India - Gujarat Rural Roads Project (Credit 1757-IN)

 73086 INDIA GUJARAT RURAL ROADS PROJECT (Credit 1757-IN) Aide Memoire L Introduction 1.1 A World Bank highway mission comprising C.S. Nawathe, Highway Engineer, visited Gujarat from May 13 through 16, 1988 to review progress of works on the Gujarat Rural Roads Project. The mission also made field visits and inspected a few road works under progress. This document records the results of discussions and findings to the mission but is not binding on the Bank until confirmed in writing from Washington. A list of officials met during the mission's visit is enclosed as Annex 1. The mission wishes to thank Mr. A.J. Trivedi, CE Roads and his field staff for the excellent arrangments made and courtsies offered during the mission's visit. 2. Project Implementation 2.1 Out of 1025 jobs totalling 4042 km and costing Rs. 1200 million, 565 jobs totalling 2104 km and costing Rs. 738 million have been included in the current budget (FY 88-89). No action has been initiated in the process to identify the new jobs which shall be included in the next year's budget. 2.2 Of these, 266 jobs are continued from the last year's budget and 299 jobs are freshly included this year. For the newly budgetted jobs, prequalification advertisement has been issued on April 15 and it is expected that the process will be completed by the end of June 88. By December 31, 1988, procurement action for all these works will be completed. A detailed program for these works showing target dates of completion of different actions is given in Annex II. 2.3 Of the old 266 jobs some 13 jobs (list enclosed as Annex III) have been tackled by the Panchayat department in the recent past before commencement of the Bank project and hence they will have been deferred for the time being and excluded from the bid packages. For the remaining jobs, work has been taken in hand except for Job No. JP 11, for which the agency is not yet finalised. All these jobs comprise of 60 packages and amount to 781.5 kms. Cost of completing these jobs would be around Rs. 255 million. 2.3.1 Although GOG is sending copies of bid acceptance letters the Bank would require statements for the award of each contract I; c .  - 2 - giving information about the number of tenders sold, number of bids received, value of the lowest bid, n.me of the successful bidder and the bid value. The statement should also contain reasons if the bids, other than the lowest, are accepted. 2.4 By the end of March 31, 1988, expenditure against civil works was only Rs. 22.025 million. Although the project authorities have not been able to furnish up to date (cummulative) expenditure under all categories, the figure would be much less than the anticipated SAR expenditure of Rs. 86.8 million in the (Refer Table 3.5, Page 69). 2.5 Following reimbursement claims have been submitted so far. Some of them have been accepted and funds released by the Reserve Bank of India. (Rs.Million> Appl. Date of Period Eligible Exgenditure Categories Value of No. Submi- Cover- I I I III IV V Total Claims ssion ed (DIMlY) 1. 11. 2. 88 1. 4. 85- 0.63 7.53 8.16 3.456 11. 5. 87 2. 10.3.88 12.5.87- 2.45 0.18 5.80 8.43 4.124 31.1. 88 3. 29.3.88 1.2.88- 5.80 0.12 0.43 0 .. 06 6.41 4.352 20.3.88 4. 29.3.88 1.2.88- 0.32 0.07 0.28 0.67 0.369 20.3.88 Total 9.20 0.37 14.04 0.06 23.67 12.301 2.6 Some time back (in August '87) the Bank had proposed to enhance the rate of disbursement (even upto 90%) to speed up disbursements in the drought-striken areas. However, the project authorities are worried as to why they are not getting the disbursements at the enhanced rates. 3. Execution of Works 3.1 Due to shortlisting of contractors through prequalification procedures, the R&B Department is now in a better position to complete the jobs within the stipulated  - 3 - completion periods. During site inspections, the mission was happy to note satisfactory progress on most of the works. Some jobs are expected to be completed even ahead of schedule. 3.2 In spite of unfavourable weather conditions prevalent in the state, the mission could inspect about 10 jobs in Mehasana, and Sabar Kantha districts. Important observations regarding design, specifications and quality of work are listed in the following paragraphs. 3.3 Design 3.3.1 Although, while designing bridges, safety of the structure and continuity of traffic during the floods assume prime importance, the oversafe designs become very costly and may compromise the economic viability of the jobs because of their e}~orbitant costs. On two roads, (Job Nos. 119 @( 227) the mission noted that a couple of spans would function only as the land spans and at the given locations bridges of shorter lengths would have sufficied. Whenever the site people find that some piers and abutments are located deep inside the high banks and there is no likelyhood of water flowing through the spans (because of high ground both upstream and downstream) they should ask the design staff to visit the site and take a second look at the designs and make necessary modifications before the work is started. 3.3.2 Project includes some jobs, which provide only short approaches to villages adjacent to main roads. Since traffic on these approaches would always be local traffic, some saving could be effected in designing these roads to traffic volumes lower than other longer and busy through routes. 3.4 Specifications 3.4.1 Estimates for construction of new roads provide a layer of 15 cm thick sand over the clayey subgrades. For this, sands with CBR values exceeding 20 are to be used. However, it is very difficult to compact the fine sand, as locally available. This adversely affects the stability of the subsequent WBH layers. Therefore, instead of using the sand, a mixture of murrum and sand would be preferable. Alternatively, possibility of using lime soil stabilisation for the sub base construction may be investigated. This experience should be used in making suitable changes during eHecution. 