E. Financing ................................................ 9 F. Engineering .............................................. 10 G. Construction ............................................. 10 H. Maintenance .............................................. 11 I. Training ................................................. 12 III. THE PROJECT .................................................. 13 A. Objectives ............................................... 13 B. Description .............................................. 13 C. Cost Estimates ........................................... 18 D. Financing ................................................ 22 E. Implementation ........................................... 23 F. Procurement .............................................. 24 G. Disbursements ............................................ 25 IV. ECONOMIC EVALUATION .......................................... 25 A. Maintenance and Rehabilitation Program of Classified Roads ................................................... 25 B. Selection Criteria for Earth and Gravel Roads to be Included in First Priority Road Rehabilitation .... ...... 27 C. Feeder Roads Construction Program ........................ 28 D. Overall Project Benefits and Risk Analysis .... ........... 28 V. AGREEMENTS TO BE REACHED AND RECOMMENDATION .................. 29  - ii - Table of Contents (Cont'd) ANNEXES I. Tables 1. Planned and Actual Expenditures on Roads and Railways, 1972-81 2. Expenditures on Road Construction by Sources of Financing, 1977-80 3. Ongoing and Planned Road Construction Projects 4. IDA Investments in the Road Infrastructure, 1970-80 5. Vehicle Registrations, 1975-79 6. Principal Revenues and Expenditures on Roads, 1975-79 7. Current Receipts and Expenditures in the DGTP Budget, 1975-79 8. Geometric Design Standards by Road Type 9. Road Maintenance Equipment to be Procured 10. Long-Term Rehabilitation and Regravelling Program 11. First Priority Program for Rehabilitation and Regravelling 12. Bitumen-Surfaced Roads to be Resealed 13. Monitoring Indicators of Maintenance Program 14. Vehicle Operating Costs II. List of the Technical Assistance Personnel by Type of Function III. Feeder Roads IV. Documents and Data Available in the Project File CHARTS I. Proposed Reorganization of Public Works Department II. Project Implementation Schedule MAP I. Fourth Highway Project, Road Network (IBRD 15349) II. Feeder Roads (IBRD 15477) This report was prepared by Peter Ludwig and Pierre Tessier-Viennois (Engineers) and Iona Sebastian and Brigitta Mitchell (Economists) on the basis of an appraisal mission in May 1980.  UPPER VOLTA FOURTH HIGHWAY PROJECT STAFF APPRAISAL REPORT I. TRANSPORT SECTOR A. Geographic, Social and Economic Factors 1.01 Upper Volta is a landlocked, Sahelian country with an area of 274,000 km2. The country's geography is characterized by poor soils, lack of mineral resources and an arid climate. The population of 6.4 million is growing at about 2% per annum. Two-thirds of the people live on the central plateau in the eastern part of the country; over 85% are engaged in sub- sistence agriculture and livestock raising. Per capita gross domestic product (GDP) was about US$128 in 1978, placing Upper Volta among the ten poorest countries in the world. Seven percent of the total population work outside the country, mostly in neighboring Ivory Coast, and their salary remittances provided a steady income flow which amounted to about 8% of GDP in 1978. An IMF economic mission of October 1979 estimated that real GDP has been declining steadily, down 27% from 1970 to 1978. This decrease is due to a combination of factors among which the most important are the long-lasting effects of the drought and the decline in productivity following the emigration of young male farmers to the Ivory Coast. 1.02 The modern sector of the economy registered a modest growth of about 3% p.a. over 1974-78, especially marked in administrative services due to increased government spending, in commerce due to increased imports, and in hotels and restaurants. Since 1978 the performance of the agricultural sector has improved and a growth rate of 3.1% has been attained. Following the onchocerciasis eradication effort, a farmers resettlement program was started in 1977 under the supervision and control of the Autorite pour lAmenagement des Vallees des Voltas (AVV). It is expected that as a result of this program, the more fertile soil of the Volta Valleys will be gradually brought back into production. B. The Transport System 1.03 There are 16,500 km of roads and tracks (a density of about 60m/km2) radiating from the country-s two main cities: Ouagadougou, the capital, in the center and Bobo-Dioulasso in the southwest (The details of the road system and the road transport industry are discussed in Chapter 2). The Regie des Chemins de Fer Abidjan-Niger (RAN) links the same main cities with the port of Abidjan in the Ivory Coast. The latter is Upper Volta-s main trading partner and the railroad carries about 75% of the country's total import-export traffic. Other international access routes include paved roads from Ouagadougou to the coast through Ghana and Togo and some partly paved roads through Benin and Niger, via Fada N'Gourma, a newly emerging center of economic activity. International airports are located at Ouagadougou and Bobo-Dioulasso. Some 10 additional airstrips are located at the country's major townships, but carry little traffic.  - 2 - 1.04 The transport system promotes economic and political unification of the country. The food crops cultivated in the southwest are distributed via the road network to the populations of the northern and northeastern Sahelian regions. Cash crops are brought into the trading centers at Ouagadougou and Bobo-Dioulasso from the neighboring regions. Also, the Government regards the road infrastructure as the necessary prerequisite for the implementation of its education and health programs. 1.05 Roads and the railway absorbed 16.2% of total expenditure under the 1972-76 development plan; 15% went to roads financed mostly by foreign donors and multilateral aid agencies (Tables 1 and 2). 1/ The goals of the development plan were not achieved in the road subsector. Of the 798 km covered in the road paving program, only some 400 km were completed; road maintenance activities slowed down from lack of adequately trained personnel, fuel and spare parts. Uncompleted projects were shifted to the 1977-81 planning period (Table 3). In the railway subsector, expenditures on track maintenance and equipment renewal were fully executed as planned. 