Document of The World Bank
FOR OFFICIAL USE ONLY Public Disclosure Authorized Report No. 4330-SE Public Disclosure Authorized
STAFF APPRAISAL REPORT
SENEGAL
FIFTH HIGHWAY PROJECT Public Disclosure Authorized
February 10, 1984 Public Disclosure Authorized
Western Africa Projects Department Tran Rportati on Di vi si on I 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. CURRENCYEQUIVALENTS
Currency Unit = CFA Franc (CFAF) US$1 = CFAF 373 CFAF 1 m = US$ 2,681
ABBREVIATIONSAND ACRtONYMS
CCCE - Caisse Centrale de Cooperation Economique DER - Direction de l'Entretien Routier DERM - Direction de l'EntretienRoutier et du Materiel DGTP - Direction Generale des Travaux Publics DM - Direction du Materiel BPP - Bureau des Pistes de Production RF - Fonds Routier vpd - vehicles per day
FISCAL YEAR
July 1 - June 30 FOR OFFICIALUSE ONLY
SENEGAL
FIFTH HIGHWAY PROJECT
STAFF APPRAISAL REPORT
TABLE OF CONTENTS
Page No.
I. INTRODUCTION...... 1
II. THE PROJECT...... 3
A. Objectives ...... 3 B. Description ...... 4 C. Cost Estimates ...... 6 D. Financing ..... 8 E. Procurement under the Project.... 9 F. Disbursements...... 9 G. Reporting and Reviews ...... 10
III. EXECUTING AGENCY ...... 10
A. Organisation ...... 10 B. Staff ...... 11 C. Equipment ...... 12 D. Planning and Cost-Accounting ...... 12 E. Procurement ...... 13
IV. ECONOMIC EVALUATION ...... 14
A. Traffic ...... 14 B. Road Conditions ...... 15 C. Road Maintenance Coats ...... a... 15 D. Vehicle Operating Costs .** ...... 15 E. Rates of Return and Benefit-Cost Ratios ...... 16 F. Project Risks ...... 16
V. AGREEMENTS REACHED AND RECOMMENDATION ...... 16
This report was prepared on the basis of an appraisal mission in September 1982, by Frida Johansen and Snorri Hallgrimsson. It was typed by Guillemette Rohan.
This document has a restricteddistribution and may be used by recipientsonly in the performanceof their official duties. Its contents may not otherwisebe disclosedwithout WorldBank authorization. ANNEXES
1-1 Road Network - Developmentand Present Distribution,and Summary Road Conditionsby Region 1-2 Network Maintained, FY1977-1982 1-3 Road MaintenanceExpenditures and Funding, FY1977-1982 1-4 Fuel Price Structure 1-5 Past/OngoingBank Group Transport Operations
2-1 MaintenanceProgram, FY1984-1987 2-2 PrevisionsTrimestrielles des Depenses 2-3 Road MaintenanceManagement System - Flow Chart 2-4 Controle Depenses et RenouvellementCaisses d'Avance 2-5 Project Commitmentsand Expendituresthrough the Road Fund and Project Account, FY84-87 2-6 Projected Quarterly Disbursementsof IDA Credit
3-1 Organigrammede la Direction Generale d.esTravaux Publics 3-2 Systeme de Gestion de Reparationdu Xat6riel 3-3 Systeme de Programmationet de Planificationde l'EntretienRoutier
4-1 Traffic Levels and Growth Rates on Main.Road Sections by 1981 4-2 Network to be Maintainedand Expected Condition 4-3 Road MaintenanceProgram Costs per Task, 1983/87 4-4 MaintenanceProgram Economic Evaluation
MAP Senegal: Fifth Highway Project - Transport Infrastructure1983 (IBRD Map No.16850) - iii -
Senegal Fifth Highway Project
DOCUMENTS CONTAINED IN THE PROJECT FILE File Code
A. Selected Reports and Studies on the Transport Sector
Al. Plan National de Transport: Rapport Final, June 1981 Doc.#124.520 (F) A2. Inventaire Routier 1981, April 1981 Doc.#125.671 (L) A3. Rapport sur le comptage routier, July 1981 Doc.#120.971 (F)
B. Selected Reports relating to the project
B1. Campagne d'entretien routier 1981-82: Bilan Annuel, August 1982 Doc.#129.156 (6) B2. Plan quadriennal d'entretien routier 1983-1987, February 1983 Doc.#129.156 (7) B3. Plan de campagne d'entretien routier 1983-1984, June 1983 Doc.#129.156 (10) B4. S6minaire sur la gestion de l'entretien routier, April 1979 Doc.#120.917 (D) B5. Journees d'6tude sur la gestion des caisses d'avances, February 1982 Doc.#125.671
- iv -
REPUBLIC OF SENEGAL
FIFTH HIGHWAY PROJECT
CREDIT AND PROJECT SUMMARY'
Borrower: Republic of Senegal
Amount: SDR 20.4 million (US$21.5million equivalent)
Terms: Standard
Project Description: The primary project objective is to assist the Senegalese Government to carry out urgently needed maintenance operations on its road network so as to avoid a severe deteriorationof the network. Related objectives are to keep an adequate balance between maintenance and new road constructionand to further improve the efficiency of the road maintenance organizationalready strengthenedunder earlier Bank Group operations,including the decentralized financialand cost accounting systems, and planning and monitoring of maintenanceactivities. The project would support the Directorateof Road Maintenance and Equipment's program over the four-yearperiod 1983/84-1986/87as follows: (a) routine maintenanceof about 9,100 km of roads in the first year, increasing to about 10,500 km by the fourth year, includingmaintenance of feeder roads; (b) periodic maintenance (repavingand regravellingof road surfaces and rehabilitationof structures)as warranted on roads maintained under (a) above; and (c) deferred periodic maintenance of other paved and gravel roads neglected in recent years because of the Government'sinability to adequately fund the necessary operations. The project would also increase the use of regional revolving funds to promote local administration. In the spirit of the Special Assistance Program (SAP) disbursementswould be substantially front-loaded.
Benefits and Risks: The project would yield high benefits and economic returns to Senegal by delaying the need for new investments in rehabilitationworks and by allowing reduced vehicle operating costs, with a consequen-tialoverall positive effect on the balance of payments. This latter result is particularlysignificant at a time when Senegal, after making good progress in recent years in building up the operating performanceof its maintenanceorganization to the point where it has become one of the most efficient in West Africa, now finds itself unable to sustain this progress because of its very tight budgetary situation. There are no major risks arising from the institutional arrangements for project execution. There is, however, a risk that the Government's budgetary situation may not improve sufficiently over the project period to enable it to assume an increasing responsibility for financing maintenance operations. If this were the case, external assistance would continue to be sought as a priority to ensure an adequate level of maintenance operations. The adequacy of financing will be carefully considered by Government and IDA during a detailed mid-term review of the status of project implementation and its financing.
ProjectCost Szmary
CFAFmillion US$ thousand Fbreign % of Local Local Foreign Local Local Fore.ign Exchange Base Component Cost Tax Cost Total Cost Tax Cost Total % of Total Cost
Road equipment 125 - 2,386 2,511 335 - 6,397 6,732 95 17 Spareparts 5 - 95 100 13 - 255 268 95 1 Workshop equipment 25 - 475 500 67 - 1,273 1,340 95 3 155 - 2,956 3,111 415 - 7,925 8,340 21
Periodicmaintenance: Ritmen roads 657 860 1,011 2,528 1,761 2,306 2,711 6,778 40 17 Gravelroads 1,421 772 1,869 4,062 3,810 2,069 5,011 10,890 46 27 2,078 1,632 2,880 6,590 5,571 '4,375 7,722 17,668 44
Routinemaintenance: Bitumenroads 719 32B 515 1,562 1,928 879 1,381 4,188 33 10 Gravel roads 1,783 780 867 3,430 4,780 2,091 2,325 9,196 25 23 2,502 1,1c8 1,382 4,992 6,7C8 2,970 3,706 13,384 33
Ferry operation, etc 64 152 184 400 171 4C8 493 1,072 46 2
Sub-total 4,799 2,892 7,402 15,093 12,865 7,753 19,846 40,464 100
Price contingencies 1,387 717 1,422 3,526 3,719 1,922 3,812 9,453 23
Total 6,186 3,6C9 8,824 18,619 16,584 9,675 23,658 49,917 48 123
Financing Plan: The proposed IDA Credit of US$21.5 million equivalent would finance about 43% of project costs of the national road maintenance program as foreseen f'or FY84 to FY87, covering 65% of costs until the end of FY85, 30% in FY86 and 25% in FY87. Further external support f'or the latter years is being sought; however, if funds remain insufficient, program and funding revisions would be made at the mid-term review. - vi -
Estimated Disbursements:
-US$ million------FY84 FY85 FY86 FY87
Annual 2.0 11.3 4.7 3.5 Cumulative 2.0 13.3 18.0 21.5
Economic Return: Over 100% for the project as a whole. For the more costly periodic maintenance elements, the return is estimated at 25% for full regravellingand 86% for resurfacing. The B:C ratio is about 2:1. I SENEGAL
FIFTH HIGHWAY PROJECT
STAFF APPRAISAL REPORT
I. INTRODUCTION
1.01 Senegal has a fairly well developed transport system concentrated in the Cap Vert peninsula and the groundnut basin, which are the areas with the largest populations and economic activity. The transport system comprises a 1,032 km railway, 14,000 km of roads including 3,500 km paved; a deepwater, protected port at Dakar and three secondary ports; and an international airport at Dakar and a network of smaller domestic airports.
1.02 Some 95% of all domestic transport in Senegal is done by road. Senegal's road network (Annex 1-1) forms the densest paved network in West Africa; over the last 10 years, with relativelyimpressive investments,the road network has also become one of the best in West Africa: paved roads increased from some 2,250 km to 3,500 km, and all weather gravel roads increased from some 2,300 km to 5,500 km. Some 20% of the paved roads are less than 5 years old and 40% less than 10 years. This compares to 4,000 km of paved roads in Ivory Coast and 2,000 km in Cameroon,which have GNPs four and two times respectivelythe size of Senegal's,and larger land areas. In parallel, the vehicle fleet has increasedto some 65,000 units at about 7% p.a., and used some 7% more fuel every year. Some 80% of the car fleet and 60% of other vehicles are based in Dakar, where about 75% of all traffic originates or terminates;on the most heavily used road section, joining Dakar to the rest of the country through the Cap Vert peninsula, traffic has reached some 18,000 vpd. The importance of preserving the network and keeping vehicle operating costs to a minimum are illustratedby the fact that no less than 900 million vehicle-km are run per year.
