Document of

The World Bank

FOR OFFICIAL USE ONLY

Report No. 16185

IMPLEMENTATION COMPLETION REPORT

COLOMBIA

SECOND RURAL ROADS SECTOR PROJECT(LOAN 3157-CO)

December 20, 1996

Infrastructure DivisionDepartment InLatin America and the Caribbean Region

This document has a restricted distribution and may be used by recipients only in the performance oftheir official duties. Its contents may not otherwise be disclosed without World Bank authorization.

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CURRENCY EQUIVALENTS

Currency Unit = Colombian Peso (Col $)(June each year)1990 - 497,321991 - 623,671992 - 677,171993 - 784,491994 - 831,161995 - 874,521996 - 1,069.11

WEIGHTS AND MEASURES

Metric System

FISCAL YEAR OF BORROWER

January 1-December 31

ABBREVIATIONS AND ACRONYMS

CGR Office of the Comptroller General of the RepublicCONPES National Council for Economic and Social PolicyCORPES Regional Planning CouncilsDNP National Planning DepartmentERR Economic Rate of ReturnRCF Roads Cofinancing Fund (under FINDETER)FINDETER National Fund for Territorial DevelopmentFNCV National Rural Roads FundGOC Govermnent of ColombiaIBRD International Bank for Reconstruction and DevelopmentIDB Interamerican Development BankICR Implementation Completion ReportINDERENA National Institute of Renewable ResourcesINVIAS National Institute of HighwaysMOPT Ministry of Public Works and Transport (up to 1993)MOT Ministry of Transport (from 1993 onward)NPV Net Present ValuePNR National Rehabilitation ProgramSAR Staff Appraisal ReportSPWs Secretariats of Public Works (Departmental)UDECOs Department's Cofinancing Offices

Vice President: Shahid Javed BurkiDirector: Paul Isenman, LA3DRDivision Chief: Peter Ludwig, LA31NTask Manager: Jose Luis Irigoyen, LA3IN

FOR OFFICIAL USE ONLY

TABLE OF CONTENTS

PREFACE ........................................... iEVALUATION SUMMARY ........................................... iPART I. PROJECT IMPLEMENTATION ASSESSMENT ........................................... 1

A. STATEMENT/EVALUATION OF OBJECTIVES ........................................... 1B. ACHIEVEMENT OF OBJECTIVES ........................................... 1C. MAJOR FACTORS AFFECTING THE PROJECT .......................................... 7D. PROJECT SUSTAINABILITY ..... 9.....................................9E. BANK PERFORMANCE .......................................... 10F. BORROWER PERFORMANCE .......................................... 13G. ASSESSMENT OF OUTCOME .......................................... 14H. FUTURE OPERATIONS .......................................... 15I. KEY LESSONS LEARNED .......................................... 17

PART II. STATISTICAL ANNEXES .......................................... 21Table 1: Summary of Assessments .......................................... 21Table 2: Related Bank Loans/Credits .......................................... 22Table 3: Project Timetable .......................................... 23Table 4: Loan Disbursement .......................................... 23Table 5: Key Indicators for Project Implementation .......................................... 24Table 6: Key Indicators for Project Operation .......................................... 25Table 7: Studies Included in Project .......................................... 25Table 8A: Project Costs (1) .......................................... 26Table 8B: Project Financing(l) .......................................... 26Table 9: Economic Cost and Benefits .......................................... 27Table 10: Status of Legal Covenants .......................................... 28Table 11: Compliance with Operational Statements .......................................... 31Table 12: Bank Resources: Staff Inputs .......................................... 31Table 13: Bank Resources Missions .......................................... 32Appendix A: Completion Mission's Aide Memoire .......................................... 34Appendix B: Borrower's Contribution to the ICR .......................................... 61

This document has a restricted distribution and may be used by recipients only in the performance of theirofficial duties. Its contents may not othenvise be disclosed wiLhout World Bank authorization.

IMPLEMENTATION COMPLETION REPORT

COLOMBIA

SECOND RURAL ROADS SECTOR PROJECTLOAN 3157-CO

PREFACE

This is the Implementation Completion Report (ICR) for the Second Rural Roads Sector Project inColombia, for which Loan 3157-CO in the amount of US$55 million equivalent was approved on January16, 1990 and made effective on June 6, 1990.

The original closing date was December 31, 1995. The loan was 99.97% disbursed, and the lastdisbursement took place on May 9, 1996, without extension of the closing date. Undisbursed funds in theamount of US$13,865.71 equivalent were canceled on May 9, 1996.

The ICR was prepared by Messrs. Jose Luis Irigoyen (LA31N) and German Ospina (Consultant),and reviewed by Messrs. Peter Ludwig (Division Chief, LA3IN) and Robert Crown (Project Adviser,LA3DR) of the Latin America and the Caribbean Region.

Preparation of the ICR was begun during the Bank's final supervision mission in November 1995.It is based on material in the project file and discussions with the Borrower. The Borrower contributed topreparation of the ICR by conducting an ex-post evaluation of a sample of road subprojects financed underthe loan, preparing an operational plan, and providing statistical data and a retrospective assessment of theproject.

I

EVALUATION SUMMARY

SECOND RURAL ROADS SECTOR PROJECTLOAN 3157-CO

COLOMBIA

Introduction

The project followed two previous successful operations (Loans 1966-CO and 2668-CO) in the rural roadsubsector in Colombia.

Project objectives

The main goal of the project was to contribute towards achieving the country's economic and social goals(expand markets and reduce poverty in rural areas) by: (a) helping classify the road network and definefunctions and responsibilities of national, regional and local (municipal) authorities, and develop,strengthen and organize accordingly their institutional capacity for managing rural roads activities; (b)ensuring over a realistic time frame, satisfactory implementation of key policies in the roads sector; (c)consolidating positive institution-building advances in road management initiated by FNCV under the RuralTransport Sector Project (Loan 2668-CO) and during preparation of this project, especially inprogramming and supervision of civil works, strengthening of FNCV's Regional Offices and organizing themaintenance activities; and (d) contributing to financing a balanced four-year investment and maintenanceprograms (para. 1).

Implementation experience and results

The consolidation of the institutional advances within FNCV progressed satisfactorily until 1993, includingthe strengthning of its Regional Offices. However, this consolidation was later offset by the liquidation ofFNCV mandated by the drastic decentralization agenda followed by the Government upon the approval ofthe 1991 Constitution. The liquidation of FNCV entailed retrenching about 1,600 staff and closing 15 outof the 24 Regional Offices. In spite of the disruptions created by the retrenchment program, FNCVsubstantially accomplished the objective of completing a four-year investment and maintenance program,with the exception of routine maintenance. The sector policy objectives, including a cofinancing systemwith municipalities and road funding strategies, were largely achieved, or are expected to be achieved onceGovernment completes the implementation of its decentralization policies. The study on funding strategiesmade a valuable contribution highlighting the existing imbalances between responsibilities, capacity andfinancial resources, an aspect probably overlooked initially by the reform but that now is gaining supportamong the sector authorities. The road classification and inventory completed early in the project became akey instrument during implementation of the sector reforms, first defining responsibilities among the threelevels of government, and later, supporting the transfer of secondary and rural roads to the departments.(paras 15 - 17).

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With project funds, FNCV achieved the following physical targets: (a) construction of about 776 km ofrural roads (or about 97% of the target planned at appraisal); (b) improvements on about 1053 km of roads(or about 81% of the target); (c) construction of about 1,134 meters of small bridges (or about 101% of thetarget); and (d) periodic maintenance on about 1,239 km of roads (or 55% of the initial target). Theshortfall in periodic maintenance is compensated by a greater achievement under FNCV's 1988-1993Investment and Maintenance Plan (which more than double the periodic maintenance target). The works,however, were completed one year behind the initial schedule (paras. 17 - 18).

Several external factors had significant impact on project execution. The most critical included: (1) neweconomnic and social policies that shifted priorities from the past focus on rural development and povertyalleviation to the opening up of the economy and modernization of the state, (2) institutional reforms in thesector that brought major changes to the road sector and defined new goals for the decentralization agenda,(3) the liquidation of FNCV, as part of these reforms, that progressively weakened FNCV, (4) delays inimplementing the new cofinancing system that added uncertainty to the devolution of roads and left part ofthe road network unattended, and (5) the introduction of new environmental policies and regulations thatslowed down the execution of several road subprojects (paras. 21 - 28).

Bank Performance

Project preparation benefited from the previous experience with FNCV, as the same Bank team supervisingthe then on-going Rural Transport Sector Project (Ln. 2668-CO) was responsible for preparing andappraising the new project. A key contribution was to recognize that a major obstacle to developing anadequate framework for maintenance was the lack of definition of responsibilities between local, regional,and national administration levels. In view of the difficulties usually associated with the design andexecution of institutional programs to build capacity at the local level, the appraisal should have elaboratedon a more detailed implementation plan for this component (paras. 31 - 35).

The major changes in the institutional set up and the further and swifter advancement of thedecentralization agenda could not be foreseen at appraisal. When the modernization decrees were passedlate in 1992, the Bank advised the Government about the risks associated with organizing the new units andcofinancing systems, and getting them to function smoothly, within the short transition periods establishedunder the decrees. Though the Bank recognized that in the long run the reform would increase theefficiency in the provision of public services, it did not deem feasible to accomodate the project to thedrastic decentralization process as this would have jeopardized the on-going works at a time when mostinstitutional development components were completed. Bank supervision missions discussed theimplications of the decentralization agenda for achieving the objectives of the project with high levelofficials at the Ministry of Transport, the National Fund for Territorial Development (FINDETER) and theNational Planning Department, and drew the attention of the sector authorities on the issues that the agendashould address to ensure long-term sustainability (paras. 37 - 38). This dialogue bore fruit only towardsthe end of the project when, in 1995, the Government, acknowledging the difficulties of implementing thedecentralization in the continuous absence of local technical, financial and administrative capacity,suspended the liquidation of FNCV, cancelled the transfer of rural roads, and established a cofinancingsystem that would take into account the capacity of the departnents.

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Borrower Performance

FNCV introduced between 1988-89 the cofinancing system ensuring that local government, particularlythose in more need, had access to the system The screening and the economic and environmentalevaluation of road construction and improvement subprojects were done using the methodologies designedand tested under the Rural Transport Sector Project (Ln. 2668-CO) (para. 41).

The modemization decrees issued in 1992 were prepared at the last minute to comply with a Constitutionaldeadline, and by a few people in the Presidency and DNP, without extensive involvement of the institutionsaffected. This resulted in implementation problems during the transition period. Key elements of thereform needed further legislation. The reform process would have benefited from a more participativedesign and a well-structured implementation plan. However, political factors may sometimes require quick,radical changes while there is a favorable opportunity. This was the criteria that prevailed at the time ofapproving the plan for liquidation of FNCV. The progress in developing the new institutions and financialsources that were supposed to take over FNCV's responsibilities was slower than the phasing out of FNCV,to the extent that in June 1995 Congress suspended the liquidation of FNCV, which will now continueoperating until the weakest departments and local governments demonstrate sufficient capacity to undertakethis responsibility alone (paras. 44 - 45).

Summary of Findings

The project's outcome can be considered marginally satisfactory. Under difficult institutionalcircumstances, the works component was largely executed. The project contributed to the definition of thereforms mandated by the decentralization agenda and key sector policies advanced by the Transport Law.The road classification completed under the project was an instrument in the definition of responsibilitiesamong the three levels of government prior to the reforms, and the study on road-user charges and fundingstrategies highlighted the imbalances between responsibilities and financial resources. The Transport Lawset key principles to increase efficiency and effectiveness in road sector management, but most of them arenot yet fully implemented (para. 47).

The results of the long term efforts to build capacity at the local level and mobilize municipios to assumetheir responsibilities for road maintenance were mixed. As the experience of FNCV shows, it will take timeuntil local governments fully assume such responsibility for road maintenance and the principle thatmaintenance should be provided on a continuous basis; but that experience also recognizes that municipiostake action when they perceive the roads need repair. In retrospect, the project's outcome would have beenbetter, had the reform mandated a more gradual liquidation of FNCV or focused on a new role for FNCV,consistent with the new decentralization policies. The sustainability of the project investments remains atrisk since in the long run it relies on (1) developing capacity for maintenance at the level of the departmentsand local governments, and (2) implementing appropriate financing mechanisms for the departments andlocal governments to secure a stable flow of funds for this purpose. Though there are issues yet to beaddressed, the prospects for improved sustainability are reasonably good since Government has shown itscommitment to furthering the decentralization of the road sector and make it work (para. 48).

Future Operations

Government is taking actions in three main areas that will eventually contribute to improving projectsustainability, namely: (a) strengthening the role of MOT to coordinate and monitor the implementation of

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technical assistance programs for subnational governments and assisting the departments in the preparationof their road plans; (b) strengthening road sector funding by (1) increasing investment levels to clear theexisting road infrastructure backlog, (2) enhancing the structure of road user charges, to redirect the use ofmatching grants under the cofinancing system, and (3) making operational the cofinancing system tofinance maintenance and rehabilitation of secondary and tertiary roads; and (c) reincorporating thereorganized FNCV into the national cofinancing system to assist the weakest departments and municipiosin expanding, improving and maintaining their rural road networks (para. 51 - 56).

Lessons Learned

The experience gained so far in implementing the Colombian institutional reforms confirms that reformprocesses do not immediately produce all the intended results. However, they open the dialogue to continuethe reform and allow permeation of "cultural" change, assuming that commitment to the reform issteadfastly sustained. It is not enough to pass legislation, it is also necessary to internalize strategies andconcepts and this entails time. Political considerations may force quick, radical changes, even without asound implementation strategy in place but the risks of delays, and even reversals increase substantially,and may jeopardize the achievement of the objectives of the reform. The dismantling of FNCV startedwithout having in place adequate financing mechanisms and the institutions that would take over itsresponsibilities (para. 58).

The transfer of roads from the central government to the departments turned into protracted negotiationsover the control of the resources associated with it, instead of focusing on building capacity through sometime-bound programs. The financial mechanisms to support the transfer should be clearly defined inadvance to avoid this risk. The experience is demonstrating the need to develop financing mechanismsbased on user-charges --following the tariff concept established by the Transport Law-- to avoid the currentsituation in which departments heavily depend on inter-governmental transfers to finance their programs(para. 59).

Designing effective institutional programs aimed at building local capacity poses probably one of thegreatest challenges for development projects. The quality and sustainability of these programs becomeeven more critical when dealing with rural communities which are institutionally weaker and more difficultto reach. The effectiveness and the prospects for sustainability of these programs can be increased by: (a)promoting the dissemination of good practices adopted by municipios and the use of strategic partnerships.The former carries strong motivation, thus becoming an effective way of speeding up the development oflocal capacity. The latter may help address issues in training and mobilizing resources for maintenance;(b) designing flexible programs, tailored to local or regional demands and provided in a decentralizedmanner; and (c) ensuring sustained commitment while seeking progressive results. Though it is generallyaccepted that building institutional capacity is a long term effort, this is often neglected in practice when theobjectives of such programs are set in a manner that is not consistent with the time needed to produce thedesired changes. More attention should be devoted to defining an appropriate sequence for theinterventions needed (which may go beyond the scope of one project) and setting progressive benchmarks.The use of these benchmarks will help focus the programs on a few prioritized goals, facilitate theassessment of progress and outcome, and increase motivation by showing early results (para. 62).

The experience of FNCV shows how difficult it is to move municipalities towards a "continuous"maintenance culture, in spite of the increased "ownership" than can be expected from the cofinancingsystem. The project suggests some elements that may help local governments to move to a culture of

maintenance: (a) some previous investment is needed to improve the condition of the roads to a condition inwhich they are maintainable; (b) the effectiveness of routine maintenance becomes a demonstrated reality toboth road users and local authorities only after having delivered the services for a reasonable period oftime; (c) an affordable mechanism of road user charges secures a stable flow of funds for this purpose.While the use of community-based organizations or microenterprises is an affordable solution for themunicipios, their sustainability requires prompt payment; (d) those with a vested interest in good roadsevaluate the results and exercise their voice before the local authorities. Local participation in screeningand identification of subprojects, favored by FNCV, should also be expanded to include decisions regardingmaintenance (para. 64).

IMPLEMENTATION COMPLETION REPORT

COLOMBIA

SECOND RURAL ROADS PROJECT

(LOAN 3157-CO)

PART I. PROJECT IMPLEMENTATION ASSESSMENT

A. STATEMENT/EVALUATION OF OBJECTIVES

1. The main objective of the project was to contribute towards achieving the country's economic andsocial goals by: (a) helping classify the road network and define functions and responsibilities of national,regional and local (municipal) authorities, and develop, strengthen and organize accordingly theirinstitutional capacity for managing rural roads activities; (b) ensuring over a realistic time frame,satisfactory implementation of key policies in the roads sector, including those related to the administrativedecentralization process, road maintenance and investment programming, coordination and resourcemobilization between agencies at different administrative levels; (c) consolidating positive institution-building advances in road management initiated by FNCV under the Rural Transport Sector Project (Loan2668-CO) and during preparation of this project, especially in progranuming and supervision of civil works,strengthening of its Regional Offices and organizing the maintenance activities; and (d) contributing tofinancing a balanced four-year investment and maintenance program.

2. These objectives were consistent with the Government's overall policies of expanding markets,improving living conditions in rural areas and creating a favorable environment for private investment,employment growth, and access to social resources. They were also in line with the Bank's country andsector strategies that emphasized the importance of effectively maintaining and improving the access ofrural communities to social services and markets. While the objectives remained unchanged, projectimplementation witnessed major changes in economic policy, institutional reform and decentralization. Thereforms implied slating FNCV for liquidation by end of 1995.

3. The project design was simple. Its execution, however, was somewhat complex because it entailedimplementing (1) a large number of small subprojects scattered mostly throughout the poorestmunicipalities, (2) a cofinancing system developed in 1989, which required mobilizing local governments inthe selection and financing of subprojects, and (3) more stringent environmental guidelines for theexecution of road works.

B. ACHIEVEMENT OF OBJECTIVES

4. Macroeconomic and social goals. Farm access to markets in Colombia --and the competitivenessof farm produce-- is conditioned by the extent and quality of rural access roads. As reported in an ex-postevaluation of a sample of 18 subprojects, the project made a positive contribution in raising the livingstandards of the rural population in the project areas by reducing transportation costs from producing

- 2 -centers to markets, and increasing integration arnong rural communities and their local govenmments. This,in tum, has helped bring stability to areas of social unrest.

5. Classifying the road network and defining responsibilities. At this stage, these objectives havebeen only partially achieved because the decentralization agenda --reshaped in 1993 to set new goals farbeyond those initially contemplated under the project-- is still under implementation. Though several issuesremain to be addressed, the new agenda sets the right direction by putting functional responsibilities,resources and accountability closer to the administrative level that is better positioned to know the needsand respond to them.

6. The road classification established in October 1990 was a first step towards clarifyingresponsibilities for road sector management'. FNCV, MOPT and the Secretariats of Public Works in eachdepartment, under the guidance of MOPT, carried out an inventory of all public roads and assignedfunctional responsibilities over each road. Later, these inventories became key tools at the time of planningthe transfer of roads to subnational governments. However, the classification fell short in addressing thefinancing issues associated with these responsibilities (see para. 14). The classification assigned to localgovernments the responsibility to maintain the local roads and even FNCV's network; the cofinancingsystem introduced in 1988-89 made this clear, and required for all cofinanced maintenance subprojects thatlocal governments contribute with the labor needed to carry out the non-mechanized works.

7. In December 1993, Congress approved the Transport Law which provides the legal framework forthe redistribution of responsibilities over transport infrastructure among central government, departmentsand municipalities. The law sets key principles for increasing efficiency in the sector. Basically, it: (a)mandates central government to transfer to the departments responsibility over about 13,000 km ofsecondary roads under MOPT and all rural roads under FNCV, in total about 32% of the road system,together with the resources needed to maintain or improve those roads. To this end, the Nation had to agreewith each department on a plan to gradually transfer such responsibilities and resources within a three-yearperiod, starting in January 1994; (b) requires the setting of road user-charges to fully recover infrastructuremaintenance, operation and development costs, and gives ample powers to the departments andmunicipalities to charge tariffs, tolls, betterment levies and even surcharges on gasoline taxes exclusivelyfor transport infrastructure financing. To support the devolution of roads to the departments, the law alsoestablishes under FINDETER (a national financial agency)2 a new Road Cofinancing Fund (RCF) to passmatching grants, exclusively for roads; (c) allows the departments to restructure their road agencies,including the possibility of establishing autonomous private/public entities with capacity to raise their ownfinancing (ie., bonds issues, loans); and (d) provides the basic framework for franchising infrastructurefacilities to the private sector.

' / Under such classification, MOPT was responsible for about 25,600 km of national roads (primary and secondaryroads), the departments for about 39,264 km of secondary or regional roads, local governments for about 26,300km of rural roads, while FNCV for about 23,000 km of mostly rural roads (those which had been built by FNCV inthe past).2/ Under the institutional set-up created by the law, departments prepare together with local governments the roadinvestment and maintenance programs proposed for cofinancing through the RCF (central goverrunent matchinggrants). Specialized units (UDECOs, Unidades Departamentales Especiales de Cofinanciacion) have been set ineach department, with representation of local governments, to coordinate these efforts and approve the programsproposed for cofinancing in the various sectors. FINDETER approves the matching grants and makes paymentsunder the RCF. Other funds under the cofinancing system created in 1992 include the Social Investment Fund(health and education), the Urban Infrastructure Fund, and the Integrated Rural Development Fund.

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Box 1: An Overlook of Colombia's Decentralization and Cofinancing Policies1983.86 Law 14 of 1983 grants municipalities greater revenue raising powers. Law 12 of 1986

increases the municipalities' share of the national sales tax (VAT) with a formula thatexplicitly rewards fiscal effort and favors small municipalities with low fiscal capacity

1987-91 Decree 77 of 1987 assigns to local governments responsibility over tertiary or local roads.FNCV is transformed into a cofinancing agency which must secure the contribution of localand regional governments in the form of budgetary transfers, labor, equipment/materials, orscrvices (cngineering dcsigns, supervision). FNCV cstablishcs a cofinancing formula in 1988and modifies the investment selection procedures to include local/regional pre-screening andevaluation of candidate projects (final approval remains within FNCV).

.992-95 The new Constitution of 1991 mandates the modemization of the state and furtherdecentralization. Decree 2171 of 1992 restructurcs MOPT into a Ministry of Transport(MOT), creates the National Institute of Highways (INVIAS) and slates FNCV for liquidationby the end of 1995. The Transport Law of 1993 passes on to the departments responsibilityover a substantial part of the national road network, including the road network under FNCV.It also establishes a new Road Cofinancing Fund (RCF) under FINDETER to substituteFNCV's cofinancing activities. Decree 1820 of 1993 defines the plan for liquidation of FNCVand closure of its Regional Offices in a three-year pcriod. By mid-1995 (1) FNCV's staff totalsabout 160 officials from about 1,750 in 1992, (2) only ninc regional offices remain inoperation, and (3) about 16,000 km of roads still remain under FNCV, while about 7,000 kmare transferred to the departments.

................................................................ ................. I..... . . ....................... .... . .................................................................................................................................

19-to Law I88 of 1995 temporarily suspends the liquidation of FNCV until departments and localdate govcrnmcnts devclop capacity to manage thcir road nctworks. The decentralization and

corinancing systems are kept, but the transfer of roads from FNCV is halted. Decree 2128 and2222 "reorganizc" FNCV to cofinance construction and maintenance activities on rural roadsnot yet transferred to the departments and evaluate the administrative, financial and technicalcapacity of the departments beforc passing responsibility ovcr the rural roads.

8. The decision to pass FNCV's road network on to the departments was taken on account that mostof the municipalities were too weak to receive them and too many (more than one thousand) to efficientlymanage the transfer. Though this decision has simplified the transfer, it may also result in an uncleardefinition of jurisdiction, with local governments not acknowledging their day-to-day responsibility forrural road maintenance. To date, the transfer of all secondary national roads and of about 7,000 km ofrural roads has been completed. While endorsing the decentralization process mandated by the ColombianConstitution of 1991, a subsequent law in 1995 halted the liquidation of FNCV, which will continueoperating until subnational governments demonstrate they have the capacity to assume full responsibilityfor the rural road system.

