Document of The World Bank
FOR OFFICIAL USE ONLY ' FILECOWPY Public Disclosure Authorized Report No. 4901-BEN Public Disclosure Authorized
STAFF APPRAISAL REPORT
BENIN
THIRD FEEDER ROADS PROJECT Public Disclosure Authorized
April 27, 1984 Public Disclosure Authorized West Africa Projects Department Transportation II
This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization. CURRENCY EQUIVALENTS
Currency Unit = CFA Franc (CFAF) US$1.0 = CFAF 418 CFAF 1 million = US$2,592
SYSTEMS OF WEIGHTS AND MEASIJRES: METRIC
Metric British/US Equivalents 1 meter (m) 35.28 feet (ft) 2 1 square meter (m ) = 10.76 square feet (sq. ft.,) 1 cubic meter (m3) 35.30 cubic feet (cu. ft.) 1 kilometer (km) = 0.62 mile (mi) 2 1 square kilometer (km ) = 0.39 square mile (sq. mi) 1 hectare (ha) = 2.47 acres 1 metric ton (m ton) = 2,205 pounds (lb)
ABBREVIATIONS AND ACRONYMS
CARDER - Regional Development Agency (Centre d'Action Regionale pour le Developpement Economique Rural) CNAERDR - Rural Road Development and Maintenance Coordinating Committee (Comite National d'Amenagement et d'Entretien des Routes de Desserte Rurale) CNERTP - National Soils Laboratory (Centre National d'Essais et de Recherches des Travaux Publics) DEP - Directorate of Studies and Planning (Direction des Etudes et de la Programmation) DPTP - Provincial Directorate of Public Works (Direction Provinciale des Travaux Publics) DROA - Directorate of Roads and Bridges (Direction des Routes et Ouvrages d'Art) EDF - European Development Fund FRMS - Feeder Roads Maintenance Section MTC - Ministry of Transport and Communications (Ministere des Transports et des Communications) MTPCH - Ministry of Public Works, Construction and Housing (Ministere des Travaux Publics, de la Construction et de 1'Habitat) OCBN - Benin-Niger Railway (Organisation Commune Benin-Niger) PPF - Project Preparation Facility SEMTP - Equipment Maintenance Division (Service d'Entretien du Materiel des Travaux Publics) SER - Road Maintenance Division (Service d'Entretien des Routes) SERC - Division of Studies, Planning and Control (Service des Etudes, de la Reglementation et du Controle) SRDR - Feeder Roads Division (Service des Routes de Desserte Rurale) UNCDF - United Nations Capital Development Fund
FISCAL YEAR
January 1 - December 51 FOR OFFICIAL USE ONLY BENIN
STAFF APPRAISAL REPORT
THIRD FEEDER ROADS PROJECT
TABLE OF CONTENTS
Page
DOCUMENTS IN PROJECT FILE ...... (i)
CREDIT AND PROJECT SUIMARY ...... (iii)
I. INTRODUCTION ...... 1 A. General ...... 1 B. Economic Setting ...... 2 C. Agriculture ...... 3 D. Past and Future IDA Assistance ...... 4
II. THE TRANSPORT SECTOR ...... 6 A. The Transport System...... 6 B. The Road Transport Sub-Sector ...... 7
III. THE PROJECT ...... 16 A. Objectives...... 16 B. Project Description ...... 17 C. Cost Estimate...... 21 D. Financing Plan ...... 22 E. Implementation ...... 23 F. Procurement ...... 23 G. Disbursements ...... 24 H. Reporting and Auditing ...... 25
IV. ECONOMIC EVALUATION ...... 25 A. General ...... 25 B. Benefits and Beneficiaries ...... 26 C. Economic Analysis . 27
V. AGREEMENTS REACHED ...... 30
The project was prepared by the Feeder Roads Division (SRDR) with help from the technical assistance team provided by Scott, Wilson, Kirkpatrick and Partners (U.K.) under the Second Feeder Roads Project (Credit 1090-BEN). Mr. Paul Van Bronswyk (Agronomist) of the Netherlands Volunteers' Organization in Cotonou contributed significantly toward collecting and analyzing field data. The pro- posed project was appraised in May 1983 by an IDA team comprising Messrs. Kuldeep Ohbi (Economist), Louis Lekeux (Engineer) and Ms. Cynthia Cook (Sociologist). Mr. Henri Beenhakker was the mission's adviser. This re-ort was prepared by Messrs. Ohbi, Lekeux and Cisse (Engineer). Secretarial work was done by Ms. M. Griest and Mr. W. Kline.
This documenthas a restricteddistribution and may be used by recipients only in the performanceof their official duties. Its contents may not otherwise be disclosed without WorldBank authorization. Table of Contents (Continued)
ANNIEXES
2-1 Road Construction and Maintenance Expenditures and their Financing 2-2 SRDR Past Expenditures 2-3 Estimated Recovery of Recurrent Costs on Roads 2-4 Indicative List of the Equipment Composing the Different Types of Brigades
3-1 First, Second and Third-Year Programs 3-2 Socio-Economic Impact Study: Terms of Reference 3-3 Action Plan for Feeder Roads Maintenance and its Financing 3-4 Equipment to be Purchased 3-5 Technical Assistance: Terms of Reference 3-6 Training Program 3-7 Project Cost Summary 3-8 Implementation Schedule of the First Year 3-9 Implementation Schedule 3-10 Schedule of Disbursements
4-1 Key Assumptions in the Economic Analysis 4-2 Estimates of Marketable Agricultural Surpluses 4-3 Estimates of Area Cultivated (1980-81) 4-4 Summary of Costs and Benefits (First Year Program) 4-5 Sensitivity of the ERR to Changes in Underlying Assumptions
MAPS
7BR'D 17313R (i)
BENIN
THIRD FEEDER ROADS PROJECT
DOCUMENTS IN THE PROJECT FILE
INFORi4ATIONCENTER CODE: DOC. #129 519
Ref. No. Document
1. SRDR, Deuxieme Rapport Economique Intermediaire (Methode d'Evaluation et Routes Evaluees), Rapport NO. 81042/34, March 1981.
2. SRDR, Troisieme Rapport Economique, December 1982.
3. SRDR, Proposition pour le Troisieme Projet de Routes de Desserte Rurales, undated.
4. SRDR/Centre d'Appui au Developpement, Etude de l'Impact Socio-Economique de l'Amelioration des Routes Rurales, May 1983.
5. SRDR, Propositions des Etudes de l'Impact Socio-Economique des Routes Rurales pour le Troisieme Projet, undated.
6. SRDR, Reseau Routier Rural de la Republique Populaire du Benin (Liste des 10.000 km de piste identifiees par les CARDERS), undated.
7. SRDR, Sommaire du Reseau Routier de la RPB, undated.
8. SRDR, Besoins en Infrastructure Routiere Rurale et Routes Selectionnees pour le Troisieme Projet Routes de Desserte Rurales, undated.
9. Presidence de la RPB, Decret No. 81-452 du 30 Decembre 1981 portant creation du CNAERDR, December 1981.
10. SRDR, Organisation du Service des Routes de Desserte Rurales December 1982.
11. Centre d'Appui, Etude Pilote de l'Impact Socio-Economique de l'Am!&liorationdes Routes Rurales: 2eme Rapport Trimestriel, December 1982. (ii)
12. Scott Wilson, Kirkpatrick and Partners, Project Preparation Documents, undated.
13. SRDR, Division Economique, Manuel Administratif, March 1983.
14. Finagnon IMIathias OKE, Universite Nationale du IB6nin, Dept. de Recherche en Sciences Humaines et Sociales, Etude du milieu: cas de projet de route rurale APLAHOUE-ATOME- ASONDOGQUIN, 1 983.
15. Ministry of Rural Development, "Evolution of Agricultural Production, 1969/70, 1981/82, May 1983.
16. Conversion factors for cereal equivalents, September 1983.
17. Various working papers on demography, coordination, training, socio-economic impact, local participation and benefits and beneficiairies, undated.
18. Philibert Alexis Quenum, Universite Nationale du B3n,n: Faculte des sciences juridiques, economiques et politiques, l'Efficacite des routes de desserte rurales dans l'economie Beninoise - memoire de maltrise es-sciences economiques, 1982.
19. Benin - Country Economic Memorandum (in four volumes), August 1983.
20. Benin - Transport Sector Strategy Paper, November 1983.
21. Details of Calculations of Economic Rates of Return, November 1983.
22. MTPCH, Direction des Routes et Ponts, Division des Routes de Desserte Rurales, Details types des ouvrages et des profils routiers, undated.
23. MTPCH, Direction des routes et ouvrages d'art, Service des routes de desserte rurales, Deuxieme projet de routes de desserte rurales, Etude de l'impact socio-economique de l'amelioration des routes rurales, volume de donnees complementaires et annexes, December 1983.
WAPT2 Apr. 1984 (iii)
PEOPLE'S REPUBLIC OF BENIN
THIRD FEEDER ROADS PROJECT
CREDIT AND PROJECT SUMMARY
Borrower: The People's Republic of Benin.
Beneficiary: Feeder Roads Division (SRDR) of the Ministry of Public Works, Constructior and Housing (MTPCH).
IDA Credit Amount: SDR 5.7 million (US$6.0 million equivalent). Special Fund Credit: SDR 5.7 million (US$6.0 million equivalent).
Terms: Standard IDA terms
Project Description: The major objectives of the project are to: (a) support rural development through the construction/improvement and maintenance of feeder roads; (b) improve the local planning, coordination and work execution capacity; and (c) test the effectiveness of complementing feeder roads construction with upgrading some contiguous footpaths to trafficable low standard tracks. To achieve these ob- jectives, the project would consist of: (a) construc- tion/improvement of: (i) 840 km of feeder roads; and (ii) on a pilot basis, low standard tracks connecting some remote villages to these feeder roads; (b) main- tenance of about 2,000 km of feeder roads; (c) pro- curement of equipment and tools to complete equipping four labor intensive brigades and one bridge brigade and to replace some of the aging existing equipment; (d) technical assistance: (i) to SRDR for implementation of the project and of the training program; (ii) for carrying out a socio-economic impact study to monitor the growth of traffic and analyze motives for trips generated, assess the medium-term (10 year) needs for feeder roads, and monitor the pilot scheme for low cost tracks; (iii) to Directorate of Roads and Bridges (DROA) for the MTPCH training school in Cotonou and for the Equipment Maintenance Division (SEMTP); and (e) the preparation of a future project. (iv)
Project Benefits a;nd Risks Project benefits would be derived from the incremental value added to agricultural production, which would accrue -to farmers whose incormes are currently 30-70% of the national average. Additional but non-quantified benefits would be derived from transport of non- agricultural goods, improved road safety, comfort and reduced journey time. The project would help the Govern- ment realize a part of its rural development objectives. The main risks are slow and uncoordinated implementation and insufficient maintenance of the roads resulting in reductions in the anticipated volumes of agricultural production marketed. These risks would be minimized by: (i) strengthening SRDR's management, training office and field staff; (ii) basing SRDR's annual work programs on the priorities of local development agencies (CARDERs) and requiring that they be approved by the national Rural Road Development and Maintenance Coordinating Committee (CNAERDR) and submitted for IDA approval prior to start- ing construction; (iii) creating in SRDR a feeder road maintenance unit and implementing an Action Plan to ensure timely maintenance of feeder roads; and (iv) as a condition of approval of the second and third year work programs, requiring SRDR's budget to show line items for the counterpart funds and feeder road maintenance needs.
Summary Project Cost Estimate US$ (thousand)
Local Foreign Total
1, Technical Assistance, Training and Con sultants Services for future project preparation 465 1,614 2,079 2a Equipment 96 861 957 3. Road Construction and Periodic Maintenance (a) Feeder roads 3,788 1,540 5,328 (b) Low standard tracks 345 158 503 (c) Periodic maintenance 245 100 345 4d Maintenance 436 133 569
Total Base Cost 5,375 4,406 9,781 Physical contingencies 752 617 1,369 Price contingencies 1,129 925 2,054
Total Project Cost 7,256 5,948 13,204 Rounded 7,255 5,945 13,200
77 Net of taxes and duties. (v)
Financing Plan:
US$ -thousands Local Foreign Total
IDA 3,120 2,880 6,000 IDA Special Fund 2,935 3,065 6,000 Government 1,200 - 1,200 Total 7,255 5,945 13,200
Estimated Disbursements (Uss'000):
IDA Fiscal Year 1985 1986 1987 1988
1. IDA Annual 60 2,580 2,580 780 Cumulative 60 2,640 5,220 6,000
2. IDA Special Fund Annual 420 2,940 2,220 420 Cumulative 420 3,360 5,580 6,000
Economic Rate of Return: The estimated overall ERR for the first year tranche of the project is 29%. To be eligible for financing, individual roads in the second and third year tranches of the project must yield a minimum ERR of 12% each.
Staff Appraisal Report: No. 4901-BEN
Map: IBRD 17313 R
WAPT2 Apr. 1984
BENIN
THIRD FEEDER ROADS PROJECT
I. INTRODUCTION
A. General
1.01 The Government of the People's Republic of Benin has requested IDA's assistance in financing a three-year follow-up project for institu- tional strengthening and construction/improvement and the maintenance of feeder roads. The estimated project cost is US$15.2 million equivalent. The Government would contribute US$1.2 million of the estimated cost, leaving IDA and IDA Special Fund to finance the remaining US$12 mil- lion. The proposed project would be IDA's third intervention in the subsector. It would: (a) support rural development by constructing and maintaining feeder roads; (b) improve the 1oCEal planning, coordination and work execution capacity; and (c) test the effectiveness of comple- menting feeder roads construction with upgrading some contiguous foot- paths to trafficable low standard tracks. The project would provide for about 840 km of feeder roads, some spare parts and complementary equip- ment for the brigades and technical assistance and training to the Feeder Roads Division (SRDR) and the Directorate of Roads and Bridges (DROA).
1.02 Although other donors are involved to some extent in feeder roads in Benin, IDA is playing a special role in improving the planning, coordination and efficiency of work execution and in developing a mainte- nance capacity. IDA's strategy of institution building in concert with local staff training has begun to produce good. results. ALthough output of brigades shows an improving trend, much remains to be done before SRDR can effectively discharge its responsibilities. Continuity of IDA assistance is essential to consolidate and accelerate progress made in training local staff, maintaining feeder roads and the planning, coordi- nation and execution of works. - 2 -
B. Economic Setting
1.C3 The country of Benin covers about 112,600 km2 and is bordered by Nigeria in the east, Togo in the west and Niger and Upper Volta in the north. Benin's seaboard is about 150 km from east to west and the dis- tance from south to north is some 700 km. With the exception of the Atacora range in the northwest, the terrain is generally flat. In the center and south, the fertile flood plains of the Kouffo, Mono, Okpara, Oueme and Zou rivers have considerable agricultural potential, but they present obstacles to east-west transport. The project roads would be located in the central and southern regions in four of the country's six provinces: Borgou, Mono, Oueme and Zou. Other financiers are assisting f'eeder roads developments in Atacora and Atlantique Provinces (i?ara.2.10).
1 04 The country's economy is based mostly on traditional farming. Four-fifths of the population lives in rural areas and about three- fourths of the labor force is engaged in the agricultural sector.-/ The average annual growth of the total population is 2.6%, but this varies from about 1.3% for the rural population to about 8% for the urban popu- lation, reflecting internal migration patterns. Agriculture contributed about 43% of the GDP in 1981 and provided about 36% of the foreign ex- change earnings. The industrial sector consists mainly of a few import substitution and agricultural processing plants. Known mineral resources are limited, although recently, phased exploitation of the small Seme offshore oil field has begun. High production costs and soft prices in the international markets remain however as impedimen-ts to significant oil development beyond the anticipated 4,000 to 10,000 barrels per day. Cement and sugar are the other major industries but also face problems of production costs, pricing and market uncertainties. Although gold and phosphate prospecting has been pursued, to date there is no indication of commercially exploitable deposits. Thus, in the absence of major mineral resource endowments and with a limited industrial base, agriculture is expected to remain the mainstay of the economy in the foreseeable future.
1.05 There is considerable potential for rural development and the Government has recognized it by planning to dramatically increase the proportion of public investrent devoted to this sector. Although the volume of planned investments (some CFAF 15 billion in 1977-80 vs. CFAF 137 billion in 1983-87) is optimistic and unlikely to be fully realized, the Government's priority to rural development is appropriate. "he pro- posed project would assist the Government to support rural and agricul- tural development efforts.
1T In 1982 the total population was estimated at 3.5 million with a per capita GDP of about US$300. - 3 -
Benin - Past and Planned Public Investments
Public Investments 1977-80 Planned Public Investments 1983-87 (CFAF 243 billion) (CFAF 410 billion)
A~~~~~~
A - Rural Development 10.3 A - Rural Development 22.9 B - Industry 38.2 B - Industry 12.6 C - Public Utilities/Energy 14.7 C - Public Utilities/Energy 7.3 D - Transports 29.0 D - Transports 27.6 E - Other 7.8 E - Other 29.6 100.0 100.0
Solurce: Benin Economic Memorandum, Vol. 1, 1983, (Ref. #19) a/
a Selected documents available in the Project File are listed on pages (i) and (ii) and referred to in this report by their reference number on these pages.
1.06 Aware of the need to carefully manage its resources better, the Government is attempting to make the agricultural sector more efficient; it plans to phase out farm input subsidies; raise producer prices; stimu- late production of food crops, and emphasize agricultural exports, on which Benin depends for a significant share of its foreign receipts. Generally, there is also a move to de-emphasize state control of the economy.