1.03 Given that Senegal has a well developed transport network and that the economy is in a critical situationwhich does not generate a surplus for investmentsor create additional demand for services, the first objective is to make the best with what exists, i.e., to maintain assets and improve the efficiency of the system, so that use of scarce available resources can be improved. It is evident that there is scope for improving efficiency and reducing the Government'srecurrent budget requirementsover the medium-term.
1.04 The institutionalcapacity for road maintenancehas already improved since the early seventies; Annex 1-2 shows the evolution of the network maintained,and Annex 1-3, related expendituresand unit costs since 1976/7. Over that period, however, priority was given to new investments over main- tenance, and many roads were paved despite their carrying less than 100 vpd; road investmentsabsorbed some CFAF 9 billion per year during 1978-80. 1.05 For 1979, as part of its overall policy to streamline investments in the transport sector, the Government announced that it would give priority to road maintenance over new construction. Its Road Fund was thereafter to be exclusively used to finance maintenance of the classified network while new investments and debt services were to be financed by the Equipment Budget and the Caisse Autonome d'Amortissement, respectively. The Government pledged and agreed under a covenant of the Fourth Highway Project to budget CFAF 3 billion per year for the Road Fund (RF), and to delegate CFAF 700 million to the revolving funds of the regional and central Directorate of Road Maintenance and Equipment (DERM) offices, to cover operational expenditures for maintenance. The new RF concept and revolving funds were operative for the first time in 1980. With the exception of salaries of permanent staff, which are paid under the operating budget, all road maintenance expenditures, including salaries of temporary staff, purchases of equipment, spares, fuels, and materials, and payments to contractors for maintenance works are handled under the Road Fund. The new funding concept was to have ensured the con- tinued availability of funds throughout the road maintenance system, and thus remove one of the main obstacles to efficiency in work.
1.06 However, a prolonged and grave shortage of Government funds resulted in the Road Fund being seriously curtailed in the following years. In FY81 the Road Fund was provided with CFAF 2.5 billion, still below the target, of which some CFAF 600 million were counterpart fundls for pavement strengthening. In FY82, the Road Fund allocation was CFAF 1.9 billion; amounts actually spent were even inferior to this: only about CFAF 1 billion, because funds were released with considerable delays and could not be transferred between fiscal years. (The FY82 Road Fund budget was onLy finalized in February 1982 and released in April, after no less than eight changes in as many months). Whereas stocks of spares, fuels and materials carried over from the preceding fiscal year did permit a reduced maintenance effort for some time, complete work stoppage occurred for four months in early 1982, and most of the main- tenance budget was spent on unproductive salaries as staff did not have the means to work with. In FY83, the Road Fund allocation for maintenance was reduced to CFAF 1.8 billion, but liquidity improved and there were no work stoppages due to lack of funds. In FY84, actually available allocation for road maintenance is around CFAF 1.1 billion. During these years of shortage of Government funds, the general budget was in general maintained intact, with salaries of permanent staff paid on time--while the reductions were applied to salaries of temporary staff, and mostly to purchase of supplies. The Govern- ment also became seriously remiss in payments of counterpart funds to contrac- tors under the Bank/IDA-financed Fourth Highway Project. During negotiations, the Government and the Association agreed on a payment schedule for these counterpart funds owed by the Government to contractors; albeit belatedly, these payments have now been made.
1.07 Revenues from road user charges amount to far more than the combined expenditures on road investments and maintenance. Although, by decree, the Road Fund should receive 50% of refinery fuel taxes, this has not been applied due to the insolvency of the Treasury, and all revenues from road user charges have been used for general purposes. Fuel taxes alone, which represent about 50% of the sale price, would generate some CFAF 25 billion per year (Annex 1-4). It does not seem warranted to increase taxes even further, - 3 -
although an axle-load tax for trucks may be required to properly assign maintenanceexpenditures to heavy vehicles; this is in the process of being addressed by the Government with assistance to be provided under the Fourth Highway Project.
1.08 In this context, the Government requested donor support for the Road Fund. In March 1982, a sectoral aid coordinationmeeting was held at which the Bank indicated its willingnessto support road maintenancein view of Senegal's difficult economic circumstancesand the!good cooperationbetween the Government and the Bank in the sector. The Caisse Centrale de Cooperation Economique (CCE, France), also pledged its support for constructionand maintenance of feeder roads, under French exceptionalaid. As a result, the CCCE provided emergency aid in the amount of CFAF 500 million for FY82. USAID also adopted a positive attitude towards supporting the country's road maintenance effort. It has since allocatedUS$5 million under its FY83 Economic Support Fund to finance maintenance costs of rural roads in areas where it is supporting agriculturalprojects; some local funds generated from this support are expected to be used for road maintenance during FY84 and FY85. USAID is further consideringa US$10 million support for road maintenancein FY86 and FY87.
1.09 The Bank Group has had quite a heavy involvement,summarized in Annex 1-5, in Senegal's transport sector, with a total of twelve projects approved since 1966. Sector issues and investment programs have been discussed between the Bank and the Government in connectionwith the preparationof a national transport plan by the Ministry of Equipment assisted by consultantsunder the Third Highway Project, and in the context or a 1982 Bank Transport Sector Memorandum. The most importantissues are the funding of road maintenanceand the role and performanceof Senegal Railways. The railway is shortly to be subjected to a detailed study of its operationsand efficiency. In the four highway projects approved so far, improvementsto road maintenanceorganiza- tion and executionhave featured prominently,and have on the whole been more successful than similar efforts in other West African countries. The ongoing Fourth Highway Project provides for pavement strengthening,studies and a training program for maintenance staff. The proposed Project would address the problem of maintenance funding, and would be the thirteenth Bank Group Project in the tranport sector.
II. THE PROJECT
A. Objectives
2.01 While the ongoing Fourth Highway Project provides funds for the strengtheningof paved roads and training for road maintenance staff, and several sources cover feeder road financingneeds, the highest return activity--maintenance--hasinsufficient financing available. The main purpose of the proposed project is thus to avoid that the road network deteriorates for lack of maintenance requiringsubsequent rehabilitationat far higher cost than timely maintenance. Through involvementin these activities,a second objectiveis to further improve efficiencyin the physical operations,uses of - 4 - funds and monitoring and control. These institutionaldevelopments would also improve later use of Government'sown funds.
B. Description
2.02 The Project consists of a 4-year time slice of the road maintenance program of the Directorateof Road Maintenanceand Equipment (DERM) in the General Directorateof Public Works (DGTP). The effort to be undertakenunder the program would prevent further deteriorationof the paved network, and through the execution of deferred maintenance,return the gravel network to at least the average quality that it had in the late 1970s. The work program (summarizedin Annex 2-1) will consist of:
(a) routine maintenance of 9,100 km of roads in the first year rising to about 10,500 km in the fourth year, includingthe extension of proper maintenance to the feeder road network;
(b) periodic maintenance (repavingand regravellingof road surfaces,and repair of structures)as warranted on the maintained network;
(c) deferred periodic maintenanceof paved and gravel roads not carried out in a timely fashion because of the funding problems in recent years.
2.03 To this end, the DERM will continue:
(a) to plan yearly work programs in accordarncewith practices established under the Third Highway Project and to improve such practiceswhere required;
(b) to operate about 60 field brigades for carrying out all routine maintenance and part of the periodic maintenance (regravelling);
(c) to sub-contractremaining periodic and deferred maintenance (repaving and regravelling);
(d) to ensure the timely renewal of DERM road maintenanceequipment;
(e) to complete the modernizationof central and regional workshops,and to adequately maintain the brigades' equipment;
(f) to maintain and improve the financial and cost accounting systems;
(g) to carry out yearly audits of all road maintenance operations and related activities.
2.04 The Ministry of Equipment'seight regional DGTP offices will carry out force account works for routine and periodic maintenance,while their initial work programs will be consolidated,and subsequentlymonitored, by the Central DERM. DERM headquarterswill also deal d:irectlywith large periodic maintenance contracts. DERM is able to carry out the Project, as can be seen in Chapter III. There are at present a total of 60 brigades that can be mobilized,if they are given operating funds and supplies. 2.05 In the first year of the program, routine maintenancewill concen- trate on the paved network and that part of the gravel/earthnetwork which is in condition "fair" or better. The work consists of spot repairs to asphalt and gravel surfaces, grading of gravel and earth surfaces, cleaning of ditches and drainage structures,and upkeep of road signs and markings. For road sections listed in bad or poor conditions this type of work does not yield much result, and full scale routine maintenancewill only be resumed afteg deferred maintenancework has been completed.
2.06 Routine maintenancework is presentlypredominantly mechanete Ci the average of 8 teams and brigades assigned to each region, 5 are field teams (for grading, regravelling,surface patching, etc), 2 a-r labo teams (hand cleaning and masonry repair), and 1 is a mechanized auri:i[4% brigade. During the Project period, routine maintenance coveMge, of t4& work will increase from 4,500 km to 6,700 km for gravel roads n km to 3,800 km for paved roads. At the end of the period th6re-.4i15 be a coverage of about 70% of the earth/gravelnetwork and one.
2.07 Periodic maintenancework consists in resotoi' design condition after a period (usually 4-5 years for years for paved roads) in which routine maintenance ahsd levels of roads, but in which wearing courses age a-ndwear- aojt. ' covers resealing an entire paved surface, regravellinga gravel re - original wearing course thickness, and rehabilitatingdrainagwe 4tru3i4rjMw;
2.08 Deferred maintenanceis required for those sections that have, through lack of routine and/or periodic maintenance,deteriorated to a state where resumption of regularmaintenance activities no longer is sufficient to ensure that the road functions at the originallyintended service level. In this case more extensive works are required, such as repair or renewal of base course and reconstructionof drainage structures. Periodic and deferred maintenancewill be carried out in part by two regravellingbrigades each assigned to a specific region every year (for 1983/84 Casamanceand Senegal Oriental) and mostly by DERM contractingwith private firms. The yearly program of periodic and deferred maintenancewill increase between the first and fourth year of the program from 170 km to 300 km of gravel road, and cover about 80 km of bitumen roads. Altogether,during the Project period, periodic and deferred maintenancewill have reached about 1,300 km of roads. The design basis and standard specificationsfor road rehabilitationand deferred maintenanceare available from on-going works and are satisfactory. They are based on observed axle loadings.