9. Implementing key policies in the road sector. The project was very successful in putting in placethe first cofinancing system with the municipios and the administrative decentralization within FNCV. Thecofinancing mechanism introduced in 1988-89 substantially increased FNCV's responsiveness to localneeds and built "ownership" on the part of the municipios, which had to contribute in cash or kind todefray the cost of the investments3. In particular, FNCV was very successful in ensuring that the poorest

3/ The cofinancing formulae used by FNCV between 1990-95 established that municipalities with population over500,000 inhabitants should contribute with 30% of the total cost, municipalities with population between 100,000

municipios had access to the cofinancing system, and in managing through its 24 Regional Offices thework programs agreed with each municipio. Throughout project implementation, FNCV together with thebenefited municipios selected about 135 road subprojects (55 for road construction and 80 for roadimprovement) located within the boundaries of about 300 municipalities. These subprojects were chosenfollowing the guidelines set under the national plan for eradication of extreme poverty and the requestssubmitted by the municipios, and giving priority to completing road subprojects started under the previousRural Roads Transport Project (Loan 2668-CO). FNCV's involvement contributed to emphasizing thepriority of road improvements and maintenance over new construction.

10. The cofinancing process also changed the arrangements for selecting the projects, placing theinitiative squarely on the local governments. Many local governments required FNCV to undertakeadditional works on roads other than those strictly under its mandate in order to agree on the investments tobe cofinanced. While this reflected the priorities assigned by local governments to the road networks intheir area (independently of jurisdiction) it forced FNCV to disperse its resources over an increasinglyexpanded road network (from about 23,000 in 1989 to about 37,000 km in 1993), and weakened theinstitutional framework for road maintenance planning. This was compounded by the fact that, in line withthe decentralization agenda, FNCV was an agency neither designed to routinely maintain the entire ruralroad network nor allowed to grow in order to achieve such goal.

11. Long-term efforts to build up institutional capacity at the local level proved to be more difficult, inpart because FNCV's work programs concentrated on those municipios with most prevailing needs, lowinstitutional capacity and, in many cases, conflicting working environments (presence of violence or socialunrest). In the very small municipios (typically with populations below 10,000) the mayor becomes a one-man band being in charge of most activities that require certain degree of qualification, imposing certainfragility for the sustainability of the capacity development process. With the assistance from the AdvanceSchool for Public Administration (ESAP), FNCV conducted training courses on road maintenancemanagement, cofinancing and economic-environmental screening of road investments, for relevant staff inits Regional Offices and municipal administrations involved in the project. In 1993 when the decision tophase out FNCV was announced, FNCV organized workshops in each region to transfer its know-how(planning, engineering, contracting and supervising projects) to the municipal environment. Threeadditional elements were brought to the agenda: (1) the updating of the road inventory to support thetransfer of roads, (2) the costing of typical road activities (including a fair assessment of the costs ofowning and operating equipment fleets, and (3) the dissemination of good practices, taken from initiativessuccessfully implemented by other comparable municipios (such as arrangements to share equipmentamong members of an association of municipalities, the expanded use of contract maintenance, and thesetting of rural road committees to manage maintenance programs).

12. The transfer of roads under FNCV to the departments mandated by the Transport Law inDecember 1993, also implied shifting the priorities for the institutional strengthening program, as itrequired accommodating a new cofinancing system which assigned a (new) critical role to the departments(with whom FNCV had almost no past experience). The new decentralization framework has required, indifferent ways, that the municipios work together with their departments. Departments have acoordinating, monitoring and assisting role to play. However, with the exception of a few departments,

and 500,000 inhabitants should contribute 20%, and municipalities with less than 100,000 inhabitants shouldcontribute 1 to 15% (the actual percentage based on the amount of value-added taxes being transferred by centralgovernment); for maintenance works, the minimum cofinancing requirement was 5%.

there is still a significant gap between this proposed role and the observed reality. Furthermore, manymunicipios have either confrontational or distant relationships with the departmental government. Thesustainability of the new cofinancing system requires addressing the institutional weakness of most of thedepartments and strengthening the relationship with their municipios, in order to position them adequatelyto play the role of partners and enablers of local efforts.

13. In line with the new functional responsibilities in the sector and the weakened capacity of FNCV tocontinue with these efforts, after 1994 the Ministry of Transport and FINDETER took over theresponsibility for institutional building and for coordinating resource mobilization between agencies at thesubnational level. The series of seminars undertaken in 25 of the 32 departments focused on (1) thedecentralization of the road network and the national cofinancing system, (2) identification, preparation,evaluation and approval of road subprojects, (3) preparation of transport plans at the departmental level,and (4) preparation and supervision of environmental management plans for road subprojects. Long-terminstitutional building programs will be furthered in the context of a Departmental Roads Project, whichGOC is presently preparing with IDB. Implementing the decentralization of the road sector is taking longerthan initially anticipated.

14. The Road Funding Strategies and User Charges Study was completed early in 1995. Though lateto contribute to shaping the reforms, nevertheless it made an important contribution by bringing attention tothe need to balance responsibilities, institutional capacity and financial resources at subnational levels, akey element initially overlooked by the reforms. The study was included in the project to identify fundingalternatives for FNCV and the rural roads subsector, but its scope was extended to review the structure ofroad user charges for the entire road system to accommodate the institutional changes being introduced bythe 1992-1993 reforms. Among other conclusions, the study showed that: (a) cost recovery at the nationallevel exceeded the 1994 expenditures, but would need to be complemented in order to support theexpansion and modernization of the network as planned under the National Development Plan for 1995-1998; (b) while actual expenditures were not known, cost recovery at the subnational levels is about 15%of the projected needs; (c) the structure of road user charges should be revised to better reflect marginalcost pricing (underestimated in the case of heavy vehicles) and a framework for its implementationconveniently delineated in line with the provisions of the Transport Law; and (d) as important (if not more)than the structure of road user charges or the extent of cost recovery, is the interplay between theresponsibilities that different levels of governments have regarding the road network, their financingresources and their implementation capabilities. The study highlighted that as a result of the existingimbalances between responsibilities, institutional capacity and financial resources at the departmental andlocal levels, the RCF will neither address the existing financial gaps at subnational levels nor put in placean adequate framework for road maintenance, in the absence of other explicit counterpart sources managedby the departments as part of a well-established road-user charges system. A second stage of this study ispresently underway (funded by Loan 3453-CO) to define a coherent roads funding strategy at eachgovernment level and recommend mechanisms to ensure a stable flow of funds for road maintenance.

15. Consolidating institutional advances within FNCV. The progress in consolidating institutionaladvances within FNCV was remarkable till 1993. FNCV strengthened its Regional Offices with sufficientdelegation of authority, qualified technical staff, and resources to assist the local governments involved inthe programs --a key objective of the strategy set to foster a fruitful dialogue with local governments.However, the substantial efficiencies consolidated between 1988-1992 were later offset by the mandatedliquidation of FNCV. This process entailed retrenching about 1,600 staff, and closing 15 out of the 24Regional Offices. Though most of FNCV's know-how and procedures were passed on to FINDETER's

RCF in 1993 to promote their application by subnational governments, valuable information was lostduring the liquidation process. All in all, the positive experience gained through the deconcentrated FNCVbecame a model for departments to work together with their own municipalities, but will take time andconsiderable institutional building efforts until the departments develop that capacity.

16. One major objective in the SAR was to strengthen investment programming and maintenancemanagernent capability with particular emphasis on training staff of the regional offices and theMaintenance Division, which was established by project approval. The Maintenance Division implementeda comprehensive maintenance management system to program and control maintenance operations,especially those carried out by force account. In spite of productivity gains, FNCV's maintenance capacitynever reached the targets envisioned under the project in part due to the constraints imposed by an agingfleet that could not be renewed and by a cofinancing system that gave the municipio the right to choosewhich roads should be attended. From 1993 and on, the progressive closure of Regional Offices, theretrenchment of equipment operators, and the departure of qualified personnel at both central and regionallevel, further reduced such capacity and ultimately led to phasing out the force account program. TheMaintenance Division and the Environmental Unit, both established under the project, were disbanded byend- 1994 and mid-1995, respectively.

17. Financing a balanced four-year investment and maintenance program. In spite of thedisruptions created by the retrenchment program, FNCV substantially accomplished this objective, with theexception of routine maintenance for the reasons explained in para. 18 below. The works, however, werecompleted one year behind the initial schedule. With project funds, FNCV achieved the following physicaltargets: (a) construction of about 776 kmn of rural roads (or about 97% of the target planned at appraisal);(b) improvements on about 1053 km of roads (or about 81 % of the target); (c) construction of about 1,134meters of small bridges (or about 101% of the target); and (d) periodic maintenance on about 1,239 km ofroads (or 55% of the initial target). The shortfall in periodic maintenance is compensated by a greaterachievement under FNCV's 1988-1993 Investment and Maintenance Plan (which more than doubled theperiodic maintenance target). This suggests that local governments favored cofinancing maintenance whendone by force account (which required contributions in kind and/or labor) rather than by contract (whichrequired financial contributions). FNCV cofinanced routine maintenance on about 17,890 km of ruralroads (or about 69% of the appraisal target) in four years. On average this represents an annual coverageof about 20% of the entire network.

18. Though the Investment and Maintenance Program gave priority to periodic maintenance, severalreasons prevented FNCV from achieving the targets planned for routine maintenance: (a) the deterioratedcondition of the rural road network called for more periodic maintenance, and local mayors favoredperiodic maintenance over routine maintenance when cofinancing with FNCV; (b) many municipalitieslacked the resources (financial, institutional and human) to carry out routine maintenance on a continuosbasis; and (c) the targets under the force account program were progressively reduced in line with theliquidation of FNCV, while delays in setting the RCF prevented other agencies from stepping in andcomplementing FNCV's force account program. Not only the force account targets were revised downfrom 1994 and on, but compliance with those targets became increasingly poor (around 40 to 50% of theannual targets) reflecting the deteriorating working environments in most of the Regional Offices.

19. Economic Results. FNCV conducted an ex-post evaluation of a representative sample of 18 roadsub-projects, to assess whether the projects achieved the Net Present Values (NPV) and Benefit/CostRatios (B/C) estimated at the time they were selected and appraised. The sample comprised construction

and improvement subprojects, located in different regions of the country. The analysis entailed fieldsurveys undertaken between May and July 1996. The outcome of the analysis is shown in Table 9.

20. The economic indicators are satisfactory, though generally lower than those anticipated at therespective appraisals (although 6 subprojects out of 18 show higher returns). The initial investment targetswere reduced in some cases due to poor initial estimates, in others because the scope of the works wasreduced to match the availability of funds in the approved budget. The results of the retrospectiveevaluation carried out by FNCV and, in particular, the analysis of the results obtained in the ex-postevaluation, highlight the following conclusions:

a) most of the construction subprojects showed increases in the areas cultivated and minorimprovements in productivity. The benefits notably exceeded appraisal projections in twosubprojects where industrialized fishery substituted traditional crops. Field surveys proved thatlocal peasant's access to new markets and social services also improved;

b) other factors accounted for reductions in subproject benefits, namely (1) a drop in local agricultureprices during project implementation due to reductions in Colombian trade protections and ininternational prices, (2) a severe drought that affected most of the country, and (3) increased ruralinsecurity in the region. In the sample, the presence of social unrest and violence in the area wasacknowledged in 11 of the 18 subprojects (or about 61% of the sample); and

c) local government's sense of ownership --as expressed by commitment to cofinance the works andassume future maintenance responsibilities-- varied depending on the purpose served by the road.Local governments favored cofinancing those roads providing access to the municipal capital orconnecting the municipal capital with main corridors, with less interest in rural roads reachingsmall communities and almost none in rural roads serving communities within the municipalboundaries but with no commercial interaction with the municipal capital. Most of the roads in thesample showed that although some maintenance had been done after the construction orimprovement works, maintenance was generally neglected. However even those roads in criticalcondition were being used by local traffic with positive benefits for the living conditions of localpeasants.

C. MAJOR FACTORS AFFECTING THE PROJECT

21. Several external factors had significant negative impact on project execution. The most criticalincluded: (1) new economic and social policies that shifted priorities from the past focus on ruraldevelopment and poverty alleviation to the opening up of the economy and modernization of the state, (2)institutional reforms in the sector that brought major changes to the road sector and defined new goals forthe decentralization agenda, (3) the attempt to liquidate FNCV, as part of these reforms, that progressivelyweakened FNCV, (4) delays in implementing the new cofinancing system that added uncertainty to thedevolution of roads and left part of the road network unattended, and (5) the introduction of newenvironmental policies and regulations that increased the number of institutions involved in issuingenvironmental permits and, in turn, slowed down the execution of several road subprojects. The fact thatFNCV could complete the project within this adverse environment demonstrates the high degree ofprofessionalism it had achieved by 1992.

- 8 -22. New economic and social policies. The new administration that took office in August 1990adopted new economic policies aimed at opening up the economy to international competition and loweringprotection for national industries and services. Government efforts shifted to substantiating the majorreforms needed to modernize the state and support that policy, giving less priority than the precedingadministration to rural development and poverty eradication. For the rural road subsector, this translatedinto tighter fiscal policies and substantial cuts in public investments. Delays in approving counterpart,funds significantly slowed down project execution in 1990 and early 1991.

23. Major institutional reforms. To support the policy of opening up the economy, Govermmentembarked on a series of reforms to redefine the role of the state, eliminate its presence in areas consideredunnecessary or unproductive, and reinforce decentralization by shifting responsibility for publicinvestments to the departments and municipalities. Article 20 of the July 1991 Constitution gave theExecutive Branch of the government transitional powers, for a period of 18 months, to modernize theorganization of the state and ensure consistency between the organization of public entities and theconstitutional reforms. Just three days before the transitional period expired, Government issued a total of61 decrees that eliminated, restructured, fused, or created various public sector entities.

24. The modernization decrees were written keeping in mind the need to minimize transitionalimplementation problems and unnecessary changes in projects being executed with external funding.Decree 2171, dated December 30, 1992, (1) transformed MOPT into a Ministry of Transport (MOT)responsible only for planning and policy making, not its execution, (2) eliminated the National HighwayFund and entrusted to a new autonomous agency --the Instituto Nacional de Vias, INVIAS-- managementof a well-defined network of import/export corridors and trunk roads, (3) eliminated by end-1995, FNCVand MOPT's field districts (the former in support of the expanded agenda for decentralization and the latterin support of a policy of contracting out all works, including maintenance). The three-year time frameestablished for liquidation of FNCV was just enough to complete the execution of the project as originallyplanned; several programs under FNCV not directly funded by the project were severely curtailed (amongthese was the force account maintenance program). As the actual experience showed, this time frameproved too short to develop the new cofinancing system that was intended to replace FNCV.

25. Implementing the Decree implied transferring the responsibility for FNCV's road network.Because of limitations in the powers entrusted by the Constitution, the Decree could not address this issue.After protracted discussions, Congress passed on December 30, 1993 --one year later-- the Transport Lawthat redistributed responsibilities in the sector. As noted in para. 7, the responsibility over FNCV'snetwork was passed on to the departments, instead of the municipalities with whom FNCV had beenworking with. The institutional strengthening programs that aimed at strengthening local governments hadto be revised to include the departments, at a stage where FNCV was too weak to react.

26. Liquidation of FNCV. The liquidation of FNCV posed, no doubt, the greatest challenge forcompleting the project investments on time. The three-year retrenchment program started in 1993 andprogressively weakened FNCV. FNCV's staff was regarded as one of the most charismatic groups in thesector, but following the decision to eliminate the agency, qualified and experienced staff departed as betteropportunities became available for them in the public sector (new institutions in the road subsector) and theprivate sector (existing firms and new small firms formed by former MOPT and FNCV staff). From atotal of about 1,750 staff in 1992 before the liquidation, the staff was reduced to about 1,250 by December1993, about 660 by June 1994, about 380 by December 1994, and about 160 by May 1995. Similarly,three Regional Offices were closed as early as end-1993, 12 remained in operation by end-1994, and 9 by

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June 1996, when the liquidation was reversed. The initial plan had called for a much more gradualapproach, with the Regional Offices kept in operation till the end to retain capacity for key services (suchas maintenance, liaison with local governments) during the transition to the new set up. With thedisbanding of several units within FNCV and its Regional Offices, the supervision arrangements became abottleneck and its quality deteriorated from 1994 and on. Political instability also shook FNCV andcompounded this adverse environment. The turnover in top management posts was very high, with fiveDirectors/Liquidators appointed during the last four years. Also, early in 1994, a top official was removedfrom his post accused of mismanaging work contracts.

27. Delays in implementing the new cofinancing system. Implementing the new cofinancing systemtook much longer than anticipated, creating even more uncertainty and, ultimately, leaving a large portionof the rural road network unattended and in rapid deterioration. Both, the cofinancing matrix forapportioning funds among departments and investment programs under the RCF and the necessarybudgetary provisions to support them, were not defined till late 1994. The departments were concernedthat they would receive the roads but not the funds needed to keep them up, in view of the little progressmade in implementing the RCF, and the uncertainties regarding the cofinancing matrix and the level offunding that would become available through the RCF. Similarly, it took more time than planned to makeoperational the specialized units (UDECOs) created in each department to coordinate preparation of theinvestment programs proposed for cofinancing. As a result, the devolution of roads turned into timeconsuming negotiations with the departments, demanding substantial attention and resources from anFNCV already overwhelmed by the difficulties inherent to its liquidation.

28. New environmental policies and procedures. The reforms included the creation of the Ministryof the Environment to replace INDERENA in December 1993. The introduction of this new set up broughtmore stringent regulations; the Corporaciones Autonomas Regionales (CARs) became responsible forgranting environmental clearances, but most of them were too weak to fulfill their duties in a timely andefficient manner. This stalled the execution of several road subprojects and led to delays in obtainingpending environmental permits from the CARs. FNCV's Environmental Unit was overstretched monitoringthe implementation of increasingly complex environmental plans. Some road construction subprojectsalong sensitive areas (high mountain ranges) were reduced in length to mitigate negative environmentalimpacts or to free funds to improve drainage and slope conditions on existing contiguous sections. TheEnvironmental Unit, composed mostly by consultants, was disbanded in 1995.

D. PROJECT SUSTAINABILITY

29. The sustainability of the project investments remains critical since in the long run it relies on (I)developing capacity for maintenance at the level of the departments and local governments, and (2)implementing appropriate financing mechanisms for the departments and local governments to secure astable flow of funds for this purpose. Though there are issues yet to be addressed, the prospects forimproved sustainability are reasonably good since Government has shown its commitment to furthering thedecentralization of the road sector and make it work. Paragraphs 51 - 56 briefly describe key actionscurrently in progress that demonstrate such commitment.

30. In furthering the agenda for decentralization, the following elements are key to the sustainability ofthe project investrnents:

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a) further clarification of responsibilities between FNCV and RCF, and between departments andlocal governments. Though now functional responsibilities over national, departmental, and localroads are more clearly assigned, and departments and local governments acknowledge theirresponsibilities for road maintenance, the transitional arrangements under the cofinancing systemmay in practice dilute such responsibilities. In the short term, from a budgetary view point, it hasbeen established that FNCV will continue cofinancing works on those roads not yet transferred tothe departments, while the RCF will cofinance investments on the roads under direct control ofdepartments and local governments. In the long run, the transfer of roads to the departments mustbe completed and the departments and their municipios must define together a workable frameworkto split day-to-day responsibilities, with routine maintenance of all tertiary and rural roads in thehands of local governments. Departments should not be exposed to the kind of "negotiations" thatFNCV suffered when cofinancing maintenance with the municipios;

b) improved financial mechanisms. The first priority is to implement the tariff concept establishedunder the Transport Law, based on road user-charges managed at the national, departmental andlocal levels in order to reduce the existing dependence on intergovernmental transfers. This willaddress some of the pending issues under the cofmancing system (ie., definition of funding levelsamong the various programs, percentages for the cofinancing matrixes), and redirect the use ofmatching grants to that of passing back to subnational governments that portion of the road usercharges collected at the national level, and of supporting national government priorities.;

c) more access to technical and institutional support. With some notable exceptions, most of thedepartments and local governments not only need to build up capacity for road maintenance butalso to ingrain a culture of "continuous" maintenance. As the experience of FNCV shows, manymayors believe that maintenance resources should be invested in other priorities as long as the roadis passable. The interventions needed to increase support for maintenance and produce a behaviorchange must go beyond technical assistance and work, indirectly, by promoting responsibleleadership and community participation at the local level and demonstrational projects; and

d) an adequate information system for increased accountability. Road construction and maintenanceis an area in which municipios have been very active since the beginning of the decentralizationprocess. However, no systematic information is available regarding the coverage of these servicesor the outcome of such initiatives. The information systems developed by FNCV were not directlyapplied to monitor municipal programs, in part because they were too structured for themunicipio's capacity. At the local level, an effective decentralization starts with creating a "public"to whom become accountable to. This public must know the results accomplished by the municipalauthorities, and to judge them appropriately, must be able to compare them with those in othermunicipios. At the national level, MOT also needs to monitor the progress of those programsexecuted through departmental and municipal governments to assess the outcome of nationaltransport policies. The national evaluation system mandated by the Constitution provides anexcellent opportunity to put the information and monitoring systems to work.

E. BANK PERFORMANCE

31. Project identification and preparation. The project followed two previous successful operations(Loans 1966-CO and 2668-CO) in the rural road subsector in Colombia. Project preparation benefited

- 11 -from the previous experience with FNCV, as the same Bank team supervising the then on-going RuralTransport Sector Project (Ln. 2668-CO) was responsible for preparing and appraising the new project.

32. The Bank's involvement through the two past loans was instrumental in sustaining the expansion ofthe rural road network and building FNCV's project implementation capacity. While continuing itssupport to FNCV's investment program, this third operation aimed to further develop FNCV's institutionalstrength, especially for maintenance, which in the past did not receive sufficient attention. Dunng the 80s,FNCV had expanded its rural road network from about 16,300 km in 1979 to about 23,000 in 1989. Sothe emphasis placed on maintenance under the project became very relevant and helped FNCV shift itsattention from expanding the network to building capacity for maintenance and balancing its investmentprogram. A key contribution was to recognize that a major obstacle to developing an adequate frameworkfor maintenance was the lack of definition of responsibilities between local, regional, and nationaladministration levels. FNCV was regarded as the only agency capable of adequately managing rural roads,implementing government policies in the sector, and assisting local authorities in the decentralizationscheme introduced in 1988-89.

33. Project appraisal. The appraisal correctly identified the main risks, namely the ability andreadiness of local governments to organize and develop technical capability to maintain the local roadnetworks effectively, and the level of funding needed at both local and central levels for this purpose. Bothcontinue to be major issues even today. It was foreseen that FNCV's Regional Offices, strengthened underthe project, would be an important vehicle to channel the required technical assistance to the localgovernments. No consideration or function at all was given to the departments because a possibleDepartmental Highways Maintenance Project was to follow later to address issues and investmentrequirements of the secondary network. The radical reforms introduced by the modernzation decrees of1992 or the Transport Law of 1993 could not be envisioned at the time of appraisal. Environmentalconsiderations were also correctly assessed, but again they were exceeded by the changes that follow thecreation of the Ministry of the Environment and the Environmental Law.

34. Ihe targets set for FNCV's force account maintenance program turned out to be overly optimistic.They assumed that FNCV's capacity for routine maintenance would almost double dunrng projectexecution. However, in reality FNCV was an agency not allowed to grow because of the decentralizationtrend and inhibited by an aging equipment fleet, strict budgetary constraints, and a cofinancing system thatimplied mobilizing local governments to contribute to the cost and provide the labor needed formaintenance.

35. In view of the difficulties usually associated with the design and execution of institutional programsto build capacity at the local level, the appraisal should have elaborated on a more detailed implementationplan for this component, including the definition of strategic objectives and key milestones to be achieved inboth the Regional Offices and the municipios involved in project implementation. Also, the percentages ofBank financing in the various loan disbursement categories were set in a way that favored civil works(60%) over consultant services and training (45% and 50% respectively). Most of the training activitieswere funded directly by FNCV with its own funds (later with the reform, other funding sources becameavailable through the RCF and MOT).

36. Supervision. Project supervision utilized about 63 staff weeks throughout the implementationperiod. Eleven supervision missions visited FNCV. The Back-to-Office reports provide for an easy followup of the project implementation and the developments under the decentralization agenda that had an

- 12 -impact on the achievement of the project development objectives. Bank missions drew the attention ofFNCV, FINDETER and the new Ministry of Transport on key steps to address the long-term sustainabilityof the reform (paras. 29 - 30 of this report reflect recommendations given by a Bank mission in September1994). Though acknowledging the difficulties surrounding the implementation of the project, themonitoring indicators for project implementation and development objectives were rated satisfactory from1990 to mid-1995. In November 1995, in view of the uncertainties regarding the reorganization of FNCVand the future of the decentralization agenda. which rendered critical the sustainability of the projectinvestments, those ratings were downgraded to unsatisfactory. The final ratings were raised to marginallysatisfactory in 1996, based on the signals given by GOC that implementation of the decentralization agendawill continue with greater support of technical assistance programs aimed at developing capacity at bothdepartmental and local levels.

