Document of

The World Bank

FOR OFFICIAL USE ONLY

MICROFICHE COPY

Report No. P- 5708-UNI Type: (PM)QUEI, C. / X35525 / J6 051/ AF4IN

R_ot No. P-5708-UNI

MEMORANDUM AND RECOMMENDATION

OF THE

PRESIDENT OF ThE

INTERNATIONAL DEVELOPMENT ASSOCIATION

TO THE

EXECUTIVE DIRECTORS

ON A

pROPOSED CREDIT

IN THE AMOUNT EQUIVALENT TO SDR 49.8 MILLION

TO

THE FEDERAL REPUBLIC OF NIGERIA

FOR A

FIRST MULTISTATE ROADS PROJECT

MAY 29, 1992

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

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CURRENCY EOUIVALENTS(April 1992)

Currency Unit = Naira (M) = 100 Kobo (k)US$1 = N18.00Naira (N) = US$0.0556

MEASURES AND EOUiVALENTS

I kilometer (km) = 0.62 miles1 meter (m) = 3.28 feet25.4 millimeters (mm) = 1 inch

ABBREVIATIONS AND ACRONYMS

EIA - Environmental Impact AssessmentERR - Economic Rate of ReturnFEPA - Federal Environmental Protection

AgencyFMWH - Federal Ministry of Works and

HousingICB - International Competitive BiddingLCB - Local Competitive BiddingMSRP - Multistate Roads ProjectSMOWT - State Ministry of Works and Transport

FISCAL YEAR

January I - December 31

FOR OmCIL USE ONLY

FEDERAL REPUBLIC OF NIGERIAFIRST MULTISTATE ROADS PROJECT

!CREDIT AND PROJECT SUMMARY

Borrower: Federal Government of Nigeria (FON).

Beneficiaries: Federal Ministry of Works and Housing (FMWH)State Ministries of Works and Transport (SMOWTs) in theJigawa and Kano States.

Credit Amount: SDR 49.8 mil!ion (US$68 million equivalent).

Ierms: Standard IDA, with 35 years' maturity.

OnlQ ding Terms: From FGN to the States for twenty years, including 5 years ofgrace at the IBRD variable interest rate. The Swtes wouldbear the foreign exchange risk. Approximately US$2.0million would be retained by the Government to financetechnical assistance to FMWH.

Local Foreign IQtlIUS$Miions

Fiing Plan IDA 3.0 65.0 68.0State Governments

Jigawa 9.0 1.5 10.5Kano 11.1 1.5 12.6

Federal Government(FMWH) 027 0.0 0.7Total L0

EcAoomic Rate of Retur: 37%

Staff Apprsal lDpRt=: No. 10282-UNI

mm IBRD Nos. 23529, 23530 and 23531

This document has a resticted distribudon and may be used tb; re&Fients only In the performanceof their official duties. Its contents may not otherwise be disclkwsed wi,.lut World Bank authorzation.

MEMORANDUM AND RECOMMENDATION OF THE PRESIDENTOF THE INTERNATIONAL DEVELOPMENT ASSOCIATION

TO THE EXECUTIVE DIRECTORSON A PROPOSED CREDIT

TO THE FEDERAL REPUBLIC OF NIGERIAFOR THE FIRST MULTISTATE ROADS PROJECT

1. I submit for your approval the following memorandum and recommendation on aproposed development credit to the Federal Republic of Nigeria (FGN) for SDR 49.8 million,the equivalent of US$68 millior, to help finance the First Multistate Roads Project (MSRP).The credit would be on standari IDA terms with a maturity of 35 years. The Governmentwould onlend: US$30 million equivalent to Jigawa and US$36 million equivalent to Kano atIBRD's standard variable interest, including five years of grace. The states would bear theforeign exchange risk. In addition, US$2.0 million equivalent would be passed on to theFederal Ministry of Works ana Housing (FMWH) to finance technical assistance.