1.06 The Government continues to give high priority to the upgrading of its main road system, and the roads included for reconstruction to paved standards in the 1977-81 development plan (Table 3) are economically justi- fied. However, there has recently been a trend to pay more attention to the maintenance of main roads and development of feeder roads (Table 2). This trend is justified in light of regional development programs, and as a pre- requisite it requires an efficient highway maintenance organization which the proposed project will help to develop. Railways 1.07 RAN, owned by the Governments of Ivory Coast and Upper Volta, operates a 1,159 km single-track line from Abidjan to Ouagadougou of which 520 km are in Upper Volta. While it is financially autonomous, the two Governments contribute to maintenance and capital renewal costs. Until 1978 RAN's financial performance was adequate, but in 1979, declining traffic and increasing costs led to a deterioration of its financial position. Tariffs have been increased, but the increases have been too late and too small to keep up with rising prices and RAN's debt service requirements. Additional increases may soon be necessary. The decline in traffic had resulted from serious operational difficulties stemming in turn from a shortage of motive power and rolling stock. With the delivery in mid-1979 of 19 new locomotives and 210 additional freight cars financed under the First Regional Railway Project (plus 216 freight cars under French financing), the quality of ser- vice has improved, and in 1980 freight increased by 25% over the level of the previous year. A second Regional Railway Project is under preparation and scheduled for implementation over 1982-84. Total project cost is estimated at about US$97.5 million including components executed in the Ivory Coast. 1/ All tables refer to Annex 1 unless otherwise indicated.  - 3 - 1.08 Freight on the RAN consists mainly of cotton seed, sugar, petroleum products, cement and fertilizers. In 1980, the RAN transported 579,000 tons. While freight in ton-km has been fairly stable at about 550 million ton-km from 1976 to 1979, passenger-km have increased considerably and the current 4 million annual passengers generate more than 50% of RAN's revenues. 1.09 The Government has been considering extending the railway line from Ouagadougou to the northeast in conjunction with a potentially large-scale manganese mining project at Tambao. Inasmuch as the construction of the rail- way line and the purchase of the rolling stock amount to about two-thirds of the total cost of the project, the project as a whole showed low rates of return and foreign investors were discouraged. A new study is being carried out to take into account other potential railway users in the Tambao area as well as alternative lower track design standards for the line. Access to the Sea 1.10 As a result of investments in the sector, Upper Volta is assured of access to the Atlantic Ocean via the RAN to the port of Abidjan, and via two paved roads to Tema in Ghana and to Lome in Togo. Although most of the traffic continues to use the Abidjan facilities, tonnages shipped to Lome reached about 30,000 tons in the first quarter of 1980, equal to the total tonnage shipped through that port during the previous year. It is too early, though, to assume that this trend represents a permanent shift in shippinig patterns. Problems remain relating to different road transport policies in Upper Volta, Ghana, Ivory Coast and Togo and also to lack of information regarding backhaul opportunities at the ports. Proposals for the standardiza- tion of road transport regulations are being discussed during the sessions of the Transport Commission of the Conseil de lEntente. 1/ When adopted, the Session's resolutions would be implemented by the Governments represented. Air Transport 1.11 International air service is provided by Air Afrique, UTA and Air Ivoire, operating at the two international airports of Ouagadougou and Bobo-Dioulasso. These two airports are adequately managed by the Agence pour la Securite de la Navigation Aerienne en Afrique (ASECNA). Domestic services are provided by Air Volta, a mixed public/private company created in 1967. It carries little traffic, mainly between Ouagadougou and Bobo- Dioulasso. C. Transport Planning and Coordination 1.12 The primary responsibility for transport planning and coordination rests with the Ministry of Public Works, Transport, and Urbanism (MTPTU). The General Directorate of Public Works (DGTP) is responsible for the planning, 1/ This organization representing Benin, Ivory Coast, Niger, Upper Volta and Togo promotes and coordinates political, social and economic policies among its member countries.  - 4 - construction and maintenance of roads, while the General Directorate of Transport (DGT) is responsible for planning and supervision of the road transport industry, railways, shipping, river transport and aviation. The investment proposals made by the MTPTU are submitted to the Ministry of Planning for selection and inclusion into five-year development plans. The Ministry of Finance establishes road user taxes and specifies financial ceilings for the sector. 1.13 Investments in the transport sector have been financed almost exclusively by foreign donors, with Voltaic involvement limited until recently to record-keeping. In 1976, however, the Government began to become involved in the planning of these investments through the Bureau of Planning and Programming (BPP), which was established with UNDP financing and IDA technical supervision. The technical assistants provided under the UNDP program have been training Voltaic personnel in BPP to analyze transport investments and to establish priorities. Their work has focussed so far on reviewing feasibility studies prepared by consultants and on establishing feeder road construction and rehabilitation programs. By the end of the technical assistance program, the BPP will be staffed with two Voltaic engineers and one economist who have worked closely with the foreign experts and who should be in a position to continue the work program of the unit. D. Bank Group Assistance to the Sector 1.14 Since 1970 the Bank Group has been involved in one railway and three highway projects to improve and develop Upper Volta-s transport infrastructure. The First Regional Railway Project (Loan 1490-IVC, US$23.0 million, and Cr. 744-UV, US$5.2 million, 1977) provided for track improvements, increased capacity and technical assistance to RAN. The three highway projects were: First Highway Project (Cr. 316-UV, US$2.8 million, 1972, supplemented by US$1.35 million in 1974), Rural Roads Project (Cr. 579-UV, US$7.5 million, 1975) and the Third Highway Project (Cr. 653-UV, US$20.0 million, 1976, supple- mented by US$3.5 million in 1979). The First Highway Project complemented the West Volta Cotton Project (Credit 706-UV) by upgrading to gravel standards a 70 km road serving the project. The Second Project provided for the improve- ment of 1,200 km of rural roads and maintenance of 2,100 km of existing rural roads. The Third Project called for the paving of the Banfora-Bobo-Dioulasso- Hounde road (183 km), equipment for axle weight control, technical assistance, and a feasibility study and detailed engineering of the Ouagadougou-Kaya-Dori road (260 km). It also provided for a highway maintenance study carried out by consultants BCEOM who drew up a four-year maintenance program which forms the basis of the road maintenance provisions of this proposed project. Besides these specific transport sector projects some of the agricultural projects included road components (Table 4). Project Completion Reports were issued for the West Volta Cotton Project and for the First Highway Project, but the audit reports have not yet been issued. The Rural Roads Project is proceeding satisfactorily while the Third Highway Project is nearing comple- tion.  - 5 - 1.15 During the execution of these projects various issues have emerged and are addressed either by subsequent projects or by the proposed project: a) Shortage of management personnel in the sector. Investment projects in the sector are phased into the development plans as funds become available from international donors. Since the donors have con- sistently favored capital formation, the Government's burden for maintenance of such assets has steadily increased. An appropriate management policy in the sector should: i) establish strict priori- ties for investments in the sector; ii) limit such investments to the availability of recurrent cost funds necessary to maintain the capital assets acquired; and iii) use in a rational and efficient manner the few funds allocated to cover the recurrent costs. The BPP established in the MTPTU has the mandate to evaluate and program investments in the sector. Under the proposed project technical assistance will be provided to train administration and accounting personnel to use more efficiently the funds allocated to the re- current cost budget of the DGTP. b) Shortage of technical mid-level personnel to operate and maintain road maintenance equipment. Long before the appraisal of the proposed project, the need for mechanics and machine operators was recognized both by Government and IDA. In anticipation of the need to establish viable road maintenance institutions, the Second Education Project (Credit 956-UV, US$14.0 million, 1980) includes a component for upgrading the Center for Technical Training (CFPTP) for the training of road maintenance personnel. (c) Lack of funds to maintain an extensive road network. Whereas the economy is based on subsistence agriculture and characterized by slow overall growth, traffic is concentrated on a few main trunk and secondary roads linking the few centers of economic and political activity. Rural development projects covering hundreds of villages throughout the country require access roads if significant changes in agricultural production are to be brought about. Over the past seven years the rural road network has been expanding but, again, adequate provisions for maintenance have not been made. The pro- posed project includes a component to evaluate the potential for developing a system of cantonnage whereby rural populations which benefit from the construction of low volume access roads in their area do most of the maintenance. MTPTU would remain responsible for the maintenance of higher volume roads. II. THE HIGHWAY SUBSECTOR A. The Road Network 2.01 Upper Volta's road network is estimated at about 16,500 km. Although about 8,700 km of the network are classified as national, departmental and regional roads, half of these are no more than tracks or trails. The remaining  - 6 - 7,800 km are unclassified and are mostly rudimentary tracks, their length arying from year to year as new villages are connected to the classified etwork and others are abandoned. Under the Third Highway Project road maintenance study, consultants BCEOM inventoried some 11,000 km of roads in 1979 and provided the following description of the system: Road Improved Improved Condition Paved Gravel Earth Tracks Trails TOTAL Administrative Classification National 857 1,563 560 1,401 225 4,606 Departmental -- 287 172 433 852 1,744 Regional -- 114 470 759 1,021 2,364 Total (Classified) 857 1,964 1,202 2,593 2,098 8,714 Non-Classified -- -- 452 627 1,358 2,437 TOTAL (inventoried by consultants) 857 1,964 1,654 3,220 3,456 11,151 2.02 The extent of the network is adequate to serve the present level of traffic. The Government, however, is also concerned with providing roads necessary to bring health and education services to remote villages and making accessible fertile lands of the Volta valleys recently opened for resettlement. These goals will entail the building and maintenance of new rural roads and the improvement of existing ones to a standard where they can be kept open throughout the year by routine maintenance. The scope of the project as proposed takes into account both the Government-s ability to meet the recurrent cost burden of routine maintenance operations and the need to keep open the connections with various scattered communities for the supply of public services. The project will help the MTPTU to establish the administrative structure and to provide the necessary equip- ment and materials to assure lower cost transport on the most travelled roads and open access throughout the year to the more heavily populated areas of the country. B. Characteristics and Growth of Road Traffic 2.03 The vehicle fleet was estimated at about 28,000 units in 1979, of which about 82% were light vehicles, i.e., private passenger cars, taxi- buses, and passenger buses, and 18% were heavy vehicles including trucks and trailer trucks (Table 5). Even the most heavily travelled roads, those between Ouagadougou and Bobo-Dioulasso and the route to the Ivory Coast,  - 7 - rarely register more than 250 vehicles per day and on 50% of the classi- fied roads, the average daily traffic is no more than 20 vehicles per day. Traffic growth rates over 1970-75 averaged about 8% p.a., a trend which appears to have continued. There have been important variations in traffic growth in different parts of the territory: on the Togo-Koupela-Niger axis, traffic has grown about 30% p.a., and around the large towns (and on the road to Ivory Coast) traffic growth is about 10%, while the rest of the country has experienced a growth rate of about 7%. 2.04 DGTP is responsible for collecting traffic data. Counts have been made over the years by consultants in conjunction with road transport surveys and feasibility studies for specific roads. In 1978 and 1979, only a few manual counts were made sporadically by DGTP. Under the IDA-financed Third Highway Project, however, the DGTP has purchased automatic traffic counting equipment. The BPP is charged with deploying the equipment throughout the network and collecting and analyzing the data. As a result of these programs the DGTP will be able to establish road maintenance priorities based on traffic volumes. C. The Road Transport Industry and Regulation 2.05 The road transport industry is dominated by one mixed public/private firm, Societe Voltaique des Transports Routiers (SVTR), which handles most of the traffic requiring specialized vehicles, or about one-fifth of total freight traffic in the country. SVTR owns over 40 tractor-trailers and tankers, has its own repair facilities and keeps spare parts inventories for vehicle maintenance. The rest of the industry consists of about 190 owners of some 290 trucks, and 400 owners of some 500 vehicles for passenger transport. In addition, there are private entrepreneurs who carry other peoples goods alongside their own. Other than those of SVTR which is run efficiently and at a profit, tariffs fluctuate widely. During the nonagricultural season, they barely cover the out-of-pocket costs of running the vehicles. A union of small transporters helps small truckers to find shipments on a first-come, first-served basis. 