37. In spite of having an on-going dialogue on main policies for the modermization of the state, theBank had little involvement in delineating the modernization decrees issued in December 1992. The decreesaffected a large number of projects in the portfolio in several ways (some required changing the borroweror implementing agency, re-appraising the capacity of a new implementing agency, or restructuring theprojects). The Bank advised the Government about the risks associated with organizing the new units andcofinancing systems, and getting them to function smoothly within the short transition periods allowed bythe decrees. But overall the Bank recognized that in the long run the reform would increase the efficiencyin the provision of public services through the key strategies (redefining/reducing the role of the state,outsourcing, decentralization) being pursued.

38. For the rural road sector the reform meant disbanding an efficient organization, FNCV, in a three-year period that was perhaps sufficient to complete the project (if appropriate measures were undertaken tominimize the disruptive impact of the reforms), but too short to develop the capacity of those who weregoing to replace FNCV. The Bank recommended that FNCV adjust project implementation by: (a)reviewing FNCV's Rural Road Investment Program, giving priority to completing on-going subprojectsand not approving new subprojects beyond 1994; (b) monitoring closely project execution throughincreased reliance on consultants; (c) carrying out a gradual liquidation of FNCV under timetables tailoredto the capacity of the departments. This gradual approach envisaged that FNCV should start disbanding itsequipment fleet and force account crews, while retaining till the end other technical services such ascontract administration, supervision, and asssistance to local governments, provided by the RegionalOffices. This was not possible because GOC wanted a more abrupt liquidation to prevent any possibilityof reversing the reforms; (d) carrying out the targets for road maintenance (force account) defined under theproject through an appropriate arrangement consistent with the phasing out of FNCV. It was envisagedthat FNCV would still be able to accomplish these targets in 1993, and about 50% of them in 1994, so thiswould require contracting out the remaining works to private contractors and/or increasing the participationof local governments in delivering routine maintenance; (e) expanding the scope of the study of theBorrower's financing structure to take into account the new institutional framework introduced by thereform; and (f) a parallel effort to build the department and local governments' capacity to prepare andexecute road projects, and establish a sustainable system for road maintenance through a combination ofcontracted maintenance and increased participation of local governments using labor-intensive methods.

39. The major changes in the institutional set up and the further and swifter advancement of thedecentralization agenda could not be foreseen at appraisal. When the modernization decrees were passedlate in 1992, the Bank advised the Government about the risks associated with organizing the new units andcofinancing systems, and getting them to function smoothly, within the short transition periods established

- 13-under the decrees. At the moment, the Bank did not deem feasible to restructure the project andaccomodate it to the drastic decentralization process as this would have jeopardized the on-going works at atime when most institutional development components were completed. Bank supervision missionsdiscussed the implications of the decentralization agenda for achieving the objectives of the project withhigh level officials at the Ministry of Transport, the National Fund for Territorial Development(FINDETER) and the National Planning Department, and drew the attention of the sector authorities on theissues that the agenda should address to ensure long-term sustainability. This dialogue bore fruit onlytowards the end of the project when, in 1995, the Government, acknowledging the difficulties ofimplementing the decentralization in the continuous absence of local technical, financial and administrativecapacity, suspended the liquidation of FNCV, cancelled the transfer of rural roads, and established acofinancing system that would take into account the capacity of the departments.

F. BORROWER PERFORMANCE

40. Preparation The Government's National Rehabilitation and Poverty Alleviation Program hademphasized development and maintenance of rural roads in an effort, consistent with its overall priorities,of expanding exports, improving living conditions in rural areas and creating incentives for employmentcreation and access to social resources. FNCV's 1988-1993 Road Investment and Maintenance Programwas at the center of this strategy, when the project was identified.

41. FNCV carried out the project preparation activities in a timely and efficient manner. Between1988-89 FNCV introduced the cofinancing system ensuring that local government, particularly those inmore need, had access to the system The screening and the economic and environmental evaluation ofroad construction and improvement subprojects were done using the methodologies previously designed andtested under the Rural Transport Sector Project (Ln. 2668-CO). During project preparation, FNCVcorrectly stated that some of the project objectives were outside the control of the agency; in line with this,the loan documents assigned to MOPT responsibility for classifying the road network and definingfunctional responsibilities among the central, regional and local levels.

42. Project implementation. The loan agreement was declared effective six months later thaninitially planned, once Government complied with the Bank general conditions for effectiveness.Implementation of the project works also suffered delays in 1990 due to shortages in counterpart funds.However, counterpart funds were increased later in 1991 and the pace of project implementationaccelerated.

43. FNCV's use of small local contractors had proven cost-effective. While the experience under theproject confirms that strategy, the rate of problem contracts arose after 1993 and many road subprojectsexperienced delays. Several factors contributed to this, most notably: (a) contractors' poor performance,generally derived from the use of inadequate equipment, or the inability to cope with adverse weatherconditions. Many contractors were concerned about deploying new equipment units in areas whereviolence could infringe damage to them or later hinder their redeployment outside the job sites; (b)enviromnental considerations, which in some subprojects led to redesigning the works; and (c) localgovemments' late compliance with the cofinancing agreements, especially with regard to making thefinancial contributions (an issue observed by Contraloria General de la Repiiblica, CGR). ThoughFNCV' management of these situations was reasonably satisfactory, there was scope for improvement.The quality of work supervision declined from 1994 and on, with the retrenchment of qualified staff and the

- 14 -closure of Regional Offices. The impact of FNCV's liquidation on the execution of the project is brieflydiscussed in paragraph 26.

44. Though the reforms had been under discussion over 1991-92, it appears that many of themodernization decrees issued in 1992 were prepared at the last minute to comply with the Constitutionaldeadline, and by a few people in the Presidency and DNP, without extensive involvement of the institutionsaffected. This resulted in implementation problems during the transition period. Key elements of thereform needed further legislation, because the Constitution had not empowered the Executive Branch toredistribute competencies among the central, regional and local levels of government. From a technicalview point, it can be concluded that the reform process would have benefited from a more participativedesign and a well-structured implementation plan. However, political factors may sometimes require quick,radical changes while there is a favorable opportunity.

45. The progress in developing the new institutions and financial sources that were supposed to takeover FNCV's responsibilities was slower than the phasing out of FNCV, to the extent that somecongressmen started questioning late in 1994 whether the liquidation of FNCV should proceed as initiallyplanned. Finally in June 1995, Congress approved the National Development and Investment Plan 1995-1998 (Law 188-95), which suspended the liquidation of FNCV, but it was not until December 1995 thatthe decree reorganizing FNCV was passed. As the legislation states it, the reorganization of FNCV doesnot mean that the decentralization policy is being reversed, but rather that FNCV becomes an additionaloption to provide continuity in the rural roads programs until the weakest departments and localgovernments demnonstrate sufficient capacity to undertake this responsibility alone.

46. Compliance with loan covenants. Compliance with loan covenants was generally satisfactory,with the exception of the financial and audit covenants. In its audits reports CGR, pointed out severaldeficiencies in FNCV's accounts and internal control procedures which led to adverse opinions on thefinancial statements of the agency and in various occasions on the project accounts. The annual auditreports were always late, four to eight months later than the covenant date, giving little chance for FNCV todiscuss and clear the deficiencies observed by CGR. The administrative decentralization to the RegionalOffices compounded the problem since many of them were lacking staff with appropriate accounting skills.In 1994, FNCV made remarkable efforts to clear those deficiencies and reinforced the internal control andaccounting functions in both headquarters and the Regional Offices still in operation, an effort that wasacknowledged by CGR. Nevertheless, FNCV's financial statements of December 31, 1995 received againa negative opinion from CGR.

G. ASSESSMENT OF OUTCOME

47. Overall rating. The project's outcome can be considered marginally satisfactory. Given theimplementation scenario, overall performance was better than could be expected. The majority of thesector policy objectives were achieved, or are expected to be achieved once Government completes theimplementation of its decentralization policies. The road classification and inventory completed early in theproject became a key instrument during implementation of the reforms, first defining responsibilities amongthe three levels of government prior to the reform, and later, supporting the transfer of secondary and ruralroads to the departments. With the transfer of secondary roads, the national road network is now confinedto a well-defined network of import/export corridors and trunk roads, which removes the pressures that inthe past led to spreading thin national resources to satisfy regional balances. The Transport Law sets keyprinciples to increase efficiency and effectiveness in road sector management. The study on road-user

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charges and funding strategies highlighted the existing imbalances between responsibilities, capacity andfinancial resources, an aspect probably overlooked initially by the reform but that now is gaining supportamong the sector authorities. Unfortunately the study came too late to implement its recommendationswithin the project's time frame, but this effort is being pursued with support from the on-going Loan 3453-Co.

48. The results of the long term efforts to build capacity at the local level and mobilize municipios toassume their responsibilities for road maintenance were mixed. As the experience of FNCV shows, it willtake time until local governments fully assume their responsibility for road maintenance and the principlethat maintenance should be provided on a continuous basis; but that experience also recognizes thatmunicipios take action when they perceive the roads need repair. A study performed by the Bank4 on asample of 16 muncipios concludes that the experience of those municipios suggests that municipalgovernments can be more reliable service providers than it is sometimes assumed. The study confirms thatroads is an area in which municipios have been very active since the beginning of the decentralizationprocess. Furthermore, the evidence collected shows an expansion in the local road networks, and notableemphasis on road maintenance in ten of the sixteen municipios. Though there is scope for improvement,the project made an important contribution in this area.

49. The achievement of the physical targets planned in the SAR was substantial, contributing toexpanding and improving the condition of the rural road network. The economic analysis performed uponproject completion on a sample of 18 subprojects shows that the investments had positive impact inreducing transportation costs and improving access to markets. The economic indicators are satisfactory,though generally lower than those anticipated at the respective appraisals. Agriculture production in therural areas suffered with the reduction in trade barriers that came with the opening up of the economy.However, this has increased farmer's awareness about transport cost constraints, which is likely to lead toa better exploitation of the cost savings to be made at the farm-to-local market level.

50. In retrospect, the project's outcome would have been better, had the reform mandated a moregradual liquidation of FNCV or focused on a new role for FNCV, consistent with the new decentralizationpolicies.

H. FUTURE OPERATIONS

51. Government is taking actions in three main areas that will eventually contribute to improvingproject sustainability, namely (1) strengthening the role of MOT, (2) strengthening road sector funding, and(3) re-incorporating the reorganized FNCV into the national cofinancing system.

52. Strengthening the role of the Ministry of Transport. MOT, through its Directorate of RuralRoads, has to play a leading role to coordinate and monitor the implementation of technical assistanceprograms for subnational governments. MOT will assess whether a department has achieved the technical,administrative and financial capacity to receive the road network still under FNCV, using a criteria that iscurrently under discussion. The evaluation will be based on the department's performance in managing thesecondary roads that were transferred from the national level. With funding provided under the RCF,

4 J"Colombia Local Government Capacity: Beyond Technical Assistance", Country Operations Division I,Country Department HII. Report No. 14085-CO. July 7, 1995

- 16 -

MOT is assisting the departments in the preparation of their road plans. GOC is preparing with IDB a newoperation aimed at building the institutional capacity of the departments.

53. Strengthening road sector funding. This is being pursued by increasing investment levels,enhancing the structure of road user charges, and making operational the cofinancing system to financemaintenance and rehabilitation of secondary and tertiary roads (with special emphasis on those roadstransferred from the national level). Government has substantially increased investments in the road sector,from about 1% of GDP during 1991-94 to about 2.3% for 1995-98, in order to clear the existing roadinfrastructure backlog and accommodate the transport system to present needs. The Development Planentails investing about US$7.2 billion, out of which US$1.2 billion would be apportioned to support thedevolution of roads to departments. With funding provided under the on-going Loan 3453-CO,Government is undertaking a second-phase of the study on Road User Charges and Funding Strategies to,among other objectives, put in place a better structure, consistent with the principles of the Transport Lawand more adequate for road maintenance financing. This would allow redirecting the matching grantsunder the cofinancing system to target poverty and externalities between departments, provide incentivesfor reforms or increased outsourcing, and passing back to subnational governments that portion of the roaduser charges that are collected at the national level. Government is also streamlining the procedures toaccess the cofmancing system.

54. Reincorporating FNCV into the National Cofinancing System. The reorganized FNCV willcontinue expanding the rural road network, improving the condition of those rural roads that have not yetbeen transferred to subnational governments, and building up capacity for road maintenance at the locallevel in line with the decentralization policy adopted by the Colombian government. The new roleemphasizes the latter objective over the executing functions. FNCV will coexist with the departmentalcofinancing units (UDECOs); the former will be charged with implementing those subprojects specificallyrequested by local governments and identified in the central government annual budget, while the latter willbe responsible for putting together the departmental road programs that will be submitted for cofinancing tothe RCF.

55. The reorganized FNCV will adopt the same cofinancing procedures established under the RCF.Hence, FNCV will contract out all works to private firms, community-based and local organizations,regional entities, phasing out its force account program. It is envisaged that by phasing out the forceaccount program, the Regional Offices will be in a better position to channel technical assistance todepartments and municipios and focus on monitoring departments and local governments' compliance withthe targets agreed under the rural roads maintenance programs. To support this process, FNCV plans todevelop micro-enterprises for routine maintenance, expanding the system so successfully used by MOPTand now INVIAS on national roads. These cooperatives will be charged with maintaining an average of 30km of roads in the local area, under the supervision of FNCV's Regional Offices. Periodic maintenanceactivities will be undertaken by private contractors or associations of municipios.

56. The operational plan prepared by FNCV in October 1996 is shown in Appendix B. The planfollows the structure of a logical framework. Key targets sought by the plan are highlighted below:

Objective Performnance IndicatorUpgrade the condition of the In two years time...rural road network => the condition of about 2,000 km of rural roads is improved;

=> about 20,000 km of rural roads are annually maintained, with periodic

- 17 -

maintenance activities over 4,000 kin;Develop institutional capacity, In three months time...complete the transfer of roads = FNCV is reorganized (including headquarters and Regional Offices)to the departments,. and = the distribution of responsibilities between FNCV, RCF, departments and localimplement at the local level the governments is clarified and understood by subnational governments;maintenance program based on In six months time...microenterprises => the institutional building plan for departmental and local governments is

agreed with MOT and its implementation begins with funding through FNCVand RCF's budgets;the first 50 pilot microenterprises are established to routinely maintain ruralroads networks;

=> the mechanisms for the transfer of roads to the departments are established;In one year time...

> about 200 microenterprises formed to routinely maintain rural roads networks;> about 300 municipios and the departments are involved in the technical

assistance program;In two years time...about 900 microenterprises formed to maintain rural roads networks under thesupervision of local governments and FNCV's Regional Offices

I. KEY LESSONS LEARNED

57. Several lessons can be derived from the implementation of this project and of the majorinstitutional reform that took place between 1992-1993. For their possible application to the design ofother projects in Colombia, and perhaps in other countries as well, the lessons discussed below refer to theimplementation of institutional reform, the design of institutional building programs to reach localgovernments, and the establishment of an enabling environment for road maintenance.

58. The experience gained so far in implementing the Colombian institutional reforms confirms thatreform processes do not immediately produce all the intended results. However, they open the dialogue tocontinue the reform and allow permeation of "cultural" change, assuming that commitment to the reform issteadfastly sustained. It is not enough to pass legislation, it is also necessary to internalize strategies andconcepts, which entails time, and to lauch a program of law regulations which will evolve in light of theexperience gained. The Transport Law states key concepts (tariff for services, public-private partnershipsfor Departments) but most of them have not been fully implemented because of the weak institutional base,and insufficient efforts to overcome it through institutional building programs. Last minute approval oflegislation and the lack of an integral strategy to support the changes --in a country with notable capacityfor innovation but with a weaker record in implementation-- leads to few results. Political considerationsmay force quick, radical changes, even without a sound implementation strategy in place, but the risks ofdelays and setbacks increase substantially, and may jeopardize the achievement of the objectives of thereform. The dismantling of FNCV started without having in place adequate financing mechanisms and theinstitutions that would take over its responsibilities. Seen retrospectively, the retrenchment of FNCV'shighly committed and experience staff was a loss. It could have been avoided, had the reform provided fora longer transitional period, linked with the progress made in establishing the new arrangements.

59. The transfer of roads from the central government to the departments turned into protractednegotiations over the control of the resources associated with it, instead of focusing on building capacitythrough some time-bound programs. Many departmental governments expressed concern that the level of

- 18 -funding that would become available through the RCF would not match the expanded responsibilities. Themechanisms, financial and otherwise, to support the transfer should be clearly defined in advance to avoidthis risk The financial incentive added later (one time financial contribution per km of road transferred)was an attractive means to promote the transfer but does little to ensure the sustainability of the process.The RCF has to give more support to the weakest departments when assigning resources. There is still arisk that the roads transferred to the weakest departments may reverse to national agencies if thesedepartments do not promptly develop enough capacity to maintain their networks. In the case of ruralroads, this risk is more evident due to the higher likelihood of road closures, particularly in mountainousregions. The experience is demonstrating the need to develop financing mechanisms based on user-charges--following the tariff concept established by the Transport Law-- to avoid the current situation in whichdepartments heavily depend on inter-governmental transfers (through the RCF) and support frommunicipalities to finance their programs.

60. Designing effective institutional programs aimed at building local capacity poses probably one ofthe greatest challenges for development projects. The quality and sustainability of these programs becomeeven more critical when dealing with rural communities which are institutionally weaker and more difficultto reach. FNCV was very successful in reaching the poorest municipios when it introduced the firstcofinancing system in 1989 (before 1989 FNCV had financed the works without requiring anycontribution from the beneficiaries). Some key elements of that success include: (a) a clear purpose (ie.,training municipios in the procedures to access the cofinancing system) well understood by theparticipating municipalities. The municipios immediately connected the relevance of the future investmentswith the benefits that those investments were going to bring about; (b) continuity. The program wasdesigned centrally but carried out in a decentralized manner. FNCV's Regional Offices remained thereclose to the municipios to work together in identifying candidate subprojects, adopting the cofinancingarrangements, and preparing the necessary studies (the latter a task most generally undertaken by FNCVthrough consultants); (c) trust. FNCV was an agency with recognized prestige and a proven record forworking together with the poorest nuniclpios; and (d) demand-driven. The municipios showed greatinterest in gaining access to a cofinancing system, which was flexible enough to accommodate localconditions. The requests exceeded FNCV capacity to undertake projects. The program gave theopportunity for FNCV and the municipios involved to learn by doing while motivating participation byshowing results.

61. Achieving similar results in long term institutional building programs is more difficult, particularlybecause some of the above elements may not be evident. Sustainable development of capacity at the locallevel is possible when there is effective demand by local administrations. The new national cofinancingsystem may play a role in mobilizing such demand, but is not as flexible to respond to the enornousdiversity of regional and local conditions in Colombia, as the previous more limited efforts were.

62. However, the effectiveness and the prospects for sustainability of these programs can be increasedby: (a) promoting the dissemination of good practices and use of strategic partnerships. Examples of "bestpractices" and of solutions adopted by municipios, which are clearly successful but yet perceived as atreach by other municipios, carry strong motivation, thus becoming an effective way of speeding up thedevelopment of local capacity. Several municipios of varying size (eg., Manizales, Libano, La Mesa,Ipiales) increased the coverage and efficiency in delivering road maintenance services by creatingassociations of municipios to share road maintenance equipment, contract out the services or establishtwinning arrangements; (b) designing flexible programs, tailored to local or regional demands and providedin a decentralized manner. INVIAS and MOT are launching an institutional program that rather than

- 19 -

following a rigid agenda, would finance organization and management consultancies in those departmentsthat request the assistance, with the agenda defined mostly by the benefited department. Though it is tooearly to assess the outcome of this initiative, it is interesting to note that the strategy was conceived afterrealizing the little impact of more traditional approaches; and (c) ensuring sustained commitment whileseeking progressive results. Though it is generally accepted that building institutional capacity is a longterm effort, this is often neglected in practice when the objectives of such programs are set in a manner thatis not consistent with the time needed to produce the desired changes. More attention should be devoted todefining an appropriate sequence for the interventions needed (which may go beyond the scope of oneproject) and setting progressive benchmarks. The use of these benchmarks will help focus the programs ona few prioritized goals, facilitate the assessment of progress and outcome, and increase motivation byshowing early results. However, the difficulty of tailoring both, sequence and benchmarks, to the variety oflocal conditions prevailing in the country (or even a region of the country) cannot be ignored; in particular,the cultural, social, and political factors that usually remain outside the control of a project but havesignificant impact, call for flexibility in the design. This is an area where more research is needed.

63. The cofinancing arrangements used by FNCV increased ownership and responsiveness to localneeds. Through this arrangements FNCV also stressed that the responsibility for road maintenance reliedon the local governments. The agreements made this very clear, and specifically those for routinemaintenance required that local movements provide the labor needed. On the other hand, the cofinancingsystem to a certain extent implied accepting the priorities defined by the local governments. With so manyroads impassable and severe budget constraints, it is understandable that mayors would give preference toperiodic maintenance and rehabilitation of those roads (even if not part of FNCV's road network) overroutine maintenance. They will likely step in and undertake corrective works when the trafficability is seenat risk. Under these circumstances, it is difficult to conclude whether such behavior reflects lack of localcapacity or rather response to local priorities.

64. The experience of FNCV shows how difficult it is to move municipalities towards a "continuous"maintenance culture, in spite of the increased "ownership" that could be expected from the cofinancingsystem. The project suggests some elements that may help local governments to move to a culture ofmaintenance: (a) some previous investment is needed to improve the condition of the roads to a condition inwhich they are maintainable; (b) the effectiveness of routine maintenance becomes a demonstrated reality toboth road users and local authorities only after having delivered the services for a reasonable period oftime. Using locally acceptable schemes ensures the program will not be discontinued (the formation ofmicroenterprises and road maintenance cooperatives at the local level, now supported by FNCV, is aneffective solution on both technical and social grounds with its potential for building a local lobby forcontinued maintenance); (c) an affordable mechanism of road user charges secures a stable flow of fundsfor this purpose. While the use of community-based organizations or microenterprises is an affordablesolution for the municipios, their sustainability requires prompt payment; (d) those with a vested interest ingood roads evaluate the results and exercise their voice before the local authorities. Local participation inscreening and identification of subprojects, favored by FNCV, should also be expanded to include decisionsregarding maintenance. In many of the municipios that worked with FNCV, PNR (through the Juntas deAccion Comunal) played an important positive role in fostering participation in rural areas and among poorcommunities, organizing formerly disenfranchised groups and helping them voice demands and acquire aspace in the local political debate. FNCV implemented several years ago the peon caminero or lengthmenprogram to maintain road stretches about 4 km long and give local employment. The program failedbecause local authorities became excessively clientelistic at the time of awarding the petty contracts, thuscreating rivalries and distrust. Former FNCV staff believe that the Juntas can play a key role in developing

- 20 -

these local initiatives for the most simple works in the remote "veredas" where the sustainability ofmicroenterprises may be more difficult.

65. Aiming at eventually achieving full-fledged transfer of road maintenance responsibilities to localgovernments, FNCV together with the local administrations involved in the project were required to drawup action programs with time-bound targets. In practice, these action programs were necessarily limitedbecause FNCV had no control over other key elements of the decentralization agenda, in particular thefinancing mechanisms. Since the primary function of the Regional Offices was to keep the work program,going, particularly the force account program, institutional building was frequently a second priority. Thismay improve now, with the elimination of the force account program, the emphasis on the provision oftechnical assistance services under the reorganized FNCV, and a better understanding of the financingmechanisms in the decentralization agenda.