C. Agriculture
1.07 Agricultural activities are dominated by traditional staples: manioc and yams. Maize is increasingly being grown for sale to the urban population. Food crops are mostly grown on private farms in Benin which are typically small, ranging from about 1.8 to 3 ha. Commercial output of these farms is sensitive to price and availability of transport alter- natives to porterage. Although the Government nominally sets prices for food crops, they are sold in free markets at two to three times the offi- cial price. Government intervention in food crops generally is limited to extension services provided by the regional development agencies (CARDERs). The major export crops, i.e. palm products, groundnuts and (otton, are generally produced, processed and marketed under Governmen-t control.
2000- Benin - Main Crops Produced
1900 -
1800 /
O 1700_
1600_
1500_
1400
1300
1200- , 1 1 1 '1 1 1 7 7 9 9 9 7 7 7 7 8 6 7 8 9 0 1 2 Average Manioc Yams haize Sorghum Rice Beans Ground- Palm Palm last 3 years nuts Oil Kernels Total ('000tons) 629 68 289 59 10 22 60 15 54 1,826
Source: SRDR, Troisieme rapport economique, Dec. 1982 (Ref. #2).
1.08 Livestock is important mainly in the north and fish in the south, with its numerous lagoons and lakes. Overall, traditional food crops are likely to continue supplying the major part of the daily calo- ric intake.
D. Past and Future IDA Assistance
Feeder Roads
1.09 The proposed project would be IDA's third intervention in the feeder roads area in Benin. The strategy in the preceding projects was based on the need to: (a) lay the institutional foundation for the admi- nistration, planning and execution of feeder roads; and (b) train local managers and field personnel in managing and executing low-cost road construction and maintenance. Establishing a sound institutional basis - 5 -
in concert with extending accessibility to rural pockets of economic po- tential has proved to be an appropriate strategy. After initial imple- mentation difficulties, the strategy is now producing acceptable results and sufficient capacity exists to absorb further investments in feeder roads. IDA experience with feeder roads in Benin is reviewed in Chapter II.
Highways
1.10 The Third Highway Proj ct (Credit No. 746-BEN, signed in November 1977, US$10 million) _ , completed i-n June 1983, rehabilitated a 107 km section of the country's main north-south highway and expanded the maintenance program begun under the first two highway projects. The prcject completion report for the Third Highway Project notes that there were cost overruns and the project scope had to be reduced during imple- mentation. Although the economic rates of return compared favorably with the appraisal estimates, the project completion report notes that insti- tutional development objectives were only partially met. The Fourth Highway Project (Credit No. 1142-BEN, signed in July 1981, SDR 9.3 mil- licn), to be completed by 1985, provides for the resealing of a 54 km stretch carried over from the Third Highway Project, plus rehabilitation of 500 km of gravel roads. The Government has requested assistance to upgrade the final section of Dassa-Parakou (210 km), the main north-south highway. This project (if accepted for IDA assistance) would be a suit- able vehicle for introducing sectoral policy changes aimed at restoring the competitive advantage of the Benin route (para. 2.03) and assisting the Government address the future role of the railway (para. 2.04) which has been running losses on operations since 1975.
1.11 The Government has also requested and IDA has approved a Project Preparation Facility (PPF) for preparation of a transport infrastructure rehabilitation and maintenance project, following the dialogue between IDA and the Government aimed at shifting priorities from construction of new roads to maintenance of the existing network. This project is now being prepared. The major objectives of this project are to create capa- city and improve efficiency of road maintenance (para. 2.03), restructure the road maintenance finances with a view toward increasing maintenance funding and streamlining budgetary allocations (para. 2.11) and improve efficiency of transit operations through Benin.
Rural Development Projects
1.12 Two rural development projects, one in Borgou Province (Credit No. 1127-BEN, signed in March 1981, SDR 15.7 million) and another in Zou Province (Credit No. 1314-BEN, signed in February 1983, SDR 18.7 million) are currently being implemented. Both aim to increase food and cotton production and to strengthen institutional and technical infrastructure.
1/ Credit amounts are denominated in either US$ or SDR depending on the denomination used in the legal documents. -6-
Tne proposed project would support the objectives of these projects through improving feeder road transport.
II. THE TRANSPORT SECTOR
A. The Transport System
2.01 The transport sector is important in Benin and has absorbed about a quarter of the public investments and provided about a fifth of ths formal employment. Aside from satisfying domestic demand, the sector supplies transit services for land-locked Niger. Prospects for major sector developments, however, remain modest because of the small size of the domestic market, compounded by economic difficulties at home and in neighboring countries.
2.02 Roads are the dominant transport mode; three-fourths of all freight and 90% of passenger movements are by road. Overall, the extent of the main network is adequate for Benin's needs. The Government is planning to pave by 1988 the remaining unpaved section of the main south-- north route, the Dassa-Parakou (210 km) section. A feasibility study to de.ermine the economic viability of this project is expected to be comopleted by end-1984. There is however need to expand coverage of feeder roads to integrate areas of agricultural potential within the economy. The deteriorated feeder roads are a constraint to expansion of agriculture. Equally critical is the even worse condition of paths and trails connecting farms to markets and collection points along the feeder roads. Expansion of agriculture partly depends on farmers being confi- deat that farm surpluses can be transporte,le-* reasonable cost. Im- proving paths and tracks wold permit use of more efficient transports than porterage (motcrcyles, bicyles and public transport vehicles) to serve farmhoLds Located some distance away from feeder roads (para.3.06).
2.03 The heart of Benin's transport system is the international Port of Cotonou. Port capacity was recently expanded to about 1.2 million tons of general cargo a year with assistance from several donors includ- ing IDA (Credit No. 826-BEN, signed in October 1978, US$19.3 million). Port traffic has ranged from 1.0 to 1.5 million tons over the past five years, including substantia:Ltransit traffic for Nigeria through 1979 when Nigerian port capacity was expanded. Although the alternativetran- sit,routes for Niger traffic have begun to attract a part of the transit traffic, particularlythrough Togo, Niger continuesto rely on Benin's transit corridor,and accounts for about a third of Cotonou's total ton- nage handled. Cotonou Port capacity is sufficientfor the foreseeable needs, although the rust-damagedpilings of the eastern jetty will re- quire rehabilitationsoon.
2.04 A 'bi-national autonomous agency, the OCBN, operates a 440 km railroad line from Cotonou north to Parakou where goods bound for Niger and northern Benin are transferredto trucks. OCBN controls the trans- shipment and also runs two sparsely used coastal lines: (a) the 107 km eastern link between Cotonou and Porto Novo-Pobe; and (b) the 33 km -7-
western extension connecting Segboroue to Cotonou. OCBN has been making losses on operations since 1975. (In 1982 OCBN lost about CFAF 850 mil- lion on revenues of CFAF 3.04 billion). IDA's policy dialogue with the Government is based on the recognition that while increased efficiency and some increase of capacity in the main north-south corridor are desirable, there is probably not enough traffic demand for a paved road and a railway to co-exist in this corridor. The feasibility study mentioned above (para. 26) will propose alternative courses of action to optimize investment in the corridor.
2.05 Several airlines serve the international airport at Cotonou. Domestic civil aviation and internal waterways account for a minor share of transport activities.
B. The Road Transport Sub-Sector
The Network
2.06 The classified road network is reasonably adequate, amounting to about 7,500 km, of which 930 km are paved and 3,640 'm gravelled (in- cluded in the gravel roads are about 1,300 km of feeder roads). The remaining 2,930 km are seasonal earth roads which, due to the lack of maintenance, have regressed to the status of tracks and foot paths. Many villages located along these roads are now cut off from markets and have few commercial exchanges with the rest of the country. The road density averages 0.065 km/km2 for the whole country, ranging from 0.050 km/km2 in the less populated northern region to 0.130 km/km2 in the more densely populated coastal region in the south.
Road Administration
2.07 The Ministry of Public Works, Construction and housing (MTPCH) administers roads through its Directorate of Roads arLd Bridges (DROA) and six provincial directorates of public works (DPTPs).
Benin - Ministry of Public Works Cornstruction and Housing
(DEP)Ad~~~~~1143tlatim & HDAIConlTucbn Hcsir
& IMWVd P C Dacta ct.m(6 ydaCc'? (DPGP)
Wn- 2I433 The DPTPs are responsible for execution of maintenance and minor cons- truction work on the classified roads while DROA is responsible for all other aspects of roads administration.
Benin - Directorate of Roads and Bridges
- .~~~~~d
DitantiS Ifof.i 6 TechI'~i DI', Uni Adrlnistratint~~Unitgs ~ ~ ~ ~ DOA
set t no. ...
t e - U1
| Feeder Roads s L~~~~~~~~~~~~~~aitacesectio=n Construct inn S.c nion . I i- 5Ieh.flhssd | | b:r Intensite | |IBl0dtftt6Cuei |t htt l Acor Br100c of SrutotLnBnrsri. C onIf 175 L2-bnrens| oi 3 L nter n0
Road Maint c DBriRade I __ -vs ngad LSRD 20 Lnbnrer a I | 20 L Ibncsrs
of the main,classifiedactu network;the intCsnma ena s aintenanteonf ie --
Intsat of I
haebe|ecnlI h g eegtdt al l werganc r PFe 20|.tes|_. PlanningControl- and (SERCC), an | 15Rquip,,nent LaScrttn Ma~~~~i ntnahnceiIS iatosrsr D4visio (SEMTinCSLbrr
SER's responsibilitiesinclude planning, coordination and qualiStnys con-tnrtl
DROA's organization is satisfactory and includes a iDivision of Studies, Planning and Control (SERC), an Rquipment Maintenance Division (SEMTP), a Road Maintenance (SER)nDivision and the Feeder Roads Division (SRDR). SER's responsibilities include planning, coordination and quality con-trol of the main, classified network; the actualLmaintenance responsibilities have been recently delegated to the genera~Lly weak !DPTPs (para. 2.09). SRDR is responsible for the planning, cons-truction and maintenance of feeder roads. SRDR's maintenance efforts will be rXeorganizedunder the project to make possible the maintenance of 2,000 "no of priority roads (para. 2.15), which represents about 80% of the all-weather feeder road network. A temporary Feeder Roads Maintenance Section (FRMS) will be attached to SRDR's existing organigram for this purpose. This temporary section is shown by broken lines in the figure abovie and described in para. 3.10. -9-
Construction
2.08 Preparation and supervision of new main road projects lies with SERC. Most projects financed by foreign aid agencies are prepared and supervised by consultants on behalf of SERC. Domestic construction in- dustry does not have sufficient capacity to undertake major new works which are undertaken by foreign contractors. Local contracting organiza- tions generally undertake construction of buildings and minor road works such as culverts and other drainage works. A public domestic contracting company (associated with a foreign firm) has been involved in rehabili- tation of paved roads under the Third and Fourth Highway Projects, with mixed results. However, periodic maintenance and improvement of second- ary gravel roads has been successfully carried out by SER's force account under the Third and Fourth Highway Projects. SRDR's labor intensive force account brigades have been particularly successful in carrying out construction/improvements of feeder roads under the Second Feeder Roads Project. This arrangement will continue under the proposed project.
Maintenance
2.09 DROA, through its SER coordinates the maintenance activities of the DPTPs. Maintenance of main classified roads has improved over the years, but is still hampered by inadequate management, shortages of qua- lified higher level staff and equipment, poor equipment maintenance and insufficient local funds. Responsibility for maintenance of unclassified roads rests with the local provincial authorities. The Government's decision to decentralize maintenance of main roads at the DPTP level reflects an attempt to improve road maintenance efficiency. However, it would take time for the DPTPs to develop capacity to maintain the network effectively. A proposed transport infrastructure rehabilitation and maintenance project, now under preparation, is aimed, inter alia, at assisting the Government develop the capacity of DPTPs in road mainte- nance and test the effectiveness of carrying out maintenance by con- tract. In the interim, SRDR will maintain about 2,000 km of priority feeder roads (para. 2.15).
Road Financing
2.10 Roads expenditures over the past four years have averaged CFAF 5,300 million (US$12.7 million) per year. Maintenance expenditures have accounted for an increasing proportion of the total -- 355% in the three years to 1982, compared with 15% in the previous three years (Annex 2-1) but are still short of the estimated needs. Expenditures on feeder roads (Annex 2-2) have increased from 4% of the total in 1979 to 20% in 1982, and are expected to continue to grow rapidly. Foreign aid has financed 60-75% of total road outlays in recent years and 85/% of expenditures on feeder road construction. Feeder roads are being sup- ported primarily by the European Development Fund (EDF), the United Nations Capital Development Fund (UNCDF) and IDA. In addition, the International Labor Organization (ILO) has a demonstration project in - 10 -
Oueme Province and the Federal Republic of Germany is involved with feeder roads in the Atlantique Province.
2.11 Despite the above noted increase in maintenance expenditures, there continues to be budgetary shortages of maintenance financing, espe- cially for feeder roads. Taxation of road users appears adequate to cover the maintenance of the main and feeder road network (para. 2.13). However, the majority of the revenues from these taxes goes to the Gov- ernment's general budget with the maintenance of roads remaining under funded. The proposed project will provide temporary relief by financing a part of these maintenance expeditures. The proposed transport infra.- structure rehabilitation and maintenance project will address maintenance requirements more generally, including appropriate arrangements for allocating sufficent funds and raising revenues commensurate with main- tenance needs.
Recovery of Recurrent Costs on Roads
2.12 Forecasts of the Government's recurrent costs for maintenance of main and feeder roads for 1983-87 and revenues from the major sources of taxes i.e. motor fuels 1/ and taxes and duties on imports of new veThicles,
Benin - Estimates of Recurrent Cost Recovery
3000 LEGEND
Cost
1983 1984 1985 19% 1987
'U Current taxes on gasoline and diesel fuel are CFAF 47/it and CFAF 29/lt respectivelyR The retail pump price of gasoline and diesel fuel is CFAF 163/lt and CFAF 132/it respectively, compared with the border price (oie Cotonou) of CFAF 82/it and CFAF 85/it. The difference between the retail price of motor fuels and the border price, after accounting for the above taxes, is made up by the sole source national distributors' profits, operating costs and levys for price stabilization and price equalization for transport costs, etc. - 11 -
spare parts and tires are shown in Annex 2-3. I/ Road maintenance costs are estimated based on the assumption that all of the network will be maintained adequately and thus require about CFAF 1 billion more than is currently budgetted for. Recurrent costs of road maintenance include both routine and periodic operations. The latter could be considered a capital cost, but being recurrent annually, has to be covered as a recur- rent cost and budgetted for.
2.13 Because of the existing maintenance backlog (arising from underfunding and insufficient capacity of S3R as well as the weak DPTPs) the estimated maintenance needs are expected to increase from about CFAF 2.4 billion in 1983 to about CFAF 3.5 billion in 1987. Included in these figures are the maintenance needs of feeder roads which will grow from about CFAF 71 million in 1983 to about CFAF 211 million in 1987 corresponding to an average annual increase of some 30%. Revenues from conservatively estimated road user charges are expected to increase from about CFAF 3.4 billion to some CFAF 3.6 billion over the corresponding time horizon; thus indicating that revenues from existing road user charges would adequately cover the recurrent costs of maintaining the main and the feeder roads.
Planning and Coordination of Feeder Roads
2.14 SRDR is responsible for planning and coordination of feeder roads. A data base for rural road planning was established in SRDR under the Second Feeder Roads Project. SRDR compiles provincial-Level data on population, agricultural production and social infrastructure. Although the quality of SRDR's data base is improving, there remain deficiencies particularly regarding traffic on feeder roads, A socio-economic impact study to be carried out under the proposed projet is expected, inter alia, to improve traffic data (para. 3.02). The regional development agencies (CARDERs), taking into account the level of interest of local communities, suggest road improvement priorities to SRDR, which uses its data base to evaluate the local priorities and to develop its annual work program. This program is submitted for approval to the National Rural Road Construction and Maintenance Coordinating Committee (CNAERDR). The minister of MTPCH is the chairman of CNAERDR and the committee comprises representatives of the technical, finance, planning and rural development ministries and directors of CARDERs. The inclusion of the directors of CARDERs in this committee is a positive step to ensure that SRDR's work programs reflect local development needs and are coordinated with the complementary investments planned by the Ministry of Rural Development.
1/ As data on revenues from taxes and duties on imports of new vehicles, spare parts and tires are unreliable, the consultants estimate of CFAF 1.9 billion in revenues from these sources is open to a margin of error. The consultant's estimates have therefore been reduced to CFAF 1 billion in revenues for 1983 to take into account the weak data base. Efforts are underway to create a reliable transport data bank as part of the preparation of a proposed infrastructure rehabilitation and maintenance project. - 12 -
Du-ring negotiations, Government agreed to maintain CNAERDR for the du-ration of the project.
Maintenance of Feeder Roads
2.15 The Second Feeder Roads Project provided short-term capacity in SRDR to ensure maintenance of 1,200 km of feeder roads because under- funded local authority efforts rarely ensured all weather utilization of feeder roads. Although late in starting, SRDR has made satisfactory progress in maintaining designated feeder roads. Pending the development of naintenance capacity at the provincial level, a temporary feeder road maintenance section (FRMS) will be created in SRDR to maintain 2,000 km of priority feeder roads under the proposed project.
2.16 The FRMS will be headed by an experienced Beninese engineer and assisted by an expatriate training officer experienced in road mainte- nance. FRMS will, inter alia, plan, program and execute routine and per-odic maintenance.