2.06 The DGT is responsible for registering, inspecting and licensing vehicles for public transport and for other road safety measures. The First Highway Project financed a technical assistance program to help DGT collect vehicle registration data and to train administrative staff to analyze exist- ing vehicle operating costs, road user taxes and the tariff structure in the sector. Four high school graduates were successfully trained and are now integrated into the DGT administration. 2.07 Road safety regulation and enforcement is the responsibility of the DGT. This is exercised through regular vehicle inspection. Vehicles are required to be inspected four times a year, but the inspection is quite lax and proper vehicle maintenance is hard to enforce when spare parts needed for repairs are not always available. 2.08 Axle load limit in Upper Volta is 13 tons. To help enforce this limit the Third Highway Project provided for the purchase and installation of  two weighing bridges. In addition, a dozen portable weighing scales are being used throughout the network. It is expected that their deployment will help control overloading and lower maintenance costs. D. Administration 2.09 MTPTU through DGTP is responsible for the classified road network and for some of the important unclassified roads. Local authorities are in charge of the remainder of the network. At present DGTP is comprised of four divisions: the Division for Maintenance of National Roads (SERN), Division for Maintenance and Construction of Secondary Roads (SERS), Division of Design and New Works (DETN), and the Mechanical Equipment Division. 2.10 Consultants BCEOM, after studying DGTP's structure, proposed a gradual reorganization beginning in 1981. In a modified form this was accepted by the Government and endorsed by the Association. The main change to the present organization would be the decentralization of maintenance operations as qualified personnel become available. A second change would reallocate responsibilities between divisions which under the new organization would become directorates (Chart 1). The modified organization, which should formally come into existence in 1981 with the signing of a decree, would have, under the General Directorate of Public Works, a Directorate for Design and New Works (DETN), a Directorate for Equipment (DM) and, at first, four regional directorates. DETN would continue to be responsible for the design and supervision of construction. It would, in addition, through a Feeder Roads Unit study section attached to DETN be responsible for the programming and supervision of feeder roads to be improved under the present project. DM will be responsible for the procurement, maintenance and distribution of neavy equipment used by the regional directorates i.e., it would assume the respon- sibilities of the Mechanical Equipment Division, but, in contrast to the latter, would function as an equipment hire pool. 2.11 The decentralization of maintenance operations and force account works would take place over the next ten years. Initially it is intended to create four regional directorates which would correspond to the existing subdivisions in Bobo-Dioulasso, Ouagadougou, Ouahigouya and Fada N Gourma. Additional equipment, workshops and offices for these four regional direc- torates would be financed under the proposed project (para. 3.03-3.04). Each regional directorate would have a unit for the maintenance of national roads assuming the responsibilities of SERN and a unit for the construction and maintenance of feeder roads assuming the responsibilities of SERS. Feeder roads improved under this and the ongoing Rural Roads Project will be main- tained by these regionalized Feeder Road Units. Accounts for feeder road construction and maintenance will be kept separately from the maintenance activities on national roads. It is expected that the Government will create additional regional directorates as qualified personnel become available, so that each of the country's 12 regions will have its own directorate by about 1990. In the meantime, the first four regional directorates would be respon- sible for road construction and maintenance in neighboring regions. 2.12 The existing Bureau for Planning and Programming will be split into its two functions. The planning function, which also covers the General  Directorate of Transport, will be attached to the Ministry's cabinet. The programming function will be attached to the DETN where it would remiain responsible for examining the economic feasibility of annual feeder road programs and of other new road projects to be phased into thle investment program. During negotiations, Government agreed, that the reorganization as described in paras. 2.10-2.12 will take effect before the end of 1981. E. Financing 2.13 Total public expenditures on road construction and maintenance amounted to about CFAF 20 billion from 1975 to 1980. Of the portion allo- cated to current expenditures for the maintenance of national and secondary roads, CFAF 4.2 billion, the Government contributed 3.5 billion or about 83%. The remaining expenditures on maintenance and all construction was foreign financed, mainly by the European Development Fund (EDF), Fonds d'Aide et de Cooperation (FAC) and IDA (Table 6). Some 60 % of the Government's expendi- tures went for salaries of administrative and operating personnel, with insufficient allocations remaining for fuel and spare parts needed for effec- tive maintenance (Table 7). To improve this situation, the Government has agreed to budget separately allocations for salaries, fuels, spare parts and materials. During negotiations, this arrangement was confirmed. 2.14 Road user charges consist of vehicle registration fees; taxes on insurance; taxes and import duties on fuel, vehicles and spare parts. Vehicle registration fees are collected by the municipalities and the revenues are used by the local governments. Both insurance taxes and taxes and import duties on fuel, vehicles and spare parts are collected by the Central Govern- ment. Statistics are available only for the duties collected on petroleum imports. The retail price on transport fuels as of February 1980 was within the range of prices of neighboring countries at CFAF 165/liter for gasoline and CFAF 133/liter for diesel. Taxes on gasoline are 29% of the wholesale price, while taxes on diesel fuel are 16%. 