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Document of The World Bank Public Disclosure Authorized Report No: 32900 IMPLEMENTATION COMPLETION REPORT (IDA-31930 PPFI-Q0970 TF-22271) ON A Public Disclosure Authorized CREDIT IN THE AMOUNT OF SDR 10.3 MILLION (US$14.4 MILLION EQUIVALENT) TO THE INDEPENDENT STATE OF SAMOA FOR AN INFRASTRUCTURE ASSET MANAGEMENT PROJECT Public Disclosure Authorized IN SUPPORT OF PHASE ONE OF AN INFRASTRUCTURE ASSET MANAGEMENT PROGRAM February 2, 2006 Public Disclosure Authorized Transport Sector Unit East Asia and Pacific Region CURRENCY EQUIVALENTS (Exchange Rate Effective December 31, 2004) Currency Unit = Samoa Tala (WST) WST 1.00 = US$ 2.67 (2.99 at inception February 1999) US$ 1.00 = 0.37 (0.33 at inception February 1999) FISCAL YEAR July 1 to June 30 ABBREVIATIONS AND ACRONYMS AGO Office of the Attorney General APL Adaptable Program Loan AusAID Australian Agency for International Development CIM Coastal Infrastructure and Management COEPs Codes of Environmental Practice DLSE Department of Lands, Surveys and Environment GDP Gross Domestic Product GIS Geographic Information System HDM-4 Highway Development and Management model, Version 4 IAM-1 Infrastructure Asset Management Project (Phase 1, Cr. 3193-WSO) IAM-2 Infrastructure Asset Management Project (Phase 2, Cr. 3848-WSO) IAMP Infrastructure Asset Management Program IATA International Air Transport Association ICAO International Civil Aviation Organization ICT Information and Communications Technology IDA International Development Association MNRE Ministry of Natural Resources and Environment MWTI Ministry of Works, Tranport and Infrastructure PIRAMS PWD Institutional Reform and Asset Management Services PMU Project Management Unit PWD Public Works Department RSAP Road Safety Action Plan RTAS Road Transport Administration System SAA Samoa Airport Authority SAMS Samoa Asset Management System SOE State-owned Enterprise TCB Transport Control Board Vice President: Mr. Jeffrey S. Gutman, Acting Country Director: Mr. Xian Zhu Sector Director: Mr. Jitendra N. Bajpai Task Team Leader: Mr. William D.O. Paterson SAMOA Infrastructure Asset Management Project (Infrastructure Asset Management Program (Phase 1)) CONTENTS Page No. 1. Project Data 1 2. Principal Performance Ratings 1 3. Assessment of Development Objective and Design, and of Quality at Entry 2 4. Achievement of Objective and Outputs 5 5. Major Factors Affecting Implementation and Outcome 14 6. Sustainability 15 7. Bank and Borrower Performance 16 8. Lessons Learned 18 9. Partner Comments 19 10. Additional Information 22 Annex 1. Key Performance Indicators/Log Frame Matrix 23 Annex 2. Project Costs and Financing 24 Annex 3. Economic Costs and Benefits 26 Annex 4. Bank Inputs 30 Annex 5. Ratings for Achievement of Objectives/Outputs of Components 32 Annex 6. Ratings of Bank and Borrower Performance 33 Annex 7. List of Supporting Documents 34 Annex 8. Illustrations 36 IBRD Map 32860R Project ID: P052293 Project Name: WS-Infrast. Mgnt (APL) Team Leader: William D. O. Paterson TL Unit: EASTR ICR Type: Core ICR Report Date: February 7, 2006 1. Project Data Name: WS-Infrast. Mgnt (APL) L/C/TF Number: IDA-31930; PPFI-Q0970; TF-22271 Country/Department: SAMOA Region: East Asia and Pacific Region Sector/subsector: Aviation (40%); Central government administration (34%); Roads and highways (26%) Theme: Infrastructure services for private sector development (P); Pollution management and environmental health (S) KEY DATES Original Revised/Actual PCD: 09/02/1998 Effective: 05/31/1999 02/28/2000 Appraisal: 11/12/1998 MTR: 12/06/2000 12/06/2000 Approval: 04/15/1999 Closing: 12/31/2002 03/31/2004 Borrower/Implementing Agency: Independent State of Samoa/Dept of Public Works; Independent State of Samoa/Dept of Lands Surveys and Environment; Independent State of Samoa/& Samoa Airport Authority. Other Partners: Australian Agency for International Development STAFF Current At Appraisal Vice President: Jeffrey S. Gutman Jean-Michel Severino Country Director: Xian Zhu Klaus Rohland Sector Manager: Jitendra N. Bajpai Jitendra N. Bajpai Team Leader at ICR: William D. O. Paterson William D. O. Paterson ICR Primary Author: William D.O. Paterson; Richard Leonard 2. Principal Performance Ratings (HS=Highly Satisfactory, S=Satisfactory, U=Unsatisfactory, HL=Highly Likely, L=Likely, UN=Unlikely, HUN=Highly Unlikely, HU=Highly Unsatisfactory, H=High, SU=Substantial, M=Modest, N=Negligible) Outcome: HS Sustainability: L Institutional Development Impact: H Bank Performance: HS Borrower Performance: S QAG (if available) ICR Quality at Entry: S HS Project at Risk at Any Time: No 3. Assessment of Development Objective and Design, and of Quality at Entry 3.1 Original Objective: Context. Prior to the preparation of the Infrastructure