2.09 Regular renewal of the DERM road maintenanceequipment fleet should resume at the start of the Project. No regular renewal has taken place over the last two years, but equipment utilizationhas also been so low that systematic renewal has not been warranted. With operationalfunds readily availableunder the Project, a regular yearly renewal worth an average of about CFAF 600 million will be required; to account for the existing backlog of renewals, equipment acquisitionwould be concentratedin FY85 and FY86. - 6 -
2.10 The financialand cost accountingsystems which are by now in place together with the yearly work planning system (Annexes 2-2 and 3) are ade- quate, but surveillanceof the way in which they are operated will be required for the first part of the Project period. In February 1983 an expert in financial management started further training of Senegalesefor the auditing tasks; his services, financed under the Fourth Highway Project for a period of 15 months, may be extended as needed.
2.11 Much of the effectivenessof the Road Fund can be attributedto the regional revolving fund arrangement,by virtue of which each maintenance region and the central DERM are provided with advances from the Road Fund to pay for immediate expenditures,such as spares and supplies. In the FY83 Road Fund budget these advances amounted to CFAF 625 million or about 1/3 of the Fund budget of CFAF 1.8 billion. However, the regions are still too dependent on the central DERM purchasing of bulk items, and a full autonomy for them to purchase these items should be encouraged now thaitsatisfactory audits are possible. Altogether,a proper decentralizationof road maintenance purchases would require a cash flow through the central and regional revolving funds of about CFAF 1.2 billion yearly. During negotiations,agreement was reached with the Government that it will (i) increase the limit of yearly funding through the revolving funds to some CFAF 1.2 billion in constant 1983 prices, and (ii) in consultationwith IDA establish the ye!arlyamounts to be channeled through each revolving fund. Increase of the revc,lvingfund ceiling is a condition of effectiveness,and has been enacted.
2.12 Regular replenishmentof the Road Fund and through it of the regional revolving funds is a prerequisitefor proper performance of the Project. The necesary advance payments into the revolving funds would total about CFAF 600 million at the start of each fiscal year. The revolving funds will be replenishedfrom the Road Fund on the basis of purchase documentationfor previous expenditures,reviewed by DERM and the Ministry of Finance, as proposed in Annex 2-4. However, as the Road Fund is only a line item in the budget, IDA's contributionswill be depositedin a special, separate project account to avoid their being confused with the general treasury funds.
C. Cost Estimates
2.13 Cost estimates for the Project are derived from (i) the work program, (ii) the DERM cost accounting system for road maintenanceoperations, and (iii) recent bids and price quotationsfor the supply of equipment, spares and materials in Senegal. The project cost is summarizedin the following table and detailed in Annex 2-5. - 7 -
Project Cost Sm=nazy
CFAFmilla - Sion$--$ thousand Forer % of Local Local Fbreign local Local Fbreig &hange Bse Component cost Tax Cost Total Cost 'Tax Cost Total % of Total Cost
Roadeiuipnent 125 - 2,386 2,511 335 - 6,397 6,732 95 17 Spare parts 5 - 95 10) 13 - 255 268 95 1 Workshopequipnent 25 - 475 50) 67 - 1,273 1,340 95 3 155 - 2,956 3,111 415 - 7,925 8,340 21
Periodic maintenance: Bitumenroads 657 860 1,011 2,528 1,761 2,306 2,711 6,778 40 17 Gravel roads 1,421 772 1,869 4,062 3,810 2,069 5,011 10,89D 46 27 2,078 1,632 2,880 6,590) 5,571 4.,375 7,722 17,668 44
Routinemaintenance: Bitumen roads 719 328 515 1,562 1,928 879 1,381 4,188 33 10 Gravel roads 1,783 780 867 3,430 4,780 2,091 2,325 9,196 25 23 2,502 1,1C8 1,382 4,992 6,708 2,970 3,706 13,384 33
Ferry operation, etc 64 152 184 400 171 4(8 493 1,072 46 2
Sub-total 4,799 2,892 7,402 15,093 12,865 7,753 19,846 40,464 100
Price contingencies 1,387 717 1,422 3,526 3,719 11,922 3,812 9,453 23
Total 6,186 3,609 8,824 18,619 16,584 9,675 23,658 49,917 48 123
2.14 The project estimate covers the operations program of the Ministry of Equipment concerning road maintenance during four years, 1983/4-1986/7, excluding the general budget standard provision for salaries and administra- tion. It also specifically excludes new construction by the Feeder Roads Bureau (BPP); in principle short access roads can be financed under the Road Fund for up to 10% of its total budget, but given the various financial sources available for feeder road construction, the Road Fund is now planned entirely for maintenance. The maintenance of the roads constructed by the BPP is included in the work plan of the DERM, and is thus part of the Project.
2.15 Total road maintenance program cost (including US$6.9 million equiva- lent from the general budget for permanent staff salaries and administration) are estimated at CFAF 21.2 billion or US$56.8 million equivalent including taxes and duties. This also covers US$9.5 million equivalent in price con- tingencies at an annual inflation rate for local costs of 10% throughout the Project period, and for foreign costs of 8% in 1983, 7.5% in 1984, 7% in 1985 and 6% thereafter. Project costs, which exclude the costs of permanent staff salaries and administration, thus amount to US$49.9 million equivalent, of which US$23.7 million equivalent or 48% would be in foreign exchange, US$16.6 million equivalent or 33% local costs net of taxes, and US$9.6 million equiva- - 8 -
lent or 19% would be taxes and duties. Of the total project cost, about 60% can be consideredrecurrent and 40% capital expenditures. Following the Project period, an annual road maintenance budget of CFAF 3 billion adjusted for inflation should again be sufficient.
D. Financing
2.16 Under the Project, IDA would finance a declining share of the Road Fund, from 65% in FYs 84 and 85 down to 30% in FY86 and 25% in FY87. IDA would participateretroactively in the financingof the FY84 program after September 1, 1983, the date when expendituresfor the FY84 work season were first incurred. The proposed Credit of US$21.5 million equivalent (SDR 20.4 million) would finance 43% of total project costs as incurred over the Road Fund, excluding any feeder roads construction. This represents53% of project costs net of taxes and duties. For the current fiscal year (FY84), and in order to support Senegal's difficult budgetary situation,IDA funds would finance, on a retroactivebasis, 65% of expenditureseligible under the project and made after September 1, 1983. Such retroactivefinancing by IDA is estimatednot to exceed US$1.5 million equivalent. For the subsequent years of the program, FY85 through FY87, an advance would be made by IDA to the Road Project Account in order to offset the fact that Senegal'sbudgetary proceduresdo not allow the Road Fund or the regional funds to be replenished until well into the new fiscal year. Thus, an advance of CFAF 630 million in FY85, and one of CFAF 340 million in FY86 and FY87 would be made by IDA at the start of these fiscal years to the Road Project Account and then channelledto the regional revolving funds. As soon as budgetary proceduresallow disburse- ment of domestic resources, the Governmentwould deposit into the revolving funds an amount which would bring the total financing of the funds to be shared in the intended proportionbetween IDA and the Borrower. Subsequently, the revolving funds would be replenishedby IDA (through the Road Project Account) and by the Government (throughthe Road Fund) in the agreed propor- tions on the basis of documentationreviewed by DERM and the Ministry of Finance. During negotiations agreement was reached with the Government that it will not finance any new constructionworks of the BPP with IDA funds.
2.17 The financing system requires the Ministry of Finance to undertake:
(a) to participatein the yearly budget exercise establishingthe road maintenancebudget, and to introduce budget proposalsin constant 1983 terms of CFAF 1.7 billion in and 1984/85, and CFAF 3.2 billion in 1985/86 and CFAF 3.0 billion 1986/87 in time for their approval before the commencementof each fiscal year;
(b) to ensure that amounts required for the operation of the regional revolving funds are released regularlyas and when required.
Agreementson these points were reached at negotiations. USAID is contemplat- ing to grant US$10.0 million (CFAF 3.7 billion) from its Economic Support Fund to participatein financing the Road Fund in 1985/86 and 1986/87. This would result in the Government'scontribution to the Project being limited to expendituresfor taxes and salaries. - 9-
E. Procurementunder the Project
2.18 Procurementunder the Project will follow the Ministry of Equipment procedures,which are in accordancewith Bank/IDA Guidelines (see para 3.12). Purchases of new equipment and related spare parts for road maintenanceand workshops, and bulk purchases of imported materialswill be on the basis of i.c.b. Materials and spares that cannot be convenientlygrouped into lots worth more than US$ 60,000 and fuel which is available only from Senegal's single refinery,will be procured on the basis of l.c.b procedures acceptable to the Associationup to an aggregate amount not exceeding US$ 0.5 million per year. Minor items of urgently needed spare parts and materials, not exceeding US$5,000 per purchase and US$22,000 per region per year in aggregate,may be procured by local shopping or direct purchase. Contracts for civil works (periodicand deferred maintenance)will be awarded following l.c.b. These arrangementsare in accordance with the Senegalese regulationsfor procurement and within the ceilings that can be approved at the various levels (para. 3.12). During negotiations,the procurementarrangements were reviewed and agreed upon with the Government.
2.19 The relative importance of the various procurementmethods are esti- mated to be as follows: i.c.b. US$35.8 million or 72% of project cost; l.c.b. US$11.0 million or 22%; direct purchase US$1 million or 2%. The remaining 4% of expendituresare not subject to procurement (mainly salaries for temporary staff). Procurementwill cover some US$7.3 million equivalentworth of equipment,US$10.8 million equivalent for spares and tires, US$9.6 million equivalent for fuel and lubricants,and US$14.1 million equivalent for civil works by contract. Contracts for supply and works estimated to exceed US$60,000 should be reviewed with the Association.