2.15 Total revenues from road user charges amounting to CFAF 19 billion in the period from 1975 to 1979 represent almost 100% of total expenditures on road construction and maintenance. By decree 59% of the taxes on fuel should have been earmarked for a Road Fund and used for the maintenance, and rehabili- tation of the road network. Had this decree been followed, in the same period the Government would have collected some CFAF 7 billion, meeting more than 100% of road maintenance requirements. Instead, because of constraints in the general budget the Parliament had curtailed the Road Fund by about 50%, leaving insufficient funds for road maintenance (para. 2.23 and Table 7). During negotiations Government gave assurances that starting in FY1982 the full 59% of the taxes on fuel will be allocated to the Road Fund. 2.16 To facilitate the timely availability of funds for the execution of routine maintenance and force account works, Government has proposed to establish a special account in a private bank. This account would be under the joint control of the Director of DGTP and the Chief Accountant of the project. The Association will make an initial deposit of US$600,000 into this account. Disbursements would be made in local currency only, and the  - 10 - ssociation would reimburse for expenditures allowed under the project. :-:ould Government make any disbursements from this account for expenditures not covered by the Credit, it will redeposit the corresponding amount. The opening of the account will be a condition of Credit effectiveness. During negotiations, Government agreed to the above arrangements. F. Engineering 2.17 DETN will be responsible for road design. Its staff will execute minor projects, while consultants will be employed for major and complex designs. Geometric and structural design standards follow accepted engineer- ing practice and are adequate (Table 8). 2.18 For technical advice on pavement design and soils, the DETN can turn to the National Laboratory (Laboratoire National des Batiments et des Travaux Publics, LNBTP) an autonomous Government agency attached to the i4TPTU. It is well equipped and assisted by the French Centre Experimentale de Recherches d'Etudes du Batiment et des Travaux Publics (CEBTP). Its main task is to test materials and soils for civil works, particularly for road construction. G. Construction 2.19 Major road works are carried out by contract after competitive bidding according to the procurement procedures of the financing agency. Under the Third Highway Project a local firm participated for the first time on a major road project as a subcontractor for the Bobo-Dioulasso-Hounde section (80 km) of the Banfora-Hounde road. Its performance was excellent. The firm is now the main contractor on other bilaterally-financed road con- struction projects. It is Upper Volta-s only major domestic construction company; the shortage of qualified and trained personnel is still too acute to permit the emergence of other civil engineering companies. Its key personnel are still mainly expatriates, although they are slowly being replaced by nationals. 2.20 There are, however, a fair number of small firms in the building sector of the construction industry, which eventually might qualify for civil works. In 1971, the Government created an office for the promotion of domestic industries (Office de la Promotion de l Entreprise Voltaique, OPEV) to provide assistance to Upper Volta-s small scale industry. The assistance consists mainly of training and management assistance. Under the Third High- way Project, IDA is financing a study to survey and analyze the construction industry and to recommend a program to help small firms qualify for civil works. The study, awarded to consultants BCEOM, is expected to recommend methods to train employees of existing firms to calculate contract prices, prepare bidding documents and, generally, to improve their management and construction techniques. The proposed project will provide funds for the implementation of the assistance program after the Government and IDA agree on the consultants- proposals. Furthermore, the gravel road rehabilitation component of the proposed project will be divided into small lots to allow small contractors to compete.  - 11 - 2.21 Besides construction by contractors, some work is carried out by force account. Under the Rural Roads Project, IDA is financing the construc- tion and initial maintenance of low-standard, low-cost feeder roads executed by force account units under the responsibility of SERS. Construction is progressing well and the proposed project will finance the continuation of feeder road construction as well as a program of periodic regravelling for national roads by force account. 2.22 DETN will be responsible for supervision of all construction. Consulting firms assist DETN in supervising major road projects but DETN has the capacity to supervise the construction and to carry out the quality control of smaller projects with assistance, where necessary, from the National Laboratory. H. Maintenance 2.23 Maintenance of national roads has steadily and seriously deterio- rated since 1972, mainly due to inadequate budget allocations. The Ministry of Finance has cut MTPTUIs annual budget requests by as much as two-thirds in recent years, due to financial constraints. Some 60% of the resulting allocations have been needed to cover staff salaries, leaving relatively minor sums for materials, fuel, spare parts and equipment renewal. The shortage of funds is particularly acute where equipment is concerned; the fleet is completely inadequate at present and badly in need of renewal. The following table shows the decline both in the amount in real terms and in the percent- age of the national budget allocated to road maintenance. Expenditures for Routine and Periodic Maintenance of National Roads 1/ (US$ million) Yearly Expenditures Government % Allocated in Current in Constant Recurrent for Road Year $ 1969 $ Budget Maintenance 1972 2.5 2.1 41.3 6.1 1973 2.7 2.1 44.1 6.1 1974 3.0 2.2 48.8 6.0 1975 2.3 1.5 62.8 3.7 1976 2.3 1.3 76.9 3.0 1977 2.5 1.3 90.0 2.8 1978 2.7 1.3 105.1 2.6 1979 2.9 1.3 120.8 2.4 I/ Excluding overheads. Source: MTPTU. Under the proposed project the regional directorates will assume respon- sibility for maintenance of all classified roads as of 1982. The project would finance the renewal of the equipment fleet and the incremental recurrent  - 12 - cost of fuel, spare parts and materials in the context of the maintenance program drawn up by consultants BCEOM. During negotiations, the Government confirmed its endorsement of the program and agreed to update the program annually following consultations with the Association. During negotiations, the Government also agreed to a recurrent expenditure budget, to be reviewed annually by the Government and IDA with respect to the estimated minimum amounts (para. 3.06) and changes in prices and traffic patterns. 2.24 Maintenance of departmental and regional roads was started under the Rural Roads Project. It has so far not experienced the same budgetary and equipment difficulties as the maintenance of national roads, since new equipment and some maintenance operating costs are being financed under that project. The proposed project would continue to support the maintenance of departmental and regional roads as well finance equipment renewal and some operating costs. 