Asset Management Program in 1998, the International Development Association (IDA) had been supporting emergency recovery from the double major tropical cyclones Ofa in 1990 and Val in 1991 which inflicted a substantial economic shock on Samoa with damages worth about four times the annual GDP. In 1996, the Government launched an active public sector reform program in a Statement of Economic Strategy, which sought to expand the private sector role, liberalize the financial sector and strengthen human resource development. Four issues shaped the concept for this Program. First, in the coastal zone where the economy is concentrated there was a need to find a balance between protection from natural hazard risks and preservation of the vulnerable coastal ecology and environment. Second, the island nation, remote from its markets, is highly dependent on efficient and secure air transport communications for resilience to economic shocks. Third, the Public Works Department (PWD), which had been the implementing agency of the emergency project, was actively beginning a reform program to adopt a more commercial model of service delivery, in concert with emerging national economic reforms. Finally, the Bank’s lending operations in the Pacific had a record of problematic performance and cofinancing, and their small scale, high risk nature required a new business model to respond to regional requests for continued support. Against this backdrop, it was decided to employ an Adaptable Program Loan (APL), the first in the East Asia and Pacific region, for a phased infrastructure program. Objectives. The objective chosen for the Program was “Transport and coastal infrastructure assets are economically, environmentally and socially sustainable and managed by an effective partnership of stakeholders.” The first phase had four sub-objectives: (i) International air transport infrastructure is sustainably adequate for economic growth; (ii) Reliability and safety of road system assets is improved; (iii) Environmentally and socially sustainable management of coastal infrastructure is initiated; and (iv) Management of infrastructure assets is becoming service-oriented involving public, private and community stakeholders. Assessment of Objectives. The Program objective matched the Government’s Statement of Economic Strategy objectives, that investments should be economically feasible, development should be environmentally sustainable, the private sector involved in service delivery, and the government role reduced. The two phases covering an 8-year period reflected an essentially “vertical” design in the two objectives, first laying the foundations for asset management capacity and then supporting additional investment in infrastructure, i.e.: (i) Phase 1 – Meeting vital priorities and strengthening management; and (ii) Phase 2 – Investing for sustainable growth and protection. The reform objective was appropriate because the APL structure provided a basis for a progressive longer-term partnership with some flexibility to match actual achievements. While the four sub-objectives were a seemingly complex combination, integration was achieved by the inter-agency Steering Committee and there was clear ownership by each implementing agency for their various sub-objectives and tasks, as follows: (a) Air Transport Infrastructure: As airport operations were already commercialized and separate from the national airline, the key demands were the large capital investment needed to raise the operational and safety standards to pending international civil aviation standards and facilitate more long-haul flight operations. Through reinforcing the financial responsibility of the Samoa Airport Authority (SAA) for the investment and for achieving financial viability in its operations, the Project was consistent with Government's economic reform agenda. IDA support was - 2 - appropriate to make the model of commercialized operation for infrastructure service delivery work in the ‘thin market’ conditions of low demand and high intrinsic costs due to the country’s remote location. (b) Road Infrastructure: As the standards of much of the primary road system had been raised by the post-cyclone investments, the challenges for the road sub-sector included first, better management of the assets to reduce the demand on public funds and dependence on foreign aid and second, improved traffic management in the face of growing motorization and safety concerns of a village-based traditional culture. The focus of Phase 1 on road asset management processes, and on bridge and pedestrian safety, therefore was highly appropriate for balancing priorities and building management capacity before an investment phase in Phase 2. (c) Coastal Infrastructure: Though not a formal sub-sector, infrastructure