Transcript Transport Forum - (ESD)

Transport Forum 2005
Performance-based Management and
Maintenance of Roads (PMMR)
PMMR Implementation potential in
Africa
Washington D.C., March 8, 2005
Presentation by: Graham Williams
BCEOM – French Engineering Consultants
The Project
• Financed through GPOBA Trust Fund;
• BCEOM appointed in June 2004;
Over-arching objective:
– Extend PMMR experience in Sub-Saharan
Africa to demonstrate potential efficiency
gains for road network conservation.
The Assignment
• Prepare pilot contracts in 4 countries
Cape Verde,
•
•
•
•
•
•
•
Chad,
Madagascar,
Tanzania
About 12 packages covering approx. 2,800km of roads;
Carry out technical surveys;
Brief stakeholders;
Review capacity and funding constraints;
Define appropriate service levels;
Estimate costs;
Prepare prequalification and bidding documents
(based on Bank sample PMMR document);
• Assist agencies during procurement process.
‘Ideal’ ingredients for PMMR
• Lessons so far………
– Relatively ‘mature’ contracting environment with local
contractors experienced in road maintenance;
– Agencies with good contract management experience,
committed to the PMMR concept;
– Good knowledge of the network, maintenance needs
and costs;
– Well trafficked, economically important roads;
– Predictable maintenance needs and limited emergency
works;
‘Ideal’ ingredients for PMMR……
– Roads close to maintainable condition, not too much
rehabilitation;
– Assured funding to achieve at least ‘fair’ service
levels;
– Contract duration long enough to span maintenance
cycles and justify use of dedicated resources;
– Assistance to Govt. during procurement and start-up;
– Frequent monitoring and evaluation during contract.
Typical Situation
•
•
•
•
•
Inadequate funding for maintenance;
Long procurement cycles;
Quality of work often disappointing;
Maintenance rarely carried out at the right time, so….
Investment lost as deterioration accelerates, leading
to….
• Higher maintenance and rehabilitation needs, so….
• True cost of ‘steady-state’ maintenance not really known.
The Question…
• Can we afford to go
from this:
The Question….
• To this:
Is there a place for PMMR?
• Should be an economic choice, but
• Not enough evidence in SSA yet,
• Need to lever limited local resources to maximise
benefits - that means,
• Selecting roads with most traffic where maintenance
demand is highest – fair or better service level;
• Efficiencies need to be proven before PMMR can be
mainstreamed into national road maintenance policies.
Service Levels
• Set simply in terms of:
Accessibility
Travel speed
Ride Quality
Durability
Set using criteria that can be measured fairly easily;
Ride quality and durability criteria varied to suit volume and type of
traffic.
The countries
Expectations
• Agency
–
–
–
–
Better road conditions;
Reduced procurement workload for road management staff;
Assured maintenance funding for selected roads;
Lower maintenance costs - eventually;
• Road Users
– Better, safer roads with more consistent conditions;
– Assured access;
– Quick clear up after emergencies.
• Private Sector
– Guaranteed workload over long period;
– Potential for increased margins;
– Opportunities for business growth.
Maintenance funding
Resources for maintenance
0.22%
GDP
50
45
40
UK spends about 0.2% of GDP on
maintenance of core roads
US$ millions
35
30
0.15%
GDP
25
20
15
10
5
0.67%
GDP*
0.10%
GDP
0
Cape Verde
Chad
Madagascar
Tanzania
* Expected revenue – Road Fund not yet active
* Expected revenue – Road Fund not yet active
Extended networks, low traffic.
Generally, resources generally only sufficient for routine
maintenance but not enough for periodic maintenance and
renewal.
Maintenance funding
3 500
3 000
69%
paved
US$/km
2 500
2 000
15%
paved
15%
paved
1 500
13%
paved
1 000
500
Cape Verde
Chad
Madagascar
Tanzania
In Tanzania: Average annualised maintenance cost for
PMMR gravel roads estimated at US$2,900 per km Road Fund allocation in 2004, US$800 per km.
Unpaved Trunk and Regional roads
1,100 km in 3 regions.
Tanzania
Private Sector Capacity:
• Good contracting base for unpaved road maintenance;
• Growing consulting capacity.
Agency Capacity:
•
•
•
•
Well equipped with qualified personnel in the regions;
Several years maintenance contracting experience;
Committed to the PMMR concept;
Road Fund in place since 1999.
PMMR Road conditions:
Private sector
capacity
• Light motorised traffic but lots of NMT;
• Backlog of periodic maintenance and spot rehabilitation.
Tanzania
Agency capacity
PMMR road
conditions
Unpaved National, Provincial/Communal roads
930km in 2 zones.
Madagascar
Private Sector Capacity
– Local capacity for rehab and maintenance improving;
– Larger contractors busy with current rehabilitation programme;
– Many small labour-based contractors.
Madagascar
Agency capacity
– Road sector re-organisation underway;
– Road Fund re-launched in 2003;
– Management stretched with rehabilitation and upgrading
programmes;
– Community based maintenance being promoted on low-volume
roads.
Private sector
capacity
Agency capacity
PMMR road conditions
– Difficult soil and climatic conditions – high maintenance demand;
– Large amount of reconstruction needed in the south.
