ghana follow-up study of the joint evalua- tion of … · 3.1 recommendation 1 - monitoring and...
TRANSCRIPT
GHANA FOLLOW-UP STUDY OF THE JOINT EVALUA-TION OF THE ROAD SUB-SECTOR PROGRAMME 1996-2000 NEA TRANSPORT RESEARCH MINISTRY OF FOREIGN AND TRAINING AFFAIRS OF DENMARK January 2006 EVALUATION DEPARTMENT
© Ministry of Foreign Affairs of Denmark January 2006 Production: Ministry of Foreign Affairs of Denmark Graphic Production: Designgrafik A/S, Copenhagen ISBN: 87-7667-385-5 e-ISBN: 87-7667-386-e ISSN: 1399-4972 This report can be downloaded from www.evaluation.dk This report can be obtained free of charge by ordering on www.evaluation.dk or from DBK Logistik Service Mimersvej 4 DK 4600 Koege Denmark Phone: +45 3269 7788 Contact the Evaluation Department: [email protected] Ref. No. 104.A.1.e.50 This report has been prepared by NEA Transport Research and Training. The find-ings, conclusions and interpretation expressed in this document are those of NEA Transport Research and Training alone and should in no way be taken to reflect poli-cies or opinions of Government of Ghana and the donors involved in the Ghanaian road sub-sector.
TABLE OF CONTENTS
TABLE OF CONTENTS Page
EXECUTIVE SUMMARY i
1 INTRODUCTION 1 1.1 Background 1 1.2 Objective of the 2005 follow-up study 1 1.3 Scope of the 2005 follow-up study 1 1.4 Procedure of the 2005 follow-up study 2 1.5 Outline of this report 3
2 OBSERVATIONS 4 2.1 Background 4 2.2 Current developments 5
3 MONITORING AND EVALUATION 7 3.1 Recommendation 1 - Monitoring and evaluation of RSDP 7 3.2 Recommendation 2 – Develop a self-monitoring system 10
4 INSTITUTIONAL CAPACITY AND HUMAN RESOURCES DEVELOPMENT 12 4.1 Recommendation 3 – Pursue reorganisation of the road sub-sector 12 4.2 Recommendation 4 – Develop a balanced training programme 15 4.3 Recommendation 5 – Follow cautious approach towards decentrali-
sation 18
5 CLEARING THE BACKLOG 21 5.1 Recommendation 6 – Develop realistic ambition level of RSDP-
place priority on maintenance 21
6 INVESTMENT PRIORITIES 24 6.1 Recommendation 7 – Develop a common approach for feasibility
studies 24 6.2 Recommendation 8 – Prioritise road projects based on sound prin-
ciples 26 6.3 Recommendation 9 – Harmonise road standards 28
7 COST RECOVERY 30 7.1 Recommendation 10 - Further improve road fund performance 30
8 PRIVATE SECTOR CONTRACTING AND FINANCING 33 8.1 Recommendation 11 – Facilitate further private sector participation 33
9 FOREIGN TECHNICAL ASSISTANCE 36 9.1 Recommendation 12 – Focus foreign technical assistance on transfer
of knowledge and providing added value 36
TABLE OF CONTENTS
10 ENVIRONMENTAL AND SAFETY ASSESSMENT 38 10.1 Recommendation 13 - Increase priority of environment and safety 38
11 EXPENDITURE MANAGEMENT AND CONTROL 42 11.1 Recommendation 14 - Improve disbursement procedures to con-
tractors and donor releases 42
12 ROAD TRANSPORT REGULATIONS 45 12.1 Recommendation 15 - Put priority on axle load control 45
13 DONOR CO-ORDINATION 48 13.1 Recommendation 16 - Further improve donor co-ordination 48
14 CONCLUSIONS 51
Annexes 1. Terms of Reference including the 16 recommendations 2. Official Letter Ministry of Roads and Transport 3. RSDP Objectives as stated in the March 2001 Policy Letter and RSDP Perform-
ance Indicators 4. Meeting schedule field study 5. Overview ongoing studies in the transport sector 6. Policy Letter February 1996 7. Summary of Actions Taken Matrix 8. Summary of Effects Matrix
LIST OF ABBREVIATIONS
LIST OF ABBREVIATIONS AFD Agence Francaise de Développement AIT Agency Implementation Team ASROC Association of Contractors BOT Build, Operate and Transfer BPEMS Budgeting and Public Expenditure Management Systems CDF Comprehensive Development Framework DA District Assembly Danida Danish International Development Assistance DFID Department for International Development DFR Department of Feeder Roads DUR Department of Urban Roads DWD District Works Department EIA Environmental Impact Assessment EPA Environmental Protection Agency ESHS Environment, Social, Health and Safety EU European Union FTA Foreign Technical Assistance GHA Ghana Highway Authority GoG Government of Ghana GPRS Ghana Poverty Reduction Strategy GRF Ghana Road Fund GTZ Gesellschaft fur Technische Zusammenarbeit HDM Highway Development and Management Model HSIP Highway Sector Investment Programme IDA International Development Association I-PRSP Interim Poverty Reduction Strategy Paper IRR Internal Rate of Return JICA Japan International Co-operation Agency KfW Kreditanstalt fur Wideraufbau KNUST Kwame Nkrumah University of Science and Technology LGS Local Government Service MDBS Multi-Donor Budget Support MDG Millennium Development Goals MLGRD Ministry of Local Government and Rural Development MoFEP Ministry of Finance and Economic Planning MOT Maintain, Operate and Transfer MRT Ministry of Roads and Transport NRSC National Road safety Committee ODICT-P Organisational Development and In-Country Training Programme PIT Programme Implementation Team PRSP Poverty Reduction Strategy Paper PSP Private Sector Participation ROT Reconstruct, Operate and Transfer RPM Road Prioritisation Model RSDP Road Sector Development Program
LIST OF ABBREVIATIONS
RSEP Road Sub-Sector Expenditure Programme SME Small Medium Enterprises ToR Terms of Reference USA United States of America VOC Vehicle Operating Cost VOT Value of Time Exchange Rate US$1 - ¢9,200 (May 2005)
EXECUTIVE SUMMARY
i
EXECUTIVE SUMMARY
Background In the period March-November 2000 the Joint Evaluation of the road sub-sector in Ghana was carried out, focusing on the performance of the road sub-sector in the pe-riod 1996-2000. The evaluation was well received and still is considered a good exam-ple of how ownership of the evaluation process can be shared between donors and the recipient country. The Joint Evaluation report contains a number of recommen-dations (16) directed towards all actors in the sub-sector. In 2002 a follow-up study was carried out aimed at performing a systematic follow-up on the recommendations of the Joint Evaluation and to identify the constraining fac-tors preventing recommendations from being followed. Results were presented and discussed during the Annual Donors’ Conference in Kumasi. This Draft Final Report presents the preliminary results of the 2005 follow-up study; in which the focus is shifted towards assessing the effects of the implementation of the recommendations. The results will be presented and discussed at this year’s An-nual Donors’ Conference. Observations Historic perspective The recommendations as included in the Joint Evaluation of the Road Sub-Sector (2000), serving as the basis for this 2005 follow-up study, were based on an evaluation period 1996-2000. The point of reference for the Joint Evaluation was an official pol-icy letter produced by the GoG in February 1996, highlighting the various policy measures to which the GoG committed itself. This official policy letter illustrates that many of the subjects that were relevant in 1996 are in fact still on today’s road sub-sector agenda. At the same time, the last 10 years have shown clear progress in some of the policy areas. The 2005 follow-up study presents a historic perspective of the developments in the Ghanaian road sub-sector by linking the 1996 policy letter and the recommendations of the 1996-2000 evaluation period to actions taken up to 2005 and the effects of these actions. Dynamic environment The road sub-sector is part of a dynamic and changing environment. It is part of a broader transport sector, geared towards integration between the various modes of transport and moreover, it is a service sector, providing input for and creating condi-tions for socio-economic development of the country. Such a dynamic environment will bring along changes and new developments, e.g. emphasis on poverty reduction, Multi Donor Budget Support (MDBS), the new (road) transport sector programme. Setting for change and development In order to respond to the needs of the country and the demands that are placed upon the road sub-sector, a number of conditions regarding the institutional setting of
EXECUTIVE SUMMARY
ii
the road sub-sector needs to be met. These conditions include an open dialogue in-side and outside the sector on the role and position of (road) transport; strong leader-ship; a clear division of tasks and responsibilities between the ministry and the agen-cies and teamwork within the ministry and its agencies and with the donors. Throughout the period of review, starting with the 1996-2000 period of the Joint Evaluation, the response to above-mentioned conditions has varied, resulting in dif-ferent pace of change and progress. Findings and recommendations The sector is at a crossroad….
• The (road) transport sector in Ghana is currently at a crossroad. New devel-opments, such as the poverty reduction focus, bring along the need to clearly demonstrate the contribution of the transport sector to the Ghanaian socio-economic development. As a result, the traditionally inward oriented sector is forced to extend its focus.
• Donors, each at their own pace, are considering MDBS as an alternative for bringing direct funding to the sector. This process further reinforces the need to clearly illustrate the contribution of the sector towards socio-economic de-velopment and poverty reduction.
• The sector seems to be aware of the need to respond to new challenges and has launched a range of studies, i.e. the institutional study, the transport policy study and the transport and poverty studies. Furthermore, MRT has estab-lished a MDBS working group. It is critical that the sector not only has the ca-pacity to absorb the findings of these studies and initiatives, but takes owner-ship of the policy development process, clearly defining the way forward. The studies are supporting the policy development process; they are not replacing it.
The implementation pace of the sector programme is rather slow….
• As for the pace of implementation of the RSDP programme, the overall im-pression is one of missed opportunity. Consequently, achieved effects fall short of the envisaged effects.
• The slow pace of implementation implicates that there is certainly a basis for improvement. In most cases the underlying problems and the need for action, as well as the type of action needed are clear. The implementation, however, is often lagging behind. Looking at this positively, one could say that Ghana will get there; it only takes a bit more time. Being more critical, one could argue that Ghana is losing valuable time and energy by not taking full ownership and actively managing the implementation process.
The need for a monitoring and evaluation system is high….
• If the road sub-sector through its RSDP and future (road) transport pro-grammes fail to clearly indicate its contribution to national development objec-tives, such as poverty alleviation, through a well-functioning monitoring and evaluation system, the road sub-sector may risk a major funding reduction be-
EXECUTIVE SUMMARY
iii
cause of the introduction of the MDBS system. Turning the argument around, in order to prepare itself for the future, the sector should make an effort to de-fine indicators, linking the sector performance to Millennium Development Goals.
• The performance indicators, as defined within RSDP, are not used systemati-cally to monitor progress of the programme. The mid-term RSDP review fo-cused on the development of the road condition mix and additional indicators, failing to provide a comprehensive coverage of the stated RSDP performance indicators. Ongoing studies, such as the transport and poverty studies, may provide additional information towards RSDP completion.
• Some of the promising initiatives regarding self-monitoring that were launched at the beginning of RSDP, e.g. programme and agency implementation teams, have not yet been fully integrated in the operations of MRT and its agencies. Although Annual Review Reports are produced, as well as quarterly financial management reports and periodic road condition surveys, a systematic self-monitoring system is not in place. Lack of self-monitoring capacity makes pol-icy development an ‘ad hoc’ affair.
• MRT is one the pilot ministries selected for the implementation of BPEMS. Once operational, BPEMS will help to meet budgeting requirements for the three main sources of funding of the road sub-sector.
… and so is the need for institutional capacity building and human resources development….
• The retrenchment programme, which was scheduled for the RSDP implemen-tation period did not materialise and seems to have lost its momentum. Staff reductions are based on natural retirement, resignation, sickness and death and are relatively limited in size. The inability to launch the retrenchment pro-gramme leaves the sub-sector and notably GHA with a staff composition unfit for the job and a salary burden that restricts the organisation in attracting the appropriate staff. At the same time it must be recognised that the implementa-tion of the retrenchment programme, would result in unemployment for some of the staff involved.
• The need for training remains high. Training provides an excellent basis for strengthening institutional capacity and enhances transfer of knowledge. The share of training funded by donors is high. There is a clear tendency to con-tinue with overseas training, based on an apparent demand (need for training, instrument to retain staff) and supply (donors continue to fund training pro-grammes, contributing to transfer of knowledge policies as stated in the do-nors’ policies). The focus on overseas training may divert the focus on setting up a strong in-country training programme.
EXECUTIVE SUMMARY
iv
There is a need to clearly define investment prioritises…. • Not standardising the approach towards prioritisation of road works and leav-
ing this process up to individual parties, such as road agencies or donors, re-sults in a bias towards certain projects and possible sub-optimal road pro-grammes from a national perspective.
• The use of HDM-4 as the common tool for feasibility studies has certainly contributed towards harmonisation. The use of HDM-4, e.g. through input data, is not fully harmonised.
• The maintenance programme is not fully carried out, while rehabilitation ac-tivities are taking place and being funded from the GRF, implicating that maintenance is not given full priority. In the period 2002-05, routine mainte-nance was fully carried out. Periodic maintenance is combined with minor re-habilitation and minor upgrading works, making a clean assessment of periodic maintenance performance difficult. Achievement percentages on maintenance are below target, especially for GHA and DUR.
• DFR has gradually expanded its network through transferring parts of the so-called ‘non maintainable’ network to its maintainable network. As a conse-quence the size of the total network to be maintained has increased.
The Road Fund has broadened its financial basis, but fuel levies have not reached anticipated targets yet….
• The main source of revenue of the Road Fund, the fuel levy, has gradually in-creased over a 10-year period, i.e. from 60 cedis per litre in 1996 to a level of 600 cedis per litre in 2005. The strong deprecation of the cedi against the US$ from the year 2000 on have reduced the fuel levy in US$ to levels far from the envisaged US Cents 9.5, with a level of US Cents 2.4 in 2002. Recent increases in fuel levies up to a level of 600 cedis per litre in 2005 have brought the level at US Cents 6.5 per litre, which is almost at the same level as in 1998. The pre-sent policy is to have fule levies at US Cents 9.5 per litre in 2008.
• Top priority of the GRF should be to generate adequate funds to meet road maintenance needs on a sustainable basis and to provide funds on a timely ba-sis.
Environmental and Safety assessment needs to be integrated in the sector’s work….
• In May 2003 a review of ESHS issues in the road sub-sector took place. One aspect raised is the fact that ‘ESHS issues have tended to be implemented (and funded) as a result of donor conditionality without generating buy-in from the relevant Ghanaian institutions. Conversely GoG roads projects tend not to systematically budget for ESHS costs’. A possibly related issue raised is the fact that MRT is not taking a leading role in terms of policy and guidance of ESHS issues.
• As for road safety performance, road fatalities have increased, however, fatality and mortality rates have declined since the introduction of RSDP.
EXECUTIVE SUMMARY
v
Progress can be recorded in expenditure management and control…. • With tightened control on overspending, especially on development projects
(co)funded though the consolidated budget, and with the new Procurement Act in place, the arrears problem has been practically brought to a halt. Some smaller arrears could be building up in maintenance and/or minor rehabilita-tion works. However, these are relatively small arrears compared to those no-ticed in the beginning of the century.
The axle load programme is moving, but slowly….
• Slow progress in implementing the axle load programme has led a group of donors to strongly appeal for a structured approach towards the preparation of a policy document and action plan on axle load control. Preparation for the development of such a policy document and action plan started in 2003 and was followed by setting up of an Axle Load Working Group.
• Despite the newly found impetus, the implementation of the original pro-gramme is far behind on schedule. The policy document and action plan are aimed at the development of 29 permanent weighbridge stations.
Donor co-ordination has facilitated a policy debate, however, donors continue to work according to own procedures….
• Donors and GoG representatives continue to co-ordinate their activities through monthly, quarterly and annual meetings, supported through the dedi-cated donor co-ordination unit at MRT. Although persons, representing the donors’ organisations come and go, the spirit of co-operation remains. RSDP has provided a platform in which each donor can play its respective part.
• It should be noted that individual donors still continue to pursue the appraisal and review of their individual programmes. Furthermore, despite the Rome and Paris Declarations on harmonisation and alignment, donors continue to work according to their own specific requirements, e.g. in procurement or fi-nancial auditing and control. The above results in a continued high administra-tive burden on MRT and its agencies.
The way forward….
• Indeed the road sector is at a crossroad. External pressures placed upon the sector, such as the need to contribute to poverty alleviation and the advance of MDBS, could affect the sector positively or negatively, depending on the way the sector responds to the challenges. Challenges are several; to a large extent related to a more external orientation of the transport sector, e.g. through the creation of a monitoring system, based on performance indicators that dem-onstrate the transport sector’s contribution to national development objec-tives. By responding to these challenges the transport sector is able to argue its case and, at least to some extent, is master of its own faith. Not responding to the challenges could result in isolation of the transport sector and the sector missing out on (traditional) direct project or sector funding.
EXECUTIVE SUMMARY
vi
CHAPTER 1-INTRODUCTION
1
1 INTRODUCTION
1.1 Background
In the period March-November 2000 the Joint Evaluation of the road sub-sector in Ghana was carried out, focusing on the performance of the road sub-sector in the pe-riod 1996-2000. The evaluation was well received and still is considered a good exam-ple of how ownership of the evaluation process can be shared between donors and the recipient country. The Joint Evaluation report contains a number of lessons learned which were later translated into 16 recommendations directed towards all ac-tors in the sub-sector. In 2002 a follow-up study was carried out aimed at performing a systematic follow-up on the recommendations of the Joint Evaluation and to identify the constraining fac-tors preventing recommendations from being followed. Results of this follow-up study were presented during the Annual Donors’ Conference in Kumasi, after which a Final Report was produced. It has been decided to carry out a second follow-up study on the Joint Evaluation in 2005 and to present the result at this year’s Annual Donors’ Conference. The Terms of Reference (ToR) with the 16 recommendations annexed, are included in Annex 1 and a copy of the letter of the Ministry of Roads and Transport (MRT), stating no ob-jection to the project, dated February 15th 2005, is included in Annex 2. 1.2 Objective of the 2005 follow-up study
The main objective of the study is to perform a systematic assessment of the effects of the recommendations of the Joint Evaluation of Ghana’s road sub-sector programme and to identify the constraining factors preventing recommendations from being followed. 1.3 Scope of the 2005 follow-up study
The 2005 follow-up study will include the following: • An assessment of the action taken on each of the recommendations in the
evaluation report indicating which steps have already been taken (an update of the 2002 follow-up study).
• A brief description of the main factors preventing the recommendations from being followed (an update of the 2002 follow-up study).
• An assessment of the effects of the implementation of the recommendations (an extension of the 2002 follow-up study).
CHAPTER 1-INTRODUCTION
2
The above-mentioned steps are presented in Figure 1.1. Figure 1.1 Scope of the follow-up study Effects Effects, defined as the intended and unintended change due directly or indirectly to an intervention1, are assessed from each of the 16 recommendations. This provides a basis for assessing the quality of the recommendations and in more general terms the quality of the Joint Evaluation. Obviously, the extent to which effects are achieved is strongly linked to the actions taken. Therefore, the effects achieved also indicate the performance of the road sub-sector. The Joint Evaluation presents recommendations, however, the envisaged effects of these recommendations are not included in the Joint Evaluation. Consequently, the Joint Evaluation does not provide a yardstick to measure the level of realisation of the effects. For that reason envisaged effects have been defined in this exercise. These envisaged effects are presented in the Chapters 3-13 for each of the recommenda-tions, together with a judgement on the level of achievement. 1.4 Procedure of the 2005 follow-up study
Steps taken in the 2005 follow-up study are presented in Table 1.1.
1 OECD, Glossary of Terms in Evaluation and Results Based Management
Joint evaluation 2000 (1996-2000)
Followed?
Effects: what is the effect of the implementation of the recom-mendations?
Follow-up 2002 (2000-2002) Effects of implementation 2005 (2003-2005)
Yes: what actions have been taken in 2003-2005? No: what factors are preventing the recommendations to be followed?
Followed?Recommendations
Yes: what actions have been taken in 2000-2002? No: what factors are preventing the recommendations to be followed?
Update Effects
CHAPTER 1-INTRODUCTION
3
Table 1.1 Steps of 2005 follow-up study Steps taken Description 1 Preparation: questionnaire
to be filled in by relevant stakeholders
The questionnaire is based on the recommendations from the Joint Evaluation and the results from the 2002 follow-up study. A tailor-made questionnaire was dis-tributed amongst relevant stakeholders, i.e. representa-tives from the Government of Ghana (GoG) and do-nors.
2 Field study: interviews with stakeholders
In-depth interviews with key representatives from the road sub-sector.
3 Analysis: analysis of results from questionnaires and field study
The results from the questionnaires and interviews have been analysed to assess the effects of the recommenda-tions of the Joint Evaluation of Ghana’s road sub-sector programme. This assessment has resulted in the Draft Final Report.
4 Consultation: discussing results at the Donors’ Conference
Results of the Draft Final Report are presented and dis-cussed at the Donors’ Conference in December 2005.
5 Finalisation: preparation of final report
Feedback from the Donors’ Conference will be incor-porated in the Final Report, which will be distributed to all stakeholders.
1.5 Outline of this report
This report is structured according to the 16 recommendations from the Joint Evalua-tion that are grouped under 11 headings (Chapters 3-13). Each of those chapters have a similar design, i.e. listing of the recommendation and the activities in the period 2000-02, followed by an update for the period 2003-05 and a description of the ef-fects of the implementation of the recommendation. The Chapters 3-13, forming the core of the report, is preceded by a Chapter 2, providing observations from the au-thor regarding the development of the road sub-sector. The report ends with Chapter 14, presenting conclusions.
CHAPTER 2-OBSERVATIONS
4
2 OBSERVATIONS
2.1 Background
This chapter presents some observations on the status of the transport sector, provid-ing a basis for the description of the update 2003-05 and effects of the implementa-tion of the recommendations, as presented in the next sections. Historic perspective The recommendations as included in the Joint Evaluation of the Road Sub-Sector (2000), serving as the basis for this 2005 follow-up study, were based on an evaluation period 1996-2000. The point of reference for the Joint Evaluation was an official pol-icy letter produced by the GoG in February 1996, highlighting the various policy measures to which the GoG committed itself (see Annex 6). This official policy letter illustrates that many of the subjects that were relevant in 1996 are in fact still on to-day’s road sub-sector agenda. At the same time the last 10 years have shown clear progress in some of the policy areas. This report presents a historic perspective of the developments in the Ghanaian road sub-sector by linking the 1996 policy letter and the recommendations of the 1996-2000 evaluation period to actions taken up to 2005 and the effects of these actions. Dynamic environment The road sub-sector is part of a dynamic and changing environment. It is part of a broader transport sector, geared towards integration between the various modes of transport and moreover, it is a service sector, providing input for and creating condi-tions for socio-economic development of the country. Such a dynamic environment will bring along changes and new developments, of which some are presented in Sec-tion 2.2. These new developments influence the relevance of the recommendations, as defined in the Joint Evaluation. Where appropriate, reference will be made to those new developments in the Chapters 3-13. Setting for change and development In order to respond to the needs of the country and the demands that are placed upon the road sub-sector a number of conditions regarding the institutional setting of the road sub-sector needs to be met. These conditions include an open dialogue in-side and outside the sector on the role and position of (road) transport; strong leader-ship; a clear division of tasks and responsibilities between the ministry and the agen-cies and teamwork within the ministry and its agencies and with the donors. Throughout the period of review, starting with the 1996-2000 period of the Joint Evaluation, the response to above-mentioned conditions has varied, resulting in dif-ferent pace of change.
CHAPTER 2-OBSERVATIONS
5
2.2 Current developments
This section highlights some developments that have a profound impact on the road sub-sector. These developments cannot directly be linked to any of the recommenda-tions, as defined in the Joint Evaluation. Introducing these developments may help the reader to appreciate some of the actions, preventing factors and effects as de-scribed in the following sections. Emphasis on poverty alleviation In the course of the late 90s reducing poverty has become a global leading policy principle, guiding comprehensive country-based strategies and directly influencing all sectors involved, including the transport sector. The development of Poverty Reduc-tion Strategy Papers, initiated by the IMF and the World Bank in 1999 was aimed at providing the crucial link between national public actions, donor support, and the de-velopment outcomes needed to meet the United Nations' Millennium Development Goals (MDGs), which are centred on halving poverty between 1990 and 2015. In 2000 GoG produced an Interim Poverty Reduction Strategy Paper (I-PRSP), which was followed in February 2003 by the Ghana Poverty Reduction Strategy (GPRS) - An agenda for Growth and Prosperity, covering the period 2003-05. The road sector programme that was launched in 2002, the RSDP, has been designed to reflect the GoG’s objective of poverty reduction and creation of wealth. The GPRS targets some key trunk roads in order to improve the delivery of resources to farms and produce to markets. Furthermore, road maintenance will be given high priority not only to lower transportation costs and reduce food prices, but also to generate employment. However, the GPRS notes that roads can also have negative impacts on poverty reduction: (i) road accidents and HIV/AIDS (which may spread more rapidly due to improved road networks) increase poverty; (ii) urbanisation and road devel-opment are correlated; and (iii) there is a tendency for local people to lose their lands, due to land inflation as an area becomes more attractive to investors2. The majority of the donors involved in the road sub-sector have incorporated poverty reduction in their country and sector strategies, making the contribution of the transport sector to poverty alleviation a joint ambition. Towards completion of RSDP… and the development of the new programme The RSDP is a 3-year national programme (2002-04) with an actual 5-year implemen-tation period (2002-06). RSDP presents an integrated approach to road maintenance, construction and management by MRT and its agencies. The preparation, descrip-tions and analysis relate to the programme as a whole. RSDP is supported by about 10 donors. In April 2005 a World Bank team visited Ghana for a mid-term review of
2 DFID, Institutional Review of Mainstreaming of Environment, Social, Health and Safety issues
in the Roads Sector in Ghana, January 2005.
CHAPTER 2-OBSERVATIONS
6
RSDP3. Given the fact that the implementation period ends next year a new pro-gramme needs to be defined soon. Multi-Donor Budget Support (MDBS) A number of donors have entered into an arrangement with the GoG for the imple-mentation of a MDBS programme. The objective of this programme is to support the implementation of the GPRS (see above). Under certain conditions, the MDBS part-ners4 will provide funds to the GoG central budget5. Eventually, resources provided by the MDBS partners in this manner will replace resources which they currently earmark for specific sectors, programmes or projects. Under this arrangement, MRT and its agencies would need to compete with other ministries for resources allocated by the Ministry of Finance and Economic Planning (MoFEP). From meetings with the donors in the transport sector, a picture is emerging in which DFID takes a lead-ing position in MDBS, expressing the intention to withdraw from the transport sector in 2006, placing all funds in MDBS. Other donors, such the EC, the World Bank and Danida, take a more gradual approach by placing some funds in MDBS, while con-tinuing with a programme approach in the transport sector. Cross-cutting issues A number of cross-cutting issues that are not included in the recommendations of the Joint Evaluation (other than road safety and environmental aspects) are clearly rele-vant in the road sub-sector in Ghana. HIV/AIDS are of particular relevance to the transport sector, with professional drivers (buses and trucks) as well as those involved in road construction being exposed to HIV/AIDS. The same goes for gender equal-ity, as a result of differences in access to and use of transport and mobility.
3 For this mid-term review an extensive programme was drawn up, which was attended by many
of the donors involved in the sector. 4 MDBS partners in 2003 were ADB, Canada, Denmark, EC, The Netherlands, Switzerland, UK
and the World Bank, while Germany, Japan, UNICEF and the USA had an observer status. 5 See Review of the Potential Impact of Multi-Donor Budget Support (MDBS) On the Road Sec-
tor, Terry Lawrence, September 2003.
CHAPTER 3-MONITORING AND EVALUATION
7
3 MONITORING AND EVALUATION
3.1 Recommendation 1 - Monitoring and evaluation of RSDP
Text of recommendation: The completion of the evaluation provides an excellent oppor-tunity to prepare for the monitoring and evaluation of the progress and performance of the new road programme, RSDP. To facilitate this process, RSDP objectives should be set as clear as possible, where possible with clear, measurable and achievable targets. By doing so a set of performance indicators can be developed allowing for monitoring and evaluation of the programme. The performance indicators can be used in baseline studies serving as refer-ence points for future performance. Actions taken 2000-02 Preventing factors 2000-02 Joint approach • The preparation for RSDP has been a joint process
in which GoG and the donors participated. The Ministry of Roads and Transport (MRT) and its agencies have taken ownership of RSDP and have in close co-operation with the donor community, espe-cially the World Bank, prepared the programme. All donor activities in the road sector are part of RSDP.
