Burkina Faso - Fourth Highway Project

Document of TheWorld Bank FOR OFFICIAL USE ONLY PROJECT COMPLETION REPORT BURKINA FASO FOURTH HIGHWAY PROJECT (CREDIT 1164-W) JUNE 30, 1993 Infrastructure Division Sahelian Department Africa Region - This document has a restricted distribution and may be used b~ recipients only in the perfonnance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization.  CURRENCY EQUIVALENTS Currency Unit = CFA Franc US$l .OO = 329 CFAF (1982) US$l .OO = 381 CFAF (1983) US$l.OO = 437 CFAF (1984) US$ l.OO = 449 CFAl (1985) US$l .OO = 346 CFAf- (1986) USfl.00 = 301 CFAF (1987) US$l .OO = 298 CFAl (1988) US$ l.OO = 334 CFAF (1989) WEIGHTS AND MEASURES Metric System ABBREVIATIONS BBP Bureau of Planning and Programming Bureau de Planification et de Programmation BP Bureau of Programming Bureau of Programmation ClDA Canadian International Development Agence Canadienne pour le Agency Ddveloppement lnternational CFPTP Center for Technical Training Centre de Formation in Public Works Professionnelle des Travaux Publics DITN Directorate for Design and Direction des Etudes et des New Work Travaux Neufs DM Directorate for Equipment Direction du Materiel DGT General Directorate of Transport Direction Gdnhrale d s Transports DGTP General Directorate of Public Direction Gdndrale des Works Travaux Publics DR Regional Directorate Direction Rdgionale EDF European Development Fund Fonds Europden de Developpement ERR Economic Rate of Return Taux de Rentabilite Economique FAC French Aid Agency Fonds d'Aide et de Coopdration (France) FRU Feeder Roads Unit Division des Routes de Desserte MTF'TU Ministry of Public Works, Ministere des Travaux Publics, Transport and Urbanism des Transports et de I'Urbanisrne ORD Regional Development Organization Organisme Regional de Developpement PASECT Transport Sector Adjushnent and Programme dvl\justement du Investment project Secteur Transport RAN Railways Authority Rdgie des Chemins de Fer Abidjan-Niger RMWA Resident Mission Western Africa Mission Rhidente SERN Maintenance Department for Service d'Entretien des National Roads Routes Nationals SERS Maintenance Department for Service d'Entretien des Secondary Roads Routes Secondaues UNDP United Nations Development Programme FISCAL YEAR OF BORROWER January I to December 31  FOR OFFICIAL USE ONLY THE WORLD BANK Washington, D.C. 20433 U.S.A. Office of Director-General Operations Evaluation , June 30, 1993 MEMORANDUM TO TRE EXECUTIVE DIRECTORS AND TRE PRESIDENT SUBJECT: Project Completion Report on Burkina Faso Fourth Hinhway Project (Credit 1164-UV) Attached is the "Project Completion Report on Burkina Faso -- Fourth Highway Project (Credit 1164-W)" prepared by the Africa Regional Office. No Part I1 was prepared by the Borrower. The Credit (USS46.0 million of June 1981) was to improve road maintenance capacity,to finance overdue periodic maintenance works, to construct and maintain rural roads, and to help develop the domestic construction industry. Repeated changes of Government obliged project staff to work with constantly changing and increasingly difficult interlocutors. Nevertheless -- and although several components were substantially restructured and project completion was delayed two and a half years, until July 1988 -- physical output was substantial, probably of the order of 85% as a weighted average. Nevertheless, the prime objective of this repeater project was institution building, and it was not met; many related covenants were not complied with. Overall, the outcome is rated as unsatisfactory,its sustainability as uncertain, and its impact on institutional development as negligible. The PCR states forthrightly that institution-building efforts were thrown into disarray. On the other hand, the PCR makes no explicit reference to the 1984 audit on the Rural Roads Project (Credit 579-UV) which discussed at length the principal factors (limited resources, centralization and decentralization, desirability of simple project design, donor coordination, choice of appropriate technology for construction and maintenance of rural roads), that had a deleterious impact on this project as well. The project.r::sy be audited along with the follow-on Transport Sector Project. .-- ~ I I C : ni.>y Se used by recipients only in the performance of - -- ,:irP:cr.aise be disclosed without World Bank authorization. . -   FOR OFFICIAL USE ONLY BURKINA FASO PROJECT COMPLETION REPORT FOURTH HIGHWAY PROJECT (Credit 1164-UV) TABLE OF CONTENTS Preface . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . i Evaluation Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ii PART I: PROJECT REVIEW FROM BANK'S PERSPECTIVE 1. Project Identity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 2. Background . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 3. Project Objectives and Description . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3 4. Project Design and Organization . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 5 Project Implementation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5 . 6. Project Results . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 7. Sustainability ............................................ 8 8. Bank Performance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 9. Project Relationship . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9 10. Consulting Services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9 11. Project Documentation and Data . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9 PART 11: PROJECT REVIEW FROM BORROWER'S PERSPECTIVE . . . . . . . . . 10 PART 111: STATISTICAL INFORMATION Related IDA Credits . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11 Project Timetable . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12 (A) Credit Disbursements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12 (B) Disbursement Categories . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13 Mission Data and Staff Inputs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14 Project Costs and Financing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15 Project Results . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16 (A) Periodic Maintenance. Construction and Rehabilitation . . . . . . . . . . . . . . . 16 (B) Routine Maintenance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16 (C) List of Roads Regravelled by Force Account . . . . . . . . . . . . . . . . . . . . . 17 @) List of Feeder Roads Built by Force Account . . . . . . . . . . . . . . . . . . . . . 