2.25 Maintenance of most unclassified roads has normally been left to the local communities served by the road. Since local communities have neither the experience nor the means to organize an efficient road mainte- nance operation, most of these roads have not been maintained at all. A Rural Roads Impact Study financed under the Rural Roads Project has identi- fied communities where villagers expressed a willingness to contribute labor towards the maintenance of roads that were improved under the Rural Roads Project. The proposed project would include financing of a pilot road mainte- nance project based in a number of these communities. Under the direction of an experienced consultant, a pilot scheme for labor-intensive road maintenance will be set up in one sub-region to determine, through practical experience, what type of organization is feasible and what level of remuneration is necessary to generate local involvement in road maintenance. As a workable system develops, a number of Voltaics could be trained to expand it to other regions of the country. 2.26 Maintenance of DGTP equipment would be the responsibility of DM. Currently, equipment availability is a low 35%, due to a combination of factors: antiquated equipment and lack of qualified personnel, workshop facilities, tools and spare parts--the final one exacerbated by insufficient funds and uncoordinated ordering procedures. The proposed project would finance equipment modernization, spare parts, tools and workshop facilities. It would also provide funds for technical assistance for designing and imple- menting appropriate procurement and inventory procedures and training of mechanics. I. Training 2.27 Engineers and higher-level technicians are trained abroad, mainly with the help of fellowships. MTPTU's training center, CFPTP, trains lower- level technicians, road overseers, accountants, administrative personnel, and mechanics. The condition of CFPTP's facilities and the number of teachers are inadequate to provide enough trained personnel for DGTP's needs (total permanent staff of 1,000). The Second Education Project is therefore financing the expansion and modernization of the existing training facilities, in  - 13 - particular: (a) rehabilitation of the existing training center and construc- tion of an auto mechanics workshop, (b) training material and equipment, (c) vehicles for driver training, (d) nine man-years of technical assistance to help develop and implement training and upgrading courses, and (e) eight man- years of fellowships for the training of local staff to take over instructor positions now occupied by expatriates. Furthermore, a study conducted under the Second Education Project concluded that the establishment of a training school for middle- and higher-level technicians should pove beneficial. The proposed project would finance the detailed design of the school and the preparation of bidding documents (para. 3.15). III. THE PROJECT A. Objectives 3.01 The proposed project is the first phase of a long-term institution building and maintenance program. It would assist the Government to improve its institutional capacity for the maintenance of the road network; to meet the backlog of periodic maintenance on the most important sections of its paved and unpaved road network; and to improve the accessibility of rural areas for which agricultural development projects are being implemented or planned. It would also help to develop the domestic construction industry. B. Description 3.02 To meet these objectives, the project consists of: (i) A four-year (1982-85) program of road maintenance. To implement this program the proposed credit would finance the following: (a) road maintenance equipment; (b) constructing, equipping and furnishing office buildings and stockrooms in four regions and equipping a central and three regional workshops; (c) incremental costs of routine maintenance for the classified road network; (d) operating costs for periodic maintenance of about 450 km of gravel roads by force account; (e) rehabilitation of about 280 km of gravel roads by contract -; and (f) resealing of about 320 km of paved roads by contractor. (ii) A three-year program for the construction and initial maintenance of about 1,640 km of feeder roads. This program requires the financing of:  - 14 - (a) equipment and spare parts to replace or complement existing equipment of the Feeder Roads Units; (b) provision of spare parts, materials and supplies; and (c) construction of small drainage structures by local contractors. (iii) Consulting services for: (a) technical assistance and training to DGTP; (b) supervision of rehabilitation of gravel roads; (c) design and preparation of tender documents for Public Works Training School; (d) continuation of the Rural Road Impact Study begun under the Rural Roads Project (Credit 579-UV); (e) implementation of a pilot community-based maintenance scheme; and (f) technical assistance for the domestic construction industry. (iv) Scholarships for road maintenance managerial staff. Maintenance Equipment 3.03 The equipment to be procured (Table 9) would mainly replace worn- out equipment and would not substantially expand the DGTP's equipment fleet. It would be used to constitute the following maintenance units in each of the four regional directorates: No. Maintenance Unit Task 1 Routine maintenance unit fill potholes, for gravel roads clean ditches 1 Corrugation levelling anti-corrugation unit brushing 1 Grading unit reshaping of formation 1 Bridge repair unit repair bridges, clean drainage structures 1 Routine maintenance unit fill potholes, for paved roads clean ditches  - 15 - The above units cover the requirements for routine maintenance. Their equipment, with the exception of the grading unit is light and the tasks are labor intensive. The bulk of the heavy equipment will be used to form two regravelling brigades and one brigade for major repairs on paved roads, which would operate on a country-wide basis. Office Buildings and Workshops 3.04 BCEOM's study contains a detailed description of repairs and new construction of office space and stockrooms to be executed for the four regional directorates and for one central and three regional workshops. It also gives details on furniture, office and workshop equipment, and small tools to be procured. BCEOM'S proposals correspond to DGTP-s needs and are in line with the proposed general maintenance program. Routine Maintenance 3.05 Routine maintenance comprises patching paved roads, filling potholes and grading gravel roads, cleaning ditches and drainage structures, repairing bridges, and replacing or setting up road signals. The proposed maintenance program distinguishes two categories of routine maintenance: (i) normal routine maintenance including all of the above activities, which would be applied to all roads with more than 30 vpd and (ii) reduced maintenance con- sisting of grading and cleaning of drainage structures only, which would be applied to roads with less than 30 vpd. Under the proposed project 1,750 km would receive normal routine maintenance and about 5,900 km of roads would receive reduced