IDA Involvement in Feeder Roads
2. 7 The First Feeder Roads Project (Credit No. 717-BEN, signed in May 1977, US$5-5 million) was conceived as the first phase of a longer term feeder roads improvement and maintenance program. In addition to successfully establishing an effective Feeder Roads Division in MTPCH, the project tested three different construction methods comprising equip- ment intensive, moderately equipped and labor intensive brigades, and demonstrated that under proper management labor-intensive construction methods are competitive with equipment-intensive methods. In retrospect, the project implementation schedule was optimistic. It took 18 months before the project started to operate at the planned speed. This delay was due to cumbersome administrative procedures and the pilot nature of the project. Additionally the 134 man-months of technical assistance foreseen at appraisal had to be increased by 57 man-months to 191 man- months because the Government was slow in completing staffing of the Feeder Roads Division. During this period the exchange rate of the US dollar with respect to the CFAF deteriorated significantly and inflation was Df the order of 18 percent annually. As a result of this and of cost increases over the appraisal estimates, only 350 km of the target 845 km were constructed with available credit funds.
2.18 The follow-up Second Feeder Roads Project (Credit No. 1090-BEN, signed in January 1981, SDR 5.5 million) underway since February 1981, provides for construction of 700 km of feeder roads and maintenance of 1,2550 km and continues institutional development through technical assistance and training. Overall project implementation is satisfactory with the exception of the heavy equipment-intensive brigade. Labor- intensive works have progressed well because the technical assistance has ensured adequate site management, timely and regular payment of wages to latorers and local communities have provided disciplined labor. However, availability of labor has become a constraint to further expansion of labor-intensive works in some parts of the country and for certain types - 13 -
of work such as quarry operations. Whereas labor has traditionally been a constraint in the sparsely populated north, attractive wages in Nigeria have begun to limit availability of required quantities in Ou6me and Mono provinces in the south. Thus, while recruitment is constraining labor- intensive works, the mechanized works have not progressed as planned because SRDR does not have sufficient managerial capacity to make optimal use of the heavy construction units such as the equipment-intensive brigade (the size of which normally requires well equipped maintenance and repair facilities at the work site as is the case with works executed on contract). Works undertaken with the heavy equipment-intensive brigade have thus continued to suffer from interruptions associated with heavy equipment downtime resulting from insufficient strategic planning and inadequate logistic support. There being no reasonable prospects for improving performance of the heavy equipment-intensive brigade, its equipment intensity will be made manageable by reducing its size under the proposed project. The surplus equipment thus freed will be used to mechanize some tasks of the labor-intensive brigades, thereby reducing heavy demands on labor and to create a third maintenance brigade. Reducing equipment-intensity will make the brigade more mobile than before and appropriate for works on short streches of roads typical of the proposed feeder roads project.
2.19 SRDR now operates a total of seven construction brigades, a specialized bridge construction brigade and two maintenance brigades. Annex 2-4 shows the composition of the brigades. The seven construction brigades comprise the four labor-intensive brigades, and the problem prone heavy equipment-intensive brigade, all financed by IDA, plus two UNCDF labor intensive brigades in the north. Although SRDR has expanded from four brigades under the First Project to ten brigades at present (amounting to some 1,800 field and headquarters personnel), SRDR has reached the limits of effective capacity to provide site management and logistic support to feeder road operations. Because of past delays in staffing SRDR and weaknesses in the training program, counterpart staff have not been fully trained. SRDR has now reached the capacity limit to effectively provide site management and logistic support for feeder roads construction. To avoid disrupting the momentum of project execution, technical assistance services have had to be increased by 44 man-months beyond the 106 man-months foreseen at appraisal. Overall, the technical assistance has been satisfactory in transferring technology and training counterpart staff considering that while Uhe man-months of technical assistance services have decreased somewhat, SRDR workload has increased considerably in tandem with increasing productivity of the field bri- gades. The following graph compares planned and actual quantities of technical assistance during the First and Second Feeder Roads Projects: - 14 -
Benin - Planned vs. Actual Technical Assistance
LEGEND: 200 - ' r_vn~~ A-Planned 'SQ< B- Actual
160 ? W g Brigade Chiefs B
^140 - AX Economist
Accountant
60 I HQ e EngineerL
Mission Chief
First Feeder Second Feeder a! Roads Pro.ect Roads Project
-/ At end of December 1983.
However, with recruitment of labor becoming a constraint, labor-intensive cornstuction activities should not be expanded until the completion of the proposed project which would provide additional training to strength- en SRDR. The need now is to reduce heavy dependence on labor through the mechanization of some of the more laborious tasks such as excavation of laterite.
2.20 By about June 1984, when the 9econd Feeder Roads Project is expected to be completed, abou-n 650 km of the targeted 700 km are ex- pected to be constructc-s,.The main reason for the shortfall in the cons- truction target ish DRq s relative inexperience in managing the heavily- equipped construction brigade and the resulting poor performance of that br1gade, Therefore, the mix of construction technology under the pro- posed project will be changed to reflect a better balance between the need to reduce excessive dependency on labor on the one hand and the need to reduce dependance on the heavily equipped brigade on the other.
Choice of Construction Technology
2.21 In light of the above, the proposed project will optimise the labor and equipment components of the construction brigades with the objectives of reducing the labor requirements of the labor-intensive brigades, reducing downtime of the mechanized brigade and increasing product;ivity. The use of two different construction technologies remains justified in order to achieve about 300 km of works per year without having to multiply the number of labor-intensive brigades and to cope with the difficulties of recruitment, mainly in the Oueme province ad- jacent to the Nigerian border. The project will use four labor- - 15 -
intensive, one mechanized and a bridge brigade to achieve its construc- tion objectives. The existing heavy equipment-intensivebrigade will be dismantled and its equipment shared for: (a) creating the mechanized constructionbrigade to be used under the project and (b) creating a mechanized maintenance brigade for the southern region. Quarry operat- ions of the labor-intensivebrigades will be mechanized. The transfer of equipment should result in improved performanceand manageabilityof the mechanized brigade; mechanizing the quarry operations would improve the productivityof the labor-intensiveconstruction brigades by about 10% and reduce the critical problem of labor recruitmentby reducing the size of these labor-intensivebrigades from 275 laborers to only 175.
Road Transport and Road Transport Industry
2.22 Size and compositionof Benin's vehicle fleet can only be appro- ximately determined. The vehicle fleet appears to have remained almost cornstantat about 13,000 vehicles since 1970, although its composition has changed: passenger cars and pick-ups decreased from 83% (1970) to 56% (1979); light trucks (up to 7 tons) increased from 7% to 25%, and heavy trucks and trailers from 10% to 19%. Fuel consumptionhas grown at an average rate of 4.5% per annum between 1970 and 1981, partly attribu- table to the changes in vehicle fleet composition.
2.23 The road transport industry consists of para-publicand private enterprises. The para-publiccompanies are e:agagedin own account oper- ations and are generally inefficientwith the fleet averaging about 20,000 km per year per vehicle. Most of the internationaland national transport is handled by the larger private transporters. Some 400 small private trucking concerns,with four vehicles or less, handle short dis- tance transport and operate fairly efficiently,however, at tariffs which may be below cost due to insufficientdemand.
2.24 Freight and passenger tariffs, set by inter-ministerialdecree and infrequentlyrevised, do not generally provide transporterssuffi- cient margin to allow for proper equipment maintenanceand renewal. Since, however, private transportersdo not strictly adhere to official tariffs, in reality it is supply and demand and road conditionswhich determine rates. Transport on feeder roads is particularlysensitive to the physical conditionof these roads. SRDR estimates that because of advanced deteriorationon some of the roads included ulnderthe proposed project, up to about one half of the marketable crops from the farms served by these roads could not be evacuated and thus spoiled during the 1980-81 harvest for lack of transportother than porterage. A socio- economic study aimed largely at assessing developmentof traffic after road constructionwas carried out under the Second Feeder Roads Project (Ref. # 4) and suggests that the roads constructedunder previous proj- ects have had a positive impact on the villages served. Markets have developed following provision of roads. Traffic on the sample of roads studied has exceeded appraisal estimatesbut, overall, the data base remains weak. To remedy this shortcoming,among other things, a follow-up study is proposed under the proposed project (para. 3.08). - 16 -
III. THE PROJECT
A. Objectives
3.01 The main objectives of the proposed project are to:
(a) support rural development (especially IDA-asslsted pro- grams in Borgou and Zou provinces) by the construction and maintenance of feeder roads;
(b) improve local capacity to plan, coordinate and execute such works; and
(c) test the effectiveness of complementing feeder roads cons- truction with upgrading some contiguous footpaths to traf- ficable low standard tracks.
B. Project Description
3.02 To achieve these objectives, the following components are pro- posed:
(a) construction/improvement of: (i) 840 km of feeder roads; and (ii) on a pilot basis, low standard low cost tracks connecting selected remote villages to these feeder roads;
(b) maintenance of about 2,000 km of feeder roads covering almost 10O% of the constructed feeder road network;
(c) procurement of equipment and some tools to complete equip- ment of the existing 4 labor intensive brigades, 1 bridge brigade and to replace some of the aging existing equip- ment;
(d) technical assistance: (i) to SRDR for implementation of the project and of the training program; (ii) for carrying out a socio-economic impact study to monitor the growth of traffic and analyze motives for trips generated, assess the medium-term (10-year) needs for feeder roads in the country, and monitor the pilot scheme for low-cost tracks; (iii) to DROA for MTPCH training center in Cotonou and for the Equipment Maintenance Division (SEMTP); and
(e) future project preparation.
Construction of Feeder Roads
3..03 The Feeder Roads construction program has been established by the SRDR to reflect the local priorities of the CARDERs and is based on an estimated productivity of 100 km/year for the mechanized brigade and - 17 -
50 km/year for each labor-intensive brigade. All the roads have been evaluated individually for economic feasibility and are important for ongoing rural development projects and/or the local development priori- ties of CARDERs.
3.04 The 3-year program covers four provinces and includes 840 km representing about 29% of the unclassified roads (2,930 km, para. 2.06) in the country. Three hundred and fourty kilometers of these are of par- ticular importance for the Zou rural development project and 182 km for the Borgou Province (para. 1.12). The first year construction program, consisting of 240 km is firm, and has been approved by CNAERDR (Annex 3-1, page 1). The second and third year programs (Annex 3-1, pages 2 and 3) are tentative and subject to change because they have not yet been approved by CNAERDR. During negotiations, the Government agreed that, in case of changes from the tentative program: (a) roads substituted for those included in the existing program should have a minimum 12% ERR; and (b) each year's work program should reflect a rea- sonable geographic coverage in the four provinces. Government also agreed to submit the CNAERDR approved second and third years' work programs for IDA review at least three months before the beginning of their implementation and to start construction of individual roads only after approval by the Association.
3.05 Design standards used by SRDR for construction were established during the two previous projects and remain satisfactory (Ref. #22). Depending on the expected average daily traffic, these are:
Benin - Design Standards in Road Construction
Less than 20 vehicles More than 20 vehicles Clearing width 8 m 10 m Road formation width 5 m 6 m Gravel surface width 4 m 4 m Gravel thickness 0 - 20 cm 0 - 20 cm Drainage Lateral ditches, fords and culverts
The thickness of the gravel wearing course varies from 0 - 20 cm and reflects soil conditions. Bridges would be provided only exceptionally where clearly warranted by volume of traffic.
Low Standard Tracks
3.06 In view of its experimental nature and its modest cost, the list and location as well as the total number of kilometers to be built under the pilot program of low standard tracks has not been specified. The program will consist of upgrading some existing foot paths linking remote villages to feeder roads. The works would be limited to provision of drainage, widening the carriage way to 3.50 meters and minimal graveling to provide all-year accessibility for four-wheeled light vehicles. - 18 -
3.07 To select the low standard tracks to be constructed, the Govern- ment agreed during negotiations to comply with the following criteria and conditions: (a) individual tracks do not exceed 10 km in length; (b) each track links one or more small communities to a feeder road cons- tructed under the project; (c) the beneficiary communities are willing to provide labor for maintenance of the track; and (d) the provincial autho- rities include in their annual budgets sufficient funds to cover the recurrent costs of track maintenance. The project would provide hand- tbols and training to maintain the tracks during the first year.
3.08 During implementation of the socio-economic impact study the pilot scheme will be systematically monitored and evaluated in order to develop more specific criteria for selecting other tracks to be included in a possible follow-up project. During negotiations Government confirmed the terms of reference for this socio-economic study 7nrLnex 3-2).
Feeder Road Maintenance
3509 Because of the uncertain quality of current maintenance efforts (para. 2.15) and as an interim measure, the project would provide for the maintenance of about 2,000 km of priority feeder roads. These priority roads would include those constructed under the proposed project and the first and second IDA-financed projects as well as the projects financed by UNCDF and EDF. They constitute about 80% of the all weather feeder roads. Three hundred kilometers of these priority feeder roads are already being maintained by the DPTPs and will continue to be so main- tained under SRDR's supervision. Small-scale experiments to assess cost- effectiveness of maintenance by contract with either local communities or petty contractors originally planned under the Second Feeder Roads Project will be carried out under the proposed project. Carrying out maintenance by contract is one of the objectives of the future transport infrastructure rehabilitation and maintenance project.
3.10 A feeder road maintenance section (FRMS)would be created in SRDR and later integrated in the SER after SER's road maintenance capacity is developed under the envisaged transport infrastructure rehabilitation and maintenance project. Technical assistance would be provided to assist the management and operations of the FRMS. I-twill have three regional offices: one for the southern provinces, and one each for the larger Atacora and Borgou provinces. Each regional office will be headed by an experienced technician and assisted by a road supervisor to make sure that planned maintenance is executed. During negotiations, Government agreed that the heads of regional offices and the road supervisors to assist them would be in place by December 1984. Routine maintenance will be done by gangs of about 20 laborers attached to eacn regional office. The number of gangs in each regional office will vary depending on the density of the feeder roads to be maintained. (Each gang will maintain about 100 km of feeder roads). For unforeseen needs, each regional office will have one gang of 15 laborers trained to handle emergency maintenance. Periodic maintenance (mostly grading) will be ensured by 2 mechanized brigades: one for the southern provinces and the other for - 19 -
Atacora and Borgou provinces. During negotiations, the Government agreed to implement maintenance of the feeder roads in accordance with the action plan for feeder roads maintenance and its financing (Annex 3-X).
5.11 Routine maintenance operations will be done essentially by labor-intensive methods while seasonal grading will be carried out by mechanized methods. A second mechanized brigade, for use in the south would be created (with part of the equipment made available from dis- mantling the existing heavy mechanized brigade) to supplement the exist- ing mechanized maintenance brigade.
Equipment
3.12 Most of the equipment purchased or rehabilitated under the Second Feeder Roads Project will remain in service throughout the Third. Supplementary equipment will be required to: (a) replace worn out equipment; (b) complete the quarry equipment for the labor intensive brigades; and (c) increase the capacity of the bridge and culvert cons- truction brigade which has been working successfully under the Second Feeder Roads Project but is under-equipped. The project also provides for the purchase of materials (steel, cement, timber, etc.) for this bridge and culvert brigade. Annex 3-4 lists the equipment to be pur- chased. Maintenance of equipment used by both construction and main- tenance brigades would be entrusted to SEMPT. SEMPT's performance under the ongoing Fourth Highway Project is satisfactory.
Technical Assistance
5.13 The project includes a total of 160 man-months of technical assistance and 60 man-months of volunteer's service. The Annex 3-5 gives a calendar and a full description of the technical assistance team as well as each technical assistants responsibities and required qualifi- cations. The table on page 20 shows the working time of each expert allocated to specific duties. - 20 -
Benin - Technical Assistance
Executive Function Training Total (man-months) (man-months) A. SRDR
Administration & Accounting Expert 20 -- 20 Civil Engineer for Road Construction and Maintenance 30 -- 30 Training Specialist -- 16 16 Equipment Maintenance Technician 16 4 20 Highway Technicians 40 -- 40 Total A 106 20 126
B. DROA
Mechanical Engineer 22 2 24 Short Terms _ 10 10 Total B 22 12 34
C. Volunteers
to SRDR Mechanic 20 10 30 Economist 15 15 30 Total C 35 25 60
Total A + B + C 163 57 220
3.14 The heavy infusion of technical assistance under the project is justified since counterpart staff were made available late in the Second Feeler Roads Project and, therefore have not yet been fully trained. The main objective of the technical assistance component is to enable SRDR staff to assume gradual responsibility for management, planning, operation and execution of all feeder roads projects. Government agreed to employ by December 1984 and thereafter continue to maintain in employment qualified counterpart staff for the duration of the project.
Tra:ining
3-15 A training officer provided under the technical assistance will be responsible for implementing the training program outlined in Annex 3-6. The training needs have been evaluated for SRDR's staff only. The DROA's staff, however will be welcomed on a voluntary basis to participate in the program. The trainees will be gathered in several groups, taking into account their geographical work site. The project provides funds for purchase of training equipment and material and also for the travel - 21 -
and subsistance of local instructors and trainees on a sliding scale of OFAF 3,000, 2,000 and 1 ,500 per day based on the grade levels of ins- tructors and trainees. During negotiations, Government confirmed that it will implement the training program outlined in Annex 3-6.
F'uture Project Preparation
3.16 The proposed project provides about US$0.63 million for prepa- ration of a future rural transport project in Benin. The allocation would be used to finance consultants' servi^es for detailed economic and engineering studies.
C. Cost Estimate
3.17 The estimated total cost of the prDject, net of taxes and duties, is US$13.2 million equivalent. The estimated foreign cost component is US$5.95 million equivalent representing 45% of the total cost. Cost estimates, in May 1983 prices, are given in the table below. Annex 3-7 gives a more detailed cost estimate.