17 (E)Road Rehabilitation by Contractor . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18 (F) Road Maintenance Works by Force Account . . . . . . . . . . . . . . . . . . . . . 18 (G) Economic Analysis Summuy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19 Status of Covenants . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .20 This document has a restricted distribution and may be used by recipients only in the performance of their omcial duties. Its contents may not otherwise be disclosed without World Bank authorization.   FOURTH HIGHWAY PROJECT lCREDIT 1164-UV) PROJECT COMPLFIlON REPORT PREFACE This is the Project Completion Report VCR) for the Fourth Highway Project in Burkina Faso, formerlyUpper Volta. Credit 1164-UVin the amount of US$46 million was approvedon June 16, 1981. The Project was completed on December 31, 1988. SDR 395,297.05 (approximately US$0.5 million) was canceled on November 7, 1989. ThePCR was prepared by the InfrastructureDivisionofthe SahelianDepartment, Africa Region, on the basis of the Staff Appraisal Report, the legal documents and IDA correspondencefiles. To date, the Borrower has not submitted a project completion report.   BURKINA FASQ FOURTH HTGHWAY PROJECT {CREDIT 116 4 - r n PROJECT COMPLETION REPORT EVALUATION SUMMARY 1. The project was conceived as the first phase of a longer term institution building and maintenanceprogram. It was to assistthe Governmentto improveinstitutionalcapacity for the maintenance of the road network; to meet the backlog of periodic maintenance on the most important sections of itspaved and unpaved road network; and to improve theaccessibilityof rural areasfor which agricultural development projects were being implemented or planned. Another objective was to help develop the domestic construction industry (para 3.01). Im~lementationExperience 2. The project was originally scheduled to be carried out during the period of June 1981 to December 1985. However, during that time the country underwent three coups d'dtat that resulted in a slowdown of all project implementation. The highway project was only roughly half completed and maintenance reorganhtion had encountered serious difficulties. The number of regional directorates was doubled over that originally planned without consultation with IDA (para 4.02). This threw project institutionbuilding efforts into disarray and resulted in drastically reduced project output. Equipment was diverted to non-project construction works, at times leaving only about half of it for road maintenance. The February 1986 supervision mission blamed political interference for most of the diff~culties, exacerbated by frequent changes in Government personnel (para 5.02). 3. The project was substantiallycompleted in July 1988at the beginning of the rainy season. The final audit was carried out in late 1988 (para 5.03). Results 4. The physical targets of the project were substantially achieved althoughprogress was delayed by diversion of equipment and frequent reorganizations of the Ministry of Public Works, Transport and Urbanism @4TPTU).Lessprogress was made on the institutionalsidebecauseof frequent government reorganizations (paras 6.01 and 6.02). 5. Considering the many setbacks the project suffered during several coups in Burkina Faso in the early 1980s, the results achieved are satisfactory. Project implementation was reasonably good under difficult circumstances of domestic turmoil which prevailed during most of the executing period. 6. Theproject's economic rate of return (ERR),originally estimated at 60 percent, has been reevaluated at 25 percent (para 6.13).  7. Coordinationbetween IDA and its major codonor was close(para 8.03). IDA'S relations with the Borrower were reasonably good in light of the problems which arose (paras 8.01, 8.02 and 8.03). Sustainability 8. Theproject isconsideredsustainableprovided thatanumber of reforms in work execution are introduced, and a follow-up transport sector project including a significantly redesigned road maintenance component was approved by IDA on February 18, 1992. (para. 7.01) Findings and Lessons Learned 9. Theprojectwasthoroughlypreparedand supervised. Lessonslearnedinclude(para8.05): (a) close coordination between IDA and its codonor greatly facilitated progress; (b) thorough supervision is essential to maintaining progress especially during periods of instability; (c) a project design featuring decentralization which depends on results of a simultaneous training program to produce additional qualified personnel needed is a difficult task; (d) forceaccountroad constructionand maintenancebrigadesarehandicapped by bureaucratic processes to maintain their operational capacity, are highly vulnerableto political whims when they are operating properly, use the scarce management resources of developing countries ineficiently, and often lead to resource wastage; (e) themobilizationof adequatemanagement and technical skillsatallthelevelsfromplanning to executionrequiresproper compensation. This can best be done by the private sector; and (f) much remains to be done to developproper geometric and quality standardsas a function of differenttraffic levels and to have governmentspromoteadherence thereto in an effort to husband scarce resources.  FOURTH HIGHWAY PROJECT jCredit 1164-UV) PR P T T PART I: P p 1. Proiect Identitv Name: Fourth Highway Project Credit Number: 1164-UV RVP Unit: Africa Region County: Burkina Faso (formerly Upper Volta) Sector: Transportation 2. Background 2.01 At the time the project was prepared, the primary responsibility for transport planning and coordiion in Upper Volta (now Burkina Faso) rested with the M i of PublicWorks, Transport, and Urbanism (MTPTU). The General Directorate of Public Works (DGTP) was responsible for the planning, construction and maintenance of roads, while the General Directorate of Transport (DGT) was responsible for planning and supervision of the road transport industry, railways, and aviation. The investmentproposals made by the MTPTU were submittedtothe Ministryof Planningfor selection and inclusion in five-year development plans. The Ministry of Finance established road user taxes and specified financial ceilings for the sector. 2.02 Investmentsin thetransport sectorhad been financed almostexclusivelyby foreign donors, with Government involvementlimited initiallyto 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 trained personnel in the BPP to analyze transport investments and to establish priorities. Their work focussed on reviewing feasibility studies prepared by consultants and on establishing feeder road construction and rehabilitation programs. 