Government of Sindh Road Resources Management (RRM) Froject Project No
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FINAL REPORT Mid-Term Evaluation /' " / " kku / Kondioro k I;sDDHH1 (Koo1,, * Nowbshoh On$ Hyderobcd Bulei Pt.ochi 7 godin Government of Sindh Road Resources Management (RRM) Froject Project No. 391-0480 Prepared for the United States Agency for International Development Islamabad, Pakistan IOC PDC-0249-1-00-0019-00 * Delivery Order No. 23 prepared by DE LEUWx CATHER INTERNATIONAL LIMITED May 26, 1993 Table of Contents Section Pafle Title Page i Table of Contents ii List of Tables and Figures iv List of Abbieviations, Acronyms vi Basic Project Identification Data Sheet ix AID Evaluation Summary x Chapter 1 - Introduction 1-1 Chapter 2 - Background 2-1 Chapter 3 - Road Maintenance 3-1 Chapter 4 - Road Rehabilitation 4-1 Chapter 5 - Training Programs 5-1 Chapter 6 - District Revenue Sources 6-1 Appendices: - A. Work Plan for Mid-term Evaluation A-1 - B. Principal Officers Interviewed B-1 - C. Bibliography of Documents C-1 - D. Comparison of Resources and Outputs for Maintenance of District Roads in Sindh D-1 - E. Paved Road System Inventories: 6/89 & 4/93 E-1 - F. Cost Benefit Evaluations - Districts F-1 - ii Appendices (cont'd.): - G. "RRM" Road Rehabilitation Projects in SINDH PROVINCE: F.Y.'s 1989-90; 1991-92; 1992-93 G-1 - H. Proposed Training Schedule for Initial Phase of CCSC Contract (1989 - 1991) H-1 - 1. Maintenance Manual for District Roads in Sindh - (Revised) August 1992 I-1 - J. Model Maintenance Contract for District Roads in Sindh - August 1992 J-1 - K. Sindh Local Government and Rural Development Academy (SLGRDA) - Tandojam K-1 - L. Municipal Training and Research Institute (MTRI) - Karachi L-1 - M. Annual Receipts and Expenditures 1986/87 through 1992/93 (Est.) M-1 - iii TABLES AND FIGURES Page Figure 1-1 Pakistan Physical Map 1-2 Figure 1-2 Pakistan Mean Annual Rainfall Map 1-3 Figure 2-1 Project Funding 2-3 Figure 2-2 Project History - Key Dates 2-4 Figure 3-1 Organization Chart of District with One (1) Road Maintenance Unit (RMU) 3-2 Figure 3-2 Organization Chart of District with Two (2) Road Maintenance Units (RMU) 3-3 Figure 3-3 Organization Chart of District with Three (3) Road Maintenance Units (RMU) 3-4 Figure 3-4 Equipment for One Road Maintenance Unit - 12/89 Performance Standards 3-5 Figure 3-5 Work Activity Performance Standards 3-7 Figure 3-6 Summary of Maintenance Targets 3-8 Figure 3-7 Maintenance Program Accomplishments 3-9 Figure 3-8 Summary of Six (6) Districts Visited 3-11 Figure 3-9 RRM Project Equipment Purchased by CCSC During Implementation Phase 3-12 Figure 3-10 Changes in District Paved Road System 3-14 Figure 3-11 Summary of Maintainable Paved Roads 3-15 June 1989 vs. April 1993 Status - iv TABLES AND FIGURES (cont'd.) Page Figure 3-12 Equipment for One Road Maintenance 3-16 Unit - Rev. 5193 Figure 3-13 Districts Revenues and Income ('89-93) 3-18 Figure 3-14 Districts Expenditures on Road 3-19 Construction and Maintenance (1989-93) Figure 3-15 Estimated Maintenance Costs per District 3-20 Figure 3-16 Benefit to Cost Ratio Comparisons of 3-23 Doing Maintenance to No Maintenance Figure 4-1 Progress in Rehabilitation Program 4-1 Figure 4-2 Construction Targets 4-2 Figure 4-3 CCSC Reports on Experimental Roads 4-3 Figure 5-1 CCSC In-country Training Seminars and Workshops 5-3 Figure 5-2 Course Work: Diploma and Degree Engineer 5-4 Figure 6-1 Sindh District Council Taxes 6-2 Figure 6-2 CCSC Reports on District Revenues 6-3 "V LIST OF ABBREVIATIONS, ACRONYMS, ETC. AD - Assistant Director ACE - Associated Consultants Engineers (Karachi, Pakistan) ADB - Asian Development Bank ADP - Annual Development Plan AID - See USAID APAC - Asia Project Advisory Committee Beldar - Laborer C&W - Provincial Department of Communications and Works (GOS) CCSC - Construction Control Services Corporation (U.S.A.) Chowkidar - Guard DC - District Council DCO - District Council Office(s) DEO - District Engineering Office DSSL - Deficit in Sustainable Service Level Darogha - Supervisor of beldars (Work crew supervisor) ESF - Economic Support Fund ESSL - Existing Sustainable Service Level FAR - Fixed Amount Reimbursement FRDEC - Federal Rural Development Engineering Cell. The technical organization of the Ministry of Local Government and Rural Roads (MLGRD) responsible for rural roads, water supply and allied matters. GOP Government of Pakistan GOS Government of Sindh Province (Pakistan) - vi - LIST OF ABBREVIATIONS, ACRONYMS, ETC. (cont'd.) Har - Landless agricultural laborer in the Sind (tenants) IRDP Integrated Rural Development Program Katcha Roaa - An unpaved (earth) road LAF - Local Audit Fund (GOS) MLGRD - Ministry of Local Government and Rural Development (Pakistan). A ministry of the federal government; a department in each provincial government except Balochistan. MMS - Maintenance Management System MSSL - Maximum Sustainable