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On-Going Jamaica Transportation Survey And

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On-Going Jamaica Transportation Survey And FILE COPY ReportNo. 441a-1M Jamaica: Appraisalof a Public Disclosure Authorized ThirdHighway Project June24, 1974 Latin Anmericaand CaribbeanProjects Department Not for PublicUse Public Disclosure Authorized Public Disclosure Authorized Documentof the InternationalBank for Reconstructionand Development Public Disclosure Authorized InternationalDevelopment Association Thisreport was preparedfor officialuse only by the BankGroup. It maynot be published, quotedor cited without BankGroup authorization. The BankGroup does not acceptresponsibility for the accuracyor completenessof the report. Currency Equivalents Currency Unit = Jamaican dollar (J$) US$1.00 - J$ 0.91 J$ 1 = US$1.10 J$ 1 million = US$1.1 million Fiscal Year April 1 to March 31 System of Weights and Measures British/US Metric Equivalent 1 foot (ft) = 0.305 meter (m) 1 mile (mi) 2 1.609 kilometers(km) 2 2 2 1 square mile (mi ) = 2.589 square kilometers (km ) 1 pound (lb) a 0.454 kilogram (kg) Abbreviations and Acronyms ADT -- Average Daily Traffic CIDA - Canadian International Development Agency DC - Directorate of Construction DENS - Directorate of Electrical and Mechanical Services DM - Directorate of Maintenance DMP - Directorate of Major Projects DTS - Directorate of Technical Services GDP - Gross Domestic Product GNP - Gross National Product JRC - Jamaica Railways Corporation LVI - Lamarre Valois International Ltd., Consulting Engineers MOW - Ministry of Works NEC - National Economic Council NPA - National Planning Agency TPOS - T. P. O'Sullivan and Partners, Consulting Engineers TRRL - Transport and Road Research Laboratory UNDP - United Nations Development Program USAID - United States Agency for International Development JAMAICA APPRAISAL OF A THIRD HIGHWAYPROJECT TAB2E OF CONTENTS Page No. SUMMARY AND CONCLUSIONS .... ..........................i - ii 1. INTRODUCTION ........ ............................1 2. THE TRANSPORT SECTOR ............................ 3 A. The Country and its Economy ............. 3 B. The Transport Modes .................. 3 C. Transport Policy, Planning and Coordination 6 3. THE HIGHWAY SUBSECTOR ........................... 7 A. The Road System and Road Transport ......... 7 B. Road Administration: The Ministry of Works. 8 C. Road Planning and Financing ................ 9 D. Engineering and Construction ............... 10 E. Maintenance ................................ 10 4. THE PROJECT ......... ............................11 A. Project Description ..... ...................11 B. Cost Estimate, Financing and Disbursements . 14 C. Execution ........... .......................16 5. ECONOMIC EVALUATION ............................. 17 A. General ............. ....................... 17 B. Arterial Road Construction Program ........* 17 C. Technical Assistance ..... .................19 6. AGREEMENTS REACHED AND RECOMMENDATION ........... 20 This Appraisal Report has been prepared by Messrs. S. Hertel (Engineer) and B. Chatelin (Economist) and has been edited by Hiss V. Foster TABLE OF CONTENTS(Cont'd) TABLES 1. Road InvestmentProgram 2. Expenditureon Roads, 1965-1973 3. Road User Charges 4. Design Standards for Arterial Roads 5. Cost Estimate 6. Schedule of Disbursements 7. Traffic Forecast 8. Vehicle Operating Costs 9. Economic Return CHART Structure of the Ministry of Works MAP Jamaica - Third Highway Project - IBRD 10989 JAMAICA APPRAISAL OF A IHIRD HIGHWAYPROJECT SUMMARYAND CONCLUSIONS i. The prime traffic moddein Jamaica is road transport. The highway network, comprising about 9,500 miles, is generally adequate in extent, although of low geometricstandard even for the arterial roads with very heavy traffic. The railway network, totaling about 210 miles, carries all the bauxite-aluminatraffic, a negligiblepart of other freight, and a small percentageof passenger transport. Air transporthas only limited importance for domestic traffic. ii. During 1968-1970,the Canadian consultantsLamarre Valois Inter- national Ltd. (LVI) carried out a countrywidetransportation survey, followed in 1971-1972by feasibilitystudies for 320 miles of main roads and, in 1973, by final engineeringfor about 70 miles of high priority arterial roads. LVI's services were financed by the Canadian InternationalDevelopment Agency (CIDA). iii. The main element of the proposed project has been developed from LVI's studies and comprises the first phase of the Government's1974-1979 arterial road constructionprogram, i.e., the improvement,mainly in the form of new construction,of about 16 miles of two-lane arterial road sections between Spanish Town and Mandeville and one four-mile two-lane arterial road section between Spanish Town and Dcho Rios. The existing narrow and winding roads on