- 21 -PART II. STATISTICAL ANNEXES

Table 1: Summary of Assessments

A. Achievement of Objectives Substantial Partial Negligible Not Applicable

Macroeconomic policies 1'

Sector policies lFinancial objectives lInstitutional developmentPhysical objectives lPoverty reduction lGender concerns IOther social objectives lEnvironmental objectives IPublic sector managementPrivate sector development I

C. Bank Performance Highly satisfactory Satisfactory Deficient

IdentificationPreparation assistanceAppraisal ISupervision l

D. Borrower performance Highly satisfactory Satisfactory Deficient

Preparation lImplementationCovenant complianceOperation (if applicable)

E. Assessment of outcome Highly Marginally HighlySaSatisfacry Satisfacto Unsatisfactory Unsatisfactory

I

- 22 -Table 2: Related Bank Loans/Credits

Loan/Credit Title Purpose Year of Statusapproal

Preceeding Operations

Rural Roads Sectorl.First Rural Roads Support FNCV's 1981-84 Program for rural March 1981 Completed

Project, Ln. 1966-CO roads construction and rehabilitate and improve June 1986FNCV's managerial performance

2.Rural Transport Sector Support 1982-92 Investment and Maintenance July 1982 CompletedProject, Ln. 2668-CO Program and improve FNCV's institutional Dec 1992

efficiencyAgriculture Sector3. Second Integrated Included financing for construction of about June 1982 Completed

Rural Development 700 km of rural roads and improvement of 400 June 1990Project, Ln. 2174-CO km. FNCV carried out the rural roads

component for the Integrated RuralDevelopment Fund (DRI)

Highways Sector4.First Highway Sector Upgrade the transport system, adjust sector April 1982 Completed

Project, Ln. 2121-CO policies, strengthen MOPT's highway Dec 1988management capacity

5.Second National Improve MOPT's internal efficiency, implement October 1987 CompletedHighways Sector policy reforms in the transport sector and Dec 1993Project, Ln. 2829-CO upgrade the condition of the highway network

Following Operations

Highways Sector6.Third National Roads Reduce cost of transport, improve project March 1992 In progress

Sector Project, Ln. preparation capacity within MOPT, and3453-CO implement a rolling five year investment

programAgriculture Sector7.Rural Development Includes financing for construction of about 800 July 1990 In progress

Investment Program, km of roads, improvement of about 516 km,Ln. 3250-CO under the road component for the Integrated

Rural Development Fund (DRI)

Includes projects in the same sector/subsector as this project. A limit of 10 years is observed when listingpreceeding operations

- 23 -

Table 3: Project Timetable

Steps in project cycle Date planned Date actualIdentification January 1988 January1988

................ . ..... .. .................................... ............ ......................... ....................... ................ .....Pre paration (preappraisal) May 1988 June 1988Appraisal .... ,November 1988 Febmary 1989~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~.....PP ,,.... ... ........................................... .............. . .................................Negotiations ... .April 1989 October 1989Letter of development polcy (if applicable) n.a. n.aP oApr d pscation, June 1989 January 16, 1990

[Sgig....... .... ........ ...... .............. ......................... ..................... .... ............ ~ .1.1 ,,. ,,,,., .,,MachX 990Effectiveness Jan ay 1990 June 6, 1 990

ffidterm review~~~~~~~~~~~~~~~~~~~~~~. .................. b!4,,,,...........................,,,,,,,,,,,, n ........................................................F ~irst '.. rn"c..h"e ...r"ele'..asec .("if ..a"p ..p"l i c"able") ...................... n.a. n.aMidterm review (ifapplicabl) n.a. n.aSecond (and third) tranche release (if applicable) n.a. n.a......................................... ......... ....... ..... ........ ..................... ........................................... ..........................................- 1Projectcompletion December 31, 1994 December 31, 1995~~~~~~~~~~~~.............. ....... .................... .............. .......... ........................................ ......... .... ......................................................Loan closing December 31, 1995 December 31, 1995

Table 4: Loan Disbursement

FY 90 91 92 93 94 95 96Appraisal Estimate 9,1 16,6 24,3 32,0 39,7 47,4 55,0

Appraisal Revised Estimate 9,1 16,6 24,3 32,00 39,8 54,0 55,0Actual 0 6,5 13,8 25,8 41,8 50,6 55,0Actual as % of Estimate 0 ° 39,2 | 56,8 80,6 105,3 106,8 100,0Actual as % of Revised 0:o 39,2 56,8 80,6 105,0 93,7 100,0Date of final disbursement Ma 9, 1996 "2 1US$13,865.71 remaining undisbursed were canceled on that date

- 24 -

Table 5: Key Indicators for Project Implementation

L Key implementation Indicators in SAR Appraisal Revised ActualPresident's Report I

A. FNCV's Sector Plan Physical Targets(1990-1995)

1. Civil Works- Construction of rural roads (km) 939 1,241 1,759- Construction of canals (km) 2 0 0- Construction/improvement of bridges (m) 1,120 1,620 1,576- Improvement of rural roads (km) 1,646 2,386 3,181- Periodic maintenance of rural roads (km) 4,378 6,347 10,699- Routine maintenance of rural roads (km) 26,002 28,259 17,893- Emergency maintenance of rural roads (km) 521 521 233

2. Equipment Rehabilitation and Acquisitionof Spare Parts- Repair of FNCV's road maintenance fleet no targets 6 motograders

and purchase of a stock of fast consumming defined 25 front loadersspare parts 1 mtce. unit

spare parts

B. Loan 3157-CO Physical Targets(1990-1995)

1. Civil Works- Construction of rural roads (km) 800 645 776- Construction of canals (km) 2 - -

- Construction/improvement of bridges (m) 1,120 1,620 1,134- Improvement of rural roads (km) 1,300 1,200 1,053- Periodic maintenance of rural roads (km) 2,250 1,651 1,239- Routine maintenance of rural roads (km) l

- Emergency maintenance of rural roads (km)

2. Equipment Rehabilitation and Acquisitionof Spare Parts- Repair of FNCV's road maintenance fleet no targets see above

and purchase of a stock of fast consumming definedspare parts _ _ _ _ _ _ _ _ _ _ _ _ _

- 25 -

Table 6: Key Indicators for Project Operation(not applicable)

Table 7: Studies Included in Project

Study Purpose as defined at Status Impact of studyappraisalUredefined

Road-funding The two main objectives defined in the Completed * Identified the gaps in cost recovery atStrategies SAR are (a) to review the present with delay the national level (to support the

structure and sources of funding modernization of the national network)expenditures in the rural road subsector, and the subnational levels (about 15% ofand (b) to evaluate and recommend projected needs).strategies to define, revise and create * Recommended changes in the stucturefunding sources and mechanisms for of road user charges to better reflectobtaining and collecting revenues marginal pricing and a strategy for itssufficient to fully finance road gradual implementation;expenditures. * Identified inbalances betweenUpon approval of the Transport Law of responsibilities and funding sources at1993, the scope of the study was subnational level, not addressed by theexpanded to include the analysis of road Road Cofinancing Fund.user charges at the three administrative * As a result, the need for more autonomylevels. at national level and a stable flow of

funds for maintenance at the three levelsis gaining support among INVIAS,MOT and DNP (this is being exploredunder a follow-on phase funded throughLoan 3453-CO).

- 26 -

Table 8A: Project Costs (1)

Appraisal estimate Actual/latest estimateCategory (USSM) (US$M)

Local Loan Total Local Loan(2) Total1. Civil works 32.3 48.3 80.6 32.9 49.4 82.3

Road construction and improvement 26.1 39.0 65.1 26.8 40.2 67.0works (roads and bridges)Road maintenance 6.2 9.3 15.5 6.1 9.2 15.3

2. Equipment repairs & Spare parts 0.4 1.0 1.4 0.2 0.9 1.13. Engineering services 5.5 5.2 11.4 5.6 4.6 10.3

Road design and supervision 5.1 4.8 10.6 5.5 4.5 10.1Technical assistance 0.4 0.4 0.4 0.1 0.1 0.2

4. Trainig activities 0.5 0.5 1.0 0.1 0.1 0.2Total 38.7 55.0 94.4 38.8 55.0 93.8

(1) Project costs for investments and services financed under the Loan(2) The total amount disbursed was US$54.986 million; cancellation not reflected due to rounding

Table 8B: Project Financing(')

Appraisal estimate | Actual(USSM) I (US$M)

Source Local Foreign Local Foreignl___________________________ Costs Costs Total Costs Costs TotalIBRD (2) 55.0 55.0FNCV - Domestic contribution 38.7 38.8(through national budget and l

cofinancing resources) l

Total 94.4 93.8

(1) Project costs for investments and services financed under the Loan(2) The total amount disbursed was USS54.986 million; cancellation not reflected due to rounding

- 27 -

Table 9: Economic Cost and Benefits(Based on an ex-post evaluation of a sample of 18 subprojects performed by FNCV)

Road Type of Length (krn) Subproject Costs (ColSm) NPV (Col$m) B/C RatioSubproject Work Plan Actual Plan Actual Appr. Ex-post Appr. Ex-post

Remolino-Altamira C 7.0 10.6 550.6 1,010.1 213.6 86.0 1.42 1.08Maravillas-El Salado-Valle del Chilli C 8.0 5.7 570.1 634.5 n.a. 56.6 1.07El Pescado-La Cumbre C 29.6 14.6 428.2 248.6 233.1 1,182.0 1.44 4.46Villanueva-La Culebrera C 21.3 10.9 1,064.3 450.9 527.2 62.5 1.55 1.15Cristalina Alta-La Galaxia C 10.0 4.2 719.4 456.2 945.9 266.9 2.42 1.60Versalles-Playa Cotiza C 7.0 15.4 760.4 312.1 607.1 290.2 2.05 1.58La Clara-La Trina-Gaspar C 9.0 5.1 766.0 186.2 360.7 61.2 1.56 1.29Dinde-El Play6n C 26.5 18.4 1,556.3 574.8 399.7 262.9 1.37 1.33Avispero-Horizonte C 13.5 9.0 1,359.0 301.7 1,508.3 164.4 2.51 1.51Palmar-Platanares C 5.0 5.5 428.7 407.2 420.6 1,400.0 2.12 4.28San Pedro Uraba-Valencia M 5.5 4.4 1,398.6 697.9 382.5 433.8 1.21 1.32Moffitos-S. Bernardo del Viento M 21.0 13.4 845.1 863.2 510.4 314.0 1.39 1.16S. Francisco-Portachuelo-Minchoy M 4.5 3.3 402.2 409.2 523.5 126.4 2.41 1.33S. Antonio-Ramiriquiri-Fatima M 31.5 18.1 1,009.3 456.2 791.2 217.2 1.30 1.48S. Nicolas-Honduras Bajo M 5.0 4.1 332.3 215.2 145.1 187.2 1.47 2.95La Colonia-Alto Altamizal M 7.0 19.9 568.7 329.0 363.0 843.6 1.89 3.65Sta. Cruz-Socavones(') M 3.4 0.2 149.5 18.5 315.2 605.7 2.60 4.17Riejo Viejo-Cruce Ramal Morosi M 30.0 16.3 2,575.4 1,131.2 1,796.0 165.6 1.90 1.16

Total 244.8 179.1 15,484,0 8,702.6 10,043.1 6,726.1 -

Costs and NPV in millions of Colombian pesos of 1996.'" Investments under this subproject were reduced to building a bridge and its access.

- 28 -Table 10: Status of Legal Covenants

Agreement Text Covenant Status Original Revised Description of Covenant CommentsSection Type Fulfillment Fulfillment

Date DateLOAN 2.02 (b) 1 C 08/12/89 Open and maintain in dollars a special

account in Banco de la Republica3.01 (b) 5,12 C Prepare and furnish to the bank an annual Investments in 1994-1995 aimed at

road investments and maintenance completing all on-going subprojectsprogram for the immediate following year started either under Ln. 2668-CO or

3157-CO.

3.03 (a) 5,12 CD Furnish to the Bank for approval the Until 1993, the training programscontent of the training programs under the gave priority to strengtheningproject and the schedule for their FNCV's technical capacity at bothimplementation Headquarters and Regional Offices,

3.03 (b) 5,12 C select the beneficiaries of such training building up capacity at local level forprograms in accordance with criteria design, supervision and maintenancesatisfactory to the Bank; of road projects, and assisting local

3.03 (c) 5,12 C exchange views with the Bank on the governments access the cofinancingtraining programs to be carried out in the system. From 1994 on, the Ministryfollowing calendar year of Transport together with

3.03 (d) 5,12 C furnish to the Bank a report on the results FINDETER, assumed responsibilityof each of such training programs and the for the training programs. Thebenefits derived from them programs are summarized in

supervision and progress reports.3.04 (a) 5,12 CP Enter into agreements satisfactory to the The agreements spell out the list of

Bank with the administrative units roads selected for cofinancing and theparticipating in the execution of the 1990- obligations assumed by the93 Rural Roads Program participating municipio regarding

cofinancing and future maintenance.3.05 9 C Furnish to the Bank a report on: a)

progress made in the execution of theproject; b) the achievement of theobjectives of the 1990-93 Rural RoadsProgram as of the preceding semesterending December 31 and June 30,

- 29 -Agreement Text Covenant Status Original Revised Description of Covenant Comments

Section Type Fulfillment FulfillmentDate Date

respectively3.06 (a) 5,12 C Exchange views with the Bank, and where Agreements with MOPT and DNP to

appropriate with MOPT and DNP on (i) (1) update the road functionalprogress in the implementation of the classification, (2) prepare terms ofproject; (ii) adequacy of the evaluation reference for the road funding study,criteria (iii) progress in the execution of and from 1993 on, (3) define suitableaction programs (iv) value and justification financing and institutionalof road works mechanisms to replace FNCV, and

3.06 (b) 5,12 CP prepare action plans to improve its (4) provide technical assistance toperformance and resolve any outstanding departments and municipios.problems. Several action programs were agreed

3.06 (c) 5,12 CP carry out such plans in a manner and with FNCV to improve its accountingaccording to timetables satisfactory to the and internal control, and clear theBank deficiencies pointed out by CGR in its

audit reports. Though some progresswas made, the results fell short ofexpectations.

3.08 (a) 12 CD Carry out the study included in Part E of The study was reformulated tothe project under terms of reference include an analysis of the entiresatisfactory to the Bank; system of road user charges

3.08 (b) 12 C furnish to the Bank the recommendations The conclusions were discussedof such study; among DNP, MOT and INVIAS.

3.08 (c) 12 C afford the Bank a reasonable opportunity to Need for more autonomy and a stableconunent on such recommendations; flow of funds from user charges is

gaining support.3.08 (d) 12 C assist the Guarantor in the preparation and Definition of action plan still pending

execution of the action program referred to DNP, MOPT and INVIAS arein Section 3.01 (b) of the Guarantee revising the mechanisms forAgreement. financing roads

5.01 (a) 1 CP Borrower to: An action plan has been agreedmaintain records and accounts adequate to between FNCV and the Contraloriareflect in accordance with sound de la Reptiblica to correct theaccounting practices its operations and deficiencies that led to an adversefinancial condition including separate opinion on FNCV's financial

- 30 -Agreement Text Covenant Status Original Revised Description of Covenant Comments

Section Type Fulfilment FulfillmentDate Date

records and accounts to reflect the statements and the project's accounts.resources and expenditures in respect of theproject

5.01 (b) 1 CD have its records, accounts and financialstatements for each fiscal year audited

5.01 (b) 1 CD furnish to the Bank certified copies of its The audit reports for 1994 and 1995financial statements and the report of such were submitted to the Bank inaudit by said auditors; October 1995, and September 1996,

respectivelyGuarantee 3.01 (a) 12 CD 12/31/90 through DNP, (i) assist the borrower in DNP delayed preparation of terms of

preparaing the terms of reference for, and reference (in part due to the reform inexecution and supervision, of the study progress). The draft final report ofincluded under Part E of the project; and the Study was issued in February(ii) exchange views with the Bank and the 1995.Borrower on the recommendations of suchstudy.

3.01 (b) 12 NC prepare an action program, satisfactory to Action plan under preparationthe Bank, based on the recommendations (through second phase of studyand findings of such study; funded under Ln. 3453-CO).

3.01 (c) 12 NYD carry out such action program in a mannerand according to a timetable satisfactory tothe Bank. _

3.02 (a) 12 C 07/31/90 Through MOPTcomplete an inventory of all public roads in

_ _ ~~~~~Colombia other than national highways3.02 (b) 12 C 10/31/90 prepare and furnish to the Bank a The functional classification is being

functional jurisdictional classification for revised and updated in line with thesuch roads, satisfactory to the Bank provisions of the Transport Law

_________ ________ ________ ________ ____________________approved in December 1993.3.02 (c) 12 CP 01/31/91 take all action necessary to put in full force Transfer of roads to departments in

and effect such classification progress: all secondary roads andabout 7,000 km of rural roadsformerly under FNCV have alreadybeen transferred.

- 31 -Status:C = Complied with SOON = Compliance Expected in Reasonable Short TimeCD = Compliance after Delay CP = Complied with PartiallyNC = Not Complied with NYD = Not Yet Due

Key Covenant Types 7 = Involuntary resettlement1 = Accounting/audit 8 = Indigenous people2 = Financial performance/revenue generation from beneficiarires 9 = Monitoring, review and reporting3 = Flow and utilization of project funds 10 = Project implementation not covered by categories 1-94 = Counterpart funding 11 = Sectoral or coss-sectoral budgetary or other resource allocation5 = Management aspects of the project 12 = Sectoral or coss-sectoral policy/regulatory/institutional action6 = Environmental covenants 13 = Other

Table 11: Compliance with Operational Statements(Not applicable)

Table 12: Bank Resources: Staff Inputs

Stage of Planned Revised Actualproject cycle Weeks US$ Weeks US$ Weeks US$

| Through appraisal 11.0 23,170

| Appraisal-Board . 20.7 46,250

[ Board-effectiveness_ . _ 0.4 1,017

| Supervision 58.6 174,443

Completion 4.6 6.887

Total . 95.37 251,767

- 32 -

Table 13: Bank Resources Missions

l Specialized Performance rating IStage of project cycle Month/ Number of Days in field staff skills Implementation Development Types of problemsl_________________ year persons represented status Objectives

Through appraisal Jan-88 2 5 TE, HEJun-88 2 12 TE, HE

l ________________ Feb-89 2 12 TE, HEAppraisal trough Apr-89 2 7 TE, HEboard approval Jul-89 2 7 TE, HEBoard approval

Through effectiveness _ _ __.Supervision Nov-90 2 10 HE, ES I 1 ENV

Sep-91 1 7 HE 1 1 AFJul-92 1 11 FA 1 1 STDJan-93 1 5 HE 1 1 CLCMar-93 1 11 HE, TE 2 1 STDAug-93 2 16 HE, FA 2 1 CLC, PROC, STDFeb-94 2 11 HE, FA 2 2 CLC, PMSep-94 2 10 HE, FA S S CLC, PMMar-95 2 13 HE, FA S S PMNov-95 2 7 U U CLC, PM, AF, ENV

Completion Nov-95 2 7 HE, FA U U CLC, PM, AF, ENVMar-96 3 2 HE, TE, FA S S PM

Total 11 missions 146 _ _

Staff Skills Type of problemsTE = Transport Economist AF = Availability of fundsHE = Highway Engineer PM = Project Management PerformanceFA = Financial Analyst CLC = Compilance with Legal Covenants (financial covenants)ES = Environmental Specialist STD = Study delayed

ENV = Environmental controlPROC = Procurement delayed

Appendix A: Completion Mission's Aide Memoire

Annex 1

Segundo Proyecto Sectorial de Caminos RuralesAyudaMemoriaNoviembre 1995 -Pag 1 de 10

COLOMBIA

FONDO NACIONAL DE CAMINOS VECINALES

SEGUNDO PROYECTO SECTORIAL DE CAMINOS RURALES (PRESTAMO 3157-CO)

AYUDA MEMORIA

1. Una misi6n del Banco Mundial integrada por los Sres. Jose Luis Irigoyen y MauricioCuellar visit6 Colombia del 15 al 21 de noviembre de 1995 con el fin de supervisar el progreso enla implementaci6n del proyecto de la referencia. La rnisi6n desea expresar su agradecimiento alLiquidador del Fondo Nacional de Caminos Vecinales (FNCV), funcionarios del Ministerio deTransporte (MT), FNCV, Departamento Nacional de Planeacion (DNP) y Contraloria General dela Republica (CGR) por la colaboraci6n que le brindaron durante su visita.

2. El Segundo Proyecto Sectorial de Caminos Rurales se encuentra muy pr6ximo a suterminaci6n el 31 de diciembre de 1995, fecha de cierre del prestamo. La evaluaci6n realizadapor la misi6n se centra principalmente en cuatro aspectos: i) situaci6n institucional actual deFNCV y avance en la correcci6n de las deficiencias contables, financieras y de control internosefialadas por la CGR en sus informes de auditoria; ii) el progreso en la ejecuci6n del proyecto yen el logro de sus objetivos; iii) el establecimiento de los mecanismos que aseguren lasostenibilidad de las inversiones y objetivos alcanzados por el proyecto; y iv) las tareas a realizarpor FNCV para preparar el "Infonne sobre terminacion de la implementacion del Proyecto",incluyendo un plan operacional para mantenimiento de los caminos rehabilitados y mejorados bajoel proyecto. La presente ayuda memoria resume las conclusiones de la misi6n y los acuerdosalcanzados con FNCV en cada uno de dichos aspectos.

Situacion institucional de FNCV y correccion deficiencias senaladas por la CGR

3. Situaci6n de FNCV. La misi6n reconoce el gran esfuerzo que viene realizando lainstituci6n por mantener su capacidad operativa para ejecutar el proyecto, la cual estamarcadamente debilitada por el proceso de liquidacion mandado por el Decreto 2171 dediciembre de 1992. FNCV se encuentra actualmente reducido a una dotacion deaproximadamente 140 funcionarios (de alrededor de 1600 antes de la liquidaci6n) y nueveregionales localizadas en los departamentos de Bolivar, Boyaca, CaquetA, Cordova, Narinio,Santander, Meta, Choco y Putumayo. En algunas areas se ha procurado mitigar la perdida decapacidad operativa originada por la salida de personal experimentado mediante contratacionesindividuales de corto plazo, pero son notorios por su importancia para la adecuada terminaci6ndel proyecto el debilitamiento de la Oficina de Planeaci6n (se corre el riesgo de perder losmodelos de evaluaci6n socio-econ6mica desarrollados por FNCV) y de los sistemas deseguimniento de proyectos, y el desmantelamiento de la Unidad Ambiental (conformada porconsultores a quienes se vencieron los respectivos contratos).

Segundo Proyecto Sectorial de Caminos RuralesAyuda Memoria Noviembre 1995 - Pag 2 de 10

4. En este sentido, misiones anteriores han venido recomendado (1) hacer un mayor uso de lacontrataci6n de firmas consultoras de manera de delegar algunas de las funciones de laadministraci6n, (2) asegurar la continuidad de los sistemas de informaci6n y seguimiento para laadministracion de contratos, (3) evitar la atomizacion de recursos en un gran numero desubproyectos --como se observa en el presupuesto para 1995- lo cual hace mas dificil laadecuada gesti6n de las obras, y (4) fortalecer las secciones de contabilidad y auditoriaoperacional de manera de llevar a cabo adecuadamente la liquidacion. La suspensi6n del procesode liquidaci6n (siguiente parrafo) en junio pasado ha introducido mas incertidumbre, peroconstituye una raz6n mas para introducir medidas correctivas en (1) a (3) y continuar las medidasde fortalecimiento introducidas respecto a (4).

5. La Ley 188-95 - Plan Nacional de Desarrollo e Inversiones 1995-1998, sancionada el 5de junio pasado, suspendi6 el proceso de liquidaci6n del FNCV (Articulo 36, incisos 3° y 40) hastatanto los entes territoriales demuestren que pueden asumir las funciones atinentes a laconstrucci6n, conservaci6n y mantenimiento de la red vial terciaria. La ley establece un plazo de6 meses para que se reglamente la reorganizaci6n del FNCV sin perjuicio del proceso dedecentralizacion previsto en la Constitucion. La mision solicito a FNCV que haga llegar al Bancouna copia del Decreto reglamentario tanto pronto se emita este, asi como el plan estrategicoenunciando la rnisi6n, objetivos y pasos a seguir por FNCV para implementar el mismo.

6. Auditoria de FNCV y del Proyecto. La misi6n se reuni6 con funcionarios de laSubdirecci6n Administrativa y Financiera y de la CGR con el fin de analizar las observacionesformuladas por la CGR en el informe de auditoria al control interno de la entidad, los estadosfinancieros de la entidad y del proyecto al 31 de diciembre de 1994, informe que fue presentado alBanco en octubre pasado. La misi6n desea destacar la calidad del informe preparado por la CGR,si bien hace notar la tardia presentaci6n del rnismo: casi 6 meses mas tarde que la fechaestablecida en el Convenio de Prestamo (30 abril).

7. Las deficiencias observadas Ilevaron a la CGR a dar una opini6n adversa sobre los estadosfinancieros y las cuentas del proyecto, y a una opini6n no calificada sobre la cuenta especial y usode SOEs. Durante el desarrollo de la auditoria efectuada, la CGR observ6 que FNCV "ha puestoen practica algunas recomendaciones formuladas en informes de control financiero de afnosanteriores; no obstante, la labor adelantada en este sentido no ha sido suficientemente diligente yeficiente, toda vez que el impacto de las deficiencias no corregidas, conjuntamente con lasdetectadas en el presente ejercicio, en nuestro criterio, afectan la presentaci6n razonable de losestados financieros bajo examen y el buen desempefno institucional." Si bien ha habido progresos--la contabilidad se encuentra mucho mas avanzada-- el resultado de los esfuerzos realizados en1994 para corregir las deficiencias ha sido mas pobre que el esperado (ver ayuda memoria demarzo 7 de 1995). El dictamen de la CGR pone a FNCV en una situaci6n de incumplimiento conlas clausulas financieras del Convenio de Prestamo 3157-CO, que debe ser neceariamentecorregida antes de la termninaci6n del proyecto.