F. Disbursements
2.20 The disbursementprocess for revolving funds is shown on Annex 2-4. As the Road Fund is in fact only a budget line, IDA's disbursementswill be made into a special Treasury Project account so as to avoid that the proceeds go into the general Treasury pool. Required documentationfor expenditures would be twofold: certified invoices or contrac-tor'sstatements, and certifi- cates of work actually performed. The annual work program contains estimates of required cash flow and work output over the year, and documentation required for disbursementwould be a form that permits comparisonbetween actual and forecast expendituresand work output. The Ministries of Equipment and of Finance will review the statementsbefore replenishingthe revolving funds and/or disbursing from the Road Fund and the project account. The Road Fund and the account will be audited every year by auditors acceptable to the Association. During negotiations,agreement was reached with the Government on the form of required documentationand procedures. Based on the disburse- ment rates shown in para. 2.16, and the expected effectivenessdate in FY84, IDA's Credit would be disbursed as follows (Annex 2-6): - 10 -
IDA DisbursementSchedule
US$ million in year CumuLative FY84 2.0 2.0 FY85 11.3 13.3 FY86 4.7 18.0 FY87 3.5 21.5
However, if further external financing (para 2.17) is not secured, the disbursementrates may be changed so that the Credit is disbursed more evenly over time. Since the Project is a time-sliceof a continuous operation, a comparisonwith disbursementprofiles from other projects is not relevant.
G. Reporting and Reviews
2.21 DERM prepares quarterly and annual reports, and the Bank normally receives a copy; this practice will be continued under the Project. A major review of the progress in implementingpolicies for road maintenanceand staffing of the Ministry should be held at about mid-point in project imple- mentation; at that time the financial situationand prospects for road maint- enance will also be reviewed. The Governmenthas agreed to discuss its yearly investment programs with the Association.
III. EXECUTINGAGENCY
3.01 The Directorate of Road Maintenanceand Equipment of the General Directorateof Public Works in the Ministry of Equipment will be the executing agency of the Project (Annex 3-1). This Directorateis one of the best of its kind in West Africa, as is evidenced by its recent performance: although in the years between FY77 and FY80 funds allocated to road maintenance did not increase in real terms, the quantity and quality of maintenance works improved significantly(Annex 1-2). In the following years, funding for road mainte- nance declined, and the Directoratedecided to concentratemaintenance efforts on the paved network, a sound decision in view of the cost of rehabilitation should the pavements be destroyed. The condition of the paved network there- fore remained stable, whereas the gravel and earth network became increasingly neglected despite that improving work methods and planning did cushion the work volume somewhat from the adverse effects of reduced funding (Annex 1-1, page 2).
A. Organisation
3.02 Serious efforts to improve the road maintenancebegan in the early 1970s with a study carried out under the First Highway Project. It recom- mended a centralizationof maintenance activities; these were carried out by the Regional Public Works offices, with somewhat diffuse lines of responsi- bility. The proposed centralizationwas started in the first years of the Second Highway Project and was not a success. The central units that were establishedfor operations and equipment, respectively,never asserted them- - 11 - selves sufficientlyto gain effective control of the tasks assigned to them. The new organizationran counter to establishedpractices, did not receive high-level support, was not provided with staff of adequate quantity and quality, and turned out to be far tco complex for practical operations. After some three years of generally unsuccessfulendeavours, the centralization experiment was abandoned, and since then, increasing emphasis has been placed on improving decentralizedmaintenance operations restrictingthe central organizationto controlling,planning, budgeting and auditing functions. The first tangible efforts in this direction began in 1977, under the Third High- way Project. Road maintenance is now the responsibilityof the Maintenance Division (DER) in the DERM in the General Directorateof Public Works (DGTP) of the Ministry of Equipment. Equipment maintenanceis being done by the EquipmentDivison (DM), also in the DERM. The actual execution of maintenance works by force account is carried out by the eight Regional Offices of the DGTP. Subcontractedworks, mainly for periodic maintenance of gravel roads, are administeredby DERM.
B. Staff
3.03 The total staff directly engaged in road maintenancenumbers about 900. The staff is, compared to other countriesin West Africa, at nearly all levels quite well-qualified,and the critical lack of capable manpower so often seen in neighboring countriesis not present. There are about 20 engi- neers, 50 technicians,60 brigade chiefs, 300 drivers, operatorsand mecha- nics, and,500 laborers. However, the age distributionof the personnel is such that about 1/3 of the permanent staff has retired in the last 2 years, and some 400 more are close to retirementage. This is due to a long freeze on staff hiring that still prevails. There has also been a complete lack of training of field staff since the early 1970s, when the then existing training programs were abandoned. Although the reductionin staff through retirement was desirable it has resulted in an unbalanced work force as the DERM hired "temporary"personnel who in fact may have been employed for up to 10 years, but who have not had formal training. This in turn has resulted in undesir- able disparitieswithin the DERM work force as concerilsemployment security and benefits. Many other Government agencies find themselves in the same situation and the Government is seeking a solution that could be applied to the entire civil service. It is unlikely that such a solution will be found before the start of the proposed project, but the DGTP has already appointed temporariesto the vacancies left by attrition in 1982 and at negotiations agreement was reached with the Government that it,would endeavor as an interim measure to bring employment conditions for "'temporary"staff in line with those for permanent staff, until new regulationsconcerning all public employees enter into force. The staffing situationwill be part of the criteria for assessing the project's performanceat mid-term (para. 2.21).
3.04 Training of the staff has restartedin 1982, under the Fourth Highway Project's training program which would continue through 1985 with an expatri- ate team of trainers and Senegalese counterpartinstructors; there is present- ly a shortage of counterparts,but the DGTP is taking measures to fill the posts in question. - 12 -
C. Equipment
3e05 The equipment fleet of the DERM is not quite adequate for the task on hand. There are some 250 pieces of equipmentavailable for road maintenance, and in working condition or requiringminor repairs. About 20 additional units would be required to bring all maintenancebrigades up to full strength, and, in addition9 yearly renewals of the equipment fleet should be assured to replace fully depreciated units.
3.06 The EquipmentDivision plans equipmentneeds and deploymentbased on the road maintenanceprogram, specific tasks and type of equipment (Annex 3-2). In conjunctionwith the periodic equipment inventory, the workshop, repairs and priorities and required budget are determined. Important repairs are done at the Central Workshop, or, when necessary in private workshops, while minor repairs and preventive maintenanceare performed in the regional workshops following routine inspections. The system foresees that productivity/outputs be monitored, to further improve planning and costing. The system seems adequate, although it is not always followed as rigorouslyas desired. Equipment management is probably the weakest link in the process; this is being addressed under the onigoingFourth Highway Project.
3.07 Equipment maintenanceis in present circumstancesreasonably adequate, with a downtime of 15% attributed to mechanical failures. However, the frequent work stoppages in recent years due to lack of operating funds or delays in delivery of supplies could mask a maintenance efficiency lower than that indicated. This may come to light once the funding and supply situations are remedied.
D. Planning and Cost-Accounting
3.08 Work planning for maintenancehas made major progress in recent years. At present a system has been establishedfor (i) collection of data on road conditions, (ii) cost accounting for ongoing operations,and (iii) iterative establishmentof work volumes in the light of prevailing budget revisionsand constraints. In extension of this, a system for auditing the use of financial and physical resourceshas been instituted and has given good, although not entirely complete, results for the first periods in which it was employed.
3.09 An outline of the planning and auditing system is given in Annex 3-3. Work plans are established an the assumption that routine maintenance will be done by force account and periodic maintenancemainly by contract. The inventory of road conditions is compared to the physical capacity of the force account brigades and the unit prices of contract works. A final work plan can then be established in iteration with the budget proposal. This planning system had worked increasinglywell over the last three years, gain- ing wide acceptance both in the Ministry of Equipment and the agencies concerned with budget preparation and approval. The planning system is now nearly 3ompletely run by Senegalese,and final phasing out of expatriate consultants is planned for late 1985. It was agreed at negotiations that the Bank will have an apportunity to review the final yearly plans and the related budgets. - 13 -
3.10 The cost-accountingsystem establishedin the DERM, is carried out by some 50 "temporary"accountant staff specially trained for the purpose. While the system is a big improvementover the previous lack of accountabilityand has permitted to pinpoint irregularities,it is still not properly applied at the Equipment Division; better Public Works qualified staff (accountants, controllers,inspectors) is needed as well as a better coordinationwith the Ministry of Finance's purely financial audit. The first audits of the use of funds released for road maintenance revealed quite serious anomalies in the use of certain goods and supplies, in particular fuel. This led to the replacementof two senior staff in the DERM and a further tightening of accounting practices.
3.11 Consultantshave proposed an intensifiedfollow up: each Region should have an accountant (IUT or BTS) with 2 assistant accountants (CAP), one for purely financial records and the other for cost accounting. At Dakar, a chief accountant (DECS) should be assisted by 3 accountants (IUT or BTS), to a) verify regional accounts, b) collate regional accounts, and c) facilitate replenishmentat the Treasury. Further, there should be an independentRF senior accountant responsiblefor financialcontrol within the Ministry of Finance. An expatriate expert in financial management has been recruited for a stay of 15 months to oversee this.
E. Procurement
3.12 The Regional Public Works can contract independentlyup to CFAF 8 million per contract and with the approval of the Regional Contract Committees up to CFAF 20 million per contract. In excess of these limits, and up to CFAF 50 million, contracts are prepared at Dakar, by the DERM, DGTP and/or the Minister of Equipment,and can be approved by the Director General of Finances; contractsbetween CFAF 50-100 million are undertaken by the Minister of Economy and Finances, and those exceedingCFAF 100 million by the Presidency. Awards are also reviewed by the CommissionNationale des Contrats de l'Administration. Thus, most procurementis done by the DERM, with delivery to the Regions. Delays of 280 days from preparing call for bids to contract notificationare common. Delays are compoundedwhen procedures are not well followed and documents are returned for correction. However, it is not clear why new bids are required in the case of repetitive purchases for operations,more so when official uniform prices apply, such as for fuels, and only eventuallya minor discount may be obtained. The use of the revolving funds follows general Ministry of Finance 1976 instructions: they are to be used exclusivelyfor temporary staff salaries, travel costs, fuels, materials, spares, tires, maintenanceand work site expenses. The amounts given to each region depend on their respective programs and related foreseen quarterly expenses by item and work category,presented to the DERM (Annex 2-2); monthly accounts have to be presented to obtain replenishment. The revolving fund system proved to greatly facilitate timely procurementfor regional needs, and, in some cases, better prices were obtained through regional rather than centralizedprocurement. - 14 -
IV. ECONOMIC EVALUATION
4.01 It is well known that road maintenance is one of the activities with highest returns, both due to the postponement of the need for infrastructure renewal and to the lowering of vehicle operating costs. Despite the need for imported equipment, it also has on overall posit:ive effect on the balance of payments. The main concerns for road maintenance are therefore operating efficiency, including determination of proper levels of maintenance, and adequacy of funding, including timeliness.