these sections pass through many smaller towns and carry from 4,000 to 6,000 vehicles per day; the new arterial roads would bypass the towns. The road constructionworks would be supervisedjointly by the Ministry of Works (MOW) and consultants. iv. The proposed project provides also for the provision and installation of vehicle weighing stations and the procurement of a small amount of geotech- nical equipment. Technical assistancefor transportplanning for aid to local contractorsand for pavement evaluation and design is also included. v. Execution of the project would be the responsibilityof MOW and would extend over a period of about three years. This period is determinedby the time required for the civil works; these, in turn, have, in the Government's constructionprogram, been phased to restrict the load on the budget and on MOW to acceptablelevels. vi. About 86% of the constructionworks would be procured by international competitivebidding in compliancewith Bank Guidelines. This constructionwould consist of a number of contracts, and bidders would have the opportunity to bid for one or several contracts according to their capacity. The remaining 14% of construction,comprising the earthwork and pavement base of about four - ii - miles of road, would be executed by HOW on force account. MOW has the re- quired constructionequipment, staff and expertise to carry out such works efficiently. The weigh bridges for the vehicle weighing stations would be procured by internationalcompetitive bidding; the geotechnicalequipment would be procured by negotiated contract. vii. Quantifiablebenefits from the constructionelements of the project would derive from savings in vehicle-operatingcosts. On conservativeassump- tions, the economic return from the constructionof the road sections would be 17% tc624%, and the economic return of the project as a whole would be 20%. In adcition, the new road sections would reduce pollution and noise levels in the many built-up areas that would be bypassed. viii. The project is estimated to cost US$23.6 million equivalent,with a foreign exchange componentof US$13.7 million. The Government is seeking tech- nical assistance from UNDP and the British Government,amounting to about US$0.1 million each, toward the foreign exchange co8ts; the project would pro- vide a satisfactorybasis for a Bank loan to cover the remaining foreign ex- change costs of US$13.5 million equivalent;an appropriateterm would be 25 years, including a four-yeargrace period. JAMAICA& APPRAISAL OF A THIRD HIGHWAYPROJECT 1. INTRODUCTION 1.01 The Government of Jamaica has requested the Bank to assist in fi- nancing a project consisting of: (a) the construction,including supervision, of 20 miles of two-lane arterial road and about four miles of main access roads comprisingthe first phase of the arterial road investmentprogram for 1974- 1979; (b) establishmentof permanent vehicleweighing stations and procurement of geotechnicalequipment; and (c) technicalassistance for transportplanning, for aid to the local contractingindustry and for a study of pavement design, evaluation and performance.1/ The total cost of the proposed project is estimatedat about US$23.6 million equivalent. The total foreign cost com- ponent, estimated at US$13.7 million equivalent,would be financedby the proposed US$13.5 million equivalentBank loan and assistancebeing sought from UNDP and the British Government,in the amount of US$0.1 million each; the balance of US$9.9 million equivalentin local costs would be provided by the Government. 1.02 This would be the third highway project financedby the Bank in Jamaica. 2/ The first (Loan 408-JM, US$5.5 million, 1965) was made for de- tailed engineeringand construction,including supervision, of the Kingston- Spanish Town road (15 miles of four-laneroad) and the Moneague-CrescentPark road (four miles of two-lane road). Initially, that project also included constructionof the Spanish Town-Bog Walk road (eight miles), but this, with the Bank's approval,was subsequentlydeleted as a result of increased costs. Execution of the projectwas delayed.because of difficultiesin right-of-way acquisition,unsatisfactory performadce of subcontractors,problems in re- location of public utilities and inter-unionlabor disputes,resulting finally in abandonmentof work by the contractorafter 90% completion,the contractor claiming frustrationof contract;his claims have now been settled througn arbitration. The work was satisfactorilycompleted by force account. The loan is fully disbursed. 1.03 The Second Highway Project (para. 1.04) originated from a National Transport Survey which the Governmentmounted in 1968. The consultantsfor that survey, Lamarre Valois International(LVI, Canada),with financingfrom the Canadian International Development Agency (CIDA), were required to (a) establish and analyze costs
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