8. Reconociendo la gravedad de estos dictarmenes, la urgencia de que FNCV corriga todaslas deficiencias senialadas en los respectivos dictarmenes para la presentaci6n del informe deauditoria correspondiente al ejercicio 1995, y que dicho informe pueda ser presentado con mayor

Segundo Proyecto Sectorial de Carninos RuralesAyuda Memoria Noviembre 1995 - P5ag 3 de 10

antelacion, se acord6 el siguiente plan de acci6n: i) FNCV antes del 30 de noviembre dararespuesta a las observaciones de los dictarmenes correspondientes a los estados financieros ycuentas del proyecto, asi como a la observaci6n relativa al prestamo 2668-CO incluida en elcapitulo sobre Control Interno del informe. La respuesta indicara claramente cualesobservaciones se han corregido, cuales estin pendientes y, de ser posible, de que manera se piensacorregirlas; ii) CGR llevara a cabo la auditoria interina preliminar entre el 20 de noviembre y el 20de diciembre pr6ximos, y suministrari al trrmino de este periodo una Carta de Gerencia, con loscomentarios y observaciones resultantes de esta evaluaci6n preliminar; iii) FNCV revisara la Cartade Gerencia y preparari antes del 20 de enero de 1996 una respuesta aclaratoria con la posici6nde FNCV respecto a las observaciones y las acciones tomadas o a tomar (quien las ejecutari ycuando). Una copia de esta respuesta sera suministrada a la Representaci6n del Banco enColombia antes de fin de enero; iv) FNCV presentara a la CGR antes del 28 de febrero 1996 losestados financieros cerrados al 31 de diciembre de 1995; y v) CGR completara y presentara alBanco el informe de auditoria correspondiente al ejercicio 1995 no mas tarde del 30 de junio1996.

9. La misi6n solicito a la Direcci6n de FNCV que se asigne primera prioridad a este esfuerzo,dotando a la Subdirecci6n Administrativa y Financiera de los medios necesarios para llevar a cabolas tareas arriba indicadas de acuerdo con el cronograma establecido. El Banco efectuara unaevaluaci6n del progreso en febrero pr6ximo.

Progreso en la ejecucion del Proyecto

10. Situaci6n actual del Proyecto. La misi6n revis6 con funcionarios de FNCV el progresoen la ejecuci6n de los diversos componentes del Proyecto. El Anexo 1 resume la situaci6n actualal 31 de octubre de 1995, en terminos de metas fisicas alcanzadas, ejecuci6n financiera ydesembolsos con cargo al prestamo.

11. Ejecucion fisica. Los Cuadros 1.1 y 1.2 resumen las metas fisicas alcanzadas bajo elPrograma de Inversion y Mantenimiento 1990-1995 y el Segundo Proyecto Sectorial-Pr6stamo3157-CO respectivamente. Al 31 de octubre 1995 se alcanzaron las siguientes metas de lostotales planeados al aprobar el prestamo (o a la reprogramaci6n de este en 1990): t10% enconstrucci6n, o7 °/o en mejoramiento, 151% (76% respecto a reprogramacion) en mantenimientoperiodico, y 133% (81% respecto reprogramacion) en construccion de puentes y pontones. Laejecucion durante 1995 se centr6 fundamentalmente en la ejecuci6n de los contratos adjudicadosen 1994. No se ejecutara la totalidad de la inversi6n contratada ni se alcanzaran la totalidad de lasmetas planeadas para construccion y mejoramiento debido a las dificultades que experimentanalgunos contratos por efecto de (1) incumplimiento del contratista (lo que ha llevado a declarar lacaducidad de los mismos), (2) suspensi6n de las obras por observaciones de indole ambiental, (3)retrasos en las obras debido a la crudeza del invierno (febrero-noviembre), y (4) observaciones dela CGR a algunos Convenios Interadministrativos que sirvieron de base para constituir reservaspresupuestales de 1994.

12. Ejecuci6n financiera-Desembolsos. Por las razones arriba expuestas, la ejecuci6nfinanciera de los recursos netos del prestamo durante 1995 ha sido relativamente pobre. Una

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evaluaci6n de las vigencias 1994 en ejecuci6n con cargo al prestamo (recursos del Credito 3157-CO exclusivamente) muestra que del total de aproximnadamente US$6.4 millones comprometidospara ejecutar en 1995, se han ejecutado al 31 de octubre aproximademente US$3.5 millones o53.8 porciento; quedan por ejecutar aproximadamente US$2.9 millones, de los cualesaproxirnadamente US$1 mnillon se podra concretar antes del 31 de diciembre.

13. Al 9 de noviembre de 1995 se ha desembolsado US$52.1 millones o 94.8 porciento delprestamo, de los cuales US$0.788 millones corresponden al dep6sito en la Cuenta Especial aunpendiente porjustificar. El Cuadro 1.3 muestra los desembolsos por categorias a la fecha,mientras que el Cuadro 1.4 la propuesta final para reasignaci6n de fondos a las distintas categoriashasta la terminaci6n del pr6stamo; los recursos bajo la Categoria 5-Fondos no asignados, y losrecursos remanentes bajo las Categorias 2-Rehabilitaci6n de equipos y 4-Capacitaci6n, se hanreasignado a las Categorias 1-Obras civiles y 3-Servicios de consultoria. El Banco enviara un faxconfirmando la autorizaci6n para la reasignaci6n propuesta. Siguiendo las practicas actuales, elBanco continuark efectuando desembolsos mas alla de la fecha de cierTe del prestamo (31 dediciembre 1995) para aquellas aplicaciones de desembolso recibidas en las oficinas del Bancoen Washington antes del 30 de abril de 1996 que correspondan a pagosya efectuados o debidospor elFNCVa contratistas o consultores en concepto de obras ejecutadas o servicios deconsultoriaproporcionados antes del 31 de diciembre de 1995 (el Banco enviara unacomunicaci6n confirmando esta autorizaci6n antes de la fecha de cierre). Los fondos delprestamo que quedaran aun por desembolsar luego del 30 de abril serAn cancelados.

14. Con base en la revisi6n realizada con la Subdirecci6n Administrativa y Financiera seestima que se podra desembolsar la totalidad del prestamo dentro del plazo previsto, si FNCVprocede con diligencia. Se encuentran pendientes por traniitar desembolsos poraproximadamente US$2.6 mHlones que corresponden a pagos ya efectuados por la Subdirecci6nAdministrativa y Financiera; la Subdirecci6n enviara las aplicaciones respectivas antes del 30noviembre. El remanente del prestamo porjustificar luego de tramitadas dichas aplicaciones,aproximadamente US$1 millon, dependera del avance en los contratos en ejecuci6n (cuyo saldoactual suma alrededor de US$2.9 millones) antes del 31 de diciembre de 1995.

15. Programa por Administracion Directa. El Anexo 2 muestra las metas alcanzadas bajoel programa de administraci6n directa que adelanta FNCV con recursos propios. La ejecuci6ndurante 1995 se limito a las 9 regionales aun operativas, cuya liquidaci6n originaimenteprogramada para el 30 dejunio qued6 suspendida por efecto de la ley 188-85. La flota deequipos de FNCV no se ha reducido significativamente en tamanio (aun cuenta con 715 unidadesde las 1094 originales) pero si en capacidad operativa debido a la falta de operadores, al puntoque ya no parece una alternativa valida para atender el mantenimiento de la red a cargo de FNCV.La Divisi6n de Mantenimiento, que fuera fortalecida durante el desarrolo de los prestamos 2668-CO y 3157-CO fue desmantelada, dejando sin una supervision estrecha a este programa. Laproductividad de este programa ha sido muy reducida, alcanzandose solamente 16%, 15%, 30% y31% de las metas programadas para el primer semestre de 1995 en construcci6n, mejoramiento,mantenimiento peri6dico y rutinario, respectivamente. La rnisi6n entiende que siguiendo latendencia en Colombia, el programa de administraci6n directa sera discontinuado.

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16. Gestion Ambiental. La misi6n ve con gran preocupaci6n que la Unidad Ambiental deFNCV fue desmantelada en octubre pasado, por cuanto no se renovaron los contratos con losconsultores individuales que se desempennaban en esta, y solicito a la Direccion que se tomenmedidas correctivas. La misi6n recibi6 un informe elaborado por la Divisi6n Tecnica que resumela situacion actual y acciones adoptadas para el subproyecto San Jose-San Juanito. FNCVpresent6 en junio pasado el "Plan de Recuperaci6n Ambiental y de Contingencia" para la zonaconstruida entre el Km 0-Kml4. La resoluci6n de MinAmbiente de octubre pasado convalidaeste plan, manda fortalecer la interventoria ambiental, reforestar como minimo el doble del ireaafectada como medida de compensaci6n, y detener la construcci6n del camino mas allI del km 14hasta tanto no se complete la implementaci6n del plan. Consecuentemente INCV ha dirigidotodos los recursos del contrato 25-0480-0-94 a corregir y rnitigar los dafnos ambientales de estesector. La situaci6n de los subproyectos con planes de recuperaci6n pendientes se resume en elAnexo 3.

17. Programa de Asistencia Tecnica y Capacitaci6n. En marzo pasado se acord6 que losesfuerzos de asistencia t6cnica y capacitaci6n a los entes territoriales serian canalizados a travesdel Ministerio de Transporte (Direcci6n de Infraestructura Vial-Subdirecci6n de CaminosVecinales) y el Fondo de Cofinanciaci6n de Vias bajo Findeter, en raz6n del marcadodebilitamiento de FNCV. El Anexo 4 muestra un resumen de los seminarios conducidos por MTen 25 de los 32 departamentos, los cuales cubrieron basicamente las areas de (1) descentralizaci6nde la red vial y sistema nacional de cofinanciaci6n, (2) identificaci6n, preparaci6n y evaluaci6n deproyectos, (3) planificaci6n del transporte, y (4) preparaci6n de planes de manejo y gesti6nambiental. Asimismo, el Fondo de Cofinanciaci6n de Vias esta financiado la preaparaci6n deplanes de transporte en 31 departamentos. En general, los departamnentos han evaluado en forinasatisfactoria estas iniciativas, pero la magnitud de las necesidades de fortalecimniento requiere aunmayores esfuerzos. La misi6n fue informada que continu'a la preparaci6n de un proyecto paraapoyo de las redes secundarias con financiamiento parcial del BID.

18. A la fecha se desconoce la misi6n que desempefiara FNCV tras la suspensi6n del procesode liquidaci6n mandada por la Ley 188-95. Sin embargo, dado que el articulo correspondientesuspende la liquidaci6n de FNCV hasta que los entes territoriales alcanzen capacidad operativa,administrativa y financiera para la gestion de las vias transferidas, es muy posible que esta misi6ncomprenda de manera prioritaria el fortalecimiento institucional de los entes territoriales. Alrespecto, se acord6 que tan pronto se conozca el decreto de reorganizaci6n, FNCV y la Direcci6nde Infraestructura Vial (1) efectuaran una cuidadosa evaluaci6n de las necesidades decapacitaci6n de los entes territoriales y de la eventual responsabilidad que le competeria a FNCVen este ambito, (2) definiran los objetivos y elementos de gesti6n a ser desarrollados a traves de laasistencia tecnica y los indicadores que perrnitiran evaluar el progreso en el logro de dichosobjetivos, y (3) elaborarain antes del 15 de febrero de 1996 un plan para llevar a cabo elfortalecimiento institucional, que asegure que las tareas correspondientes son Ilevadas a cabo demanera coordinada y eficiente. Este plan forrnara parte del plan de operaciones del proyecto alque se hace referencia en el parrafo 25.

Establecimiento de mecanismos para asegurar la sostenibilidad del Proyecto

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19. Los beneficios derivados de la construccion y mejorarniento de la red de caminos vecinalesa cargo de FNCV -parte de los cuales son el resultado de tres prestamos del Banco Mundial-pueden perderse si los departamentos y municipios no asumen en forma efectiva suresponsabilidad por el mantenimiento de las vias. La reorganizaci6n de FNCV tampoco evitara6sto si no se desarrollan prioritariamente los mecanismos que aseguren el mantenimiento rutinarioy permanente de las vias a traves de la contrataci6n de estos servicios por FNCV y por los entesterritoriales involucrados. Los pasos que se han dado en este sentido a la fecha comprenden (1) latransferencia de vias a los entes territoriales, (2) el establecimiento del sistema de cofinanciaci6n(Fondo de Cofinanciacion de Vias), y (3) capacitacion a los entes territoriales (comentada en elparrafo 18). Los progresos en los aspectos (1) y (2) y algunas reflexiones sobre la experiencia deFNCV se resumen mas abajo.

20. Transferencia de Vias. Del total de la red a cargo de FNCV a transferir a los entesterritoriales (22,977 km segun depuraci6n del inventario vial que comprende aquellos caminosconstruidos por FNCV) se han transferido a la fecha 7,550 km o 33% (ver Cuadro 5.1),distribuidos asi: 6,526 km en 1994 (de los 7,027 km programados), y 1,024 km en 1995 (de los15,950 km programados). En apoyo de esta transferencia, los recursos distribuidos o en procesode distribuci6n suman alrededor de Col$24,3 80 millones. Estos recursos estan asignados a laatenci6n de la red transferida; los recursos adicionales que se necesiten para atender dicha red enel futuro seran trarnitados directamente bajo los programas normales financiados por el Fondo deCofinanciacion de Vias (FCV). El Cuadro 5.2 presenta una estimaci6n de los costos que ajuiciode FNCV serian necesarios para acondicionar y mantener la red transferida (aproximadamenteCol$142,000 millones), estimaci6n que puede servir de base para establecer presupuestos anuales(anualizando los costos estimados para mejorarniento y mantenimiento periodico). El proceso detransferencia se detuvo tras suspender la liquidacion de FNCV. De acuerdo con el informe sobrela transferencia de vias elaborado por FNCV, tres factores adicionales dificultan este proceso: i)gran nuimero de entes territoriales cuestionan el inventario depurado objeto de la transferencia ysolicitan que al transferir recursos se tenga en cuenta la totalidad de la red sobre la cual FNCVefectuaba trabajos en colaboraci6n con otras entidades (aproximadamente 33,000 km); ii) existepreocupaci6n entre los departamentos sobre los horizontes de ingresos presupuestales que estarandisponibles para continuar conservando y mejorando la red transferida; y iii) falta de experienciacon el nuevo sistema de cofinanciaci6n e incluso desconocimiento de los procedirnientosoperacionales.

21. Sistema de Cofinanciaci6n. El despegue del FCV esta insumiendo mas tiempo que elanticipado. De un presupuesto de aproximadamente Col$74,000 millones en 1995 (incluyendolos recursos en apoyo de la transferencia de vias) se han comprometido akrededor del 3 5%, si biense contempla finalizar convenios que permitirian comprometer alrededor del 80%. Losdesembolsos han sido reducidos. Los entes territoriales han tenido dificultades en preparar laspropuestas que son evaluadas directamente por el FCV antes de su aprobaci6n. Dicha evaluaci6n,practicada por consultores contratados por FCV, ha involucrado en muchos casos revisiones yreformulaciones a los proyectos. Esto destaca la importancia de que el FCV asigne mas recursosa los entes territoriales para que estos contraten directarnente estudios de preinversion y asistenciatecnica. La matriz de cofinanciaci6n adoptada privilegia la asignaci6n de recursos paramantenimiento (pari passu mas alto). Si bien la intenci6n es canalizar mas fondos para el

Segundo Proyecto Sectorial de Camninos RuralesAyuda Memoria Noviembre 1995 - Pig 7 de 10

mantenimiento, en la practica la cofinanciaci6n del mantenimiento presenta los siguientesinconvenientes: i) el mantenirniento, particularmente el rutinario, dificilmente puede serestructurado en "proyectos". Por su caracter continuo,es mas inportante asegurar programas quecomprendan la totalidad de la red bajo la jurisdiccion del ente territorial; y ii) los gastos enmantenimiento son recurrentes por lo que seria mejor financiarlos con recursos propios o conmecanismos que aseguren un flujo estable y seguro. La Ley 105 de 1993 (Ley de Transporte)manda recuperar el costo de mantener y ampliar la infraestructura de transporte. Un anilisis ma.sdetallado del sistema de cargos a los usuarios --continuando en una segunda fase el Estudio Fiscalde Carreterasy Cargos a los Usuarios realizado por Econ6mica consultores, permitiriadeterminar cuales cargos son (o deberian ser colectados) a nivel del ente territorial y cuales porser colectados a nivel nacional deberian ser transferidos a los entes territoriales (via transferenciasintergubernamentales o via el CFV). Este analisis seria de gran utilidad para revisar losporcentajes de cofinanciaci6n.

22. Lecciones derivadas de la experiencia de FNCV. La desconcentraci6n deresponsabilidades y los sistemas de cofinanciacion que siguieron la legislacion de 1986-1987promovieron la participacion local en proyectos de caminos vecinales, y contribuyeron en ciertamedida a preparar a los entes territoriales para la devolucion de los caminos y la completadescentralizacion del sector iniciada en 1993. Esta experiencia de FNCV mostro que es dificilmovilizar a los entes territoriales para que tomen la responsabilidad por el mantenimientosistematico de las redes a su cargo, y que a pesar del apoyo de FNCV tampoco se aseguro elmantenimiento permanente de la red a cargo de FNCV. Al disenar el proceso dedescentralizacion, por consiguiente debe asignarse la mayor prioridad a alcanzar el mantenimientosostenible de la redes a cargo de los entes territoriales. La experiencia de FNCV en este ambitodestaca tambien la importancia de establecer: i) un marco legal mas claro con relacion a lajurisdiccion y responsabilidad por el mantenimiento de las respectivas redes secundaria y terciaria(quien es responsable de cada elemento de la red); ii) mecanismos de financiacion bienestablecidos que aseguren un flujo estable y seguro de los fondos (el estudio fiscal de carreteras ycargos a los usuarios enfatiza la necesidad de buscar fuentes de financiamiento apropiadas para losdepartamentos e incluye algunas propuestas en este sentido); iii) un sistema de seguimniento yrendicion de cuentas que proporcione el flujo de informacion necesario para que tanto elorganismo central a cargo de la politica del sector como los propios usuarios afectados puedanevaluar y comparar los resultados de la gestion realizada por el enter territorial; y iv) mayoracceso de los entes territoriales a suficiente apoyo tecnico.

23. La implementacion de una estrategia para el mantenimiento de la totalidad de la red decaminos vecinales, especialnmente mantenimiento rutinario, depende del comprorniso y capacidadde los municipios para llevar a cabo el mantenimiento basico. El mantenimiento rutinario de loscaminos vecinales es simple pero requiere continuidad. En este contexto es necesario tambien (1)disenar e implementar modalidades para la provision de los servicios de mantenimientoapropiados para la capacidad de los municipios (formas de contratacion asequibles), y (2) definirprogramas de mantenimiento que cubran todas las vias claves para el ente territorial a cargo, conlas metas a ejecutar y los arreglos para la implementacion a ser usados por todas lasorganizaciones involucradas.

Segundo Proyecto Sectorial de Caminos RuralesAyuda Memoria Noviembre 1995 - Pag 8 de 10

Preparacion del Informe sobre terminacion de la implementacion del Proyecto

24. De acuerdo con las condiciones generales de los prestamos del Banco Mundial, FNCVdebe preparar al terminar el proyecto su propia evaluacion retrospectiva de la implementacion delmismo y un plan para su futura operacion. Estos documentos elementos formaran parte delInforme de Terminacion delProyecto (ITP), elaborado conjuntamente con el Banco Mundial. Lapreparacion de este informe reviste una importancia especial en las circunstancias actuales,caracterizadas por la implementacion de la politica de descentralizacion de la gestion vial a losentes territoriales y la suspensionlreorganizacion del FNCV hasta tanto los entes territorialesalcanzen la capacidad de gestion necesaria para el manejo de las redes secundarias y terciarias, yaque permitira obtener lecciones valiosas para el desarrollo de estos procesos.

25. Los siguientes pasos fueron acordados para la preparacion del ITP:

antes del 15 de diciembre de 1995, la Oficina de Planeacion seleccionara una muestrarepresentativa de no menos de 20 subproyectos (que combine subproyectos de construccion ymejoramiento realizados bajo el proyecto en distintas areas geograficas y cuenten con estudiossocio-economicos) para conducir una evaluacion ex-post de los mismos. La evaluacion ex-post estara concluida antes del 30 de marzo para ser incorporada al ITP. Esto implicararecolectar informacion en el campo y comparar las estimaciones de costos y beneficios almomento de evaluar cada subproyecto con los resultados reales observados luego decompletados los proyectos. A tal efecto se aplicara la metodologia empleada en 1993 pararealizar la evaluacion ex-post del prestamo 2668-CO. Dado que la actual Oficina dePlaneacion no cuenta con los recursos humanos para completar esta tarea (esta reducida a tresprofesionales) la mision recomienda que (1) se contrate la evaluacion con un firma consultoraque tenga experiencia con la metodologia y modelos de evaluacion socio-economica deFNCV, o (2) se contraten las tareas de recoleccion de informacion en el campo y se refuerzela Oficina de Planeacion con un consultor individual con amplia experiencia en lasmetodologias y modelos de FNCV;

* antes del 31 de enero de 1996: (1) la Subdireccion de Ingenieria consolidara y suministrara alBanco la informacion sobre ejecucion fisica y financiera de cada uno de los componentes delproyecto, incluyendo un listado de todos los subproyectos de construccion y mejoramientoilevados a cabo con financiamiento parcial del proyecto, con las metas fisicas alcanzadas, loscostos resultantes, y para aquellos con metas aun pendientes, las previsiones para laterminacion de los mnismos (costo estimado, quien tendra a su cargo la termrinacion y losplazos en los que se preve completar los mismos). La informacion de costos discriminara enrecursos del prestamo y recursos de contrapartida; y (2) la Oficina de Planeacion suministraraal Banco la relacion de todos los subproyectos de construccion y mejoramiento ejecutadoscon financiamiento del prestamo que cuentan con un analisis socio-economico, indicando lasmetas fisicas y costos estimados en los estudios de evaluacion, y las metas fisicas alcanzadas ycostos resultantes luego de la ejecucion. En el caso de subproyectos iniciados con elprestamo 2668-CO y continuados con el 3157-CO, la informacion sobre ejecuciondiscriminara las metas e inversiones concretadas bajo cada uno de los prestamos;

Segundo Proyecto Sectorial de Caminos RuralesAyuda Memoria Noviembre 1995 - Pag 9 de 10

antes del 15 de febrero de 1996, la Subdireccion de Ingenieria en coordinacion con la Oficinade Planeacion del FNCV y la Direccion General de Infraestructura del Ministerio deTransporte, preparara y suministrara al Banco Mundial (a) el plan de operacion del proyecto y(b) un informe de aproximadamente 10 paginas resumiendo la evaluacion del proyecto desdela perspectiva de FNCV. El plan de operaciones establecera (1) los costos estimados para elmantenimiento rutinario y periodico de los caminos construidos, mejorados o mantenidos confinanciamiento del proyecto, (2) las fuentes de estos recursos, (3) quien tendra laresponsabilidad por la ejecucion de los trabajos de acuerdo con la organizacion institucionaldel sector, (4) los indicadores de desempeno que se emplearan para el seguimniento yevaluacion de las futuras operaciones, y (5) la manera en que este seguimiento se llevara acabo. Asinismo, el plan operacional contendra tambien provisiones para la consolidacion delos objetivos institucionales del proyecto a nivel de entes territoriales, es decir, las accionesconcretas que se adoptaran para capacitar a los entes territoriales responsables de la futuraoperacion del proyecto y los indicadores que se emplearan para medir el progreso en estesentido. El plan sera revisado y acordado entre FNCV, Ministerio de Transporte y BancoMundial antes de fin de febrero. En cuanto al informe, comprendera un analisis de losresultados del proyecto, en que medida se lograron los objetivos de desarrollo del mismo, losfactores que afectaron positiva o negativamente la implementacion del proyecto, las leccionesderivadas, los pasos a adoptar para asegurar la sostenibilidad del proyecto, y el desempeno deFNCV y del Banco en el cumplimiento de sus obligaciones bajo el Convenio de Prestamo.

