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PP 16576/08/2012(030621)

REAAA Technical Report

Incorporating Japanese Pavement Design Practice for a Community Road in Mongolia

Author(s): Yoshiaki Yano and Rentsendorj Onon

REAAA Technical Sub-committee TC-2: Pavements

REAAA Technical Report TC-7 – June 2015 Although the report is believed to be correct at the time of publication, REAAA, to the extent lawful, excludes all liability for loss (whether arising under contract, tort, statute or otherwise) arising from the contents of the Compendium or from its use. Where such liability cannot be excluded, it is reduced to the full extent lawful. Without limiting the foregoing, people should apply their own skill and judgement when using the information contained in the Compendium.


First Published 2015

This work is copyright. Apart from any use as permitted under the Copyright Act 2007, no part may be reproduced by any process without the prior written permission of REAAA.

All rights reserved

© REAAA 2015


ISBN (Not require for website)

REAAA Technical Sub-committee TC-2: Pavements

REAAA Technical Report TC-7

Prepared by

Yoshiaki Yano Head of Committee for Low-Cost Pavements in Mongolia, Infrastructure Development Institute,

Japan

Rentsendorj Onon Ministry of Roads and Transportation, Road Policy Implementation and Cooperation Department,

Director-General, Mongolia

Reviewed and Edited by

Yasumasa Torii, Owner, REAAA Technical Sub-Committee TC-2: Pavements Kieran Sharp, Chairman REAAA Technical Committee

Published by REAAA 46B Jalan Bola Tampar 13/14

Section 13 40100 Shah Alam Selangor, Malaysia

Phone: +603 553 6380 Fax: +603 553 9390

E-mail: [email protected] www.reaaa.net

REAAA believes this publication to be correct at the time of printing and does not accept responsibility for any consequences arising from the use of information herein. Readers should

rely on their own skill and judgement to apply information to particular issues.

http://www.reaaa.net/

INCORPORATING JAPANESE PAVEMENT DESIGN PRACTICE FOR A

COMMUNITY ROAD IN MONGOLIA

REAAA

Kuala Lumpur, Malaysia

REAAA Profile

REAAA is the Road Engineering Association of Asia and Australasia. The association promotes the science and practice of road engineering and related professions in the Asia Pacific region through the development of professional and commercial links within and between countries in the region.REAAA Chapters have been set up in Australia, Brunei, Korea, Malaysia, New Zealand and the Philippines. REAAA is also active in Indonesia, Japan, Singapore, Taiwan, Thailand and Vietnam.

REAAA was set up in June 1973 with a permanent secretariat in Malaysia. It has more than 1,500 members in 37 countries. It holds regular events including an annual heads of road authorities (HORA) meeting, a triennial international conference, technical visits and study tours, trade exhibitions, seminars, forums and workshops. It also publishes a Journal and a Newsletter. The most recent initiative is a series of Compendia addressing issues of concern in the region.

REAAA Technical Reports

This is the seventh in the series of Technical Reports since the Guide to Privatisation of Expressways and Highways was published in 2008. The following Technical Reports have been prepared to date:

TC-1 Guide to Privatisation of Expressways and Highways

TC-2 Compendium on Disaster Risk Management

TC-3 Compendium on the Efficient Operation of the Road Network

TC-4 Compendium on Road Safety – Make it Happen

TC-5 Compendium on Pavement Durability

TC-6 Guide to the Public-Private Partnership of Road and Highway Projects

TC-7 Incorporating Japanese Pavement Design Practice for a Community Road in Mongolia

Sub-Committee TC-2 (Pavements)

REAAA Technical Sub-Committee TC-2(Pavements) was established at the 90th meeting of the REAAA Governing Council in April 2010 when it authorised the Strategy Map & Initiatives (2010-2012).The current membership of Sub-Committee TC-2is as follows.