3.4.2 In order to ensure better surface finish, the project envisages use of paver finisher for spreading of crushed metal (size grade 3) for the top ten cm layer of WBH base. Lower layers of the WBM base course will continue to use hand broken metal (of sizes grade one or two), spread manually. During actual construction of WBM however no screenings (either grade A or B) are used and binding is done through non plastic material  - 4 - like sand. WBH thus constructed is less stable, probably due to inadequate interlocking of the stone metal especially of size grade 3. The Chief Engineer has agreed to look into this aspect in more detail and would carry out some experiments by using screenings and good murrum or a mix of sand and murrum or murram. In case the experiments are not successful, the item will have to be changed to the conventional WBH with hand broken metal, but with more rigid control on the size and gr.dation of the metal and the surface finish of the WBH. As an alternative, the CE has proposed using a paver-laid layer of Lean Bituminous Macadam (LBM) by reducing the thickness to 50 mm. The mission recommends that the experiments be carried out promptly so that changes in the specifications of works could be mutually agreed upon and followed during execution. 3.5 Quality Control 3.5.1 In the present R&B departmental set up, there is a separate quality control organisation headed by an indepehdent Chief Engineer. However, in the context of the Bank project its role needs to be restricted to educating the field staff in making their supervision more effective. The main thrust shall be on achieving higher quality standards during the progress of work. Day-to-day activities Csampling and testing) must however be in the hands of Executive Engineer in charge of construction. He alone should deal with the contractor and will be accountable for the quality of works along with the Contractor. 3.5.2 In situations where formations of existing road are to be widened in small widths, there are severe restrictions on the use of conventional 8-10 ton smooth wheeled rollers. In such situations, Executive Engineers should specify use of mechanical tamper or any other appropriate plant. In the absence of rigid supervision contractors are dumping lumps of locally available earth for the widening of formation. Although some rolling is done on the top layer, the whole earth mass remains loose and slopes are unstable. This construction is not done according to the specifications. This should be stopped immediately. Use of handy, walk behind type vibratory rollers or any other suitable equipment should invariably be insisted upon. More attention is also required in preparing (benching, ploughing or scarifying) the old formation, before laying of fresh earthworks along its side. 3.5.3 On Road No. 104, the mission found out that seggregation was taking place in the metal being spread for the WBH construction. Similary, the mission observed that the site supervision had failed to keep the undulations in the surface within the permissible tolerances. For this the contractor as well as the supervisory staff needs to be held responsible. A lot of concentrated effort would be needed to achieve better riding quality in the completed road works.  - 5 - 3.5.4 The quality of concrete in the two bridges under construction on Roads No. 227 and 119 is excellent. However, adequate steps are necessary in the construction of hume pipe culverts, especially during concreting of head wall section surrounding the pipes and concrete copings laid on the top of the walls. Especially in these cases finishing done later with cement plaster does not last long as the work is frequently tampered with by village urchins, etc •• 4. Staffing. Office Buildings, etc. 4.1 Although GOG has decided to have an independent Chief Engineer for this project, the position will be created only when the state assembly passes the budget in its coming monsoon session. This post will be available only after July 1. Currently, the project has two supervisory circles, nine divisions and thirty sub-divisions. Of these, regulare SE has not been posted in the Rajkot Circle and the SE posted in Gandhinagar Circle may not be able to continue further because of his indifferent health. Out of nine divisions, five are manned by experienced EEs, two by newly promoted EEs and the remaining two divisions are held by the EEs as additional charges. Deputy Engineers are yet to be posted to man six of the thirty subdivisions. 4.2 During the peak of its implementation, the project would need about 4 circles and 17 divisions. Today, even to utilize the current year's budget provision of Rs. 185 million and to complete detail engineering and procurement for civil works of the 1300 km new road works included in the budget, existing nine divisions would be totally inadequate. To carry out the targeted program, three more divisions would be needed in Mehasana, Sabar Kantha and Banas Kantha districts. In fact, the need for additional staff was pointed out by the Bank as early as inOctober 1987. 