2.03 Up to the time of appraisal, the Bank Group had been involved in one railway and three highway projects to improve and develop Burkina Faso's transport infrastructure. The three highway projects were: the First HighwayProject (Cr. 316-W, US$2.8 million, 1972, supplementedby US$1.35 million, 1974), the Rural Roads Project (Cr. 579-UV, US$7.5 million, 1975)and the Third Highway Project (Cr. 653-UV, US$20.0 million, 1976, supplementedby US$3.5 million in 1979). The First Highway Project complemented the West Volta Cotton Project (Cr. 706-UV) by upgrading to gravel standards a 70-km road serving the project. The Second Project provided for the improvement of 1,200 kmof rural roads and maintenanceof 2,100 km of existing rural roads. The Third Project called forthepavingof theBanfora-BoboDioulasso-Hounderoad(183km),equipmentfor axleweightcontrol, 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 who drew up a four-year maintenance program which formed the basis of the road maintenance component of theFourthHighway Project. Besidesthesespecific road projects, fiveIDAagricultural projects included road components.  2.04 By 1981,maintenanceof national roadshad steadilyand seriouslydeterioratedsince 1972, mainly due to inadequate budget allocations. MTPTU's annual budget requests were cut by as much as two-thirds due to financial constraints. Some 60 percent of the reduced allocations were needed to cover staffsalaries, leaving insufficientamounts for materials, fuel, spareparts and equipmentrenewal. Theshortageoffundswasparticularlyacuteasconcernsequipment: thefleetwascompletely inadequate and badly in need of renewal. 2.05 Maintenanceofdepartmentalandregionalroadswasstartedunder theRuralRoadsProject. Thishad not experienced the same budgetary and equipmentdifficultiesas the maintenance of national roads, sincenew equipment and somemaintenance operating costs were being financedunder the project. Maintenance of most unclassifiedroads wasofficially theresponsibilityofthe local communitiesserved by theroad, butsincelocalcommunitieshad neithertheexperiencenorthe meanstoorganizeanefficient road maintenance operation, most of these roads had not been maintained at all. 2.06 Duringtheexecutionofthefirstthreeprojects,variousissueshad emerged andwere addressed by this project as noted in the Staff Appraisal Report: (a) Shortageof m ~ ~ 7 p e r s oin~thees le a . An appropriatemanagement policy in the sector should: i) establish strict priorities 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 limited funds allocated to cover recurrent costs. TheBPP intheMTPTU had themandateto evaluateandprogram investments in the sector. Technical assistance was provided under the project to train administrative and accountingpersonnel to use the funds allocated to the recurrent cost budget of the DGTP more efficiently; (b) Shortage of technical mid-level ~ersonnelto oDerate and maintain road maintenancg mui~rnenl.Long before the project was approved, the need for more trained mechanics and machine operators was recognized both by Government and IDA. In anticipation of theneed to establish viableroad maintenance institutions,the Second EducationProject (Cr. 956-UV, US$14.0 million, 1980)included a component for upgrading the Center for Technical Training in Public Works (CFPTP)for the training of road maintenance personnel; and (c) Lack of funds to maintain an extensive road network. As the economy was based on subsistenceagricultureand characterizedby slowoverallgrowth, trafficwasconcentrated onalimitednumberof main trunkand secondaryroadslinkingthefew centersof economic andpoliticalactivity. Ruraldevelopmentprojectscoveringhundredsofvillagesthroughout the country required access roads if significant changes in agricultural production were tobebrought about. Over the 1974-81period, the rural road network had been expanded but again, adequateprovisionsfor maintenancehad not been made. Theproject included a component to evaluate the potential for developing a system of cantonnage whereby rural populationswhich benefit from the constructionof low volume accessroads in their areado most of the maintenance. MTPTU would remain responsiblefor the maintenance of higher volume roads.  3. Proiect Obiectives and Descri~tion 3.01 Proiect Ob-iective. The project was designed as the first phase of a long-term institution building and maintenance program. It was to assist the Governmentto improve its institutionalcapacity 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 areasfor which agriculturaldevelopmentprojects were being implemented or planned. Another objective was to help develop the domestic construction industry. 3.02 Proiect Description. To meet the above objectives, the project consisted of: (a) A four-year (1982-85) program of road maintenance which included: (0 acquisition of road maintenance equipment; (ii) constructing, equipping and furnishing office buildings and stockrooms in four regions and equipping one central and three regional workshops; (iii) incremental costs of routine maintenance for the classified road network; (iv) operatingcostsforperiodicmaintenance of about 450km ofgravel roadsby force account; (v) rehabilitation of about 280 km of gravel roads by contractor; and (vi) resealing of about 320 km of paved roads by contract. (b) A three-year program for the construction and initial maintenance of about 1,640 krn of feeder roads which included: 6) equipment and spare parts to replace or complement existing equipment of the Feeder Roads Units; (ii) provision of spare parts, materials and supplies; and (iii) construction of small drainage structures by local contractors. (c) Consulting services for: (i) technical assistance and training to DGTP; (ii) supervision of rehabilitation of gravel roads; (iii) design and preparation of tender documents for the CFPTP; (iv) continuation of a Rural Road Impact Studybegun under the Rural Roads Project; (v) implementation of a pilot community-based maintenance scheme; and  (vi) technical assistance for the domestic construction industry. (d) Scholarships for road maintenance managerial staff. 