2. Ickgrund. Over the last 15 years a remarkable expansion and improvement hasoccurred in the Nigerian roads system. However, inadequate maintenance now threatens theroad network, raising the possibility of the loss of past investments and serious repercussionsfor the economic well-being cf the country. Road maintenance capability is weak at all levelsof Government, and this problem is compounded by weak organizational structures formanaging the road system. T he Bank is supporting a shift in emphasis to maintenance fromnew construction. In line wih this policy shift, the Government of Nigeria has requested theBank's assistance to improve the road networks in selected states. The proposed project,which would be the Bank's first operation for state roads, would provide the opportunity topursue at the state level the types of improvements being introduced at the federal level tostrengthen the management of road administration. Originally six states, Anambra, Kaduna,Kano, Lagos, Niger and Oyo were selected ey the FGN for inclusion in the proposed MSRP,based on their capacity to mreet the local costs of road programs and their willingness toreorient roads expenditure from expansion to maintenance, upgrading, and strengthening.The number of states was later reduced !o two viz., Kano and Jigawa at the request of theGovernment.

3. EQiect Objcives. The main objective of the proposed project is to support asustainable improvement program for high priority roads in the states of Jigawa and Kanoby: (a) creating a capacity for planning and management of the state roads system, includingstrengthening of the State Ministries of Works and Transport (SMOWTs); and (b) developinga road upgrading, rehabilitation and maintenance program and increasing the use of privatecontractors. In parallel with the roads rehabilitation program, the project will support acomprehensive institutional development program that will strengthen the capacity of SMOWTstaff in the three states to plan and oversee works carried out by private contractors throughon-the-job and formal training. The project will also establish Technology Transfer Centersat the state level.

- 2 -

4. Project Description. The proposed project would support the following maincomponents in the states of Jigawa and Kano to be executed by contract for:

(a) Civil Works.

(i) Road maintenance, rehabilitation and strengthening. An economicallyjustified program to reduce the backlog of rehabilitation andstrengthening works on about 830 km of priority state roads;

xii) Roads upgrading. Paving of about 220 km of selected high priority,heavily trafficked unsurfaced roads to appropriate design standards;

(b) Vehicles and equipment. Procurement of vehicles and equipment as au aid forbetter management of roads; and

(c) Instituional development. Developmert of staff capabilities for planning,design and supervision of construction and maintenance of state roads; staffwould be assisted to put this into practice by moving towards greater use ofcontractors and away from force account operations.

5. The total cost of the project is estimated at US$91.8 million with a foreign exchangecomponent of US$68.0 million (74%). A breakdown of costs and financing are shown inSchedule A. Amounts and the methods of procurement and of disbursement, and thedisbursement schedule are shown in Schedule B. A timetable of key project processing eventsand the status of Bank Group Operations in Nigeria are given in Schedules C and D,respectively. The maps are also attached. The Staff Appraisal Report No. 10282-UNI datedMay 5, 1992 is also attached.

6. Proiect lmplementation. The SMOWT's of Jigawa and Kano would implement theprograms with oversight provided by the FMWH. Both the FMWH and the project SMOWTin each state will be assisted by consultants who would also be responsible for contractadministration and construction supervision. Consultants subject to Bank approval would alsobe employed to provide technical assistance and training. Local financing will be provided byeach state through allocations from its Federation Account (less than 4% of each state'smonthly allocation) with the FGN, and increases in road user charges. IDA financing will beprovided through the FGN which will onlend the funds to the states. Most of the IDAfinanced road contracts will he procured by International Competitive Bidding.

7. Project Sustainability. The project is designed to enhance the capacity of stateauthorities to plan and implement routine and periodic maintenance of state roads and toensure sustainability by: (a) substituting force account operations with maintenance contractswith small to medium-scale domestic contractors; and (b) improving availability of fundsthrough reforms in resource mobilization, cost recovery and budgetary allocation. A keyaspect is that each participating state must prepare an action plan and to increase road usercharges under their jurisdiction to enable them to meet at least the cost of recurrentmaintenance.

