Report No. 494a-SL M Sierra Leone F8: Gor Current Economic Position and Prospects (In Five Volumes) Volume IV: Public Disclosure Authorized Annex 4: Education Annex 5: Transportation November 27, 1974 Western Africa Region Not for Public Use Public Disclosure Authorized Public Disclosure Authorized

Public Disclosure Authorized Document of the International Bank for Reconstruction and Development International Development Association

This report was prepared for official use only by the Bank Group. It may not be published, quoted or (ited without Bank Croup authorization. The Bank Group does not ace pt responsibility for the accuracy or completeness of the report. CURRENCY EQUIVALENTS

Currency Unit : Leone (Le) a fixed parity exists between the Leone and the pound sterling: ;6 , Le 2

The Leone floats against the dollar. Between February 1973 and April 1974 the rate at the end of each month has fluctuated as follows: US$ 1 = Le 0.877 - 0.775

Throughout this report the following rates have been used for the conversion of Leone into US dollars and vice versa:

1968 and earlier: US$ 1 = Le 0.714 1967 : US$ 1 = Le 0.735 1968 - 1971 : US$ 1 = Le 0.833 1972 : Us$ 1 = Le 0.816 197i : US$ 1 = Le 0.833 PREFACE

This report is based on the findings of an Economic Mission which visited Sierra Leone in November/December 1973. The following participated in the Mission and in the writing of the Report:

Emmerich M. Schebeck - Chief of Mission Hendrik T.'Koppen - General Economist Roger S. Smith - Fiscal 8eonomist (IMF) Cornelius P. Cacho - Planning/Administration Specialist Gerald L. Karr - Agricultural Economist (Consultant) Gerhard Gerhardsen - Fishery Specialist (Consultant) Judith A. Edstrom - Education Economist Claude Delapierre - Transport Specialist Rolf Giisten - Transport Economist Ibrahim Kande - General Xconomist -(ADB) Luz R. Pangilinan - Mission Secretary

Ms. Edstrom and Messrs. Delapierre and Gusten visited Sierra Leone in the spring of 1974.

Page 1 of 3 pages

ODUNThY DATA-SIKARA LEONE

AREA MPULATION DENSITY 71,70 kcm2 2.73 million (mid-1972) Per krnof arebla lard

SOCIALINDICATORS Reference Countries 4 Sierra Leone Liber a Coast 960 19 ? 11970 01900

DNP PER CAPITA US$ (ATLAS bASIS) 180 190 Ia 250 /a 3b10 a 380 /a

DEMOGRAPhrC Crude rth rate (per thousand) 4.45 /b 50 /d ad 46 /b 50 /b 7 Crude death rate (per thousand) ,. 23 21 , 23 77S 22 7S Inrant mortality rate (per thousand line births) .. 183 15S lSad 140 c . Life expectancy at birth (years) ,.41 53 a 2 77 44 /b

Gross reproduction rate ,. 2 9 2 6 /b 3.1 /b 3.3 /b Population growt.T rate^l 2.22 22 c 3.1 Tc 3.4 7S 2.9 Ic Population growCl rate - urban 4 L/ac I- ' 7 ,A 14

Age structure (percent) 0-14 37 /1 42 /ac 42 /d 42 /ac 462 15-61 5 87.T 5 5 7a,,,. 55T 5In 65 and over 5 7r 37*c 3,3 _ 3c De,endency ratio A 1.0 7 1.i Tr 1.2 __ 1.0 77 1.3 7i

Urban population an percent of total 11 /eac 1 I /e,a c 26 Ip2d 28 /i 30 /k Faily planning: No. of ecceptors cuoulative (thous.) , .. No. of users (%of married uomsen) WLPOYWNT Tote labor force (thousands) 940 /1 1,050 /o 580 2,301 1,600on Percentage employed in agriculture 75 7T 73 T 72 78 69 7c Percentage unemployed 3 71 2.3 T 20 /s 9 10 7 ,t INCOMEDISTRDBUTION Percent of sationai income receivad by highest 5% . 148 la 60 C,. Percent of national income received by highest 20% .. 67 7a . Percent of national incose received by lowest 20% .. 4 7' 1. Percent ar national incon received by lowaot 40% ,. 10 7T 13 10 DISTRIBUTIONOF LANDO*NSRNSHP S owned by top 1`C Of owners %owned by smallest 10% of owners HEALTHAND NUTRITION Population per physician 19,000 /c 15,800 10,450 /n 12,140 13,C80 /I Pupulaticon per nursing person 2,4007 v 1,740 4,140 7 2,480 /w 2,940 7jj Population per hospital bed 1,450 __ 700 5307 680 T 310 7.;

Per capita calorie supply as S of requirenente .. 90 /z 95I 101 /z 92 /z Per capita protein supply, total (grans per dayl / .. 49 7T hi7 59 77 69 77 Of which, animal and pulses 16 77 10 77 77T8 25 77 Death rain 1-i years /7 .. - 21 78 N00C A CON Adju3ted /8 primary school enrollmont ratio 27 34 73 71 85 Adjusted Z econdary school enrollment ratio 411 12 11 12 Tears ofofbooling provided, first and "econd level 12 12 12 12 12 Vocational enrollomnt an %of sec. school enrollsent 2 5 35 /o. Adult literacy rate S 15 In 12 /u 201 43 7Tb