26. Si bien las conclusiones definitivas se obtendran luego de completado el analisis, es posibleadelantar algunos comentarios preliminares que pueden orientar este proceso de analisis. Losresultados del proyecto, en terminos de metas fisicas se pueden considerar relativamentesatisfactorios, si bien se alcanzaron en un tiempo mayor que el inicialmente estipulado; se logro,en general, un balance relativamente adecuado entre construccion / mejoramiento /mantenimiento, pero no fue posible consolidar el principio de red: el "inventario" de FNCV creciosignificativamente de 22,000 km a 33,000 km sin que se pudiera garantizar el mantenirniento totalde la red. Las eficiencias en materia de fortalecimiento institucional consolidadas durante los anos1988-1992 fueron perdiendose debido al proceso de liquidacion. Como elementos claves, elproyecto contemplaba la creacion y fortalecimiento de la Division de Mantenimiento paracontrolar todos los programas de mantenimiento (contrato y administracionn directa) y la UnidadAmbiental que funciono con consultores contratados bajo la Division Tecnica. Al termino delproyecto ambas han desaparecido; si bien esto se debe al proceso de liquidacion, tambien es ciertoque ambas unidades tenian un rol clave tanto para el eficiente funcionamiento de FNCV comopara la transferencia de know-how a los entes territoriales, lo cualjustificaba su permanencia.

27. En cuanto a fortalecirmiento institucional a los municipios los resultados son mixtos. Es denotar que las necesidades y objetivos fueron cambiando. En una fase inicial, con introduccionsistema de cofinanciacion, fue dar a conocer funcionamiento del sistema y asegurar que losalcaldes pudieran acceder al mismo. Los resultado fueron muy satisfactorios. Paralelamente, elesfuerzo de fortalecimiento institucional de largo plazo a los municipios probo ser mucho masdificil y no pueden esperarse grandes progresos en muy corto tiempo, particularmente porqueFNCV estuvo mas involucrado con los municipios de menor capacidad institucional. Sinembargo, se hubiera tenido posiblemente un mayor impacto trabajando a nivel de municipio con

Segundo Proyecto Sectorial de Caminos RuralesAyuda Memoria Noviembre 1995 - Pig 10 de 10

un concepto de red y planes a mediano plazo. Una segunda fase esta asociada a la liquidacion deFNCV, transferencia de la red a su cargo a los departamentos (con los cuales tenia escasarelacion), y creacion del nuevo sistema de cofiinanciacion. Dice CGR en su inforne de auditoriadel ejercicio 1994: "El esfuerzo de FNCV en liquidacion para dar a conocer a los Alcaldes yGobernadores el contenido de la Ley 105 (Ley de Transporte) dentro del esquema dedescentralizacion administrativa para la entrega de vias y los mecanismos para acceder al Fondode Cofinanciacion de Vias (FCV), no se acompano de las acciones necesarias para elfortalecimiento institucional en materia de capacitacion y transferencia tecnologica a losdepartamentos y municipios para la planeacion, programacion, ejecucion y control de obras civilesde construccion y conservacion vial, necesarias para propender por su fortalecimiento, mejorar sucapacidad institucional, tecnica y operativa para asegurar la continuidad y el mantenimientoperiodico de las vias rurales." Esta tarea fue dificultada por la tardia definicion de los mecanismosde cofinanciacion y de transferencia de vias; quedan por resolver algunos aspectos importantes eneste ambito.

28. La sostenibilidad del proyecto recae fundamentalmente en el despegue del sistema decofinanciacion y el fortalecimiento de los entes territoriales. Es esencial sin embargo asegurar unaadecuada distribucion entre responsabilidades transferidas, jurisdiccion o competencia de losentes, y recursos disponibles para atender las resposabilidades en lajurisdiccion. Ajuicio de lamision, el balance entre estos elementos aun no ha sido analizado a fondo, y mas bien se habuscado salidas de corto plazo (i.e., asignar al ente territorial por unica vez un valor unico porcada km transferido).

29. Por su interes en este proyecto, y en particular por su involucramiento en la preparaciondel Informe de Terminacion del Proyecto, una copia de esta ayuda memoria sera distribuida a laDireccion General de Infraestructura Vial del Ministerio de Transporte.

Santafe de Bogota, 21 de noviembre de 1995

Por el Fondo Nacional de Caminos Vecinales Por el Banco Mundial

Dr. rchan Madero Sr. Jose Luis IrigoyenLiquida dr Oficial Proyecto

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VALIR ~~~~~ ~ ~~~~VALOBR VALOR IVALOR APLICADO I SALDO P08,AE:113 51. 5 i PRESENTAKO VALOR, PROSRAMADO DESENBOLSADO AL ANTIJIPO EN :JU8TIFICA'R JUrST!I-

COMB PAKO ft SOLICITADO f$ us$ US$ us us$ IFICADO

.1ATEGOMAI ~~~~~1.56.584.207.42t.77 ~33.950,5124.,456.67 ;43.700.000.00 I45,313,427.66 0.00 (41,6i3,427.66)11031.69

y eoaieintD 1,41,994,067.5003.t :25,196.440.5,32.05 3'4.057.648.49 0.00 ~~ajte~~ieiento 1~~~0.798,589.425..,0 6.4179,153,,655,.03 8,555,196.74 1 0.0

.CrtcOri puenttes 3,791,5150,4393 2.274,730,263.59 2,700.582.43300

AEOLA11 78,1,465 629,615,5615.20 1.00.000 880,820.62C 0.00 : 119.1179.38 88.08eREH.ABILITACIO0N DE EOUIPO'

,ehabilitaclDn de Eoui5o 787,0119,456.50 629.6155,565,2u 1 i 880,820.62 10.0

CATESORIA iii ~~~~~7.301,885,6097.73 3,293,,922,475.84 4.500.000.001 4,328,495.87 I 10.00 1171,504.113 :96.19

~SERViICI DrE CONSZULTORES,

Cateec-ria III A 7,140,406.580.%0 3,21.3.182.,9611.22 ;4,200.0010.00 4,215,269.29 1 0.00 (115,269.29;;100.36irazado ~~~~~~~~~~~~~1,706,457.597.24 767,905z.9 18 .76 t,J1.148,22.48 1 0 .00if

1 i t erveTnt ,r Ias 1 5.129,1106,461.,12 12.308S,0P7.907. 50 1 ,0.2.8('.00rorseiuitor as 304 ,84 2.,522.1 4 137.179.134,96 1 6,1.30.00

Cateoc'ria 111 8 ~~1 161,.479.0294.23 8,0,739.514.62: 3,00,000 .00 1 113,226.58 0.00 13 I6.773.421 37,740se~~~~oriaa 1614-'oII. 4 7 9,0-29 23 0 , 739.51 4.62 1 11.226.58 0.00

CATIESORIA, IV4 107.003,089,04 I 53-501%.544.52 500,I000.0I(0 11 72,411.93 1 0. 00 1 427, 588.07 114.48 ACTIVIDADE'S BE ENRENAMIENTO 6

C60nicitacien -v Viati'cos 1 4107,(03,089.04 53.5,01.544.52 11 72,411.93 1 0.00 1 427,588.07

"NOt ASISNAPO0 000.0 50. 0 .00.0 10.00 1 0.00 1, 5300.000.00 10.00 1

Re-curseo5 ro asinniados. , .0 0.00 1 0.00 1 " 0.0 1i 5,300.000.00

TOTAL APLICADO :64,780,1i15,5837-.4 37.9217,564".042.23 15.0,0.01 50,595.1156.08 4.201,579.85 14.404,843.92 191.799

TOTAL "ANTICIPO 4.989,614.69 1 788,034.8400 14,201,579.85 788,034.84 :84.21:

TOAL DESENBOLSADO 155.,000.000.30 1 511,383.1190.92K366890

INFOMACION HASTA EL DESSEBOL'SO NO. a7

Ministerio de Transporte Cuadro 1.4FONDO NACIONAL DE CAMINOS VECINALESOf icina de PlaneaciOnrDivision Financiera-Desembolsos

PROPUESTA DE REASIGNACION DEL CREDITO BIRF. 3157-CD

)'lAL CR VA~LOR VA~LORCATEGORIAS PRDG&RAJADO DESEMBOLSAPDO REASIGNADO

* : ussfi-. , USi$. 9 LIe*S$.------------------------ ~~~ I- --- ~ ~ - ~ ,~------------_-- -- - - -------------------

:CATEG. I- OBRAS 47~8, f6.2U700.00 45.313.,427-66 493.99656.00s ______________________ r_______________ s~~~~~~~~~~ ___________ r _______

'Cons,trLcc. y MejorrSt. . r4,057,648..49' lantenimr.iento r 555 196.74'ConStrUcC. Puentes 2.700.582..4-3* F___ _____ __r_______________ ______ ____ _ ______

:CAPTEG.II-EGLI]PO i 8 8o'.2 {0006 oo 8 9 2t - 6'2: 880,820.62__________________ r ____________ ____________F __________ _

----------------------- ,---------------,---------------_________-------'Rehabilitac. Epu-ipo- BB08~ 20- 62

ICATEG. III I: ̀ ERVIC.C.NSLULT. , 450000000 4,328.4?495-87 4,647.111.45

- - - - - - - - --- -- ,-- - - - - - - - - - - - - - - - - - - - - - - - - - - - -:

.Categ. -A 3.. 200 :0l00 4,215,269-29 : 457533,884,87Trazados : 1,148V,822.48

Intervent : 2,900,528.ZBC.onsult. 165.918.73

:Categ. 3B tL5 ; 113.226.58 113,226.58

:CATEG. IV:ENTRENAMIENTO S r 5:00?000 72,411.93 72,411.93

:Capaci tacibn 2. * A7.41.9 F,..F r

r F F F F

:N0 AS]GNADO ' ' Q000 00-00 0_0

TODTAL APLI}CADO '. 595 .1 5 6 - 08 .5, B0,000.00

:ANTICIPO INIC... 7F.0F4-84

TOTAL DESEMBOLSADO 55.f z02 01. 0 0 000 51 ,3078.190.92 55.000i,00.00

R.L.G. y M.G.T.Nov.15 de 1995

Ainisteric de Tranesprte Annex 1FORDO UACIONAL DE CAMINOS VECIUALES Attachment 2

Subdireccifn de Inqenieria - Setcih Proqru int (Conservicidn)

PROGRAIA 3E ADMINISTRACION DIRECTAfETAS FISICAS EJECUTADAS DE ENERO I A 38 DE OCTUBRE DE 1995

Anexo No. 2I

| I IIETAS FISICAS PRO6RAllADAS I A'ANCES FISICOS ACUKULADOS i i; ; W j ~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~APORTE

R E G I O N A l KANTENIIENTO EJECUTADO COFINANCIAC.ICoNSTRUCCION (NEJORANENTO ,CoNSTRUCCIDN (EJORANIENTO? . t'l ! !=PERl0DlMCO==RUTINARlIO-l2 ! !=PERIDlDCOj=kUTlNARIO- !

I __ __ ------- I"--- 8.08 8.08 8.80 8.88 8.88 8.0 8.88 8.8 8.88 8.88

BOLIVAR 8.60 0.60 15.80 15.08 8.68 8.88 9.58 16.00 71,616,715.88 4,478,716.88DOYACA 12.48 22.58 246.58 8.08 11.28 12.58 99.88 6.88 8.088 8.8CAiUETA 65.88 6.68 225.68 283.81 11.88 8.80 31.88 78.58 95,918,891.08 2,581,28f.86ClOCO 16.38 16.88 2.88 48.36 - 1.88 2.88 8.88 125.88 8.88 4,608,808.88CORDOBA 6.81 84.45 24.81 83.85 8.88 4.88 22.38 44.75 128,591.43 18,779.08RETA 18.88 171.88 22.88 32.88 8.88 25.08 8.08 31.86 195,418,708.88 2,196,968.08NARIHO 11.88 3.88 8.6i 16.78 8.88 8.88 8.68 8.68 6.88 8.00PUTUNAYO 8.08 8.88 72.24 136.41 8.00 5.60 46.78 65.16 3444435,849.88 61,628,912.88SANTANDER 18.81 67.88 94.88 835.88 8.88 9.P8 32.80 277.86 8.80 6.86

0 T A L 146.78 378.75 701.54 1,361.46 23.28 58.18 235.38 523.35 787,582,746.43 74,888,507.681

MINISTERIO DE TRANSPORTE Annex 1FONDO NACIONAL DE CAMINOS VECINALES Attachment 3

INFORME IMPACTO AMBIENTAL1995

ANEXO-3,

REGIONAL CAMINO OBJETO ENTIAD AMEENTAL OBSERVACIONESDEL CONTRATO

BOLIVM ARENAL-LA ARCADLA-SIMOrTA-MORALUTO CONSTRUCCION CORPORACION AUTONOMA PLAN DE RECOMENDACIONARENAL-NOROSI CONSTRUCCION REGIONAL DEL SUR AMBIENTALARENAL-CONFORMIDAD CONSTRUCCION DE BOLIVAR C.S.B.PUENTE LOS SOLDADOS-LAS MONJAS CONSTRUCCION

CAQUETA PUERTO BELLO-ZABALETA ESPERA COMUNICACIONCORPOAMAZONLA

CAQUETA PASTOR-QUiMAYA SE SOLICITO LICENCIAAMBIENTALA LA C.R.C.

CESAR PUEBLO BELLO-LA CAJA CORPOCES DR. SE SOLICITO VIABIUDAD AMBIENTALY LOS TERMINOS DE REFERENCIAPARA LA ELABORACION DEL RES -PECTIVO ESTUDIO, EL 7 CDE JUL-95.A LA FECHA NO SE HA TENIDO RESP.SEGUN ALCALDE NO NECESITA L.A.

CORDOBA CAREPA-SAIZA CONSTRUCCION MINISTERIO DEL SE REAIJZO VISITA AL CAMINO CONMEDIO AMBIENTE. FUNCIONARIOS DEL MINISTERIO DEL

MEDIO AMBIENTE, LOS DIAS 20-21 Y22 DE JUNIO, CON EL OBJETO.EAPROBAR EL ESTUDIO PRESENTADOA LA FECHA NO SE HA RECIBIDO RTA.

CUNDINAMARCA SAN JOSE- SAN JUANITO CONSTRUCCION MINISTERIO DEL SE PRESENTO PROGRAMA DEL MEDIOMEDIO AMBIENTE. AMBIENTE PARA SU ESTUDIO Y

APROBACION EL DIA 27 DE JUNIO. YAFUE APROBADO. SE PRESENTORECURSO DE REPOSICION.

CHOCO TITUMATE-BALBOA-SAN CONSTRUCCION CODECHOCO NO CONTRATADO. YA QUE MIGUELMIGUEL-ACANDI. ANGEL PINTO, EFREN RODRIGUEZ

INTERVENTOR PENDIENTE POLIZA.RESGUARDO.

CHOCO BALBOA-GILGAL-STA. MARiA MEJORAMIENTO CODECHOCQ_

GUAJIRA VILLANUEVA-LA CULEBRERA CONSTRUCCION CORPOGUAJIRA_________ ________ ________ _ _______ ________ ________ _______

MINISTERIO DE TRANSPORTEFONDO NACIONAL DE CAMINOS VECINALES

INFORME IMPACTO AMBIENTAL19 ANEXO 3

REGIONAL CANINO OBJETO ENTIDAD AMBIENTAL OBBERVACIONESDEL CONTRATO

GUAINIA PUERTO INIRIDA-RIO GUAINIA MEJORAMIENTO INDERENA REG. META. SE REALIZO VISITA OIA 15-16 Y 17 DEJUNIO CON EL OBJETO DE PRESENTAREL PLAN DE RECUPERACION YMEJORAMIENTO DEL CAMINO ENTRELAS ABSISAS K 0- K 11 + 500 INCLUYENDOLOS SITIOS DE EXPLOTACIION DE CARRE-TERA, PARA DAR CUMPUMIENTO A LAPROVIDENCIA DEL 26 DE DICIEMBRE DE1.994 EMMDA POR INDERENA DONDE FUENEGADA LICENCIA DE CONSTRUCCIONDEL K 11+500 AL K 21. INDERENA NIEGACONSTRUCCION SE PRESENTO RECURSODE REPOSICION.

MAGDALENA SANTA ROSA-LA CRISTALINA CONSTRUCCION CORPAMAG SE ELABORO Y PRESENTO PROGRAMAALTA -LA GALAXIA No47-0168-0-94 DEL MEDIO AMBIENTAL EL DIA 15 DE

JUNIO, PARA ANAUSIS Y APROBACIONDE LA CORPORACION COMO RECURSODE REPOSICION A LA RESOLUCION No.001086 DEL 17 DE ABRIL DE 1.995(suspeorem) SE PIDE COMPLEMENTA -

CIONES DEL PROGRAMA DEL MEDIOAMBIENTAL MEDIANTE OFICIO'No. SD-057DEL 4 DE JULIO DE 1.995. NO HAN RESP.

NARINO SAN LORENZO-MANGA PANAMERICANA MEJORAMIENTO CORPONARINO SE SUSPENDIO LA EXPLANACION Y SEHIZO REPROGRAMACION CON LOSDINEROS FALTANTES PARA DESARROLLARLAS ACTIV1DADES DE RECUPERACIONPROPUESTAS EN EL P.M.A COMO RESP.AL OFICIO OJS-D30-95 DEL 24 DE FEBRERODE 1.096 EM1T1DO POR CORPONARIAiO.

NARINO SANTA LUCIA-MARTIN PEREZ MEJORAMIENTO CORPONARINO |E INTERPUSO RECURSO DE REPOSICIONPOR PARTE DE LA DRA. MARIA EUGENIA

MINISTERIO DE TRANSPORTEFONDO NACIONAL DE CAMINOS VECINALES

INFORME IMPACTO AMBIENTAL1995 ANEXO 3

REGIONAL CAiMNO OBJETO ENTIDAD AMBIENTAL OBSSERVACIONESDEL CONTRATO

NARINO ALTAMIRA-POLICARPA.

NARINO SAN FELIPE-SAN JUAN SE ESTA CONTRATANDO EL PLAN DERECUPERACION AMBIENTAL

PUTUMAYO SAN FRANCISCO-PORTACHUELO-MINCHOY MEJORAMIENTO 'CAP' CORPOAMAZONIA REQUERIMIENTOS DE LA CORPORACION:.LA FIRMA CONSTRUCTORA ECSAM NOCOLABORO AL RESPECTO..LA INFORMACION SOLICITA A FUOCAMINOSNARIAO TAMBIEN FUE NEGADA.

.ENTREGA DE INFORMES MENSUALES. ALA FECHA NO SE HA CUMPLIDO CON NINGUNTIPO DE INFORMACION SOLICITADA POR LACORPORACION MEDIANTE AUTO No.002 DENOVIEMBRE 15 DE 1.J95. SE ENTREGO UNINFORME DE AVANCE.

PUTUMAYO CONDANA-YUNOUILLO DEBE CONTRATAR P.M.A SEGUNCORPOAMAZONIA.

RISARALDA REGADEROS-LA CUMBRE CONSTRUCCIION Y CARDER. SUSPENDIDO EL 22 DE FEBRERO DE 1.995MEJORAMIENTO No. POR EL INSPECTOR DE PUEBLO RICO88-0340-0-93 (Carder). SE INICIA AUTO DF INVESTIGACIION

MARZO 10 DE 1.905..MEDIANTE RES. NO.256 DE JUNiO 12 DE 1.906SE CONCLUYE LA INVESTIOACION.MEDIANTE RES. No. 299 DE JUUO 11 DE 1.995SE AUTORIZA EXPLOTACION DE MATERIAL DECANTERA..PENDIENTE: CARDER.ENVIO DISENOS OBRA CAPTACION DE PARTEDEL ING. JUAN MANUEL HOYOS RESIDENTE..ACUERDO CON EL CONTRATISTA

_REGISTRO FOTOGRAFICO DE LAS CUNETAS.

RISARALDA MANPAY-LA UNION CARDER. MEDIANTE MEMO No. EA 234-95 DEL 4 DE JUUODE 1 .995SOLICITAN P.M.A. DEL CAMINO PARADAR CUMPUMIENTO A LA RES. 301/94.

_P~~~~~~~~~~~~~~~~~~~~

MINISTERIO DE TRANSPORTEFONDO NACIONAL DE CAMINOS VECINALES

INFORME IMPACTO AMBIENTAL1995 ANEXO 3

REGIONAL CAMINO OBJETO ENTIDAD AM0IENTAL OBSERVACIONESDEL CONTRATO

TOUMA LA COLONIA-ALTAMIZAL MEJORAMIENTO No. CORTOUMA SE REALIZO VISITA AMBIENTAL EL 28-29 Y 30734488-0-94 DE JUNIO CON EL OBJETO DE HACER EVALUA-

CION Y SOLICITAR VIABIUDAD. NO HAY RTA.A LA FECHA

TOLIMA HERRERA-LA UNEA CONSTRUCCION CORTOLIMA LA CORPORACION ALEGA LA VIOLACION DE LAVIABIUDADRESPECTDO DE QUE SE SOBREPA-SARON EL ABSCISADO PERMMDO EN LAVIABILIDAD SOBRE LO CUAL EXISTE UNA RES.DE POSIBLE SUSPENSION.

VALLE MATEGUADUA-SAN MARCOS-MONTELORO C.V.C. SE ENVIO OFICIO EL 22 DE JUNI095 ALALCALDE DE TULUA CON EL FIN DE QUESOUCITE LA LICENCIA Y LOS TERMINOS DEREFERENCIA PARA LA ELABORACION DELESTUDIO CORRESPONDIENTE.

_~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~I

MINISTERIO DE TRANSPORTE Anexo 4.

DIRECCION GENERAL DE VIAS E INFRAESTRUCTURA Annex 1ASISTENCIA TECNICA A LOS DEPARTAMENTOS EN 1995. Attachment 4

EPAWAM UACO _________OSERVACIONEr- - RE Ms: ---NT VVDADSEION:~~D ApJ~~j~~,REUNION:~ Nda MIRANSPORTE _______

RISARALDA PEREIA 25-28 DE ENttOi_ 4 PEDRO J. POLOG6. EN TOTALSEESORIA Y VALLE CALI 8-11 DE FEBREO 4 CAMINOS VECINALES PARTICIPO EN 25

SISTENCIA NORTE DE CUCUTA 15-18 DE FEBR. 4 DEPARTAMENTOSSANTANDER __ _______-

ECNICA: CASANARE YOPAL 26-29 DE ABRIL 4 GERMAN MADRIGAL P. DELOS 32I_I ARMANDO RODRIGUEZ D.

ENTIFICACION, IBOYACA TUNJA 02-05 DE MAYO 4 ARMANDO RODRIGUEZ D.! _________ ____________ _____ GERMAN MADRIGAL P.|PREPARACION Y |MAGDALENA SANTA MARTA 17-20 DE MAYO |4 GERMAN MADRIGAL P.=

i~~ ~~ I ARMANDO RODRIGUEZ D.EVALUACION CAUCA IPOPAYAN 24-27 DE MAYO 4 TGERMAN MADRIGAL P.DE PF1OYECTOS ATLANTICO t BARRANQUILL 31 DE MAYO- MARIA ELISA ORJUELA

i_________ _________ I3 DE JUNIO GERMAN MADRIGAL

ITOLIMA IBAGUE 05-07 DE JUNIO 3 Armando RodriguezJavier Parra

QUINDIO jARMENIA 08-10 DE JUNIO 3 JGennan Madrigal _I

GUAVIARE jS.J.GUAVIARE 12-15 DE JUNIO 4 CAMINOS VECINALES ___

VICHADA PETOCARE?O 13-17 DE JUNO 5 GAriando Rodriguez HUILANNANEVA 19 - 22 DE 4 Guillernno Montana C.