SummaryProject Cost Estimate
CFAF(million) US$ (thousand) % of Total Local Foreign Total Local Foreign Total Base Cost
1. Technical Assistance, Training and Consultants Services for future project preparation 194 675 869 465 1,614 2,079 21 2. Equipment 40 360 400 96 861 957 10 3. Road Construction and Periodic Maintenance (a) Feeder roads 1,583 644 2,227 3,788 1,540 5,328 55 (b) Low standard tracks 144 66 210 345 158 503 5 (c) Periodic maint. 103 41 144 245 100 345 3 4. Maintenance 182 56 238 436 133 569 6
Total Base Cost 2,246 1,842 4,08E 5,375 4,406 9,781 1OC)
Physical contingencies 314 258 572 752 617 1,369 14 Price contingencies 472 387 859 1,129 925 2,054 21
Total Project Cost 3,032 2,487 5,519 7,256 5,948 13,204 135 Rounded 7,255 5,945 13,2C0
3.18 The estimated cost of the technical assistance, US$2.079 mil- lion, is distributed as follows: - 22 -
Breakdown of Technical Assistance Expenditures
% of USV'OOO Base Cost - Execution of the work program 1,148 12 - Training including equipment and allowances for trainees 199 2 - Assistance bo DROA 196 2 - Preparation of future project 460 4.3 - Socio-economic impact study 76 0.7
Total 2,079 21
3.19 Cost estimates for equipment are based on recent purchases and suppliers' quotations to SRDR. Wages and operating costs are based on the latest available cost accounting data of SRDR dating from April 1983. Average construction costs (excluding taxes, technical assistance and equipment depreciation) are US$8,650 and US$4,600 per km of feeder roads and low standard tracks respectively. Equipment depreciation is esti- mated at US$650 per km of feeder roads executed by labor intensive methods and at US$2,250 per km when executed by equipment intensive methods.
3.20 Physical contingencies of 10% for Technical Assistance and Con- sulting Services and of 15% on all other components of the project have been included to allow for increase in quantities. Price contingencies have been estimated at 12% per year for local expenses and, 8%, 7.5% and 7% for foreign expenditures for the years 1983 through 1985. Annual price contingencies for foreign expenditures for 1986 onwards have been estimated at 6% and 12% for local expenditures for 1986 onwards.
D. Financing Plan
3.21 The project will be financed by IDA, Special Fund administered by IDA and the Government as follows:
Financing Plan
US$ thousands Local Foreign Total
IDA 3,120 2,880 6,000 IDA Special Fund 2,935 3,065 6,000 Government 1,200 -- 1,200
Total 7,255 5,945 13,200 - 23 -
E. Implementation
3.22 The undisbursed credit under the Second Feeder Road Project permits SRDR to execute works until around June 1984. Implementation of the proposed project is expected to start in September 1984. Annex 3-8 shows the implementation schedule for the first year program. The implementation schedule for the whole project is shown in Annex 3-9.
3.23 As under the First and Second Feeder Roads Projects, the proposed project will be implemented by MTPCH through DROA. Civil works will be executed by force account under SRDR's management and maintenance of equipment entrusted to SEMTP.
F. Procurement
3.24 Procurement arrangements are summarized below:
Amounts and MGethodsof Procurement (US$ million)
Procurement 1Iethod b/ Total Project
Item No.a/ Category Items to be procured ICB __CB Other N.A. Cost la, lb, Ic 1 Technical assistance, 2.8D 2.80 ld, le volunteers experts, (1.40) (1o40) training, socio-economic study, future project preparation
2a, 3c, 4e 2 Road construction equipment, 1.30 1.52 2.82 spare parts, equip. repairs (0) (1.52) (1-52) and maintenance
3d, 4d 3 Locally purchased materials 0.62 0.62 and tools (O) (o)
3b, 4b 4 Fuels and lubricants 1.31 c/ 1.31 (0.92) (0.92)
3a, 4a 5 Wages and salaries 5.65 d/ 5.65 (2.16) (2.16) Total project 1.30 2.14 4.11 5.65 13.20 -07 (-1.52-- 2 32 (2.16) (6.00) a! Reference to items in Project Cost amnary (Annex 3-7). Contingencies are included in the amount shown above. b/ Amounts enclosed in parentheses indicate amount of IDA Special Fund participation. c/ From sole source national supplier. d/ Of &rLchGovernment will contribute US$1.2 million equivalent. - 24 -
Technical Assistance and Consultants' services will be procured in ac- cordance with the Bank's guidelines. Goods manufactured locally would be given a preference margin of up to 15% or the applicable custom's duty, whichever is less. All procurement decisions whose estimated costs exceed US$100,000 equivalent would be subject to IDA's prior review. Government intends to exempt all project components from taxes and other transfer payments. During negotiations, the Government confirmed its intention to exempt all project components from taxes and transfer payments and to apply the procurement methods shown above.
G. Disbursements
3.25 The project is expected to be substantially disbursed by September 1987 and the proposed Credit closing date is March 1988. The IDA and IDA Special Fund Credit would be disbursed on the following basis:
Allocation and Disbursement of IDA and IDA SpecialRand Credit
%Total Estimated cost to be disbursed from Category Item Amountsa / IDA Credit IDA Special Fund Credit (U_S_$'0070) .1 Technical assistance, volunteer experts, training, Socio-economic studyand future project preparation 2,100 50% 50%
2 Road construction equip. 1,000 100% -
Spare parts, equipnent repairs and maintenance (1,2W0) - 1
3 Locally purchased materials and tools 500 10% --
4 Fuels and lubricants 300 30% -- (7W) - 70%
5 Wviagesand salaries 1,695 40% -- (1,605) - 38%
6 Unallocated 1,455 (1,445)
Total 12,000
a7 Amounts enclosed in parenthesis indicate amount of Special Fund Credit - 25 -
3.26 Disbursementschedules are based on historic experience with the Second Feeder Roads Project under which 80% of the IDA Credit was dis- bursed two years after effectiveness. It is thus reasonable to assume that disbursementsunder the proposed IDA and Special Fund Credit would follow a similar pattern (Annex 3-10).
3.27 Monthly statements of expenditureswould be prepared for each brigade and supportedby monthly reports showing operating costs, actual and expected productivity,and the unit constructioncost incurred by each brigade. No disbursementapplications less than US$20,000 equi- valent would be accepted by IDA. A revolving fund of US$400,000 equivalent will be establishedin two separate accounts of US$200,000 equivalent each and it will be replenished on the basis of the regular Government reimbursementapplications in equal proportions from the IDA and the Special Fund Credits. Effectivenessof the proposed IDA and Special Fund Credits would be contingent upon opening of the two Special Accounts for this revolving fund.
H. Reporting and Auditing
3.28 To provide the Government with appropriate control over expendi- tures and to enable it to ascertain relationshipbetween costs and phy- sical progress of the project, a basic accounting and progress reporting system was establishedunder the Second Feeder Raods Project. Attempts to integrate cost accounting with physical progress reports under the Second Feeder Roads Project have recently made significantprogress. The Government agreed to provide monthly reports on operating costs and performanceof each constructionbrigade (para. 3.27) and quarterly pro- gress reports on the implementationof the whole project. Auditors acceptable to the Associationwill be employed to ensure the Project's adherence to good financialmanagement. Project and revolving fund accounts will be audited annually with the audit reports made available for IDA review six months after the end of the Government'sfiscal year.
IV. ECONOMIC EVALUATION
A. General
4.01 Farm-to-markettransport is unreliable in the proposed project's area of influencebecause most feeder roads have deterioratedinto pedes- trian tracks. As a result, the regional developmentagencies are experi- encing difficulty in implementingrural development schemes, providing extension services and delivering improved inputs. In addition,accord- ing to SRDR estimates, between about a tenth -toone half of the market- able crops could not be evacuated during the 1980-81harvest along the tracks included in the first year constructionprogram of the proposed project for lack of transport other than porterage.
4.02 Although the proposed projects would cover only 7,5% of the country, the area in question includes about a fifth of the rural - 26 -
population of Borgou, Mono, Oueme and Zou provinces, or a total of 290,000 persons (Ref. # 2). The proposed project would provide and maintain feeder roads in support of the Government's efforts to develop agriculture, extend the social infrastructure, improve rural living standards and integrate areas of economic potential into the mainstream market economy. Additionally, through extension of one-lane tracks, the Government would be able to expand access to modestly developed agricultural areas where conventional feeder roads cannot be economically justified at present. Finally, the proposed project would support the objectives of the IDA financed Borgou and Zou rural development projects by improving rural transport through construction/improvement of feeder roads in these provinces.
B. Benefits and Beneficiaries
Benefits
4.03 Project benefits which are amenable to quantification are the incremental value added to agricultural production. Value added is de- rived as a function of production increases plus the avoidance of losses of potentially marketable crops which would not be evacuated in the "without" project scenario for lack of reasonable transport and would thus spoil. Agricultural production increases will occur as a result of (a) inputs from extension services; and (b) additional lands which will be brought under cultivation as a result of population increases over the years. These changes are dependent on the better access which will be provided by the project roads, and the specific assumptions made in the analysis are specified in Annex 4-1.
Beneficiaries
4.04 The immediate beneficiaries would be the farmers in the projects zone of influence. They will benefit from improved access to markets where they can obtain inputs and sell their crops, from increased mobil- ity and from availability of social and extension services. Road safety, comfort and journey time savings resulting from feeder road improvements (although not quantified as benefit) are important to comniunitieswhich would now benefit from availability of motorized transport at a reason- able cost.
4.05 By 1986, an estimated 290,000 rural residents of Borgou, Mono, Oueme and Zou provinces representing about 8% of the nation's population will be direct beneficiaries. Of the beneficiaries, about 20,000 would be people who are expected to migrate to the project's zone of influence after the roads are improved.
4.06 Average annual per capita incomes in the subregions served by the roads range from US$85 to US$200 compared with the national average per capita income of US$300 in 1982. Over the ten-year assumed life of the proposed project, annual per capita production increases range from about one half of one percent in Oueme to about 1.6 percent in - 27 -
Borgou. (The assumed ten-year life of the project reflects the time needed to achieve productivityincreases for selected crops i.e. maize and the eventual need to rehabilitatemost of the project's feeder roads after ten years of service.) Thus it is expected that the project will bring proportionatelygreater benefits to the residents of relatively poorer areas such as Borgou.
C. Economic Analysis
Methodology
4.07 The time horizon of the project is assumed to be ten years. The methodology used to derive incrementalvalue added is based on the produ- cers surplus approach. SRDR's procedure for estimating the producers' surplus is outlined below:
(a) establish, for each province, homogenous agricultural subregions reflecting crop, pedologic and agronomic cha- racteristics;
(b) establish the present population in the zone of influence of each road (generally,5 km on either side of the road) using the 1979 census as a basis and selectivelyverify the results in the field (Ref. #1);
(c) establish standardizedfarm models for each homogenous subregionbased on experience and data provided by the CARDERs and spot checked by field visits. Based on the models, determine the net value of productionper capita for each subregion taking into account the production and other costs such as extension services and subsidies, if applicable;
(d) determine (after adjusting for autoconsumption,on farm and other losses) the volume and value of potentially marketable surpluses and the percentagewhich is currently unmarketeddue to transport constraints (Annex 4-2);
(e) forecast agriculturalproduction and marketed surpluses in the "without-project"case based on areas presently culti- vated (Annex 4-3);
(f) in the "with-project"case:
(i) forecast populationgrowth in the road influence area (see Annex 4-1 for details);
(ii) based on field interviews and past experience, establish an appropriate set of farm models, include the costs of additional inputs and the cost of extension services in these models. Based - 28 -
on these determine a new set of standardized values for agricultural production per capita (Ref. #2); and
(iii) assume that all of the marketable surplus will be marketed after road improvements.
(g) Estimate incremental producer surplus for each project year as the difference in the net value of production marketed in the "with" and "without" project scenarios.
4q08 In estimating incremental value added, possible introduction of higher value crops has not been considered, benefits from additional on- farm consumption have been excluded, and adjustments have been made for on-farm losses (during harvesting as a result of poor storage, consump- tiornby rodents et al.) and losses during transportation and marketing (Annex 4-2).
4.09 Benefits resulting from the transportation of non-agricultural produacts, and benefits from personal travel (time savings), are not in- cluded in this approach. The socio-economic study, while suggesting benefits of this nature, represents only preliminary findings. Thus, the proposed project benefits have been conservatively quantified to reflect weaknesses in SRDR's data base. A follow up socio-economic impact study (Annex 3-2) to be carried out under the proposed project is expected to imnrcve the basis for quantifying benefits of rural road improvements in Benin, particularly the traffic base.
Costs
4-10 For the economic evaluation all costs are expressed net of 'Taxes. The construction and maintenance costs are based on the actual cost of equipment, labor and materials experienced by SRDR during the Second Feeder Roads Project, updated for subsequent general cost in- creases. Periodic regravelling of the roads is assumed in the seventh year Df the ten-year life of roads. No shadow prices were applied to unskilled labor since there are no indications of serious distortions in the rural labor market and alternative employment opportunities exist in local agriculture. The relevant incremental capital cost of improved technology i.e. the cost to the farmer of farm equipment and tools, and other costs such as more intensive use of fertilizer and pesticides, improved extension services and farm labor are accounted for in deriving the net value added. Input subsidies have been added to the farmers cost to reflect economic costs. Where applicable, farmers' prices have been adjusted for subsidies on maize, peanuts, rice and cotton in estimating incremental value added.
Economic Rates of Return for the 1984 Program
4.11 At this stage only the first year's program has been identified in detail. Of the 19 roads included in the first project year, the con- servatively estimated ERR ranges from a low of 16% to a high of 46% - 29 -
(Annex 4-4). One-third of the ERRs are in the 16% to 20% range while about one half are in the 20% to 40% range with the rest falling in the 41% to 46% range. The overall ERR for the first year program is a satis- factory 29%. Assuming a pessimistic scenario in which the construction costs increase by 20% and the benefits decrease simultaneously by 20% the minimum expected ERR would still be a satisfactory 14% (para. 4.14).i7
Risks and Sensitivity of the ERR
4.12 The economic rates of return are sensitive to the assumptions on which SRDR's models are based (Ref. #1), to unit construction costs and to whether the project roads are adequately maintained. SRDR's models are based on assumptions relating to adoption of improved farm technology and population growth. Regarding adoption of improved farm technology, the models assume that project implementation would be coordinated with other agencies engaged in rural development and the required complement- ary investments and services such as extension would be forthcoming at the right time to induce farmers to improve farming methods. Although the first year program is, and subsequent programs will be, coordinated with local development priorities of the CARDER's and approved at the national level by CNAERDR, there may be a delay in implementing the com- plementary local development projects and thus the project benefits may not reach anticipated levels as soon as expected. The population growth (Annex 4-1) may not fully materialize, thereby reducing the quantity of agricultural production marketed. Additionally, there is some risk that the unit construction/improvement costs could be higher than experienced heretofore and that insufficient maintenance could reduce the useful life of the roads which would also reduce net benefits and affect the ERRs adversly.
4.13 Sensitivity tests were performed to assess the negative impacts of these risks on the ERRs and the results proved satisfactory (Annex 4-5). If annual benefits are reduced by 20% to reflect slow and uncoordinated project implementation (delays in providing the extension services, et al.) the overall ERR would drop to 19%. Assuaming that the natural increase in population is 2% per year instead of 2.59% the ERRs are virtually unaffected and the overall ERR is 28%. The sensitivity of the ERR to adequacy of maintenance was also tested. Maintenance should certainly be adequate during the life of the project, but in the event that insufficient maintenance thereafter reduces the useful life of the roads to six years instead of the expected ten years, the ERR would be reduced to about 23%. A 20% increase in construction cost would, how- ever, reduce the overall ERR to 22%.
4.14 In the unlikely event that the construction costs increase by 20% and the benefits decrease simultaneously by 20%, the overall ERR for the first year program of the project would be lowered to 14%. Thus,
1/ The median value of ex post estimates of the ERRs for the project completion report on the First and Second Feeder Roads Projects (now under preparation) is 25%. - 30 -
under various combinations of adverse scenarios, the first year program yields acceptable ERRs.
Risk Miinimization
4.15 There are no other special risks beside slow and uncoordinated implementation and insufficient maintenance. The risk of slow implemen- tation would be minimized by: (a) strengthening SRDR through technical assistance and training of field and office personnel, (b) annual reviews of SRDR's work programs prior to starting construction; and (c) coordina- tion of complementary activities through the CARDERs. In an effort to assure adequate maintenance the project provides for a separate unit to be set up in SRDR, and for its operating costs to be financed in accord- ance with the action plan shown in Annex 3-3. The project would involve use of some state-owned land for laterite excavation and improvement to the alignment of existing tracks; this is not expected to produce any major environmental risks.
V. AGREEMENTS REACHED
5.01 During negotiations, agreements were reached on:
(a) maintaining CNAERDR for the duration of the project (para. 2.14);
(b) work programs for the second and third year;
In case of modification of the second or third year tenta- tive program (para. 3.04);
(i) roads substituted for those included in the ten- tative program should have a minimal ERR of 12%;
(ii) each year's work program should reflect a reason- able geographic coverage in the four provinces;
(c) work program review and approval: (i) submission of the CNAERDR approved second and third years' work programs for IDA review at least three months before the beginning of their implementation; and (ii) start of construction only after IDA approval of the work program (para. 3.04);
(d) criteria for selecting low-cost tracks (para. 3.07);
(e) feeder road maintenance and financing: in accordance with the action plan and employing by December 1984 the heads of the regional offices and the road supervisors in the Feeder Roads Maintenance Section (para. 3.10); - 31 -
(f) employing by December 1984 and thereafter continuing to employ qualified counterpartstaff for the duration of the project (3.14);
(g) auditing and progress reporting: the extent, details and deadlines required (para. 3.28).