4.3 Although there is futher need to build additonal accomodation at Palanpur, Modasa, Tharat and Gandhinagar, at many places new offices have been built to house the divisional and sub-divisional units created for the project. The offices have been constructed by respective R&8 divisions in their office compounds. The program of establishing new offcies is thus progressing satisfactorily. It appears that so far no reimbursement has been claimed for the expenditure on building construction; this needs to be expedited. So far, residential buildings are not constructed. Only minimum units may be built in at remote places where the current need is very urgent and where they fit in the overall maintenance set up on project completion. GOG should however prepare a detailed report indicating total building program with costs. In the regular progress reports, specific mention about progress on this program (with expenditure and physical achievements) shall be made ••  - 6 - 4.4 By arranging transfer of surplus staff, furniture, office equipment, etc., from the existing departmental units as well as from other government departments, the cost of establishing new offices has been controlled effectively. Simultaneously, CE R&B has ensured that minimum time is lost in making these units fully operational. However, field establishment urgently needs about 2(1 inspection vehicles. Without vehicles, their effectiveness will be greatly hampered and targets for detail engineering would not be met with. 5. Eguipment 5.1 Although government has approved an estimate for purchase of new equipment, actual purchase will be carried out through 005&0 only after LCB tenders are invited nationally (refer Para 5, Anne~{ 4, Page 45 of SAR). In this case, contracts above, US$ 56,000 will be subject to the Bank's prereview. 5.2 The list of equipment in the estimate will have to be supplemented by the type of machinery which can be effectively used in compacting earthwork in narrow widths and on embankment slopes. 5.3 GOG has prepared an ICB document for the purchase of equipment globally. The document will be scrutinised with BOG officials before onward transmission to Washington for approval. 6. Budget b.l Due to various reasons, total expenditure during FY 8S did not exceed Rs. 22 million. This is only 251. of the SAR targets. This shortfall of about Rs. 65 million will have to be made good in the coming years. SAR target of Rs.279.7 million during this year may therefore need an upward revision to Rs. 300 million. The budget allocation made available during the year (88-89) however is only Rs. 185 million. GOG will have to substantially increase the funding for this project to rectify the situation. b.2 Although monitoring system is not yet installed, important aspects like progressive expenditure under each category etc. must be available with the PPM Cell. Every month the e>:pendi ture progress should be reported to the Bank. 7. Technical Assistance, Engineering Services for Project Monitoring, Training. etc. 7.1 Since December 1987, GOG has engaged Operation Research Group of Vadodara as consultants to develop, instal and operate a computer based project monitoring system for this project. The inception report was to be received from the consultants within two months from the starting date. Although BOG has received  - 7 - this report from the consultants, copy has not been furnished to the Bank. Some output/input formats received from the consultants however were given to the mission. The mission requests GOG to furnish full report. 7.2 During joint discussions with the consultants and GOG staff the mission once again explained as to what the Bank would look for in the proposed monitoring system. ORG has so far collected basic data from different field officers and hopes to complete a status report giving position as existing on 31.3.88. Thereafter, monthly progress would be collected and incorporated in the system. Since the project has now entered the second year, the system needs to be installed without any further delay. Copies of the status report and progress report be furnished to the Bank as soon as they are received from the consultants. 8. Maint§oance Planning Study, Road Safety Program and Staff Training 8.1 GOG must quickly finalise the short listing of consultants for the Maintenance Planning Study and obtain their proposals without any fUrther delay. Since the study is quite difficult and voluminous, the earlier it is started the better it would be. 8.2 Further details about Road Safety program and training schemes for the departmental and the contractor's personnel need to be planned and agreed to with the Bank. Unless the training activities are started quickly the project staff will not be able to avail of the facilities and the project would not be benefitted to the extent desired during appraisal. ZP.4/GUJRURDS/05.25  Annex 1 INDIA GUJARAT RURAL ROADS PROJECT (Credit 1757-IN) List of State Officials Met Government Mr. V.P. Kamdar Secy. , R&B Department Mr. A.J. Trivedi CE, R&B Dept., Rural Roads Mr. K.A. Parekh SE & OSD, PPM Cell Mr. M.R. Jani SE, RRP Circle, Rajkot Mr. J.C. Trivedi SE, RRP Circle, Gandhinagar Mr. B.K. Parmar EE, RRP Dn. , Rajkot Mr. C.M. Mathew EE, RRP Dn. , Mehsana Mr. C.K. Kothari EE, RRP Dn. , Ahmedabad Mr. P.N. Jain EE, RRP Dn. , Modesa Mr. J.C. Chavda EE, RRP Dn. , Palanpur ORG Mr. K.C. Nayak Consultant Mr. Ramachandran Consultant ... Annex I I I INDIA eUJARAT RURAL RgaDS PROJECT (Credit 1757-IN) List of Roads Dropped froa the Bid Packages Name of Sri .. Job No. Name of Road L!!flgth Cost District No. (km) (R... M) Sabarkantha 1. S 111 Ken pur approach 0.5 1.725 2. S 118 Kundol approach 3 .. 0 0.495 3. 5 119 Himmatnagar- Katwad-Hopar 6.0 0.99 4. 8 192 Navgam-Kasala approach 3.0 0.87 5. 8 198 Phadio approach 5.0 1.56 6. 8 247 Bobha approach 2.5 0.412 Subtotal 6 20.0 6.052 Mehasan@ 1. 1'1 56 Patanpura approach 1.0 0.445 2. M 172 Kokhala-Manigani 1.0 0.455 Subtotal 2 2.0 0 .. 890 Banaskantha 1. B 96 SaMbalpani to "DR 1.0 0.453 2. B 103 Vekari to aDR 1.0 0 .. 453 3. B 106 Jaswantpura to MDR 2.0 0.906 4. 8 174 Chekla approach 0.50 0.227 §ubi;gtal 4 4.5 2.039 Jynagarh 1 .. J 50 Diwasa approach 1.0 0.156 Total 13 27.5 9.137