• RSDP clearly defines objectives. The extent to which these objectives are measurable strongly relates to the quality of the performance indicators (see below). The extent to which the objectives are achievable is questionable, as the scope of RSDP is quite ambi-tious.
Performance indicators • RSDP’s project development objective is ‘to achieve
sustainable improvements in the supply and per-formance of roads and road sector services in a re-gionally equitable manner’. Based on this objective and underlying outputs a set of performance indica-tors has been designed to monitor and evaluate RSDP. Key performance indicators are presented in Annex 3.
• Some agencies, notably the Department of Urban Roads (DUR), have developed their own perform-ance indicators based on the overall sector objec-tives.
• So far, performance indicators have only partially been used to structurally monitor performance. The road condition mix is monitored on an annual basis. For other performance indicators, at best studies are planned to gather data for monitoring purposes. No baseline studies have been done.
• Lack of knowledge and experi-
ence to structurally use the per-formance indicators for moni-toring RSDP.
CHAPTER 3-MONITORING AND EVALUATION
8
Update 2005-actions taken
• In April 2005 the mid-term review of RSDP took place. Bilateral meetings be-tween a World Bank delegation and GoG representatives and a series of joint meetings in which a broad representation of the donors participated were or-ganised over a two-week period. Especially in relation to the original pro-gramme period (2002-04) and even in relation with the extended implementa-tion period (2002-06), timing is rather late for the mid-term review, leaving limited time to take remedial action, if needed.
• Although progress is made in relation to the stated RSDP objectives (see An-nex 3)6, a general impression prevails that progress is relatively slow, especially in relation to the policy reform activities. For example, many of the RSDP programmed policy reform activities, such the institutional reform, transport policy and transport and poverty studies, were only recently launched.
• The RSDP defined performance indicators are not used systematically to monitor progress of the programme. The mid-term RSDP evaluation focused on the development of the road condition mix and some additional indicators, failing to provide a comprehensive coverage of the stated RSDP performance indicators. Ongoing studies, such as the transport and poverty studies, may provide additional information towards RSDP completion.
Update 2005-preventing factors
• The late commencement of programmed policy reform activities, such the in-stitutional reform, transport policy and transport and poverty studies have not stimulated the timely development of a monitoring and evaluation system, in-cluding a set of well defined performance indictors.
• The RSDP performance indicators proved to be complicated in their usage, providing a weak basis for monitoring and evaluation.
• The RSDP objective in terms of improvement of road condition mix is diffi-cult to use, as the length of the road network is not a constant factor (see Chapter 5 on clearing the backlog). Furthermore, the 70:20:10 target is unreal-istic in the given time period.
Envisaged effects
• Monitoring and evaluation of RSDP allows policy makers to steer and adjust the programme where needed and to provide relevant lessons learned that can feed into transport policy development in general and specifically into the de-velopment of the new, follow-up programme. Performance indicators, espe-cially when linked to socio-economic and policy related objectives, will help to create support for the current and follow-up programme.
6 See progress as presented in next sections, in relation to the recommendations made in the Joint
Evaluation.
CHAPTER 3-MONITORING AND EVALUATION
9
Actual effects • The joint approach in evaluating the RSEP (previous programme) and prepar-
ing the RSDP, i.e. through a joint programme in which both GoG and devel-opment partners participated, prevented duplication of actions and ensured transparency.
• The 16 recommendations from the Joint Evaluation converge to a very large extent with the RSDP policies and objectives as defined in March 2001 (see Annex 3), indicating a linkage between the Joint Evaluation results and the contents of RSDP.
• The road sub-sector has not been able to develop a sound monitoring and evaluation system. The performance indicators as defined in RSDP have not been used to structurally monitor RSDP performance. The road sub-sector has not been able to indicate the contribution of the sector to national devel-opment objectives.
• If the road sub-sector through its RSDP and future (road) transport pro-grammes (continue to) fail to clearly indicate its contribution to national de-velopment objectives, such as poverty alleviation, through a well-functioning monitoring and evaluation system, the road sub-sector may risk a major fund-ing reduction because of the introduction of the MDBS system, as presented in Section 2.2.
Conclusions The assessment of actions taken, preventing factors and effects, as presented above, are the basis of the performance ratings as presented in the table below. Item Performance rating Actions taken 2000-02 Medium Actions taken 2003-05 Low-Medium Effects Low-medium
CHAPTER 3-MONITORING AND EVALUATION
10
3.2 Recommendation 2 – Develop a self-monitoring system
Text of recommendation: As monitoring and evaluation are considered to become increas-ingly important in time, the GoG could, in co-ordination with the donors, consider initiating the development of a self-monitoring system. This would facilitate the policy-making proce-dure and would prepare the GoG for future evaluations. Actions taken 2000-02 Preventing factors 2000-02 • A wide range of activities related to monitoring and
evaluation are taking place at MRT and its agencies, e.g. annual review reports as input for the Donors’ Conferences, monthly, quarterly and annual progress reports, programme implementation team (PIT) meetings and agency implementation team (AIT) meetings and mid-term programme evaluation.
• At MRT the monitoring and evaluation unit has ex-panded its staff.
• MRT can obtain monitoring and evaluation input form the following sources: 1. Road condition surveys. This is considered the
least difficult part as these surveys are done on an annual basis.
2. A newly developed three-stage reporting system in which financial, physical and procurement in-formation, covering all agencies and all sources of finance, is about to be introduced at MRT. The system, which yet needs to show results, would allow MRT to closely monitor RSDP in terms of financial, physical and procurement performance.
3. Socio-economic studies. Studies need to be ‘tai-lor made’ to suit the monitoring and evaluation needs. These studies, e.g. baseline studies, have not taken place on a structural basis.
• No structural self-monitoring system is in place.
• Lack of knowledge and experi-ence on how to use monitoring and evaluation in the policy making process.
Update 2005-actions taken
• Some of the promising initiatives regarding self-monitoring that were launched at the beginning of RSDP, as outlined above, have not yet been fully inte-grated in the operations of MRT and its agencies. Although Annual Review Reports are produced, as well as quarterly financial management reports and periodic road condition surveys, a systematic self-monitoring system is not in place.
• MRT is one the pilot ministries selected for the implementation of the Budget-ing and Public Expenditure Management Systems (BPEMS). Once opera-
CHAPTER 3-MONITORING AND EVALUATION
11
tional, BPEMS will help to meet budgeting requirements for the three main sources of funding of the road sub-sector.
• The two transport and poverty studies that were recently launched will look at the impact of part of the RSDP programme on poverty reduction. However, the commencement period of the projects is close to the completion of RSDP, giving limited scope for a combination of baseline studies and impact assess-ment. First results, presented during the mid-term review of RSDP, focused on study approach and preliminary regression analysis, providing limited in-sight in the type of final results that can be expected.
Update 2005-preventing factors
• The monitoring and evaluation unit at MRT does not take full ownership of the RSDP monitoring process.
• The Programme Implementation Team (PIT) meetings and Agency Imple-mentation Team (AIT) meetings are not common practice.
Envisaged effects
• The effects are closely related to the effects from Recommendation 1, i.e. the ability to steer the programme where needed and generate lessons learned as input for policy development. Emphasis in this recommendation is on self-monitoring, which would place GoG in the driver seat of the monitoring process and create further ownership of the policy development process.
Actual effects
• As indicated above, self-monitoring will help GoG in its policy formulation process. The limited progress made in self-monitoring prevents the GoG to carry out a systematic monitoring and evaluation process with continuous feedback in policy formulation, making policy formulation to a large extent an ad-hoc affair.
• An inappropriately functioning self-monitoring system prevents a sound de-bate on contribution of the road sub-sector to national development objec-tives, e.g. poverty alleviation. Given the nature of MDBS this may result in the road sub-sector losing support.
Conclusions The assessment of actions taken, preventing factors and effects, as presented above, are the basis of the performance ratings as presented in the table below. Item Performance rating Actions taken 2000-02 Low-Medium Actions taken 2003-05 Low-Medium Effects Low-medium
CHAPTER 4-INSTITUTIONAL CAPACITY AND HUMAN RESOURCES DEVELOPMENT
12
4 INSTITUTIONAL CAPACITY AND HUMAN RESOURCES DEVELOPMENT
4.1 Recommendation 3 – Pursue reorganisation of the road sub-sector
Text of recommendation: The GoG should proceed with the reorganisation of the road sub-sector institutions. The agencies should be further brought down in size and focus on core activities. A retrenchment programme for staff previously involved in force account needs to be put in place to allow organisations to downsize. Although it is realised that raising salaries is not directly within the scope of MRT, but is dependent on governmental guide-lines, efforts should be made to bring salaries more in line with salaries paid in the private sector, in order to avoid outflow of qualified staff. Actions taken 2000-02 Preventing factors 2000-02 Staff reduction • GHA staff was reduced to 3,033 in 2002 (staff level
in 1999 was 3,589). However, there is still a vast amount of excess staff (required staff is estimated at 1,744).
• The envisaged retrenchment programme has not been realised. However, at the 2002 Donors Confer-ence GHA presented a proposal for a new re-trenchment programme. In this programme the ex-cess staff, corrected for retirements in the period 2002-05, is retrenched according to three scenarios.
• In absence of an agreement on a retrenchment pro-gramme, focus is on how to use excess staff in opti-mal way, e.g. through using staff for manning of weighbridges.
• Lack of funding available for
financing of the retrenchment programme.
• The current GoG efforts to stimulate economic growth and employment do not coincide with deploying civil servants through a retrenchment pro-gramme.
Salary gap • The salary gap between the private and public sector
is widening.
• The public sector salary struc-
ture does not provide room to increase salaries at MRT and the agencies.
CHAPTER 4-INSTITUTIONAL CAPACITY AND HUMAN RESOURCES DEVELOPMENT
13
Update 2005-actions taken • The retrenchment programme, which was scheduled for the RSDP implemen-
tation period did not materialise in the 2003-05 period either and seems to have lost its momentum. Staff reductions are based on natural retirement, res-ignation, sickness and death and are relatively limited in size, as indicated in Table 4.1.
Table 4.1 Staff numbers per agency GHA DFR DUR Early 90s - Some 1,500 - 1996 4,085 - 550 1999/2000 3,589 Some 660 462 2005 N/A* Some 640 Appr. 500 Remark: Exact number of GHA staff not known from questionnaire, however, the question-naire indicated that no retrenchment programme was in place.
• The salary gap between public and private sector is not narrowing. • The idea of establishing one road authority, incorporating the activities of
DFR and DUR into GHA, is still debated. Although stakeholders involved see the merit of being part of a more autonomous road authority, a prevailing stance seems to be that the initial reasons for having separate organisations for DFR and DUR are still valid. With ongoing decentralisation, DFR and DUR would increasingly focus on the centralised functions of DFR and DUR, e.g. providing standards, monitoring and evaluation and training and technical as-sistance. The relatively limited amount of staff involved in this process would make the establishment of one road authority in time a natural process.
Update 2005-preventing factors
• The main reason for the lack of action is that the retrenchment programme, given the state of the economy, would result in unemployment for (some of) the staff involved.
Envisaged effects
• Through the restructuring of the agencies it was envisaged to increase the technical capacity of the agencies which would allow the agencies to better re-spond to the challenges the agencies are facing. The retrenchment programme would create financial means that could be used more effectively. The envis-aged salary adjustments would help retain and hire qualified staff.
Actual effects
• The inability to launch the retrenchment programme leaves the sub-sector and notably GHA with a staff composition unfit for the job and a salary burden that restricts the organisation in attracting the appropriate staff. As the re-
CHAPTER 4-INSTITUTIONAL CAPACITY AND HUMAN RESOURCES DEVELOPMENT
14
trenchment programme has not materialised, no actual effects can be indi-cated.
• As for the widening salary gap, one should be aware that the public sector provides additional benefits, such as housing, transportation and (foreign) education, which may compensate for the salary gap. It is nevertheless ex-pected that the salary gap between public and private sector will continue to pull talented civil servants to the private sector.
Conclusions The assessment of actions taken, preventing factors and effects, as presented above, are the basis of the performance ratings as presented in the table below. Item Performance rating Actions taken 2000-02 Low-Medium Actions taken 2003-05 Low-Medium Effects Low-medium
CHAPTER 4-INSTITUTIONAL CAPACITY AND HUMAN RESOURCES DEVELOPMENT
15
4.2 Recommendation 4 – Develop a balanced training programme
Text of recommendation: The need for training remains high. Domestic training pro-grammes should be improved and given priority over overseas training. Actions taken 2000-02 Preventing factors 2000-02 • An extensive study on organisational development
and in-country training for staff in the road sub-sector (ODICT-P7) has recently been completed. As part of this study, an In-Country Co-ordinated Train-ing Programme for the period 2002-04 was produced based on training needs assessment. Furthermore, training and workshop sessions were provided to a total of 766 delegates from MRT and its agencies in various fields, such as change management, bridge inspection and quality awareness, etc. The vast ma-jority of training and workshops took place in 2001-2002.
• Large share of local training (in-house training, semi-nars, workshops, etc) funded by GoG, all overseas training funded by donors.
• Strong in-house training programmes are developed, notably at GHA and DUR.
• MRT is collaborating with KNUST to develop the capacity to undertake post-graduate training in trans-portation and highway engineering.
• MRT is training core people from MRT and the agencies in the use of HDM-4 at the University of Birmingham.
• Overseas training is still ‘common practice’ and so is the fact that overseas training is part of the incentive scheme to retain qualified staff. Some overseas train-ing courses are mentioned in the description per do-nor below.
• Danida has provided funds for technical staff of road agencies to participate in Danida Fellowship courses on construction-, pavement-, or bridge management courses in Denmark. Furthermore, a tailor made training course on road safety for 13 participants from different institutions was organised in Den-mark (January-March 2001). In addition, Danida is co-financing training courses at the Kofuridua Train-ing Centre and has funded participation in regional seminars for Ghanaian partners.
• Lack of overall co-ordination of training programmes and, related to this, a systematic training needs assessment link-ing existing knowledge and skills of MRT and the agencies to required knowledge and skills in a changing environ-ment.
• Overseas training is still con-sidered an effective instrument to retain qualified staff, limiting the extent to which overseas training can be replaced by (less expensive) in-country training.
7 Organisational Development and In-Country Training Programme
CHAPTER 4-INSTITUTIONAL CAPACITY AND HUMAN RESOURCES DEVELOPMENT
16
Actions taken 2000-02 Preventing factors 2000-02 • GTZ provides training to Small Medium Enterprises
contractors in road maintenance. • JICA has designed a special ‘country-focused’ train-
ing programme for regional staff of GHA. The ob-jective is to build capacities at regional and district levels. In total 20 engineers have been trained in Ja-pan (2001-2002). It is planned to train 10 more engi-neers.
Update 2005-actions taken
• MRT is making an effort to centrally manage the training activities and MRT and its agencies’ staff, especially middle management, have benefited from training programmes. The funding of the training programmes remains a do-nors’ affair, as indicated in Table 4.2.
Table 4.2 Funding of training programme GoG (%) Donors (%) Funding of training programme 10-20 80-90 Remarks: Both DUR and GHA indicate a 10-90% (GoG-donors) split, whereas DFR indi-cate a rather different pattern: 60-40 (GoG-donors).
• Overseas training remains an attractive instrument to retain staff. Sufficient opportunities remain available as donors continue to fund overseas training as part of their programmes.
• In-country training capacity develops slowly. The collaboration with KNUST to develop the capacity to undertake post-graduate training in transportation and highway engineering has not provided the desired in-country capacity yet.
Update 2005-preventing factors
• As a result of the slow developments in the in-country training capacity, e.g. through the collaboration with KNUST, the number of people trained in-country is less than could be expected.
• The fact that donors continue to provide overseas training does not stimulate the development of in-country training capacity.
Envisaged effects
• Training programmes contribute to capacity development in the road sector, responding to the needs of the transport sector in Ghana. Giving priority to domestic training programmes should increase the scope and size, and conse-quently the impact, of the training programmes, as domestic programmes are far less expensive than the overseas training.
CHAPTER 4-INSTITUTIONAL CAPACITY AND HUMAN RESOURCES DEVELOPMENT
17
Actual effects
• There is a clear tendency to continue with overseas training, based on a clear demand (need for training, instrument to retain staff) and supply (donors con-tinue to fund training programmes, contributing to transfer of knowledge policies as stated in the donors’ policies). The availability of a constant and considerable supply of overseas training may divert the attention away from the need of setting up a strong in-country training programme.
• The recommendation to reduce overseas training did not take into considera-tion one important factor. The overseas training programmes help to retain staff. GHA, DFR and DUR indicate high retention rates of overseas trained staff. The latter is also based on bonds that need to be signed by trained staff, restraining them for a certain period of time, e.g. three years, for education abroad.
• The share of training funded by donors is such, that the sustainability of the training programmes could be questioned.
Conclusions The assessment of actions taken, preventing factors and effects, as presented above, are the basis of the performance ratings as presented in the table below. Item Performance rating Actions taken 2000-02 Medium Actions taken 2003-05 Medium Effects Medium
CHAPTER 4-INSTITUTIONAL CAPACITY AND HUMAN RESOURCES DEVELOPMENT
18
4.3 Recommendation 5 – Follow cautious approach towards decentralisation
Text of recommendation: The cautious approach followed in the decentralisation process within the road sub-sector is considered good practice. A sector-wide debate on the optimal level of decentralisation is recommended, keeping in mind potential diseconomies of scale. Actions taken 2000-02 Preventing factors 2000-02 • DUR is expanding its scope from covering six to
eight municipalities (new are Koforidua and Cape Coast). A further increase of the number of munici-palities is under debate.
• For feeder roads a pilot study was launched focusing on six districts (South Tongu, Keta, Ketu and Akatsi Districts in Volta Region, Dangbe East and Dangbe West in Greater Accra Region).
• As an intermediate step towards full decentralisation the area concept is introduced. In this concept 40 ar-eas are defined each covering two to three districts. Division of tasks and responsibilities between area offices and the district works departments (DWDs) are defined.
• Local communities and interest groups have partici-pated in planning of rural roads interventions through the DFID prioritisation method for feeder roads (see Section 2.5, Recommendation 8).
• The extent to which above mentioned approach is cautious remains questionable, especially given the lack of a clear final result of the decentralisation process and a time path towards this. The area con-cept can be regarded as an intermediate, cautious step towards full decentralisation.
• A debate on the optimal level of decentralisation is missing.
• Lack of qualified staff, re-sources and logistics (office space, vehicles, etc) are preventing factors to develop decentral structures.
• The area concept runs into ownership problems and dis-putes, as resources are concen-trated in one district and the other (two) district(s) feel ne-glected.
• The participatory approach as part of the prioritisation method for feeder roads is ex-pensive and time-consuming.
• Since DWDs are responsible for the management of water, roads, housing (public and ru-ral) a clear division of funding (different sources) and alloca-tion (type of works, housing, equipment, etc.) may prove to be difficult.
• The absence of a debate on the optimal level of decentralisation prevents a more targeted ap-proach towards the decentrali-sation process.
Update 2005-actions taken
• The Local Government Service Act 2003 (Act 656) aims at establishing a local government service (LGS) that seeks to bring 17 decentralised departments of line ministries (including urban and feeder roads) under the control of local government authorities. With the Local Government Service Act 2003 in place, indications from the Ministry of Local Government and Rural Devel-opment (MLGRD) are that the LGS could be operational within 1-3 years. After that time, most staff at regional and district levels will be transferred
CHAPTER 4-INSTITUTIONAL CAPACITY AND HUMAN RESOURCES DEVELOPMENT
19
from the line ministries to the LGS. The Council of the Service is in place and an acting Head of the Service has been appointed. Current actions are focused on developing operating systems such as the scheme and conditions of ser-vice8.
• A National Decentralisation Action Plan developed by MLGRD and endorsed by Cabinet in 2003 seeks to address a number of decentralisation implementa-tion issues, including a district development funding modality that aims at making additional resources available to local governments9.
• The decentralisation policy has led DFR and DUR to pursue decentralisation to the District Assemblies and Municipalities respectively. A gradual approach is pursued, with DUR and DFR step by step expanding their decentral scope, as outlined below. A discussion on the optimal level of decentralisation is ab-sent.
• DUR continues to expand its scope from eight municipalities in 2002 to 15 municipalities in 2005. The focus of the collaboration is on maintenance of urban roads. Routine maintenance is now the full responsibility of the munici-palities, while DUR checks periodic maintenance.
• DFR has expanded the establishment of DWDs, by adding three Northern districts (West Mamprusi, East Mamprusi and Gushiegu)10. The establishment of DWDs is in line with GoG’s policy of creating the LGS. The DWDs are staffed and equipped.
• Currently, DFR is represented by area engineers in 70 areas, as against 40 areas in 2002.
• According to the Road Fund Act, direct disbursement to DAs is permitted but, with the exception of some funds11, this facility has not been used.
Update 2005-preventing factors
• The decentralization process and the pace of its implementation are not con-trolled by the MRT. MRT is following nationally defined decentralisation pol-icy. Consequently, a discussion on the optimal level of decentralisation and the pace of implementation or a gradual approach is not so much on MRT’s agenda, but more a national policy item.
8 Source; Draft Pre Mission Report fro the Annual Review of the TSPS II Feeder Roads Compo-
nent, Danida, 26th July 2005. 9 Source: Draft Pre Mission Report fro the Annual Review of the TSPS II Feeder Roads Compo-
nent, Danida, 26th July 2005. 10 East Mamprusi and Gushiegu Karaga have been split and instead of three districts, there are now
five districts in the Northern Region. Danida is considering to expand its scope as a result of this to fie districts in the North.
11 Some Danida funded spot improvement works are disbursed from the Road Fund directly to a number of pilot districts. Experience built up in this process could be used to streamline direct Road Fund disbursements to the districts.
CHAPTER 4-INSTITUTIONAL CAPACITY AND HUMAN RESOURCES DEVELOPMENT
20
• There is no institutional home for the merger departments, the DWDs at the national level, i.e. a technical unit within MLGRD. As a result, the monitoring of progress made by DWDs at the national level is weak.12
• The Road Fund is cautious about sending Road Fund maintenance monies di-rect to districts. The main reason is that the procedures for the management of road maintenance by DAs have not yet been developed and the whole system is untested.
Envisaged effects
• To find an optimal level of decentralisation, i.e. to balance on the one hand ef-fects in improved local contribution to transport policy making and making transport policy more responsive to local needs and on the other hand keeping a co-ordinated approach and not creating diseconomies of scale.
Actual effects
• Districts and Municipalities are now involved in the planning, selection, priori-tisation and preparation of maintenance works, illustrating the shifted respon-sibility through decentralisation.
• In the decentralised prioritisation process of road works in the districts, a bias is noticed towards rehabilitation works over maintenance works.
• Districts are positive about the creation of DWDs and expect that it will con-tribute to a more efficient management of public infrastructure. At the same time, the bottom-up consultation and prioritisation process of road works is owned by the DAs, contributing to a sense of responsibility for closer supervi-sion of works13.
• As a result of the relatively cautious approach in decentralisation, the bodies involved, i.e. the MLGRD, DAs, Municipalities, DUR and DFR have the ca-pacity to absorb the process.
Conclusions The assessment of actions taken, preventing factors and effects, as presented above, are the basis of the performance ratings as presented in the table below. Item Performance rating Actions taken 2000-02 Medium-high Actions taken 2003-05 Medium-high Effects Medium-high 12 Source: Draft Pre Mission Report fro the Annual Review of the TSPS II Feeder Roads Compo-
nent, Danida, 26th July 2005. 13 Based on Draft Pre Mission Report fro the Annual Review of the TSPS II Feeder Roads Com-
ponent, Danida, 26th July 2005.
CHAPTER 5-CLEARING THE BACKLOG
21
5 CLEARING THE BACKLOG
5.1 Recommendation 6 – Develop realistic ambition level of RSDP-
place priority on maintenance
Text of recommendation: The Road Sector Expenditure Programme 1996-2000 (RSEP) is considered quite ambitious and has only been partly realised. In developing RSDP it is rec-ommended taking into account (1) the developing needs of the road sub-sector, (2) the fund-ing capacity of GoG and donors and (3) the absorption capacity of MRT, the agencies and other organisations involved in the sector. The policy of giving priority to maintenance should be respected. Actions taken 2000-02 Preventing factors 2000-02 • The scope of RSDP is again ambitious: US$ 1.2 bil-
lion for a three-year programme. Given the current size of the financing gap (out of the programmed levels of US$ 443 million, US$ 270 million is com-mitted, leaving a financing gap of US$ 166 million in 2002) it can be stated that the financing capacity is insufficiently taken into consideration.
• Furthermore, disbursement and actual performance are expected to fall short, resulting in the inability to realize the physical objectives of having a road condi-tion mix of 70:20:10 in 2005.
• Only 34 percent of the funds needed for mainte-nance were raised and provided through the Road Fund in 2002.
• Fuel levies are not raised ac-cording to programmed levels, creating a funding gap for maintenance.
• The fact that some arrears are still outstanding and the related debt service obligation of the GoG prevent the financing ability of RSDP through the consolidated budget.
• The donor community is un-willing to finance the ‘gap’; the fact that GoG has not fully re-sponded to the demands of the donor community (raise fuel levies according to pro-grammed levels, clear arrears) has been a preventing factor of (increased) donor involvement in the sector.
• Priority on maintenance is ‘in danger’ with renewed emphasis on development projects and fuel levies increases not follow-ing programmed levels.
CHAPTER 5-CLEARING THE BACKLOG
22
Update 2005-actions taken • The RSDP implementation period was extended from a 3-year period to a 5-
year period, with year of completion now set at 2005. Funding gaps have re-mained, resulting in the inability to carry out programmed activities.
• The maintenance programme is not fully carried out, while rehabilitation ac-tivities are taking place and being funded from the GRF14, implicating that maintenance is not given full priority. Table 5.1 presents the planned and achieved maintenance performance for 2002-04, indicating that routine main-tenance was almost fully carried out. Periodic maintenance is combined with minor rehabilitation and minor upgrading works, making a clean assessment of periodic maintenance performance rather difficult. Nevertheless, achievement percentages are seriously below target, especially for GHA and DUR.
Table 5.1 Planned and achieved maintenance (2002-04) Routine maintenance 2002-04 Planned (km) Achieved (km) % GHA 11,600 10,430 90% DFR 13,900 15,148 109% DUR 1,750 2,350 134% Periodic maintenance, minor rehabilitation and minor upgrading 2002-04 Planned (km) Achieved (km) % GHA 4,060 1,576 39% DFR 12,995 11,573 89% DUR 1,612 478 30%
Source: Mid-term review RSDP
• DFR has gradually expanded its network through transferring parts of the so-called ‘not maintainable’ network to its maintainable network. As a conse-quence the size of the total network to be maintained has increased sharply.
Update 2005-preventing factors
• The GoG continue to set (over) ambitious targets, i.e. the 70:20:10 condition mix target, and corresponding programmes, not taking fully into consideration the funding capacity of the GoG and donors and the absorption capacity of the sector, resulting in constant funding gaps.
• The preventing factors with respect to giving priority to maintenance are still in line with those as identified for the period 2000-02. The expansion of the feeder road network adds to the task of funding road maintenance.
Envisaged effects
• To design a programme that optimally responds to the needs of the sector and structurally improves the road network conditions and is in line with absorp-
14 See also Recommendation 10.
CHAPTER 5-CLEARING THE BACKLOG
23
tion capacity of the sector and funds available. This implies achievable targets and a programme able to deliver the targets, based on best possible allocation of funds.
• Prioritising maintenance over development works results in preservation of existing assets and higher returns on investment.
Actual effects
• The condition mix target (70:20:10) was shifted forward to 2008. The RSDP condition mix target is set at 59:27:14 for the end of the programme (2006).