5.02 The following points were also confirmed:
(a) socio-economicstudy: the terms of reference (para. 3.08);
(b) the training program (para. 3.15);
(c) exemption from taxes and transfer payments for all project components (para. 3.24); and
(d) procurement: intention to apply methods acceptable to the Association (para. 3.24).
5.03 Effectivenessof IDA and IDA Special Fund Credits: Effectivenessof the proposed IDA and IDA Special Fund Credits would be contingent upon opening of special accounts in a commercialBank for the two revolving funds to be established (para. 3.27).
5.04 Satisfactoryagreements and assurances on the substance of paras. 5.01 and 5.02 having been obtained during negotiations,the project is suitable for an IDA credit of US$6 million and a credit of US$6 million from the Special Fund administeredby IDA on standard terms.
WAPT2 Apr. 84 - 32 -
ANNEX 2-1
BENIN
THIRD FEEDER ROADS PROJECT
ROAD CONSTRUCTICN AND MAINTENANCE EXPENDITURES AND THEIR FINANCING (CFAF million)
1975 1976 1977 1978 1979 1980 1981 1982
A. Total Expenditures Maintenance 404 427 448 625 629 2,025 I,959 1,425 Investments 2,276 2,168 39299 2,648 5,048 3,747 3,673 2,750 Unspent 88 57 ------Total 2,768 2,652 3,747 3,273 5,677 5,772 5,632 4,175
B. Local Resources Contribution from Taxes 243 252 258 327 281 350 275 480 Ordinary Budget 309 244 366 332 366 684 641 824 Special Budget 241 158 190 495 530 332 404 387 Other _ - 143 465 18 31 - Total 793 654 022 1,297 ,642 1,384 1,351 1,691
C. Foreign Aid IDA 636 1,198 2,071 508 1,639 841 796 610 EDF 827 500 67C 1,004 1,339 2,389 737 75 USAID 504 300 141 353 661 - - - ADF - - 37 4 385 - 213 51 ADB - - - 107 11 670 599 199 DRNCDF - - 24 246 Others (OPEC, Kuwait and Federal Republic of Germany) 8 - - _ _ 488 1,912 1,303 Total 1,975 1,998 2,919 1,976 4,035 4,388 4,281 2,484
Source: MTPCH, Cotonou, undated.
WAPT2 Feb. 1984 - 33 -
ANNEX 2-2
BENIN
THIRD FEEDER ROADS PROJECT
SRDR PAST EXPENDITURES (CFAF million)
1979 1980 1981 1982
Equipment and Spares 52 98 189 273 Fuel, Supplies & Materials 40 64 79 151 Wages 34 134 184 256 Buildings 10 19 - - Technical Assistance 105 41 122 175
Total 241 356 574 855
Source: MTPCH (SRDR), Cotonou, undated, November 1983.
WAPT2 Feb. 1984 - 34 -
ANNEX2-3
BENIN
THIRD FEEDER ROADSPROJECT
ESTIMATEDRECOVERY OF RECURRENTCOSTS ON ROADS (in CFAF million)
RECURRENTCOSTS.a/
Main Roads Feeder Roads Year Routine Periodic b/ Subtotal Routine Periodic 57 Subtotal Total
1983 650 1,640 2,290 71 -- 71 2,361 1984 730 1,770 2,500 92 __ 92 2L592 1985 815 1,910 2,725 120 31 151 2,876 1986 915 2,065 2,980 150 38 188 3,168 1987 1,025 2,230 3,255 170 41 211 3,466
REVENUES
Total Revenues as % Year Fuel Taxes c/ Other Excise Duties d/ Total of Total Recurrent Cost
1983 2,400 1,000 3,400 144 1984 2,400 1,000 3,400 131 1985 2,448 1,020 3,468 121 1986 2,497 1,040 3,537 112 1987 2,547 1,060 3,607 104
a/ Based on estimated needs of main roads and Action Plan for Feeder Roads Maintenance and Its Financing (Annex 3-3); assumed annual inflation is 12% for routine and 8% for periodic maintenance. Periodic maintenance being capital intensive would be subject mostly to inflation rates in the industrialized countries which are expected to be lower than domestic inflation. b/ Periodic maintenance is treated as a recurrent cost because it needs to be recovered annually by revenues from road user charges. c/ Assuming 1983-84 fuel consumption does not decline below the 1982 level (96,000 hectolitres after allowing for losses, re-exports and consumption for purposes other than transport) and fuel taxes remain frozen at the 1983 level. For 1985-87 a conservative 2% annual increase in fuel consumption is assumed but no increase in level of fuel taxes. Revenues are based on differences between weighted price/lt (CIF Cotonou) and the price after clearing customs, and exclude port dues and handling charges, the national distributor (SONACOP's) expenses and profits. Only specifically identifiable taxes have been considered in estimating revenues. The weighted tax/lt on fuel is CFAF 25 in 1983 and includes the road fund levy of CFAF 8/lt for gasoline and CFAF 6/lt for diesel fuel. d/ Taxes and duties on imports of new vehicles, spare parts and tires et al. As data on these continue to be unreliable, efforts are underway to develop a reliable data bank as part of the preparation of the future transport infrastructure rehabilitation and maintenance project. The consultant's estimate of CFAF 1.9 billion in revenues from these sources has been reduced to CFAF 1 billion for 1983 and 1984 to be on the conservative side. For 1985 through 1987 these revenues are projected to grow at 2% annually.
WAPT2 Feb. 1984 - 35 - ANNEX2-4
BENIN
THIRD FEEDER ROADS PROJECT
INDICATIVE LIST OF THE EQUIPMENT COMPOSINGTHE DIFFERENT TYPES OF BRIGADES
Mechanized Mechanized Labor-Intensive Maintenance Bridges and Brigade Brigade Brigade Culverts Brigade
Bulldozer D7 1 Bulldozer D6 -- 1 Grader 120 HP 1 -- 1 Wheeler Loader 1 -I __ Agricultural Tractor 2 9 2 Dump Trailers 2 10 2 1 Dump Trucks 4 -- -- 1
Fuel Tank Truck -- -_ __ -_ Water Tank Trucks 2 1 -- -- Workshop Truck Water Tank Trailers -- 2 1 2 Platform Trucks 1 -_ __ __ Self-Propelled Roller 1 -- -_ __ Towed Roller __ 1 1 Vibrating Roller 1 1 __ _ Mobile Compressor -- -_ __ Mobile Store Shed 1 1 -- -- Concrete Mixer 1 1 -- 1 Concrete Vibrator 1 1 -- 2 Water Pump 2 1 1 1 Pipe Molds __ __ _- Liaison Vehicle 2 2 2 1
WAPT2 Feb. 84 - 36 -
ANNEX 3-1 Page 1 of 3
BENIN
THIRD FEEDER ROADS PROJECT
FIRST YEAR PROGRAM ADOPTED BY THE CNAERDR ON MAY 21, 1983
Brigade Road No. Route Province Length (km)
Mechanized * Bodjecali - Garou Borgou north 17 17 Baname - Zankoumadon Zou southeast 12 15 Houegbo - Wokpa Zou southeast 10 16 Zangnanado - Zomon - Sagbovi Zou southeast 17 14 Sagbon - Aize Zou southeast 7 12/13 Ouokon - Holly - Monzougoudo and Holly - Zaloko Zou southeast 10 38 Gbonago - Abagado Oueme north 10 Subtotal 83
Labor 1 29 Agoua - Assaba - Bobe Zou north 16 28 Bante - Adjagballo - Aklamkpa Zou north 29 Subtotal 45
Labor 2 * Beroubouay - Yara Borgou 20 22 Logozohe Lahotan Zou north 12 21 Lahotan - Ouedeme Zou north 5 Subtotal 37
Labor 3 * Fonougo - Kantero Borgou 7 1 Lonkly - Voli - Latadji Mono north 15 2 Lanhouetome - Aplahoue/Atome Mono north 6 3 Djakotomey - Kpoba Mono north 9 Subtotal 37
Labor 4 * Bagou - Sori Borgou 16 45 Dunkassa - Bouka Borgou 15 47 Bouanri - Biro Borgou 7 Subtotal 38
Total 240 - 37 - ANNEX 3-1 Page 2 of 3
BENIN
THIRD FEEDER ROADS PROJECT
TENTATIVE SECOND YEAR PROGRAM
Brigade Road No. Route Province Length (km)
Mechanized 38 Gbonago-Abagado Oueme north 8 37 Issaba-Masse Oueme north 17 40 Pobe-Issale Oueme north 15 34 Adja Ouere-Ikpinle Oueme north 15 35 Adja Ouere - Tatonnoukon Oueme north 25 36 Ikpinle - Ologo Oueme north 20 Subtotal 100
Labor 1 28 Bante - Djagballo - Aklamkpa Zou north 26 30 Bante - Lougba Zou north 13 31 Koko - Akpakpa Zou north 11 Subtotal 50
Labor 2 21 Lahotan - Ouedeme Zou north 5.5 25 Glazoue - Ouedeme - Yagbo Zou north 30 23 Gobada-Zonzoukamey Zou north 14.5 Subtotal 50
Labor 3 3 Djakotomey - Kpoba Mono north 1 4 Klouekamey - Ahogbeya Mono north 10 5 Klouekamey - Adjahomey Mono north 13 6 Hlagbadenou - Deme Zou south 7.5 9 Zakpota - Dan Tota Zou south 11 8 Zakpota - Zeko Zou south 7.5 Subtotal 50
Labor 4 47 Bouanri - Biro Borgou southeast 28 48 Biro - Perere Borgou southeast 14 49 Nikki - Tasso Borgou southeast 8 Subtotal 50
Total - 1985 300 - 38 -
ANNEX 3-1 Page 3 of 3
BENIN
THIRD FEEDER ROADS PROJECT
TENTATIVE THIRD YEAR PROGRAM
Brigade Road No. Route Province Length (km)
Mechanized 36 Ikpinle - Ologbo Oueme north 1 43 Ketou - Sodji Oueme north 12 41 Ketou - Ilikinon Oueme north 17 44 Ofia - Omon Oueme north 14 42 Idigni - Wessou Oueme north 24 * Ketou - Odometa Oueme north 12 * Ketou - Issebou Oueme north 20 Subtotal 100
Labor 1 8 ZaKapota - Zeko Zou south 5 5 7 Passagon - Tindji Zou south 6 10 Djidja - Kassehlo Zou south 23 11 Monsoulou - Dekpegon Zou south 15.,5 Subtotal 50
Labor 2 32 Koko - Akpakpa Zou north 4 34 Lougba - Gotcha - Aletan Zou north 20 32 Pira - Lougba Zou north 16 26 Thio - Masse Zou north 10 Subtotal 50
Labor 3 23 Gobada - Zonzoukamey Zou north 3*5 18 Dassa - Miniffi Zou north 15 19 Soclogbo - Miniffi Zou north 7.8 20 Paouignam - Agbogbomey Zou north 23.7 Subtotal 50
Labor 4 49 Nikki - Tasso Borgou southeast 24 46 Nassi - Sandiro Borgou southeast 26 Subtotal 50
Total 300
Inventory number not assioned. Carry over from the Second Peeder Roads Project.
Source: MTPCH, June 21, 1983.
WAPT2 Feb. 1984 - 39 - ANNEX 3-2 Page 1 of 6
BENIN
THIRD FEEDER ROADS PROJECT
SOCIO-ECONOMIC IMPACT STUDY
TERMS OF REFERENCE
I GENERAL
1. A socio-economic impact study was carried out under the Second Feeder Roads Project. The study, completed in May 1983, was based on quarterly traffic surveys carried out over a one-year period on eleven sample roads. The study developed and tested a field methodology (including traffic survey designs and sampling procedures) and esta- blished baseline data on a sample of improved roads in rural Benin. The conclusions of the study are:
(a) Traffic growth on recently improved roads has far exceeded appraisal expectations, particularly in areas of high population density and in border zones;
(b) A large proportion of the traffic on the sample of roads studied consists of two-wheelers;
(c) A relatively small proportion of *the total traffic appears to be dedicated to the transport of agricultural inputs and outputs;
(d) A relatively large proportion of total traffic appears to be related to passenger travel; and
(e) Traffic on rural roads in Benin is predominantly local rather than long distance, domestic rather than foreign and private rather than public.
II. OBJECTIVES
2. As part of the Third Feeder Roads Project, the Government of Benin wishes to undertake a second socio-economic impact study, building upon the base established under the Second Feeder Roads Project. The purposes of this study are:
(a) Evaluate the medium-term (10-year) needs for feeder roads improvements; - 40 - ANNEX 3-2 Page 2 of 6
(b) To improve the data base and to refine the currently used methodology for the appraisal of future feeder road improvement; and
(c) To develop a methodology for screening and evaluating low- cost track improvements.
III. SCOPE OF WORK
3. Medium-term feeder roads needs. A list of approximately 10,000 kms. of potential feeder roads has been identified by SRDR in association with the CARDERs covering the country. Approximately 2,130 kms. will have been improved under Bank-financed projects by 1987. Others will have been improved under projects presently financed by other donors such as GTZ, FED and UNCDF. After these roads are eliminated from th,slist, the remaining roads need to be screened and selected for priority improvements.
4. SRDR will request CARDERs to provide additional information on each of the candidate roads, including;
(a) A map showing road locations and impact zones;
(b) Estimates of the population in each impact zone;
(c) List of markets served by each road with a measure of their importance (size, frequency);
(d) Estimated agricultural production potential (in tons after ten years, based on expected population growth); and
(e) Classification of each road in terms of level of service (categories A-E as defined in earlier projects), together with an indication of major structures to be replaced.
This information should be available from each CARDER. It should not be necessary for SRDR staff to visit each road in order to conduct this preliminary screening.
5. The Economic Division of SRDR will than apply its present screening methdology, based on the population, market size, and product- ive potential data, to estimate the order of magnitude of potential bene- fits. Similarly, the length of road, level of service , and major struc- tures will provide an order of magnitude estimate of potential costs. This information will be used to prioritize the planned investments. Roads will be ranked in order of priority within provinces, and high priority roads will be selected for further economic evaluation, allowing for the possibility that some roads may be accepted by the screening process that are not, in fact, economically viable investments. Based on the volume of work to be done, SRDR's capacity to execute it will be evaluated and the required organizational, management, financial and - 41 - ANNEX 3-2 Page 3 of 6 technical criteria established. Particular attention will be paid to the staffing and construction techniques to be used to accomplish the medium- term program.
6. The present economic evaluation methodology is based on a pro- ducer surplus approach. The two main variables affecting the relative priority of specific roads within a group of districts are (1) population served and (2) percent of current production not marketed due to trans- port constraints. SRDR staff would field check the data provided by CARDERs on these two points. In addition, SRDR will make a more detailed cost estimate based on a field visit, at this point, for each of the candidate roads. With these data, the expected rate of return for the specified road improvement can be calculated. Rates of return would then be used, in conjunction with commonsense and the criterion that each year's program should be fairly evenly distributed over the country, to develop annual work programs corresponding to SRDR's projected capacity.
7. Traffic Studies. These studies will complement the work carried out under the Second Feeder Roads Project. A sample of twelve roads will be selected representing the four major ecological regions of the coun- try. Eight of these will be recently improved roads and four will be roads to be improved under the Third Feeder Roads Project, which will serve as control roads. Seven of the improved roads will be selected from the sample of roads already studied under the Second Feeder Roads Project, representing the regions of the south, (two each in Mono and Zou-South), the center (two in Zou-North), and the northwest (one in Atacora). An eighth improved road will be selected in the northeast (Borgou) region. The four control roads will be selected from the 1985 improvement program in each region.
8. The design and implementation strategy of traffic surveys devel- oped and tested under the Second Feeder Roads Project is satisfactory. The traffic survey will be similar to the one developed and tested in the first phase of the study. A few items may be eliminated (e.g., national/foreign, public/private) and others added (e.g., multipurpose trips) to meet data needs for refining the evaluation methodology. Quar- terly one-week counts and O-D surveys will be carried out over a period of three years at two survey posts on each of the twelve study roads. Vehicle and passenger sampling and procedures will be adapted based on experience and the detailed information derived from!the Second Feeder Roads Project.
9. An initial reconnaissance will be required in order to explain the planned study to local officials and to identify a sample road for Borgou and a control road in each region. During this reconnaissance, the study staff will collect baseline data on impact zone population, production patterns, transport services, vehicle ownership, migration, and road safety. These data will be collected at the village level. A short interview form will be prepared for this purpose. The study staff will also recruit and train local interviewers and will make adminis- trative arrangements for the surveys (construction of barriers, local security, etc.) during this stage. - 42 - ANNEX 3-2 Page 4 of 6
10. The calendar of surveys will be developed so as to permit the study supervisory staff to be present wherever a survey is taking place. It will also be consistent, insofar as possible, with the calendar of surveys undertaken during the Second Feeder Roads Project on the sample roads. Before each count, the study staff will meet with local officials and will collect current data on transport services, migration and road safety. The study staff will also be responsible for monitoring the traffic surveys and collecting and checking the data at the end of each co unt .
I1 After each count, data from each road will be coded and stored on diskettes. Preliminary descriptive statistics for each road will then be generated. A computer program has already been developed for this purpose. A master file of descriptive data will be built up from these preliminary results. A statistical program to test selected hypotheses on the data contained in the master file will be developed during the third year of the study.