4. Proiect Design and Organization 4.01 After studying DGTP's structure, the consultantshad proposed a gradual reorganization beginning in 1981. This was accepted by the Governmentand endorsed by IDA with some modifications. Themain changeto the existingorganizationwassuccessivedecentralizationof maintenanceoperations as qualified personnel became available. A second change would reallocate responsibilities between divisions which under the new organization would become directorates. The modified organization would have under the General Directorateof PublicWorks, a Directoratefor Studiesand New Works (DETN), a Directoratefor Equipment (DM) and, at first, four regional directorates. DETN would continueto be responsibleforthe designand supervisionofconstruction. Itwould, in addition, through aFeeder Roads Unit Studysectionattached to DETN, be responsiblefor theprogramming and supervision of feeder roads to be improved under the project. DM would be responsible for the procurement, maintenance and distribution of heavy equipment used by the regional directorates. 4.02 Full decentralizationof maintenanceoperationsand force accountworks was totakeplace over ten years. Initially, it was intended to create four regional directorateswhich would correspond totheexistingsubdivisionsinBobo-Dioulasso, Ouagadougou,OuahigouyaandFadaN'Gourma. Additional equipment, workshops and offices for these four regional directorates would be financed under the project. Each regional directoratewould have a unit for the maintenance of national roads and a unit fortheconstructionandmaintenanceoffeederroads. Feeder roadsimprovedunderthisandtheongoing Rural Roads Project wereto be maintained by these regional Feeder Road Units. Accounts for feeder road constructionandmaintenancewereto bekeptseparatelyfromthemaintenanceactivitiesonnational roads. It was expected that the Government would create additionalregional directoratesas qualified personnel became available, so that each of the country's 12 regions would have its own directorate by about 1990. In the meantime, the first four regional directorates would be responsible for road construction and maintenance in neighboring regions. 4.03 The existing BPP was split into its two functions. The planning functions, which also covered the General Directorate of Transport (DGT), was to be attached to the Ministry's cabinet. The programming function was to be attached to the DETN where it would remain responsible for examining the economic feasibility of annual feeder road programs and of other new road projects to be phased intothe investmentprogram. Duringnegotiations, Governmentagreed thatthe reorganization as described above would take effect before the end of 1981. 4.04 Totalpublicexpendituresonroad constructionand maintenance amountedto aboutCFAF 20 billion from 1975 to 1980. Of the portion allocated to current expenditures for the maintenance of national and secondary roads, CFAF 4.2 billion, the Government contributed 3.5 billion or about 83 percent. Theremainingexpendituresonmaintenanceand all new constructionwasforeignfinanced, mainly by the European Development Fund (EDF), Fonds d'Aide et de Coop6ration(FAC) and IDA. Some 60 percent of the Government's expenditureswent for salaries of administrative and operating personnel, with insufficientallocationsremainingfor fuel and spareparts needed for effectivemaintenance. To improve this situation,the Government agreed to budget allocationsfor salaries, fuels, spareparts and materials separately. This arrangement was confirmed during negotiations.  4.05 To facilitate the timely availability of funds for the execution of routine maintenance and force account works, Government proposed to establish a special account in a private bank. The Government agreed to the above arrangements during negotiations. 4.06 DETN, which was responsible for supervision of all construction, used consulting firms to assist it in supervising major road projects. However, DETN had the capacityto superviseconstruction and to control the quality of smaller projects with assistance, where necessary, from the National Road Laboratory. 4.07 A Rural Roads Impact Study financed under the Rural Roads Project had identified communities where villagers expressed a willingness to contribute labor towards the maintenance of roads that were improved under the Rural Roads Project. The project included financing of a pilot road maintenance project. Under the direction of an experienced consultant, a pilot scheme for labor- intensiveroad maintenancewastobesetup in onesub-regionto determine, through practical experience, what type of organization was feasible and what level of remuneration necessary to generate local involvement in road maintenance. As aworkablesystem developed, a number of local personnel could be trained to expand itto other regions of the country. Unfortunately, the pilot schemehad to be aborted as the scheme, which called for local contributions of labor, was not considered feasible under the conditions brought about by a coup. 4.08 Maintenance of DGTP equipment was the responsibility of DM. Equipment availability was a low 35 percent, due to a combination of factors: antiquated equipment and lack of qualified personnel, workshop facilities, tools and spare parts-the latter exacerbated by insufficient funds and uncoordinated ordering procedures. Theproject financed equipment modernization, spare parts, tools and workshop facilities. It also provided funds fortechnical assistance fordesigning and implementing appropriate procurement and inventory procedures and training of mechanics. 4.09 Engineers and higher-level technical staff were to be trained abroad, mainly with the help of fellowships. TheCFFTPtrained lower-level technicians, road foremen, cost accountants, administrative personnel, and mechanics. To improveCFPTP's facilities, the SecondEducation Project had financed the expansion and modernization of the existing training facilities (para 2.06 (b)). But the number of teachers was inadequate to provide enough trained personnel for DGTP's needs. 4.10 Thehighway andrural road componentsof theproject wereprepared by Bankheadquarters and RMWA respectively, as separate projects. In 1981, IDA resources had become tight, a coup had just taken place in Upper Volta, and in the light of budgeting problems, Government and IDA decided to combine the two operations into a single project. The total cost of the project was estimated at USs56.7 million of which USS45.0 was in foreign exchange. The credit of USf46 million covered 81 percent of project costs net of taxes. TheNetherlands financed on a parallel basis equipment costing USs8.0 million or 14percent of project costs on a grant basis. IDA was appointed by the Netherlands as the administrator of the grant funds. MTPTU was given overall responsibility for project implementation. 