Transport Papers September 2008
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46728 THE WORLD BANK GROUP WASHINGTON, D.C. TP-21 TRANSPORT PAPERS SEPTEMBER 2008 Public Disclosure Authorized Monitoring Road Works Contracts and Unit Costs for Enhanced Governance in Sub-Saharan Africa Victoria Alexeeva, Gouthami Padam and Cesar Queiroz Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized TRANSPORT SECTOR BOARD MONITORING ROAD WORKS CONTRACTS AND UNIT COSTS FOR ENHANCED GOVERNANCE IN SUB-SAHARAN AFRICA Victoria Alexeeva, Gouthami Padam and Cesar Queiroz THE WORLD BANK WASHINGTON, D.C. © 2008 The International Bank for Reconstruction and Development / The World Bank 1818 H Street NW Washington, DC 20433 Telephone 202-473-1000 Internet: www.worldbank.org This volume is a product of the staff of The World Bank. The findings, interpretations, and conclusions expressed in this volume do not necessarily reflect the views of the Executive Directors of The World Bank or the governments they represent. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors, denominations, and other information shown on any map in this work do not imply any judgment on the part of The World Bank concerning the legal status of any territory or the endorsement or acceptance of such boundaries. Rights and Permissions The material in this publication is copyrighted. Copying and/or transmitting portions or all of this work without permission may be a violation of applicable law. The International Bank for Reconstruction and Development / The World Bank encourages dissemination of its work and will normally grant permission to reproduce portions of the work promptly. For permission to photocopy or reprint any part of this work, please send a request with complete information to the Copyright Clearance Center Inc., 222 Rosewood Drive, Danvers, MA 01923, USA; telephone: 978-750-8400; fax: 978-750-4470; Internet: www.copyright.com. All other queries on rights and licenses, including subsidiary rights, should be addressed to the Office of the Publisher, The World Bank, 1818 H Street NW, Washington, DC 20433, USA; fax: 202-522-2422; e-mail: [email protected]. To order additional copies of this publication, please send an e-mail to the Transport Help Desk [email protected] Transport publications are available on-line at http://www.worldbank.org/transport/ CONTENTS FOREWORD .............................................................................................................V ACKNOWLEDGEMENTS ......................................................................................... VII EXECUTIVE SUMMARY ........................................................................................... IX 1 INTRODUCTION: ADDRESSING CORRUPTION RISKS IN THE ROAD SECTOR ........ 1 2 BUILDING A NEW DATASET OF ROAD WORKS CONTRACTS OF BANK- FINANCED PROJECTS IN SUB-SAHARAN AFRICA............................................................ 3 2.1 OBJECTIVES ............................................................................................................. 3 2.2 DESCRIPTION OF DATA .............................................................................................. 3 2.3 MAIN VARIABLES....................................................................................................... 3 2.4 METHODOLOGY......................................................................................................... 6 2.5 DATA SOURCE........................................................................................................... 7 2.6 OBSERVATIONS ........................................................................................................ 7 2.7 SUGGESTIONS FOR RECORDS MANAGEMENT................................................................. 7 3 ANALYZING TRENDS AND KEY INDICATORS ....................................................... 9 3.1 STATISTICAL TRENDS ................................................................................................ 9 3.2 REHABILITATION & RECONSTRUCTION (2007 US$/KM) .................................................16 3.3 EXAMINATION OF ‘RED FLAGS’....................................................................................24 3.4 COMPARATIVE ANALYSIS...........................................................................................27 3.5 COSTS ANALYSIS .....................................................................................................32 4 EXPLAINING WHAT DRIVES ROAD CONSTRUCTION COSTS: ISSUES ADDRESSED BY PROJECT IMPLEMENTING AGENCIES ..................................................... 35 4.1 REASONS FOR HIGH BIDS..........................................................................................35 4.2 REASONS FOR LOW RESPONSE TO INVITATION TO BID ..................................................37 4.3 REASONS FOR COST OVERRUNS AND TIME EXTENSIONS ................................................38 5 ENHANCING ACCOUNTABILITY AND CONTROL OF CORRUPTION IN BANK- FINANCED PROJECTS IN THE ROAD SECTOR IN SUB-SAHARAN AFRICA ...... 41 5.1 RECOMMENDED ACTIONS ..........................................................................................41 5.2 CONCLUSIONS.........................................................................................................42 REFERENCES ......................................................................................................... 73 i ii MONITORING ROAD WORKS CONTRACTS AND UNIT COSTS FOR ENHANCED GOVERNANCE IN SUB-SAHARAN AFRICA ANNEXES ANNEX A: List of Red Flags ...................................................................................................45 ANNEX B: Comparison of Unit Costs and Engineer’s Estimate .....................................................59 ANNEX C: Results of Statistical Analysis of Unit Costs................................................................63 ANNEX D: Data on Bidding Information...................................................................................65 ANNEX E: Data on Cost Information .......................................................................................67 ANNEX F: Data on Supervision Consultancy Contracts ...............................................................69 ANNEX G: Data on Bridge Works Contracts..............................................................................71 LIST OF TABLES Table 2.1: List of road projects in Sub-Saharan Africa included in the study.................................... 4 Table 2.2: Main variables of the study....................................................................................... 5 Table 3.1: Percentage of contracts with cost overruns of more than 15 percent, by country .............11 Table 3.2: Time elapsed between bid opening and contract signing dates, by country .....................15 Table 3.3: Cost per km of a 2-lane road by type of work for inter-urban roads (2007 US$/km) ........16 Table 3.4: Average cost per km of a 2-Lane road by type of work and type of road, by country........16 Table 3.5: Average unit costs, by country (2007 US$)................................................................17 Table 3.6: Leading contractors by awarded contract totals ..........................................................20 Table 3.7: Statistical averages by geographical groups...............................................................20 Table 3.8: Cost per km a 2-lane road by geographical group and type of work (2007 US$) ..............21 Table 3.9: Average unit costs by geographical groups of contractors (2007 US$) ...........................21 Table 3.10: Average cost of supervision per km a 2-lane road by country (2007 US$).....................23 Table 3.11: Leading supervision consultants .............................................................................24 Table 3.12: Factors influencing unit costs - summary of results ...................................................33 LIST OF FIGURES Figure 3.1: Difference between contract values and engineer’s estimates, averages and ranges .......10 Figure 3.2: Cost overruns, averages and ranges by country ........................................................10 Figure 3.3: Difference between contract values and engineer’s estimates, and cost overruns ...........12 Figure 3.4: Average delay in completion of work in months, by country ........................................12 Figure 3.5: Average number of firms buying bidding documents, bidders, and bidders accepted for detailed examination, by country .................................................13 Figure 3.6: Average number of pre-qualified firms, bidders, and bidders accepted for detailed examination, by country................................................................................14 Figure 3.7: Distribution of the number of bidders, by contracts....................................................14 Figure 3.8: Percentage of contractors by geographical group.......................................................19 Figure 3.9: Share of total amounts of contracts awarded, by geographical group............................19 Figure 3.10: Ratio of supervision contract value to road works contract value ................................22 Figure 3.11: Percentage of supervision contracts, by geographical group ......................................23 Figure 3.12: Frequency of different types of red flags in the sample .............................................28 Figure 3.13: Frequency of types of red flags by country..............................................................29