maintenance in 1982. It is intended that the length of road receiving normal maintenance would gradually be increased as additional regional directorates are established, but it would certainly take another 10 to 15 years before there is adequate institutional capacity and sufficient economic justification to apply normal routine maintenance to all roads. Incremental Cost of Routine Maintenance 3.06 The proposed project will finance, as set out below, part of the incremental cost of routine maintenance corresponding to the highway mainte- nance program: ----------1981 Constant US$ 000-------- 1982 1983 1984 1985 1981 recurrent cost level 2,200 2,200 2,200 2,200 excluding overheads Incremental cost 550 1,320 1,320 1,320 Total recurrent cost for routine maintenance 2,750 3,520 3,520 3,520 Government financing 2,250 2,600 2,600 2,600 IDA financing 500 920 920 920  - 16 - Periodic Maintenance of Gravel Roads 3.07 Periodic maintenance of Upper Volta's gravel roads has been neglected to such a degree that a substantial backlog of maintenance work has been created. It is estimated that a total of about 2,120 km of gravel roads have to be rehabilitated or regravelled in the near future (Table 10). About 730 km of these are most urgently in need of attention if traffic interrup- tions are to be avoided (Table 11), and of these about 450 km would be re- gravelled by force account. Under the proposed project IDA would finance equipment operating cost, and materials for these works, while salaries would be financed by the Government. Rehabilitation of Gravel Roads 3.08 The remaining 280 km of the 730 km of gravel roads requiring urgent attention have already deteriorated to such a degree that a more substantial effort, including drainage improvement and some earthworks, is needed to bring the roads back into an acceptable condition before routine maintenance can be carried out effectively. It is proposed that contractors be employed for these works to avoid straining the Government's implementation capacity and over-extending its equipment fleet. Resealing of Paved Roads 3.09 Paved roads normally require resealing about every seven years to protect the base course from water which seeps in through surface cracks of an aged and worn out bituminous seal. No such work has been carried out in Upper Volta since the pavement of its first road (from Bobo Dioulasso to the Mali border) in 1969. Therefore, signs of acute pavement distress are showing and a resealing program is urgently needed to prevent the roads from further deterioration. There is a total of about 420 km of paved roads built between 1969 and 1972 which should be resealed (Table 12). EDF is financing the resealing and partial rehabilitation of road sections totalling some 100 km, on which the deterioration has progressed to an extent where it endangers and impedes traffic. The proposed project would finance the resealing of the remaining 320 km. Works are to be carried out by contractor. Feeder Roads 3.10 Over the past five-to-seven year period, about 4,000 km of tracks and trails have been upgraded or maintained under a large number of agricul- tural and rural development projects and financed by international, regional and bilateral donors. About 900 km were improved under the Association's Rural Roads Project, which also established the institutional capacity within MTPTU to program and coordinate the many feeder road construction activities throughout the country. 3.11 The proposed project would continue the feeder road program started under the Rural Roads Project by financing equipment to replace or complement existing equipment (Table 4, Annex III); spare parts, materials and supplies, and construction of small drainage structures by local contractors. Total  - 17 - improvement over the three-year period is estimated to be about 1,640 km of feeder roads to minimum all-weather standards (see Annex III). Of these, 1,200 km would form part of integrated development projects: 500 km will support the proposed Koudougou Rural Development Project, 1/ 370 km the pro- posed Second Bougouriba Rural Development Project, and 330 km the West Volta Agricultural Development Project (Credit 706-IN). The remaining kilometrage will serve communities in the North, Center, Yatenga and Sahel rural develop- ment areas. In addition, the project will finance technical assistance, to be employed under terms and conditions acceptable to the Association. 3.12 Particular emphasis will be put on developing the planning and evaluation procedures for feeder road improvement and maintenance. Regular consultation and close cooperation between the Feeder Roads Unit (FRU), the Bureau of Programming, and the Rural Development Agencies (ORD) will ensure that annual road improvement programs remain responsive to the needs of agriculture and rural development. FRU will also be responsible for monitor- ing all feeder road construction activities financed by other bilateral or multilateral donors so as to ensure that these activities are coherently coordinated. During negotiations Government agreed to a regular schedule of consultations between the FRU, the ORDs and the donor agencies concerned. It also agreed to submit to IDA for review road construction programs for the second and third project year not later than October 31, 1982 and October 31, 1983 respectively. The first project year would include construction of the roads indicated in Annex III. Consulting Services 3.13 Technical Assistance and Training. The Government has recognized some weaknesses in several sections of DGTP. To assist the Government in eliminating them, the project will finance technical assistance to help improve the Roads Department s performance and to train counterparts. A detailed list of proposed positions is given in Annex II. Technical Assistance to the FRU will be continued according to the detailed list in Annex III. 3.14 Construction Supervision. For the rehabilitation of gravel roads, the Government will employ consultants to supervise works carried out by contractors. The resealing of paved roads and the construction and repair of office buildings and workshops, also carried out by contractors, will be supervised by DGTP staff, who have adequate capacity to do so. 3.15 Design of Public Works Training School. The Second Education Project financed the feasibility study and the preliminary design of a future Public Works Training School. The proposed project will finance consultants services to carry out the detailed design and engineering for the school and to prepare tender documents. 1/ In view of recently emerged uncertainties concerning the future of the Koudougou Rural Development Project, the proposed feeder road program for the Koudougou area is only tentative and might be subject to modi- fications to be agreed between the Government and the Association.  - 18 - .16 Rural Roads Impact Study. A Rural Roads Impact Study was initiated under the Rural Roads Project. Carried out by joint venture of Consultants Halcrow Fox (UK) and SAED (UPV), the study undertook base-line and follow-up surveys of traffic, markets, villages and agricultural households in a sample of roads and their surrounding areas throughout Upper Volta. Although some of the short-term impacts of these roads could be documented by the study, monitoring of a number of key parameters will have to continue over the project period, principally focused on trends in agricultural production and migratory patterns. The details of the terms of reference for the continua- tion of this monitoring will be established following a joint review by the Government and the Association of the report on the findings of the earlier study, due May 1981. 3.17 Pilot Community-Based Maintenance Scheme. As described in para. 2.25, a pilot scheme involving local communities in the routine maintenance of the roads that serve them is to be carried out for a two to three year period in one of the sub-regions. Thirty man-months of technical assistance would be provided to set up and execute the scheme and to train Voltaics for expanding it to other areas of the country. 3.18 Domestic Construction Industry. As set out in para. 2.20 a study financed under the Third Highway Project is presently analyzing the domestic construction industry. The proposed project contains six man-years of tech- nical assistance to help implement the study's recommendations which have to be approved by IDA before going ahead with their implementation. Scholarships 3.19 To obtain an engineering degree, Upper Volta's students must go abroad. Since scholarships financed from bilateral sources are not avail- able in sufficient quantity and the need for specialized technical personnel becomes more acute as the Government decentralizes road maintenance opera- tions, the project will finance scholarships for about 12 staff of the DGTP to specialize in management and civil engineering. C. Cost Estimates 3.20 The total capital cost of the project net of taxes and duties is estimated at US$56.7 million, with foreign cost of US$45.0 million (79%); local costs are estimated at US$11.7 million; taxes and duties total about US$16.2 million. Detailed costs are as follows:  - 19 - COST ESTIMATES Foreign --------- US$'000--------------- as % of Local Taxes Foreign Total Total I. Procurement of Equipment: (i) Road Maintenance 1,190 3,440 7,250 11,880 61 (ii) Feeder Roads 365 1,070 2,250 3,685 61 Subtotal I 1,555 4,510 9,500 15,565 II. Construction, Equipping and Furnishing of: (i) Central and Regional Workshops 420 760 1,570 2,750 57 (ii) Regional Office Buildings 100 230 440 770 57 Subtotal II 520 990 2,010 3,520 III. Incremental Cost of Routine Maintenance 450 1,350 2,710 4,510 60 IV. Periodic Maintenance of 450 km of Gravel Roads by Force Account 1,500 900 2,900 5,300 55 V. Rehabilitation of 280 km of Gravel Roads by Contractor 760 1,520 3,420 5,700 60 VI. Resealing of about 320 km of Paved Roads by Contractor 710 1,990 5,020 7,720 65 VII. Construction and Maintenance of Feeder Roads 2,030 1,275 4,220 7,525 56 VIII. Consultant Services and Training: (i) Technical Assistance and Training to Roads Department and Local Communities 975 195 2,730 3,900 70 (ii) Supervision of V 60 - 240 300 80 (iii) Technical Assistance to Feeder Roads Unit 80 60 580 720 80 (iv) Design and Preparation of Tender Documents for Public Works Training School 130 - 530 660 80 (v) Technical Assistance for Domestic Contractors 260 - 620 880 70 (vi) Audits 45 5 150 200 75 Subtotal VIII 1,550 260 4,850 6,660 IX. Scholarships 75 - 475 550 86 Base Cost: Subtotal I - IX 9,150 12,795 35,105 57,050 X. Contingencies (i) Quantity 354 476 1,530 2,360 (ii) Price 2,240 2,954 8,357 13,551 Subtotal X 2,594 3,430 9,887 15,911 TOTAL 11,744 16,225 44,992 72,961 61 NET OF TAXES 11,744 - 44,992 56,736 79  ANNUlAL EXPENDITI'RES 1982-1985 (US $000) ---------___1982----138--9--- ------------1983a-------_---- -----------1984_________ ------------1985 ----- -_____ Total--------------- LocAl Taxes Foreign lotal Local Taxes Foreign Total Local Taxes Foreign, Total Local Taxes Foreign Total Local Taxes Foreign Total I. Equipment Procurement 1,100 3,190 6,710 11,000 455 1,320 2,790 4,565 - - - - - - - - 1,555 4,510 9,500 15,565 * II. Workshops and Office Buildings 100 185 375 660 320 620 1,260 2,200 100 185 375 660 - - - - 520 990 2,010 3,520 III. Incremental Maintenance Cost 60 150 340 550 130 400 790 1,320 130 400 790 1,320 130 400 790 1,320 450 1,350 2,710 4,510 IV. Periodic Maintenance by Force Account 225 135 440 800 425 255 820 1,500 425 255 820 1,500 425 255 820 1,500 1,500 900 2,900 5,300 * V. Rehabilitation of Gravel Roads 65 135 300 500 385 775 1,740 2,900 220 420 960 1,600 90 190 420 700 760 1,520 3,420 5,700 * VI. Resealing of Paved Roads 110 315 795 1,220 425 1,185 2,990 4,600 175 490 1,235 1,900 - - - - '710 1,990 5,020 7,720 VIl Feeder Roads 810 S05 1,685 3,000 675 425 1,400 2,500 545 345 1,135 2,025 - - - - 2,030 1,275 4,220 7,525 * VIII. Consultant Services 530 90 1,680 2,300 465 80 1,455 2,000 550 60 1,090 1,500 205 30 625 860 1,550 260 4,850 6,660 IX. Scholarships 15 - 90 105 15 - ( 90 105 20 - 140 160 25 - 155 180 75 - 475 550 Subtotal I - IX 3,015 4,705 12,415 20,135 3,295 5,060 13, 335 21690 1,965 2,155 6,545 10,665 875 875 2,810 4,560 9,150 12,795 35,105 57,050 Quantity Contingency 80 73 315 468 160 266 744 1,170 85 115 366 566 29 22 105 156 354 476 1,530 2,360 Price Contingency 423 651 1,735 2,809 785 1,207 3,197 5_189 655 722 2,206 3,583 377 374 1,219 1 970 2,240 2.954 8,357 13,551 TOTAL , , , 23,412 4,240 6 533 17,276 28,049 2 705 2 992 9,117 14 814 1281 1 271 4 134 6 686 11_744 16.225 44,992 72,961 * Note: A 10% quantitY contingency is applied to the following elements only: workshops, offices,rehabilitation of gravel roads; resealing of paved roads; and consultant services. The other elements are hased on an open-end guideline program subject to modification. Therefore no quantity co,ntingencies have been allowed for them. For the calculation of the price rontingency,the following average percentages were applied to all com- ponents: 1981 1982 1983 1984 1985 9% 8.5% 7.5'!. 7.5% 7.55%  - 21 - 3.21 The base costs are estimated as of early 1981 and have been derived as follows: (i) Equipment Estimates for equipment, vehicles and spare parts are based on bid prices received under the Rural Roads Projects and a survey of local suppliers carried out by consultants BCEOM; (ii) Buildings and Workshops Estimates for the repair and construction of office space and work- shops are based on preliminary engineering and per m2 prices for similar work carried out recently; (iii) Incremental Cost of Routine Maintenance BCEOM's study contains a detailed reasonable cost breakdown of all maintenance activities contained in the maintenance program; (iv) Periodic Maintenance The cost estimates of periodic maintenance of gravel roads by force account (which do not include equipment depreciation) are based on a detailed analysis of operating cost for the two proposed regravelling brigades carried out by BCEOM and on the actual cost of the regravelling brigades operating under the Rural Roads Project; (v) Rehabilitation of Gravel Roads Estimates are based on BCEOM