5. Proiect Im~lementation 5.01 Credit Signing on Proiect Start-UD. Although the Credit was approved by the Board in June 1981, it could not be signed until January 1982because of a lack of IDA funds. The Credit did not become effective until August 1982 because of a delay on the part of the Government in signing  the public debt side letter. However, this did not delay the preparation of documents for equipment procurement and a start on the reorganization of the MTPTU. 5.02 Im~lementationSchedule. Theprojectwas originallyscheduledtobe completedby December 31, 1985. However, by that date the country had undergone two more coups d'etat that resulted in a slowdown of all project implementation. The highway project was only roughly half completed and maintenancereorganization had encountered serious difficulties. The number of regional directorates was doubled over thatoriginallyplanned withoutconsultationwith IDA (para 4.02). This threw project institutionbuilding efforts into disarray and resulted in drastically reduced project output. Equipment was diverted to non-projea constructionworks, attimes leaving only abouthalf of it for road maintenance. The February 1986supervision mission blamed political interference for the difficulties, exacerbated by frequent changes in Government personnel. 5.03 The project was substantiallycompleted in July 1988at the beginning of the rainy season. The final audit was carried out in early 1990. 5.04 Procurement. Procurementof equipment, spareparts technical assistanceand civilworks proceeded reasonably satisfactorily, but operations were substantially delayed by problems of the reorganization and lack of local funds. Equipment financed by IDA was procured by ICB. 5.05 Proiect C o s ~ .Total project costs were slightly lower than estimated at appraisal. Table 5(A) shows the appraisal and completion costs, and Table 5(B) shows the sources of financing for the project. 5.06 Disbursemen& ByJune 1989,aboutUS$0.5 millionremainedundisbursed. SDR395,297.05 were canceled as of November 7, 1989. 5.07 Credit Allocation. The original allocation of Credit proceeds was changed on June 25, 1986and June 26, 1987, as indicated on Table 3(B). The changes mainly reflect increases in spending on civil works and technical assistance, by the transfer of unallocated funds to these categories. 6. Proiect ResuIQ 6.01 Proiect Obiectivq. The project, as the first phase of a long-term institutionbuilding and maintenance program, was only partially successful in achieving its aims especially in developing institutional capacity, due mainly to a succession of disruptive political and administrative changes through most of its implenentation period. 6.02 Physical ResulQ. The physical targets were substantially achieved as planned, although the works were delayed by diversions of equipment in 1985 and 1986to works outside the project, and by repeated reorganizations of the MTPTU. These complications made it difficult to adhere to the construction and maintenance program timetables. 6.03 Construction and Eaui~mentof Offices and Worksho~~.The offices and workshops for the five Regional Directorates of Bobo-Dioulasso, Dedougou, Ouahigouya, Fada, and Ouagadougou were constructed and equipped, as well as the offices for the Dori, Gaoua and Diapaga District subdivisions.  6.04 Additional Routine Maintenance. The initial program was modified mainly towards heavier maintenanceoperations: a large quantityof heavy grading with spot regravelling was executed instead of larger quantities of light grading (Table 6 (A) and (B)) while the road corrugation control program that was to be carried outswithdrags towed by agricultural tractors was completedonly in a very small proportion. The changes in the program were consistentwith a road network in poor initial condition, difficult to maintain with light interventions. The total value of the routine maintenance operations that havebeen completed and analyzed remains nonethelessequivalentto the total valueof the interventions that had been planned, but they were executed over a longer period (Table 6 (F)). The result of the heavier interventions executed and lower annual expenditures was an improved road network, but to a lesser extent than had been envisioned. 6.05 Periodic Maintenance of 450 km of Gravel Roads bv Force Account. The program was increased at the outset of the project to include 846 km of gravel roads. The force account crews had regravelled 929 km of roads at the end of December 1988(Table 6 (C)), for a total of 1,180,000 cubic meters of gravel or 1,270 cubic meters per kilometer on average. 6.06 Rehabilitation of 280 km of Earth Roads bv Contractor. Only 55 percent of the earth road rehabilitation program could be completed, the roads being so deteriorated that they had to be entirely reconstructed at a much higher unit cost than planned. 6.07 Resealine 320 km of Paved Roads bv Contractor. The work consisted of reconstructing the road base and the surface dressing on the most heavily travelled third of the planned network at a cost about equivalent to the resealing that had been planned. The appropriateness of this strategy has been confirmed by the economic analysis executed with the HDM 111model during the PASECT preparation. The rest of the roads will be rehabilitated in the same fashion or resealed, according to traffic and condition, during the follow+n Transport Sector AdjustrnentflnvestmentProgram (Cr. 2332-BUR). 6.08 Cons c i n f 1 t . The 164.0 bu program was reduced to 953 km at the beginning of the project to account for lower-than-planned equipment availability, and 705km of feeder roads were finallyconstructed (Table6 @)). A very smallproportion of the feeder roads constructed were part of the three integrated rural development projects. More importantroads linking rural communitieswere constructedinstead. Theroad standardshave therefore generally been much higher than those that had been planned. Traffic nonetheless is lower than eight vehicles per day on 37 percent of the network that has been built and the reduced standard that had been planned should have been applied for those. 6.09 construction of Culverts hnd Bridges by Force Accounl. One-hundred-thirteen drainage works varying from 80 cm diameter culverts to small bridges with three 12 meter long spans have been built by force account following a program that was approved towards the end of the project. These structures were built on roads regravelled under earlier projects, which ran out of funds for necessarydrainageworks. Their completion improved some200lanto all weather standard -a significant project achievement not reflected in the ERR calculations. 