– High proportion of NMT.
PMMR road
conditions
Cobblestone roads, National and Municipal
330km on 3 islands
Cape Verde
Private Sector Capacity
– Limited maintenance contracting experience - historically, artisans
employed directly for doing road repairs and improvements;
– Small contracting market - very few local firms equipped for
roadworks.
Agency Capacity
–
–
–
–
Cape Verde
New road agency in place since 2004;
Road fund to be re-launched in 2005;
Limited contract management experience;
Limited knowledge of network and maintenance needs.
Private sector
capacity
Agency capacity
PMMR Road Conditions
– Mountainous terrain and flash floods – many slips/emergency
works;
– Busy roads being upgraded to asphalt concrete;
– Maintenance needs of cobblestone pavement difficult to predict.
PMMR road
conditions
Paved International Corridor
450km (not yet surveyed)
Chad
Private Sector Capacity
– Limited local road contracting capacity – international firms
dominate;
– Very limited consulting capability;
Chad
Agency Capacity
– Very limited management resources;
– Road Fund in place since 2001;
– Several years contracting experience including PMMR pilot
project (440 km).
Private sector
capacity
PMMR Road Conditions
– Proposed road currently under rehabilitation/construction;
– Maintenance requirements should be modest.
Agency capacity
PMMR road
conditions
Adapting PMMR
• Contracting
– Vary packages to suit available capacity (e.g in Tanzania 5
packages 120 to 360km);
– Encourage the local industry and joint ventures (contractors and
consultants);
– For prequalification, place emphasis on previous track record;
• Service Levels
– Keep definition simple – not too many criteria;
– Take local technical constraints into account;
– Be careful about risk sharing for ride quality maintenance.
• Support mechanisms
– Dedicated supervision;
– Technical support during start-up.
Adapting PMMR…
100
Quantity- based
payments for
rehabilitation and
emergency works
90
% contract price
80
70
60
50
Limited to a
ceiling value
40
30
20
10
0
Rehabilitation
Maintenance
Emergencies
Rehabilitation also includes backlog periodic
maintenance
Performance related
payment for
maintenance through
lump-sum fee per km.
Documentation to assist bidders
Region:
Mwanza
Package:
Road Name:
R146-Geita-Nkome
Vertical Profile:
elevation (m)
Location Plan:
• Data sheets for each road in
the contract network;
• Estimates for scope of initial
rehabilitation works;
• Line diagrams;
• Road drive-through on DVD.
58.35 km
PMMR/TZ/1
1500
1450
1400
1350
1300
1250
1200
1150
1100
1050
1000
0
5
10
15
20
25
30
35
40
45
50
55
60
km
Gradient:
> 10%
Annual rainfall:
Principal rain seasons:
< 10%
900 mm
1 Oct to Dec
2 Mar to May
Inventory Data
No of gravel pits:
7
Traffic levels:
Est veh. per day
< 50
Cross-section:
% Heavy vehicles
Medium
NMT level
Heavy
Settlements:
No of villages
km
At G.L
Crossfall
Cut
Embkt
31.3
26.4
0.1
0.6
<5%
51.9
5 to 10%
6.0
10 to 20%
0.5
>20%
0.0
3m
20.8
4m
18.8
5m
5.3
6m
0.0
Gradient:
12
km
Structures (No):
Culverts
Bridges
Drifts
39
1
3
km
Travel w idth:
2m
13.5
Subgrade:
Black cotton
km
1.8
Light grey sandy
Light red sandy
21.5
Plastic soil
15.1
17.4
Rock
2.5
Road condition (August 2004)
Surface type:
Gravel
km
36.4
Earth
22.0
km
%
Condition:
V. Good
12.2
20.9%
Good
23.1
39.6%
Fair
17.2
29.5%
Poor
5.9
10.0%
Required Service Level
Min. travel w idth (m):
Min. w idth in village centres (m):
3.5
Ride quality standard:
6
Comments
Start : Junction w ith T4 in Geita tow n
End : Fish market in Nkome village on Lakeshore
- Mining activities in the Geita area, 3 junctions w ith haul roads at ch 6.2 - 10.5 - 13.4
- Lightly populated
- In Nkome, ferry going to Mw anza
Fair
Line diagrams
Bidders to define location and extent
of initial rehabilitation works
‘Road runner’ road simulation
Programme
• Tanzania
– Procurement process underway. Project launch expected mid-2005;
– W Bank and Road Fund financing.
• Madagascar
– Agency reforms a priority at the moment;
– Funds committed on rehabilitation programme;
– Launch of pilot projects unlikely in 2005.
• Cape Verde
– To be launched under local funding mid-2005;
• Chad
– Current pilot project being extended under W Bank and local financing
(but with new contractor);
– New project to be launched in 2006 under credit for Regional Transport
Facilitation.
Observations so far
•
•
•
•
•
Agency commitment essential;
Design (where possible) for the local construction market;
Only transfer risks that are understood;
Keep service levels realistic in view of funding constraints;
Management support and ‘mentoring’ essential during
implementation;
• Most countries need external funding support to get
started.
I wish our road
could always be
like this….
Thank you.