• Lack of maintenance results in accelerated deterioration of the road network and the need to rehabilitate the road network, which comes at considerably higher costs (compared to maintenance costs).
• The expanded network leads to higher maintenance needs, resulting in the need for a higher maintenance budget. If the current maintenance budget is insufficient to cover the maintenance needs, the policy to expand the length of the maintainable road network is questionable.
Conclusions The assessment of actions taken, preventing factors and effects, as presented above, are the basis of the performance ratings as presented in the table below. Item Performance rating Actions taken 2000-02 Low-medium Actions taken 2003-05 Low-medium Effects Low-medium
CHAPTER 6-INVESTMENT PRIORITIES
24
6 INVESTMENT PRIORITIES
6.1 Recommendation 7 – Develop a common approach for feasibility studies
Text of recommendation: As investments in the road sub-sector are based on different cri-teria, MRT could play a facilitating role in developing a common approach, e.g. through de-fining a framework of standards, including (1) unit cost of construction/rehabilitation, (2) vehicle operating costs, (3) value of time, (4) opportunity cost of capital and (5) environ-mental, safety and additional socio-economic impact.
Actions taken 2000-02 Preventing factors 2000-02 • A common approach for feasibility analysis has not
been developed. HDM-4 is becoming the new stan-dard, at least for trunk and urban roads. However, input data used in recent feasibility studies show a discrepancy, i.e. in opportunity cost of capital used (10%, 12%, 15%) and the benefits included in calcu-lation (vehicle operating costs, travel time savings, accident reduction savings, additional socio-economic benefits).
• Efforts are made towards a calibration of HDM-4 to adapt to local circumstances. Furthermore, engineer-ing staff is trained in using HDM-4 (see section on training).
• Feeder roads, given the low-volume traffic character, are assessed differently based on a participatory ap-proach, as described in Recommendation 8.
• Donors have their own ap-proach towards assessing the feasibility of projects, which is reflected by benefits included in analysis.
Update 2005-actions taken
• A core engineering team of staff members is trained to improve skills in using the HDM-4 for budgeting, programming and strategic plans and harmonize such programmes. HDM-4 is programmed to be used for preparation of the 2006-2010 Strategic Plan of the road sub-sector.
• The HDM-4 calibration could help MRT and the agencies to standardise the approach for feasibility studies.
• Technical assistance to GHA15 has helped streamlining and standardisation in GHA’s maintenance procedures. This assistance includes the training of GHA staff to systematically collect and publish data on road conditions, resulting in a sound database for planning, programming and budgeting. Furthermore, the maintenance management system is linked to Arc View GIS software for the preparation of thematic maps.
15 This Technical Assistance is provided by GTZ.
CHAPTER 6-INVESTMENT PRIORITIES
25
Update 2005-preventing factors
• All agencies continue to have their own respective tools for planning, pro-gramming and budgeting, based on specific conditions that the agencies are faced with, e.g. low-volume traffic roads at DFR.
• Donors continue to use their own approach towards feasibility studies in the road sub-sector.
Envisaged effects
• To create a common and generally accepted approach towards project ap-praisal, through which all projects are weighed against the same, accepted cri-teria. By doing so, a bias towards certain projects is prevented and a transpar-ent prioritisation system is created.
Actual effects
• Not standardising the approach towards prioritisation of road works and leav-ing this process up to individual parties, such as road agencies or donors, re-sults in a bias towards certain projects and sub-optimal road programmes from a national perspective.
• The use of HDM-4 as the common tool for feasibility studies has contributed towards the harmonisation. However, use of HDM-4, e.g. through input data, is not yet harmonised.
Conclusions The assessment of actions taken, preventing factors and effects, as presented above, are the basis of the performance ratings as presented in the table below. Item Performance rating Actions taken 2000-02 Low-medium Actions taken 2003-05 Medium Effects Medium
CHAPTER 6-INVESTMENT PRIORITIES
26
6.2 Recommendation 8 – Prioritise road projects based on sound principles
Text of recommendation: Balancing equitable regional distribution, including investments in low-volume traffic roads and investments based on ‘sound economic principles’ needs to be further focused on. Both issues could be combined through multi-criteria analysis. Actions taken 2000-02 Preventing factors 2000-02 • No transparent prioritisation process is in place. Pri-
oritisation is a combination of economic justification and ‘political’ processes. The latter applies both to al-location to the agencies and to allocation within the agencies. Road Fund allocation to the agencies in 2001-02 was approximately GHA: 50%, DFR: 25%, DUR: 25%, whereas programmed Road Fund alloca-tions for 2003 are roughly GHA: 33%, DFR: 30%, DUR: 33%. The rationale for the allocation of funds to the agencies remains unclear.
• At GHA pre-feasibility studies for trunk road net-work were carried out. Capital and maintenance ex-penditures are ranked based on economic principles (IRR) using HDM-4. Low trafficked – poor condi-tion roads that cannot be considered within the pri-ority ranking system of high trafficked roads are listed as ‘special consideration cases’, based on pro-motion of social and economic equality in rural areas (mainly through accessibility and opportunity). In order to qualify for the ‘special consideration case’ roads should be essential to the network in terms of functionality. The combination of the economic cri-teria (IRR) and the socio-economic criteria (accessi-bility and opportunity) results in prioritised activities.
• A prioritisation methodology for feeder roads, the Road Prioritisation Model (RPM), has been devel-oped with the assistance of DFID, taking into ac-count the priorities of local people. RPM is based on a multi-criteria approach, taking into consideration traffic, economic factors (types and sizes of markets) and social factors (access to health, education, postal and telecommunication services). RPM is applied on a pilot basis and DFR is institutionalising the model.
• For urban roads a combination of economic criteria and criteria considering the income levels of targeted beneficiaries is used to prioritise activities. DUR has expressed interest in RPM although the model needs to be made applicable to urban roads.
• Separate agencies for trunk, feeder and urban roads may prevent a consorted action of prioritisation of the total road network.
• Preferences of donors to invest in certain types of roads, i.e. feeder roads, and certain re-gions may provide difficulties in ‘fair’ regional distribution.
• The RPM model is rather time-consuming and expensive.
CHAPTER 6-INVESTMENT PRIORITIES
27
Update 2005-actions taken
• GHA and DUR continue to combine economic justification and socio-economic criteria, i.e. accessibility and opportunity, for their prioritisation process.
• Until decentralisation develops further impetus, DFR will espouse the virtues of the RPM and its district participation process by consultation. As such, it remains outside the district planning process and is only sustained by DFR and donor resources. In this way it has been applied, in whole or in part, by DFR to other feeder road development projects funded by other donors (IDA, Danida and EU) and is currently being used by KfW consultants to prioritise feeder roads in thirteen districts of Ashanti, Brong Ahafo and Volta Regions16.
Update 2005-preventing factors
• The preventing factors that were brought up in the 2000-02 period, i.e. the separate road agencies, each having their specific focus, and the donors’ pref-erences in certain type of works, remain valid for the 2003-05 period.
Envisaged effects
• To arrive at a transparent prioritisation process in which criteria, e.g. economic return, regional distribution, poverty reduction, etc are clearly defined. This, especially if based on a stakeholders’ consultation process, would contribute to the creation of support for the road sector programme.
Actual effects
• Through combining economic justification and socio-economic criteria in the GHA and DUR prioritisation process, a more balanced process is to be ex-pected. It should be noted that the actual effects highly depend on the chosen set socio-economic criteria and the weight of those criteria.
• The RPM, with its participatory approach results in a road prioritisation proc-ess responding to local demands.
Conclusions The assessment of actions taken, preventing factors and effects, as presented above, are the basis of the performance ratings as presented in the table below. Item Performance rating Actions taken 2000-02 Medium Actions taken 2003-05 Medium Effects Medium
16 See Road Prioritisation Methodology, Mr Tony Aire.
CHAPTER 6-INVESTMENT PRIORITIES
28
6.3 Recommendation 9 – Harmonise road standards
Text of recommendation: Road standards should be harmonised. Given road conditions and traffic, the combination of these standards with typical unit prices for maintenance, pro-vides a method for determining annual budgets in a systematic way. Actions taken 2000-02 Preventing factors 2000-02 • Road design standards have not been harmonised
yet. Actions towards harmonisation of design stan-dards are (i) a Road Design Guide developed by GHA, (ii) studies for harmonisation in progress, i.e. ‘Technical Assistance towards an Efficient, Effective and Sustainable Management of Maintenance in the Road Sub-Sector’. For DFR the focus is not so much on design standards, but given the scope of work, more on standards for rehabilitation.
• Design standards are subject to last-minute changes, e.g. the design for the construction of one-lane bridges, which needed to be ‘adjusted’ to two-lane bridges.
• Harmonisation of maintenance standards was dis-cussed early 2002 amongst MRT and the agencies. As a result GHA has adjusted its routine mainte-nance from US$ 14 million to US$ 8 million.
• Separate agencies for trunk, feeder and urban roads may prevent a consorted action to-wards developing unified stan-dards.
Update 2005-actions taken
• The status on road standards remains in broad lines the same compared to the previously reviewed period, as outlined in the table above.
Update 2005-preventing factors
• The lack of a commonly used set of definitions, clearly defining road works and related standards. In the absence of a commonly used road work defini-tions confusion is created by mixing for example preservation, periodic main-tenance and minor rehabilitation works.
Envisaged effects
• Clearly defined road standards, in combination with a distinct set of unit rates (materials, labour, etc), facilitates the budgeting process in the road sub-sector. Furthermore, it facilitates the clarity of communication and assists the agencies in their client role in relation to contractors, e.g. in specification of works.
Actual effects
• Notwithstanding the development of road design guidelines, e.g. through the Road Design Guide at GHA, there is not yet a set of common road standards,
CHAPTER 6-INVESTMENT PRIORITIES
29
based on a typical road categorisation. This has prevented the envisaged ef-fects, as indicated above, to materialise.
Conclusions The assessment of actions taken, preventing factors and effects, as presented above, are the basis of the performance ratings as presented in the table below. Item Performance rating Actions taken 2000-02 Low-medium Actions taken 2003-05 Low-medium Effects Low-medium
CHAPTER 7-COST RECOVERY
30
7 COST RECOVERY
7.1 Recommendation 10 - Further improve road fund performance
Text of recommendation: The GRF should continue to provide a financial basis for main-tenance and rehabilitation works. Efforts should be made to further safeguard timely releases of funds. If future releases remain problematic a transfer of the funds to an account at a commercial bank should be considered. Furthermore, revenues should be increased accord-ing to schedule with emphasis on raising fuel levies. With the increasing financial basis of the GRF a debate should be initiated on future allocation of GRF funds. The (future) benefits of the GRF should be communicated to the public to create support for the fund and for the principle of road user charging. Actions taken 2000-02 Preventing factors 2000-02 • Since 2000 the releases to the GRF have been on
time; the majority of the fund is still with the Bank of Ghana.
• Fuel levies were raised in 2001 by 80 Cedis: from 150 to 230 Cedis. No increase in fuel levies in 2002 has taken place. Delay in increase in fuel levies and de-preciation of the Cedi against the US$ has brought fuel levy level to some US Cents 2.717, which is far from the US Cents 9.518 to which the levy should gradually move from 1996 to 2002.
• During the Donors Conference an increase of 2 US Cents in 2003 was ‘demanded’ by MRT; GRF calcu-lated with a 1 US cent increase. The actual increase in 2003 remains unclear at this stage.
• The allocation of funds is subject of discussion at the Road Fund Board meetings, in which private and public sector parties are represented. Rationale for al-location is unclear, as stated in Recommendation 8.
• In order to create support for the GRF, a series of ‘forums’ in the regions is organised to which all rele-vant stakeholders are invited in order to discuss the benefits of the GRF. Response to this initiative has been positive.
• Government’s reluctance to raise fuel levies according to programmed levels.
Update 2005-actions taken
• Fuel levies were raised in 2003 to 400 Cedis per litre, which was an increase of 70% in Cedi terms. In 2004 the GoG did not implement the planned fuel levy
17 Based on 230 Cedi at an exchange rate of 8,400 Cedi per US$ (November 2002). 18 The level of US Cents 9.5 per litre is an internationally acknowledged benchmark figure for the
fuel level that corresponds with full coverage of maintenance expenditures.
CHAPTER 7-COST RECOVERY
31
increase, but in 2005 fuel levies were increased by 50% to 600 Cedis per litre, which is equivalent to US Cents 6.519. This amount still falls short of the envis-aged US Cents 9.5 per litre which was agreed in 1996, however, the fact re-mains that GoG has increased its fuel levy per litre from 150 Cedis in 2000 to 600 Cedis in 2005, representing a 400% increase in a 5-year period in Cedi terms. The present policy is to have fuel levies at US Cents 9.5 per litre in 2008.
• Figure 7.1 presents the development of fuel levies in relative terms (base year is 1996), both for Cedis and US$. Figure 7.1 indicates that indeed fuel levies in Cedis have strongly increased in relative terms (factor 10 in 10 years). The fuel levy development in US$ shows another picture. Fuel levies in 2005 are a huge increase compared to 2002, however, are almost at the same level of the 1998 rate.
Figure 7.1 Developments of fuel levies in cedis and US$ (relative terms, 1996=100)
fuel levy (US$)
-20406080
100120140160180
1996
(feb)
1997
(Feb
)
1998
(Feb
)
1999
(Jun)
2000
(Mar)
2001
2002
(oct)
2003
2004
2005
(May)
• Other sources of revenues, i.e. bridge and road tolls, vehicle registration, road use, and international transit fees do continue to grow in absolute terms, how-ever, fall short of the type of growth rates of fuel levies. The non-fuel levy revenues account to less than 10% of total GRF revenues.
• Releases to the GRF have been on time; shifting the funds to a commercial bank is no longer debated.
• The bases of GRF allocation to the road agencies have not been completely consistent and transparent. Allocation priorities (maintenance first) are not fully respected as GRF funds rehabilitation works, while maintenance needs are not fully accommodated for.
• The GRF Secretariat, consisting of a director and two senior officers (engineer and accountant), supported by assistant staff, totalling some 10 staff members, operates as a Civil Service Department. This status restricts the GRF in its flexibility and ability to employ commercial principles in handling day-to-day operations. Besides, the fact that salaries are now based on the Ghana Univer-
19 Based on 600 Cedi at an exchange rate of 9,200 Cedi per US$ (May 2005).
fuel levy (cedis)
-
200
400
600
800
1,000
1,200
1996
(feb)
1997
(Feb
)
1998
(Feb
)
1999
(Jun)
2000
(Mar)
2001
2002
(oct)
2003
2004
2005
(May)
CHAPTER 7-COST RECOVERY
32
sal Salary Structure, whereas salaries of the director and two senior staff were part of donor programmes until May 2002, means a considerable salary reduc-tion20.
Update 2005-preventing factors
• The reluctance of the GoG to raise fuel levies annually. • The institutional and salary matters have a negative impact on the ability to
hire and retain high calibre staff at GRF Secretariat. Envisaged effects
• A good functioning road fund provides sufficient funds that are timely re-leased for in the first place road maintenance and if feasible, additional pur-poses, e.g. road safety, road rehabilitation and reconstruction works. As a re-sult the road network will be preserved, positively impacting the road condi-tion mix.
Actual effects
• The gradual increase in fuel levies has broadened the financial basis of the GRF. However, not all revenues are allocated to road maintenance, with GRF funds also being allocated to rehabilitation works. The bottom line is that road maintenance is not fully funded through the GRF yet, as indicated in Table 5.1.
• Timely releases contribute to the ability to better plan maintenance works. Eventually this may result in lower unit prices, as premiums on late payments will be taken out of unit price calculations.
• Initial figures indicate that the gradual increase of fuel levies has not resulted in decreased fuel consumption21.
Conclusions The assessment of actions taken, preventing factors and effects, as presented above, are the basis of the performance ratings as presented in the table below. Item Performance rating Actions taken 2000-02 Medium-high Actions taken 2003-05 Medium Effects Medium-high
20 See: Evaluation of the Management and Financing Arrangements for Road Maintenance,
Danida, November 2003. 21 Based on feedback on questionnaire as part of this project.
CHAPTER 8-PRIVATE SECTOR CONTRACTING AND FINANCING
33
8 PRIVATE SECTOR CONTRACTING AND FINANCING
8.1 Recommendation 11 – Facilitate further private sector participation
Text of recommendation: The private sector has come a long way under RSEP and cur-rently a large share of the road works is done by the private sector. The GoG should con-tinue to facilitate the development of the private sector in order to create a more mature pri-vate sector that is able to compete on a domestic and international level. Actions taken 2000-02 Preventing factors 2000-02 Private sector participation and capacity
• The share of private sector participation (PSP) re-mains high, as was the case in the HSIP evaluation. PSP levels are over 90 percent; the actual share de-pending on type of activity and agency.
• Capacity of private sector, especially contractors, is regarded poor. Training programmes are developed to improve this situation, e.g. at DFR contractors are trained by DFID and Danida in their feeder road programme, GTZ has a training programme of As-sociation of Road Contractors (ASROC) and JICA is contributing to the training of supervising mainte-nance engineers.
Private sector participation and capacity
• Quality performance of con-tractors is prevented by low ca-pacity of (labour based and conventional) contractors, i.e. inability to make cost estimates, lack of cash and other man-agement, poor technical skills, no resources, no understanding of contractual procedures. Lo-cal consultants are unable to provide required support.
Private sector financing
• GoG tries to bring private sector financing to the road sub-sector. Steps taken are:
• A Build-Operate-Transfer (BOT) project is under review on the Accra-Kumasi road and private sector consortia have provided proposals for this project.
• A BOT policy framework is now under discussion. • MRT representatives have attended an international
BOT workshop in the USA in July 2002.
Private sector financing
• A solid and tested legal and institutional framework is miss-ing.
• Lack of knowledge and experi-ence as a client with private sector financing.
• Lack of co-ordination with do-nors; donors question the lack of consultation and the role of donors as ‘donor’. This is espe-cially relevant for road stretches that have already gone through feasibility phase, notably on the Accra-Kumasi road.
CHAPTER 8-PRIVATE SECTOR CONTRACTING AND FINANCING
34
Update 2005-actions taken Private sector participation and capacity
• PSP in maintenance remains high at percentages well over 90%. • Private sector capacity to carry out quality road works remain limited (see pre-
venting factors). The Road Contractors Association is receiving assistance in order to positively influence the construction industry. In addition, the open-ing up of business connections between German and Ghanaian firms in order to enhance the performance of firms that may enter into joint ventures is ac-tively being promoted22.
Private sector financing
• The GOG continues to pursue the merits of bringing in private sector money to the road sub-sector, focusing on optional introduction of Build-Operate-Transfer (BOT), Reconstruct-Operate-Transfer (ROT) and Maintain-Operate-Transfer (MOT) schemes. Combining current and projected traffic flows and affordability levels for tolls (both as a basis for revenue raising) and local con-struction and maintenance costs (basis for investment and recurrent costs), leads to ROT schemes being the most suitable for Ghana, with financially vi-able projects at traffic volume levels of some 3,600-10,700 vehicles per day.
• Upgrading the Accra-Kumasi road into a dual carriageway at the two ends, with bypasses constructed near major towns on the route, remains the targeted showcase. This case is thoroughly reviewed23.
Update 2005-preventing factors Private sector participation and capacity
• The performance of the local construction industry continues to be problem-atic. A review on the state of ongoing RSDP projects, inspected in March-April 2004 by MRT’s Monitoring and Evaluation Unit24, indicates that 45 out of the 88 projects inspected (51%) showed poor progress. A detailed analysis of key issues related to the performance of the local construction industry is carried out in this review, presenting factors related to the contractors (e.g. failure to operate as a corporate and business entity; lack of organisational structure), the employers (e.g. problems with classification of contractors; de-layed payments), the executive agencies (e.g. inability to take timely decisions, lack of supervision capacity) and the market (e.g. conditions for credit and leasing facilities), as well as a determination of an action plan for the way for-ward.
22 The assistance and the German-Ghanaian promotion takes place through a GTZ programme. 23 See Draft Final Report on road financing, Price Waterhouse, 2005 24 See: Local Construction Industry, Summary of Findings of E. Twumasi (Monitoring and
Evaluation Unit MRT).
CHAPTER 8-PRIVATE SECTOR CONTRACTING AND FINANCING
35
Private sector financing • Relatively limited traffic volume (AADT) levels on majority of Ghanaian
roads. In addition, the enabling environment for private sector financing has not fully matured yet.
• The relatively small market together with the relatively high perceived risks re-lated to PSP in the Ghanaian road sub-sector result in limited international in-terest in investing in PSP projects. The most suitable scheme, i.e. ROT pro-jects, is most appropriate for local investors. Local investors’ interest, however, is hampered by a range of factors, such as lack of understanding of PSP pro-jects, limited capacity of local financial markets, etc.
• Potential tension between private sector financing and donor contribution to the sector.
Envisaged effects
• Through outsourcing of activities it is intended to create a mature private sec-tor and to stimulate competition between contractors, positively affecting con-tractors’ performance in terms of value for money.
• Although beyond the scope of the description of the recommendation, the private sector is considered a potential investor in the road sector. As a conse-quence funds will become available to the sector, resulting in an improved road network. The additional consequence may be a road use charge, most likely though tolling, affecting the accessibility of the road network.
Actual effects
• Outsourcing of maintenance and construction works is a worldwide phe-nomenon, based on the conception that the private sector is capable of carry-ing out these works more efficiently. In order to reap the benefits of outsourc-ing, certain conditions must be met, such as capacity of the local industry; ca-pacity to carry out the client role and the opportunity to downsize the organi-sation (the force account). As indicated above, there is ample room for im-provement in the clients’ and contractors’ capacity. The inability to implement a retrenchment programme at GHA creates large numbers of redundant staff.
• Private sector financing has not yet materialised. Conclusions The assessment of actions taken, preventing factors and effects, as presented above, are the basis of the performance ratings as presented in the table below. Item Performance rating Actions taken 2000-02 Medium Actions taken 2003-05 Medium Effects Medium
CHAPTER 9-FOREIGN TECHNICAL ASSISTANCE
36
9 FOREIGN TECHNICAL ASSISTANCE
9.1 Recommendation 12 – Focus foreign technical assistance on transfer of knowledge and providing added value
Text of recommendation: Instead of a reduction in the amount of Foreign Technical Assis-tance (FTA), the evaluation period has indicated a consolidation or even an increase in FTA as a result of the shortage of skilled engineering and accounting staff, the need for further training of employees and the departure of engineers to the private sector. Also relatively new aspects such as safety and environment, as well as issues such as poverty alleviation and gen-der issues, increased the need for FTA. FTA should clearly provide an added value. Some of the FTA activities can be done through local experts. For this purpose it could be considered to establish a database of local experts. In all instances but especially in the ‘new’ fields emphasis should be on transfer of knowl-edge. Therefore it is required to provide counterpart staff that can take over tasks and re-sponsibilities once FTA terminates. Actions taken 2000-02 Preventing factors 2000-02 • Overall, there is a tendency towards a decrease in the
level of FTA over the last two years. This may differ per agency.
• FTA is providing added value; it is mainly used in ‘new’ fields, such as safety, environment and decen-tralisation. When knowledge is transferred, the level of FTA is decreased, e.g. Danida at DFR reducing its level of FTA from three (in 2000) to one person, fo-cusing on the decentralisation process.
• Proper transfer of knowledge can be looked at on a case-by-case basis. Insufficient information is avail-able to make a proper assessment, although in some cases reactions have been positive, e.g. for road safety. In the ‘new’ fields additional training of local experts is needed. Specific training has taken place, e.g. an overseas training programme for road safety.
• The troublesome process of creating the right incentives to retain qualified and experienced local staff is moving rather slowly.
• Proper transfer of knowledge is obstructed by organisational problems, e.g. under-capacity in the agencies and delays in hir-ing extra staff.
• Donors are sometimes keen on retaining some level of FTA in order to ‘monitor’ activities within the agencies.
Update 2005-actions taken
• FTA continues at approximately the same rate as in the period 2000-02. FTA at GHA has decreased (in the fields of safety and maintenance), while FTA has increased at DFR (DFID Management Support Team).
Update 2005-preventing factors
• Lack of capacity of providing qualified counterpart staff remains a strong pre-venting factor in realising the full potential of FTA.
CHAPTER 9-FOREIGN TECHNICAL ASSISTANCE
37
Envisaged effects • FTA is to result in sustainable capacity development though transfer of
knowledge in areas where there is a direct local need and where capacity is lacking.
Actual effects
• FTA has proven to be an effective instrument in capacity building, especially if (i) the knowledge brought in is unique and not directly available through local consultants, i.e. mostly in ‘new’ areas, and (ii) the expertise is properly trans-ferred to local experts. In general, there is a strong belief amongst the GoG representatives that FTA has targeted ‘new’ areas, requiring expertise locally unavailable; FTA has added value.
• The proper transfer of knowledge remains a difficult aspect of FTA. For some of the previously ‘new areas’, such as road safety at GHA and NRSC, there is a sustained need for FTA. This can also be contributed to the lack of staff that is allocated to these tasks.
Conclusions The assessment of actions taken, preventing factors and effects, as presented above, are the basis of the performance ratings as presented in the table below. Item Performance rating Actions taken 2000-02 Medium-high Actions taken 2003-05 Medium-high Effects Medium-high
CHAPTER 10-ENVIRONMENTAL AND SAFETY ASSESSMENT
38
10 ENVIRONMENTAL AND SAFETY ASSESSMENT
10.1 Recommendation 13 - Increase priority of environment and safety
Text of recommendation: Environment and safety should receive greater priority from GoG, especially for staff increases and funding of recurrent expenditures. In addition, limited investments especially in road safety could well result in considerable gains. Environmental impact assessment needs to be applied for all projects and environmental aspects should be monitored during implementation. Actions taken 2000-02 Preventing factors 2000-02 • The National Road Safety commission (NRSC) was
established by Parliament in 1999 and has become operational in the period 2001-2002 co-ordinating all road safety activities. Achievements in this period are: - Development of national road safety strategy and
action plan. - Formulation of 10 regional road safety commit-
tees. - Providing training for children. - Production of videos and TV documentary. - 33 regional road safety meetings on speeding and
drink-driving. • A road safety and environment division has been set
up at GHA to focus on all safety and environment issues arising from pre-construction to operational stages. The unit employs 8 officers and 7 supporting staff.
• Procurement of the service for accident data collec-tion is ongoing.
• Local experts are trained in a broad range of road safety aspects (see Recommendation 4).
• Physical measures to stimulate road safety have been taken, i.e. (i) construction of crash barrier guardrails in high embankment areas, (ii) construction of steel ramps in major roads especially along Takoradi-Agona junction and in Tema townships, (iii) road markings and (iv) installation of traffic lights.
• Environmental impact assessment (EIA) is done for all new projects.
• Dust control measures have been taken by contrac-tors (earth speed ramps), with added advantage of contributing to road safety.
• The delay in hiring of staff at NRSC has resulted in under-staffing and has created a heavy workload on the few and over-worked staff in place.
CHAPTER 10-ENVIRONMENTAL AND SAFETY ASSESSMENT
39
Update 2005-actions taken Road Safety
• RSDP’s road safety objective is to develop technical and institutional capacities of NRSC to effectively manage road safety programmes to achieve GoG’s strategic objectives for reduction in traffic and accidents fatalities. In addition to the long list of measures listed in the actions taken from 2000-02 (see box above), GoG continues to drive the road safety policy, e.g. through25: - Development of National Road Safety Action Plans for 2002-03 and 2004-
05. - Improvement in institutional capacity with the acquisition of office equip-
ment, vehicles and construction of a permanent office building. - Upgrading training for over 1,000 commercial drivers and station managers
and training of more than 15,000 children and more than 2,000 teachers in basic traffic survival skills.
- Strengthening co-ordination and collaboration of road safety activities with the appointment of five full time Regional Road Safety Coordinators.
- Awarding a contract to BRRI to establish the National Accident Manage-ment System.
- Providing road safety publicity and other educational materials as well as road safety public education materials.
• NRSC is preparing for the 2006-10 Road Safety Strategy. Environment
• EIA continues to be common practice for new projects. However, the Institu-tional Review of Mainstreaming of ESHS Issues in the Roads Sector in Ghana indicates that Environmental Impact Assessment (EIA) procedures and envi-ronmental permits from the EPA are perceived as an administrative necessity and hindrance.