6.10 Considering the many setbacks the project suffered during several coups in Burkina Faso in the early 1980s, the results achieved are satisfactory. Project implementationwas reasonably good under the difficult circumstances of domestic turmoil which prevailed during most of project imp1ementation.  6.11 Training. Ten people received training as cost accountants under the project. Record keeping as to status, contracts, disbursements, equipment use, costs, etc. was well done. 6.12 Financial Performancg. The Governmentfrequentlyfailed to providethe local fundsfor fuel and spare parts, etc. as it had originally committed itself to do. Road Fund allocationswere not adequatefor maintenance. Theseshortfallswerepartly compensated forby local counterpartfinancing provided by the Netherlands which covered part of the cost of fuel and parts. 6.13 EconomicAnalvsi~.Theeconomicanalysiswascalculatedwiththeresultsoftheeconomic analysiscompletedforthePASECTwiththeHDM I11model, andby comparingthoseresultsforworks of the same type and equivalent traffic. The economic rate of return (ERR) for the project has been reevaluated to 25 percent (Table6 (G)), down from 60percent in the Appraisal Report. The overall rate of return is affected by the road standard adopted which was high relative to the traffic on the roads rehabilitatedby contractor, and more sofor the feeder roads, as well as by the increased quantity of worksrequired becauseofthecompletedeteriorationof existingroads. Also,traffichas notincreased as rapidly as expected on most of the roads. 7.01 The project is considered sustainable; a follow-up transport sector project with a sizable road maintenance component (PASECT) was approved by IDA on February 18, 1992. 8. Bank Performance 8.01 The project was thoroughly prepared and appraised by headquarters (construction and maintenancecomponents),andby theRegional Miion inWestAfrica (RMWA)(feederroadcomponent). Thecomponentswerecombined intoasingleprojectjustbeforenegotiations. Thetwounitssupervised their components until the Rural Road Section at RMWA was dissolved in 1982 and transferred to headquarters. The preparation of a separate feeder roads project and a road maintenance project by RMWA and headquarters units respectively during 1979-80 led to greater than normal number of preparation missions (Table 4). 8.02 Supervisionwas frequent and at least some of the same staff continued to supervisethe project until its completion, so continuity was good. In July 1985, an IDA staff member visited the consultant's headquarters to request changes in the technical assistanceteam. Again, in May 1986, when itbecameapparentthatproject executionwas in serioustroublebecauseof diversionof equipment and funds,senior IDA officials visited Burkina Faso to persuadethe Government that unlessperformance improved, the Credit might be cancelled. 8.03 IDAcooperatedcloselywithitscodonor, theNetherlandsandseveralsupervisionmissions were staffed by representativesof both agencies. 8.04 Theprojectdesignwasbasedongradualdecentralizationofahighlycentralizedadministration. When accelerated by Government,this became a high risk operationespecially since it was dependent on the simultaneous implementation of a training program to produce the staff and skilled workers needed to run a decentralized operation. 8.05 LessonsLearned. Thelessonslearnedfrom theexecutionof thisprojectarethefollowing:  (a) close coordination between IDA and its codonor greatly facilitated progress; (b) thorough supervision is essential to maintaining progress especially during periods of instability; ' (c) a project design featuring decentralization which depends on results of a simultaneous training program to produce additional qualified personnel needed is a difficult task; (d) forceaccountroad constructionand maintenancebrigadesarehandicapped by bureaucratic processes to maintain their operational capacity, are highly vulnerable to political whims when they are operating properly, use the scarce management resources of developing countries inefficiently, and often lead to resource wastage; (e) themobilizationof adequatemanagementandtechnical skillsatallthe levelsfromplanning to execution requires proper compensation. This can best be done by the private sector; and (f) much remains to be doneto develop proper geometric and quality standardsas a function of differenttraffic levels and to have governmentspromote adherencethereto in an effort to husband scarce resources. 9. Proiect Relationship 9.01 IDA'SrelationswithGovernmentwerereasonablygoodconsideringthatIDAhadtorepeatedly take a strong stand with Government in insisting on better performance. 10. Consulting Service 10.01 Theposition of the consultant was made difficult by frequent changes in the MTF'I'U project team, and at times the consultant provided the only element of stability of the project. When IDA was not satisfied with the project manager's performance, the consultant responded by making the requisite changes, and the team performed satisfactorily under sometimes trying conditions. 11. Proiect Documentation and Data 11.01 Project documentationwas generally adequate.  PART 11: 1 The Borrower did not provide a review from its perspective. Comments on the overall PCR were received on June24, 1992 and have been incorporated into the main body of the PCR itself.  PART rn: 5- 1. Related IDA Credits # Credit Number Year of Purpose of Status Comments Project Title Approval Project Cr. 316-UV 1972 Reduce transport costs in the Closed Staffing, data First Highway Project western part of Upper Volta 12/79 collection and where traffic was expected to road maintenance increase as a result of a Cotton were judged Development Project for which unsatisfactory. an IDA credit had been granted one and a half years earlier Cr. 579-UV 1975 Staff and equip the Secondary Closed Project Rural Roads Project Roads Maintenance Service 12/81 framework not (second highway project) (SERS) of the Directorate of adequate to attain Public Works @PW) to improve planned 1200 km and maintain 2100 km objectives, but of rural roads in regions of high the Project was potential for agriculture growth. rated satisfactory overall. Cr. 653-UV 1976 Pave the Banfora-Bobo-HoundB Closed Delays in Third Highway Project road, purchase equipment for 6/80 procurement axle weight control, provide impaired efforts technical assistance, and carry to prevent major out a feasibility study and road damage detailed engineering for the Ouaga-Kaya-Dori road. Cr. 2332-BUR 1992 Maintain and rehabilitate the Not yet Transport Sector Borrower's transport effective Adjustment/ Investment infrastructure and improve efficiency of sectoral operations.  