Country Members of Sub-Committee Organisation E-mail Address

Australia Mr Paul Robinson REAAA Australian Chapter [email protected]

Mr Michael Moffatt ARRB Group Ltd [email protected]

Brunei Mr Yong Teck Chin Brunei Chapter [email protected]

Mr Rafitra Razak Public Works Department [email protected]

Indonesia Mr Soehartono IRDA [email protected]

Japan

Mr Yasumasa Torii (owner) Seikitokyu Kogyo [email protected]

Mr Toshiyuki Nakamura Taisei Rotec Corporation [email protected]

Mr Kazuyuki Kubo Public Works Research

Institute [email protected]

Mr Keizo Kamiya Nippon Expressway

Research Institute Co. Ltd [email protected]

Mr Shigeki Takahashi East Nippon Expressway

Co. Ltd [email protected]

Korea

Dr Young-GukSeo Turner Fairbank Highway

Research Center [email protected]

Mr Hee-Chan Roh Dohwa Engineering [email protected]

Mr Kyu-Young Hwang Kunwha Consulting & Engineering Co. Ltd

[email protected]

Dr Hyung-Bae Kim Korea Expressway

Corporation [email protected]

Dr Youn-Su Jung Hyundai Engineering &

Construction Co. Ltd [email protected]

Malaysia Ir Abdul Mutalif Abdul Hameed Public Works Department [email protected]

New Zealand

Mr David Alabaster NZ Transport Agency [email protected]

Mr Bruce Chappell Beca Ltd and Auckland

Motorway Alliance [email protected]

Philippines Mr Isaac David Philippines Chapter (REAP) [email protected]

Singapore Mr Chuai Chip Land Transport Authority [email protected]

Taiwan Dr Yu-Min Su National Central University [email protected]

Thailand Dr Punya Chupanit Department of Highways [email protected]

Acknowledgements

The authors thank the Government of Mongolia, JICA, the Mongolian office of JICA, the Japan Road Association and all those who provided direct technical guidance in the successful implementation of this project.

mailto:[email protected]
















http://gov.sg/




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SUMMARY

Between 2004 and 2012 the Infrastructure Development Institute of Japan and the Ministry of Road and Transportation, Mongolia, implemented a project incorporating Japanese pavement design practice for a community road in Mongolia. This report describes how Japanese pavement technology was transferred to Mongolia, how local residents were employed as part of a of work relief program, and how national standards were developed. Achievements include technology transfer addressing the construction of community roads, the standardisation of practice and the preparation of national standards, the creation of special state subsidies to local authorities for road construction and the allocation of funds for projects involving the employment of the local community.


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CONTENTS

1 INTRODUCTION ................................................................................................................... 4

2 MONGOLIA: ANOVERVIEW ................................................................................................. 5

2.1 Climate ......................................................................................................................... 5

2.2 Roads in Mongolia ........................................................................................................ 5

3 TECHNICAL COOPERATION ACTIVITIES .......................................................................... 7

3.1 JICA grassroots projects and Mongolian-Japanese technical cooperation .................... 7

3.2 Grassroots activities ..................................................................................................... 7

4 SUMMARY OF WORK ........................................................................................................ 10

4.1 Construction works ..................................................................................................... 10

4.1.1 Machinery and materials ........................................................................................ 10

4.1.2 Cement stabilisation and surface ........................................................................... 11

5 CREATING A MECHANISM FOR COMMUNITY PARTICIPATION AND NATIONWIDE DEPLOYMENT ............................................................................................ 12

6 CONCLUSIONS .................................................................................................................. 14


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TABLES

Table 2.1: Percentage of road length by a type of road (2010) .................................................. 5 Table 3.1: Details of projects ..................................................................................................... 8 Table 3.2: Content of the pavement design manual .................................................................. 9 Table 3.3: Outline of paving works ............................................................................................ 9

FIGURES

Figure 2.1: Annual temperature changes in Ulaanbaatar (PCI, JOC 2002) ................................ 5 Figure 2.2: Mongolian road network (2010) ................................................................................ 6 Figure 3.1: Implementation of project ......................................................................................... 7 Figure 4.1: Pavement structure ................................................................................................ 10 Figure 4.2: Photos of construction ............................................................................................ 11


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1 INTRODUCTION

In 2002, the then Mongolia Ministry of Roads, Transportation and Tourism requested assistance from Japan to develop a pavement design manual. In response to this request, since 2004, the Infrastructure Development Institute, Japan (IDI) has been providing assistance under the Technical Cooperation for Grassroots Projects (TCGP) through the Japan International Cooperation Agency (JICA). A Project Technical Committee composed of members from the both countries was established to determine the general policy for the delivery of the project.