12. These hypotheses will relate growth in various types of traffic (freight and passenger traffic, motorized and non-motorized means of transport, agricultural freight (perishable and non-perishable) non- agricultural freight, passenger trips by purpose and by means of trans- port, local, regional, long-distance and through traffic), as dependent variables to: (a) characteristics of the road improvement (regional vs. local roads, reductions in vehicle operating costs, reductions in travel times, change in the availability of public transport services); (b) charac- teristics of persons travelling on the roads (age, sex, occupation, household income, vehicle ownership); and (c) characteristics of the commu- nities served by the roads (size, agricultural production, nonfarm em- ployment, markets, services) as independent variables. The data will also be disaggregated by region (province) to see if any significant variations in traffic patterns can be related to broad differences in the physical or sociocultural environment.
1 ¾,. TlLhe study results will improve the data base on feeder road traffic patterns substantially be expanding coverage to more roads, by providing measures of change over time on roads studied under the Second Feecder Roads Project, and by collecting baseline data on control roads. The analys:is of factors related to the growth of traffic in specific commodities and to the growth of passenger travel, as well as to mode shifts arnd the diversion of through traffic, will shed some light on the validity and comprehensiveness of the currently used economic evaluation methodology for feeder road improvements. It is expected that the agricultural benefits conservatively forecast by the present model, and corresponding to a relatively small number of vehicle trips per day, will be substantiated by the study. More importantly, it is expected that the study results will demonstrate that there are major additional benefits to te derived from the transport of non-agricultural freight and passenger travel. - 43 - ANNEX 3-2 Page 5 of 6
14. Monitoring and evaluation low-cost track improvements. Changes in sample communities served bv low-cost track improvements will be monitored. As this is a pilot project component, only baseline data, changes during construction, and traffic levels immediately following the opening of an improved track can be measured within the project time frame. A sample of four tracks will be selected, one in each region, from among those to be improved under the Third Feeder Roads Project. In addition, a sample of four villages in the impact zone of the improved roads and connected to them by a footpath, but not participating in the track improvement program, will be selected as controLs. Data will be collected over a three-year period including the time prior to the construction of the improved feeder road, during construction of the road but prior to the track, and after construction is completed on both the feeder road and the track which connects to it.
15. Since, by definition, each track to be improvredwill be less than 10 km long and will connect to a feeder road being improved, the track's influence area will lie almost entirely within the road's influ- ence area. The study will be designed to distinguish between changes attributable to the road improvement only, as distincl from the road- plus-track combination. It is expected that differences may be found in at least the following areas: area served by the track, frequency of trips, number of vehicles using the tracks, seasonality of traffic, vehi- cle types used for passenger travel and freight transport, and quantities and types of freight transported. Pedestrian traffic will also be in- cluded in this study.
16. One enumerator will be recruited and trained for each sample track to be studied. Research will consist of periodic (quarterly) one- week traffic counts and interviews on the tracks, using forms to be dev- eloped and tested by SRDR, complemented by field reports on periodic visits to the villages, according to an agreed format. Work on the track impact monitoring program will be spot checked by supervisory staff on a regular basis. In addition, traffic counts will be carried out before and after construction on the feeder roads to which the improved and control tracks connect.
17. Reporting. SRDR staff will prepare three reports as a result of this study. The first will identify the medium-term needs for rural road improvements based on the evaluation of the roads in the inventory. It will also review the adequacy of data collected under the pilot phase of the socio-economic impact study and propose specific measures to be taken to improve these data during the second phase. The selected sample and control roads on which the study will be continued will be identified and briefly described. Finally, the sample selection procedures and proposed data collection program for the monitoring of low-cost track improvements will be presented in this report. This report will be due approximately 9 months following credit effectiveness.
18. The second study report will present the results of the economic evaluation of indicative projects and a ten-year program of proposed improvements broken down by discrete annual work programs for SRDR. - 44 - ANNEX 3-2 Page 6 of 6
Analysis of the first round traffic survey results will focus on com- parisons between the data found on the improved roads and the control roacs durine the first year of the study. It will also present baseline date on tracks and the roads to which they connect. This report will be due about a year and a half after the study is started.
19. The third and final report will describe patterns of traffic growth and changes over time on sample and control roads and tracks. It will compare changes on the sample roads with changes on the control roads and changes on the sample tracks with changes on the control tracks. Based on the findings of the track monitoring program, it will propose a methodology for the evaluation of proposals to build low-cost track improvements in Benin.
IV. STAFFING AND SCHEDULE
20. Staffing. The study is estimated to require about six years of professional staff time, in addition to the periodic services of field interviewers, coders, and support staff, and a small amount of technical assi3tance. The professional staff-time will cover a period of three mon•Ils for detailed study design, two-and-a-half years of data collection and orocessing, and three months of final report preparation. It will requ:Lre the services of a Beninese study director and a study supervisor (ha]f time) over the three-year period. Both will be economisoGswith subsoantial experience in the planning and programming activities of the Feeder Road Program in Benin. A volunteer expatriate economist's ser- vicec are being solicited to assist the Economic Division of SRDP for the dureLtion of the study. This position is expected to be filled by a Dutch vo`unteer.
21. Technical Assistance. Specialized technical assistance may be needed in the design phase for the formulation of a work program for monitoring low-cost tracks, the development of traffic sampling techni- queE, and the refinement of data processing plans and programs. The necessary expertise can be obtained locally from the National Univer- sity. Further interventions may be requested later at the discretion of the study sucervisor, to solve problems that may arise during implement- ation.
220 Schedule. The detailed study design is expected to be ready by about November 1984. The design will include the selection of sample and control roads, location of survey posts, preparation of a survey calen- dar, ievelopnent of traffic sampling techniques, reconnaissance acti- vities and baseline data collection, interviewer recruitment and train- ing, and preparation of a plan for monitoring change in communities served by low-cost track improvements. Three annual cycles of counts will begin in June and end in March of the following year.
WAPT2 Jan. "984 - 45 - ANNEX 3-3 Page 1 of 4
BENIN
THIRD FEEDER ROADS PROJECT
ACTION PLAN FOR FEEDER ROADS MAINTENANCE AND ITS FINANCING
A. Creation of a Feeder Roads Maintenance Section
1. The DPTPs are in charge of the maintenance of the classified roads network. SRDR maintains the feeder roads. The Government is making significant efforts to extend the responsibility of DPTPs to the entire network and to provide sufficient funding for road maintenance. A transport infrastructure rehabilitation and maintenance project is in preparation; its objectives are, inter alia, to make appropriate arrange- ments for timely and sufficient funding for road maintenance and to rein- force the DPTP's capacity for executing road maintenance. However, there will be a transitory period between implementation of the project and the transfer of technology and maintenance capability to the DPTPs. During this transition which is expected to last until about 1988, SRDR would maintain all the feeder roads constructed under the previous IDA, UNCDF and EDF feeder roads projects.
2. Pending the development of DPTPs' capacity to assume maintenance of the network, a feeder roads maintenance section (FRIS) will be created and temporarily attached to SRDR. This section is expected to be inte- grated later in the SER within the framework of the transport infra- structure rehabilitation and maintenance project. It will be managed by an experienced Beninese engineer assisted by an expatriate specializing in road maintenance during the implementation of the Third Feeder Roads Project. It will be in charge of:
- Planning, programming and executing routine and periodic maintenance of the feeder roads built under IDA, EDF and UNCDF financed programs;
- Defining work performance standards and service levels according to the different classes of traffic and budget- ing the financial needs for feeder roads maintenance;
- Coordinating and supervising the work of the maintenance brigades in the field; and
- Supervising the maintenance done by DTPTs on those feeder roads with which they have been entrusted. - 46 - ANNEX 3-3 Page 2 of 4
3. FBRIS will have three regional offices. Each regional office will be managed by a senior highway technician assisted by at least one sutpervisor to ensure that maintenance is carried out as planned. FRMS will have two mechanized maintenance brigades: one for the two large northern provinces of Atacora and Borgou and the second for all of the southern provinces. These mechanized brigades will carry out seasonal grading where and when necessary and other minor improvements in accord- ance with established work performance standards. The regional offices will supervise the work of these mechanized maintenance brigades.
4. Rout;ine maintenance will be done by several gangs of laborers supervised by the regional offices. The gangs for routine maintenance (about 20 laborers) would be set up based on the average of one worker per 5 km of f'eederroad to be maintained. Additionally each regional office will have a gang for emergency maintenance (about 15 laborers each).
5. FRMS is expected to be established not later than December 31, 1984, and fully operational not later than June 1985.
B. Roads to be Maintained by SRDR
6. Upon the completion of the proposed project, the Feeder Roads constructed by SRDR will be as follows:
First Feeder Roads Project 350 km Second Feeder Roads Project 600 km Third Feeder Roads Project 840 km EDF Project 120 km UNCDF Project 220 km Total 2,130 km
Three hundred kilometers of feeder roads are presently being maintained by DPTPs. This quantity could possibly be increased if the quality of DPTP's work is satisfactory. The network to be maintained by SRDR will represent about 1,600 km for both routine and periodic maintenance.
C. Implementation Schedule
Periodic and Routine Maintenance
7. The work program for periodic and routine maintenance is based on the construction schedule of the Third Feeder Roads Project. Its annual composition is as follows: - 47 - ANNEX 3-3 Page 3 of 4
The Feeder Roads Network to be Maintained (in km)
Year Routine Periodic Total SRDR DPTPs SRDR
1985 1,125 300 a/ 1,425 1986 1,350 300 a/ 1,650 1987 1,350 300 250 1,900 1988 1,350 500 280 2,130 1989 1,350 500 280 2,130
1/ No periodic maintenance is required during the first two years of the project.
D. Cost Estimate
8. Annual routine maintenance costs are estimated at US$140 per km in 1984 prices. An inflation rate of 12% per year has been assumed for subsequent years. Periodic maintenance costs, including about 60% of foreign exchange, are estimated at about US$520 per km, also in 1984 prices, with an annual inflation rate of 10% per year for subsequent years. Based on these unit costs, the total funding needs (excluding technical assistance and equipment amortization) to ensure adequate maintenance are:
In US$'000
Year 1985 1986 1987 1988 1989 Total
Routine maintenance executed by
(a) SRDR 160 215 250 280 315 1,220 (b) DPTPs 50 55 60 70 80 315
Periodic maintenance (executed by SRDR) - - 160 185 C205 550
Total 210 270 470 535 600 2,085
E. Financing
9. Financing of the feeder road maintenance program is the obli- gation of the Government through the Road Fund. As part of the proposed transport infrastructure rehabilitation and maintenance project, the Road Fund would be restructured and appropriate arrangements will be made to ensure sufficient funding for maintenance needs. The Government in the - 48 - ANNEX 3-3 Page 4 of 4 rneantime has already decided to levy some earmarked taxes on selected agricultural commodities to maintain the feeder roads. To help give a head start during the initial period of implementation, the Association is willing to participate in feeder roads periodic maintenance financing on the same basis as in construction works. IDA will finance routine maintenance on a declining percentage basis as follows:
Year 1985 1986 1987 1988
Percent of IDA Contribution 80 50 30 0
10. After the completion of the project, Government will finance all feeder roads maintenance expenditure as listed in para. 8 from its bud- getary resources.
11. The Government agrees to show in its annual budgets a separate item for all sums allocated to the maintenance of feeder roads included in this action olan. For the next five years, the Government's budgetary allocations should not be less than:
In US$'000
Year 1985 1986 1987 1988 1989 Total
Government 42 135 294 350 600 1,421
WAPT2 Mar. 84 - 49 -
ANNEX 3-4
BENIN
THIRD FEEDER ROADS PROJECT
EQUIPMENT TO BE PURCHASED
Item Unit Cost Quantity Amount US$ US$
Agricultural tractors (85 HP) 18,300 11 201,300 Dump trailers 4,200 9 37,800 Dump trucks (7T) 45,000 1 45,000 Water tank trucks (6m3 ) 45,000 3 135,000 Platform trucks (30T) 35,000 3 105,000 Pick-ups 8,500 13 110,500 Four-wheel drive vehicles 11,250 2 22,500 Cars 7,000 2 14,000 Shaping blades for tractors 1,500 6 9,000 Front shovels for tractors 11,000 4 44,000 Concrete mixers 8,500 6 51,000 Water pumps 2,000 8 16,000 Air compressors 3,000 4 12,000 Concrete vibrators 3,000 6 18,000 Battery chargers 500 7 3,500 Pipe molds 4,000 6 24,000 Workshop equipment 3,000 3 9,000 Workshop tools and handtools est. 87,000 Mobilettes 600 20 _12,000
Total 956,600
Rounded 957,000 - 50 -
ANNEX 3-5 Page 1 of 8
BENIN
THIRD FEEDER ROADS PROJECT
TERMES DE REFERENCE DE L'ASSISTANCE TECHNIQUE AU TROISIEME PROJET DE ROUTES RURALES AU BENIN
1. Objectifs
Les objectifs assignes a l'assistance technique sont:
(a) assister le SRDR pour l'ex6cution du projet:
(b) ameliorer les capacites de planification et de programmation des travaux a entreprendre par le SRDR en particulier et la DROA en general;
(c) concevoir et executer un programme de formation de tout le personnel SRDR en particulier et de la DROA en general de maniere a:
(i) assurer la releve progressive de toute l'assistance technique;
(ii) obtenir un accroissement sensible de la productivite des brigades en aidant le personnel d'execution a mieux assimiler les techniques de construction et de maintenance du materiel.
(d) aider le SRDR a mettre en place une section d'entretien des routes rurales.
2. Composition de l'equipe
La composition de 1'equipe d'assistance technique et le temps de prssence de chaque expert sont decrits ainsi qu'il suit: - 51 -
ANNEX 3-5 Page 2 of 8
A. Assistance techniqueau SRDR
Quantite Position Responsabilites Dur~e (h/mois)
1 Responsableadminis- Toutes questions admin. tratif et comptable et comptables du projet 20 1 Ing6nieurhomologue Supervisiontechnique chef de la division du projet 30 technique du SRDR 2 Technicienssuperieurs Travaux du terrain 40 1 Technicienmaintenance du materiel Materiel 20 1 Expert formateur 16 Total partiel 126
B. Assistance technique a la DROA
1 Ingenieurmecanicien 24 Specialistesformation courte duree (a la demande) 10 Total partiel 34
Total A + B = 160 h/mois
C. Volontaires de l'assistanceneerlandaise
1 M6canicien 30 1 Economiste 30 Total partiel 60
Total A + B + C = 220 h/mois
3. Qualifications
Tous les experts de l'AssistanceTechnique doivent avoir une par- faite connaissancedu fran,ais et une experience de formateur dans leur specialite,et avoir travailledans un ou plusieurs pays en voie de deve- loppement. Les qualificationset fonctions specifiquesdes membres de l1'quipe devront etre:
(a) Expert administratifet compatable (20 h/mois) Sous lVautoritedu Chef SRDR, et en collaborationavec un homologue beninois, cet expert sera charge de la gestion administrativeet comptable du projet.
Il aura en particuliera mettre en place ou a renforcer un systeme de comptabilitematiere et de comptabiliteanaly- tique. - 52 -
ANNEX 3-5 Page 3 of 8
11 sera egalement responsable de l'approvisionnement correct des chantiers et de la passation de toutes les commandes n'cessaires au fonctionnement du projet.
I1 aura egalement la charge du calcul des prix de revient des travaux et la responsabilite de l'dition des rapports periodiques, en collaboration avec l'ingenieur charge de la supervision.
I1 devra former son homologue beninois qui doit necessai- rement etre en mesure de prendre la releve avant la fin du projet.
Qualifications:
Ing'nieur Civil ou Administrateur diplime d'une Ecole supe- rieure de gestion ayant une experience d'au moins dix ans dans la gestion administrative et comptable. Une bonne connaissance de l'Administration des Travaux Publics en Afrique est souhaitable.
(b) Ingenieur charge de la supervision des travaux et de 1'en- tretien routier (30h/mois):
En collaboration avec son homologue IngsenieurBeninois, cet expert aura pour tache:
(i) la planification et la programmation des travaux;
(ii) d'etablir les ordres de grandeur des rendements a atteindre pour chaque brigade compte tenu des con- textes locaux et de s'assurer cue les travaux s'exe- cutent conform6ment aux previsions;
(iii) d'assurer sur le chantier tout l'appui technique necessaire pour la realisation de travaux de qualite (Reconnaissance prealable du -'race,leves topogra- phiques, adaptations des travaux ou des ouvrages au contexte sp6cifique, etc.);
(iv) de rediger un guide pratique a l'intentiondes chefs de brigades dans le but de les aider a mieux orga- niser les chantiers et ameliorer les techniques de construction;
(v) d'assister le chef SRDR pour la creation, et la structuration d'une section d'entretien routier, notamment mettre en place un systeme de budg8ti- sation, etablir les procodures de fonctionnement de cette section par rapport aux Directions regionales; 53 -
ANNEX 3-5 Page 4 of 8
(vi) etablir un programme annuel d'entretien des routes rurales, organiser les equipes d'entretien et leur assurer la logistique pour la realisation des tra- vaux;
(vii) rediger un manuel pratique pour lVentretien des routes rurales decrlvant les differentes taches et les rnethodes d'organisation, de realisation des travaux et de determiner les elements de definition des ceuts d entretlenc
Qualifications:
Ingenieur civil d'une tres haute compe+r1 ce technique tant en matiere d'etudes, de controle et d'organisation de tra- vaux routiers. Il doit avoir une experience d'au moins 10 ans dans le domaine des travaux rcutiers, dont au moins 3 ans en Afrique. Tout en etant base a Cotonou cet Ingenieur devra faire preuve d'une tres grande mobilite et -faire preuve d'ure aptitude reelle a preradre des initiatives sur le terrain. Une experience dans l_oorganisation des systemes d'entretien routier sera hautement anprec:i7
(a) T'7echniciens superieurs clii.arges de la coordination des tra- vaux sur le terrain T- x 20 h/mois)
Elements essentiels d'appui t_ecI-biqueaux chefs de brigades les deux technicienssuperieurs seront bas6s dans les zones geographiques ou3se d9rouleront les travauxv Tls auront pour taches essentielles.