8. Lessons Learned from Previous Bank/IDA Involvement. The World Bank Groupinvolved in Nigeria's transport sector has consisted of one railway project, two port projects

-3 -

and seven highway projects. The Transport Parastatals Project (June 1986) has supported thegovernment's efforts to improve the performance of parastatals, especially in railways andports. Two types of problems predominated in past lending operations in the transport sector,and measures have been taken in the design of the proposed MSRP to avoid their recurrence.The first problem was the lack of success of institutional development components comparedto the relative success of physical investment. The MSRP would build up the SMOWTs byfirst of all relieving them from the management of force account operations and strengtheningtheir capacity to plan, design and supervise the works to be carried out by contract. Byfocussing on priority areas, this approach would maximize the use of the limited manpoweravailable in the SMOWTs at the technical and managerial levels. Most road maintenanceworks would be transferred to private contractors which could operate more efficiently withless bureaucratic constraints. Second, past road projects suffered substantial delays inreaching agreement on bidding documents and other procurement related matters due partly toa lack of familiarity with Bank requirements stemming from the lack of staff continuity, andpoor training and communication. During the preparation of the proposed project, specialefforts have been taken to familiarize staff at the FMWH and the SMOWTs with Bankrcquirements for standard bidding documents, which the FMWH has now adapted fcr its ownuse.

9. Rationale for Bank Involvement. The project would be part of an ongoing effort toupgrade Nigeria's road system, to make more effective use of existing infrastructure, and toidentify cost recovery mechanisms for roads. As works and transportation normally accountfor a significant percentage of public expenditure at the state and local levels, an IDAfinanced state roads project could be an effective vehicle for institutional and fiscal reform.The Bank has been a catalyst in Nigeria at the federal level in achieving more economic roadinvestment programs, stressing rehabilitation and maintenance over new investment, andemphasizing institutional development and cost recovery. The Bank is now in a strongposition to extend these benefits to the state level. The Bank has also intensified its dialoguewith Government on the need to shift road maintenance activities from force accountoperations to greater use of contractors. The project provides a good vehicle to strengthen theSMOWTs in contract supervision, while encouraging greater involvement of the private roadcontracting industry.

10. Ageed Actins. Each participating state has confirmed that steps have been taken tohave their local counterpart funds deducted from the Federation Acc'runt and deposited into aProject Account. These amounts are expected to be less than 4% of each state's monthlyallocation from the Federation Account. During negations, agreement was reached with theGovernment of the Federal Republic of Nigeria and the States of Jigawa and Kano on thefollowing matters: (i) all civil works will be executed by contract; (ii) the list of priority roadsto be included in the Project; (iii) the details for carrying out a manpower developmentprogram; (iv) confirmation of the project cost estimates; (v) no expenditures on roads outsidethe project will be undertaken by the states in excess of US$5 million in either state withoutconsultation with the Bank; (vi) consultants acceptable to the Bank will be appointed by theFMWH and the individual states; (vii) a mid-term project review will be carried out not laterthan December 1995 to evaluate and assess overall progress made in project implementation;(viii) annual reviews will be held in the last quarter of each implementation year to review thework program and budgetary allocations for the following year; (ox) steps to be taken tomitigate may adverse environmental impacts of the proposed project; (x) proposals forconducting and implementing roads specific ElAs; (xi) adequate annual budgetary allocation

-4 -

for recurrent maintenance of state roads; (xii) reporting requirements and key indicators formonitoring progress; (xiii) timely submission of audited financial reports; and (xiv) contitdedrecovery from road users of the costs of state road recurrent maintenance. Confirmation hasbeen obtained that: (a) the mechanism for transfer of local counterpart funds from theFederation Account to the project account of each state is in place; and (b) the participatingstates have prepared a plan of action to implement a system to recover from road users atleast recurrent maintenance costs. The following actions would be taken prior to crediteffectiveness: (1) forwarding training plans to the Bank for its review and agreement; (2)signing of a subsidiary loan agreement between the FGN and at least one of the participatingstates; (3) the commitment by at least one state to incorporate in its 1993 budget proposals anincrease in road user charges required to recover the costs of recurrent maintenance; (4)appointment of consultants by the participating states, on terms and conditions agreeable tothe Bank; (5) opening by each participating state of a Project Account with an initial depositof at least N2 million in a commercial bank; and (6) the employment of an environmentalspecialist to assist FMWH in the establishment of an Environmental Assessment andMonitoring Unit. Conditions of disbursement in any one of the project states would be: (a)signing of a subsidiary loan agreement between the state and FGN, for the state which had notsigned such an agreement by the time of credit effectiveness; (b) commitment to incorporatein its 1993 budget proposals an increase in road user charges required to recover the costs ofrecurrent maintenance for the state which had not implemented such a plan by the time ofcredit effectiveness; and (c) evidence of allocation of the agreed level of financing ofmaintenance operations in the 1993 state budget, i.e. at least N8.0 million for Jigawa andW9.5 million for Kano state.