• A report on IDA Development and Maintenance Projects26 presents a long list of environmental mitigation measures per project.
Update 2005-preventing factors
• In May 2003 MRT and its agencies, together with the Environmental Protec-tion Agency (EPA) agreed to facilitate a review of Environmental, Social, Health and Safety (ESHS) issues in the road sub-sector. Project results, pre-sented early 200527, include a long list of issues, needs/solutions and actions. One aspect raised is the fact that ‘ESHS issues have tended to be implemented (and funded) as a result of donor conditionality without generating buy-in
25 Amongst others based on RSDP Mid-Term Review document, April 2005. 26 Social and Environmental Monitoring Report on IDA Development and Maintenance Projects,
GoG, February 2005 27 DFID, Institutional Review of Mainstreaming of Environment, Social, Health and Safety issues
in the Roads Sector in Ghana, January 2005.
CHAPTER 10-ENVIRONMENTAL AND SAFETY ASSESSMENT
40
from the relevant Ghanaian institutions. Conversely GoG roads projects tend not to systematically budget for ESHS costs’. A possibly related issue raised is the fact that MRT is not taking a leading role in terms of policy and guidance of ESHS issues.
Envisaged effects
• To improve the situation in road safety, i.e. decrease the number of accidents and road fatalities and to mitigate the negative impact of transport on the envi-ronment.
Actual effects
• Lack of GoG ownership with regards to ESHS issues in relation to the road sub-sector could, if the introduction of MDBS pursues, ultimately result in fewer funds allocated to the road sub-sector. This as a result of the inability to indicate the impact of ESHS related measures.
• As for road safety performance, road fatalities have increased, however, fatality and mortality rates have declined since the introduction of RSDP, as indicated in Table 10.1.
Table 10.1 Road safety performance (1991-2004)
Year All acci-dents
Fatalities Fatality rate (Deaths per 10,000 mo-
torised vehicles)
Mortality rate (Deaths per 100,000
population) 1991 8,370 920 69.67 6.21 1992 6,922 914 66.25 6.00 1993 6,467 901 57.1 5.76 1994 6,584 824 42.87 5.13 1995 8,313 1,026 43.67 6.22 1996 8,488 1,049 35.26 6.19 1997 9,918 1,015 29.77 5.84 1998 10,990 1,419 36.08 7.94 1999 8,762 1,237 27.00 6.74 2000 11,714 1,578 30.88 8.37 2001 11,291 1,660 29.24 8.59 2002 10,718 1,665 27.15 8.4 2003 10,644 1,718 26.68 8.38 2004 10,420 1,859 26.47 8.88
Source: MRT, 2004 figures are provisional
• The estimated number of persons killed in road accidents in 2004 (1,859) is considerably higher than the level in 2000 (1,578). It should be noted that mo-bility has increased in this period as well. In addition, it is a global phenome-non that in developing countries with rapidly expanding motorisation, road fa-talities tend to increase, even in cases of active road safety policy. In time there comes a moment that the decrease in accident risks as a result of road safety
CHAPTER 10-ENVIRONMENTAL AND SAFETY ASSESSMENT
41
efforts will offset the increased risks resulting from increased motorisation, re-sulting in a decrease of road fatalities. The challenge is to accelerate the proc-ess of breaking the trend of increasing road fatalities. The so-called 2nd genera-tion road safety project approach, as promoted by the World Bank28, is geared towards the realisation of this.
Conclusions The assessment of actions taken, preventing factors and effects, as presented above, are the basis of the performance ratings as presented in the table below. Item Performance rating Actions taken 2000-02 Medium Actions taken 2003-05 Medium Effects Medium
28 See Transport Notes No. TN-1, Implementing the Recommendations of the World Report on
Road Traffic Injury Prevention, in which 2nd generation road safety projects are presented, in-cluding the following characteristics: (i) large stand-alone road safety projects; (ii) integrated, multisectoral; (iii) outcomes large enough to be measured; (iv) complex to prepare and (v) first step in a longer process. Ghana is selected as a pilot country for a road safety country capacity review, which could form the basis for a 2nd generation road safety project approach.
CHAPTER 11-EXPENDITURE MANAGEMENT AND CONTROL
42
11 EXPENDITURE MANAGEMENT AND CONTROL
11.1 Recommendation 14 - Improve disbursement procedures to contractors and donor releases
Text of recommendation: Disbursement procedures to contractors should be streamlined, amongst others through shortening payment approval procedures. At the same time, donor releases should follow programmed levels. In order to get more grips on disbursements, all donors must provide MRT periodic status reports on Grants/Loans expenditures. At the same time quarterly reviews of implementation status by both GoG and donors will facilitate procurement and disbursement. Actions taken 2000-02 Preventing factors 2000-02 The settlement of arrears
• The arrears have not been settled, however, a large amount of arrears have been paid off in 2002.
• The causes of new arrears are lack of counterpart funding to support development projects and inade-quate provision of funds to complete ongoing com-mitments.
• The disputed arrears are now under ‘research’. Other expenditure management and control issues
• Procurement process is slow, resulting in date of tender lagging months behind the (scheduled) com-mencement date for the works.
• Duration of payment to contractors through GRF has shortened over the last two years, but there is still room for improvement. Long delays were noted in the payment of approved certificates for wholly GOG development and counterpart funds for do-nor-supported projects. This has caused accumula-tion of considerable sums of interest on delayed payment.
• The audit report indicate expenditure management and control related problems: - Discrepancies between records on maintenance at
an agency’s regional and central level. Transac-tions at headquarters could not be vouched, as in-formation on funds received, funds disbursed and amounts owed to contractors were missing.
- In instances overpayment to contractors. • Donor releases have not followed programmed lev-
els. • GoG and donors make no quarterly reviews on im-
• For the settlement of the ar-
rears preventing factors are (i) lack of GoG financial resources and perceived priority to fully settle the arrears, (ii) the need for counterpart funding and (iii) the inability to precisely in-dicate the level and timing of counterpart requirements. The latter generally applies to GoG commitments in the road sub-sector.
• The number of people needed at various organisations to check certificates are limiting a swift disbursement procedures to contractors
• Rigid administrative structures and regulations of donor or-ganisations prevent flexible ap-proach in procurement and implementation.
CHAPTER 11-EXPENDITURE MANAGEMENT AND CONTROL
43
Actions taken 2000-02 Preventing factors 2000-02 plementation status on a structural basis. No system to monitor expenditure management and control is in place, although MRT has decided to procure an accounting and management information system. MRT is one of the three pilot ministries to start the implementation of a system designed to meet report-ing requirements of the three main sources of fund-ing.
• Attempts have been made by agencies to install con-tract management systems, which have not been fully operational.
Update 2005-actions taken
• With tightened control on overspending, especially on development projects (co)funded though the consolidated budget, and with the new Procurement Act in place, the arrears problem has been practically brought to a halt.
• However, some smaller arrears could be building up in maintenance and/or minor rehabilitation works. These are relatively small arrears compared to those noticed in the beginning of the century.
• Financial, technical and procurement audits are carried out on an annual basis in order to provide transparency and accountability in the use of the combined funds in the road sector, i.e. funds from the Consolidated Fund, the Ghana Road Fund and the Donor Funds. Issues arising from the 2004 continuous technical and procurement audits include: - Capacity of local contractors to undertake and execute projects within the
contractual period continuous to be a problem in the sector. MRT and its agencies are in the process of reviewing the contractor’s classification to ad-dress this problem (see Recommendation 11 on GTZ support).
- Even though GRF releases exceed its budget, this has not been sufficient to pay for all the works done due to arrears carried over from the previous year. All the same, the payment regime was an improvement over previous years.
- Almost all major rehabilitation and reconstruction projects are on course (except Jasikan-Brewanease project).
- Environmental and road safety issues are yet to be incorporated in mainte-nance contracts. For development projects, these issues are taken in.
- An analysis of unit costs per maintenance activity indicate that 2003 aver-ages are in line with industry averages and have considerably come down compared to earlier year averages.
CHAPTER 11-EXPENDITURE MANAGEMENT AND CONTROL
44
• MRT makes quarterly progress reports, providing an extensive overview of progress of the implementation of RSDP per agency.
• Donor releases are still behind on programmed levels. • As outlined in Recommendation 2, MRT is one of the three pilot ministries to
incorporate BPEMS, which will help MRT in its expenditure management and control.
Update 2005-preventing factors
• Procedures and regulations of donor organisations continue to prevent a flexi-ble approach in procurement and implementation.
Envisaged effects
• Improved disbursement to contractors will positively impact the planning and realisation of projects. In addition, timely disbursement will avoid financial claims from contractors, including interest payments, and risk premiums in-cluded in the financial bids, lowering unit rate.
• Timely donor releases will allow MRT and the agencies to better plan their ac-tivities.
Actual effects
• Solving the arrears problem has improved the road sub-sector’s technical and financial performance, as no funds need to be allocated to expensive negoti-ated contracts and interest payments. Putting a system in place that is targeted towards arrears prevention, e.g. through the new Procurement Act, will further help the sub-sector to avoid gliding back to the situation in the late 90s.
• Efforts to improve technical, financial and procurement auditing helps MRT to further strengthen its expenditure management and control.
Conclusions The assessment of actions taken, preventing factors and effects, as presented above, are the basis of the performance ratings as presented in the table below. Item Performance rating Actions taken 2000-02 Low Actions taken 2003-05 Medium-high Effects Medium
CHAPTER 12-ROAD AND TRANSPORT REGULATIONS
45
12 ROAD TRANSPORT REGULATIONS
12.1 Recommendation 15 - Put priority on axle load control
Text of recommendation: The axle load control programme should receive priority. Putting great effort in improving road conditions is ineffective if at the same time damage caused through overloading is not tackled properly. Actions taken 2000-02 Preventing factors 2000-02 • Two more permanent weighbridges are now opera-
tional (besides the two existing ones in Ofankor and Asuoyeboah). Furthermore, seven weighbridges have been installed, but still need among other things elec-tric power, water, security lighting, fencing of station and furniture.
• A portable weighbridge is installed near Tema har-bour to ‘tackle’ overloaded transit trucks. Ten port-able weighbridges are procured under IDA financing to be distributed to the regions.
• It should be noted that the axle load programme is aimed at installing 27 permanent and 21 portable weighbridges.
• Portable weighbridges installed near harbour to spot overloaded ‘transit’ trucks.
• Operations of operational weighbridges remain problematic, with limited opening hours, not a sys-tematic way of weighing trucks and availability of al-ternative routes.
• The first batch (14 persons) of weighbridge person-nel has been trained. A new batch is expected to be trained within the coming years.
• GHA intends to privatise the management of the permanent weighbridges. The training and privatisa-tion is aimed at improving operational performance of the weighbridges.
• The pace of implementation of the axle load programme.
• Due to problems in neighbour-ing countries, notably Cote d’Ivoire, the transit function of Ghana is rapidly causing great damage to the roads.
Update 2005-actions taken
• Slow progress in implementing the axle load programme has led a group of donors29 to strongly appeal for a structured approach towards the preparation of a policy document and action plan on axle load control. Preparation for the development of such a policy document and action plan started in 2003.
29 As an indication: KfW has included axle load control as part of their conditions for
support in the road sub-sector
CHAPTER 12-ROAD AND TRANSPORT REGULATIONS
46
• In 2004 an Axle Load Working Group was established to review and revise the policy and action plan. In December 2004 a report was published entitled ‘Review of Axle Load Control Policy & Assistance in the Implementation of the Action Plan30’. In February/March 2005 a Study Tour was organised to learn from experiences in South Africa, Malawi, Tanzania, Germany and Brit-ain.
• Findings from the Study Tour and comments on the previous report, resulted in a new report, as presented in the RSDP Mid-Term Review, including the (i) Axle Load Control Policy; (ii) the Action Plan; (iii) Cost-Benefit Analysis; (iv) Legal Comments, as well as Terms of Reference for Technical Assistance in helping the Axle Load Working Group to implement the policy and action plan; a Weigh Station Location Plan and Draft Regulations.
• In 2004 six weighbridge stations were operational: Yapei, Bolgatanga, Ofankor, Auoyboah, Tema, and Afienya. Three out of six of the weighbridges operate 24-hours/day. One additional weighbridge station in Bogoso may have become operational early 2005.
• According to the 4th Quarter Report, prepared by MRT, bidding documents for the procurement of 10 Portable Weigh pads have been prepared and sub-mitted to the World Bank. The tendering is contingent on the completion of the Axle Load Study commissioned by the donors.
Update 2005-preventing factors
• According to the 2004 continuous technical and procurement audits, even though overloading is detected, the stations are unable to offload the excess load before the vehicles are allowed to continue their voyage, as a result of in-adequate storage facilities. Offenders are only fined. The audits also indicated that Afienya station indicates a gradual decreasing trend of overloading. How-ever, Pwaluga station records 75% overloading rates.
• Obviously, the implementation of the original programme is far behind on schedule. The policy document and action plan are aimed at the development of 29 permanent weighbridge stations.
Envisaged effects
• The axle load programme is intended to avoid overloading and to limit the damage from overloading, positively impacting the road conditions.
Actual effects
• The study report Review of Axle Load Control Policy & Assistance in the Im-plementation of the Action Plan includes a calculation on the damaging effect of overloading. The cost of road repairs is estimated at US$ 6.5 million per
30 Report produced by IT Transport/Scott Wilson
CHAPTER 12-ROAD AND TRANSPORT REGULATIONS
47
annum. If Vehicle Operating Costs (VOC) would be included, annual costs would strongly increase to some US$ 30 million per annum.
• Cost-Benefit Analysis, as presented in the same report, indicates an Internal Rate of Return (IRR) of 34% for the case in which only road damage costs are included in the calculation. If saved VOC would be included, IRR would be at 109%.
Conclusions The assessment of actions taken, preventing factors and effects, as presented above, are the basis of the performance ratings as presented in the table below. Item Performance rating Actions taken 2000-02 Low Actions taken 2003-05 Low-medium Effects Low
CHAPTER 13-DONOR CO-ORDINATION
48
13 DONOR CO-ORDINATION
13.1 Recommendation 16 - Further improve donor co-ordination
Text of recommendation: Co-operation between GoG and donors should be further pur-sued. Depending on donor willingness, procedures for implementation, monitoring, account-ing and reporting should be harmonised. GoG planning and programming capacity needs to be further developed to move into a situation in which GoG can take programme ownership according to the Comprehensive Development Framework principle. Actions taken 2000-02 Preventing factors 2000-02 • Concept of programme approach has been adopted
to place all donor interventions under the umbrella of RSDP.
• Donor co-ordination is taking place through meet-ings (monthly, quarterly, annual Donors Confer-ences), which is considered useful by the majority of donors active in the road sub-sector. MRT actively supports the donor co-ordination activities.
• Donors expressed the desire to move to a next level of donor co-ordination, i.e. discussing and possibly getting a joint standpoint on thematic issues such as institutional development and training. Donor co-ordination would evolve in donor collaboration.
• Lack of co-ordination between the three agencies, preventing the kind of sector-wide strate-gic planning needed to co-ordinate joint donor funding.
• Unsolved issues (arrears, fuel levies) frustrating programme progress and becoming condi-tionalities for continued donor support.
• Unwillingness or inability of donors to harmonise proce-dures.
Update 2003-actions taken
• Donors and GoG representatives continue to co-ordinate their activities through monthly, quarterly and annual meetings, supported through the dedi-cated donor co-ordination unit at MRT. Although persons, representing the donors’ organisations come and go, the spirit of co-operation remains. RSDP has provided a platform in which each donor can play its respective part.
• The concepts of a Sector Wide Approach and sector funding that were ac-tively discussed during the 2002 Follow-up Study have now been surpassed by a discussion focused on MDBS, as indicated in Section 2.2. Only DFID is pur-suing a ‘full MDBS approach’, putting all sector funds in MDBS as of 2006, while other donors have placed part of their budget in MDBS. It seems that on the short-run most donors will continue their sector programmes. How things will develop on a somewhat longer run is unclear. A MDBS Working Group, including representation from MRT and selected donors has been set up and has had initial meetings. The pace of the meetings has slowed down, however, recently an effort is made to revitalise the MDBS Working Group.
CHAPTER 13-DONOR CO-ORDINATION
49
Update 2003-preventing factors • There is little evidence of a joint approach towards the development of a new
(road) transport sector development programme. The mid-term review of RSDP was driven by the World Bank and MRT, with other donors invited to participate.
• Individual donors still continue to pursue the appraisal and review of their in-dividual programmes. Furthermore, despite the Rome and Paris Declarations on harmonisation and alignment,.donors continue to work according to their own specific requirements, e.g. in procurement or financial auditing and con-trol. The above results in a continued high administrative burden on MRT and its agencies.
Envisaged effects
• Improved donor co-ordination contributes to a consorted action, owned and guided by the GoG, in which all resources are pulled together to contribute to a common objective.
• Common procedures and joint efforts, e.g. in appraisal, considerably lower the administrative burden on GoG, notably MRT and the agencies.
Actual effects
• Donor co-ordination has provided an arena for transport policy dialogue and for all partners to provide their particular input in the road sub-sector. Indi-vidual donor programmes are pulled together under one overarching, com-mon RSDP programme. The mid-term review could provide a basis from which the new (road) transport sector development programme could be de-veloped.
• The fact that donors continue to pursue their own procedures, results in a high administrative burden on MRT and its agencies.
• Donor co-ordination has forced specific items on the transport agenda, e.g. the arrears problem, the axle load policy and the annual increase of fuel levies.
• Sustained MDBS development may result in a withdrawal of donors’ (road) transport experts from the sector, negatively impacting the ability to co-ordinate matters between GoG and donors on a sector level, as well as the policy dialogue between GoG and donors31.
31 An assessment on the effects of MDBS goes beyond the scope of this section, which is focusing
on donor co-ordination. Having said that, it is obvious that MDBS will have a large impact, e.g. through transferring ownership for prioritisation to GoG, reducing transaction costs, strength-ening GoG systems and a decrease in the directly controlled donor funds.
CHAPTER 13-DONOR CO-ORDINATION
50
Conclusions The assessment of actions taken, preventing factors and effects, as presented above, are the basis of the performance ratings as presented in the table below. Item Performance rating Actions taken 2000-02 High Actions taken 2003-05 Medium Effects Medium-high
CHAPTER 14-CONCLUSIONS
51
14 CONCLUSIONS
This chapter presents concluding remarks, which are meant to synthesize the findings, emphasize key issues and present recommendations where relevant. The concluding remarks are based on the information as presented in the previous chapters. A sum-marised overview of actions taken and effects per recommendation is presented in the Annexes, i.e. Annex 7 for actions taken and Annex 8 for effects. The sector is at a crossroad….
• The (road) transport sector in Ghana is currently at a crossroad. New devel-opments, such as the poverty reduction focus, bring along the need to clearly demonstrate the contribution of the transport sector to the Ghanaian socio-economic development. As a result, the traditionally inward oriented sector is forced to extend its focus.
• Donors, each at their own pace, are considering MDBS as an alternative for bringing direct funding to the sector. This process further reinforces the need to clearly illustrate the contribution of the sector towards socio-economic de-velopment and poverty reduction.
• The sector seems to be aware of the need to respond to new challenges and has launched a range of studies, i.e. the institutional study, the transport policy study and the transport and poverty studies. Furthermore, MRT has estab-lished a MDBS working group. It is critical that the sector not only has the ca-pacity to absorb the findings of these studies and initiatives, but takes owner-ship of the policy development process, clearly defining the way forward. The studies are supporting the policy development process; they are not replacing it.
The implementation pace of the sector programme is rather slow….
• As for the pace of implementation of the RSDP programme, the overall im-pression is one of missed opportunity. Consequently, achieved effects fall short of the envisaged effects.
• The slow pace of implementation implicates that there is certainly a basis for improvement. In most cases the underlying problems and the need for action, as well as the type of action needed are clear. The implementation, however, is often lagging behind. Looking at this positively, one could say that Ghana will get there; it only takes a bit more time. Being more critical, one could argue that Ghana is losing valuable time and energy by not taking full ownership and actively managing the implementation process.
The need for a monitoring and evaluation system is high….
• If the road sub-sector through its RSDP and future (road) transport pro-grammes fail to clearly indicate its contribution to national development objec-
CHAPTER 14-CONCLUSIONS
52
tives, such as poverty alleviation, through a well-functioning monitoring and evaluation system, the road sub-sector may risk a major funding reduction be-cause of the introduction of the MDBS system. Turning the argument around, in order to prepare itself for the future, the sector should make an effort to de-fine indicators, linking the sector performance to Millennium Development Goals.
• The performance indicators, as defined within RSDP, are not used systemati-cally to monitor progress of the programme. The mid-term RSDP review fo-cused on the development of the road condition mix and additional indicators, failing to provide a comprehensive coverage of the stated RSDP performance indicators. Ongoing studies, such as the transport and poverty studies, may provide additional information towards RSDP completion.
• Some of the promising initiatives regarding self-monitoring that were launched at the beginning of RSDP, e.g. programme and agency implementation teams, have not yet been fully integrated in the operations of MRT and its agencies. Although Annual Review Reports are produced, as well as quarterly financial management reports and periodic road condition surveys, a systematic self-monitoring system is not in place. Lack of self-monitoring capacity makes pol-icy development an ‘ad hoc’ affair.
• MRT is one the pilot ministries selected for the implementation of BPEMS. Once operational, BPEMS will help to meet budgeting requirements for the three main sources of funding of the road sub-sector.
… and so is the need for institutional capacity building and human resources development….
• The retrenchment programme, which was scheduled for the RSDP implemen-tation period did not materialise and seems to have lost its momentum. Staff reductions are based on natural retirement, resignation, sickness and death and are relatively limited in size. The inability to launch the retrenchment pro-gramme leaves the sub-sector and notably GHA with a staff composition unfit for the job and a salary burden that restricts the organisation in attracting the appropriate staff. At the same time it must be recognised that the implementa-tion of the retrenchment programme, would result in unemployment for some of the staff involved.
• The need for training remains high. Training provides an excellent basis for strengthening institutional capacity and enhances transfer of knowledge. The share of training funded by donors is high. There is a clear tendency to con-tinue with overseas training, based on an apparent demand (need for training, instrument to retain staff) and supply (donors continue to fund training pro-grammes, contributing to transfer of knowledge policies as stated in the do-nors’ policies). The focus on overseas training may divert the focus on setting up a strong in-country training programme.
CHAPTER 14-CONCLUSIONS
53
There is a need to clearly define investment prioritises…. • Not standardising the approach towards prioritisation of road works and leav-
ing this process up to individual parties, such as road agencies or donors, re-sults in a bias towards certain projects and possible sub-optimal road pro-grammes from a national perspective.
• The use of HDM-4 as the common tool for feasibility studies has certainly contributed towards harmonisation. The use of HDM-4, e.g. through input data, is not fully harmonised.
• The maintenance programme is not fully carried out, while rehabilitation ac-tivities are taking place and being funded from the GRF, implicating that maintenance is not given full priority. In the period 2002-05, routine mainte-nance was fully carried out. Periodic maintenance is combined with minor re-habilitation and minor upgrading works, making a clean assessment of periodic maintenance performance difficult. Achievement percentages on maintenance are below target, especially for GHA and DUR.
• DFR has gradually expanded its network through transferring parts of the so-called ‘non maintainable’ network to its maintainable network. As a conse-quence the size of the total network to be maintained has increased.
The Road Fund has broadened its financial basis, but fuel levies have not reached anticipated targets yet….
• The main source of revenue of the Road Fund, the fuel levy, has gradually in-creased over a 10-year period, i.e. from 60 cedis per litre in 1996 to a level of 600 cedis per litre in 2005. The strong deprecation of the cedi against the US$ from the year 2000 on have reduced the fuel levy in US$ to levels far from the envisaged US Cents 9.5, with a level of US Cents 2.4 in 2002. Recent increases in fuel levies up to a level of 600 cedis per litre in 2005 have brought the level at US Cents 6.5 per litre, which is almost at the same level as in 1998. The pre-sent policy is to have fule levies at US Cents 9.5 per litre in 2008.
• Top priority of the GRF should be to generate adequate funds to meet road maintenance needs on a sustainable basis and to provide funds on a timely ba-sis.
Environmental and Safety assessment needs to be integrated in the sector’s work….
• In May 2003 a review of ESHS issues in the road sub-sector took place. One aspect raised is the fact that ‘ESHS issues have tended to be implemented (and funded) as a result of donor conditionality without generating buy-in from the relevant Ghanaian institutions. Conversely GoG roads projects tend not to systematically budget for ESHS costs’. A possibly related issue raised is the fact that MRT is not taking a leading role in terms of policy and guidance of ESHS issues.
• As for road safety performance, road fatalities have increased, however, fatality and mortality rates have declined since the introduction of RSDP.
CHAPTER 14-CONCLUSIONS
54
Progress can be recorded in expenditure management and control…. • With tightened control on overspending, especially on development projects
(co)funded though the consolidated budget, and with the new Procurement Act in place, the arrears problem has been practically brought to a halt. Some smaller arrears could be building up in maintenance and/or minor rehabilita-tion works. However, these are relatively small arrears compared to those no-ticed in the beginning of the century.
The axle load programme is moving, but slowly….
• Slow progress in implementing the axle load programme has led a group of donors to strongly appeal for a structured approach towards the preparation of a policy document and action plan on axle load control. Preparation for the development of such a policy document and action plan started in 2003 and was followed by setting up of an Axle Load Working Group.
• Despite the newly found impetus, the implementation of the original pro-gramme is far behind on schedule. The policy document and action plan are aimed at the development of 29 permanent weighbridge stations.
Donor co-ordination has facilitated a policy debate, however, donors continue to work according to own procedures….
• Donors and GoG representatives continue to co-ordinate their activities through monthly, quarterly and annual meetings, supported through the dedi-cated donor co-ordination unit at MRT. Although persons, representing the donors’ organisations come and go, the spirit of co-operation remains. RSDP has provided a platform in which each donor can play its respective part.
• It should be noted that individual donors still continue to pursue the appraisal and review of their individual programmes. Furthermore, despite the Rome and Paris Declarations on harmonisation and alignment,.donors continue to work according to their own specific requirements, e.g. in procurement or fi-nancial auditing and control. The above results in a continued high administra-tive burden on MRT and its agencies.
The way forward….
• Indeed the road sector is at a crossroad. External pressures placed upon the sector, such as the need to contribute to poverty alleviation and the advance of MDBS, could affect the sector positively or negatively, depending on the way the sector responds to the challenges. Challenges are several; to a large extent related to a more external orientation of the transport sector, e.g. through the creation of a monitoring system, based on performance indicators that dem-onstrate the transport sector’s contribution to national development objec-tives. By responding to these challenges the transport sector is able to argue its case and, at least to some extent, is master of its own faith. Not responding to
CHAPTER 14-CONCLUSIONS
55
the challenges could result in isolation of the transport sector and the sector missing out on (traditional) direct project or sector funding.