Service Level MTRI - Municipal Training Research Institute (under MLGRD) NHA - National Highwai Authority (Pakistan) NHB - National Highways Board NIPA - National Institute of Public Administration NTRC - National Transport Research Center (Islamabad) NWFP - Northwest Frontier Province O&M - Operation and maintenance P&D - Planning and Development Departments in the provincial goverimgnts. PC-1 - A GOP document defining the requirements for a development project equivalent to USAID's Project Paper PDM - Project Development and Monitoring (USAID-Pakistan) PIL - Project Implementation Letter (USAID) PLA - Personal Ledger Account RDD - Rural Development Department (GOS) RDP - Rural Development Program - vii LIST OF ABBREVIATIONS, ACRONYMS, ETC. (cont'd.) RMU - Road Maintenance Unit RRM - The Road Resources Management Project RoMMS - Road Maintenance Management System (sub-compcnent of RRM) RoMP - Road Maintenance Programming (sub-component of RRM) Rupees (Rs.) - The Pakistani monetary unit. Currently (5/93); Rs.26.70 = US$1.00 Previously (7/85); Rs.16.00 = US$1.00 SCUG - Sind Council Unified Grades - Provincial Civil Service Class SLGRDA - Sindh Local Government & Rural Development Academy (GOS) TSC or TST - Technical Services Contractor/Team USAID - United States Agency for International Development USG - United States Government - viii BASIC PROJECT IDENTIFICATION DATA 1. Country: PAKISTAN 2. Project Title: ROAD RESOURCES MANAGEMENT (RRM) PROJECT, 391-0480; MID-TERM EVALUATION 3. Project Number: 391-0480 (Grant) 4. Project Dates: a. First Project Agreement: June 18, 1987 b. Final Obligation: FY 89 (Planned); FY 95 (Revised) c. Project Assistance Completion Date (PACD): December 31, 1992 (Planned); December 31, 1994 (Revised) 5. Project Funding: a. A.I.D. Bilateral Funding: *Initially a Grant of US$43,000,000 over a six (6) year period, from February 1987 through December 1992. * Revised by the Pressler Amendment (March 1991) to a Grant of US$14,100,000 through December 1994. b. Other Major Donors: -None c. Host Country Counterpart Funds: TOTAL: US$43,000,000.(Planned FY 87) US$14,100,000 (Revised FY 91) 6. Mode of Implementation: 7. Project Design: 8. Responsible Mission Officials: (For the full life of the project) a. Mission Director(s): Eugene Staples (1987 - 1988) James Norris (1988 - 1992) John Blackton (1992 - present) b. Project Officer(s): Hasan Masood (1987 - present) 9. Previous Evaluation(s): None 10. Cost of Present Evaluation: Person Days Dollar Costs a. Direct Hire: (1) AID/W TDY: -0- -0 (2) USAID staff: b. Contract: (IQC DO No. 23) 32 $47,33 c. Other: - ix PIOIT No. 391-0480-3-3 C.;S1 Annex - 3 A.I.D. EVALUATION SUMMARY PA RT t -:- a.~-= MM. R=c -J_ C A. L. :. = ..-I *-.sr-A af =--= 21 c =z~za: Tcr. atL~t ~ :c-z. ~ ~ e WILLA ~ e f a aTit!& c v TSZC* ~ ul . 3! w7=27.m.4cr--*Ot ruat=hn ±sai~AZ L PIa/T No. 391-0480-3-902,S1 D-4 Page 19.of 25 Pages ,-H-~~ ACZY (do. =L-mdtampi cwd -M=A Z-~ MA&Cn PIO/T No. 391-0480-3-0.SI D-7 A.I.D. EVALUATION SUMMARY PAR7 If a ciame of. missiou. or o,- ifca a Purpose 0-, acivL-y- (4es) e'valuacad o ?ur~csa of- ahe Zvaiuacon and Ma:hiodo.og~r Used a r'iidizigs and Conisin a iecfffesndaion*S( a tassons l.earned Zatm~ ~ this~ -~=r Chapter 1 INTRODUCTION 1.1 GEOGRAPHIC BACKGROUND The Islamic Republic of Pakistan covers a land area of approximately 310,527 square miles (803,943 square kilometers). It has a varied topography, consisting of the Indus River basin in the central part of the country with the Hindu Kush and Himalayas to the north, arid mountains and plateaus to the southwest and the Thar desert to the southeast (Figure 1-1). Figure 1-2 shows the low rainfall (less than five inches) in the hot deserts of Balochistan, increasing to the north with the wet zone (over 30 inches annually) where the first ranges of mountains occur. The headwaters of the major rivers of Pakistan lie in this mountainous area. The country is a federation of four provinces (Punjab, Sindh, North West Frontier Province, and Balochistan), Azad Jamu and Kashmir, the Northern Areas, seven Federally Administered Tribal Areas (FATA) and the Federal Territory of Islamabad. The basic political unit is the Union Council, there being 3,416 in the four provinces. Members of these councils are elected by the population of the country's 45,000 villages. The next larger unit is the District which, for many purposes, is the basic administrative unit. There are a total of 87 districts and ager,-cies, of which 72 are in the four provinces: - Punjab 27 districts, 2,241 union councils - Sindh 15 districts, 561 union councils - NWFP 13 districts, 438 union councils - Balochistan 17 districts, 176 union councils There are about 117 million people in the country, with some 70% residing in the rural areas. Table 1.1 shows the 1981 population figures (latest available) for the four provinces: Table 1.1 POPULATION AND AREA BY PROVINCE Area (km2) Population Pop.