- de coordonner et de superviser les differentes bri- gades - de veiller a la qualite des travaux selon les stan- dards techniques admis - de veiller a la bonne organisation et a l'approvi- sionnement permanent du chantier pour maintenir un bon niveau de proCdIativite - d'assurer la liaison entre les chantiers et les eche'ons centraux du SCRDRparticulierement en ma- ti3re d'approvisionnement - d'apporter appui technique pour l'ex&cution des travaux d'entretien routier
Qualificationse
Conducteur de travaux ayant une tres borne connaissance en trace routier, organisation et execution de travaux routiers en Afrique, en particulier des routes en terre. Une expe- rience professionnelle d'au moins 5 ans est necessaire. Une aptitude de formateur sera appreciee. - 54 - ANNEX 3-5 Page 5 of 8
(d) Technicienpour la maintenancedu materiel
En collaborationavec l'IngenieurMecanicien place aupres du chef du SEMTP, ce technicienaura specifiquementpour taches la maintenancedu materiel affecte au SRDR tant pour les travaux de constructionque pour l'entretienroutier. A ce titre il doit :
(i) veiller sur le terrain a l'entretienpreventif rigoureux du materiel;
(ii) gerer les pieces detachees et carburantsdestines au projet au niveau des brigades;
(iii) Proceder aux reparationsdu mat'erielaffecte sur les chantiers,et former sur le tas les mecaniciens beninois;
Qualifications
Formation de Technicien Superieur M6canicien avec une experiencepratique reconnue et une tres bonne connaissance de remise en etat de materiels et engins routiers. Exp5rience de formation pratique sur le tas de conducteurs et mecanicien de chantier.
(e) Expert formateur: (16 h/mois)
Cet expert aura pour tache de planifier,programmer, coor- donner et supervuser toutes les actions de formationdu personnel 'SRDRd'abord, de tout le personnel de la DROA ensuite.
Ces actions doivent viser essentiellement:
(i) la formation du personnel d'execution(travaux rou- tiers, maintenance du materiel, gestion des maga- sins, comptabiliteanalytique et comptabilitema- tiere);
(ii) la formation des homologues appeles a remplacer les experts charges de l'assistancetechnique au projet;
(iii) la formationde formateursbeninois qui pourront continuer les actions de recyclage par la suite.
L'expert formateurde l'equipe d'assistancetechnique assis- tera le SRDR en particulieret la DROA en general dans la preparationd'un programme de formationqlui sera fonde sur les points suivants: - 55 -
ANNEX 3-5 Page 6 of 8
(i) recensement du personnel technique d'execution existant et determination des besoins pour assurer integralement l'execution des travaux et l'entretien du reseau de routes rurales;
(ii) repartition par categorie de personnel a former en indiquant le nombre de specialistes assignes a cha- que categorie. Au cas ouiil ne serait pas possible de prevoir des cycles de formation ou de recyclage pour toutes les categories simultanement il y aura lieu de determiner les priorites suivant l'urgence de l'utilisation du personnel;
(iii) description detaillee du programme de formation professionnelle pour chaque categorie avec planning de mise en place. Les methodes de formation propo- sees seront soigneusement decrites;
(iv) analyse des besoins de perfectionnement et de recy- clage du personnel du SRDR en place ou a recruter suivant trois axes:
- activites administratives et comptables - activit6s de travaux routiers Eentretien routier - activites de maintenance =entretien du materiel
Cet expert en tant que responsable de la formation fera appel au besoin a des specialistes pour dispenser des cours de formation de courte duree, aux autres membres de l'equipe d'assistance technique et aux volontaires de l'assistance neerlandaise en utilisant au mieux leurs competences particulieres.
Qualifications:
Ingenieur civil particulierement experimente dans le domaine de la formation et du perfectionnement du personnel et de l'organisation des services routiers.
(f) Ingenieur mecanicien (24 h/mois)
Place aupres du chef du SEMTP cet expert aura principalement pour t'achesde:
(i) superviser la maintenance du materiel tant des bri- gades de construction que d'entretien;
(ii) etablir un guide pratique pour l'entretien preventif a l'intention des conducteurs et mecaniciens au niveau des brigades; 56 -
ANNEX 3-5 Page 7 of 8
(iii) participer a la formation de mecaniciens, magasi- niers et gestionnaires des pieces detachees en liai- son avec !'expert formateur;
(iv) etablir les procedures dVapprovisionnement et de gestion de mini-stock, de pieces detachees, de carburants, lubrifiants et en controler
; utilisation.
(g) Formateurs specialistes
II sera fait appel a. des experts pour des cycles de forna- tion de courte duree, particulierement pour les cadres de haut et moyen niveaux et les formations specialisees.
Volontaires de lVassistance neerlandaisei
(a) Volontaire m5canicien (30 h/mois)
Taches
(i) Assister le chef de la brigade mecanisee dans lVexe- cution de son programme de travail et assurer l1en- tretien preventif du materiel;
(ii) Assurer ia formation technicue sur le tas des con- ducteurs et mecaniciens de chantier.
Qualifications
Experience reconnue dans le domaine de travaux routiers mecanisas, et une certaine experience de formateur.
(b) TolonrtaireEconomiste (30h/mois)
Taches:
(i) Participer a l'organisation des activites de formation du Centre de Formation de Cotonou;
(ii) Aider a la realisation de letude d'impact socio- economique des routes de desserte rurale; et
(iii) Aider a developper la participation des localites au proSet.
Qualifications
Bonne connaissance en economie appliquee avec une bonne exnerienne des aetivites sociales et oreanisationnelles.
WAP12 Apr. 84 CAIf1R FOR TICAL ASME
. __ _ -P- ir9tYear SBCc1rY !ehirdYer _ - -1b rs&tio re 1 2 3 4 5 6 7 8 9 10 11 12 1 2 3 4 5 6 71 I1 12 -1 2 3 4 5 9
a Aoxmtant __ert - } - | - - -
2. Civil engiteer for m. - -- & Road YAIntawno-e
3. TedciLan No. I (South) - - _ - D - + - - - t0
4. Techyian No. 2 (Nort) - - - - ! _
5. Traiumn rPe~rt i~- 5oiningFtipert~~~~~~~~~~am-- t-mml= -1 1_F--lS|lll 16u
6. | ~intome Thchicn m - - 1 . 1 _ 1--- I-- ES ! II12
7. Ybcibnical Wgineer m ------_| - - - - - 24
S. %ort1te s am Nam 1 -
TOVlj Yarnths per Year | 68 43%- 69 43_% =14G L 23 1
_ote_ Me periods of leve are inicative, Ihe tirin!g bas to b- fixed depeniing aa the initija2 mnt of p tjecls'iMnpnitatiln and in acordance viit the experts' perxni cxxstrantraa.
Ar. 84 - 58 -
ANNEX 3-6 Page 1 of 4
BENIN
THIRD FEEDER ROADS PROJECT
TRAINING PROGRAM
Objectives
1. The objectives of the program are to:
(a) improve SRDR and DROA's capacity to plan and coordinate and execute their work program;
(b) continue the training actions already started under the Fourth Highway Project; and
(c) prepare and implement new training materials for SRDR's personnel,and, on a voluntary basis, for DROA's per- sonnel.
Existing Situation
2. SRDR personnel includes about 274 high level staff, technicians and,skilled workers: 10 heads of sections and sub-sections,9 accountants and assistants,17 administrativestaff attached to the brigades, 9 heads of brigade, 25 foremen, 75 heads of gang, one chief mechanic, 24 mecha- nics and helpers, 66 drivers and operators, 13 store keepers, and 25 bricklayers. Three main positions are not filled: the chief of the admi- nistrative and financial division, one economist for the economic divi- sion and the chief of the financial section. Two accountantsare also needed for the financial section. The head of the brigade in charge of bridge constructionis also the head of one feeder roads maintenance brigade (the one in the northern region). SRDR also employs about 1,500 piece-workerswho are trained on-the-job. Training for the piece-workers is not included in this program. - 59 - ANNEX 3-6 Page 2 of 4
3. The educational background of SRDR's personnel is as follows:
PositionOccupied Education/Training School Training No Fonnal University High Prinsay Technical Vocational Apprenticesip Education/Training SectionHead x Accountant x x Administrative (Assigned to Brigades) Brigade Head x x Head of Maintenance Gang x Record Keeper (Brigade) x Chief Mechanic x x x Mechanic x x x Mechanic's Helper x Store Keeper x Foreman x Bricklayer x
Existing Training Resources
4. A training center, created under the 4th Highway Project, is in operation for training of mechanics and auto electricians. It is headed by a mechanical engineer who receives on-the-job training through the technical assistance provided under that project. Eight instructors (five mechanics and three electricians) are also being trained. These instructors are assigned part-time to the training center. Training manuals and aids have been prepared/purchased. Video equipment and equipment for reproduction of documents exists in the center. Mechanics and auto electricians are given theoretical classroom training which is supplemented by practical training given in two small areas set aside within SEMTP's main workshop for practical training. Under the Second Feeder Road Project formal training has been of a limited extent. Two training manuals have been prepared and are being reviewed by SRDR; one presenting the administrative procedures and the other a very praccical. one related to all the activities and tasks to be performed by a labor- intensive brigade for both construction and maintenance. Publication of a monthly newsletter is planned in the near future. It will contain technical subjects for training. Audio-visual materials (slides) related to the works performed by the labor-intensive construction brigades and similar works carried out in other countries (Kenya and Lesotho) are available and used in training SRDR personnel.
Training Needs and Programs
5. Most of the SRDR personnel need basic and/or refresher train- ing. The training will be provided either on a formal basis and/or on- the-job basis, according to the level of the trainees and the training needs. Apart from the technical subjects relevant to each category of personnel, improvement of knowledge and skills is needed in the following - 60 - ANNEX 3-6 Page 3 of 4
areas: planning and organization of works, use of management tools and inteprtaioo data, and personinelmanagement.
6. The tra-inringprogramn addresses 383 SRDR's members including, equipment operators, drivers anid staff memibers to be appoi-nted in the new Feeder Roads maintenance section and is summirarizedin t-he table below.
Benin- Training Program
Trainees Training Program course traineet
* ~~~~~~~~~~.~~uration d
00 0 ~~~~>0 >ao.0I N
a, ~ a u a,
No-Moer of Personnel6 'c *e . e mj UJoO
2. Management function x x I c 1 4 9 1 9 316 3 . sfin,t-ative procedures Level I x x x x c1 1201 20 20 Level 2 x x x 3 31543 3162 162 4, Personniel planning & x x CM 2 3 ii 1 22 33 4ov e c o Hint 5. Repoo•ing x CM I 3 382 8 114
O6. Dfa]icnsh-~Ds with local x X DeV 1 5 3 2 3 9 au thto ri tie&s213 19 7. Budget and accounting 5x I'2 Z 16 1<32. 32 0. Cosc accountIn x x x 4 3 62 4 124 & 105 9.Wrk rograms x CMI 1 2 101 1U .23
10. Feasihi'-~.v studies x . 1ov~3 2 41 2' 3
11. Road cc- truction and 5 x Hz s - 9- ~45 - ~Lantenance [ 12. Road inapection a x IaI 2 3 38 2 76 lie4 13. Works nethods a x HE~ 5 - I383 190- - !4. Wncks, quantitles
Level 1 x a1 a Y7 - 463 I38 - Level 2 x a xi DV 3 - '193 10 579 -
15. Equipment management and x M0 E1 3 4 10 1 30. 40 generalities on. equipment I3 16. Equipment_ maintenance a x DVi 2 5 18310 36 915
17. Equipt:-can operation D vk 5 10 1106 20 .530t 106C 13. Use of spare parzs lists I f 1 5 27. 3 27 13 5
19. BookkeePing ano site a 1 Aj 7 10 16 1 112 160 stores orgarizanaut: I . 20). safetv a x x 1 7- 5 ~184'10 I552. 920
TOTAL 1 V7
Traininig duration per Baif(as) 1 7 8 6 26 24 0 15 3 5 318S 4 category of personnel Refresh 116 10 6 5 24 27- 10 21 - IC) - 24 5 (days/year) 61 -
ANNEX 3-6 Page 4 of 4
Training Program Implementation
7. The training will be handled by the Training Expert assisted by the other members of the technical assistance team and the Dutch Volunteers. The Training Expert will be fully responsible for the organization and implementation of the training program.
8. The periodic refresher courses will be given by the Beninese instructors of the DROA training center and/or by the immediate hierarchic superiors of the members to be trained. In addition, formal training sessions will be organized by the suppliers of new equipment financed by the Project and addressed to the operators, drivers and mechanics.
WAPT2 Jan. 84 - 62 - ANNEX 3-7
BENIN
THIRD FEEDER ROADS PROJECT
PROJECT COST SUMM¶ARY
(CFAFmillion) (US$ '0^0) % Fbreign % Total ILocal Pbreign Total Local Foreign Total Exchange Bae Costs
1 TrainingProgram & Consultant Services a. Technical Assistance (160 N/M) 56.0 503.8 559-8 133;9 1,205.4 1,339.3 90.0 13.7 b. Volunteer Exprts (60 "N) 16.0 16.0 32.0 38-3 38-3 76.6 50.0 D.8 c. Local 'ran Supply& Allowances 42.6 10.7 53.3 102.0 25-5 127.5 20.0 1-3 d. Socio-economic Impact Study 32.0 - 32.0 76-5 - 76.5 - 0.8 e. Consultant Studies 48.0 144.0 192.0 114.8 344.4 459.2 75-0 4-7
SubtotElLTraining PrOgrSn & Consultants Services 194.6 674.5 869.1 465.5 1,613.6 2,079.1 77.6 21.3
2. Road Constirction Euipnent a. Eaipment 40.0 360.0 400.0 95.6 861.0 956.6 90.0 9.8
SubtotaLRoad Construction EEuipmet 40.0 360.0 400.0 95.6 851.0 956.6 90.0 9.8
3. Road Conistruction and Periodic Yaintenance a. Wages 1,583.5 - 1,58'.5 3,781.0 - 3,781.0 _ 38.6 b. Fuel 36.7 330.1 366.8 87.8 789.8 877.6 90.0 9.0 c. Spare Perts, Bluip Repairs and Maint. 44.7 403.1 447.8 107.1 9644 1,071.4 90.0 11.0 d. Local Purdhases 167.9 18.7 186.6 401-8 44.6 446.4 10.0 4,5
Subtotal Road Construction & Periodic Yaintenance 1,829.8 751.9 2,561.7 4,377.7 1,79,.7 6,176.4 29.0 63.1
4. Routine]ood Maintaenrnce a. Wages 170.6 - 170.6 408.2 - 408.2 - 4.2 b. Fuels 3.8 34.6 38-4 9.1 82.7 91.8 90.0 0.19 c. Spare Parts & Repairs 2.3 21.1 23.4 5.6 50.5 56.1 90.0 O.6 d. IDcal Pulanses 5.3 - 5.3 12.8 - 12.8 - 0.1
Sabtotal Routine Road intenance 182.0 55.7 237.7 435.7 133.2 568.9 23.4 5.8
Total Baseline Costs 2,246.4 1,842.1 4,088.5 5,374.5 4,406.5 9,781.0 45.0 100.0 Physical Contingecies 314.5 257.9 572.4 752.4 616.8 1,369.2 45.0 14.0 Price Contingencies 471.7 386.8 858.5 1,128.7 925.3 2,054.0 45.0 21.0
Total Project Costs 3,032.6 2,486.8 5,519.4 7,255.6 5,948.6 13,204.2 45.0 135.0
WAPT2 r. 84 - 63 -
ASNEX 3-8
TRIRDPELER ROADSIlOJECT
IMPLEMENTATIONSCHEDULE OF THE FIRST YEAR
Months Briade No. Road L 1 2 3 4 5 6 7 8 9 11 12
Mechanizd * Bodjecali-Garou 17 D 17 BaTume-Zarkcuiaden 12 15 Houegbo-Wokp 10 16 Zasgnaro-Sacbovi 17 14 Sagon-Aize 7 12 Ouokon,41onzotgoudo 10 38 Gbonago-Abggo 10 labor Intensive 1 29 Agoua-Bobe 16 23 Bnte-Aklampka 29
Labor Intensive 2 * Beroubouay-Yara 20_ D 22 Logozohe-Lahotan 12 21 Lahotan-Ouedeme 5
Labor Intensive 3 * lonougo-Kantero 7 D 1 Lonkly-Voli-latadji 15 2 Lanhoue Tome- Piste Aplahoue-Atcme 6 3 Djakotaney-KPoba 9
Labor Intensive 4 Bagou-Sori 16 - 45 Dunkassa-Bouka 15 47 Bouanri-Biro 7
Total 240 kan
D = Displacement of the Brigade. *= Inventory number not assigned.
WAPT2 Jan. 1984 - 64 - ANNEX 3-9
BENIN
THIRD FEEDER ROADS PROJECT
IMPLEMENTATION SCHEDULE
Item 1984 | 1985 j1986 1987 1988
Credit Effectiveness
I. Technical Assistance & Training
- Award of Contract - Consultant Services
II. Equipment Procurement
- Preparationof Tender Docs. - Invitation of Bids - Bid Evaluation - Award of Contract - Equipment Delivery l
III. Feeder Road Constructiona/
IV. Low Standard Track Construction - .
V. Routine Maintenance | -
VI. Periodic Maintenance I -
VIIL Impact Study
a/ See detailed First Year Implementation Schedule.