ANNEX 1-TERMS OF REFERENCE
56
ANNEX 1 -TERMS OF REFERENCE Copenhagen, 10 March 2005 Eval. j.no. 104.A.1.e.50 EVALUATION OF THE RESULTS OF IMPLEMENTATION OF THE RECOMMENDATIONS OF THE JOINT EVALUATION OF GHANA’S ROAD SUB- SECTOR PROGRAMME
1. Background The Joint Evaluation of the road sub-sector in Ghana was carried out from March to November 2000 by the Netherlands Economic Institute. The evaluation has been a good example of how ownership of the evaluation process can be shared between donors and recipient country. The evaluation report contains a number of lessons learned which are in fact recommenda-tions and will be referred to as such in these Terms of Reference. The recommendations are not directed towards a particular donor but are general recommendations directed to-wards all actors in the sub-sector. In Appendix 1 all 16 recommendations are listed in the left column. In the right column are listed the follow-up actions which one donor – Danida – has agreed to take. The annex is the so-called follow-up memorandum which is part of Danida’s evaluation system. After each evaluation a follow-up memorandum is prepared taking note of Danida’s position on the recommendations and identifying the departments responsible for the agreed follow-up activities. The memorandum is signed by the head of Danida and the Evaluation Depart-ment checks the implementation of these activities. The check normally takes place one to two years after the evaluation. However, in this particular evaluation it is much more meaningful to try to register the col-lective actions of all the actors in the evaluation: The Government of Ghana and the do-nors. It was decided to carry out a follow-up study in November 2002. The results were presented at the Annual Donors’ Conference in Kumasi 26-27 November 2002 and the report – dated December 2002 – was distributed to all stakeholders. The conclusions of the follow-up study were mixed: progress was made in many areas while in others areas – including some crucial ones – progress was rather slow. In the “Review of Evaluation in Danida” (2003) the independent reviewers recommended that the Evaluation Department went one step further than just tracking the recommenda-tions made in the evaluation reports. It was proposed that a systematic review was under-
ANNEX 1-TERMS OF REFERENCE
57
taken whether the recommendations when implemented have the intended effects on pro-jects, programmes, or policies. 2. Objective The main objective of the study is to perform a systematic assessment of the effects of the recommendations of the Joint Evaluation of Ghana’s road sub-sector programme and to identify the constraining factors preventing recommendations from being followed. 3. Scope of Work The study shall comprise, but not necessarily be limited to: • An assessment of the action taken on each of the recommendations in the evaluation
report indicating which steps have been taken. • An assessment of the effects of each of the recommendations on projects, pro-
grammes, and policy. Were the effects as intended in the evaluation? • A brief description of the main factors preventing recommendations from being fol-
lowed. • An assessment of the necessity/possibility of further action on each of the recommen-
dations. • An assessment of the utility of the evaluation as a learning instrument. 4. Method of Work The Consultant will carry out the study in phases: • Preparation of questionnaire to be used for guidance during the round of interviews
with stakeholders in Ghana. The questionnaire will be distributed in advance of the field study.
• Interview round in Ghana where the questionnaire shall form the basis for the in-depth
interviews with key persons and more in-depth studies of the implementation and the effects of the main recommendations. Collection of all relevant documentation on the development in the sub-sector since 2000.
• The interviews and supplementary documentation collected during the field study will
be analysed in the Consultant’s head office and a draft report (max. 25 pages including a two-page Executive Summary) will be prepared and distributed to all stakeholders well in advance of the annual donors’ conference.
• Presentation and discussion of the draft report will take place in connection with the
donors’ conference or – if this is not possible – written responses could be forwarded to the Consultant.
ANNEX 1-TERMS OF REFERENCE
58
5. Timing The questionnaires should be distributed by e-mail or via the Royal Danish Embassy not later than 31 March 2005. The field study shall take place in weeks 15 and 16. The draft re-port shall be ready not later than 31 May 2005 and the final report three weeks after having received comments from the stakeholders (through the Evaluation Department). References: • Effective Practices in Conducting a Joint Multi-Donor Evaluation, OECD 2000. • Glossary of Key Terms in Evaluation and Result Based Management, OECD 2002. • Joint Evaluation of Ghana’s Road Sub-Sector Programme, Danida, November 2000. • Ghana: Follow-up Study on the Joint Evaluation of the Rod Sub-Sector Programme,
ECORYS Transport, December 2002.
ANNEX 1-TERMS OF REFERENCE
59
Appendix 1 Date: 24.1.2001
Follow-up Memorandum
Joint Evaluation of the Road Sub-Sector Programme 1996-2000 in Ghana
In case the implementation of the below mentioned decisions deviate from appropriation documents, the Board of Danida and/or the Parliamentary Finance Committee must be informed. It is the first time a Joint Evaluation of a sector programme is carried out. The recommen-dations in the evaluation report are not directed towards a particular donor but are general recommendations directed towards all actors in the sector. The follow-up actions indicated in the right column are, however, the actions which Danida (S.8 and TSA) will take. RECOMMENDATIONS FOLLOW-UP
1. The completion of the evaluation provides an excellent opportunity to prepare for the monitor-ing and evaluation the new Road Sector Devel-opment Programme (RSDP) covering 2001-2003. To facilitate this process, RSDP objectives should be set with clear, measurable and achievable tar-gets. By doing so a set of performance indicators can be developed allowing for monitoring and evaluation of the programme. The performance indicators can be used in baseline studies serving as reference points for future performance.
1. Danida will take part in the joint appraisal of the RSDP in January 2001 and will in this con-nection actively support the establishment of a monitoring and evaluation system based on per-formance indicators.
2. As monitoring and evaluation are considered to become increasingly important in time, the Government of Ghana (GoG) could, in co-ordination with the donors, consider initiating the development of a self-monitoring system. This would facilitate the policy-making procedure and would prepare the GoG for future evaluations.
As 1.
ANNEX 1-TERMS OF REFERENCE
60
RECOMMENDATIONS FOLLOW-UP
3. Danida will monitor the development jointly with the other donors and actively work for the inclusion of the reorganisation in the RSDP:
4. The need for training remains high. Domestic training programmes should be improved and given priority over overseas training.
4. As 3.
5. The cautious approach followed in the decen-tralisation process within the road sub-sector is considered good practice. A sector-wide debate on the optimal level of decentralisation is rec-ommended, keeping in mind potential disecono-mies of scale.
5. Danida will continue to be active in the decen-tralisation issue based on the practical experience from Danida’s transport sector programme (TSPS) components. The focus will increasingly be on the district level.
6. The Road Sector Expenditure Programme 1996-2000 (RSEP) is considered quite ambitious and has only been partly realised. In developing RSDP it is recommended to take into account the developing needs and the funding capacity of GoG and donors as well as the absorption capac-ity of Ministry of Roads and Transport (MRT), the road agencies and other organisations in-volved. The policy of giving priority to mainte-nance should be respected.
6. Danida will fully support this recommendation in the appraisal of the RSDP and in future annual sector reviews (ASR).
7. As investments in the road sub-sector are based on different criteria, MRT could play a fa-cilitating role in developing a common approach, e.g. through defining a framework of standards, including (1) unit cost of construction/re-habilitation, (2) vehicle operating costs, (3) value of time, (4) opportunity cost of capital and (5) environmental, safety and additional socio-economic impact.
7. Danida agrees to this recommendation espe-cially if the standards are transparent and well documented.
ANNEX 1-TERMS OF REFERENCE
61
RECOMMENDATIONS FOLLOW-UP
8. Balancing equitable regional distribution, in-cluding investments in low-volume traffic roads and investments based on ‘sound economic prin-ciples’ needs to be further focused on. Both is-sues could possibly be combined through a multi-criteria approach.
8. A planned study – funded by Danida – sup-ports this recommendation.
9. Road standards should be harmonised. Given road conditions and traffic, the combination of these standards with typical unit prices for maintenance provides a method for determining annual budgets in a systematic way.
9. Danida agrees to this recommendation.
10. The Ghana Road Fund (GRF) should con-tinue to provide a financial basis for maintenance and rehabilitation works. Efforts should be made to further safeguard timely releases of funds. If future releases remain problematic a transfer of the funds to an account at a commercial bank should be considered. Furthermore, revenues should be increased according to schedule with emphasis on raising fuel levies. With the increas-ing financial basis of the GRF a debate should be initiated on future allocation of GRF funds. The benefits of the GRF should be communicated to the public to create support for the fund and for the principle of road user charging.
10. Danida will closely monitor the development of the GRF at the ASRs and the annual donors’ conferences as GRF is crucial to the sustainability of the sub-sector.
11. The private sector has come a long way un-der RSEP and currently a large share of the road works is done by the private sector. The GoG should continue to facilitate the development of the private sector in order to create a more ma-ture private sector that is able to compete on a domestic and international level.
11. Danida will continue to support the private sector in the TSPS with increasing emphasis on competitive bidding also on feeder road con-tracts.
12. Instead of a reduction in the amount of for-eign technical assistance (FTA), the evaluation period has witnessed a consolidation or even an increase in FTA as a result of the shortage of skilled engineering and accounting staff, the need for further training of employees and the depar-ture of engineers to the private sector. Also rela-tively new aspects such as safety and environ-ment, as well as issues such as poverty alleviation and gender issues, increase the need for FTA. FTA should clearly provide an added value. Some of the FTA activities can be done through local
12. Danida will continue carefully to consider the possibilities of using local technical assistance instead of FTA.
ANNEX 1-TERMS OF REFERENCE
62
RECOMMENDATIONS FOLLOW-UP
experts. For this purpose it could be considered to establish a database of local experts. In all in-stances but especially in the ‘new’ fields emphasis should be on transfer of knowledge. Therefore it is required to provide counterpart staff that can take over tasks and responsibilities once FTA terminates. 13. Environment and safety should receive greater priority from GoG, especially for staff increases and funding of recurrent expenditures. In addition, limited investments, especially in road safety, could well result in considerable gains. Environmental impact assessment needs to be applied for all projects and environmental as-pects should be monitored during implementa-tion.
13. Danida will continue to support the road safety and environmental units in Ghana High-way Authority. Danida already supports the preparation of a road safety strategy.
14. Disbursement procedures to contractors should be streamlined, amongst others through shortening payment approval procedures. At the same time, donor releases should follow pro-grammed levels. In order to get more grips on disbursements, all donors must provide MRT periodic status reports on Grants/Loans expendi-tures. At the same time quarterly reviews of im-plementation status by GoG and donors will fa-cilitate procurement and disbursement.
14. Danida agrees to this recommendation and will support that the capacity of GoG is strength-ened in order to take over programme ownership.
15. The axle load control programme should re-ceive priority. Putting great effort in improving road conditions is ineffective if at the same time damage caused through overloading is not tackled properly.
15. Danida agrees to this recommendation.
16. Co-operation between GoG and donors should be further pursued. Depending on donor willingness, procedures for implementation, monitoring, accounting and reporting should be harmonised. GoG planning and programming capacity needs to be further developed to move into a situation in which GoG can take pro-gramme ownership according to the Compre-hensive Development Framework principle.
16. Danida agrees to a strengthened donor co-ordination (e.g. Danida took the lead in the Joint Evaluation process). Danida will also be active in the CDF dialogue and take part in the RSDP ap-praisal in January 2001.
Date: 24. January 2001,
Signed by Ellen M. Løj, State Secretary
ANNEX 2-OFFICIAL LETTER MINISTRY OF ROADS AND TRANSPORT
ANNEX 2 –OFFICIAL LETTER MRT
ANNEX 3-RSDP OBJECTIVES AS STATED IN THE MARCH 2001 POLICY LETTER AND RSDP PERFORMANCE INDICATORS
ANNEX 3 - RSDP OBJECTIVES AS STATED IN THE MARCH 2001 POL-ICY LETTER AND RSDP PERFORMANCE INDICATORS RSDP OBJECTIVES AS STATED IN THE MARCH 2001 POLICY LET-TER
• Develop in-country capacity for Government institutions and the private sec-tor to coordinate and manage the road network efficiently;
• Ensure sustainable funding for the road sector program; • Road Sector Investment decisions will be based on sound socio-economic and
environmental principles that are sustainable; • Enhance the operational efficiency of the road network to promote economic
growth and the delivery of social services; • Integration of the road network with other modes of transport, which aims at
efficient transport system; • Development of comprehensive Road Safety Programme; • Mitigation of the negative environmental and social impact of the road related
activities. RSDP PERFORMANCE INDICATORS
• Road network condition mix improved from 35% good, 45% fair, and 20% poor in 2000 to 70% good, 20% fair, and not more than 10% poor by 2005.
• Average travel time between district capitals reduced by at least 15%. • Ratio of all road works carried out in the 4 northern regions over the grand to-
tal at least maintained over the 4-year period. • Percentage of communities within 10 km of a maintainable road increased by
10%. • The part of the feeder road network not maintained reduced by half. • Compliance with axle load limitations increased by 20%. • Number of vehicles inspected annually increased to 80% of total number of
vehicles registered
ANNEX 4-MEETING SCHEDULE FIELD STUDY
ANNEX 4 - MEETING SCHEDULE FIELD STUDY In the table below the meeting schedule of the field mission is presented. The field mission coincided with the World Bank’s mid-term review of RSDP. As a result the Joint Evaluation follow-up team could attend a number of jointly organised sessions, as outlined below. Date Morning Afternoon 11 April MRT Donor Co-ordination Unit, Danida MRT and agencies 12 April RSDP mid-term review: Presentation on
Institutional Reform Study RSDP mid-term review joint meeting: MRT, GHA, DFR, DUR, Road Fund, DVLA, NRSC
13 April European Commission IT Consultants 14 April MRT Monitoring and Evaluation Unit DUR, GHA, DFR 15 April RSDP mid-term review: Mid-Term Re-
view Workshop Ghana Road Fund
16 April 17 April
Review of documents, team discussion and meeting with Mr Abbey Sam
18 April Danida, RSDP mid-term review: Urban Transport Study
RSDP mid-term review: National Trans-port Policy, MRT
19 April RSDP mid-term review: Baseline studies of the impact of RSDP roads on Poverty Reduction
RSDP mid-term review: Road Conces-sioning Study
20 April Review of documents, debriefing at MRT
ANNEX 5-OVERVIEW ONGOING STUDIES IN THE TRANSPORT SECTOR
ANNEX 5 - OVERVIEW ONGOING STUDIES IN THE TRANSPORT SECTOR In the table below selected ongoing and recently completed studies in the transport sector are presented. Nr Title Client-
consultant Status
1 Review of axle load control policy & assistance in the implementation of the action plan
MRT/IT Transport
Supplementary report, 1st draft January 2005
2 Evaluation of the Management and Financing Ar-rangements for Road Maintenance
MRT-Danida/Mr Abbey Sam
Final Report, October 2003
3 Institutional Review of Mainstreaming of Envi-ronment, Social, Health and Safety Issues in the Roads Sector in Ghana
MRT-DFID/Atkins
Final Report, January 2005
4 Review of Local Construction Industry
MRT-M&E unit, Mr E Twumasi
Findings presented March/April 2004 in-spections
5 Proposals for the Reconstitution of the Road Con-tractors Classification Committee
MRT Findings presented Sep-tember 2003
6 Road Maintenance Project - Promotion Of Small And Medium Scaled Enterprises
GHA-GTZ/Mr Abbey Sam
March 2004
7 Preparation of the Economic, Financial, Technical and Administrative Framework for Road Conces-sion Projects in Ghana
MRT-World Bank/PWC
Interim Report, Novem-ber 2004
8 Institutional Study of the Transport Sector MRT-ADB/WSP
Interim Phase 1 Report, April 2005
9 Review of the Potential Impact of Multi-Donor Budget Support on the Road Sector
DFID/Terry Lawrence
Final Report published September 2003
10 Social and Environmental Monitoring Report on IDA Development and Maintenance Projects
GHA Report published Febru-ary 2005
11 National Baseline Studies of RSDP on Poverty Reduction
MRT-World bank/Optimal Consultancy Services
Second Progress Report, April 2005
12 Baseline Studies and Monitoring the Impact of the RSDP Roads on Poverty Reduction
MRT-World bank/Vision Consultancy
Interim results presented in May 2005
13 Social and Environmental Monitoring Report on IDA Development and Maintenance Projects
GHA Report published Febru-ary 2005
ANNEX 6–POLICY LETTER FEBRUARY 1996
ANNEX 6 - POLICY LETTER FEBRUARY 1996 Mr James Wolfenson World Bank 1818 H Street, N.W. Washington DC, 20433 U.S.A. RE: GHANA’S HIGHWAY SECTOR POLICIES AND OBJECTIVES This letter summarises the various policy measures which the Government will pur-sue to support implementation of its road sector strategy for 1995-2000. The letter deals first with the Government's medium-term economic and social development policies, second, with the background to the road sector; third with the Government's objectives for the road sector; and finally, with the various road sector policy issues, which the Government intends to tackle during the period up to 2000. Medium-Term Economic and Social Development Policies These policies have been designed to support the Government’s long-term vision which hopes to see Ghana transformed into a middle-income country by 2020. The medium-term programme supporting this vision, and covering the five years 1996-2000, aims to consolidate the gains so far secured over the past decade and to lay strong foundations for economic growth and development in the subsequent two decades. During the past decade, investment in economic infrastructure - energy, transport and communications - has dominated the Public Investment Programme (PIP). However, because of the excessive rot of the 1960s and 1970s, much still re-mains to be done. The current condition of infrastructure facilities and services still remain poor. One of the cornerstones of the medium term strategy is to promote more rapid rural development. Among other things, this will require provision of better transport ser-vices in rural areas, together with provision of well maintained roads and tracks. Sus-tainable economic growth at the national level will depend on creating an enabling environment which encourages private sector initiative, improves transport and communications facilities, and reduces Ghana's dependence on external aid, whilst maximising the effectiveness of the aid which is currently contributing to the coun-try’s development objectives. In the above context, transport and communications - including roads - will continue to receive a high allocation of development expenditures, although the proportion will be slightly lower than in previous years.
ANNEX 6–POLICY LETTER FEBRUARY 1996
Background to the Road Sector Road is the dominant form of inland transport, carrying about 94 percent of freight and 97 of passenger traffic. The balance of the traffic is mainly handled by the rail-ways. The private sector dominates the road transport industry and carries an esti-mated 85-90 percent of goods and passenger traffic, while the three state-owned parastatal companies carry the remaining 10-15 percent. However, in spite of its importance, the road sector is plagued by a serious lack of funds for maintenance, road sector institutions which suffer from important weak-ness, and a large backlog of rehabilitation work. In spite of previous efforts to catch up, 31 percent of trunk roads are still classified as being in poor condition (i.e. require rehabilitation or reconstruction), while 60 percent of rural roads are still in poor con-dition. Much work needs to be done to bring this down to the target level of less than 10 percent in poor condition set for 2005. Objectives for the Road Sector The Government’s principal objective is to clear the large backlog of maintenance on a sustainable long-term basis. To that end, it has adopted the following objectives for the road sector: (I) strengthening the organisational structure and institutional capacity of the various road agencies; (ii) clearing the backlog of rehabilitation and periodic maintenance work; (iii) basing road sector investment decisions on sound economic principles, and giving highest priority to routine and periodic maintenance; (iv) im-proving cost recovery to ensure that maintenance can be funded on a sustainable ba-sis; (v) promoting greater private sector involvement in both execution of works and financing of transport infrastructure; (vi) reducing dependence on foreign technical assistance and increasing training and performance of local staff; (vii) improving ca-pacity to evaluate the environmental impact of road schemes and design mitigation measures, (viii) regaining sector-wide discipline in expenditure management and con-trol, (ix) streamlining transport regulations, enforcing of axle weight regulations, en-hancing road safety, and improving traffic management; (x) giving priority to devel-opment of non-motorised transport and improving facilities for their use and (xi) strengthening donor co-ordination, and simplifying and improving procurement, monitoring and reporting procedures for donor supported and Government of Ghana programs. Proposed Policy Actions Institutional Capacity and Human Resource Development. In line with its objectives for the road sector, Government will (I) strengthen the institutional capacity of the three road agencies through staff training (both locally and abroad); (ii) develop the local construction and consulting industry, also through training (in both technical and business management subjects) and (iii) strengthen the three road agencies by
ANNEX 6–POLICY LETTER FEBRUARY 1996
strengthening financial discipline, increasing transparency and managerial accountabil-ity, and making Ghana Highway Authority (GHA) more autonomous. As part of this policy, Government will reorganise the Ministry of Roads and Highways (MRH), GHA, Department of Feeder Roads (DFR) and Department of Urban Roads (DUR) to enhance their efficiency and effectiveness. In the case of DFR and DUR, this would be carried out in line with the Government’s stated policy of decentralisation. In the process, Government will also restructure the Road Fund and strengthen ar-rangements for disbursement and auditing. Government will also reinstate the auton-omy and Board of the Ghana Highway Authority – and take other steps to ensure fi-nancial discipline – to emphasise the role of the Authority as a commercial, customer-oriented agency. These reforms will be written into a Roads & Highways Act, based on the current Ghana Highway Authority Decree, and other relevant legislation. Clearing the Backlog. Since the road sector provides broad based support to the eco-nomic development of Ghana – which emphasises accelerated growth of agriculture, tourism, trade and industry – the Government’s plan is to clear the backlog of main-tenance and, by introducing sustainable maintenance policies, to stabilise the condi-tion of the road network. The target for overall road conditions by 2005 is to have at lest 70 percent of the network in good condition, some 20 percent in fair condition and no more than 10 percent in poor condition. In that connection, Government has developed a medium term expenditure programme for 1995-2000 amounting to US$ 2.3 billion. This is an ambitious programme and would require an enormous increase in the level of donor financing compared to current levels. However, under the pro-posed Highway Sector Investment Project, Government has adopted a downsized programme amounting to US$ 1.56 billion in light of the resources likely to be avail-able (both locally and from external donors), and bearing in mind the medium term implementation capacity of the various road sector institutions. Of this amount, ap-proximately US$ 600 million (or 39 percent) would be for routine and periodic main-tenance, US$ 220 million (or 14 percent) for rehabilitation (including bridges), US$ 640 million (or 41 percent) for reconstruction and development and US$ 97 million (or 6 percent) for administration. Government will contribute US$ 890 million equivalent from its own resources including the Road Fund and the balance, US$ 670 million, is expected to be financed from external sources. Investment Priorities. To maximise net benefits to society, Government will base in-vestment decisions on sound economic principles, while at the same time giving due weight to an equitable regional distribution of road access. To protect the substantial investment already made in road infrastructure, highest priority will be given to rou-tine and periodic maintenance, followed by rehabilitation, reconstruction, upgrading and construction of new roads (mostly providing missing links in the existing net-work). Cost Recovery. The Government’s economic recovery programme emphasises the need to return to a system of market prices and to aim for full cost recovery for all
ANNEX 6–POLICY LETTER FEBRUARY 1996
economic services. In the road sector, the past pattern has been to finance mainte-nance and rehabilitation from general revenues. Since 1985, some of the revenues, were paid into a Road Fund. To meet the high financial requirements of the road sta-bilisation program, Government will gradually increase road user charges to ensure that all routine and periodic maintenance costs can be financed from the Road Fund. In particular, Government will progressively increase the fuel levy and introduce a new heavy vehicle license fee to ensure that heavy vehicles pay in full for the damage thy do to the road pavement. In urban areas, Government is already examining the possibility of introducing parking charges to help finance urban road schemes. For routine and period maintenance, the Road Fund will need to mobilise at least US$ 45 million in 1996, US$ 71 Million in 1997, US$ 99 million, in 1998, US$ 116 million in 1999 and US$ 126 million in 2000. This will be achieved by rationalising and increas-ing the Road Fund levy on fuel annually to achieve these stated targets. We expect this outlay of Road Fund will lead to an increase from the present level of 22 percent to 83 percent in 2000. To achieve the 1996 target, it is estimated that the Road Fund fuel levy will have to increase from the present average level of Cedis 16 (US Cents 1.5) per litre to Cedis 60 (US Cents 4.0) per litre. This increase could be achieved without necessarily increasing the pump price of fuel but resorting to an internal redistribution of the components of the pump price adjustment period (to full cost recovery), the balance of funds required for maintenance will come from external financing and from the Government’s consolidated revenues. Private Sector Contracting. To ensure cost-effective and efficient implementation of its programs in the road sector, Government intends to have an increasing share of civil works carried out by the private sector (domestic and international contractors). In this regard, Government will, by 1999, undertake all major roadwork and 90 per-cent of all road maintenance works through private sector contractors, rather than through force account. Government will accordingly reduce road agency staff in line with their reduced work load. Private Sector Financing. Government recognises that the shortage of public revenues limits its ability to meet the road sector’s requirements. In this regard, it intends to bring the private sector to invest in, and operate, selected roads under concession agreements. The proposed Roads & Highways Act will provide the enabling legisla-tion to permit Government to do this. Dependency on Foreign Technical Assistance. Ghana has increasingly depended on foreign technical assistance to carry out its accelerated development programs. The gradual transfer of work to Ghanaian nationals anticipated under these programs, to-gether with associated transfer of technology, has not been satisfactory. Govern-ment’s policy is therefore to enhance the sustainability of its development projects by internalising as much of the preparation, implementation, operation and management of its development projects by minimising long term foreign technical assistance and creating the right incentives to retain qualified and experienced local personnel.
ANNEX 6–POLICY LETTER FEBRUARY 1996
Environmental Assessment. The Government is mindful of the need to take the po-tential environmental impacts of road projects into account, and to use this informa-tion to redesign in consultation with the Ministry of Environment. First, Government will carefully monitor design and implementation of selected road projects which might have significant environmental impacts. Second, based on this hands-on ex-perience and available documentation on the environmental impacts of road consid-erations to be taken into account in design and courses based on the guideline. All concerned staff in the road agencies will be exposed to the training courses, and con-sultants will also be invited to participate. Control of Expenditure. A number of issues continue to persist in the area of finan-cial management and contract administration. There is a substantial imbalance be-tween approved budgets and the value of work done in the road sector. New projects are initiated each year, even though a large number of projects in the portfolio remain uncompleted. Outstanding payments to contractors from the previous year take up a high proportion of the annual approved budget. Finally, issuance of variation orders and price escalation due to delayed completion times result in substantial cost in-creases compared to original contract sums. To deal with these issues, Government will reach agreement with contractors on the settlement of arrears that have accrued up to December 1995. In the medium term the following additional actions will be taken: (I) clean up the existing portfolio by giving high priority, after maintenance, to allocation of resources to projects that are nearly complete and where necessary and feasible, suspending or terminating enviable contract; (ii) minimise award of new con-tracts as long as there are outstanding payments to contractors on ongoing projects and unless adequate design and engineering details have been prepared in advance and adequate provision of funds made for the duration of the contract; (iii) limit the cumulative value of variation orders issued on any contract to 25 percent of the origi-nal contract sum; (iv) enhance the capability of the road agencies in planning, pro-gramming and budgeting for mullet-year contracting; and (v) develop and install ap-propriate accounting and management information systems for monitoring the per-formance of each contract. Road Transport Regulations. The Government is in favour of encouraging private sector initiative, reorganising public sector organisations to make them more efficient and effective, and privatising parastatals which do not need to remain in public hands. This policy will continue to be applied to the transport sector, where passenger and freight transport has been deregulated, and the private sector encouraged to provide an increasing share of capacity. There are two areas where further improvements are planned: axle-weight controls and road safety. First, Government intends, within two years, to expand weight controls on all major roads by installing weigh bridges at key road locations, ports, production centres, key border crossing, and cocoa, wood and log collection centres. The Government also intends to explore the feasibility of hav-ing weigh bridges operated under contract by a private company. Second, the institu-
ANNEX 6–POLICY LETTER FEBRUARY 1996
tional arrangements for dealing with road safety will be strengthened. Government will review the function and composition of the National Roads safety Committee, put the Committee on a firm legislative basis by including it in the proposed Road & Highways Act, and will provide modest funds to the Committee through the restruc-tured Road Fund. Non-Motorised Transport. The Government is committed to continuing its support for non-motorised transport initiated under on-going Bank-financed projects. This will include developing and promoting non-motorised transport, as well as providing better facilities in urban areas for safe and effective us of non-motorised transport. Donor Co-ordination. Government recognises the value of having a co-ordinated road sector programme supported by all donors. To that end, Government will organise a road sector donors conference each year to streamline dialogue with donors and report on progress on implementation of, the road sector program, and projected plans for subsequent years. In the long term, Government intends to adopt common arrangements for implementing, monitoring, accounting, and reporting on all donor assisted and Government of Ghana projects. Yours sincerely, Kwame Peprah Minister of Finance
ANN
EX 7
–SU
MM
AR
Y O
F AC
TIO
NS
TAKE
N M
ATR
IX
ANN
EX
7 -
SUM
MAR
Y O
F AC
TIO
NS
TAK
EN
MAT
RIX
R
ecom
men
datio
nAc
tion
take
n 20
00-‘0
2 Sc
ore
Actio
n ta
ken
2003
-‘050
5 Sc
ore
Tot
al
scor
e 1.
M
onito
ring
and
evalu
a-tio
n of
RSD
P
• Th
e M
inist
ry o
f Roa
ds a
nd T
rans
port
and
its a
gen-
cies h
ave
take
n ow
ners
hip
of R
SDP
and
have
in
close
co-
oper
atio
n w
ith th
e do
nor c
omm
unity
, es-
peci
ally
the
Wor
ld B
ank,
pre
pare
d th
e pr
ogra
mm
e. A
ll do
nor a
ctiv
ities
in th
e ro
ad su
b-se
ctor
are
par
t of
the
RSD
P.