4.02 While Senegal had been making progress, slowly and not without diffi- culties, on the operating efficiency to the extent of being now one of the most able in the road maintenance field in West Africa, the funding avail- ability worsened due to the overall Government financial crisis of recent years. While a budget of some CFAF 3 billion is required yearly, only about a third was actually spent recently. With such reduced levels, salaries absorbed a disproportionate amount, and what was left, was properly used for the highest return activities, especially routine maintenance of paved roads. While such choice is effective over 2-3 years, it cannot be sustained as it cannot replace the periodic heavier maintenance tasks, and would allow even the paved roads to deteriorate. Senegal is in the third year of insuf- ficient road maintenance budgets, and it is now imperative to provide proper funding to preserve its infrastructure.
4-03 In this context a "catching up" program was prepared, requiring an average of some CFAF 4 billion per year over the next four years. While rehabilitation/ strengthening of paved roads contiLnues under the Fourth Highway Project, the maintenance program foresees: to expand the network under routine maintenance from 7,600 km in 1981/2 to 10,500 km by 1986/7; to regravel annually almost 1,000 km, that is, a doubling of the "normal" kilo- metrage; and to resurface some 80 km per year. Both the regravelling and the resurfacing are and will continue to be carried out by domestic contractors, at competitive prices, and this will avoid building up the administration to higher than normally required capacity. Although the idea of employing labor- intensive techniques in a depressed economy looks appealing, it is not borne out by other realities in Senegal: the DERM is not overstaffed; people are not "idle", are not readily available along the roads outside the groundnut basin, and mainly, enjoy a high minimum salary by law, of some US$6/day. Further, the need to catch up requires speed, which could not be obtained with labor intensive techniques, and Senegalese equipment operators are more and better than in other West-African countries.
4.04 A glance at the determinants of the estimated rate of return will help explain why it is so high: traffic, road conditions, road maintenance costs and vehicle operating costs.
A. Traffic
4.05 The Ministry of Equipment carries out traffic counts routinely; the latest results available cover 1981. On the paved roads traffic ranges from 18,000 vpd (Dakar-Rufisque) to some 100 vpd (Annex 4-1); the average - 15 -
(excludingDakar-Rufisque) on "national"roads was some 630 vpd, of which 78% light vehicles; the average on surveyed "regional"roads was some 465 vpd (the average for all paved regional roads may be some 300 vpd) with 84% light vehicles. On the unpaved roads, traffic was an average 110 vpd on surveyed regional sections, accounting for some 730 km and 65 vpd average on some 600 km of national roads. The unsurveyed sections carry normally less traffic, and feeder roads, no more than some 20 vpd. On the unpaved roads light vehicles account for some 75% of the traffic. While traffic was increasing faster than 10% p.a. during 1975-79, it had mostly stagnated or slightly decreased by 1981 counts, reflecting the overall economic downward trend caused by draughts and low export prices. It has been assumed that traffic levels would be similar to that of 1981 in 1983 (Annex 4-1), recover thereafter and continue to grow at 5% p.a.
B. Road Conditions
4.06 Using a five-tieredrating, of 5 for exceLlent to 1, very poor, the 1982 conditions averaged 3.4 for paved roads and only 1.9 for unpaved roads, for a "maintained"network of some 8,500 km. Should the current shortage of funds continue, the unpaved roads would soon become very poor, some unpassable and the paved roads would also require considerablerehabilitation. With the maintenanceprogram (Annex 2-1), the network maintained would increase to 10,500 km, and the average condition expected would be 3.7 for paved and 2.6 for unpaved roads, which are considered good averages (Annex 4-2).
C. Road Maintenance Costs
4.07 The strategy behind the program gives first priority to preserving the paved roads; those having deterioratedto rating 2 would be resurfaced, those worse should await rehabilitationbut would as the better ones be routinely patched. Unpaved roads would be regravelledupon reaching index 2, others would be spot regravelledand gravelled and graded as needed. The surface improvementswould be supportedby routine maintenance of drainage systems, bridges, shoulders, signalisation,etc. Unit costs are at the following levels: CFAF 9.2 m (US$24,700)per km of resurfacing;CFAF 3.5 m (US$9,400)per km of regravelling;CFAF 88,000 (US$235) per km of patching; CFAF 150,000 (US$400) per km of spot regravelling;CFAF 21,500 (US$60) per km of grading (but some roads require several passes of grader per year). Other routine maintenance costs average about CFAF 76,200 (US$200) per km. The common view in Africa that it is cheaper maintainingpaved roads than unpaved roads stems from comparing only patching versus spot regravellingand grading costs, while the resurfacingand full regravellingcosts ought to be con- sidered as well. Costs of works by task are shown in Annex 4-3.
D. Vehicle Operating Costs
4.08 A reductionin vehicle operating costs is the direct benefit of road maintenance. An estimate has been made of the operating costs on good and poor surfaces;interpolations were used for the intermediateconditions. Given the various assumptionsabove, it is estimated that the public would save in operating costs the equivalentof the Road Fund of CFAF 4 billion over each of the 4 years, stemming from an assumed saving of less than US$0.01 per vehicle-km (Annex 4-4). - 16 -
E. Rates of Returns and Benefit-CostRatios
4.09 Based on the preceding discussionof benefits and costs to be derived from a four-year maintenance program defined yearly with the agreed criteria for work scope and selection,the overall economic rate of return is higher than 100%. Separate rates of return have also been calculated for the perio- dic maintenance components,yielding 25% for full regravellingand 86% for resurfacing. The benefit-costratios, which are more meaningful for main- tenance projects than the rates of return, are also fully satisfactory: the overall B:C is 2.1; for paved roads it is 3.5:1 eLndfor gravel roads it is 1.6:1, at a 12% discount rate. Naturally,maintenance on higher traffic roads yield the highest returns. Even if traffic growth would not resume as expected (para. 4.05) or the works were to be carried out less efficiently, the maintenanceprogram remains well justifiedwith B:C ratio above 1 (Annex 4-4).
F. Project Risks
4.10 The main risk to achieving expected benefit from the Project concerns (1) operating efficiency of the project agency, and (2) adequacy and timeliness of funding. In the first instance, DERM has demonstratedits operationalefficiency, so that this risk is considered marginal. There is, however, the possibility that Government'sbudgetary situation may not improve sufficientlyover the coming years to allow it to assume an increasingshare, and eventually the full burden of financingthe Rzad Fund. In such event, alternativesolutions would be consideredby Governmentand IDA during the proposed mid-term review.
V. AGREEMENTSREACHED AND RECCIMMENDATION
5.01 During negotiations,agreements were reached on the following:
(i) a payment schedule for the counterpartfunds that Government owes under the Fourth Highway Project (para. 1.06); full payments have since been made;
(ii) raising the global ceiling of the revolving funds to CFAF 1.2 billion in constant 1983 prices (para. 2.11); a decree to this effect has since been issued;
(iii) that, yearly with IDA, DERM shall discuss the proposed annual work program, budget and each revolvingfund amount and the Government shall discuss its road investmentprogram (paras. 2.11, 2.21 and 3-09);
(iv) the Governmentwill endeavourto bring employmentconditions for temporary staff in line with those in permanent positions; the Road Fund and the ceiling on revolving funds may be lowered accordinglyas the salary burden on the Road Fund decreases (para 3.03); - 17 -
(v) procurementand disbursementprocedures, i.e., requisite documenta- tion and that, except for an initial yearly advance, the IDA Credit will reimburse the Road Fund through a Project account (paras. 2.12, 2.16, 2.18 and 2.20);
(vi) that no new feeder road constructionwill be financed with the Road Fund (para. 2.16); and
(vii) that a mid-term review will be held between the Governmentand IDA to review the implementationof maintenanceand staffing policies, and of financial resources available (para. 2.21).
5.02 During negotiations,the Governmentgave assurances that it will provide to the Road Fund, in constant 1983 terms, CFAF 1.7 billion in 1984/85, and CFAF 3.2 billion in 1985/86 and 3.0 billion in 1986/87 (para 2.17).
5.03 Payment to contractorsof counterpartfund arrears owed under the Fourth Highway Project (para. 1.06), was a condition of Board Presentation.
5.04 A condition of effectivenesswas the issuance of the decree raising the ceiling of the revolving funds to CFAF 1.2 billion (para. 2.11).
5.05 Retroactivefinancing under the Project of the Borrower's road maintenance program for expendituresincurred after September 1, 1983 is recommended (para. 2.16).
5.06 As agreements on the above items have been obtained, and conditions of Board Presentationand effectivenesshave all been met, the Project is suitable for a SDR 20.4 million (US$21.5million) IDA Credit on standard terms. ANNEX 1-1 - 18- Page 1
SENEGAL
FIFTH HIGHWAY PROJECT'
STAFF APPRAISAL REPORT
Road Network
Development and Present Distribution
Development km
1972 1974 1978 1982
Paved roads 2,256 2,586 2,836 3,521 Engineered gravel/earth 654 456 448 325 roads Other all-weather roads 1,640 2,794 5,108 4,787 Total all-weather roads 4,541 5,836 8,392 8,633 Seasonal roads 4,480 7,435 5,350 5,265 Total all roads and 9,C21 13,271 13,742 13,898 trucks
Present distribution Paved Gravel/ Area Pop. Earth _
Cap-Vert 7 0 0.3 19 Casamance 18 21 14 15 Diourbel 6 6 17 9 Fleuve 17 16 22 10 Senegal Oriental 7 33 30 6 Sene Saloum 19 17 12 20 Thies 13 6 3 14 Louga 13 2 15 8
Source: Ministry of Equipment, 1982.
