Transport Forum 2005

Performance-based Management and Maintenance of Roads (PMMR)

PMMR Implementation potential in Africa

Presentation by: Graham Williams

BCEOM – French Engineering Consultants

Washington D.C., March 8, 2005

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.

• 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.

The Assignment

‘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 QualityDurability

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.

Resources for maintenance

* 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

0

5

10

15

20

25

30

35

40

45

50

Cape Verde Chad Madagascar Tanzania

US

$ m

illio

ns

0.67% GDP*

0.10% GDP

0.15% GDP

0.22% GDP

* Expected revenue – Road Fund not yet active

UK spends about 0.2% of GDP on maintenance of core roads

Maintenance funding

-

500

1 000

1 500

2 000

2 500

3 000

3 500

Cape Verde Chad Madagascar Tanzania

US

$/km

69% paved

15% paved

13% paved

15% paved

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.

TanzaniaPrivate 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:• Light motorised traffic but lots of NMT;• Backlog of periodic maintenance and spot rehabilitation.

Unpaved Trunk and Regional roads1,100 km in 3 regions.

Tanzania

Private sectorcapacity

Agency capacity PMMR roadconditions

Madagascar

Unpaved National, Provincial/Communal roads 930km in 2 zones.

Madagascar

Private sectorcapacity

Agency capacity PMMR roadconditions

Private Sector Capacity– Local capacity for rehab and maintenance improving;– Larger contractors busy with current rehabilitation programme;– Many small labour-based contractors.

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.

PMMR road conditions– Difficult soil and climatic conditions – high maintenance demand;– Large amount of reconstruction needed in the south.– High proportion of NMT.

Cape VerdePrivate 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

– 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.

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.

Cobblestone roads, National and Municipal330km on 3 islands

Cape Verde

Private sectorcapacity

Agency capacity PMMR roadconditions

ChadPrivate Sector Capacity

– Limited local road contracting capacity – international firms dominate;

– Very limited consulting capability;Agency Capacity

– Very limited management resources;– Road Fund in place since 2001;– Several years contracting experience including PMMR pilot project

(440 km).PMMR Road Conditions

– Proposed road currently under rehabilitation/construction;– Maintenance requirements should be modest.

Paved International Corridor450km (not yet surveyed)

Chad

Private sectorcapacity

Agency capacity PMMR roadconditions

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…

Quantity- based payments for rehabilitation and emergency works

Performance related payment for maintenance through lump-sum fee per km.

Rehabilitation also includes backlog periodic maintenance

0

10

20

30

40

50

60

70

80

90

100

Rehabilitation Maintenance Emergencies

% c

on

trac

t p

rice

Limited to a ceiling value

Documentation to assist bidders

• Data sheets for each road in the contract network;

• Estimates for scope of initial rehabilitation works;

• Line diagrams;• Road drive-through on DVD.

Region: Road Name: km

Package:

Location Plan: Vertical Profile:

Annual rainfall: 900 mmPrincipal rain seasons: 1 2

Inventory DataNo of gravel pits:

Traff ic levels:

Est veh. per day Cross-section:

% Heavy vehicles

NMT level km

Settlements: Gradient:No of villages

kmStructures (No):

Culverts Travel w idth:BridgesDrifts km

Subgrade:Black cotton Light grey sandy Light red sandy Plastic soil Rock

km

Road condition (August 2004)

Surface type: Condition:

km km%

Required Service Level

Min. travel w idth (m): Ride quality standard:

Min. w idth in village centres (m):

Comments

Crossfall Cut

10 to 20%

Good

18.8 5.3

31.3 0.1

Poor

0.6

6m20.8 0.0

<5% 5 to 10% >20%

58.35

< 50

7

2m 3m 4m 5m

26.4

0.0

Embkt

Mwanza R146-Geita-Nkome

391

PMMR/TZ/1

Medium

Heavy

51.912

At G.L

3

Gravel Earth V. Good

13.5

21.5

36.4 22.020.9%12.2

Start : Junction w ith T4 in Geita tow nEnd : 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

1.8

6.0 0.5

15.1

39.6% 29.5% 10.0%

2.5

Oct to Dec Mar to May

3.5

6

17.2 5.923.1

17.4

Fair

Gradient: > 10% < 10%

1000

1050

1100

1150

1200

1250

1300

1350

1400

1450

1500

0 5 10 15 20 25 30 35 40 45 50 55 60

km

elev

atio

n (

m)

Line diagrams

Bidders to define location and extent of initial rehabilitation works

‘Road runner’ road simulation

• 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.

Programme

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.