• RS
DP
defin
es o
bjec
tives
. The
ext
ent t
o w
hich
thes
e ob
ject
ives
are
mea
sura
ble
stro
ngly
relat
es to
the
quali
ty o
f the
per
form
ance
indi
cato
rs (s
ee b
elow
). Th
e ex
tent
to w
hich
the
obje
ctiv
es a
re a
chiev
able
is qu
estio
nabl
e, as
the
scop
e of
RSD
P is
quite
am
bi-
tious
. •
So fa
r, pe
rfor
man
ce in
dica
tors
hav
e on
ly pa
rtiall
y be
en u
sed
to st
ruct
urall
y m
onito
r per
form
ance
. The
ro
ad c
ondi
tion
mix
is m
onito
red
on a
n an
nual
basis
. Fo
r oth
er p
erfo
rman
ce in
dica
tors
, at b
est s
tudi
es a
re
plan
ned
to g
athe
r dat
a fo
r mon
itorin
g pu
rpos
es. N
o ba
selin
e st
udie
s hav
e be
en d
one.
Med
ium
•
In A
pril
2005
the
mid
-term
revi
ew o
f RSD
P to
ok
plac
e. Bi
later
al m
eetin
gs w
ere
held
bet
wee
n a
Wor
ld B
ank
deleg
atio
n an
d G
oG re
pres
enta
tives
an
d a s
eries
of j
oint
mee
tings
in w
hich
a br
oad
rep-
rese
ntat
ion
of th
e do
nors
par
ticip
ated
took
plac
e. Ti
min
g is
rath
er la
te fo
r the
mid
-term
revi
ew, l
eav-
ing
limite
d tim
e to
take
rem
edial
actio
n, if
nee
ded.
•
Alth
ough
pro
gres
s is m
ade i
n re
latio
n to
the s
tate
d RS
DP
objec
tives
, a g
ener
al im
pres
sion
prev
ails t
hat
prog
ress
is re
lativ
ely sl
ow, e
spec
ially
in re
latio
n to
th
e po
licy
refo
rm ac
tiviti
es.
• Th
e RS
DP
defin
ed p
erfo
rman
ce in
dica
tors
are
not
used
syste
mat
ically
to m
onito
r pro
gres
s of t
he p
ro-
gram
me.
Low
-m
ediu
m
Low
-m
ediu
m
2.
Dev
elop
a se
lf-m
onito
ring
syst
em
• A
wid
e ra
nge
of ac
tiviti
es re
lated
to m
onito
ring
and
evalu
atio
n ar
e ta
king
plac
e at
MRT
and
its ag
encie
s, e.g
. ann
ual r
eview
repo
rts as
inpu
t for
the
Don
ors
Conf
eren
ces,
mon
thly,
qua
rterly
and
annu
al pr
ogre
ss
repo
rts, p
rogr
amm
e im
plem
enta
tion
team
(PIT
) m
eetin
gs an
d ag
ency
impl
emen
tatio
n te
am (A
IT)
mee
tings
and
mid
-term
pro
gram
me
evalu
atio
n.
• A
t MRT
the
mon
itorin
g an
d ev
aluat
ion
unit
has e
x-pa
nded
its s
taff.
•
No
struc
tura
l self
-mon
itorin
g sy
stem
is in
plac
e.
Low
-m
ediu
m
• So
me
of th
e pr
omisi
ng in
itiat
ives
rega
rdin
g se
lf-m
onito
ring
that
wer
e lau
nche
d at
the
begi
nnin
g of
RS
DP
have
not
yet
bee
n fu
lly in
tegr
ated
in th
e op
-er
atio
ns o
f MRT
and
its ag
encie
s.
• Th
e pl
anne
d Bu
dget
ing
and
Publ
ic Ex
pend
iture
M
anag
emen
t Sys
tem
s (BP
EM
S) h
as n
ot b
ecom
e op
erat
iona
l yet
. •
The
two
trans
port
and
pove
rty st
udies
that
wer
e re
cent
ly lau
nche
d w
ill lo
ok at
the
impa
ct o
f par
t of
the
RSD
P pr
ogra
mm
e on
pov
erty
redu
ctio
n.
Low
-m
ediu
m
Low
-m
ediu
m
ANN
EX 7
–SU
MM
AR
Y O
F AC
TIO
NS
TAKE
N M
ATR
IX
3.
Purs
ue re
or-
gani
satio
n of
th
e ro
ad su
b-se
ctor
• G
HA
staf
f was
redu
ced
to 3
,033
in 2
002
(staf
f lev
el in
19
99 w
as 3
,589
). H
owev
er, t
here
is st
ill a
vast
amou
nt o
f ex
cess
staf
f (re
quire
d sta
ff is
estim
ated
at 1
,744
). •
The e
nvisa
ged
retre
nchm
ent p
rogr
amm
e has
not
bee
n re
al-ise
d. In
abse
nce
of an
agre
emen
t on
a ret
renc
hmen
t pro
-gr
amm
e, fo
cus i
s on
how
to u
se ex
cess
staf
f in
optim
al w
ay, e
.g. th
roug
h us
ing
staff
for m
anni
ng o
f weig
hbrid
ges.
• Th
e sala
ry g
ap b
etw
een
the p
rivat
e and
pub
lic se
ctor
is
wid
enin
g.
Low
-m
ediu
m
• Th
e ret
renc
hmen
t pro
gram
me,
whi
ch w
as sc
hedu
led fo
r th
e RSD
P im
plem
enta
tion
perio
d di
d no
t mat
erial
ise in
th
e 200
3-05
per
iod
eithe
r and
seem
s to
have
lost
its
mom
entu
m. S
taff
redu
ctio
ns ar
e bas
ed o
n na
tura
l re-
tirem
ent,
resig
natio
n, si
ckne
ss an
d de
ath
and
are r
ela-
tively
lim
ited
in si
ze, a
s ind
icate
d in
the t
able
belo
w.
• Th
e sala
ry g
ap b
etw
een
publ
ic an
d pr
ivat
e sec
tor i
s not
na
rrow
ing.
• Th
e ide
a of e
stabl
ishin
g on
e roa
d au
thor
ity, i
ncor
pora
t-in
g th
e act
iviti
es o
f DFR
and
DU
R in
to G
HA
, is s
till
deba
ted.
Low
-m
ediu
m
Low
-m
ediu
m
4.
Dev
elop
a b
al-an
ced
train
ing
prog
ram
me
• A
stud
y on
orga
nisa
tiona
l dev
elopm
ent a
nd in
-cou
ntry
tra
inin
g fo
r sta
ff in
the r
oad
sub-
sect
or (O
DIC
T-P)
in-
clude
d a c
o-or
dina
ted
train
ing
prog
ram
me f
or th
e per
iod
2002
-04,
whi
ch w
as p
rodu
ced
base
d on
train
ing
need
s as-
sess
men
t.
Med
ium
•
MRT
is m
akin
g an
effo
rt to
cent
rally
man
age t
he tr
ain-
ing
activ
ities
and
MRT
and
its ag
encie
s sta
ff, es
pecia
lly
mid
dle m
anag
emen
t, ha
ve b
enef
ited
from
train
ing
pro-
gram
mes
. The
fund
ing
of th
e tra
inin
g pr
ogra
mm
es re
-m
ains a
don
ors’
affa
ir.
Med
ium
M
ediu
m
ANN
EX 7
–SU
MM
AR
Y O
F AC
TIO
NS
TAKE
N M
ATR
IX
5.
Follo
w c
autio
us
appr
oach
to-
war
ds d
ecen
-tra
lisat
ion
• D
UR
is ex
pand
ing
its sc
ope f
rom
cove
ring
six to
eigh
t m
unici
palit
ies.
• Fo
r fee
der r
oads
a pi
lot s
tudy
was
laun
ched
focu
sing
on si
x di
strict
s. A
s an
inte
rmed
iate s
tep
tow
ards
full
dece
ntra
lisa-
tion
the a
rea c
once
pt is
intro
duce
d.
• Lo
cal c
omm
uniti
es an
d in
tere
st gr
oups
hav
e par
ticip
ated
in
plan
ning
of r
ural
road
s int
erve
ntio
ns th
roug
h RP
M.
• Th
e ext
ent t
o w
hich
abov
e men
tione
d ap
proa
ch is
caut
ious
re
main
s que
stion
able,
espe
cially
giv
en th
e lac
k of
a cle
ar fi
-na
l res
ult o
f the
dec
entra
lisat
ion
proc
ess a
nd a
time p
ath
tow
ards
this.
The
area
conc
ept c
an b
e reg
arde
d as
an in
-te
rmed
iate,
caut
ious
step
tow
ards
full
dece
ntra
lisat
ion.
•
A d
ebat
e on
the o
ptim
al lev
el of
dec
entra
lisat
ion
is m
issin
g.
Med
ium
-hi
gh
• W
ith th
e Loc
al G
over
nmen
t Ser
vice
Act
200
3 in
plac
e, in
dica
tions
from
the M
inist
ry o
f Loc
al G
over
nmen
t and
Ru
ral D
evelo
pmen
t (M
LGRD
) are
that
the L
GS
coul
d be
ope
ratio
nal w
ithin
1-3
year
s. A
fter t
hat t
ime,
mos
t sta
ff at
regi
onal
and
distr
ict le
vels
will
be t
rans
ferre
d fro
m th
e lin
e min
istrie
s to
the L
GS.
•
A N
atio
nal D
ecen
tralis
atio
n A
ctio
n Pl
an d
evelo
ped
by
MLG
RD an
d en
dors
ed b
y Cab
inet
in 2
003
seek
s to
ad-
dres
s a n
umbe
r of d
ecen
tralis
atio
n im
plem
enta
tion
is-su
es, i
nclu
ding
a di
strict
dev
elopm
ent f
undi
ng m
odali
ty
that
aim
s at m
akin
g ad
ditio
nal r
esou
rces
avail
able
to lo
-ca
l gov
ernm
ents.
•
The d
ecen
tralis
atio
n po
licy h
as le
d D
FR an
d D
UR
to
purs
ue d
ecen
tralis
atio
n to
the D
istric
t Ass
embl
ies an
d M
unici
palit
ies re
spec
tively
. A g
radu
al ap
proa
ch is
pur
-su
ed, w
ith D
UR
and
DFR
step
by s
tep
expa
ndin
g th
eir
dece
ntra
l sco
pe, a
s out
lined
belo
w. A
disc
ussio
n on
the
optim
al lev
el of
dec
entra
lisat
ion
is ab
sent
. •
DU
R co
ntin
ues t
o ex
pand
its s
cope
from
eigh
t mun
ici-
palit
ies in
200
2 to
15
mun
icipa
lities
in 2
005.
The
focu
s of
the c
ollab
orat
ion
is on
main
tena
nce o
f urb
an ro
ads.
Rout
ine m
ainte
nanc
e is n
ow th
e ful
l res
pons
ibili
ty o
f the
m
unici
palit
ies, w
hile
DU
R ch
ecks
per
iodi
c main
tena
nce.
• D
FR h
as ex
pand
ed th
e esta
blish
men
t of D
WD
s, by
ad
ding
thre
e Nor
ther
n di
strict
s (W
est M
ampr
usi,
East
Mam
prus
i and
Gus
hieg
u).
The e
stabl
ishm
ent o
f DW
Ds
is in
line
with
GoG
’s po
licy o
f cre
atin
g th
e LG
S. T
he
DW
Ds a
re st
affe
d an
d eq
uipp
ed.
• Cu
rrent
ly, D
FR is
repr
esen
ted
by ar
ea en
gine
ers i
n 70
ar
eas,
as ag
ainst
40 ar
eas i
n 20
02.
• A
ccor
ding
to th
e Roa
d Fu
nd A
ct, d
irect
disb
urse
men
t to
DA
s is p
erm
itted
but
, with
the
exce
ptio
n of
som
e fun
ds,
this
facil
ity h
as n
ot b
een
used
.
Me-
dium
-hi
gh
Me-
dium
-hi
gh
ANN
EX 7
–SU
MM
AR
Y O
F AC
TIO
NS
TAKE
N M
ATR
IX
6.
Dev
elop
reali
s-tic
am
bitio
n lev
el of
RSD
P-pl
ace
prio
rity
on m
ainte
nanc
e
• Th
e sco
pe o
f RSD
P is
ambi
tious
: US$
1.2
bill
ion
for a
th
ree-
year
pro
gram
me.
Giv
en th
e size
of t
he fi
nanc
ing
gap
(out
of t
he p
rogr
amm
ed le
vels
of U
S$ 4
43 m
illio
n, U
S$
270
mill
ion
is co
mm
itted
, lea
ving
a fin
ancin
g ga
p of
US$
16
6 m
illio
n in
200
2) it
can
be st
ated
that
the f
inan
cing
ca-
pacit
y is i
nsuf
ficien
tly ta
ken
into
cons
ider
atio
n.
Low
-m
ediu
m
• Th
e RSD
P im
plem
enta
tion
perio
d w
as ex
tend
ed fr
om a
3-ye
ar p
erio
d to
a 5-
year
per
iod,
with
year
of c
ompl
etio
n no
w se
t at 2
005.
Fun
ding
gap
s hav
e rem
ained
, res
ultin
g in
the i
nabi
lity t
o ca
rry o
ut p
rogr
amm
ed ac
tiviti
es.
Low
-m
ediu
m
Low
-m
ediu
m
7.
Dev
elop
com
-m
on a
ppro
ach
for f
easib
ility
st
udie
s
• A
com
mon
appr
oach
for f
easib
ility
analy
sis h
as n
ot b
een
deve
lope
d. H
DM
-4 is
bec
omin
g th
e new
stan
dard
, at l
east
for t
runk
and
urba
n ro
ads.
How
ever
, inp
ut d
ata u
sed
in re
-ce
nt fe
asib
ility
stud
ies sh
ow a
disc
repa
ncy,
i.e. i
n op
portu
-ni
ty co
st of
capi
tal u
sed
(10%
, 12%
, 15%
) and
the b
enef
its
inclu
ded
in ca
lculat
ion
(veh
icle
oper
atin
g co
sts, t
rave
l tim
e sa
ving
s, ac
ciden
t red
uctio
n sa
ving
s, ad
ditio
nal s
ocio
-ec
onom
ic be
nefit
s).
• Ef
forts
are m
ade t
owar
ds a
calib
ratio
n of
HD
M-4
to ad
apt
to lo
cal c
ircum
stanc
es. F
urth
erm
ore,
engi
neer
ing
staff
is tra
ined
in u
sing
HD
M-4
. •
Feed
er ro
ads,
give
n th
e low
-vol
ume t
raffi
c cha
ract
er, a
re
asse
ssed
diff
eren
tly b
ased
on
a par
ticip
ator
y app
roac
h.
Low
-M
ediu
m
• H
DM
-4 is
pro
gram
med
to b
e use
d fo
r pre
para
tion
of
the 2
006-
2010
Stra
tegi
c Plan
of t
he ro
ad su
b-se
ctor
. •
Don
ors c
ontin
ue to
use
their
ow
n ap
proa
ch to
war
ds
feas
ibili
ty st
udies
in th
e roa
d su
b-se
ctor
. •
Tech
nica
l ass
istan
ce to
GH
A h
as h
elped
stre
amlin
ing
and
stand
ardi
satio
n in
GH
A’s
main
tena
nce p
roce
dure
s.
Med
ium
M
ediu
m
ANN
EX 7
–SU
MM
AR
Y O
F AC
TIO
NS
TAKE
N M
ATR
IX
8.
Prio
ritise
road
pr
ojec
ts b
ased
on
soun
d pr
in-
cipl
es
• N
o tra
nspa
rent
prio
ritisa
tion
proc
ess i
s in
plac
e. Pr
iorit
isa-
tion
is a c
ombi
natio
n of
econ
omic
justi
ficat
ion
and
‘pol
iti-
cal’
proc
esse
s. Th
e lat
ter a
pplie
s bot
h to
allo
catio
n to
the
agen
cies a
nd to
allo
catio
n w
ithin
the a
genc
ies.
• A
t GH
A p
re-fe
asib
ility
stud
ies fo
r tru
nk ro
ad n
etw
ork
wer
e car
ried
out.
Capi
tal a
nd m
ainte
nanc
e exp
endi
ture
s are
ra
nked
bas
ed o
n ec
onom
ic pr
incip
les (I
RR) u
sing
HD
M-4
. Lo
w tr
affic
ked
– po
or co
nditi
on ro
ads t
hat c
anno
t be c
on-
sider
ed w
ithin
the p
riorit
y ran
king
syste
m o
f hig
h tra
ffick
ed
road
s are
liste
d as
‘spe
cial c
onsid
erat
ion
case
s’.
• A
prio
ritisa
tion
met
hodo
logy
for f
eede
r roa
ds, t
he R
oad
Prio
ritisa
tion
Mod
el (R
PM),
has b
een
deve
lope
d, ta
king
in
to ac
coun
t the
prio
rities
of l
ocal
peop
le. R
PM is
appl
ied
on a
pilo
t bas
is an
d D
FR is
insti
tutio
nalis
ing
the m
odel.
•
For u
rban
road
s a co
mbi
natio
n of
econ
omic
crite
ria an
d cr
iteria
cons
ider
ing
the i
ncom
e lev
els o
f tar
gete
d be
nefic
iaries
is u
sed
to p
riorit
ise ac
tiviti
es.
Med
ium
•
GH
A an
d D
UR
cont
inue
to u
se a
com
bina
tion
of ec
o-no
mic
justi
ficat
ion
and
socio
-eco
nom
ic cr
iteria
, not
ably
acce
ssib
ility
and
oppo
rtuni
ty, f
or th
eir p
riorit
isatio
n pr
oces
s. •
Unt
il de
cent
ralis
atio
n de
velo
ps fu
rther
impe
tus,
DFR
w
ill es
pous
e the
virt
ues o
f the
RPM
and
its D
istric
t Par
-tic
ipat
ion
proc
ess (
by co
nsul
tatio
n). A
s suc
h it
rem
ains
outsi
de th
e dist
rict p
lanni
ng p
roce
ss an
d is
only
sus-
tain
ed b
y DFR
and
dono
r res
ourc
es. A
s suc
h it
has b
een
appl
ied, i
n w
hole
or in
par
t, by
DFR
to o
ther
feed
er
road
dev
elopm
ent p
rojec
ts fu
nded
by o
ther
don
ors
(IDA
), D
anid
a and
EU
) and
is c
urre
ntly
bein
g us
ed b
y K
fW co
nsul
tant
s to
prio
ritise
feed
er ro
ads i
n 13
dist
ricts
of A
shan
ti, B
rong
Aha
fo an
d V
olta
Reg
ions
.
Med
ium
M
ediu
m
9.
Har
mon
ise
road
stan
dard
s •
Road
des
ign
stand
ards
hav
e not
bee
n ha
rmon
ised
yet.
Ac-
tions
tow
ards
har
mon
isatio
n of
des
ign
stand
ards
are (
i) a
Road
Des
ign
Gui
de, (
ii) st
udies
for h
arm
onisa
tion
in p
ro-
gres
s, i.e
. ‘Te
chni
cal A
ssist
ance
tow
ards
an E
fficie
nt, E
ffec-
tive a
nd S
usta
inab
le M
anag
emen
t of M
ainte
nanc
e in
the
Road
Sub
-Sec
tor’.
•
Des
ign
stand
ards
are s
ubjec
t to
last-m
inut
e cha
nges
, e.g.
th
e des
ign
for t
he co
nstru
ctio
n of
one
-lane
brid
ges,
whi
ch
need
ed to
be ‘
adju
sted’
to tw
o-lan
e brid
ges.
• H
arm
onisa
tion
of m
ainte
nanc
e sta
ndar
ds w
as d
iscus
sed
early
200
2 am
ongs
t MRT
and
the a
genc
ies. A
s a re
sult
GH
A h
as ad
juste
d its
rout
ine m
ainte
nanc
e fro
m U
S$ 1
4 to
U
S$ 8
mill
ion.
Low
-m
ediu
m
• Th
e sta
tus o
n ro
ad st
anda
rds r
emain
s mor
e or l
ess t
he
sam
e com
pare
d to
the p
revi
ously
revi
ewed
per
iod.
Low
-m
ediu
m
Low
-m
ediu
m
ANN
EX 7
–SU
MM
AR
Y O
F AC
TIO
NS
TAKE
N M
ATR
IX
10. F
urth
er im
-pr
ove
road
fu
nd p
erfo
rm-
ance
• Si
nce 2
000
the r
eleas
es to
the G
RF h
ave
been
on
time.
• Fu
el lev
ies w
ere r
aised
in 2
001
by 8
0 Ce
dis:
from
150
to
230
Cedi
s. N
o in
crea
se in
fuel
levies
in 2
002
has t
aken
pl
ace.
Dela
y in
incr
ease
in fu
el lev
ies an
d de
prec
iatio
n of
th
e Ced
i aga
inst
the U
S$ h
as b
roug
ht fu
el lev
y lev
el to
so
me U
S Ce
nts 2
.7, w
hich
is fa
r fro
m th
e US
Cent
s 9.5
to
whi
ch th
e lev
y sho
uld
grad
ually
mov
e fro
m 1
996
to
2002
. •
The a
lloca
tion
of fu
nds i
s sub
ject o
f disc
ussio
n at
the R
oad
Fund
Boa
rd m
eetin
gs, i
n w
hich
priv
ate a
nd p
ublic
sect
or
parti
es ar
e rep
rese
nted
. •
In o
rder
to cr
eate
supp
ort f
or th
e GRF
, a se
ries o
f ‘fo
rum
s’ in
the r
egio
ns is
org
anise
d to
whi
ch al
l rele
vant
stak
e-ho
lder
s are
invi
ted
in o
rder
to d
iscus
s the
ben
efits
of t
he
GRF
.
Med
ium
-hi
gh
• Fu
el lev
ies w
ere r
aised
in 2
003
to 4
00 C
edis
per l
itre,
whi
ch w
as an
incr
ease
of 7
0% in
Ced
i ter
ms.
In 2
004
the
GoG
did
not
impl
emen
t the
plan
ned
fuel
levy i
ncre
ase,
but i
n 20
05 fu
el lev
ies w
ere i
ncre
ased
by 5
0% to
600
Ce
dis p
er li
tre, w
hich
is eq
uiva
lent t
o U
S Ce
nts 6
.5. T
his
amou
nt st
ill fa
lls sh
ort o
f the
envi
sage
d U
S Ce
nts 9
.5 p
er
litre
whi
ch w
as ag
reed
in 1
996,
how
ever
, the
fact
re-
main
s tha
t GoG
has
incr
ease
d its
fuel
levy p
er li
tre fr
om
150
Cedi
s in
2000
to 6
00 C
edis
in 2
005,
repr
esen
ting
a 40
0% in
crea
se in
a 5-
year
per
iod
in C
edi t
erm
s. Th
e pre
-se
nt p
olicy
is to
hav
e fue
l lev
ies at
US
Cent
s 9.5
per
litre
in
200
8.
• Fu
el lev
ies in
Ced
is ha
ve st
rong
ly in
crea
sed
in re
lativ
e te
rms (
fact
or 1
0 in
10
year
s). T
he fu
el lev
y dev
elopm
ent
in U
S$ sh
ows a
noth
er p
ictur
e. Fu
el lev
ies in
200
5 ar
e a
huge
incr
ease
com
pare
d to
200
2, h
owev
er, a
re al
mos
t at
the s
ame l
evel
of th
e 199
8 ra
te.
• O
ther
sour
ces o
f rev
enue
s, i.e
. brid
ge an
d ro
ad to
lls, v
e-hi
cle re
gistr
atio
n, ro
ad u
se, a
nd in
tern
atio
nal t
rans
it fe
es
do co
ntin
ue to
gro
w in
abso
lute
term
s. Th
e non
-fuel
levy r
even
ues a
ccou
nt to
less
than
10%
of t
otal
GRF
re
venu
es.
• Re
lease
s to
the
GRF
hav
e bee
n on
tim
e; sh
iftin
g th
e fu
nds t
o a c
omm
ercia
l ban
k is
no lo
nger
deb
ated
. •
The b
ases
of G
RF al
loca
tion
to th
e roa
d ag
encie
s hav
e no
t bee
n co
mpl
etely
cons
isten
t and
tran
spar
ent.
Allo
ca-
tion
prio
rities
(main
tena
nce f
irst)
are n
ot fu
lly re
spec
ted.
•
The C
ivil
Serv
ice D
epar
tmen
t sta
tus u
nder
whi
ch G
RF
Secr
etar
iat o
pera
tes,
restr
icts t
he G
RF in
its f
lexib
ility
an
d ab
ility
to e
mpl
oy co
mm
ercia
l prin
ciples
in h
andl
ing
day-
to-d
ay o
pera
tions
. Bes
ides
, the
fact
that
salar
ies ar
e no
w b
ased
on
the G
hana
Uni
vers
al Sa
lary S
truct
ure,
whe
reas
salar
ies o
f the
dire
ctor
and
two
seni
or st
aff w
ere
part
of d
onor
pro
gram
mes
unt
il M
ay 2
002,
mea
ns a
cons
ider
able
salar
y red
uctio
n.
Me-
dium
-
Me-
dium
-
ANN
EX 7
–SU
MM
AR
Y O
F AC
TIO
NS
TAKE
N M
ATR
IX
11. F
acili
tate
fur-
ther
priv
ate
sec-
tor p
artic
ipat
ion
• Th
e sha
re o
f priv
ate s
ecto
r par
ticip
atio
n (P
SP) r
emain
s hi
gh, a
s was
the
case
in th
e HSI
P ev
aluat
ion.
PSP
leve
ls ar
e ov
er 9
0 pe
rcen
t. •
Capa
city o
f priv
ate s
ecto
r, es
pecia
lly co
ntra
ctor
s, is
re-
gard
ed p
oor.
Train
ing
prog
ram
mes
are d
evelo
ped
to im
-pr
ove t
his s
ituat
ion.
•
GoG
tries
to b
ring
priv
ate s
ecto
r fin
ancin
g to
the r
oad
sub-
sect
or. S
teps
take
n ar
e (i)
a Bui
ld-O
pera
te-T
rans
fer
(BO
T) p
rojec
t is u
nder
revi
ew o
n th
e Acc
ra-K
umas
i roa
d an
d (ii
) a O
T po
licy f
ram
ewor
k is
now
und
er d
iscus
sion.
Med
ium
•
PSP
in m
ainte
nanc
e rem
ains h
igh
(> 9
0%).
•
The p
erfo
rman
ce o
f the
loca
l con
struc
tion
indu
stry c
on-
tinue
s to
be p
robl
emat
ic.
• A
SRO
C is
assis
ted
to p
ositi
vely
influ
ence
the c
onstr
uc-
tion
indu
stry.
•
The G
OG
cont
inue
s to
purs
ue th
e mer
its o
f brin
ging
in
priv
ate s
ecto
r mon
ey to
the r
oad
sub-
sect
or, f
ocus
ing
on
optio
nal i
ntro
duct
ion
of B
uild
-Ope
rate
-Tra
nsfe
r (BO
T),
Reco
nstru
ct-O
pera
te-T
rans
fer (
ROT)
and
Main
tain
-O
pera
te-T
rans
fer (
MO
T) sc
hem
es.
• U
pgra
ding
the
Acc
ra-K
umas
i roa
d in
to a
dual
carri
age-
way
at th
e tw
o en
ds, w
ith b
ypas
ses c
onstr
ucte
d ne
ar m
a-jo
r tow
ns o
n th
e rou
te, r
emain
s the
targ
eted
priv
ate s
ec-
tor f
inan
cing
show
case
.
Med
ium
M
ediu
m
12. F
ocus
of F
TA
on tr
ansf
er o
f kn
owle
dge
and
prov
idin
g ad
ded
valu
e
• O
vera
ll, th
ere i
s a te
nden
cy to
war
ds a
decr
ease
in th
e lev
el of
FTA
in th
e per
iod
2000
-’02.
•
FTA
is p
rovi
ding
adde
d va
lue;
it is
main
ly us
ed in
‘new
’ fie
lds,
such
as sa
fety
, env
ironm
ent a
nd d
ecen
tralis
atio
n.