2. Project Timetable Item Date Planned Date Revised Date Actual First Mention in Files 10/08/75 Negotiations 02181 Board Approval 04181 06116181 Credit Agreement 01/28/82 Date Effectiveness 08/26/82 Closing Date 06/30/86 12/31/88 3. Credit Disbursemen&(US$ million) -a/SDR 395,297.05 was canceled on November 7, 1989. (The Credit was denominated in SDRs.)  3(B) - DlSnURSEMENT CATEGORIES ANNEX ICREDIT AOREEMENT 15 N N E 1986AMENDMMT 26 N N @1987AMENDMENT . ACTOAL DlSBUlCFUILMS C"4-V AlbsrimSDR S P.C. C.UP"' AUoaliDnSDR S F.C F d Cm1(#oq Alba(imSDR S P.C.P i SDR F d I.Civilwort. 10.120.MO #IS I. Civil wort. I.Oup-K+ 7.900.MO 100% a.OIY@~Kouph 7.100.00Q 100% 6.109.204 Ib Cukcrc.. b r i p 1.100.MO 45% b.Cukd.brid@o Ic a h c t wort. 5 . a . a 90% o K i m foror 0s. U)(I.m RlS . 205.6BI c.(khcr wart. 7.1J0.000 90% 1,461,)29 - xq: LC. bollarrpr). P.C. rod#. -  4. Mission Data and Staff l n w t s Mission Data I t e m Mo./Year NO. of Mission Man Date of Persons cc'!'Qo-,s Ueeks Report Sltlon Identification Preparation Preparation Preparation Preparation Preparation Preparation Preparation Preparation Preparation Appraisal Post-Appraisal 04/80 2 H,E 2 Supervision 1 05/8 1 1 H 1 Supervision 2 09/81 1 H 1 Supervision 3 11/81 1 H 1 Supervision 4 02/82 1 H 1 Supervision 5 08/82 1 H 1 Supervision 6 10/82 1 E 0.5 Supervision 7 01/83 2 HIE 2 Supervision 8 08/83 2 H,E 2 Supervision 9 03/84 2 E,C 2 Supervision 10 06/84 1 H 1 Supervision 11 07/84 1 E 0.3 Supervision 12 10/84 1 H 1 Supervision 13 03/85 1 E 2 Supervision 14 07/85 2 H,E 2 Supervision 15 02/86 2 H,E 2 Supervision 16 04/86 1 E 0.5 Supervision 17 09/86 2 H,E 2 Supervision 18 04/87 1 H 0.5 Supervision 19 01/88 1 E 2 /B E = Economist; H = Highway Engineer; T = Traininp Consultent; E = E h a t o r 42 Report by RWA a d Second Feeder Road Project /C Project Brief for Fourth Highway Project id Project Brief for Second Feeder Road Project prepared by RWA (mdated) 1s Issues Paper by Headquarters If Issues Paper by RWA Staff l n w t s Fiscal Year: FY79 FY80 FY81 FY82 FY83 FY84 FY85 FY86 FY87 FY88 FY89 FY9O Total Preappraisal 2.5 6.0 Appraisal 3.0 Negotiations Supervision 1.0 8.9 13.4 32.3 17.8 18.9 14.9 3.5 3.6 0.4 113.7 Other Total AF51N -February lWO Note: Data for FY1979-81 i s estimated.  5. Project Costs and Financing A. Project Costs ( i n '000 US$) AppraisaL/a ..------------------------------------------ Project conpletion/b IDA Netherlands --- ----------- B Faso ------ Total - - - - - I. Procurement of quipnent 14.2 5.9 6.1 0.0 12.0 11. Construction, cquipnent and furnishing for offices and workshops 3.2 0.9 0.0 0.1 0.9 111. lncranental costs of routine maintenance IV. Periodic maintenance of 450 b of gravel roads by force accomt 5.6 7.3 0.0 1.O 8.3 Culvert construction by force accwllt V. Rehabil i t a tion of 280 b of gravel r o d s by contractor VI .Resealing of about 320 km of paved roads by contractor VII. Construction and nreintenance feeder roads VIII. Consultant services and training 8.2 8.8 0.0 0.0 8.8 I X . Scholarships TOTAL /a Source: SAR, p. 19. /b Source: I1Etude de F a c t i b i l i t e & PASECTIo (Table 10) and credit dishrsment Listing. Average value of SDR, 1.13 USS or, 396 CFAF. /C ------.-----------------------------------------.----------------- Amount a t actual dishrsement rate of exchange. B. Project Finencing ( USS Million) Appraisal /a - - - - - - - - - - Actual ------ IDA Netherlands Governnent TOTAL /a Source: SAR, para. 3.23, p. 22.  Accomlishment of the Proiectts Phvsical C m n e n t s A - PERIODfC MAINTENANCE, COIlSTRUCTfW AND REHABILlTATION Quantity plamed Quantity ~ o r k sdescription at evaluation acconplished Periodic nmintenence of gravel roads by force accourt 450 km Feeder roads construction by force accomt Culverts and bridges construction by force accomt 113 units Earth roads rehabilitation by contractor Paved r o d s resealing by contractor B -ROUTINE MAINTENANCE Indicators P l a m d on 4 years Accctrplished on 5.5 years 1982 -1985 1982 - JUW 1987 Paved roads patching 5.200 m2 Light grading 41.000 km Heavy greding N i l with spot regravelling Road corrugation control 150.000 km 8.640 km Culverts cleaning and bridge repairs 8.100 units N.A. /a Gravel applied a t average rate of 1.280 cubic meters per kilometer. /b C q l e t i o n of 705 km of feeder roads with 1.180 cubic meter of gravel per kilometer (6m wide X 20 cm thick average) rather than the planned 1640 km of feeder roads 5m wide with about 500 cubic meter of gravel per kilaneter. /c Drainage works only on the Last 31 kilaneters. /d Reconstruction of bese course and surface dressing on 139 kilaneter rather than surface dressing of 320 k i Laneter. SOURCE : Evaluation report, "Etude de FactibiLitC du PASECTtt (Table 10.2.l), Final Report of Rural Road Conponent.  C- LIST OF ROADS REWMLLED BY FORCE ACCWUT Designation Length Rating T r a f f i c T r a f f i c I corrpleted 1987 VMJA 85 WJA 88 (km) (v.p.d.1 .------- -------- -(v.p.d.1- - - - - - - Ouagadougw - Korsimro (part of) 44.0 118 263 Koudougw - Limite 7/5 Volta Noire 54.0 w w Limite 7/5 Volta Uoire - Dedougou 73.0 53 110 Dedougw - Noma 53.0 93 20 S a t i r i - Limite 2/5 49.0 n 100 /b Limite 2/5 - Ouarkaye 40.0 33 43 /b Ouarkaye Dedougou 49.0 41 54 Dedwgw -- Cassan 55.0 33 42 Gassan - Tougan 43.0 25 28 /b Yeguessero M I - Klesso 34.0 w 270 Klesso - Limite 2/8 Fl. Bougouriba 41.O 50 68 /b Fleuve B w g w r i b - Diebougw 52.0 44 27 Diebougw- Gawa (part o f ) 9.3 31 42 Dori (D-11) - Gorm Corm 45.0 13 15 /b Kaya - Lirnite 1/9 10.4 228 148 Limite 1/9 - Taparko 43.0 40 57 /b Taparko - Limite 9/6 (Yalgo) 12.0 38 47 /b Limite 9/6 (Yalgo) - Dori 59.0 27 51 Kantchari - Diapaga 58.0 21 34 Diapaga - Uamomw 25 .O 8 14 Sapaga B w l s a (part of) 30.0 106 38 Boulsa -- P i e l a 26.0 20 24 /b not defined 24.0 8 14 TOTAL 928.7 Average weighted r e l a t i v e t o the Length. 3.5 53 70 ---------.----------------.--.-----.-.--------------------------- D - LIST OF FEEDER ROADS BUILT BY FORCE ACCWNT Designation Length Rating Traf i c Traf i c canpleted 1987 WJA 85 WJA 88 -------- (h) -----.