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Document of The World Bank Public Disclosure Authorized Report No: 27265 IMPLEMENTATION COMPLETION REPORT (SCL-41270) ON A LOAN Public Disclosure Authorized IN THE AMOUNT OF US$75 MILLION TO THE DOMINICAN REPUBLIC FOR A NATIONAL HIGHWYAY PROJECT Public Disclosure Authorized April 23, 2004 Finance, Private Sector Development and Infrastructure SMU Caribbean Country Management Unit Latin America and the Caribbean Region Public Disclosure Authorized CURRENCY EQUIVALENTS (Exchange Rate Effective February, 2004) Currency Unit = Dominican Pesos 1 Peso = US$ 0.025 US$ 1 = 40 Pesos FISCAL YEAR January 1 December 31 ABBREVIATIONS AND ACRONYMS ASP Action Sustainability Plan BDR Bank of Reserves (Banco de Reservas) CAS Country Assistance Strategy DGMCCV Directorate of Maintenance (Dirección General de Mantenimiento de Carreteras y Caminos Vecinales) DGSFO Directorate of Works Supervision (Dirección General de Supervision y Fiscalización de Obras) DGTT Directorate of Traffic (Dirección General de Transito Terrestre) EIA Environmental Impact Assessment FHRMP Fifth Highway Rehabilitation and Maintenance Project HDM Highway Design and Maintenance Standards Model ICR Implementation Completion Report QAG Quality Assurance Group MMS Maintenance Management System NDF Nordic Development Fund PCT Project Coordinating Team OSOE Office of Supervision of State Works (Oficina Supervisora de Obras del Estado) SAR Staff Appraisal Report SEOPC Secretariat of State of Public Works and Communications (Secretaría de Estado de Obras Públicas y Comunicaciones) STP Technical Secretariat of the Presidency (Secretariado Técnico de la Presidencia) Vice President: David de Ferranti Country Director Caroline D. Anstey Sector Manager Danny Leipziger Task Team Leader/Task Manager: Jose M. Alonso-Biarge DOMINICAN REPUBLIC DO NATIONAL HWY. PROJ. 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 6 5. Major Factors Affecting Implementation and Outcome 13 6. Sustainability 18 7. Bank and Borrower Performance 20 8. Lessons Learned 22 9. Partner Comments 24 10. Additional Information 25 Annex 1. Key Performance Indicators/Log Frame Matrix 26 Annex 2. Project Costs and Financing 29 Annex 3. Economic Costs and Benefits 32 Annex 4. Bank Inputs 38 Annex 5. Ratings for Achievement of Objectives/Outputs of Components 40 Annex 6. Ratings of Bank and Borrower Performance 41 Annex 7. List of Supporting Documents 42 Annex 8. Borrower´s Completion Report 44 Project ID: P035722 Project Name: DO NATIONAL HWY. PROJ. Team Leader: Jose Alonso-Biarge TL Unit: LCSFT ICR Type: Core ICR Report Date: April 23, 2004 1. Project Data Name: DO NATIONAL HWY. PROJ. L/C/TF Number: SCL-41270 Country/Department: DOMINICAN REPUBLIC Region: Latin America and the Caribbean Region Sector/subsector: Roads and highways (91%); Central government administration (9%) Theme: Rural services and infrastructure (P) KEY DATES Original Revised/Actual PCD: 09/29/1994 Effective: 04/17/1997 11/10/1997 Appraisal: 02/15/1996 MTR: 12/10/1999 02/15/2001 Approval: 12/19/1996 Closing: 12/31/2001 10/31/2003 Borrower/Implementing Agency: GOV'T. OF DOM. REP./SEOPC Other Partners: STAFF Current At Appraisal Vice President: David de Ferranti Shahid Javed Burki Country Director: Caroline D. Anstey Paul Isenman Sector Director: Danny Leipziger Paul Isenman Team Leader at ICR: Jose Alonso-Biarge Jose Alonso-Biarge ICR Primary Author: Jose Alonso-Biarge 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: S Sustainability: UN Institutional Development Impact: M Bank Performance: HS Borrower Performance: S QAG (if available) ICR Quality at Entry: S Project at Risk at Any Time: Yes 3. Assessment of Development Objective and Design, and of Quality at Entry 3.1 Original Objective: The main objective of the Project was to improve the transport sector conditions to facilitate the development of major sources of growth, and improve access to markets by eliminating bottlenecks in the trunk network, continuing the rehabilitation of the paved highway network and improving road safety. The Project also sought to improve the institutional capacity of the Secretariat of State of Public Works and Communications (SEOPC) to maintain the road network in a stable condition without continued donor support and enforce new management practices and policies. This was to be achieved by: (a) strengthening the capacity to implement maintenance programs; (b) improving the quality of pavements using the new technologies introduced under the Fifth Highway Rehabilitation and Maintenance Project (FHRMP); (c) introducing routine maintenance and signalization by contract and strengthening the domestic private construction industry; (d) implementing a road fund managed by a new road agency that will ensure adequate and timely release of funds to carry out maintenance programs, and (e) strengthening budget, accounting, and auditing procedures. 