Whe
n kn
owled
ge is
tran
sfer
red,
the l
evel
of F
TA is
de-
crea
sed.
•
In th
e ‘ne
w’ a
reas
, spe
cific
train
ing
has t
aken
plac
e, e.g
. an
over
seas
train
ing
prog
ram
me f
or ro
ad sa
fety
.
Med
ium
-hi
gh
• FT
A co
ntin
ues a
t app
roxi
mat
ely th
e sam
e rat
e as i
n th
e pe
riod
2000
-02.
FTA
at G
HA
has
dec
reas
ed (i
n th
e fie
lds o
f saf
ety a
nd m
ainte
nanc
e), w
hile
FTA
has
in-
crea
sed
at D
FR (D
FID
Man
agem
ent S
uppo
rt Te
am).
Me-
dium
-hi
gh
Me-
dium
-hi
gh
ANN
EX 7
–SU
MM
AR
Y O
F AC
TIO
NS
TAKE
N M
ATR
IX
13. I
ncre
ase
prio
r-ity
on
envi
ron-
men
t and
safe
ty
• Th
e Nat
iona
l Roa
d Sa
fety
com
miss
ion
(NRS
C) w
as es
tab-
lishe
d by
Par
liam
ent i
n 19
99 an
d ha
s bec
ome o
pera
tiona
l in
the p
erio
d 20
01-0
2 co
-ord
inat
ing
all ro
ad sa
fety
activ
i-tie
s.
• A
road
safe
ty an
d en
viro
nmen
t div
ision
has
bee
n se
t up
at
GH
A to
focu
s on
all sa
fety
and
envi
ronm
ent i
ssue
s aris
ing
from
pre
-con
struc
tion
to o
pera
tiona
l sta
ges.
•
Proc
urem
ent o
f the
serv
ice fo
r acc
iden
t dat
a col
lectio
n is
ongo
ing;
loca
l exp
erts
are t
rain
ed in
a br
oad
rang
e of r
oad
safe
ty as
pect
s; ph
ysica
l mea
sure
s to
stim
ulat
e roa
d sa
fety
ha
ve b
een
take
n.
• En
viro
nmen
tal i
mpa
ct as
sess
men
t (EI
A) i
s don
e for
all
new
pro
jects;
dus
t con
trol m
easu
res h
ave b
een
take
n by
co
ntra
ctor
s (ea
rth sp
eed
ram
ps),
with
adde
d ad
vant
age o
f co
ntrib
utin
g to
road
safe
ty.
Med
ium
-hi
gh
• A
ccor
ding
to a
revi
ew o
f Env
ironm
enta
l, So
cial,
Hea
lth
and
Safe
ty (E
SHS)
issu
es in
the r
oad
sub-
sect
or ‘E
SHS
issue
s hav
e ten
ded
to b
e im
plem
ente
d (a
nd fu
nded
) as a
re
sult
of d
onor
con
ditio
nalit
y with
out g
ener
atin
g bu
y-in
fro
m th
e rele
vant
Gha
naian
insti
tutio
ns. C
onve
rsely
G
oG ro
ads p
rojec
ts te
nd n
ot to
syste
mat
ically
bud
get
for E
SHS
costs
’.
• N
RSC
has d
evelo
ped
a Nat
iona
l Tra
nspo
rt St
rate
gy an
d N
atio
nal R
oad
Safe
ty A
ctio
n Pl
ans f
or 2
002-
03 an
d 20
04-0
5. N
RSC
is pr
epar
ing
for t
he 2
006-
10 R
oad
Safe
ty S
trate
gy.
• EI
A co
ntin
ues t
o be
com
mon
pra
ctice
for n
ew p
rojec
ts.
Med
ium
M
ediu
m
14. I
mpr
ove
dis-
burs
emen
t pro
-ce
dure
s to
con-
tract
ors a
nd
dono
r rele
ases
• Th
e arre
ars h
ave n
ot b
een
settl
ed, h
owev
er, a
larg
e am
ount
of
arre
ars h
ave
been
paid
off
in 2
002.
•
Proc
urem
ent p
roce
ss is
slow
, res
ultin
g in
dat
e of t
ende
r lag
ging
mon
ths b
ehin
d th
e (sc
hedu
led) c
omm
ence
men
t da
te fo
r the
wor
ks.
• D
urat
ion
of p
aym
ent t
o co
ntra
ctor
s thr
ough
GRF
has
sh
orte
ned
over
the l
ast t
wo
year
s, bu
t the
re is
still
room
for
impr
ovem
ent.
•
Don
or re
lease
s hav
e not
follo
wed
pro
gram
med
leve
ls.
• G
oG an
d do
nors
mak
e no
quar
terly
revi
ews o
n im
plem
en-
tatio
n sta
tus o
n a s
truct
ural
basis
. No
syste
m to
mon
itor
expe
nditu
re m
anag
emen
t and
cont
rol i
s in
plac
e, alt
houg
h M
RT h
as d
ecid
ed to
pro
cure
an ac
coun
ting
and
man
age-
men
t inf
orm
atio
n sy
stem
. •
Atte
mpt
s hav
e be
en m
ade b
y age
ncies
to in
stall
cont
ract
m
anag
emen
t sys
tem
s, w
hich
hav
e not
bee
n fu
lly o
pera
-tio
nal.
Low
•
With
tigh
tene
d co
ntro
l on
over
spen
ding
, esp
ecial
ly on
de
velo
pmen
t pro
jects
(co)
fund
ed th
ough
the c
onso
li-da
ted
budg
et, a
nd w
ith th
e new
Pro
cure
men
t Act
in
plac
e, th
e arre
ars p
robl
em h
as b
een
prac
ticall
y sol
ved.
So
me s
mall
er ar
rear
s cou
ld b
e bui
ldin
g up
in m
ainte
-na
nce a
nd/o
r min
or re
habi
litat
ion
wor
ks.
• Fi
nanc
ial, t
echn
ical a
nd p
rocu
rem
ent a
udits
are c
arrie
d ou
t on
an an
nual
basis
in o
rder
to p
rovi
de tr
ansp
aren
cy
and
acco
unta
bilit
y in
the u
se o
f the
com
bine
d fu
nds i
n th
e roa
d se
ctor
. •
MRT
mak
es q
uarte
rly p
rogr
ess r
epor
ts, p
rovi
ding
an ex
-te
nsiv
e ove
rview
of p
rogr
ess o
f the
impl
emen
tatio
n of
RS
DP
per a
genc
y. M
RT is
one
of t
he th
ree p
ilot m
inis-
tries
to in
corp
orat
e BPE
MS;
the s
yste
m is
not
ope
ra-
tiona
l yet
. •
Don
or re
lease
s are
still
beh
ind
on p
rogr
amm
ed le
vels.
Me-
dium
-hi
gh
Med
ium
ANN
EX 7
–SU
MM
AR
Y O
F AC
TIO
NS
TAKE
N M
ATR
IX
15. P
ut p
riorit
y on
ax
le lo
ad c
on-
trol
• Tw
o m
ore p
erm
anen
t weig
hbrid
ges a
re o
pera
tiona
l (be
-sid
es th
e tw
o ex
istin
g on
es in
Ofa
nkor
and
Asu
oyeb
oah)
. Fu
rther
mor
e, se
ven
weig
hbrid
ges h
ave b
een
insta
lled,
but
sti
ll ne
ed am
ong
othe
r thi
ngs e
lectri
c pow
er, w
ater
, sec
urity
lig
htin
g, fe
ncin
g of
stat
ion
and
furn
iture
. •
A p
orta
ble w
eighb
ridge
is in
stalle
d ne
ar T
ema h
arbo
ur to
‘ta
ckle’
ove
rload
ed tr
ansit
truc
ks. T
en p
orta
ble
weig
hbrid
ges a
re p
rocu
red
unde
r ID
A fi
nanc
ing
to b
e dis-
tribu
ted
to th
e reg
ions
. •
It sh
ould
be n
oted
that
the a
xle l
oad
prog
ram
me i
s aim
ed
at in
stalli
ng 2
7 pe
rman
ent a
nd 2
1 po
rtabl
e w
eighb
ridge
s. •
Ope
ratio
ns o
f ope
ratio
nal w
eighb
ridge
s rem
ain p
robl
em-
atic,
with
lim
ited
open
ing
hour
s, no
t a sy
stem
atic
way
of
weig
hing
truc
ks an
d av
ailab
ility
of a
ltern
ativ
e rou
tes.
• G
HA
inte
nds t
o pr
ivat
ise th
e m
anag
emen
t of t
he p
erm
a-ne
nt w
eighb
ridge
s. Th
e tra
inin
g an
d pr
ivat
isatio
n is
aimed
at
impr
ovin
g op
erat
iona
l per
form
ance
of t
he w
eighb
ridge
s.
Low
•
Slow
pro
gres
s in
impl
emen
ting
the a
xle l
oad
prog
ram
me
has l
ed a
grou
p of
don
ors t
o str
ongl
y app
eal f
or a
struc
-tu
red
appr
oach
tow
ards
the p
repa
ratio
n of
a po
licy
docu
men
t and
actio
n pl
an o
n ax
le lo
ad co
ntro
l. Pr
epar
a-tio
n fo
r the
dev
elopm
ent o
f suc
h a p
olicy
doc
umen
t and
ac
tion
plan
star
ted
in 2
003.
•
In 2
004
an A
xle
Load
Wor
king
Gro
up w
as es
tabl
ished
to
revi
ew an
d re
vise
the p
olicy
and
actio
n pl
an.
In D
e-ce
mbe
r 200
4 a r
epor
t was
pub
lishe
d en
titled
‘Rev
iew o
f A
xle L
oad
Cont
rol P
olicy
& A
ssist
ance
in th
e Im
ple-
men
tatio
n of
the A
ctio
n Pl
an’.
In F
ebru
ary/
Mar
ch 2
005
a Stu
dy T
our w
as o
rgan
ised
to le
arn
from
expe
rienc
es in
So
uth
Afri
ca, M
alaw
i, Ta
nzan
ia, G
erm
any a
nd B
ritain
. •
Find
ings
from
the S
tudy
Tou
r and
com
men
ts on
the
prev
ious
repo
rt, re
sulte
d in
a ne
w re
port,
as p
rese
nted
in
the R
SDP
Mid
-Ter
m R
eview
, inc
ludi
ng th
e (i)
Axl
e Lo
ad C
ontro
l Pol
icy; (
ii) th
e Act
ion
Plan
; (iii
) Cos
t-Be
nefit
Ana
lysis;
(iv)
Leg
al Co
mm
ents,
as w
ell as
Ter
ms
of R
efer
ence
for T
echn
ical A
ssist
ance
in h
elpin
g th
e A
xle L
oad
Wor
king
Gro
up to
impl
emen
t the
pol
icy an
d ac
tion
plan
; a W
eigh
Stat
ion
Loca
tion
Plan
and
Dra
ft Re
gulat
ions
. •
In 2
004
six w
eighb
ridge
stat
ions
wer
e ope
ratio
nal:
Yape
i, Bo
lgat
anga
, Ofa
nkor
, Auo
yboa
h, T
ema,
and
Afie
nya.
Thre
e out
of s
ix o
f the
weig
hbrid
ges o
pera
te
24-h
ours
/day
. One
addi
tiona
l weig
hbrid
ge st
atio
n in
Bo
goso
may
hav
e bec
ome o
pera
tiona
l ear
ly 20
05.
• A
ccor
ding
to th
e 4th
Qua
rter R
epor
t, pr
epar
ed b
y MRT
, bi
ddin
g do
cum
ents
for t
he p
rocu
rem
ent o
f 10
Porta
ble
Weig
h pa
ds h
ave
been
pre
pare
d an
d su
bmitt
ed to
the
Wor
ld B
ank.
The
tend
erin
g is
cont
inge
nt o
n th
e com
-pl
etio
n of
the A
xle L
oad
Stud
y com
miss
ione
d by
the
dono
rs.
Low
-m
ediu
m
Low
ANN
EX 7
–SU
MM
AR
Y O
F AC
TIO
NS
TAKE
N M
ATR
IX
16. F
urth
er im
-pr
ove
dono
r co
-ord
inat
ion
• Th
e con
cept
of p
rogr
amm
e app
roac
h ha
s bee
n ad
opte
d to
pl
ace a
ll do
nor i
nter
vent
ions
und
er th
e um
brell
a of R
SDP.
H
igh
• D
onor
s and
GoG
repr
esen
tativ
es co
ntin
ue to
co-
ordi
nate
their
activ
ities
thro
ugh
mon
thly,
qua
rterly
and
annu
al m
eetin
gs, s
uppo
rted
thro
ugh
the d
edica
ted
do-
nor c
o-or
dina
tion
unit
at M
RT. A
lthou
gh p
erso
ns, r
ep-
rese
ntin
g th
e don
ors’
orga
nisa
tions
com
e and
go,
the
spiri
t of c
o-op
erat
ion
rem
ains.
RSD
P ha
s pro
vide
d a
plat
form
in w
hich
each
don
or ca
n pl
ay it
s res
pect
ive
part.
Med
ium
M
e-di
um-
high
ANN
EX 8
–SU
MM
AR
Y O
F EF
FEC
TS M
ATR
IX
ANN
EX
8 -
SUM
MAR
Y O
F E
FFE
CTS
MAT
RIX
R
ecom
men
datio
n E
nvis
aged
effe
cts (
2000
) Ac
hiev
ed e
ffect
s (20
00-‘0
5)
Leve
l of
real
isat
ion
1. M
onito
ring
and
eval
uatio
n of
R
SDP
The c
omple
tion
of th
e eva
luatio
n of
RSE
P pr
ovide
s an
excel
lent o
ppor
tuni
ty to
prep
are f
or th
e mon
itorin
g and
evalu
a-tio
n of
the p
rogre
ss an
d pe
rform
ance
of th
e ne
w roa
d prog
ramm
e, RS
DP.
To f
acili
-ta
te th
is pr
ocess,
RSD
P ob
jectiv
es sh
ould
be se
t as c
lear a
s poss
ible,
where
poss
ible
with
clea
r, me
asur
able
and a
chiev
able
targe
ts. B
y doin
g so a
set o
f perf
orma
nce
indic
ator
s can
be d
evelop
ed al
lowin
g for
mo
nitor
ing a
nd ev
aluat
ion of
the p
ro-gra
mme.
The p
erfor
manc
e ind
icator
s can
be
used
in ba
selin
e stu
dies s
ervin
g as
refere
nce p
oints
for fu
ture
perfo
rman
ce
Mon
itorin
g an
d ev
aluat
ion
of R
SDP
allow
s po
licy
mak
ers t
o st
eer a
nd a
djus
t the
pro
-gr
amm
e w
here
nee
ded
and
to p
rovi
de re
levan
t le
sson
s lea
rned
that
can
feed
into
tran
spor
t po
licy
deve
lopm
ent i
n ge
nera
l and
spec
ifica
lly
into
the
deve
lopm
ent o
f the
new
, fol
low
-up
prog
ram
me.
Perf
orm
ance
indi
cato
rs, e
spe-
cially
whe
n lin
ked
to so
cio-e
cono
mic
and
pol-
icy re
lated
obj
ectiv
es, w
ill h
elp
to c
reat
e su
p-po
rt fo
r the
cur
rent
and
follo
w-u
p pr
o-gr
amm
e.
• Th
e jo
int a
ppro
ach
in e
valu
atin
g th
e RS
EP
(pre
viou
s pro
gram
me)
and
pr
epar
ing
the
RSD
P, i.
e. th
roug
h a
join
t pro
gram
me
in w
hich
bot
h G
oG a
nd d
evelo
pmen
t par
tner
s par
ticip
ated
, pre
vent
ed d
uplic
atio
n of
act
ions
and
ens
ured
tran
spar
ency
. •
The
16 re
com
men
datio
ns fr
om th
e Jo
int E
valu
atio
n co
nver
ge to
a
very
larg
e ex
tent
with
the
RSD
P po
licies
and
obj
ectiv
es a
s def
ined
in
Mar
ch 2
001,
indi
catin
g a
linka
ge b
etw
een
the
Join
t Eva
luat
ion
resu
lts
and
the
cont
ents
of R
SDP.
•
The
road
sub-
sect
or h
as n
ot b
een
able
to d
evel
op a
soun
d m
onito
ring
and
evalu
atio
n sy
stem
. The
per
form
ance
indi
cato
rs a
s def
ined
in
RSD
P ha
ve n
ot b
een
used
to st
ruct
urall
y m
onito
r RSD
P pe
rfor
m-
ance
. The
road
sub-
sect
or h
as n
ot b
een
able
to in
dica
te th
e co
ntrib
u-tio
n of
the
sect
or to
nat
iona
l dev
elopm
ent o
bjec
tives
. •
If th
e ro
ad su
b-se
ctor
thro
ugh
its R
SDP
and
futu
re (r
oad)
tran
spor
t pr
ogra
mm
es (c
ontin
ue to
) fail
to c
learly
indi
cate
its c
ontri
butio
n to
na
tiona
l dev
elop
men
t obj
ectiv
es, s
uch
as p
over
ty a
llevi
atio
n, th
roug
h a
well
-func
tioni
ng m
onito
ring
and
evalu
atio
n sy
stem
, the
road
sub-
sect
or m
ay ri
sk a
majo
r fun
ding
redu
ctio
n be
caus
e of
the
intro
duct
ion
of th
e M
DBS
syst
em.
Low
-med
ium
2.
Dev
elop
a s
elf-m
onito
ring
syst
em
As m
onito
ring a
nd ev
aluat
ion a
re con
sid-
ered
to be
come i
ncrea
singly
impo
rtant
in
time,
the G
oG co
uld, i
n co-
ordin
ation
wi
th th
e don
ors,
consid
er in
itiat
ing t
he
devel
opme
nt of
a sel
f-mon
itorin
g syst
em.
This
would
facil
itate
the p
olicy-
maki
ng
proce
dure
and w
ould
prep
are t
he G
oG fo
r fut
ure e
valua
tions
.
The
effe
cts a
re c
lose
ly re
lated
to th
e ef
fect
s fr
om R
ecom
men
datio
n 1,
i.e.
the
abili
ty to
st
eer t
he p
rogr
amm
e w
here
nee
ded
and
gene
r-at
e les
sons
lear
ned
as in
put f
or p
olicy
dev
el-
opm
ent.
Em
phas
is in
this
reco
mm
enda
tion
is on
self-
mon
itorin
g, w
hich
wou
ld p
lace
GoG
in
the
driv
er se
at o
f the
mon
itorin
g pr
oces
s an
d cr
eate
furth
er o
wne
rshi
p of
the
polic
y de
velo
pmen
t pro
cess
.
• Se
lf-m
onito
ring
will
help
GoG
in it
s pol
icy fo
rmul
atio
n pr
oces
s. Th
e lim
ited
prog
ress
mad
e in
self-
mon
itorin
g pr
even
ts th
e G
oG to
car
ry
out a
syst
emat
ic m
onito
ring
and
evalu
atio
n pr
oces
s with
con
tinuo
us
feed
back
in p
olicy
form
ulat
ion,
mak
ing
polic
y fo
rmul
atio
n to
a la
rge
exte
nt a
n ad
-hoc
affa
ir.
• A
n in
appr
opria
tely
func
tioni
ng se
lf-m
onito
ring
syst
em p
reve
nts a
so
und
deba
te o
n co
ntrib
utio
n of
the
road
sub-
sect
or to
nat
iona
l de-
velo
pmen
t obj
ectiv
es, e
.g. p
over
ty a
llevi
atio
n. G
iven
the
natu
re o
f M
DBS
this
may
resu
lt in
the
road
sub-
sect
or lo
sing
supp
ort.
Low
-med
ium
ANN
EX 8
–SU
MM
AR
Y O
F EF
FEC
TS M
ATR
IX
3.
Purs
ue re
orga
nisa
tion
of th
e ro
ad su
b-se
ctor
Th
e GoG
shou
ld pr
oceed
with
the r
eor-
gani
satio
n of
the r
oad
sub-
sector
insti
tu-
tions
. The
agen
cies s
hould
be fu
rther
brou
ght d
own
in si
ze an
d focu
s on
core
activ
ities.
A re
trenc
hmen
t pro
gramm
e for
sta
ff pr
eviou
sly in
volve
d in
force
acco
unt
need
s to b
e put
in pl
ace t
o allo
w or
gani
sa-
tions
to do
wnsiz
e. A
lthou
gh it
is re
alised
th
at ra
ising
salar
ies is
not
direct
ly wi
thin
th
e scop
e of M
RT, b
ut is
depe
nden
t on
gover
nmen
tal g
uide
lines,
effor
ts sh
ould
be
made
to b
ring s
alarie
s mor
e in
line w
ith
salar
ies pa
id in
the p
rivat
e sect
or, i
n or
der
to av
oid ou
tflow
of q
ualif
ied st
aff.
Thro
ugh
the
rest
ruct
urin
g of
the
agen
cies
it
was
env
isage
d to
incr
ease
the
tech
nica
l cap
ac-
ity o
f the
age
ncies
whi
ch w
ould
allo
w th
e ag
encie
s to
bette
r res
pond
to th
e ch
allen
ges
the
agen
cies a
re fa
cing
. The
retre
nchm
ent
prog
ram
me
wou
ld c
reat
e fin
anci
al m
eans
that
co
uld
be u
sed
mor
e ef
fect
ively
. The
env
isage
d sa
lary
adju
stm
ents
wou
ld h
elp
reta
in a
nd h
ire
quali
fied
staf
f.
• Th
e in
abili
ty to
laun
ch th
e re
trenc
hmen
t pro
gram
me
has l
eft t
he
agen
cies
, not
ably
GH
A, w
ith re
dund
ant s
taff
and
cons
eque
ntly
a sa
l-ar
y bu
rden
. At t
he sa
me
time,
not l
aunc
hing
the
retre
nchm
ent p
ro-
gram
me
has p
reve
nted
larg
e nu
mbe
r of s
taff
to b
ecom
e un
empl
oyed
. Cu
rren
tly, s
taff
redu
ctio
ns a
re b
ased
on
natu
ral r
etire
men
t, re
signa
-tio
n, si
ckne
ss a
nd d
eath
. •
As f
or th
e w
iden
ing
salar
y ga
p, o
ne sh
ould
be
awar
e th
at th
e pu
blic
sect
or p
rovi
des a
dditi
onal
bene
fits,
such
as h
ousin
g, tr
ansp
orta
tion
and
(fore
ign)
edu
catio
n, w
hich
may
com
pens
ate
for t
he sa
lary
gap.
It
is ne
verth
eles
s exp
ecte
d th
at th
e sa
lary
gap
betw
een
publ
ic an
d pr
i-va
te se
ctor
will
con
tinue
to p
ull t
alent
ed c
ivil
serv
ants
to th
e pr
ivat
e se
ctor
.
Low
-med
ium
4.
Dev
elop
a b
alan
ced
train
ing
prog
ram
me
The n
eed fo
r tra
ining
rema
ins h
igh. D
o-me
stic t
rain
ing p
rogra
mmes
shou
ld be
im
prov
ed a
nd gi
ven p
riorit
y over
overs
eas
train
ing.
Train
ing
prog
ram
mes
con
tribu
te to
cap
acity
de
velo
pmen
t in
the
road
sect
or, r
espo
ndin
g to
th
e ne
eds o
f the
tran
spor
t sec
tor i
n G
hana
. G
ivin
g pr
iorit
y to
dom
estic
train
ing
pro-
gram
mes
shou
ld in
crea
se th
e sc
ope
and
size,
and
cons
eque
ntly
the
impa
ct, o
f the
train
ing
prog
ram
mes
, as d
omes
tic p
rogr
amm
es a
re fa
r les
s exp
ensiv
e th
an th
e ov
erse
as tr
ainin
g.
• Th
ere
is a
clea
r ten
denc
y to
con
tinue
with
ove
rsea
s tra
inin
g, b
ased
on
a cle
ar d
eman
d (n
eed
for t
rain
ing,
inst
rum
ent t
o re
tain
staf
f) an
d su
p-pl
y (d
onor
s con
tinue
to fu
nd tr
ainin
g pr
ogra
mm
es, c
ontri
butin
g to
tra
nsfe
r of k
now
ledge
pol
icies
as s
tate
d in
the
dono
rs’ p
olici
es).
The
avail
abili
ty o
f a c
onst
ant a
nd c
onsid
erab
le su
pply
of o
vers
eas t
rain
ing
may
div
ert t
he a
ttent
ion
away
from
the
need
of s
ettin
g up
a st
rong
in-
coun
try tr
ainin
g pr
ogra
mm
e.
• Th
e re
com
men
datio
n to
redu
ce o
vers
eas t
rain
ing
did
not t
ake
into
co
nsid
erat
ion
one
impo
rtant
fact
or. T
he o
vers
eas t
rain
ing
pro-
gram
mes
hel
p to
reta
in st
aff.
GH
A, D
FR a
nd D
UR
indi
cate
hig
h re
-te
ntio
n ra
tes o
f ove
rsea
s tra
ined
staf
f. Th
e lat
ter i
s also
bas
ed o
n bo
nds t
hat n
eed
to b
e sig
ned
by tr
ained
staf
f, re
stra
inin
g th
em fo
r a
certa
in p
erio
d of
tim
e, e.g
. thr
ee y
ears
, for
edu
catio
n ab
road
. •
The
shar
e of
train
ing
fund
ed b
y do
nors
is su
ch, t
hat t
he su
stain
abili
ty
of th
e tra
inin
g pr
ogra
mm
es c
ould
be
ques
tione
d.
Med
ium
ANN
EX 8
–SU
MM
AR
Y O
F EF
FEC
TS M
ATR
IX
5.
Follo
w c
autio
us a
ppro
ach
tow
ards
dec
entra
lisat
ion
The c
autio
us ap
proa
ch fo
llowe
d in
the
decen
tralis
ation
proce
ss wi
thin
the ro
ad
sub-s
ector
is con
sidere
d goo
d pra
ctice.
A
sector
-wide
deba
te on
the o
ptima
l leve
l of
decen
tralis
ation
is re
comme
nded
, keep
ing in
mi
nd po
tentia
l dise
conom
ies of
scale
To fi
nd a
n op
timal
level
of d
ecen
tralis
atio
n,
i.e. t
o ba
lance
on
the
one
hand
effe
cts i
n im
-pr
oved
loca
l con
tribu
tion
to tr
ansp
ort p
olicy
m
akin
g an
d m
akin
g tra
nspo
rt po
licy
mor
e re
spon
sive
to lo
cal n
eeds
and
on
the
othe
r ha
nd k
eepi
ng a
co-
ordi
nate
d ap
proa
ch in
ap-
prop
riate
are
as a
nd n
ot c
reat
ing
dise
cono
mies
of
scale
.
• D
istric
ts a
nd M
unici
palit
ies a
re n
ow in
volv
ed in
the
plan
ning
, sele
c-tio
n, p
riorit
isatio
n an
d pr
epar
atio
n of
main
tena
nce
wor
ks, i
llust
ratin
g th
e sh
ifted
resp
onsib
ility
thro
ugh
dece
ntra
lisat
ion.
•
In th
e de
cent
ralis
ed p
riorit
isatio
n pr
oces
s of r
oad
wor
ks in
the
dis-
trict
s, a
bias
is n
otice
d to
war
ds re
habi
litat
ion
wor
ks o
ver m
ainte
nanc
e w
orks
. •
Dist
ricts
are
pos
itive
abo
ut th
e cr
eatio
n of
DW
Ds a
nd e
xpec
t tha
t it
will
con
tribu
te to
a m
ore
effic
ient m
anag
emen
t of p
ublic
infr
astru
c-tu
re. A
t the
sam
e tim
e, th
e bo
ttom
-up
cons
ulta
tion
and
prio
ritisa
tion
proc
ess o
f roa
d w
orks
is o
wne
d by
the
DA
s, co
ntrib
utin
g to
a se
nse
of re
spon
sibili
ty fo
r clo
ser s
uper
visio
n of
wor
ks.
• A
s a re
sult
of th
e re
lativ
ely
caut
ious
app
roac
h in
dec
entra
lisat
ion,
the
bodi
es in
volv
ed, i
.e. th
e M
LGRD
, DA
s, M
unici
palit
ies, D
UR
and
DFR
hav
e th
e ca
paci
ty to
abs
orb
the
proc
ess.