-------- /a (v.p.d.) (v.p.d.1 B o r m Safane 56.0 3 14 13 Safane -- U-14 22.0 4 6 6 Koudwgou - Yatenga 71.O 3 17 47 Yako - Ouanan 20.0 3 15 18 /b Yako Toesse 24.5 2 6 6 Dana -- Bovyanou 18.0 4 6 8 B w y y - Kassw 27.0 3 6 8 Tabou - ,apouy 30.0 2 6 6 Bobo Diwlasso area, before 1983 29.0 6 6 /c Bobo Dioulasso - Banzm 56.0 70 46 RR 38 Totmussmi - LotMmrw 83.0 23 45 Sindou -- Kankalab 70.0 10 11 Kankalaba - Koloko 63.0 10 11 Kouloho - F a n t a n - Koti 24.0 8 12 Kindi - Kayo - Loeffing 54.0 6 6 /c Mouloupo -- Kampti 14.0 6 6 /c M i demo Cawa 6.6 6 6 /c S a t i r i Bassora - Basse 27.2 6 6 /c Hande -- Sara 9.5 6 6 TOTAL 704.8 Average weighted r e l a t i v e t o the Length. 3.35 16 20 /a Road quality index, index 5 representing the best quality. /b Extrapolated t r a f f i c volunes. /C Estimted t r a f f i c volurrs. SWRCE: IBEtudede F a c t i b i l i t e du PASECTBo,Chapter 10.2, Table 4.11.0, Table 6.11 .  E - ROAD REHABILITATIOW BY CONTRACTOR Length 1ndex Traf i c Trafic Cost of Cout wit executed 1987 VMJA 85 VMJA 88 uorks des trava (km) /a (v.p.d.) (v.p.d.1 -------- ------ -------- -------- ('000 US$) - - - - - - - - US$/h ---.-- PAVED ROADS N04-1 Ouagadougou - Zorgho 110 4 472 518 N04-2 Zorgho-Limitel/lO(Sapela) 21 4 104-3 Limite 1/10 (Sapaga) - Kcupele 8 4 449 TOTAL 139 7727 55600 GRAVEL ROADS 113-1 Yako-Limite3/7Swba N13-2 Lirnite 3/7 S m h -Koudougou N13-3 Koudougou- Sabou -Basila/b N13-4 Sabou - N13-5 Basila Leo TOTAL 181 7681 42400 /a Road quality index, index 5 representing the best quality. /b Culverts only. SOURCE: 81Etudc& Factibilite & PASECT", Table 4.11.6, Table 6.11, Consultant. F - ROAD MAINTENANCE WORKS BY FORCE ACCOUNT (Uorks value estimated i n contractor prices) Unit ------------------- Quantity Cost i n US$ Unit costs ------ --------- USS\a .-.-----------.-----------.-----------. Plamed Carpletion Plamed Carpletion ROUTINE MAINTENANCE Light grading km 98 41000 20905 4,018,000 2,048,690 Heavy grading/spot regravel1ing krn 710 0 5710 0 C,054,100 Drag km 16 150000 8640 2,400,000 138,240 Patching paved roads m3 156 2208 846 344,448 131,976 SUB-TOTAL ROUTINE MAINTENANCE 6,762,448 6,3?3,006 GENERAL REGRAVELLING h 16,300 450 928.7 7,335,000 15,137,810 FEEDER ROADS \b km 15,000 1640 704.8 9,840,000 10,512,000 CULVERTS AND BRIDGE CONSTRUCTION unit varies 113 650,000 TOTAL 23,937,448 32,732,816 \a Unit costs estimated for the PASECT, decreased 10%for inflation. General regravelling and feeder roads construction costs estimated according t o gravel volunes actually placed. Source : ooEtudcde Factibilite du PASECToo,table 3.4.2.A et 3.4.3. \b Feeder roads unit construction costs uere i n i t i a l l y estimated at USS6,000/lrm. Source: SAR,A m x 111, par. 11.  G - ECONOCIIC ANALYSIS SUmARY Description of works Length Uorks Econcinic Benefit/Costs NDV/ km (h) value rate of return Ratio (000 USS) -------- .---------------- - - - - - Paved roads rehabilitation by contractor 139 3.3 13 Gravel roeds rehabilitation by contractor 181 1.1 4 Genersl regrevelling of gravel roads on force account 929 2.4 12 Feeder roads construction on force eccomt 705 1.1 0 Routine maintenance on force eccomt 2 5 TOTAL Project's ERR Key : UDV Net discounted value of costs and benefits streams e t 10%discount rate.  7. Status of Covenants Covenant and Subject Deadline Status 3.01 (a) Borrower to carry out project with due Action nearly always listed as diligence and efficiency. pending. Not met 2/85. 3.01 (b) Borrower shall make budgetary allocations Nearly always listed as unmet. for road maintenance starting 1982. 3.01 (c) Borrower shall exchange views annually with Action nearly always listed as IDA on the amounts proposed to be budgeted for road pending. Not met 2/85. maintenance for the following year. 3.01 (d) Borrower shall appoint a Project Coordinator Generally met within the General Directorate of Public Works. 3.02 Borrower shall appoint the necessary consultants Met during latter half of and experts to prepare tender documents, final project. Listed as pending in designs, ctc., an agreed with IDA. first half. 3.03 (a) Borrower shall insure imported goods Me%during latter half of f i n a n d with Credit p r o d s . project. Listed as "pending" in first half. 3.03 (b) Goods and services to be used exclusively for Partially met. Listed as met, the purposes of the Project. pending and unmet over life of project. 3.04 (a) Borrower shall furnish plans, specifications, Met reports, contract documents in sufficient detail as requested by IDA. 3.04 (b) (i) Borrower shall maintain adequate m o d s Recorded as partially met or and procedures to monitor project progress; pending. 3.04 (b) (ii) Borrower shall allow IDA representatives to visit facilities and construction sites; 3.04 (b) (iii) Borrower shall furnish to IDA at relevant intervals, all necessary information concerning the Project. 3.04 (c) IDA may publish a description of any party Met having been awarded a contrnct and the contract price. 3.04 (d) Borrower shall prepare a PCR. Six months after Not met. Closing 3.05 Road maintenance progmm shall he brought up Largely met. In early stages of to date annually by the Burrower. project, sometimes reported as pending. b  3.06 (a) Borrower shall ensure that regular exchanges Largely met. In early stages of of view take place concerning Feeder Road Program. project, sometimes reported as pending. 3.06 (b) Borrower shall furnish for IDA'S review and 10131182 Compliance mixed. Often comment the proposed construction programs for 10131183 listed as pending. feeder roads for the second and third years of the Project. 3.07 Borrower shall rmrganizc the General Rior to end Compliance mixed. Lastly Directorate of Public Works of the Ministry in a 1981 reported as unmet in 1985. manner satisfactory to IDA. 3.08 Personnel training programs shall be subject to Not reported on. prior agreement between the Borrower and IDA. 4.01 (a) Borrower shall maintain m r d s adquate to Compliance mixed. reflect appropriate accounting practices. 4.01 (b) (i) Accounts relating to the operations of the Compliance mixed. Feeder Roads Units shall be kept separate from other accounts; 4.01 (b) (ii) Borrower will retain all records until two Not reportbd on. years a k r the Closing Date. 4.02 (a) Borrower shall have accounts audited for Usually listed as pending or each fucal year. not met for all financial covenants. 4.02 (b) Borrower shall furnish to IDA not later than six months after the end of fucal year, the auditor's rcpo*. 4.02 (c) Borrower shall furnish to IDA any other information as shall be reasonably quested by IDA. 4.03 Borrower shall transfer annually to the Director Me! in latter half of project, responsibility for regular maintenance of feeder madr listed as pending in first half. improved under the Project.