3.2 Revised Objective: There were no revisions to the project objectives. 3.3 Original Components: The Project consisted of the following components: (a) Civil Works (i) Widening existing highway sections to four divided lanes (28.3 km in total) to eliminate congestion along some high-volume sections (about 10,000+ vehicles per day) and a high percentage of trucks (over 20 percent). The following sections were included in this subcomponent: (i) Santiago-Navarrete along the Duarte Highway (20.3 km); (ii) Santo Domingo-San Isidro along the Mella Highway (6.3 km); and (iii) Bajo de Haina-Acceso Refinería along the Sánchez Highway (1.7 km). (ii) Construction of 3 new bridges (564 m in total) and deck widening of an existing bridge (102 m), where existing bridges have proven to be bottlenecks within the road network. The 3 new bridges included the following: (i) over the Baní River (150 m) in the city of Baní along the Sánchez Highway; (ii) over the Higuamo River (261 m) in the city of San Pedro de Macorís along the East Coast Highway; and (iii) over the Dulce River (153 m) in the city of La Romana along the East Coast Highway. The bridge in Baní was to be completed with the corresponding accesses and the improvement of the existing urban section (3.7 km), while the Higuamo and Dulce bridges were to be part of the bypasses of San Pedro de Macorís (12.3 km) and La Romana (8.0 km), two new highway sections. The deck widening corresponded to the bridge over the Yaque del Norte River (102 m) in Montecristi. (iii)Reconstruction of 169 km of the highway network. The list of the highways to be reconstructed was agreed upon at appraisal. The SEOPC would annually review the list with the Bank and any modification or addition would be done only after obtaining the Bank's - 2 - approval. (iv) Highway resurfacing of 628 km using new pavement technologies tested under the FHRMP (Ln. 3350-DO). The list of the highways was also agreed upon at appraisal. The SEOPC would annually review the list with the Bank and any modification or addition would be done only after obtaining the Bank's approval. (v) Pilot program of routine maintenance by contract along 640 km (13 percent of the network). Routine maintenance for the rest of the network was to have been contracted out by 2001. The initial programs were agreed with the Borrower at negotiations. (vi) Road signalization program by contract including informative signals for connection among roads, itineraries for some destinations, tourist locations, and road services provided to the users. (b) Civil Work Supervision and Technical Auditing (vii) Supervision of civil works, including technical auditing for widening, reconstruction, and rehabilitation of highway and construction of bridges financed by the Project. These tasks were to have been carried out by independent consultants funded by the Loan to provide quality control and ensure compliance with bid specifications. The highway resurfacing, routine maintenance, and signalization programs would be supervised by the Directorate of Maintenance (Dirección General de Mantenimiento de Carreteras y Caminos Vecinales - DGCCV) staff trained under technical assistance financed by Ln. 3350-DO. (c) Acquisition of Goods (viii) Acquisition of vehicles, spare parts, and office equipment. This component included the acquisition of all terrain vehicles to facilitate design and supervision of the highway resurfacing and maintenance programs, spare parts for the operation of existing maintenance equipment, and office equipment (desk-top computers, printers, and photocopy machines). (d) Consulting Services and Training (ix) Consulting services for a technical assistance program consisting of: (a) coordination of project implementation; (b) assistance in the use of maintenance systems, in the preparation and monitoring of maintenance contracts, and in implementing a road fund to be managed by a road agency; (c) advise and training in financial management and internal performance audits; (d) strengthening the environmental unit of the SEOPC; (e) establishing a data base on highway accident statistics; (f) preparation of future investment programs in the transport sector; (g) preparation of a development plan for the northwestern region, including feasibility and environmental impact studies and preliminary engineering design of basic infrastructure;