11. Environmental Aspects. An environmental assessment has been completed for theproposed MSRP. It found that road construction projects often have adverse impacts on localenvironments. These impacts may include erosion due to improper design of embanknments orside drains; scouring of the landscape due to the opening of borrow pits; and destruction ofvegetation due to the clearing of right of ways. In the case of road rehabilitation andreconstruction works, the environmental impact tends to be more local and limited, and resultmore from reconstruction activities or improper design.

12. The final responsibility tor the implementation of road specific Environmental ImpactAssessments (ElAs) lies with each participating state. As neither the Federal EnvironmentalProtection Agency (FEPA) nor the SMOWTs have sufficient in-house capabilities at present toconduct ElAs, the assessments will be done by consultants working under terms of referenceprovided by FMWH and agreed with FEPA and the Bank. The mitigation plans are to beagreed with the Bank. The consultants would be hired by each participating state under theframework of the project.

13. Program Objective Categories. The main thrust of the project is in removing criticalbottlenecks in the basic state roads infrastructure thereby reducing transport costs andimproving the links between federal and rural roads networks. The relationship with thecountry's anti-poverty strategy is indirect, in that savings in costs will eventually be passed onto the rural farmers in the form of higher prices for agricultural produce. The project willalso directly contribute to private sector development through use of domestic contractors formaintenance and rehabilitation works.

14. Project Benefits. The main benefit from the project would be a more efficient andcost effective state roads network that would permit a higher level of economic activity.Quantifiable benefits consist of savings in vehicle operating costs for normal traffic, plusdiverted or generated traffic where applicable, which will result from improved conditions ofthe state road network. On this basis. the overall ERR of the project is estimated as 37%.Improvement and construction works will be subjected to detailed design and furthereconomic analysis before implemertation. No road project will be financed unless the ERRis 12% or higher. The benefits of the institutional development components, includingestablishment of road maintenance extension services, are potentially high thoughunquantifiable.

iS. Ri;ks There are three major risks associated with the project. The first concerns theability of new and untried state executing agencies to effectively manage both a large increasein maintenance operations and the switch to contract works. The second risk concerns statelevel capacity to maintain an acceptable contracting process. The third risk involves theprovision of counterpart funds which have historically been a major problem in projectimplementation in all sectors. The first two risks will be addressed through the consultantsand Bank supervision. The third risk will be addressed by having counterpart funds deductedat the source, and the commitment of the participating states to do so will be a condition ofnegotiations. A condition of disbursement is that each of the participating states will haveopened a Project Account with an initial deposit of at least 2 million naira.

16. Recommendation. I am satisfied that the proposed credit would comply with theArticles of Agreement of the Association and recommend that the Executive Directorsapprove it.

Lewis T. PrestonPresident

AttachmentsWashington D.C.May 20, 1992

.6-

Scheule A

FEDERAL REPUBLIC OF NIGERIAFIRST MULTISTATE ROADS PROJECT'

ESTIMATED COSTS AND FINANCING PLAN

Estimated Project Cost

Local / Foreign ] Tota- -US$Millions--

Civil Works 16.4 49.1 65.5Technical Assistance & Training 2.1 6.4 8.5Equipment and Vehicles 02 0 6

Base Cost (April 1992) 18.7 56.1 74.8Physical Contingencies 1.9 5.6 7.5Price Contingencies S2 6 9

Total 68 .

g/ Includes US$,.6 million in taxes and duties.

Financing Plan

Foreign Total------- US$Millions s-

IDA 3.0 65.0 68.0State Governments

ligawa 9.0 1.5 10.5Kano 11.1 1.5 12.6FMWH 0.7 0. 0.7

Total 2 3M8

Note: Amounts rounded.