February 1984 - 19 - ANNEX 1-i Page 2 SENEGAL
FIFTH HIGHWAY PROJECT
STAFF APPRAISAL REPORT
Summary Road Condition by Region
A. Percentual Distribution by Region
Region Paved Gravel/Earth
Index 1 2 3 4 5 1 2 3 4 5
Cap-Vert 2 13 12 14 9 - - - - - Casamance 4 5 24 32 35 77 14 5 4 0 Diourbel 0 14 38 43 5 17 8 72 2 1 Fleuve 0 11 40 28 21 0 76 3 21 0 Senegal Oriental 0 0 4 21 75 22 31 45 1 1 Senegal Saloum 5 9 26 13 47 23 39 25 13 0 Thies 3 13 45 26 13 39 30 23 1 7 Louga 0 10 29 57 4 0 9 1 90 0
Total 2 9 32 29 28 31 34 27 9 1
100 100
B. Average condition indices 1980-1982
Region Paved Gravel/Earth
1980 1981 1982 1980 1981 1982
Cap-Vert 3.5 3.2 3.1 - - Casamance 4.0 3.9 3.9 2.3 1.4 1.2 Diourbel 3.8 3.4 3.5 3.0 2.6 2.9 Fleuve 3.3 3.6 3.4 2.4 2.4 2.1 Senegal Oriental 4.7 4.7 4.0 2.6 2.3 2.3 S'negal Saloum 3.6 3.9 3.1 2.3 2.3 2.1 Thies 3.0 3.3 3.5 2.7 2.1 2.5 Louga 3.2 3.6 3.4 3.0 3.8 3.0
Total 3.6 3.7 3.5 2.5 2.1 1.
Road condition indices: 1=very bad 2=bad 3=acceptable 4=good 5=very good
Source: Ministry of Equipment, 1982.
February 1984 - 20 - ANNEX 1-2
S E N E G A L
FIFTH HIGHWAY PROJECT
STAFF APPRAISAL REPORT
Network maintained, FY1M77-1982
76/7 77/8 78/9 79/80 80/81 81/82
Network maintained, km 5752 5796 6020 6109 7610 3872
Paved 2499 2543 2631 2853 3170 2175
Unpaved 3253 3253 3389 3256 4440 1697
Brigades 35 38 47 42 50 41
Staff 300 517 679 608 737 753
Pieces of equipment 166 183 228 212 235 250
Source: DERM
February 1984 - 21 - ANNEX 1-3
SENEGAL
FIFTH HIGHWAY PROJECT
STAFF APPRAISAL REPORT
Road Maintenance Expenditures and Funiding, FY1971-1982 tCPAF million)
1976/77 1977/78 1978/79 1979/80 1980/81 1981/82 a! A. Expenditures
(i) Bitumen Roads Recurrent 513 577 674 791 781 240 Periodic 995 1,130 1,203 1,173 1,861 445 Sub-total 1,508 1,707 1,877 1,969 2,642 685
(ii) Gravel/Earth Roads
Recurrent 342 437 524 470 557 150 Periodic 140 140 150 - 228 40 Sub-total 482 577 674 470 785 190
(i+ii) All Network
Recurrent 855 1,154 1,347 1,261 1,338 390 Periodic 1,135 1,130 1,203 1,178 2,089 485 Total A 1,990 2,284 2,550 2,438 3,427 875
Cost/km Paved .60 .68 .71 .69 .83 Unpaved .15 .18 .20 .14 .18
B. Funding
(i) General Budget
Operations Budget 811 1,105 1,105 971 957 970 Works Budget 1,179 1,179 1,445 978 - - Sub-total 1,990 2,284 2,550 1,949
(ii) Road Fund - - - 550 2,490 875
Sub-total 1,990 2,284 2,550 2,439 3,427 1,845
(iii) Foreign Funds -/
Second Hwy. Proj. 160 30 30 20 Third Hwy. Proj. 260 280 150 160 100 100 Supplier Credit (for equipment) 2,500 Fourth Hwy. Proj._ _ _ 300 Sub-total 420 310 2,680 180 100 400
Total Funding 2,410 2,594 5,230 2,619 3,527 24
a/ Excluding pavement strengthening programs and equipment depreciation or capital expenses. b/ Excluding pavement strengthening programs.
Source: Ministrv of Equipment and World Bank, 1982. February 1984 - 22 - ANNEX 1-4
SENEGAL
FIFTH HIGHWAYPROJECT
STAFF APPRAISAL REPORT Fuel Price Structure (in CFAF, since July 14, 1982)
SUPER GR 8 E KEROSENE DIESEL-OIL
I. CIF Price 10,860,85 10.317,18 9.966,34 9.768,61
II. Tax on Oil 868,87 825,37 797,31 781,49
III. Refinery Price 11.729,72 11.142,55 10,763,65 10.550,10
IV. Duties and Taxes 1. Refinery Tax 951,12 935,29 217,73 782,56 2. Specific Tax 3.770,00 2.780,00 1.620,32 2.078,94
Total Duties and Taxes 4.721,12 3.715,29 1.838,05 2.861,50
V. Distribution Margin
1. Warehouse Expenses 133,64 133,64 133,64 87,75 2. Warehouse Losses 108,40 102,97 74,60 73,12 3. Transport Differential 440,00 440,00 440,00 440,00 4. Amortisation & Maintenance 238,64 183,37 124,97 79,41 5. Retailer's Margin 750,00 675,00 675,00 550,00 6. General Expenses 523,00 423,00 365,00 290,00 7. Financial Expenses 519,26 487,38 457,68 453,52 8. Profit 137,00 105,00 105,00 88,00
Total Distribution Margin 2.849,94 2.550,36 2.375,89 2.061,80
VI. Theoretical Price to Consumer 19.300,78 17,408,20 14.977,59 15.473,40
VII. Stabilisation 7-699,22 8.591,80 (977,59) 26,60
VIII. Consumer Price CFAF/HL 27.000,00 26.000,00 14.000,00 15.500,00
CFA/L 270,00 260,00 140,00 155,00
Total tax/l 130 1i3U 17 37
Source: Ministry of Mines & Energy, Dakar, Senegal.
February 1984 - 23-
ANNEX 1-5 Page 1
SENEGAL
FIFTH HIGHWAY PROJECT
STAFF APPRAISAL REPORT
Past/Ongoing Bank Group TransportOperations
1. The first Bank transport project for Senegal was approved in 1966 to assist in rehabilitatingthe railway's infrastructureand equipment (Cr. 96-SE, $9 million, 1966), and was complemented by the First Dakar Port Project (Ln. 493-SE, $4 million, 1967) to improve infrastructureand operations; the First Highway Project followed three years later (Cr. 198-SE, $2.1 million, 1970) for the constructionof feeder roads, purchase of maintenance equipment, technical assistance and studies; the First Aviation Project (Ln. 867-SE, US$3 million, 1972) comprised the extension of the runway at Dakar, enlarging aircraft parking aprons and related works. Despite being relatively simple projects, they each took some seven years to complete. A Second Railway Project (Cr. 314-SE, Ln. 835-SE, $9.6 million, 1972) was approved and before the First Highway Project was completed, a second followed based on the First's studies, providing for strengthening of paved roads, further assistance to road maintenance and studies (Cr. 366-SE, $8 million, 1973). The Third Highway Project completed the operations of the Second (which experienced high cost overruns) and also included assistance for transport planning and a study of the domestic contracting industry (Ln. 1222-SE, US$15 million, 1976). A Feeder Road Project was processed in parallel (Ln. 1221-SE, US$6.6 million, 1976).
2. Project Completion Reports were prepared for the 2nd and Feeder Road Projects. The conclusions were that the 2nd project implemented successfully the road strengthening program, but the road maintenance program was less successful and was perhaps an inevitable first step. Lessons learned helped improving road maintenance under the Third Highway Project, with the good results known today. Results from the Feeder Road Project were also mixed; less than foreseen km were built, but the economic return of 14% was still acceptable. The institutionalset up gradually improved but upon completion of the project the equipment and staff were integrated into the DERM. - 24
ANNEX1-5 Page 2
3. Subsequent projects are still being implemented:
The Dakar Fishing Port Project (Ln. 1405-T-SE, US$6 million, 1977) cofinanced by BADEAand CCCE provided for reclamation of 10.5 ha of land, construction of 1,500 m new berth face and ancillary works, technical assistance for management, cost accounting and introduction of a new tariff (ad valorem) structure, and a study for a container terminal; it is almost complete, within the cost estimate, and a balance is being used for a full audit of the Port accounts and establishing an improvecL accounting system.
- Implementation of the two railway projects was disappointing with little impact on improving operations; the Third Railway Project (Ln 1518-SE, US$11 million, 1979) was processed with the expectation that the railway operaticns could be improved through track renewal, marshalling yard and telecommunications improvements in Dakar, and provision of spares, maintenance equipment, training and technical assistance. The Project is vir- tually complete, at a 20% cost overrun, and the closing date was postponed from December 1981 to December 1983. In an effort to improve the financial situation of the railway, the Government has negotiated a contract plan with the railway, including an agreement on the investment plan for the next years; the Bank has approved the first phase in the context of the Project and the SAL.
The Second Aviation Project (In. 1665--SE, US$7 milliion, 1979) provided for improvement of the Dakar runways; fAavigation aids and runway lighting at Ziguinchor and visual approach aids at Cap Skirring. It is practically completed at 50% of the cost estimate, and use of balance funds has been approved for improvement of the terminal building and new runway lighting at Dakar, and for an audit of the implementing agency.
The Fourth Highway Project (Ln. 1810/Cr. 993-SEN, US$38 million, 1980), approved after the Government had taken action on the Road Fund and agreed to a yearly funding of CFAF3 billion at 1980 prices, provides for a 3-year training program and technical assistance for road maintenance, assistance to the National Soils Laboratory, strenghthening of an additional 200 km of paved roads and construction to paved road standards of the 85 km Louga-Dahra Road. The Project is advancing well; as the dollar appreciated 25
ANNEX 1-5 Page 3 vis-a-vis the FCFA, the lending amount enables expansion of strengthening works.
4. The most recent Project, for the SEFICS rail (Ln. 2025-SE, US$19.3 million, 1981) will upgrade the siding track from the fertilizer factory at M'Bao to the Dakar-Thies, CFS line, and would procure locomotives,wagons, and maintenance facilities. It is expected that such independent operation will be more efficient and economic than the one so far provided by CFS.