Based on the results of testing of local roads, the IDI developed the Pavement Manual for Community Roads with Bituminous Surfacing Treatments (Ministry of Road and Transportation, Mongolia 2006; Yano 2007) (hereinafter referred to as the Pavements Manual). In order for the manual to be adopted nationwide, it was necessary to train local Mongolian field technicians. The IDI dispatched a team of specialists and has since developed a mechanism for hiring local unemployed workers to carry out the construction works based on unemployment relief projects supported by the Japanese government (Yano 2013).

In order for this pavement technology to be used nationwide, the methods presented in the Pavements Manual needed to be certified as a national standard in Mongolia and the IDI has been supporting these activities. In November 2012, the document Road construction: Guideline for the construction of rural roads with low intensity was adopted as a national standard (Ministry of Road and Transportation, Mongolia 2012).

This report describes how Japanese pavement technology was transferred to Mongolia, how local residents were employed as a part a of work relief program, and how national standards were developed.


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2 MONGOLIA: AN OVERVIEW

2.1 Climate

Mongolia is a vast inland country located in the northern part of East Asia. It is bounded by the People's Republic of China on the east, south and west, and by the Russian Federation on the north. It has an area of 1.564 million square km and a population of about 2.8 million. More than 45% of the population (about 1.3million) live in the capital, Ulaanbaatar.

The average height above sea level is over 1,500meters.The northern and central parts of the country are composed of mountain ranges and grassland, whilst the southern part is dominated by the Gobi Desert. It is extremely cold in winter, with the lowest temperaturedroppingtonear-40°C, whilst in summer the temperature may exceed 30°C, so the temperature difference during a year is very large (see Figure 2.1). The average annual rainfall is relatively small, about 200-300 mm.

Figure 2.1: Annual temperature changes in Ulaanbaatar (Pacific Consultants International & Japan Overseas Consultants 2002)

2.2 Roads in Mongolia

The total length of roads in Mongolia in 2010 was 49,250 km. About 26% are national roads, whilst the rest are district roads. About 21% of the national roads are paved but only 1.5% of the local roads are paved, which is very low (see Table 2.1 and Figure 2.2). In an attempt to improve the quality of the road infrastructure, the Mongolian Parliament adopted a mid-term plan for road building in June 2010. By 2016 it is expected that about 5,500 km of new national roads and 990 km of expressway will have been constructed.

Table 2.1: Percentage of road length by a type of road (2010)

Type of road National District Total

Length

(km)

Ratio

(%)

Length

(km)

Ratio

(%)

Length

(km)

Ratio

(%)

Paved road 2,630 20.9 545 1.5 3,175.0 6.5

Stone road 1,483.5 11.7 595.8 1.6 2,079.3 4.2

Soil road 8,499.5 67.4 35,496.2 96.9 43,995.7 89.3

Total 12,613 36,637 49,250

Te

mp

era

ture

(°C

)

Month


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Figure 2.2: Mongolian road network (2010)

Bulgan


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3 TECHNICAL COOPERATION ACTIVITIES

3.1 JICA grassroots projects and Mongolian-Japanese technical cooperation

The Japan International Cooperation Agency Grassroots Technical Cooperation Projects– a part of Official Development Assistance (ODA)– are technical cooperation activities conducted in developing countries using the experience and technology of Japanese non-government organisations (NGOs), universities, local government, public benefit corporations etc. They are conducted jointly with JICA. These projects involve ‘grassroots level’ activities in the field that directly help to improve the livelihood of people in developing countries. Examples include the development of communities in agricultural and fishing villages; the support of socially vulnerable people such as the elderly, children, refugees etc.; the prevention of violence against women and support of the victims; improvement in nutrition and public hygiene; support for income raising; forest and marine resources management, etc.

The project discussed in this report was conducted according to the scheme shown in Figure 3.1by the Japanese-Mongolian Project Technical Committee. Japan also established the Committee for Low-Cost Pavements in Mongolia (within IDI). It is receiving technical support from the Pavement Committee of the Japan Road Association (the agency which manages the technical standards for roads pavement in Japan).

Figure 3.1: Implementation of project

On the other side, Mongolia has established the Road Construction Committee of the Ger area. It is made up of representatives of the Ministry of Roads and Transportation and other relevant administrative agencies, the Mongolian University of Science and Technology etc. With the participation of the Ministry of Labor from the second phase of the project, the Project Technical Committee has conducted discussions on the development of an administrative system for the project deployment, the certification of national standards, the use of employment funding, etc.