JUNIO Ariel Uribe F.NARI?O PASTO 21-24 DE JUNIO 4 Javier ParraCHOCO QUIBDO 27 Y 28 DE 2 CAMINOS VECINALES

___I _ _____ JUNIO _ _ -_-___GUAJIRA RIOHACHA 26-29 DE JUNIO German Madrigal

It l | |PEDRO POLO G. _ _ _

RISARALDA PEREIRA 3-5 DE JULIO 3 MILTON SUAREZ-________ ___ _ CGerman Madrgal _ _ _

META VNICENCIO 5-8 DE JULIO 4 J. ARIEL URIBE F. | _ _

SUCRE SINCELEJO 10-12 DE JULIO 3 Javier Parra M.t1 1 : l l | ~~~~~~~~~~~~Gerrnan Madrigal CORDOBA MONTERIA 13-14 DE JULIO 2 German Madrigal ! _ _

__________ I__ _ {Javier Parra M. i_I

BOLIVAR CARTAGENA 17-19 D JULIO 3 Arrnando Rodr?guezIf_______ _________ f___i__ |__ German R. Maddgal P.SAN ANDRES SAN ANDRES 24-28 DE JULO| Pedro J. Polo G.

fY PROVIDENCI 25-28 DE JULIO _ German Madrigal P. ig t ANTIOQUiA JMEDELUN |2528 DE JULIO 4 |Reynaldo Urlbe Rincon

M1D1LLIN 25-28 DI JUIO i4 Arnando Rodeigguez D.11 11 _______ I________ _____ Germ an Madrigal P. _I

LSANTANDER IBUCARAMAN 28-28 DE JULIO 3 Milton J. Suarez I.;I jAMAZONAS LETICLA 2e-28 DE JULIO 3 CAMINOS VECINALES I I

CAQUETA FLORENCIA 02-05 DE AGOST 4 Armando Rodr?guezPUTUMAYO MOCOA 02-05 DE AGOST J. ARIEL URIBE F. I _I

CESAR VALLEDUPAR 09-11 DE AGOST 3 Javier Paffa M. I _ _

VAUPES MITU 14-18 DE AGOST 5 CAMINOS VECINALES I _I

ARAUCA ARAUCA 18-19 DE AGOST 4 J. Ael Urlbef. F._ICUNDINAMARC BOGOTA 15-16 DEAGOSTJ ARMANDO RODRIGUEZ I _j

|GUAINIA I PTO. INIRIDA 15- DE SEP. I 5 CAMINOS VECINALES I

MINISTERIO DE TRANSPORTESubdirecci6n de Caminos Vocinales

Semlnarlo sobro dlescentraizaci6n de Ia Redl Vial y Sisterna Naclonal de Cotinarncciacion

NoT DEPARTAMENTO FEC HA SEMINA FUNCIONARIOS BUENO iREGULAR.-.AL

1~~~'AMAZO~~~NAS 26, 28 :Vii iCarlos A. Echeve!Ty A. . -.__________________ -..-..-.---.-.. .~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~. ...... ...... ...... ... ..... .. ........ ..

LusFernando Gt6m*zM 2 IANTIOQUIA ~~~26, 28 -VII . No.particip65 ia Subdlreccl6n X

3 ARAUCA is.,19 - Vii Felix Maria Lo'On Chaves ',lDomlngo Nlio Jaime -

4 iARCHIPIELAGO ...

ME SAN ANDRES- 51`bvi5.jc YSANTA CATAUJNA 25, 26 - ViIIl N partbcipo Ia Subdireccion

.. ;ALNTICO - 31-V. 3-Vi 'Luis Fernando Gomez M, XS BOUVAR 18, 19- ~~ ~~~~~~~~~~~~~~~~~~~~VII iNo participolIaSubdireccl6n - - __

7_ iB -AC - ,5 I !Luis Fernando G6mez M.CALDAS - ~ ~~31-11i Luis Domingo N~io Jaimne --

-~~~~ - -~~~~~Luls Fernando G6mez M.-- 9 :CAQUETA :2,5 -Vi Fei MvaLenChvz-

I 10 iCASANARE ~ 25, 29 - IV ~ John J. Carvajal Gallego11 CAUCA 24~~~~~~~~~~- '"_``_,27-V _ Felix Maria l-6n Cae

1 2 ICESAR ':- 9 1 1 -Vill FirdelBohorquez Cuartas -..-.-s ----.-..-..--.. ~~~~~~~~~.. . ... .- …....-.-....................…... ... A. .. .. .. ... - ---

1 3 ORDOVA :12,14 - Ml 0aniel A. Chac6n G. X I___ f~~~~~~~~~ Carios~~~~~~~~A. Echeve yA .~. -...... ..... -..

.. ....... . ..... … ..........-.- -.... ........... -.-. - ,. .......--- ----. ..... ..1 4 !CUNDINAMARCA 15, 16 - Vill Luis Domingo NiAo Jaime X

-1~~~~~~~~~~~Felix.Maria Le6n Chavez___

........ ... ................. ~.. ..........151'C 6HO0CO _- .... 26.29.V Domingo NIqjL~Lo JameI

~~~~~feix_Maira Lei5n Chavez ~ ~ ~ .-..

IGUAJN1A -- ~~~~~~~ ~ ~~~~5,9- Ix 'John Jairo CarvCaJl GaiIego.- X- --

17 GUAVIARE 13,~~~~~~~~~~~t 14VI Luls Fernando G6mez M -

'Luls DOIoNoJam18 GUAJIRA - - ~~i26, 29 -'v VIFIdel Bohorquez Cuartas

1 9 _HUILA 11, 22-V -'Y - Stefano TiqerIna B~ez -x

__ - _ -1~~~~~~~~~~Fidel Bohorquez Cuartas _- -

-. 20 MAGDALENA -- 17, 20 -V !-Fidel Bohorquez Cuartas - - --

2 1 MSTA. 8 -Vil iStetano Tigedna Stez~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~teaoigrnBaz_-- __ 5,8-VII -~~luisFernando G6rnez M,

22f NARIN 21,_24o-hVin_ John "ia'i-r-oCs-"va-1a-IG_aIle-_o_-`-_ X - - -

jDanlel A. ChacOn G,23 NqTE DE SANTANDER iSiS-Il -11 Luls Domlngo.NWiftJaimne

.-. r ~~~~~~~~~~~Fidel Bohorquez Cuartas4.......~~~~~~~~~~~~~~~~~~~~ . . ~ .. ... . . ...............-..... ..

Luis Fernando G6mez M. ___...il~~~~~~~~~~~~~~~~~~~~~~~~~J4~~~~~~~~Ž~~~~~~2havez ~~~~~~~~~~.. .....

24 PUrUMAYO 2, Vii llLuis Fernando G6mez M. I X ___

25 QUINDIO 9 MNoptil6lSudrc i6

_____ -____ _ ~~Luis Fernando Gtdmez MW.___ ______

27 JSANTANDER 2,9Vi --- EstetanoTige na bez - X -

28 ;SUCRE 10, 12 -l Vi Fidel Bohorquez Cuartas -

29 'T0LIMA DE; ~-~ iNo.participo Ia Subdireccion -

L .o CAUC'A 8 11 I C'ar"l o s'A. E'c-h e-v-rrA',-- L~~~~~~~~~uls Fernando Gbmez_M.

- - ~~John Jalro carval G aIle o-3;1 'VAUPES 14, 18 -VIII :Carlos A.E hevrryA

a2 - HADA _ M Crls A. Echeveny.A..L--. -.------.- ~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~TOTAL:- 11 I.2.

~o participdla Subdirsccl6n do intraestructura Vial -1 7. 7.1 I 14.3-j --.... . -....-- . ...-...-..--....---....-. '.... ....---.---.-. I-..... .~~~~~..... ..... .....

Se partdp-6- an 2-7 -doelo"s 3'2'- De p' a rta m an to s .. . ..

5S!U!~~~JBASt4~~~~ ,'~~'wolJe, IA-9Vl, l VCIVH0 t

5 ~ ~ ~ ~ ~.. ...... .....

OU*.IOV4 261W19 OPUSW94S j _ __ _ __________--II - ~~~~~~~~~~~~~~~~~~~~~~~~~~~..........I._Z-Z1-.. ... ... .... ..... L-.f....

901 zepsGLI9509 - 8SE IIA - s s

__ -- ~~~~~~~~~~~~~~~~~~~. _ ~~~ .. ... ......- ..- _

-------------

-... .......--............-- - . . . ...-..~I et wietjr OiN UiWOO Sjflli iA - & 91.1 8S(NVW H;C *i St

~~~~~~~~~~.....-......... .... . ~.... ..... .. -*...... ........… .….

- zeIOY4 owe ou~e-usiej in1- ---- ,.--....-----..--~~~~~ ~~~~ ~~~ ~~ ~~~..- ...........-..... .- - . . . .- .- ...-.. --...--- ..................- -. ....

9' i.s L 09 zeee~2 *WirOJIo6UiWoueflt1lIIA-9 Vgi YOVINN1Nr

__ -. ~~~~~sSJn2nefbioi4oa ;ep~:ljilA............ ........... . --f. ......... AX -L r't' r ' 01, l, ~ ~~~~~~~~ ~~~~~~~ I91 Uu J.L ctlateuL4or zAl 6 Yr inVSV 61

...... .......... . * S.4........ ........ ............... ~~fl V 3

o r s~ ~~ ~~~ ~~~wie r O WIN O U WL O C3 SI .. .......... ...... .. ...... ..... .... .... ...........

-- - uoi~~~~~~~~~~~~~~~~~~ai~~~~~~~pqns si~~~~~~~~~~~~ odjiier 61on xA - qr-- Y flst:LN S

.... ~~~~~~~~~~~~~~~~~~ . -... -~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~ - r ~ ~ ~ .... ..

70AfLj: U901l SPOW XjjQ:i iiA ~$ ~ l~ 1

___ SOOVfl1~~~~~~~~~~~~~~~~IR9J1J --'YSOflhI9NOl SOD~~~~~~~AO~~d~~ S~~1NVdI~~~fl±?Ias Vd SzoIWNovi4oA Iy VHolueC1N 1WdOCN0 ei,

9z c io09e~o e u~~rjew~i Ah sein z9bopo uQ11p11 uhiep JqO OIJIzW........... ..... . .......... e.. ... ... 0so u lw e- e- - I. ..........C'Es E PC Z~~OdNVL OA14 O¶Q INRIJe 841 ZKvno .I

MINI81 RIO DE TRANSPORTE 1 -.. ~'U9iRiif E CCIONDIE CAMINOSYE CINALE S -I~.- ..-.-. ..-...-j . ------ i-...-.------~ ~~~ ~ ~~~~~~.I.-...-...... ......

ASISTENCIA TECNACMUNICIPIOS ....I...14nor me hasta octubre do 1q95..-.........*1~~~~~~~~-~ ~~ ~~ .-~~~ ......- .. ......... -----.-- ........ ....... ...... ---------

jDEPARTAMENTO MUNICIPIO FECHA OBJETO - FUNCIONARIO PROVECTOS ODJETO 1LONGITIJD~~~~~~~~~~~~~~~~~~~~~ROYCTO OBETO LONITUV EVALUADOS4 KMS.~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~fVLADS:KS

ATQOUIA _ Abejorral 17, 20-IV identificacii5n y evaluacii6n 'Fidel_Bohorquez C 1 Mantenimiento 1s'do proyectos ~Felix Le6n Chavez

ANTIQOUfA Bello l~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~'dentificaci6n y Evaluaci6n Fidel Bo-ho-rquez --C-.---- - I~~~~~~~'tagui de proyscios

ANTIOGUIA ;Jeric6 - - 101-V ;deifco y Evaluaci6n 'Fidel Bohorquez C. - 1 Manlenimiento - 24~~Tarso - de proyectos ;Enrique Caryonel S. 1 . -

auebonco

- - ---------~~~ ~ ~ ~ ~ - ................. ................. .......... .. .... ... j... .. -- 1---.---... - ~~~~~~~~~~~~~~~~~ .. . .... . -.-. - - .-.......... ......-. -. --................. .......- …. ... ... ......... ......

ANTIOQUJA ~~~~~~~~~~~~~Qisania 29 51 V yletlccO oevaluacion ;Fidel Bohorquez C. I - Mnelme i 1Abiaq ide proyactos JanJCiaa G I .... . .min.

-- ..~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~ -H ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ .... ..

... L~~~~~~~~~~~~~~~~~P !!c~~~~~~~~~~~~~~~~~ ~~. .............. .... -.------ ...........

Thaii.agena 5 7 VI ~~~~~~~~~~~~~~Identificaci6n y evaluaci6n de Fiohn BoCorvuaz C I Manlenimianto' 1921 deproyactos..

C~~~A1LAS Anserma .~~~~~~~~~~~~~27, 29 VI Idenfificacifn y evaluaci6n d Fidel Bohorquez C 1 Manteninniento 2

Guaviare Proyactos- -.....-.- -.. ..... .-... 4.GUAJIRA __ Mana~~~~fibiouie 1 1JVDhniiaiO eautind J.de Cohrquez C. Iatnmino 2.

.-.---.--.---.---.-..--. ~~~~~~~~~~~~~~~~~~~~~~~~ Proyaclos Carlos------ E-ch............ev...en...............

en. Ia. zo..e...t. e mn- ... .....

TOLIMA Al~~~~~~~~~-:artco n 31, V- VI identificaciOn y Evaluacn5n de pr-FiJ ohn .Crvajal C. . Mantenimiento~ 1.2

--- ~~~~~~~~~~~~~~~~~~~~~~~~~~~~-~~~~~~~~~~~~~~-~~~~~~~~~~~~~~ .. .~~~~~~~~~~ ..... ..... ...

ITOLIA -C unagu 2,5 -V . P saisfi astuo i de tnlns ioayts iFirad o Gohrquz CI-- - --~~~~~~~~~~~~~~~~~~~~~~..... ...... ...----- ............VIC1-IAO - SantaRosalie , 15-VI iAdbenIiiaces y Ed le BrDe r CrosEhear A2 Reailtcn 3

La Pnmavera 14 5- VI ldeniifwaci6n y Evalus de_pro - Cdrios Echeverry A 1 RehabilitatiOn - 15~~~~~. .... ..... ........ .... .......... .. TOTA 21a u_a_u_maS_ams~~~CA~~~~~~~Nabiga~~~~~~~~~~~~~30-X-95carIosi _ ____~~~~~~~~~~~~~~~~~~~.............. ....

~CCbs An-in'- 2,., I , i, --n -. ~ --ca--i6 . -y v. - ac--i6,n i id 1B ' -' P uR-'OM ''ED-MIteO 1.5ato --

C'ONCEPTOSPROYECTOS PLANES E INVENTARIOS

CAPACITACION ENTES TERRITORIALES 1995 |

Dptos D~~CAMINOSCTSTO 1001o/_ 9~~~~~~~~~~~3.75% - GrEST. 1 0°o |N

/ --- - --- \ ~~~~~~30Dptos.

PROYECTOS DE CAPACITACION

-- ----------.. N - -8. 3{E . ..................................... ,,. n- ~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~. .. ....

O :1NO PRESENTARO 2. 1 3°01,

srDptosESTUJDIADOS

Annex 1Attachment 5

MINISTERIO DE TRANSPORTE

FONDO NACIONAL DE CAMINOS VECINALES Anexo 5Subdireocion de Irgenieria Cuadro 5.1Division Programacion Fisica

RELACION DE DEPARTAMENTOS CON CONVENIOS INTERADMINISTRATIVOS

DE TRANSFERENCIA DE INFRAESTRUCTURA VIAL

DXPARTAMENTO NUMERO LONGITUD KILOMKTROS ACTA DE PUBLICACIONCONVENJO INVENTARIAD A TRANSFERIR ENTREGA DIARIO OFICIAL

ANTIOQUIA 309 2169.160 625.000 Si SIAMAZONAS 298 34.600 30.000 Si SiATLANTICO 306 304.860 299.670 Si Si

CALDAS 364 884.110 348.060 Si SiCASANARE 299 152.680 99.450 PENDIENTE Si

CUNDINAMARCA 289 27e3.730 720.090 SI SiRISARALDA 300 484.240 516.690 Si Sl

SUCRE 308 886.830 262.000 Si StTOLIMA 297 1604.650 1116.690 Si SiVALLE 307 1354.240 775.870 Si Si

GUAVIARE 175 120.000 Si SiMAGDALENA 172 1994.400 683.170 Si Si

QUINDIO 170 721.750 369,300 Si SiVAUPES 174 90.000 SI SiVICHADA 189 470.000 Si Si

N/SANTANDER 1249.490 501.250 NO NOCAUCA 1456.820 522.630 NO NO

SUBTOTAL 16081.S60 7549.870 NO NO

RELAClON DE DEPARTAMENTOS SIN CONVENIOS INTERADMINISTRATIVOS

DE TRANSFERENCIA DE INFRAESTRUCTURA VIAL

DEPARTAMENTO NUMERO LONGITUD KILOMETROS ACTA DE PUBDLCACION

_ CONVENIO INVENTARIAD A TRANSFlRIR ENTREGA DIAlO OFICIALARALUCA NO 33.300 33.300 NO NOBOLIVAR NO 2148.360 1104.460 NO NOBOYACA NO 3416.890 2544.608 NO NO

CAQUETA NO 1459.130 1459.130 NO NOCESAR NO 1232.370 400.500 NO NO

CORDOBA NO 1166.510 412.350 NO NOCHOCO NO 311.880 311.880 NO NO

GUAINIA NO 142.000 142.000 NO NOGUAJIRA NO 581.450 581.450 NO NO

HUILA NO 1724.990 1287.260 NO NOMETA NO 2024.770 1981 .330 NO NO

NARPI?O NO 1506.350 1506.350 NO NOPUTUMAYO NO 385.020 385.020 NO NOSANTANDER NO t911.870 1581.710 NO NOSUBTOTAL 18044.890 13719348 NO NO

TOTAL 34126.450 21269.218 J

Minbet-rlo de TransportsFONDO NACIONAL DE CAMINO VECINALESOficina do Planoaclon

Anexo 5

CONSOLIDADO DEPURACION DE VIAS (llilesdeg) Cuadro5.2ACTIVIDAD A EJECUTAR

DEPARTAMENT LONG. ME J O R A M I E N TO MANTEN. PERIODICO MANTEN. RUTINARI VALORKMS KMS TOTAL KMS TOTAL KMb TOTAL TOTAL

AMAZONAS 9Q000 IL000 120.000 12.000 60ooo 11000 12.000 192.000NTIOQUIA iooo 12M110 2,442.200 261.445 1i257.226 261.446 251.445 3,960.870

RAUCA 33.300 6.6 131200 11320 W6.600 13.320 11320 211120

TLANTICO 279.470 60.306 1,006062 13.7365 z6.76 89.430 89.430 1.794.197

BOLIVAR 1,004.460 197.838 3,967.36 404.796 2,023.980 401.796 401.796 6,383.136

BOYACA 2,544.B08 so5s=22 10,17a432 1,017.843 5,00.21i6 1,017.W43 1,017.843 16,285.491

ALDAS 348.060 24.968 409.360 1431394 716970 179608 179."6 1,390.028

AQUETA 1,460130 252.930 0506.600 60s0s 3,049.426 596315 s506315 8,704.340

ASANARE 215.150 56430 1,106.60 70.960 399.300 79.080 79.360 1,587.760

AUCA 622.630 90.920 1,018.400 241360 1,216.00 188.360 180.350 %223550ESAR 400.600 16.500 3,60ooo 106SOO 53s150 110500 11.500 4,321.000

ORDOBA 412.350 62.470 1.049.400 164.940 S24.700 184.940 164.940 Z,630.040

UNDINAMARC 2,142.610 107.131 2,142.610 1,071.305 5,356 964.175 06175 8,463.310

HOCO 311.880 76.112 1,522.240 20M224 1,011.270 331514 33.514 2,567.024

UAINIA 142.0W0 122.000 2,440.000 10.000 50.000 10.000 10.000 2,5W00Q

UAJIRA 581.450 130.260 2,605200 229.220 1,146.100 221.970 221.970 3,973.270

UAVIARE 16S.00W 6160o 1,252000 56.200 281.000 46200 46200 1,579.200

HUILA 1,267.200 259.006 5,181.320 5115615 ,567.57S 494.67 494.679 8,2431574

MAGDALENA 521170 111634 2,252600 27&268 1,381.340 234.268 234.268 8S6a288

META 1,981.330 311.202 6,224.040 95L174 4,790.670 711.954 711.954 11,72,8s4

NARI?O ,so50350 301.270 6025.400 602.S40 3,012.700 601540 60S40 9,60.640

NORTE DE SANT s01.250 o6L.32 1,317.240 247.494 1,237.470 187.894 187.894 2,742.604

PUTUMAYO 385.020 130.600 ,611.200 170.110 85so s5 s4.3so 84.350 S46.100

UINDIO 309.300 36.o30 771600 197.545 987.725 131A25 131125 1,894SO

RISARALDA 516.00 61.570 1,231.400 39360 1,906900 61.740 B1.740 3,260040

GANTANDER 1,581.710 31&342 6,326.40 31684 3,1631420 63ne04 631664 10,122.944SUCRE 555.420 3S.000 700.000 , 230.160 1,400.300 240.260 240.260 2,341.060TOLIMA 1,116.690 223.338 4,40670 446.676 2,233.360 446676 446.676 7,146.816VALLE 77r.370 31845 671900 S21.728 2,60640 220.498 220.498 3,501038AUPES 37.4S0 7.490 14.800 14.980 74.900 14.90 14.980 239.660ICHADA 20S.000 20S.0Q0 4,100.000 0W0O O 0.000 0 0.00000 4,100.000

TOTAL 22,604 108 4,181.794 33,03S.874 10,011.311 50,05%656 8,46S.004 8,456.004 142,147.434

- 61 -

Appendix B: Borrower's Contribution to the ICR

FNCV prepared a comprehensive report on the execution of the project, which was furnished to the Bank inNovewber 1996. This appendix includes Chapters 4 to 6 of such report. Chapter 4 summarizes theoutcome of an ex-post evaluation of a sample of 18 road construction and improvement subprojects.Chapter 5 presents FNCV's Indicative Operational Plan. Finally, Chapter 6 concludes with FNCVretrospective assessment of the execution of the project and the achievement of its development objectives.

MINISTERIO DE TRMSPORTEFONDO NACIONAL DE CAMINOS VECINALES

CAPITULO IV

EVALUACION ECONOMICA

4.1 SELECCION DE LA MUESTRA

Con el Credito BIRF 3157-CO, se adelant6 la ejecuci6n de 55 proyectos de construcci6n y80 de mejoramiento, para un total de 135 caminos, de los cuales se tomaron 18 proyectospara la muestra, (Ver mapa), 10 de construcci6n y 8 de mejoramiento, distribuidos en tresregiones geograficas, asi:

REGION CONSTRUCCION MEJORAMIENTO TOTAL

Costa Atlantica 3 3 6

Occidente 4 1 5

Centro Oriente 3 3 6

Orinoquia 0 0 0

Amazonia 0 1 1

TOTAL 10 8 18

La selecci6n de la muestra fue realizada teniendo en cuenta, aspectos como:

- Dada la heterogeneidad del Territorio Nacional y por ello en busca de equidadgeografica, se trat6 en lo posible que estuvieran localizados en la gran mayoria deDepartamentos donde se efectu6 la categoria Obras Civiles.

Los 18 proyectos seleccionados conforman una muestra representativa de la totalidad delos caminos ejecutados, ubicados en 3 regiones del Pais.

4.2 FACTORES CONDICIONANTES EN LA EVALUACION DE LA MUESTRA

En lo que respecta a los componentes del proyecto a nivel de beneficios y de costos, tantola evaluaci6n Ex-Ante- como la Ex-Post, parten de consideraciones diferentes, lo cual no

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MINISTERIO DE TRSPORTEFtNDO NACIONAL DE CAMNOS VECINALES

les permite hacer los comparativos entre los indicadores arrojados en las evaluaciones, porlas siguientes razones:

- El desarrollo del flujo de Caja estimado en el estado de preinversi6n de los proyectos, nocorrespondi6 al cronograma de inversi6n real efectuado en la etapa de ejecuci6n delproyecto, trayendo esto como consecuencia un encarecimiento en los costos del proyecto ypor ende un factor negativo en el costo de oportunidad del proyecto.

- Las cantidades de obra determinadas en el estudio inicial, no correspondieron en lamayoria de los casos a las cantidades de obra definitivas, en consideraci6n a que para elestudio inicial no se contaba con los respectivos estudios de trazado y disenio.

- Por el proceso que vivi6 la Entidad en cuanto a su liquidaci6n y por ende la disminuci6nde personal, la Oficina de Planeaci6n no contaba con los recursos humanos necesariospara la realizaci6n de la evaluaci6n ex-post, lo que origin6 que la Gerencia General tomarala determinaci6n de contratar la evaluaci6n de los estu cfirmas consultoras externas.

4.3 ENCUESTA YANALISIS

Para la realizaci6n de4a encuesta Socio-Econ6mica se uizaron los formatos de capturade datos en campo, igentes para las Entidades Crediticia y Creditaria, por contener todoslos aspectos integrales que nos permitieron determinarL ls beneficios y costos inherentes aeste tipo de proyectosy cnsecna nte la realiac6ln dela evaluacion Economica.

Las visitas a los camlinosse efectuarondurante lcs mersesde Junio y Julio de 1996.