5. Thus, over the past 15 years the Bank Group has invested US$138.6 million in the sector under 13 loans/credits (four for railways, US$48.9 million; two port, US$10 million; two aviation, US$10 million; four roads, US$69.7 million), also financed feeder roads under agriculturalprojects and mobilized considerablecofinancing. The Bank's share of Senegal's transport investments would have been the following, based on an average exchange rate of US$1 = CFAF 230 for 1973/77 and 210 for 1977/81, and separating amounts still to be disbursed under ongoing projects: Bank's Share in Financing Investments
1973/1981 1982/... Percentage Amount to be Disbursed Disbursed of under Existing Projects (US$ m) Sector Investments (US$ m)
Roads 37.7 14 32.0 (HIV) Rail 20.6 5 26.3 (RIII,SEFICS) Port 6.0 12 0.7 Aviation 6.4 32 3.6 70.7 22 62.6
February 1984 - 26 - ANNEX 2-1
S E N E G A L FIFTH HIGHWAY PROJECT STAFF APPRAISAL REPORT
Maintenance Program, FY1984-1987 (kms)
1983/4 1984/5 1985/6 1986/7
Maintenance on Unpaved Roads
Partial Regravelling (force account) 2969 2993 3291 3320 Grading (force account)a/ 5570 (2611) 6440 (2787) 8254 (2966) 9445 (3103) Full Regravelling (force account) 120 120 100 100 Full Regravelling (contractor) 50 90 195 197
Maintenance on Paved Roads
Resurfacing (contractor) 64 61 64 60 Patching (force account) 3233 3264 3500 3407
a/ road kms in brackets; several gradings are required yearly on some roads.
Source: DERM
February 1984 27 ANNEX 2 -2
Direction ie l'Enkretien Routier et du Materiel
PRFVI;,lJNS T7W-1tES'.RIELLES DE'S DQcP;iNSES
Ge;hon:. -- Budget:
.0~ ~~ ~~~ltlrlE>^teurfmnal:
TOTA'JXMENStUELS TOTAL CMUL .DESIGNATIONSi T07 1 Mois:______Mss: t Mcis: __ Trimestre debt Mois:- Mcis______Gestiion
PREVISIoND'ACTIVIT ES _ __ ER 1/3 A TravauxGene. Mecanique - -_ ER. 1/3 8 TravauxGene. Manuel __. ___ ER 1/3 C Travaux Gene. Macon * R 0 2 Recharqementpartiei _ . ER0 5 Reprohiage _ _ _ _ _
EER R 006BUe_____ 6 Buttage. ______ER 0 7 Point-a ternps ER ehrme~ta______.______EP C;I Rechargementr9iinial EP 0 3 Sianalisationhwrizon!ale Autres activites __ . RURRIQUESDE DEFPENSES Salairetemporaire 0. E.R. laire temporaire O.M. Frais de deplacement Ernusion
Gravitlion Pe'inture Parneaux sicnaiisotion Autres materiaux _ Gas-dtl(ErTiretien routier
Gas-o'iI'i! !______LubriFlanrl,ingrediernt . ._ ._ ._ .
Fieces de -echange Essence ( vihicule de iaison Essence( Divers *Entretien(vehicule de -liaison Divers | ~TOT-AL | . ______li___i..
C.te_._ ....r...... a ... - ,mojeyte:j. rar:...... Source: DERM
February 1984 SENEGAL ANNEX 2-3 FIFTH HIGHWAY PROJECT STAFF APPRAISAL REPORT ROADMAINTENANCE MANAGEMENT SYSTEM FLOW CHART
AD:tlISTPATI ON PHYSICAL PLA1"ING PERFOBRMANCEBU5DG TING COST ACCOUI?TING PERFCG.''.E E-VALUATITC
LEGIS'ATURE A-ND EKECTTrVE BUDGET BLD5ET RAtADCH DOBAE _Ar2ROVAL _ _ _ AUDIT
Ministry of Equipment - SPOET
General Directorate of Public :NAD., Works ? T G : B D E ______
-1~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~FI 1 11-1
Directorate RVAUTBIZ of Road 7RO 9. aMaintenan_e T sld Equipment
I I I F~~~~rATESEJIE CZT iI | TE I * i |"--- -|
RBegional Public| L1 1| | Works Service |I ,WOPK . A'
BOAD
|SEIG.ArED. 0 |l FIK Rl:Pa?R
Source: DERM February 1984 SENEGAL FIFTH HIGHWAY PROJECT STAFF APPRAISAL REPORT
'CilEM~4A I CONTROLF DEPENSES ErtRENOJVELLDttJT CAIStFS D'AVANCE
'f j.;ae&ff | est accord6 caisse rapport mensuel (A) (facturesgardees demande Finances pour executer progr. --->d6tail travaux - a l'Arrondissement) renouvellement agree avec DGTP et detail depenses caisse quand Banque 75S vers8
agree programme et - controle rapports n'approuvepaS caisse n6cessaire travaux/d6penses/~-->approuve-4consolidatio pr2visions regions Min. Financea - inspections - feLt audit periodique- j:sz-ie-s1 progranimeannuel rapport mensuel (facturesgardees demande ment lj' j I agr6c; determine-t >travaux/d2penses bBPP) -> renouve lemen - orenouvelle cais3e rapport tvec a Finanees _ caisses jus- pr6visions qu'a limite
controletravaux et an approuve pas consolidaticn (B -oersede rem rapports , sgnignee par Dir. agboursementa approuve DERM, chef compt avec £BI
renouvellem. D:t progr. annuel/trim. rapport mensuel: (factures caisses objectifsdisponib. --- 4 pieces: achats -- gardees DM) A | mat6riel utilisations valeur stock D rapport inspections engins: n' repar6 consums.essence (type % B8IRD salaires op6rntionnel) verifie rapport avec previsions p6riodiquem. - rembourse Min.Fin. !?ER'4 contr8le et approuve > partie approuvee par BIRD travavx a l'entreprise programme passation presente achat materiel agr6e aved __ b d&omptea6carches ) MINFI.4 Banque/DGTP procedures a Min.Fin. - verifie paye habituelles . sous FR +
approbation Banque marches> CFA mill. - dde% audit .0- g!B avec preve paiesment Source: DERM February 1984 S E N E G A L
FIFTH HIGHWAY PROJECT
STAFF APPRAISAL REPORT
Project Commitments and Ex enditures throu h the Road Fund and Project Account
1983/84 1984/85 1985/86 1986/87
Total Total Total Total T o t a I net net net net net For- of For- of For- of For- of For- of Grand Local eign tax Local eign tax Local eign tax Local eign tax Local eign tax Tax Total
A Equipment procurement 8 157 165 45 855 900 52 992 1044 20 382 402 125 2386 2511 - 2511 Spare parts stock 5 95 100 ------5 95 100 - 100 Workshop equipment 5 95 100 20 380 400 ------25 475 500 - 500
18 347 365 65 1235 1300 52 992 1044 20 382 402 155 2956 3111 - 3111
B Road maintenance, periodic L Bitumen roads 55 85 140 197 303 500 224 344 568 181 279 460 657 1011 1668 860 2528 t Gravel roads 70 92 162 446 587 1i033 487 640 1127 418 550 968 1421 1869 3290 772 4062
125 177 302 643 890 1533 711 984 1695 599 829 1428 2078 2880 4958 1632 6590
C Road maintenance, routine Bitumen roads 164 118 282 168 120 288 192 137 329 195 140 335 719 515 1234 328 1562 Gravel roads 408 199 607 416 202 618 475 231 706 484 235 719 1783 867 2650 780 3430
572 317 889 584 322 906 667 368 1035 679 375 1054 2502 1382 3884 1108 4992
D Services 16 46 62 16 46 62 16 46 62 16 46 62 64 184 248 152 400
Sub-total 731 887 1618 1308 2493 3801 1446 2390 3836 1314 1632 2946 4799 7402 12201 2892 15093
E Contingencies (price) 71 70 141 293 385 678 413 454 867 610 513 1123 1387 1422 2809 717 3526
Total 802 957 14759 1601 l2a8 S4A 9 1859 2844 4703 1924 2145 4069 6186 8824 15010 3609 18619
Total, 2A15 5399 5816 5189 18619 s including tax
Source: DERM February 1984 - 31 -
ANNEX 2-6
SENEGAL
FIFTH HIGHWAY PROJECT
STAFF APPRAISAL REPORTS
Projected Quarterly Disbursements of IDA Credit
US$ million Fiscal Year and Quarter In Quarter Cumulative
FY84 4th 2.0 2.0
FY85 1st 4.2 6.2 2nd 2.4 8.6 3rd 2.4 11.0 4th 2.3 13.3
FY86 1st 0.9 14.2 2nd 1.3 15.5 3rd 1.3 16.8 4th 1..2 18.0
FY87 lst 0.9 18.9 2nd 0.9 19.8 3rd 0.9 20.7 4th 0,.8 21.5
Source: Mission Estimates
February 1984 - 32 -
ANNEX 3-i
SENEGAL
FIFTH HIGHWAY PROJECT
STAFF APPRAISAL REPORT
ORGANIGPAOIME DE LA DIRECTION GENERALE DES TRAVAUX PUBLICS
MINISTRE DE L'EQUIPEMENT
DIRECTION DE DIRECTION DIRECTION DIRECTION INSPECTEUR L'ADMINISTRA- GENERALE GENERAL TION, ET DU DES TRAVAUX DE LA DE LA PERSONNEL , PUBLICS METEOROLOGE TOPOGRAPHIE
_~ ~ ~ - -1 I DIRECTION DES DhIRECTION DE I ETUDES ET DE LA L'ENTRETIEN ROUTIER DIRECTION DE CENTRE DE PROGRAMMATION ET DU 4ATERIEL L'INFRASTRUCTURE FORMATION DES ______AVLUXPUBLICS1
BUREAU DE GESTION CONTLEUR DE GESTION
SELTIIC't Sj.1 CT! .ON...... G"PTAESI uI COORDINATE SE[RETAPIAIR CEC EI FIARNCER REARCHIO H | O|
!~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~. I I ot
1~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~PSE 't 7'
ABUREAS BJREAU I RALO | TRERI a TBREAU | REAU BG URE COP.1X~ ECNLOE :A: R'E jNPCTO |SRTEENRE I NNOUAREC ARET:1ES l DE | DMIaINS oUCE;S,,'ORiET Sa:., '- i; XPL31TAT13|I ELTEwN ETUOES RAVAUX TRATIF I PRTION|| MATERIEL|
T. |PG|CO1 IRI~~~~~~~~~~~~~~~[ J j~~~~~~~~~~~~~~~~JIPERSONNEL ATOLE CORLINA-R~~~~~~~ADMIOS LIRSANSJASECTIONATE |PERSONNE| jEREDITION | ENALYTQUE XMOWEXIET | |PRODCT10N | I TION IICCMPIAEa IIP|ABILI CO' -I |TEURLI IMAGAASINS |COMP.FL 4 EEOOI||L\AIS||ISETO ETEINI * IBDEIA TE ANALYTI CTINAN- IC EUES | VESANG |MRUS I|DITCETnTERVCESREGATTL PAT IIFSC.VS ||RDI AEIRS I DE ITOTRVAUPPULRA IQ I ICER BRIGADESIICLE I |TRANSKET |0 tORE INAINI |OPAIIIDENACIIBATIET ACE ACE |I CCMPTABIL.||| lGARDIE;EMl MTEEIIII. SA TAI AI ANALYTIQUE|||
| ~~~~~SERVICESREGIONAUXDES TRAVAUXPUBLICS|
Source: DERM
February 1984 8 . ~~~~~~~~~~~~~SE N E G A L .,O; FIFTH HIGHWAY PROJECT 5'jCII STAFF APPRAISAL REPORT
SYSTEME DE GESTION DE REPARATION
DU MATERIEL
MDTURELA REFCFr,z
PAPP/T C'E
P.A9 CF cA PL%l I, /REARABLE NAT..L | PLAN oE TRA,
PLAN~C R~
_~~~~~~~~~~~~~~~~~~~~~ K8S'l@ON. ,/
- P'IL'l Cs :AMPAt@e - EtAT D'J WMVAERLE P_ GUN.AKE _PREUISICN SBUEYAIRE TRKAPA EFF(vE:EZ _ tY.PES - 0UI&ITE -A REPARER _ PLAN A94bEL z- _ %AS O iRERSrn