3.2 Grassroots activities

Grassroots activities were carried out in three phases over a period of about eight years from December 2004 to March 2013. Details are shown in Table 3.1.

Mongolia Japan

Road Construction Committee of Ger Area

Infrastructure Development Institute-Japan

Ministry of Roads and Transportation

Ministry of Labor

Ministry of Economic Development

Mongolia Federation of Road Engineers

Japan Road Association

City of Ulaanbaatar

Mongolian University of Science and Technology

Project Technical Committee

JICA

Pavement Committee

Committee for Low-Cost Pavements in Mongolia


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Table 3.1: Details of projects

Project Title Goal Implementation Content

Pha

se 1

December 2004-December 2006 Maintenance of living environments in Baganuur district (paving community roads)

Develop a Pavement Manual based on pavement tests

Technology transfer and training of engineers

Performance of test works with participation of local population

Preparation of Pavement Manual

Pha

se 2

December 2007-December 2010 Technology transfer project of community roads development with inhabitants participation for the creation of employment opportunities

Ensure technology transfer

Establish system based on participation of local population

Autonomous expansion of businesses that promote the creation of employment opportunities

Preparation of Pavement Manual (in Mongolian)

Implementation of pavement works utilising the Pavement Manual

Pha

se 3

March 2011-March 2013 Support for independent commercialisation of community roads improvement projects by Ger area residents

Nationwide deployment of low-cost road improvement projects with participation of local population

Creation of mechanisms for project implementation through the cooperation of the Ministry of Labor and the Ministry of Transport

Upgrading of Pavement Manual to national standards

Preparation of a construction guide and video teaching materials

Provide technical guidance for pavement works in rural areas

In order to prepare the Pavement Manual (Phase 1) testing was conducted on a pavement at Baganuur, located 150km east of Ulaanbaatar. The aim of this testing was to train local workers in testing methods during construction. Locally-available materials are used and testing relies heavily on manual labor. The results of this work were evaluated by the Project Technical Committee, which was responsible for creating the Manual.

The main points in this Manual are as follows.

the traffic intensity was estimated as being no more than 500 vehicles a day in both directions

asphalt surface treatments were adopted in order to achieve the goal of providing a low-cost pavement

cement stabilisation was incorporated in order that lower-quality local materials could be used.

The possible use of hotmix asphalt mixes is addressed in an Appendix to the Manual on the basis that there may be an increase in the volume of traffic volume in the future.

The contents of the Manual are presented in Table 3.2.

During the second and third phases, and taking account of the future nationwide deployment of the Manual, paving works were carried out in many parts of Mongolia. The works were performed under contracts with local contractors. In terms of job creation, which was one of the main purposes of this project, the contractors were selected by tender with a special condition that the contractor must hire at least 20 local workers per day. An outline of the paving works conducted is shown in Table 3.3.


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Table 3.2: Content of the pavement design manual

Chapter Main content

Overview Applying surface treatments to the surface

Design

Consider only roads with traffic volumes<500 vehicles per day

2 categories of traffic volume (<100 vehicles/day, 100-500 vehicles/day)

CBR & traffic category →TA→ determine thickness of each layer.

Construction works Construction of subgrade, base& surface

Material standards, mix design, machinery use

Quality control Quality control and inspection

Maintenance Types of damage and repair methods

Appendix Use of hotmix asphalt mixes

Table 3.3: Outline of paving works

Phase Year Implementation site Length of Extension

(m) Local workers employment

1 2005 Baganuur Borough of Ulaanbaatar 600 about 300

2 2008 Chingeltei District of Ulaanbaatar 200 about 300

2009 Uluzit District of Ulaanbaatar 300 about 300

3 2011

Mandalgovi of Dundgovi Province 250 about 200

Choir of Govisumber Province 1,200m

200m used for technical guidance

about 300 (number of workers during

the technical guidance period only)

Bulgan of Bulgan Province 250 about 200

During the paving works, including the test pavement, experts from Japan visited the sites and provided technical guidance to local technicians and the local residents employed for the contracts.