WAPT2 Feb. 1984 - 685 -
418F3-1C0
BENIN
THIRD FECDER ROADS PROJECT
SCHEDUJLE OF DISBURSEMENTS (US$ 'QOO)
1 "'1 -- (0 / 7~~~~
-- z/e'w I a u~~~~~~~a
70 4.. r W; g v Actual cumulative dis, manr aS a9 O-=-- 0> 4 pe.centages under Secoud 60_ } a ' / Feeder RcaDs Prc aet -0 0; / Esti.ated ca sbur,se- 0 $ z0. / SO 71> ,? f t . ba~~~~50en" profl-Je for Ii-e prnpo-- e~d a', | 44 ' / i' / project (IDA Cre di )
a,, a -E; / ,We .^scimated cu-mulative isb.urse- -: 3 01{ ,^----- m.eet pro vl fo th crpsed V. / 0 S J 4,/ (: . ' r .P D jc e ^t (T _alv...... -.e.SPe
W W ;@ ', > ,, >> , 'leY ct~~~~~~~~~~~~~~~~~~~~~~~~0rn, em n-oReisr
ci pN*g A X ~e roads projects
1981 19S,2 1985 19C4 i985 1;,36 i987 i'8 i9893 i990 iY,
IDA FY an /eD Cei % Of 3/TD 3f
9-5 2Y0 Ja 30, 1 cs - - 1 42I
FYe1ges Septber 30, 420 1 f9u/4 8 ,, 1. --- 19 4Jua3,Ic3mber 31, l2e5 2 66483 4 141 191- 423 22 , 81 1M98 31, 19e2 721 1q84a 31 91 ',362 18) 643 June 3C, NC9f36 /A 2,6C4- 44 720 56.O 5t
September 30, 110 420 3,2) 56 74 ,49' 68 Crcwber 31, 1936 4560',2 68 619 ' 739 z1-'a2031,1£7:S1afy 33 41,6 540 &7 June 30, 1S7 5760 5,220 6 4 Pal 55&
Septmber 30, 9,2 5 c, 36 452 97 ~~ptaster3D,lS6~i I6552 952'9 DTcwbear31, I953 2'43 5,623 97 CC,W 10)2 March 31,, 13 132 6,ro3 102
W3APT2 Apr- 84 - 66 - Annex 4-1 Page 1 of 3
BENIN
THIRD FEEDER ROADS
KEY ASSUMPTIONS IN THE ECONOMIC ANALYSIS
1. Project roads will have a life of ten years, assuming periodic regraveling in year seven.
2. Without the project:
Agricultural production, being unconstrained by land supply, will increase as a function of population increase, which is assumed to occur at the provincial average rate of growth of rural population, as follows:
Borgou 2.0% Mono 1.2% Ouem' 1.2% Zou 1.2%
3. With the project:
(a) extension services and additional inputs were expected to be applied at the rates and costs specified in the following table;
(b) land under cultivation is expected to increase in propor- tion to population, which is assumed to increase at the national average growth rate of 2.59% natural increase in the road influence area;
(c) after allowing for autoconsumption on farm and other losses, all marketable surpluses are assumed to be marketed. - 67 - ANNEX 4-1 Page 2 of 3
ESTIMATES OF AGRICULTURAL PRODUCTIVITY GAINS (kg/ha) AND ASSOCIATED COSTS
Regio n oMono Mono Oueme Ouem6 Zou Zou Borgcu Borgou Cre6ionp South North South North South North South North
Maize
Actual Yield (kg) 712 712 621 621 759 759 696 689 Improved Yield (kg) 1,50C 1,500 1,390 1,390 1,500 1,500 1,370 1,370 Years to achieve improved yield 10 10 10 10 10 10 10 10 Annual Costs Inputs (CFAF) 13,417 13,415 18,324 35,716 14,803 17,104 11,875 7,663 Subsidy (CFAF) 2,406 2,406 2,406 2,406 2,406 2,406 2,406 2,406 Intensification (CFAF) 3,000 3,000 3,00C 3,000 3,000 3,000 3,000 3,000
Rice
Actual Yield (kg) 1,200 1,154 2,064 2,065 1,881 1,884 1,717 1,743 Improved Yield (kg) 2,500 2,500 2,800 2,800 2,500 2,500 2,600 2,60O Years to achieve improved yield 10 0 10 10 10 10 t tO Annual Costs Inputs (CFAF) 5,000 5,000 3,750 3,750 5,000 5,000 5,000 5,000 Subsidy (CFAF) 3,000 3,000 3,000 3,000 3,000 3,O 3,000 390C Intensification (CFAF) 5,026 5,008 3,865 4,000 5,078 5,159 5,128 6,095
Sorghum
Actual Yield (kg) 593 593 759 757 Improved Yield (kg) 1,000 1,000 1,000 t,00OO Years to achieve improved yield 10 10 1C 10 Annual Costs Inputs (CFAF) 3,773 4,335 10,181 14,768 Subsidy (CFAF) Intensification (CFAF)
Millet
Actual Yield (kg) 514 514 Improved Yield (kg) 620 620 Years to achieve improved yield 10 10 Annual Costs Inputs (CFAF) 2,074 2,165 Subsidy (CFAF) Intensification (CFAF)
Manioc
Actual Yield (kg) 6,936 6,936 5,876 5,876 7,035 7,050 6,069 6,073 Improved Yield (kg) 7,000 7,000 7,000 7,000 8,000 8,000 7,800 7,800 Years to achieve improved yield 5 5 5 5 5 5 5 Annual Costs Inputs (CFAF) 2,631 1,773 3,105 6,112 4,065 7,977 2,047 851 Subsidv (CFAF) Intensification (CFAF)
Yams
Actual Yield (kg) 8,000 6,894 6,904 12,t69 12,616 9,765 9,655 Improved Yield (kg) 10,000 8,000 8,000 13,000 13,000 - - Years to achieve improved yield 5 5 5 5 5 - - Annual Costs Inputs (CFAF) 74 1,352 389 4,947 12,740 3,467 Subsidy (CFAF) Intensification (CFAF)
Potatoes
Actual Yield (kg) 1,167 1,165 5,000 5,000 4,000 4,000 Improved Yield (kg) 5,000 5,000 6,000 6,000 7,000 7,000 Years to achieve improved yield 5 5 5 5 5 5 Annual Costs Inputs (CFAF) 9 73 769 130 145 38 Subsidy (CFAF) Intensification (CFAF)
Taro
Actual Yield (kg) 3,000 3,000 Improved Yield (kg) 6,000 6,000 Years to achieve improved yield 5 5 Annual Costs Inputs (CFAF) 13 13 Subsidy (CFAF) Intensification (CFAF) - 68 - ANNEX4-1 Page 3 of 3
_ Regiior. Mono Mono Ouece Oueme Zou Zou Borgou Borgou South North South North South North South North
Beans
Actual Yield (kg) 433 436 447 447 389 389 323 325 Improved Yield (kg) 650 650 650 650 650 650 650 650 Years to achieve improved yield 5 5 5 5 5 5 5 5 Annual Costs Inputs (CFAF) 7,802 8,829 9,441 8,712 11,993 13,504 10,441 11,178 Subsidy (CFAF) ntencsification (CFAF)
Peaniuts
Actual Yield (kg) 596 597 465 465 708 724 871 888 Improved Yield (kg) 660 660 800 800 1 ,370 1,370 1 ,250 1 ,250 Years to achieve improved yield 5 5 5 5 5 5 5 5 Annual Conts Inputs (CFAF) 3,209 5,433 6,033 3,499 11,554 10,834 3,886 5,451 Subsidy (CFAF) 1,719 1,719 1,719 1,719 1,719 1,719 1,719 1,719 Intensification (CFAF) 3,000 3,000 3,000 3,000 3,000 3,000 3,000 3,000
Pepper
Actual Yield (kg) 300 305 305 304 304 305 304 296 Improved Yield (kg) 500 500 500 500 500 500 510 495 Years to achieve improved yield 10 10 10 10 10 10 10 10 Arnual Costs Inputs 'CFAF) 33 505 89 79 138 800 46 51 Subsidy (CFkF) Intensification (CFAF)
Gombo
Actual Yield (kg) 2,000 2,000 2,000 2,000 2,000 2,000 2,000 2,000 Improved Yield (kg) 2,500 2,500 2,500 2,500 2,500 2,500 2,500 2,500 fears to achieve improved yield 10 10 10 10 10 10 10 10 Arnual Costs Inputs (CFAF) 3 128 1 15 157 286 66 80 Subsidy (CFAF) Intensification (CFAF)
Tomatoes
Actual Yield (kg) 3,566 3,565 3,567 3,561 3,563 3,565 nrpx,ved Yield (kg) 5,000 5,000 5,000 5,000 5,000 5,000 Years to achieve improved yield 10 10 10 10 10 10 Annuial Costs Inputs (CFAF) 112 1,948 80 45 111 326 Subsidy (CFAF) Intensification (CFAF)
Sesame
Actual Yield (kg) 350 350 352 .mproved Yield (kg) 800 800 800 Years to achieve improved yield 10 10 10 Annual Costs Inputs (CFAF) 345 56 65 Subsidy (CFAF) Intensification (CFAF)
Cotton
Actual Yield (kg) 583 607 667 778 774 774 604 603 Improved Yield (kg) 1,200 1,200 1,000 1,089 1,200 1,200 1,200 1,200 Yearo to achieve improved yield 10 10 10 10 10 10 10 10 Annual Costs Inputs (CFAF) 5,809 6,141 5,800 5,834 6,077 8,733 8,080 12,195 Subsidy (CFAF) 3,625 3,625 3,625 3,625 3,625 3,625 3,625 3,625 Intensification (CFAF) 3,000 3,000 3,000 3,000 3,000 3,000 3,000 3,000
Tabacco
Actual Yield (kg) 429 400 417 Improved Yield (kg) 586 600 600 Years to achieve improved yield 10 10 10 Annual Costs Inputs (CFAF) 4,535 4,515 4,671 Subsidy (CFAF) Intensification (CFAF)
Source; SRDR, Troisi4me Rapport Economique, Dec. 1982 (ref. 3).
WAFT2 Jan. 84 - 69 -
ANNEX 4-2
9 ENINI
IHTRD FEEDERPROADS PROJECT
ESTIYAEES OF MARKETABLEAGRICULTURAL SUR9 US3S (1980-81 harvest in tons'
Borgcu Monc C,eme Zou Total North South Nort'i South North Sout- Nortt South Tubereas a!2310 2,437597 11,838 35,304 32,990l 38.806 27,962 22,0 bereals/ 514,902 54,429 11,364 9,506 19.280 22,591 s5,655 27.320 242,067 Leguminous crops 5,299 2,875 198 5,726 950 7,'72 17,964 26,034 66,218 Vegetables 364 24-4 1,109 34_,314 6,132 1,933 10,009 3,298 59,402
Subtotal 45,66, 60,960 44,288 637,3,84 61.666 F641-86 152,434 84,614 597,697
Or-farm losses 2,2%0 4,050 1,135 4,250 3,085 3,235 8,025 ,,830 29,860
Subtotal 43,,415 76,910 43,153 59,134 58,581 61,451 144,409 60,784 567,837
Auto-consusiption 44,360 50,210 34,460 50,330 25,270 50.605 54,470 53,840 3653,945 (217 kg/year/person)
Balance (potenciaIly marketeAo'e) (-945) 26,700 8,693 8,-'04 33,31' 10,846 89,939 26,944 203,892 Market losses - 1,869 608 589 2,33C 759 6,29G 1 ,886 1 4,337
Total narketable (-945) 24,831 8,085 7,815 30,981 10,087 83,643 25,058 189,555
Total marketable as % cf total production 31 12 50 16 55 30 34 a/ Cereal equivalent = .73 x Tuber vDlume.
Source: SRDR, TroisiZme rappert 6conomique (Annex 3, Table 5) December 1?32 (Ref. 42).
WAPT2 Dec. 83 - 70 -
ANNEX 4-3
BENIN
THIRD FEEDER ROADS PROJECT
ESTIMATES OF AREA CULTIVATED (1980-81) (HA)
Borgou Borgou Mono Oueme Zou Zou (south) (north) (north) (north) (south) (north)
Maiz 14,604 5,797 44,327 55,653 32,919 44,809 Rice 230 1,706 31 360 208 455 Sorghum 15,786 22,301 -- -- 4,370 7,096 Millet 1,700 1,700 ------Manioc 3,445 1,297 4,747 8,416 10,326 22,181 Yams 14,577 3,587 5 1,039 585 7,922 Sweet Potatoes -- -- 242 225 447 131 Taro ------29 -- -- Potato -- 17 ------Green Beans 5,172 5,911 3,673 1,721 12,688 18,924 Peanuts 1,582 3,804 6,914 583 23,718 23,940 Chillies 106 110 2,504 222 595 4,089 Okra 159 165 531 50 685 1,099 Tomato -- -- 9,674 133 490 1,673 Onions __ _ 297 ------Other Vegetables -- _ _ _ _ Coffee ------Cotton 4,123 8,235 1,030 53 779 9,121 Tobacco -- -- 67 -- 25 302 Palm Oil ------Sesamn - -- -- 928 248 330
Total Area Cultivated 61,284 54,630 74,042 69,412 88,083 142,072
Rural Population 231,359 204,418 233,790 116,448 248,107 250,988
HA/Rural Habitants 0.26 0.26 0.31 0.60 0.36 0.57
Source: Ministry of Rural Development and the Third Economic Report, SRDR, December 1982 (Ref. 2).
WAPT2 Dec. 83 - 71 -
Annex 4-4
BENIN
THIRD FEEDER ROADS PROJECT
SUMMARY OF COSTS AND BENEFITS (First Year Program)
Length Costs (CFAF million) Net Present Value (CFAF million) a/ ERR Beneficiaries after No. Name (km) Const. (Net incremental value added) (%) Road improvement
* Bododjecali - Garou 17 34.0 23.90 24.0 1,155 17 Baname - Zankoumadon 12 33.6 114.45 28.0 4,233 15 Houegbo - Wokpa 10 28.0 57.04 46.0 7,668 16 Zangnanado - Sagbovi 17 34.0 98.24 46.0 7,933 14 Sagbon - Aize 7 19.6 4.39 18.0 1,611 13 Holly - Zaloko 10 28.0 27.10 35.0 544 38 Gbonago - Abagado 10 28.0 21.84 31.0 6,641
29 kgoua - Bobe 16 44.8 53.98 41.0 1,148 28 Bante - Aklamkpa 29 81.2 60.25 30.1 7,881
* Beroubouay - Yara 20 56.0 47.3 18.0 22 Logozohe - Lahotan 12 33.6 64.13 33.1 8,833 21 Lahotan - Ouedeme 5 14.0 6.76 24.0 2,134
* Fonougo - Kantero 7 19.6 4.85 18.0 1,610 1 Lonkly - Latadji 15 42.0 13.62 20.0 1,155 2 Piste Aplahoue - Atome 6 16.8 2.91 18.0 3 Djakotomey - Kposa 9 25.2 22.11 40.0 4,009
: Bagou - Sori 16 44.8 49.10 37.0 3,680 45 Dunkassa - Bouka 15 42.0 20.98 24.0 3,592 47 Bouanri - Biro 7 19.6 3.31 16.0 1,029
240 644.8 696.26 Overall ERR- 29.0 64,856
Inventory number not yet assigned.
a/ Discounted at 12%.
WAPT2 Dec. 83 72 - AhNNEX4-5
T20il FEE._ R044 PROJEC:
sMsrIrq-r• CF 'IE 3RR T¶O ILLINGESID' L1102281280ASP10IN4S
ERR av unazg
A __ D 2C%5 2<$ Spulation InSficlent rnrsntesnece lesngth Base EETR less -,clx.e increase in growth. reduced redonos road life A n B 3 "ad .D Io. _ NSiame (Ikn) (If) iraiteted corst. cos2ts to 2 per ro si veas nined a'-ned
* Bododieuii - Garou 17 24 16 19 24 11 17 Bna=e - ZankoUtadon 12 28 1 23 28 24 15 25 15 {Houegbo- Wokpai 'I 46 33 46 4 53 i6 7-engninado - Ss6-x- 17 46 73 j7 45 41 - '4 Sagbon, - Aize 7 18 C0 4 n 14 '3 Follyy- Zaloko 10 35 25 25 35 0 19 25 3 Wrneco - Abagado 1C 35 22 25 31 27 4 20
29 Agoua - Bo'be 16 4' 3C373c 25z 52 28 Bante -. Alank 29 30 21 24 30 25 i6 24
* eroubouay- YaP 20 18 1C I 18 13 8 13 22 lIgoaoze - lehotani 12 33 23 26 32 51 '8 25 21 -ahotaa - Ouedume 5 24 '6 .19 24 18 1' 19
* ononno - SEntero 7 18 I 14 18 11 1 I Lonkly - Latad.4i 15 20 3 16 20 16 c 16 2 Piste i4plahoue - Atcone 6 18 10 13 17 6 11 3 7jakotney- K-posa 9 40 30 3 40 55 24 32
ITagou - Scorn 16 77 27 35 36 53 21 29 45 }DLmissaa- Fouk 15 24 '6 19 24 21 11 18 47 -ouarsi - Biro 7 16 c, 12 16 1 11
Overal ER: 29 19 22 28 '4 21
Inoventory nurmoer not assigned.
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