_ t-:lER.4 _ A REFORMER - PLAN ?RtIE%tRtEL - PIECES GETA:EIS
- PMAN MIaWEM *
- P.%'.ES PO'KCIELU.S
-: - = -~- - - - DLS afROR l ERWATI@t1AL_ .- M cn a a ~~~~~~~~~~~~~~~~SE N E G A L co FIFTH HIGHWAY PROJECT
STAFF APPRAISAL REPORT
4z1
SYSTEME DE PROGRAMMATION ET DE PLANIFICATION DE L'ENTRETIEN ROUTIER
FICHIER ROUTE PROGRAMMATIOM
______A NNUEE .
fICHE DINVENTAIRF ROUTIER PROPOSITION oe TRAVAIL PLAN DE CAMPAGME PLAN D'EXECUTION p
PER$ "AT MAl
t - - IFllt>- *ecota*tt lC"th&
4 , I tR IMU E S T RI E L
RAPPORT JOURNALIER NORM[ OE NORME DE tUSLITE PROOUCTIVITE
t PRocGR, _
I PU^SaN. PODuC
| NSPECTION VISUELLt |PREPARATION OU PLAN DE TRAVAIL ELABORATION OU PLAN OE TRAVAIL DISPATCHINODES EOLUPES COMPTABILISATION TRAVAUKX |
. EAT Ot OfEGRAOATION *ACHET A EFFECIUER , PLAN ANNUEL _ LOCALISATIONOf CHANTIER QUANtIIt OE TIAVAIL I - t ORtf DE CUALITE , NTERVA.L1ES OES TACHES , PROGRAMME TRimSTRtiIL . PLAN 0f TRAVAIL ttENSUIL COUTi OES OPEltAtIONtS
. MORINES 0 PRODUC?IVITI . PREVISION *UDGOTAIRE LOCALISATION DE TRAVAIl , PRaOIRTE
. ISSOURCII A AILOUEI Pw Al*. - 35 - ANNEX 4-1
SENEGAL
FIFTH HIGHWAYPROJECT
STAFF APPRAISAL REPORT
Traffic Levels and Growth Rates on Main road Sections bY 1981
Annual Rate of Traffic Increase Traffic 1981 1975-1981 Section Road v.p.d. %
Dakar - Diam Niayes RN 1 16 000 9 Diam Niayes - Mbour RN 1 2 595 2 Mbour - Kaolack RN 1 1 500 10 Malem Hodar - Tambacoun RN 1 430/286 14 Tambacounda-Goudiny RN 1 80 6 Diam Niayes - Thies RN 2 3 718 0 Thies - Saint Louis RN 2 1 473 12 Saint Louis - Rosso RN 2 721 -4 Rosso - Podor RN 2 350/122 1 Podor - Matam RN 2 160 10 Matam - Bakol RN 2 56 29 Thias - Bambey RN 3 1 420 -1 Diourbel - Touba RN 3 555 0 Touba - Dahra RN 3 681 15 Diourbel - Kaolack RN 4 772 34 Kaolack - Keur Ayip RN 4 1 017 16 Kaolack - Karang RN 5 649/400 11 Bignona - Seleti RN 5 543 25 Ziguinchor - Kolda RN 6 663/458 15 Kolda - Velingara RN 6 163 -15 V'elingara - Tambacounda RN 6 112/229 7 Dialakoto - Kedougou RN 7 50 9
Average annual growth rate: 8% Source: Ministry of Equipment, 1981.
February 1984 - 36 - ANNEX 4-2 S E N E G A L FIFTH HIGHWAY PROJECT STAFF APPRAISAL REMORT
Network to be Maintainedand Expected Condition (km)
A. Network to be Maintained
1983/4 1984/5 1985/6 1986/7 Paved:
National 2280 2280 2280 2280 Departmental 907 1087 1187 1297 Feeder 73 73 73 73 Sub Total 3260 3440 3540 3650
Unpaved:
National 819 885 951 1017 Departmental 3681 3646 3974 3857 Feeder 1253 1477 1702 1927 Sub Total 5753 6008 6627 6801
Total 9013 9448 10167 10451
B. Actual ExpectedRoad Conditionwith MaintenanceProgram l
1982/3 1983/4 1984/5 1985/6 1986/7 1987/8 Paved: 3396 3383 3573 3673 3756 3781
1. Very poor 102 93 53 35 35 - 2. Poor 299 338 258 198 85 - 3. Fair 1192 1255 1191 1409 1732 1707 4. Good 1488 1346 1401 1450 1145 1420 5. Excellent 315 351 670 581 759 654 Average Index 3.4 3.4 3.6 3.6 3.7 3.7
Unpaved: 5062 5758 5991 6553 6724 6724
1. Very poor 1872 1872 1722 1647 1568 1468 2. Poor 1687 1687 1634 1500 1283 1081 3. Fair 1433 2129 2018 2518 2734 3006 4. Good 66 66 617 888 1139 1164 5. Excellent 4 4 - - - - Average Index 1.9 2.6 2.5 2.6 2.6 2.6
1/ Strengthening,UNSO programsalso included.
Source:DERM February 1984 SENEGAL FIFTH HIGHWAY PROJECT STAFF APPRAISAL REPORT
1983/87 Road Maintenance Program Costs per task, FY1984-1987 (Millions CFAF)
1983/84 1984/85 1985/86 1986/87 Total Maintenance Works by Force Account/ 1581,4 1611,2 1721,4 1752,8 7158,7
General Mechanized 273,4 268,0 313,4 297,8 1152,6 General Manual 55,2 55,1 55,9 56,1 222,3 General Masonry 139,5 139,5 139,6 139,6 558,2 Partial Regravelling 337,0 318,6 345,3 358,4 1359,3 Grading 91,4 106,0 137,8 156,7 491,99 Pothole, Laterite Filling 124,3 153,5 171,4 172,9 1114,0 Patching 214,5 204,0 218,7 213,0 850,2 Horizontal Signalisation 55,9 76,3 49,2 67,8 249,2 Regravelling 190,2 190,2 190,1 190,5 761,0 Ferries and Bridges 100,0 100,0 100,0 100,0 400,0
Maintenance Works by Contractor 1015,6 1309,2 1521,4 1571,4 2b96,b
Resurfacing (double) 526,9 527,7 545,3 591,3 2091,2 Resurfacing (hot-mi4 63,7 76,5 53,1 53,1 246,4 Shoulder Maintenance 45,0 45,0 50,0 51,0 191,0 Full Regravelling 350,0 630,0 819,0 822,0 - Laterite Transport 30,0 30,0 54,0 54,0 168,0
Total 2597,0 2920,4 3242,6 3324,2 9855,3
a/ Only direct costs shown. DERM overheads of some CFAF 500 million per year, are funded through the Ministry's budget, not the Road Fund. About 1/3 should be added for depreciation to mechanized tasks costs.
Source: DERM February 1984 SENEGAL
FIFTH HIGHWAY PROJECT
STAFF APPRAISAL REPORT
Maintenance Program Economic Evaluation (Million CFAF)
Unpaved Roads Paved Roads Total Year Routine Maintenance a Periodic Maintenance Total Routine Maintenance Periodic Maintenance Total Cost Benefits Cost VOC Benefits- Cost VOC Benefits Cost Benefits Cost Benefits Cost Benefits Cost Benefits
1983/4 1375 836 484 134 1859 970 642 1867 421 173 1063 2040 2922 3010 1984/5 1286 1564 871 316 2157 1880 600 1979 360 354 960 2333 3117 4213 1985/6 1114 2424 967 588 2081 3012 522 2225 427 572 949 2797 3030 5809 1986/7 993 2685 986 885 1979 3570 463 2275 460 793 923 3068 2902 6638 1987/8 1645 885 2530 833 833 3363 1988/9 826 885 1711 875 875 2586 1989/0 885 885 918 91& 1803 1990/1 688 688 965 965 1653 1991/2 420 420 1012 1012 1432 1992/3 100 100 1063 1063 1163 1993/4 781 781 781 1994/5 500 500 500 X 1995/6 200 200 200
a/ Based on the following: 1983 Economic Vehicle operating costs, CFAF/km: Road CFAF Average Estimated Traffic,vpd Indexes Improvement On Paved On Unpaved Veh-km saving On Roads 1983/4 1984/5 1985/6 1986/7 W W/O Life, Years % Good(5) Poor(l) Good(5) Poor(l) 15 Regravelled 150 160 170 180 5 2 7 7 Spot Regravell. 80 84 88 93 4 2.5 3 30 cars 43.5 46.4 60.9 72.5 5 Graded 50 55 60 68 4 3 1 30 taxis 55.1 60.9 84.1 100.1 15 Resurfaced 500 525 560 590 5 2 10 12 pick-ups 50.8 55.1 71.1 84.1 5 Patched 315 330 347 365 4 3 1 12 buses 75.0 82.7 97.2 121.8 10 trucks 134.9 155.2 166.8 211.7 6 tr.-trailer 207.4 217.5 250.9 295.8 100% Average 71 90 95.4 115.4
al Updated from National Transport Plan, 1981.
Source: Bank staff, 1983.
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