Los puntos que se consideraron import ntes de aaizar y comparar con respecto a laevaluaci6n inicial, fueron los siguientes: ij K

- lnversi6n realizada por item.- Metas fisicas alcanzadas en cada proyecto.0 ' '- Cantidades de obra definitivas.- Aspectos de producci6n; cultivos presentes, usos del suelo, sustituci6n y diversificaci6nde cultivos, rendimientos de los productos, autoconsumo, costos de producci6n, precios deventa en finca y mercado.- Aspectos Demograficos.- Aspectos Sociales (Presencia Institucional, necesidades basicas insatisfechas).- Situaci6n geografica del proyecto.- Aspectos politicos.- Relaci6n Beneficio-Costo.

Ver Anexos 7 y 8

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FONDO NACIONAL DE CAMINOS VECINALES

4.4 INVERSION REALIZADA

Se hizo el analisis de la inversi6n realizada en cada uno de los caminos seleccionados; conbase en las actas de recibo de obra, comparando la inversi6n programada con la ejecutadaen pesos constantes, los resultados de este analisis se muestran en el cuadro No. 12

Analizando los 18 proyectos de la muestra, podemos concluir lo siguiente:

Costo promedio por kil6metro Ejecutado en construcci6n $46.139.89 (en miles de $)

Costo promedio por kil6metro programado en construcci6n $60.010.25 (en miles de $)

Costo promedio por kil6metro ejecutado en mejoramiento $51.770.29 (en miles de $)

Costo promedio por kil6metro programado en mejoramiento $67.510.28 (en miles de $)

Podemos observar entonces, que los costos en construcci6n y: mejoramiento fueron del77% de lo inicialmente programado. Esto debido a que en un alto porcentaje de loscaminos de la muestra, no se concluyeron por el proceso de transici6n vivido por la Entidady en algunos otros se realizaron otras actividades diferentes''a 'las inicialmenteprogramadas, y en algunas otras no se realizo el mantenimiento provisto por lo que loscaminos se deterioraron, trayendo como consecuencia -reinversiones en los proyectos loque lo que produjo un alza sustancial en el costo FINAL DEL PROYECTO.

La inversi6n TOTAL EJECUTADA en'los'caminos de la muestra fue de $8.702.578.000,representados en 178.90 kilometros, que comparada con la inversi6n programada de15.493.987.000 para una longitud.de 24.71 kilometros, representa un 60 % de la inversi6nprogramada (Ver cuadro No 12).

4.5 METAS ALCANZADAS (LONGITUD)

Las metas fisicas alcanzadas fueron de 178.93 kil6metros, que comparadas con laprogramada de 244.71 kil6metros, representan un porcentaje del 73%.

En la categoria de construcci6n se habia programado segun la muestra 136.86 kil6metros yse ejecutaron 99.31 kil6metros lo que representa el 73% de lo programado.

En la categoria de mejoramiento se habian programado 107.85 kil6metros y se ejecutaron79.62 kil6metros. ( Cuadro No.13).

4.6 IMPACTO SOCIAL

La ejecuci6n de carreteras veredales desde el punto de vista social trata del impacto de losproyectos sobre el entorno y la poblaci6n beneficiada con la inversi6n.

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MINISTERIO DE TRANSPORTEIC FONDO NACIONAL DE CAMINOS VECINALES

La epoca de ejecuci6n del Credito 3157-C0, otorgaba un significativo grado de importanciaal aspecto social, compuesto entre otros por: Poblaci6n asentada en el area de influenciadirecta del proyecto; servicios basicos con que contaba o no, dicha poblaci6n; serviciostecnicos (Credito, Asistencia Tecnica), prestados o no, a estas comunidades y necesidadesbasicas insatisfechas.

Los factores anteriormente mencionados han sido considerados en la evaluaci6n inicial yse consider6 de extrema importancia allegar informaci6n sobre estos t6picos en la visita decampo efectuada para la evaluaci6n ex-post.

La informaci6n recopilada en la muestra no pretende otorgar un analisis cuantitativo nicualitativo de la contribuci6n que seguramente debia generar la ejecuci6n de los proyectos,pero indudablemente contribuyeron al mejoramiento en los indices y por lo tanto, calidad devida, en las comunidades beneficiadas por la ejecuci6n de los caminos veredales.

4.7 IMPACTO SOBRE LA PRODUCTIVIDAD

El analisis del impacto sobre la producci6n y la productividad generada por la ejecuci6n delos proyectos financiados con el Credito 3157-CO, se presenta en terminos de beneficioscausados por el incremento en las areas agropecuarias, aumento en los rendimientos delos bienes producidos en la regi6n, eliminaci6n de perdidas por falta de acceso a la zonaproductora y disminuci6n del traqueteo de bienes. De la sumatoria de estas variables seobtiene el valor agregado neto que reflejan en la medida de su valor, que los proyectostengan una mayor 6 menor rentabilidad.'

Buscando obtener un indicador de impacto, se le otorgo peso porcentual a los proyectos dela muestra, tomando como base el areatcultivada sin ejecutar el proyecto y la cantidad dehectareas incorporadas al culminar las obras.

Las diferencias entre las dos porcentualidades nos muestran que 12 de los 18 proyectos, osea un 67% arrojan unos cambios positivos, loque implica un impacto benefico al verseaumentada proporcionalmente la producci6n en estas regiones, a raiz del uso de areaspotencialmente explotables.

No obstante los 6 proyectos restantes, a pesar de que muestran un resultado menor, noimplica que no hayan obtenido un impacto positivo en cuanto al desarrollo econ6mico de laregi6n, pues no solo la incorporaci6n de area da esta posibilidad, puesto que el incrementoen los rendimientos de los bienes acarrean generaci6n de valores agregados.

Por tanto, existe una contribuci6n en terminos de conveniencia econ6mica en losbeneficios del proyecto representado en este item.

4.8 ANALISIS DE LOS INDICADORES DE BONDAD

Los indicadores de bondad interpretados como la optimizaci6n en el valor del recurso en sumenor uso altemativo (costo de oportunidad del dinero), esta determinado de acuerdo a la

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MINISTERIO DE TRMSPORTEFONDO NACIONAL DE CAMINOS VECINALES

metodologia utilizada para la evaluaci6n de la muestra por el valor presente neto, tasaintema de retomo y la relaci6n beneficio/costo; interpretados desde el punto de vista de losresultados, como la consecuencia de ejecutar una inversi6n producto del credito y que enun menor tiempo determinado genere los mayores beneficios, utilizando como medida unatasa de interes estipulada previamente por la Banca Multilateral.

Con base en lo anterior, en la muestra se puede ver que los mayores valores presentesnetos, se dieron en los proyectos de Palmar - Platanares, con 1.400 millones; El Pescado-La Cumbre con 1.181 millones ,Santa Cruz-Socavones-Pendales con 605 millones, SanPedro de Uraba-Valencia con 433 millones lo que representa el 58% del total del VPN de lamuestra. El primero de estos proyectos sustenta su VPN en la explotaci6n pecuaria, aldesestimular la producci6n Agricola de la regi6n, para dar paso a una tecnificada actividadpecuaria que permiti6 unos mayores ingresos de los habitantes de esta zona.En los otros dos proyectos se present6 un considerable incremento en las areasadicionadas a la explotaci6n Agricola inicialmente existente.

Los 14 proyectos restantes de la muestra, se enmarcan en su rentabilidad econ6mica,financiera y social con un buen rendimiento para la economia de las regiones objeto deestos proyectos, en donde los beneficios obtenidos contribuyeron a un mayor aumento desu producci6n y productividad, que indudablemente ha generado un mayor nivel de vida ytrabajo para la poblaci6n. (Ver cuadros No. 12).

Ademas, la relaci6n beneficio/costo de estos proyectos, nos indica que cada peso invertidorindi6 beneficios de 1.78 pesos promedio.

Desde el punto de vista de la sociedad como un todo, podemos mirar la eficacia yrentabilidad de la inversi6n en virtud de la viabilidad financiera de los proyectos de lamuestra representadas en los indicadores de bondad.

Esto nos indica la magnitud del rendimiento econ6mico sobre la producci6n agropecuaria yla distribuci6n del ingreso que generan los beneficios a valor presente para cada uno de loshabitantes en la zona de influencia.

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MINISTERIO DE TRANSPORTE

FONDO NACIONAL DE CAMINOS VECINALESOFICINA DE PLANEACION

DOLIVAR ATLANTICORIo Viejo- Cruce Romol Norosl onto Cruz - Socavones - Pendoles

CORDOBA MAGDALENAMoFlto-SaBeralo del Vient Cristolino Alto -Lo Galoxia AJR

Villa Nueva- La CulebreraANTIOQUIA - CORDOBASon Pedro de Urobd- Volencio

CALOAS CEsArLa Clora-L Trina- Gaspor- Guscol El Pescado- La Cumbre

CUNOINAJdARCASan Nicolos- Honduras Bajo

NORTE DE SANTANDER

QUINDIO Versolles- Playo CotizoMoravillas-EISalodo-Volledel Chiizo

H4UILA BOYACAAvispero-Alto Horizonte- Romiriqu-Son Antonio-FotimnoPolmor- Plotonores

CAUCA

Dinde -ElIlao TOLIMALa Colonia -Alto Altamizol

NARINORemolino - Alt1miro

PUTUMAYOSon Froncisco - Portochuela-Minchoy

CAMINOS SELECCIONADOS - EVALUACiON EXPOSTCREDITO 3157 -CO

Ministerio de TransporteFONDO NACIONAL DE CAMINOS VECINALESOficina de Planeaci6n

CUADRO No.12RESUMEN GENERAL - EVALUACION EX-POST

CAMINO Long. (kms) Costo ($ col) Tipo de VPN Benefici acosta ObservacionesInicial Real Real Actual Obra Inicial * Real Inicial Real

Remolino - Altamira 7 10.59 550,613 1,010,118 C 44,929 85,982 1.42 1.08Maravillas-el salado-valle del chili 8 5.7 570,115 634,486 C 56,517 1.07El pescado-la cumbre 29.6 14.59 428,197 248,576 C 49,022 1,181 1.44 4.46Villanueva-la culebrera 21.26 10.91 1,064,310 450,909 C 110,807 62,053 1.55 1.15Cristalina afta-la galaxia 10 4.19 719,439 456,236 C 198,844 266,931 2.42 1.6Versalles-playa cotiza 7 15.36 760,356 312,059 C 127,642 290,215 2.05 1.58La clara-la trina-gaspar 9 5.1 765,987 186,190 C 75,790 61,167 1.56 1.29Dinde-el play6n 26.5 18.39 1,566,321 574,769 C 83,977 262,918 1.37 1.33Avispero-honzonte 13.5 8.98 1,358,958 301,650 C 317,044 164,395 2.51 1.51Palmar-platanares 5 5.5 428,707 407,186 C 88,360 1,400 2.12 4.281San pedro de uraba-valencia 5.5 4.42 1,398,563 697,890 M 134,117 433,840 1.21 1.32Monitos-san bernardo del viento 21 13.37 845,178 863,158 M 179,062 313,967 1.39 1.16

San francisco-portachuelo-minchoy 4.45 3.3 402,215 409,208 M 183,731 126,403 2.41 1.33San antonio-ramiriqul-fatima 31.5 18.07 1,009,265 456,236 M 1 66,324 217,207 1.3 1.48San Nicolis-honduras bajo 5 4.1 332,250 215,210 M 80,837 187,232 1.47 2.95La colonia-alto altamizal 7 19.9 568,654 329,039 M 76,282 843,594 1.89 3.65Santa cnuz-socavones 3.4 0.17 149,466 18,500 M 110,560 605,724 2.6 4.17Rioviejo-cruce ramal norosi 30 16.26 2,575,393 1,131,158 M 630,234 165,589 1.9 1.16

* Editor's Note: Figures in the "Initial Net Present Value" are in Colombian pesos at the timne of evaluation of each subproject (the evalu-ations were undertaken between 1988 and 1992). For a comparison of the NPVs see Table 9 in Part H of the Report.

( 7j4 MINMSTERIO DE TRMSPORTEFONDO NACIONAL DE CAMINOS VECINALES

CUADRO No.13

METAS FISICAS ALCANZADAS - EVALUACION EX-POSTCONSTRUCCION

CAMINO Long. Expl. 0 de A Afirmado Long. % obraInicial promed.

Remolino - Altamira 7 4.5 25 4 10.59 151Maravillas-el salado-valle del chili 8 6-5 4.5 4.5 5.7 71.25El pescado-la cumbre 29.6 10.32 23.02 14.16 14.59 49Villanueva-la culebrera 21.26 12.68 11.84 0 10.91 51Cristalina alta-la galaxia 10 3.5 6 3 4.19 42Versalles-playa cotiza 7 13.4 18.5 17 15.36 219La clara-la trina-gaspar 9 6.2 5 5.1 57Dinde-el play6n 26.5 11 26.75 33.2 18.39 69Avispero-horizonte. 13.5 5 17.28 7.5 8.98 67Palmar-platanares 5 4.3 6.8 .5 .5.5 110Total : 136.86 77.4 144.69 :49.2 94.20 68.83MEJORAMIENTO _____

San pedro de uraba-valencia 5.5 5.5 5.5 1: 4.42 80Mofitos-san bemardo del viento 21 7.5 11 27 13.37 64San francisco-itachuelo-minchoy 4.45 4.5 4.05 0 .15 3.3 74San antonio-ra6 l31ma 31.5 1 1 19.72 28.1 18.07 57San NicolAs-hondUr a0o 5 5 _ M 3 4.2 4.1 82La colonia-alto altamnizal 7 20.23 19; 20.61 19.9 284Santa cruz-socavones 3.4 0 0.5 0 0.17 5Rloviejo-cruce ramal norosif 30 18 15 15 16.26 54.2

,Total 107.85 71.73 77.77 96.06 79.62 73.83

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Me ISTERIO DE TRMSPORTEwiE5~( FONDO NACIONAL DE CAMINOS VECINALES

CAPITULO V

PLAN INDICATIVO DEL FONDO NACIONAL DE CAMINOS VECINALES

PLAN DE ACCION VIGENCIAS 1997 - 1998

FIN INDICADORES VERIFICACION SUPUESTOS

Objetivo En el horizonte de 2 afios: ' Encuestas sobre * Definir la participaci6nsatisfacci6n de del FNCV en el Sistema

Mejorar el acceso de 1000 comunidades necesidades en el Nacional deMejorar las condiciones (enti6ndase por comunidad la poblaci6n area de los proyeotos. Cofinanciaci6n.de vida de la poblaci6n residente en una vereda, caserio orural y facilitar su acceso corregimiento de aproximadamente 200 * Datos de las ' Clarificaci6n dea los servicios basicos de familias constituidas por 7 personas). regionaleste funciones entre elsalud, educaci6n, interventorias. FNCV y FINDETER-saneamiento y servicios Disminuir los costos de transporte en un FCVpublicos (energia, 30%. * Datos de la Oficinaacueducto, alcantarillado) Central del FNCV Definici6n

* Crear 2000 empleos temporales/aino por gubemamental sobre lalas obras a ejecutar. *Informaci6n de las sostenibilidad del

Alcaldias y las FNCV.* Crear 9000 empleos permanentes a veedurias.traves del programa de microempresas ' Permanente apoyo delpara mantenimiento de las vias rurales Gobierno Nacional.

* Invertir $60.000 millones en obrascontratadas con contratistas locales yparticipaci6n permanente de lascomunidades.

Componente vial: En el horizonte de 2 arnos: ^ Datos de Oficina ' Programa deCentral y las descentralizaci6n sigue

Mejorar caminos ' Mejorar 2000 km Regionales en marcha.vecinales a nivel nacional

* Efectuar mantenimiento periodico de Se fortaleceMantener caminos 4000 km al ano coordinaci6n con

vecinales a nivel nacional FINDETER.* Efectuar mantenimiento rutinario de20000 km al afno *Clarificaci6n sobre la

red a cargo del FNCV.

* Los contratistaslocales se capacitan yfortalecen susactividades.

' La inseguridad en lasareas ruralesdisminuye.

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MINISTERIO DE TRANSPORTEFONDO NACIONAL DE CAMINOS VECINALES

Componente En el plazo de 3 meses: Monitoreo por parte Los mocanismos deInstituclonal: de Ia Oficina Central coflnanciaci6n

del FNCV estimulan IaReorganizaci6n del Se define reorganizaci6n de la Entidad participaci6n de las

FNCV de acuerdo con la (Oficina Central y Regionales). * Informes de autoridades regionales yclarificaci6n de funciones contratistas, locales.y papel asignado. * Se Clarifica la red a cargo del FNCV interventores y sedes

regionales del FNCV Autoridades localesTransferencia de vias a apoyan programas de

los Entes Territorales. En el plazo de 6 meses: Registro de microempresas.Microempresas

* Asistencia Tecnica para Se establece plan de capacitaci6n a nivel * Recursos suficientesfortalecer las autoridades interno y para las autoridades regionales y * Registro de (aportes de la naci6n,viales en el nivel regional locales. contratistas y cr6dito externo yy local consuftores cofinanciaci6n del Ente

Se tiene en funcionamiento 50 territorial)Fortalecimiento de microempresas piloto para mantenimiento

contratistas locales. rutinario.

Desarrollo e * Se definen mecanismos de transferenciaimplantaci6n de un de vias.programa demicroempresas paramantenimiento rutinario 1S$ En el plazo de un ailo:

* Se tiene on funcionamiento 200l.croempresas para mantenimiento

-rulnarlo

* 200 municipios quedan cubiertos por elprograma de microempresas.

300 munlctmos y algunos departamentosreciben asistoncia t6cnlra en caminosrurales.

Etn elpt~ do dois aijos:~

Se tienen en funcionamiento 900microempresas (cubrimiento total,asistencia tecnica a traves de lasregionales constftuidas)

Fuente: Oficina de Planeaci6n

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MFNISTERIO DE TRANSPORTEFONDO 4CIONAL DE CAMINOS VECINALES

CAPITULO VI

CONCLUSIONES Y RECOMENDACIONES

El credito cumpli6 con el Objetivo Social planteado en la evaluacion del mismo, como era elapoyo al sector Agropecuario, especialmente en las areas de minifundio. En este sentidolas obras construidas contribuyeron a la reducci6n de los costos de transporte, estimularonla incorporaci6n de areas a la producci6n de bienes primarios, conilevandofundamentalmente al mejoramiento de la calidad de vida de los habitantes asentados enlas regiones beneficiadas.

En terminos generales, la calidad de las obras recibidas fue buena. Los caminos quefueron visitados para la muestra se encontraron en su mayoria en buen estado. Sinembargo, en algunos .e. ellos se 'hace indispensable, .para que se pueda continuarprestando un servicio adecuado, realizar labores de mantenimiento peri6dico o rutinario.

Caon Ia inversi rea;lizada en estos proyectos, se facilit6 Iia presencia del Estado en otroscampos tales 'como ..'educaci6n, Salud, Acueducto y .elecffficacin, -trayendo comoconsecuencia'una disminuci6n en los indices de necesidades basicas insatisfechas.

Otro aspecto importante'.de resaltar es que con la construccion y/o mejoramiento de loscaminos se ha logradao una mejor' atencion al campesinado por parte de las entidadesencargadas de prestar'asistencia t6cnica, ya que se facilit6 el acceso a las zonas deinfluencia.

Se not6 en la evaluaci6n Ex-post que ha aumentado la utilizaci6n del Credito por parte delos campesinos, con el prop6sito de' ',vigorizar'lia actividad Agricola y/o Pecuaraincrementando para ello areas de producci6n oatecnificando sus cultivos.

En la actualidad existen centros de acopio y se han creado formas asociativas (Juntas deAcci6n Comunal y Cooperativas) en las zonas de influencia de algunos de estos proyectos,mejorando el grado de coordinaci6n y convivencia entre los habitantes de la zona, lo cualgenera mayor desarrollo.

Uno de los factores mas relevantes generado por la apertura de estas vias, lo constituye ladisminuci6n en el costo de transporte de los productos, puesto que se pasa del transporteen mula al transporte motorizado, aumentando el margen de utilidad para el campesino.

Se encontr6 que a pesar de tratarse del mejoramiento de algunos caminos, en muchoscasos la poblaci6n se encontraba incomunicada pues las vias solamente estaban abiertassin tener obras de arte ni afirmado, lo que impedia el transito vehicular regularmente porellas, obligando a la permanente utilizaci6n de bestias para la movilizaci6n tanto delpersonal como de la producci6n.

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FONDO NACIONAL DE CAMINOS VECINALES

La habilitaci6n de las vias mediante su mejoramiento, ha permitido la utilizaci6n regular ypermanente de vehiculos que facilitan el transporte de personal y la movilizaci6n de carga,

disminuyendose considerablemente no solo los costos de transporte sino el tiemporequerido en los desplazamientos, lo que conlleva a una mayor oportunidad decomercializaci6n de la producci6n.La disminuci6n en los costos de transporte ha generado un excedente econ6mico enbeneficio de los campesinos, lo que permite mejorar sus condiciones de vida pues sonrecursos que en su mayoria se destinan para la adquisici6n de productos basicos en lacanasta familiar, incluyendo dentro de ella productos nuevos para estas comunidadescomo son los elementos de aseo.

La construcci6n de caminos o la rehabilitaci6n de los existentes han permitido la iniciacionde otras obras de infraestructura basica como es la electrificaci6n que es uno de losservicios mas apreciados por la comunidad, ya que les permite la adquisici6n de productosperecederos diferentes a los producidos en la regi6n pues los pueden conservar en nevera.Asi mismo en los climas calidos facilitan la utilizaci6n de ventiladores.

De la misma manera, ha facilitado la llegada de medios de comunicacion como son el radioy la television, que ha tDbeneficiado el autoestima de la comunidad al no sentirsemanipulados, pues dal recibir informaci6n permanente acerca de acaecer en el Pais y elMundo, los rriueve mayores sentimientos de solidaidad, aceptacion y/o rechazo que a suvez les permite formarse criterios basados en una informaci6n,pluralista y no como sucedeen la mayoriaAde sitios donde no ha liegado la luz, siendo la opinion manipulada por losmiembros de Ia comunidad que tienen acceso a otras regiones mas desarrolladas y lacomunicaci6n de los sucesos de Colombia y el Mundo, se recibe por informaci6n verbal enla que la mayoria de las veces se encuentra afectada por -a opini6n de los interlocutores.

Los resultados de la Post-Evaluacion de la muestra de proyectos, senalan que todos loscaminos evaluados siguieron teniendo una,,rentabilidad aceptable, si bien algunos de ellosresultaron menos "Atractivos" que lo esperado.

En resumen, el programa esta cumpliendo con los objetivos trazados, generando desarrolloSocial y Econ6mico en las zonas de influencia, en beneficio de la Economia Social.

Es importante resaltar que hubo un desaceleramiento en la ejecuci6n de las metas fisicasinicialmente provistas, a partir de 1993, debido al traumatismo vivido a nivel nacional quegenero la liquidaci6n del FNCV ya que los departamentos y municipios no tenian claro latransferencia de recursos para que atendieran la red a nuestro cargo ademas de la nogarantia de recursos futuros, lo que finalmente aceler6 el proceso de deterioro de las vias,sin que ninguna autoridad nacional tomara acciones para evitar tal fin.

Es importante para la buena ejecuci6n de un credito, que se establezcan entre todasaquellas personas que intervengan en su administraci6n desarrollo ylo ejecuci6n unidad decriterios a fin de que lo relevante para uno, igual lo sea para todos sin perder de vista laclasificaci6n que por areas tenga que existir.

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MINISTERIO DE TRANSPORTE

IC FONDO NACIONAL DE CAMINOS VECINALES

Es indispensable que se creen sistemas de informaci6n en la Entidad que ejecute uncredito para asi tener acceso oportuno, veraz y confiable, que solo puede ser ofrecidomediante un sistema previamente establecido a la ejecuci6n de un cr6dito.

Es fundamental para tener un control adecuado sobre el manejo y desarrollo de un credito,fijar con anteriordad a la ejecuci6n del mismo, mecanismos de control que permitanestablecer la regularidad y buen manejo de los tramites, que por el mismo tenga queefectuar la Entidad; no solo en lo relacionado al control de la ejecuci6n de las obras en si,sino a los tramites y procedimientos administrativos que por el se generen en lorelacionado con contrataci6n, adquisici6n, control de cuentas y pagos, servicio de la deuday en general las actividades que por su manejo se generen y asi lo acrediten.

Para obtener una mayor confiabilidad de los resultados arrojados por una evaluaci6n Ex-post, es indispensable dejar transcurrir un tiempo adecuado entre la culminaci6n de lasobras y la posible generaci6n de beneficios producto de las inversiones, con lo cual seobtendria una disminuci6n en los margenes de error al cuantificar los resultados finales.

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