-7-

Schedule BPage 1 of 2

FEDERAL REPUBLIC OF NIGERIAFIRST M'JLTISTATE ROADS PRJE(gT

PRQCUREMEN¶ ARRANGEMENTS AND DISBURSEMENTS

Summarg of Proposed Procurement ArrangementsA. Procumment

(US$Million)

Procurement Method

Project Element ICB LCB Tthr Total Cosl

1. Civil Works 68.0 11.6 1.0 80.6(53.0) (4.0) (0.0) (57.0)

2. GoodsEquipment A/ & Vehicles 0.9 0.9

(0.7) (0.7)3. Consultancies

Technical Assistanceand Training hl 10.3 10.3

(10.3) (10.3)

Total , 68. 11.6 122 9.82(53.0) (4.0) (I 1.0) (68.0)

IDA share in parenthesis

AI Proprietary items, consumables and office equipment.

h/ Services would be procured in accordance with World Bank Guidelines: Use ofConsultants by World Bank Borrowers and by the World Bank as Executive Agency(Washington, D.C. 1981).

8-

Page 2 of 2

B. Disbursement by Category

IDA PercentageAMOUNT of Expenditures

Category (USSmillion) to be financed

(a) Civil Works 49.10 75%

(b) Equipment & Vehicles 0.60 100% of foreignexpenditures and75% of localexpenditures

(c) Technical AssistanceStates 4.15 100%FMWH 1.70 100%

(d) Training 0.50 100%

(e) Unallocated 11 95

Total

C. Estimated IDA Disbursement Schedule(US$Million)

Fiscal Year 1994 1995 122 1997 1998

Annual 6.5 14.3 15.3 16.4 12.6 2.9Cumulative 6.5 20.8 36.1 52.5 65.1 68.0

-9-

Schedule C

FEDERAL REPUBL!C-QF EIGEAFIRST MULTISTATE ROADS PROJECT

Timetable of Key Pro3ect Processing Events

(a) Time taken to prepare: Nine months

(b) Prepared by: FMWH and AF41N \j

(c) Preappraisal: July 1991

(d) Appraisal mission departure: November 1991

(e) Negotiations: April 1992

(f) Planned date of effectiveness: October 1992

(g) List of Relevant PCRs andPPARs: Northern Road (Cr. 73-UNI)

Apapa Road (Ln. 426-UNI)Western Road (Ln. 427-UNI)Road Rehabilitation (Ln. 640-UNI)Transport Rehabilitation (Ln. 694-UNI)Fifth Highway (Ln. 883-UNI)Sixth Highway (Ln. 1883-UNI)

\_4 Cesar Queiroz (Sr. Highway Engineer) Task Manager, Anil Bhandari (Economist),Eleanor Warner (Financial Analyst), Infrastructure Division, West Africa Department.

-10- Qchedule D

Page I of 2

THE STATUS OF BANK G-ROUP OPERATIONS IN NIGERIA

A. STATEMENT OP BANK LOANS AND M}A CREDITS(As of March 31, 1992)

; *ount in us$ million

Numbe. Year Borrtower Purpose l-ank .A' Undjsbursed

Forty-nin loams and two credits fully disbursed 2627.9 39.9Of which. SALs and Program Loans a>

301 1-UNI 89 Nigeria Trade & Invaetment Poicy (500.0)

2299-UN1 83 NIDB Industrial Devt (NIDB IV) 120.0 1.42376-UNI 84 NBCI SmaI/Medium ScaleIudustry 1 41.0 17.52390-UNt 84 NNPC Gas Technical Assistance 13.1 9.62436-UNI 84 Nigeria Intgrated Agri Devt (Kaduna) 122.0 48.32480-UN 85 Nigeria Technicd AssItnc 13.0 8.42503-UNI 85 Nigeria Sokoto Health 34.0 20.52528-UNI 85 Nigcria Borno State Water Supply 72.0 32.02607-UNI 86 Nigeria Urban Development I (Imo) 53.0 25.32618-UN1 86 Nigeria industry Tech Asistc 5.0 2.62620-UNI 86 Nigeria Lagos Solid Waste & Storm. 72.0 12.02733-UNI 86 Nigeria Multi-Stat Agric Devt 1 162.0 62.22734-UNI 86 Nigeria Transport Parastatals 20.9 12.72737-UNI 87 Nigeria Livestock Development 11 81.0 44.52741-UNI 87 Nigeria South Domo Agric Devt 25.0 13.3