During the second phase in 2008, the Japanese bore the responsibility for the construction works including the construction costs. However, in 2009, whilst the Japanese continued to meet the costs, tasks such as the budgeting process, and the planning and design, were performed mainly by the Mongolians. Construction works conducted on three sites in 2011 during the third phase (research, design, contracting, construction, control, hiring of local workers, etc.) were carried out independently by the Mongolians, with the Japanese providing technical guidance.


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4 SUMMARY OF WORK

4.2 Pavement structure

The design of the pavement structure was carried out according to the Manual and taking account of the subgrade bearing capacity (CBR) and the daily traffic volume. In consideration of the fact that the surface was to be constructed mainly using manual labor, a penetration macadam surface, 30 mm thick, was adopted for each site. Since the temperature in many districts of Mongolia in the winter may often drop below -30°C, the subgrade was replaced with a good quality soil, and the base was stabilised with cement. The typical pavement structure is shown in Figure 4.1.

Figure 4.1: Pavement structure

4.1 Construction works

4.1.1 Machinery and materials

Since the works was to be undertaken using manual labor as much as possible, the use of machinery was kept to a minimum. Machinery used included asphalt sprayers with kettle, motor graders, road rollers, dump trucks, etc.

As a rule, the materials used in the subgrades and bases were obtained locally. Despite a slight difference in quality, the quality of the local materials was sufficient to enable them to be used at each site. It should be noted that, before collecting crushed stone, an application for permission to do so had to be submitted to the Ministry of the Environment indicating the volume required and the collection site.

Making a penetration macadam surface requires crushed stone of single particle size as shown in Figure 4.1. Since crushed stone of size 2.5-5 mm size was not available locally, it was prepared in advance using a sieve.

From the long-term perspective it is desirable to use asphalt1 emulsion, but the limited number of companies manufacturing asphalt emulsion in Mongolia makes it difficult to obtain locally. It was therefore decided to use cut-back asphalt (bitumen) prepared on site. At low temperatures, the cut- 1 In some countries in the region, the term used for the binder is ‘bitumen’ rather than ‘asphalt’. In those cases the

term ‘asphalt’ is used to describe the mix of the bitumen and the graded aggregate.


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back asphalt was prepared by adding 30% by volume of light gas oil to straight asphalt (Class 90-130) whilst, at high temperatures, 20% by volume was added. The straight asphalt was imported by rail from Russia and China and then conveyed to the site by lorries. Drums and paper pack drums were also used in some locations.

4.1.2 Cement stabilisation and surface

For the cement-stabilised base, the control of the volume of the cement was carried out by calculating the area per one bag and distributing bags evenly over the site. The cement was then spread manually and mixed using a motor grader or bulldozer scarifier. As the blending accuracy was low the cement content of cement as increased to obtain required strength.

Since spreading the binder or aggregate is an important task that can influence the final quality of the penetration macadam surface, training was organized for the workers before construction commenced. It is common practice in Japan to spread materials with a square scoop. The workers needed time to learn how to spread it evenly in square sections, but they tried their best. After the works were completed, the local workers were issued with a certificate verifying that they had completed their training. The holders of the certificate would be given preference for employment in future construction works. In this way one of the purposes of the project, the training of local technical personnel, was achieved.

Photos showing the stages of construction are presented in Figure 4.2.

Spreading cement on basecourse Spreading asphalt surface layer

Spreading crushed stone on surface layer Completion of pavement works

Figure 4.2: Photos of construction


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5 CREATING A MECHANISM FOR COMMUNITY PARTICIPATION AND NATIONWIDE DEPLOYMENT

The aim of this project was to create a mechanism that allows Mongolia to continuously implement projects based on community participation, and to deploy these types of projects nationwide. As a result, at the completion of each phase of the project seminars were organised for staff from the Ministry of Construction, the Ministry of Labor, governors of provinces and other interested parties in order that the mechanisms of community participation and nationwide implementation of analogous projects could be discussed.

On 3 November 2010, during the second phase, a joint Mongolian-Japanese seminar was conducted in Ulaanbaatar. The local governments were provided with information on the management of low-cost road construction projects using local inhabitants at the regional level. There was lively discussion between the heads of local governments and officials of the Road Construction Department regarding the implementation of projects. During the seminar, the Secretary of the former Ministry of Social Welfare and Labor (now the Ministry of Labor) promised cooperation of the Ministry for employment relief projects. The mechanism by which the Ministry of Labor bears the costs of the employment of the local residents was subsequently established.