Med
ium
-hig
h
6.
Dev
elop
real
istic
am
bitio
n le
vel o
f RSD
P-pl
ace
prio
rity
on m
aint
enan
ce
The r
oad s
ub-se
ctor p
rogra
mme u
nder
RSE
P (th
e roa
d prog
ramm
e for
1996
-20
00) i
s con
sidere
d quit
e amb
itiou
s and
ha
s only
been
partl
y rea
lised
. In
devel
oping
a n
ew pr
ogram
me it
is re
comme
nded
taki
ng
into a
ccoun
t (1)
the d
evelop
ing n
eeds o
f the
roa
d sub
-secto
r, (2
) the
fund
ing ca
pacit
y of
GoG
and d
onors
and (
3) th
e abs
orptio
n ca
pacit
y of M
RT, t
he ag
encie
s and
othe
r org
anisa
tions
invo
lved i
n the
secto
r. Th
e po
licy o
f givi
ng pr
iority
to m
ainten
ance
shou
ld be
resp
ected
To d
esig
n a
prog
ram
me
that
opt
imall
y re
-sp
onds
to th
e ne
eds o
f the
sect
or a
nd st
ruc-
tura
lly im
prov
es th
e ro
ad n
etw
ork
cond
ition
s an
d is
in li
ne w
ith a
bsor
ptio
n ca
pacit
y of
the
sect
or a
nd fu
nds a
vaila
ble.
This
impl
ies
achi
evab
le ta
rget
s and
a p
rogr
amm
e ab
le to
de
liver
the
targ
ets,
base
d on
bes
t pos
sible
allo-
catio
n of
fund
s.
Prio
ritisi
ng m
ainte
nanc
e ov
er d
evel
opm
ent
wor
ks re
sults
in p
rese
rvat
ion
of e
xist
ing
asse
ts
and
high
er re
turn
s on
inve
stm
ent.
• Th
e co
nditi
on m
ix ta
rget
(70:
20:1
0) w
as sh
ifted
forw
ard
to 2
008.
The
RS
DP
cond
ition
mix
targ
et is
set a
t 59:
27:1
4 fo
r the
end
of t
he p
ro-
gram
me
(200
6).
• La
ck o
f main
tena
nce
resu
lts in
acc
elera
ted
dete
riora
tion
of th
e ro
ad
netw
ork
and
the
need
to re
habi
litat
e th
e ro
ad n
etw
ork,
whi
ch c
omes
at
con
sider
ably
hig
her c
osts
(com
pare
d to
main
tena
nce
cost
s).
• Th
e ex
pand
ed n
etw
ork
leads
to h
ighe
r main
tena
nce
need
s, re
sulti
ng
in th
e ne
ed fo
r a h
ighe
r main
tena
nce
budg
et. I
f the
cur
rent
main
te-
nanc
e bu
dget
is in
suff
icien
t to
cove
r the
main
tena
nce
need
s, th
e po
l-icy
to e
xpan
d th
e len
gth
of th
e m
ainta
inab
le ro
ad n
etw
ork
is qu
es-
tiona
ble.
Low
-med
ium
ANN
EX 8
–SU
MM
AR
Y O
F EF
FEC
TS M
ATR
IX
7.
Dev
elop
com
mon
app
roac
h fo
r fea
sibi
lity
stud
ies
As i
nvest
ment
s in
the r
oad
sub-
sector
are
based
on d
iffere
nt cr
iteria
, MRT
could
pla
y a fa
cilita
ting r
ole in
devel
opin
g a
commo
n ap
proa
ch, e
.g. th
roug
h de
fining
a
frame
work
of st
anda
rds,
inclu
ding (
1)
unit
cost o
f con
struc
tion/
rehab
ilitat
ion,
(2) v
ehicl
e ope
ratin
g cost
s, (3
) valu
e of
time,
(4) o
ppor
tuni
ty cos
t of c
apita
l and
(5
) env
ironm
enta
l, sa
fety a
nd a
dditi
onal
socio-
econo
mic i
mpac
t.
To c
reat
e a
com
mon
and
gen
erall
y ac
cept
ed
appr
oach
tow
ards
pro
ject a
ppra
isal,
thro
ugh
whi
ch a
ll pr
ojec
ts a
re w
eighe
d ag
ainst
the
sam
e, ac
cept
ed c
riter
ia. B
y do
ing
so, a
bias
to
war
ds c
erta
in p
rojec
ts is
pre
vent
ed.
• N
ot st
anda
rdisi
ng th
e ap
proa
ch to
war
ds p
riorit
isatio
n of
road
wor
ks
and
leavi
ng th
is pr
oces
s up
to in
divi
dual
parti
es, s
uch
as ro
ad a
genc
ies
or d
onor
s, re
sults
in a
bias
tow
ards
cer
tain
pro
jects
and
sub-
optim
al ro
ad p
rogr
amm
es fr
om a
nat
iona
l per
spec
tive.
•
The
use
of H
DM
-4 a
s the
com
mon
tool
for f
easib
ility
stud
ies h
as
cont
ribut
ed to
war
ds th
e ha
rmon
isatio
n. H
owev
er, u
se o
f HD
M-4
, e.g
. th
roug
h in
put d
ata,
is no
t yet
har
mon
ised.
Med
ium
8.
Prio
ritis
e ro
ad p
roje
cts b
ased
on
soun
d pr
inci
ples
Ba
lancin
g equ
itable
regio
nal d
istrib
ution
, in
cludin
g inv
estme
nts i
n low
-volum
e tra
ffic
road
s and
inves
tmen
ts ba
sed on
‘sou
nd
econo
mic p
rincip
les’ n
eeds t
o be f
urth
er foc
used
on. B
oth is
sues
could
possi
bly b
e com
bined
thro
ugh
a mu
lti-cr
iteria
ap-
proa
ch.
To a
rriv
e at
a tr
ansp
aren
t prio
ritisa
tion
proc
-es
s in
whi
ch c
riter
ia, e
.g. e
cono
mic
retu
rn,
regi
onal
dist
ribut
ion,
pov
erty
redu
ctio
n, e
tc
are
clear
ly de
fined
. Thi
s, es
pecia
lly if
bas
ed o
n a
stak
ehol
ders
’ con
sulta
tion
proc
ess,
wou
ld
cont
ribut
e to
the
crea
tion
of su
ppor
t for
the
road
sect
or p
rogr
amm
e.
• Th
roug
h co
mbi
ning
eco
nom
ic ju
stifi
catio
n an
d so
cio-e
cono
mic
crite
-ria
in th
e G
HA
and
DU
R pr
iorit
isatio
n pr
oces
s, a
mor
e ba
lance
d pr
oces
s is t
o be
exp
ecte
d. It
shou
ld b
e no
ted
that
the
actu
al ef
fect
s hi
ghly
depe
nd o
n th
e ch
osen
set s
ocio
-eco
nom
ic cr
iteria
and
the
weig
ht o
f tho
se c
riter
ia.
• Th
e RP
M, w
ith it
s par
ticip
ator
y ap
proa
ch re
sults
in a
road
prio
ritisa
-tio
n pr
oces
s res
pond
ing
to lo
cal d
eman
ds.
Med
ium
9.
Har
mon
ise
road
sta
ndar
ds
Road
stan
dard
s sho
uld b
e har
moni
sed.
Give
n ro
ad co
nditi
ons a
nd tr
affic,
the
combin
ation
of th
ese st
anda
rds w
ith ty
pi-ca
l uni
t pric
es for
main
tenan
ce, p
rovid
es a
meth
od fo
r dete
rmin
ing a
nnua
l bud
gets i
n a
system
atic
way.
Clea
rly d
efin
ed ro
ad st
anda
rds,
in c
ombi
natio
n w
ith a
dist
inct
set o
f uni
t rat
es (m
ater
ials,
la-bo
ur, e
tc),
facil
itate
s the
bud
getin
g pr
oces
s in
the
road
sub-
sect
or. F
urth
erm
ore,
it as
sists
ag
enci
es in
their
clie
nt ro
le in
relat
ion
to c
on-
tract
ors.
• N
otw
ithst
andi
ng th
e de
velo
pmen
t of r
oad
desig
n gu
idel
ines
, e.g
. th
roug
h th
e Ro
ad D
esig
n G
uide
at G
HA
, the
re is
not
yet
a se
t of
com
mon
road
stan
dard
s, ba
sed
on a
typi
cal r
oad
cate
goris
atio
n. T
his
has p
reve
nted
the
envi
sage
d ef
fect
s, i.e
. con
tribu
tion
to th
e bu
dget
ing
proc
ess a
nd th
e cl
ient
role
of th
e ag
enci
es, t
o m
ater
ialise
.
Low
-med
ium
ANN
EX 8
–SU
MM
AR
Y O
F EF
FEC
TS M
ATR
IX
10. F
urth
er im
prov
e ro
ad fu
nd
perfo
rman
ce
The G
RF sh
ould
contin
ue to
pro
vide a
fin
ancia
l bas
is for
main
tenan
ce an
d reh
a-bil
itatio
n wo
rks.
Effo
rts sh
ould
be m
ade
to fur
ther
safeg
uard
time
ly rel
eases
of
funds
. If f
utur
e rele
ases
remain
prob
lem-
atic
a tra
nsfer
of th
e fun
ds to
an
accou
nt
at a
comm
ercial
ban
k sh
ould
be co
nsid-
ered.
Furth
ermor
e, rev
enue
s sho
uld be
in
creas
ed ac
cordin
g to s
ched
ule w
ith em
-ph
asis
on ra
ising
fuel
levies
. With
the
incre
asin
g fin
ancia
l bas
is of
the G
RF a
deba
te sh
ould
be in
itiat
ed on
futu
re all
o-ca
tion
of G
RF fu
nds.
The (
futur
e) be
ne-
fits o
f the
GRF
shou
ld be
comm
unica
ted
to th
e pub
lic to
crea
te su
ppor
t for
the f
und
and
for th
e prin
ciple
of ro
ad u
ser ch
arg-
ing.
A g
ood
func
tioni
ng ro
ad fu
nd p
rovi
des s
uffi-
cien
t fun
ds th
at a
re ti
mely
relea
sed
for i
n th
e fir
st p
lace
road
main
tena
nce
and
if fe
asib
le,
addi
tiona
l pur
pose
s, e.g
. roa
d sa
fety
, roa
d re
-ha
bilit
atio
n an
d re
cons
truct
ion
wor
ks. A
s a
resu
lt th
e ro
ad n
etw
ork
will
be
pres
erve
d,
posit
ively
impa
ctin
g th
e ro
ad c
ondi
tion
mix
.
• Th
e gr
adua
l inc
reas
e in
fuel
levies
has
bro
aden
ed th
e fin
anci
al ba
sis o
f th
e G
RF. H
owev
er, n
ot a
ll re
venu
es a
re a
lloca
ted
to ro
ad m
ainte
-na
nce,
with
GRF
fund
s also
bein
g all
ocat
ed to
reha
bilit
atio
n w
orks
. Th
e bo
ttom
line
is th
at ro
ad m
ainte
nanc
e is
not f
ully
fund
ed th
roug
h th
e G
RF y
et.
• Ti
mely
relea
ses c
ontri
bute
to th
e ab
ility
to b
ette
r plan
main
tena
nce
wor
ks. E
vent
ually
this
may
resu
lt in
low
er u
nit p
rices
, as p
rem
ium
s on
late
paym
ents
will
be
take
n ou
t of u
nit p
rice
calcu
latio
ns.
• In
itial
figur
es in
dica
te th
at th
e gr
adua
l inc
reas
e of
fuel
levies
has
not
re
sulte
d in
dec
reas
ed fu
el co
nsum
ptio
n.
Med
ium
-hig
h
11. F
acili
tate
furth
er p
rivat
e se
c-to
r par
ticip
atio
n Th
e priv
ate s
ector
has
come
a lo
ng w
ay
unde
r RSE
P an
d cur
rently
a lar
ge sh
are
of th
e roa
d wor
ks is
don
e by t
he p
rivat
e sec
tor. T
he G
oG sh
ould
contin
ue to
facil
i-ta
te th
e deve
lopme
nt of
the p
rivate
secto
r in
orde
r to c
reate
a mor
e mat
ure p
rivat
e sec
tor th
at is
able
to com
pete
on a
dome
s-tic
and
inter
natio
nal l
evel.
Thro
ugh
outs
ourc
ing
of a
ctiv
ities
it is
in-
tend
ed to
cre
ate
a m
atur
e pr
ivat
e se
ctor
and
to
stim
ulat
e co
mpe
titio
n be
twee
n co
ntra
ctor
s, po
sitiv
ely a
ffect
ing
cont
ract
ors’
perf
orm
ance
in
term
s of v
alue
for m
oney
.
Alth
ough
bey
ond
the
scop
e of
the
desc
riptio
n of
the
reco
mm
enda
tion,
the
priv
ate
sect
or is
lo
oked
at t
o in
vest
in th
e ro
ad se
ctor
. As a
co
nseq
uenc
e fu
nds w
ill b
ecom
e av
ailab
le to
th
e se
ctor
, res
ultin
g in
an
impr
oved
road
net
-w
ork.
The
add
ition
al co
nseq
uenc
e m
ay b
e a
road
use
cha
rge,
mos
t lik
ely th
ough
tolli
ng,
affe
ctin
g th
e ac
cess
ibili
ty o
f the
road
net
wor
k.
• O
utso
urci
ng o
f main
tena
nce
and
cons
truct
ion
wor
ks is
a w
orld
wid
e ph
enom
enon
, bas
ed o
n th
e co
ncep
tion
that
the
priv
ate
sect
or is
ca-
pabl
e of
car
ryin
g ou
t the
se w
orks
mor
e ef
ficien
tly. I
n or
der t
o re
ap
the
bene
fits o
f out
sour
cing
, cer
tain
con
ditio
ns m
ust b
e m
et, s
uch
as
capa
city
of t
he lo
cal i
ndus
try; c
apac
ity to
car
ry o
ut th
e cl
ient
role
and
th
e op
portu
nity
to d
owns
ize
the
orga
nisa
tion
(the
forc
e ac
coun
t). A
s in
dica
ted
abov
e, th
ere
is am
ple
room
for i
mpr
ovem
ent i
n th
e cl
ient
s’ an
d co
ntra
ctor
s’ ca
pacit
y. Th
e in
abili
ty to
impl
emen
t a re
trenc
hmen
t pr
ogra
mm
e at
GH
A c
reat
es la
rge
num
bers
of r
edun
dant
staf
f.
• Pr
ivat
e se
ctor
fina
ncin
g ha
s not
yet
mat
erial
ised.
Med
ium
ANN
EX 8
–SU
MM
AR
Y O
F EF
FEC
TS M
ATR
IX
12. F
ocus
of F
TA
on tr
ansf
er o
f kn
owle
dge
and
prov
idin
g ad
ded
valu
e FT
A sh
ould
clear
ly pr
ovide
an
adde
d va
lue. S
ome o
f the
FTA
activ
ities
can
be
done
throu
gh lo
cal e
xpert
s. Fo
r this
pur-
pose
it cou
ld be
cons
idered
to es
tablis
h a
datab
ase o
f loca
l exp
erts.
In al
l ins
tances
bu
t esp
eciall
y in
the ‘
new’
field
s emp
hasis
sh
ould
be on
tran
sfer o
f kno
wled
ge.
There
fore i
t is r
equir
ed to
pro
vide c
oun-
terpa
rt sta
ff th
at ca
n ta
ke ov
er tas
ks a
nd
respo
nsibi
lities
once
FTA
term
inates
.
FTA
is to
resu
lt in
sust
ainab
le ca
pacit
y de
vel-
opm
ent t
houg
h tra
nsfe
r of k
now
ledge
in a
reas
w
here
ther
e is
a di
rect
loca
l nee
d an
d w
here
ca
paci
ty is
lack
ing
• FT
A h
as p
rove
n to
be
an e
ffect
ive
inst
rum
ent i
n ca
pacit
y bu
ildin
g,
espe
ciall
y if
(i) th
e kn
owled
ge b
roug
ht in
is u
niqu
e an
d no
t dire
ctly
avail
able
thro
ugh
loca
l con
sulta
nts,
i.e. m
ostly
in ‘n
ew’ a
reas
, and
(ii)
the
expe
rtise
is p
rope
rly tr
ansf
erre
d to
loca
l exp
erts
. In
gene
ral,
ther
e is
a st
rong
beli
ef a
mon
gst t
he G
oG re
pres
enta
tives
that
FTA
has
tar-
gete
d ‘n
ew’ a
reas
, req
uirin
g ex
perti
se lo
cally
una
vaila
ble;
FTA
has
ad
ded
valu
e. •
The
prop
er tr
ansf
er o
f kno
wled
ge re
main
s a d
iffic
ult a
spec
t of F
TA.
For s
ome
of th
e pr
evio
usly
‘new
are
as’,
such
as r
oad
safe
ty a
t GH
A
and
NRS
C, th
ere
is a
sust
ained
nee
d fo
r FTA
. Thi
s can
also
be
con-
tribu
ted
to th
e lac
k of
staf
f tha
t is a
lloca
ted
to th
ese
task
s.
Med
ium
-hig
h
13.
Incr
ease
prio
rity
on e
n-vi
ronm
ent a
nd sa
fety
E
nviro
nmen
t and
safet
y sho
uld re
ceive
great
er pr
iority
from
GoG
, esp
eciall
y for
sta
ff in
creas
es an
d fun
ding o
f recu
rrent
ex
pend
itures
. In
addit
ion, l
imite
d inv
est-
ment
s esp
eciall
y in
road
safet
y cou
ld we
ll res
ult in
cons
idera
ble ga
ins.
Env
iron-
ment
al im
pact
asses
smen
t need
s to b
e ap
plied
for a
ll pr
ojects
and
envir
onme
ntal
aspe
cts sh
ould
be m
onito
red d
urin
g im-
pleme
ntat
ion.
The
clea
r env
isage
d ef
fect
is to
impr
ove
the
situa
tion
in ro
ad sa
fety
, i.e.
dec
reas
e th
e nu
m-
ber o
f acc
iden
ts a
nd ro
ad fa
talit
ies a
nd to
m
itiga
te th
e ne
gativ
e im
pact
of t
rans
port
on
the
envi
ronm
ent.
• La
ck o
f GoG
ow
ners
hip
with
rega
rds t
o E
SHS
issue
s in
relat
ion
to
the
road
sub-
sect
or c
ould
, if t
he in
trodu
ctio
n of
MD
BS p
ursu
es, u
lti-
mat
ely re
sult
in fe
wer
fund
s allo
cate
d to
the
road
sub-
sect
or. T
his a
s a
resu
lt of
the
inab
ility
to in
dica
te th
e im
pact
of E
SHS
relat
ed m
eas-
ures
. •
As f
or ro
ad sa
fety
per
form
ance
, roa
d fa
talit
ies h
ave
incr
ease
d, h
ow-
ever
, fat
ality
and
mor
talit
y ra
tes h
ave
decli
ned
since
the
intro
duct
ion
of R
SDP.
•
The
estim
ated
num
ber o
f per
sons
kill
ed in
road
acc
iden
ts in
200
4 (1
,859
) is c
onsid
erab
ly hi
gher
than
the
level
in 2
000
(1,5
78).
It sh
ould
be
not
ed th
at m
obili
ty h
as in
crea
sed
in th
is pe
riod
as w
ell. I
n ad
ditio
n,
it is
a gl
obal
phen
omen
on th
at in
dev
elopi
ng c
ount
ries w
ith ra
pidl
y ex
pand
ing
mot
orisa
tion,
road
fata
lities
tend
to in
crea
se, e
ven
in c
ases
of
act
ive
road
safe
ty p
olicy
. In
time
ther
e co
mes
a m
omen
t tha
t the
de
crea
se in
acc
iden
t risk
s as a
resu
lt of
road
safe
ty e
fforts
will
offs
et
the
incr
ease
d ris
ks re
sulti
ng fr
om in
crea
sed
mot
orisa
tion,
resu
lting
in
a de
crea
se o
f roa
d fa
talit
ies.
The
chall
enge
is to
acc
elera
te th
e pr
oces
s of
bre
akin
g th
e tre
nd o
f inc
reas
ing
road
fata
lities
. The
so-c
alled
2nd
ge
nera
tion
road
safe
ty p
rojec
t app
roac
h, a
s pro
mot
ed b
y th
e W
orld
Ba
nk, i
s gea
red
tow
ards
the
reali
satio
n of
this.
Med
ium
ANN
EX 8
–SU
MM
AR
Y O
F EF
FEC
TS M
ATR
IX
14. I
mpr
ove
disb
urse
men
t pro
-ce
dure
s to
cont
ract
ors a
nd
dono
r rel
ease
s D
isbur
semen
t proc
edur
es to
contra
ctors
shou
ld be
strea
mline
d, am
ongst
othe
rs th
roug
h sh
orten
ing p
ayme
nt a
ppro
val
proce
dures
. At t
he sa
me ti
me, d
onor
rel
eases
shou
ld fol
low p
rogra
mmed
level
s. In
orde
r to g
et mo
re gri
ps on
disb
urse-
ment
s, all
dono
rs mu
st pr
ovide
MRT
pe
riodic
stat
us re
ports
on G
rant
s/Lo
ans
expe
nditu
res. A
t the
same
time
qua
rterly
rev
iews o
f imp
lemen
tatio
n sta
tus b
y both
G
oG a
nd d
onor
s will
facil
itate
procu
re-me
nt a
nd di
sbur
semen
t.
Impr
oved
disb
urse
men
t to
cont
ract
ors w
ill
posit
ively
impa
ct th
e pl
anni
ng a
nd re
alisa
tion
of p
rojec
ts. I
n ad
ditio
n, ti
mely
disb
urse
men
t w
ill a
void
fina
ncial
clai
ms f
rom
con
tract
ors,
incl
udin
g in
tere
st p
aym
ents
, and
risk
pre
mi-
ums i
nclu
ded
in th
e fin
ancia
l bid
s, lo
wer
ing
unit
rate
. Ti
mely
don
or re
lease
s will
allo
w M
RT a
nd th
e ag
enci
es to
bet
ter p
lan th
eir a
ctiv
ities
.
• So
lvin
g th
e ar
rear
s pro
blem
has
impr
oved
the
road
sub-
sect
or’s
tech
-ni
cal a
nd fi
nanc
ial p
erfo
rman
ce, a
s no
fund
s nee
d to
be
alloc
ated
to
expe
nsiv
e ne
gotia
ted
cont
ract
s and
inte
rest
pay
men
ts. P
uttin
g a
sys-
tem
in p
lace
that
is ta
rget
ed to
war
ds a
rrea
rs p
reve
ntio
n, e
.g. t
hrou
gh
the
new
Pro
cure
men
t Act
, will
furth
er h
elp th
e su
b-se
ctor
to a
void
gl
idin
g ba
ck to
the
situa
tion
in th
e lat
e 90
s. •
Eff
orts
to im
prov
e te
chni
cal,
finan
cial a
nd p
rocu
rem
ent a
uditi
ng
help
s MRT
to fu
rther
stre
ngth
en it
s exp
endi
ture
man
agem
ent a
nd
cont
rol.
Med
ium
15. P
ut p
riorit
y on
axl
e lo
ad c
on-
trol
The a
xle l
oad c
ontro
l prog
ramm
e sho
uld
receiv
e prio
rity.
Putti
ng gr
eat e
ffort
in
impr
ovin
g roa
d con
dition
s is i
neffe
ctive
if at
the s
ame t
ime d
amag
e cau
sed th
roug
h ov
erloa
ding i
s not
tack
led pr
operl
y.
The
axle
load
pro
gram
me
is in
tend
ed to
avo
id
over
load
ing
and
to li
mit
the
dam
age
from
ov
erlo
adin
g, p
ositi
vely
impa
ctin
g th
e ro
ad
cond
ition
s.
• Th
e st
udy
repo
rt Re
view
of A
xle
Load
Con
trol P
olicy
& A
ssist
ance
in
the
Impl
emen
tatio
n of
the
Act
ion
Plan
inclu
des a
calc
ulat
ion
on th
e da
mag
ing
effe
ct o
f ove
rload
ing.
The
cos
t of r
oad
repa
irs is
est
imat
ed
at U
S$ 6
.5 m
illio
n pe
r ann
um. I
f Veh
icle
Ope
ratin
g Co
sts (
VO
C)
wou
ld b
e in
clude
d, a
nnua
l cos
ts w
ould
stro
ngly
incr
ease
to so
me
US$
30
mill
ion
per a
nnum
. •
Cost
-Ben
efit
Ana
lysis
, as p
rese
nted
in th
e sa
me
repo
rt, in
dica
tes a
n In
tern
al Ra
te o
f Ret
urn
(IRR)
of 3
4% fo
r the
cas
e in
whi
ch o
nly
road
da
mag
e co
sts a
re in
clude
d in
the
calcu
latio
n. If
save
d V
OC
wou
ld b
e in
clude
d, IR
R w
ould
be
at 1
09%
.
Low
ANN
EX 8
–SU
MM
AR
Y O
F EF
FEC
TS M
ATR
IX
16. F
urth
er im
prov
e do
nor c
o-or
dina
tion
Co-op
eratio
n be
tween
GoG
and
don
ors
shou
ld be
furth
er pu
rsued
. Dep
endin
g on
dono
r will
ingn
ess, p
roced
ures
for im
ple-
ment
ation
, mon
itorin
g, ac
count
ing a
nd
report
ing sh
ould
be h
armo
nised
. GoG
pla
nnin
g and
pro
gramm
ing c
apac
ity n
eeds
to be
furth
er de
velop
ed to
mov
e int
o a
situa
tion
in w
hich
GoG
can
take
pro-
gramm
e own
ership
acco
rding
to th
e Com
-pr
ehen
sive D
evelop
ment
Fra
mewo
rk
prin
ciple.
Impr
oved
don
or c
o-or
dina
tion
cont
ribut
es to
a
cons
orte
d ac
tion,
ow
ned
and
guid
ed b
y th
e G
oG, i
n w
hich
all
reso
urce
s are
pul
led to
-ge
ther
to c
ontri
bute
to a
com
mon
obj
ectiv
e.
Com
mon
pro
cedu
res a
nd jo
int e
fforts
, e.g
. in
appr
aisal,
con
sider
ably
low
er th
e ad
min
istra
-tiv
e bu
rden
on
GoG
, not
ably
MRT
and
the
agen
cies
.
• D
onor
co-
ordi
natio
n ha
s pro
vide
d an
are
na fo
r tra
nspo
rt po
licy
dia-
logu
e an
d fo
r all
partn
ers t
o pr
ovid
e th
eir p
artic
ular
inpu
t in
the
road
su
b-se
ctor
. Ind
ivid
ual d
onor
pro
gram
mes
are
pul
led to
geth
er u
nder
on
e ov
erar
chin
g, c
omm
on R
SDP
prog
ram
me.
The
mid
-term
revi
ew
coul
d pr
ovid
e a
basis
from
whi
ch th
e ne
w (r
oad)
tran
spor
t sec
tor d
e-ve
lopm
ent p
rogr
amm
e co
uld
be d
evel
oped
. •
The
fact
that
don
ors c
ontin
ue to
pur
sue
their
ow
n pr
oced
ures
, res
ults
in
a h
igh
adm
inist
rativ
e bu
rden
on
MRT
and
its a
genc
ies.
• D
onor
co-
ordi
natio
n ha
s for
ced
spec
ific
item
s on
the
trans
port
agen
da, e
.g. t
he a
rrea
rs p
robl
em, t
he a
xle
load
pol
icy
and
the
annu
al in
crea
se o
f fue
l lev
ies.
• Su
stain
ed M
DBS
dev
elop
men
t may
resu
lt in
a w
ithdr
awal
of d
onor
s’ (ro
ad) t
rans
port
expe
rts fr
om th
e se
ctor
, neg
ativ
ely im
pact
ing
the
abili
ty to
co-
ordi
nate
mat
ters
bet
wee
n G
oG a
nd d
onor
s on
a se
ctor
lev
el, a
s wel
l as t
he p
olicy
dial
ogue
bet
wee
n G
oG a
nd d
onor
s
Med
ium
-hig
h