* 2758-UNI 87 Nigeria Trade Policy & Export Dcvt 452.0 0.52760-UNI 87 Nigeria Forestry 11 71.0 37.12925-UNI 88 Nigeria Infrastructure Devt Fund 69.5 59.92926-UNI 88 Nigeaia Technical Education 23.3 2.92963-UNI 88 Nigeria Highway Sctor 250.0 208.32985-UNI 89 Nigera Lagos State Water Supply 173.2 167.22988-UNI 89 Nigeria Muli-State Agric Devt II 85.2 61.92995-UNM 89 Nigeria Privat Stall & Med Enter. Dev 270.0 243.63034-UNM 89 Nigeria Imo Health & Population 27.6 26.12035-UNI (CR) 89 Nigeda Third Multt-State Agric Devt 0.0 100.9 72.63104-UNI 89 Nigeria Rfined s Rebilaton 27.7 24.73116-UNI 89 NEPA Power System Maintenance 70.0 58.53125-UNI 90 Nigeria Essenta Drugs 68.1 62.03126-UN 90 Nigeia Tree Crops 106.0 104.53183-UN! 90 Nigeria National Seed and Quarantine 14.0 13.62139-UNI (CR) 90 Nigeria Federal Universities Devt 0.0 120.0 120.93236-UNM 90 NITEL Telecommunicaions 225.0 214.13238-UN! 90 Nigeria Oyo State Urban 50.0 50.02191-UN! (CR) 91 Nigera Primary Education 0.0 120.0 123.72238-UNI (CR) 91 Nigeia Natonal Population 0.0 78.5 74.02261-UNI (CR) 91 Nigeria National Agricultural Research b> 0.0 78.0 79.93317-UN! 91 NNPC Oso Condensate 218.0 66.43322-UNI 91 Nigeria Water Rehab b> 256.0 256.03326-UNI 91 Nigeria Health System Fund 70.0 70.03451-UN! 92 Nigeia National Fadam Dev b> 67.5 67.5

TOTAL 6056.0 537.3 2576.5of which ha ben repaid 1251.1 13.0

Total now held by Bank & IDA 4804.9 524.3Amount sdd 16.8of which has been repaid 16.8

Totl undisbursed 2105.4 471.1 2576.5

a> Approved during or aftr FY80b> Not yet efctive.* SAL, SECAL or Program Loan.

-11- Schedule DPgo 2 of 2

I. STTE-RENT OF IFC INVESTMENTS(As of March 31, 1992)

(Amount In US$ ilin

70 UNI 1964 Areta Textiles Ltd. Textle Mfg. 6.9 0.7 7.6121 UNI 1967

19702140 UNI 1992

482 UNI 1980 Nigeria Textlo Mils Textiles 22.8 0.7 23.5962 UNI 1987 Ltd.

540 UN! 1981 Ikeja Hotel Tourlsm 12.0 1.5 13.S720 UN 1985990 UNI 1988

724 UNI 1985 TIgr Batxty Dry-ceall Battes 7.3 7.31222 UN! 1990

1000 Um 1988 Dunlop Nigia Motor Vehiclw and 12.5 12.5Accesories

122S UN! 1990 Afcott Nigeria Vegetable Oil 4.5 4.52137 UN! 1991 NAMBL Money/Capital Markets 10.0 10.02109 UNI 1991 Mobil Nigeria Petroleum 170.0 170.02430 UNI 1991 VICODA Manufacturing 0.1 0.12582 UN! 1991 Stark ndusties Manufaturing 0.3 0.32136 UNI 1991 Agro-Tech Svcs Food Procesg 1.0 1.02583 UNI 1992 Vinet Sted Manufcturig 0.8 0.8

Total gross conmitments 2 2.9 2L1

Lees canceons, termnatios, exchangeadjustments, repayment and saeds 13S.6 0.9 136.5

Total commitmet now held by IFC 112.6 2.0 114.6

Tota undisbursed 53.8 0.1 53.9

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