The last joint seminar was conducted in Ulaanbaatar on 23-24 January 2013 during the third phase. To mark the end of the project, during the first day the local officials related to road administration gathered together so that they could be informed of the government policy with respect to project implementation in the future, and to discuss the next steps in the development of the project. A seminar on the Pavement Manual and construction methods was held on the second day for representatives of local governments, and engineers employed by the construction companies.

5.1 National standardisation and preparation of construction guide book

In order to ensure that these technologies are adopted nationwide, the construction methods presented in the Pavement Manual needed to be recognised as the national standard. This was an important task from the start of the second phase. In Mongolia, the process of standardisation requires two stages to be cleared. Firstly, it needs to be approved by an expert committee composed of road-related officials. It can then be recognised as a standard after the approval of the Manual Selection Committee of the Center for Standardization and Measurement.

After preparing a preliminary draft at the Road Department of the Ministry of Transportation, the administrative vice-ministers of the Ministry of Transportation and the Ministry of Labor submitted a request to the Center for Standardization and Measurement, along with a letter of recommendation from parties related to construction works (contractors, builders, heads of local governments, etc.). The standards were approved at the end of November 2012, and came into effect in January the following year.

The content of the standards is an excerpt from the construction part of the Pavement Manual. It includes eight chapters: 1. Purpose, 2. Scope, 3. Related books, 4. General, 5. Construction machinery, 6. Macadam base, 7. Prime coat and tack coat, 8. Bituminous surface treatment.


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When constructing a penetration macadam surface, the management of the aggregate and binder volume is very important. As the size and shape of a crushed stone of the same standard can vary, strict control of the applied volume is necessary. It must be determined visually and most guidelines and manuals provide only a numeric value of materials required for the unit area. Inexperienced workers may have difficulties in determining the actual volume. As a result, in addition to the Pavement Manual, a Low-Cost Pavement Construction Guide, including an instructional video, was also prepared.


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6 CONCLUSIONS

The project concluded with the final seminar conducted in Ulaanbaatar City in January 2013. Achievements include technology transfer addressing the construction of community roads, the standardisation of practice and the preparation of national standards, the creation of special state subsidies to local authorities for road construction and the allocation of funds by the Ministry of Labor for projects involving the employment of the local community residents for the continuous nationwide deployment of the technology.

It is assumed that the economic growth of Mongolia, a country blessed with natural resources, will accelerate in the future. However, in many provinces even the roads in front of municipality buildings are not yet paved, so it is hoped that the Mongolian Government and local municipalities will be actively using the technology developed during the project.

REFERENCES

Ministry of Road and Transportation, Mongolia 2006, Pavement Manual for Community Roads with

Bituminous Surface Treatment, September.

Ministry of Roads and Transportation 2012, Road construction – guideline for the construction of rural roads

with low intensity, MNS 6335: 2012, Mongolia.

Pacific Consultants International & Japan Overseas Consultants 2002, The feasibility study on construction

of Eastern Arterial Road in Mongolia, June.

Pacific Consultants International Japan Overseas

Yano, Y 2007, Preparation of road pavement manual for Mongolia and seminars, Road Engineering & Management Review, 70 pp, March, Japan Road Association.

Yano, Y 2013, Certification of pavement standards in Mongolia on the base of the Japanese original manual, Road Engineering & Management Review, 63 pp., August, Japan Road Association.

INFORMATION RETRIEVAL

Yano, Y & Onon, R 2015, Incorporating Japanese Pavement Design Practice for a Community Road in Mongolia, REAAA Technical Report TC-7, pp. 14.

Keywords: REAAA / Mongolia / Japan / pavement design / community involvement / road funding / technology transfer / standards / road funding Abstract:

Between 2004 and 2012 the Infrastructure Development Institute of Japan and the Ministry of Road and Transportation, Mongolia, implemented a project incorporating Japanese pavement design practice for a community road in Mongolia. This report describes how Japanese pavement technology was transferred to Mongolia, how local residents were employed as part of a of work relief program, and how national standards were developed. Achievements include technology transfer addressing the construction of community roads, the standardisation of practice and the preparation of national standards, the creation of special state subsidies to local authorities for road construction and the allocation of funds for projects involving the employment of the local community.

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