HOUSINO AverageNo. of persons per rooe (urban) ,, 2.1 . 2... Percent of occupied units rithout piped water Acce.s to ele=tricity (as %of total Population) 'I Percent Of fural population connected ti electricity 2 /c

CONSUM'IO Radio recivers per 1000 population 4 56 In 132 17 / ac i8 Passenger oars per 1000 population 2 9 10 11 77an IL tlectric poas, consumiption (kwh p.c.) 19 78 4129 120 932 Newsprint consumption p.c. kg per year 0.09 0.08 0.01 /ac 0.2 0.5 Notes, Figures refer either to the latest periods or to account of environmental teperature, body weighte, and the latest yearn. LItest periods refer in principle to distribution by age and sex of rational pOPulatins. the years 1956-60 or 1966-70; the latent yeara 1,, prin- /6 Protein standards (requiroenta) for all countries as estab- ciple to 1960 and 1970. lished by USDAEconondo Research Service provide for a incimeua /a The Per CepitL GOP estimate is at nrk,et pricen for allowance of 60 graim of total protein per day, acu 20 grais of ycars other than 1960,calculated by the cane conversion animal and pulse protein, of which 10 greas snould be anisal techniqua es the 1972 World Bank Atles. protein. These atandards are asewbat lewer t-han those of 75 /2 Average nosber of daughters per woman of reproductive grass of total protein anid 23 grass of animaln protein as a age, average for the world, proposed by FAOin the Third World Poond /) Population growth rat.s are for the decades ending in Survey. 1960 and 1970. 7 Some rtodiea have suggested that crude death rates of children /% Ratio of under 15 and 65 and over age brackets to ages 1 through 4 say be used as a firat approximation index of those in labor force bracket of ages 15 through 61. salnutrition. / FAO reference standerdn represent physiological re- L§ Peroestage esrolled of norr.speceig population of school age quirements ftr norweMl ctivity and helith, taking as defined for each country.

Ia 1972; /b 1965-70 UN estimate; /c 1960-72; /d 1971 /e Definition not available; /f 1567; /R PFre- town; T7 1965-70; /i Over 1,0 population; /5 1965-69; /k Main towns and as many snall townships as could be secarately identified; A 1963; /I 1969; /n Ratio of population under 15 and 65 end over to total labor force; /o Basedon the results of population growth survey which covero five percent of the total population; /2 Localities having sore than 2,000 inhabitants; /5 PAO estimate; /r 1967-69; /n Unemployed and partially employed; /t Persons seeking work; /u 1962; /v Including midwives, assistant nurses and eidwifery, and nursing auxiliaries; /u Pcrsonnel in goverasnt services only; IA 1961; /I Onverneent hospitals only; /I 1964-66; aa 1965; /ab 15 years and over; /- Estimate; /ad Estimate based on the population growth survey alich comnenced in May 1969; /ea As percent of total school age population; laf 1968, households; /ag Income recipient; /lh Percentage of urban dwellings with piped water inside.

o Zambia hus been selected as an objective country because its per capita income is nearly twice as high an Sierre Leone's and Its -cononic structure also depends heavily on the mining sector.

RI Novesber 26, 1574 Page 2 of 3 pages

ECONOMIC INDICATORS

GROSS NATIONAL PRODUCT IN 197 ANNUAL RATE OF GROWTH (%, constant prices)

US$ Mln. % 1964 -68 1968 -70 1971

GNP at Market Prices 441 100.0 2.4 11.8 o.6 Gross Domestic Investment 79 17.9 9.8 20.1 17.7 Gross National Saving 59 13.4 46.o 10.3 16.7 Current Account Balance 20 4.5 Exports of Goods, NFS 113 25.6 4.0 5.6 -0.7 Imports of Goods, NFS 130 29.5 -2.9 9.0 -8.0

OUTPUT, LABOR FORCE AND PRODUCTIVITY IN 197 Value Added Labor Force-/ V. A. Per Worker U-$ XLn. i; Thou-sand ES-$ %nf national

Agriculture 138 31.3 774 72.0 178 43 average Industry 25 5.7 49 4.6 556 135 Services 208 47.1 166 15.5 1253 305 Miring -70 15.9 39 3.6 1795 437

Unemployed Lotal/Average 441 100.0 1073 w 4110 0.0

GOVERNMENT FINANCE General Government Central Government ( _ MaD. ) 7 ofGDP ( Le Mln.) % of GDP 197 197 196 -7 197273 1271/72 1972 73 Current Receipts 63.8 15.4 14.9 5 . Current Expenditure - -. Current Surplus 6.3 1.7 Capital Expenditures 12.8 4.0 3.0 External Assistance (net) 1.3 0.5 0.3

MONEY, CREDIT and PRICES 1968 196 1970 1971 197 197 (Million Le outstanding end period)-

Money and Quasi Money 38-1 44.4 42.6 47.8 56.0 71.9 Bank credit to Public Sector 8.6 4.6 2.5 8.0 9.4 15.1 Bank Credit to Private Sector 16.1 16.9 19.4 19.9 21.7 28.2

(Percentages or Index Numbers)

Money and Quasi Money as % of GDP 13.4 13.7 11.5 12.7 ... 1/ General Price Index (1963 X 100) 129 134 144 140 146 154! Annual percentage changes ins General Price Index 1.3 3.4 7.6 -2.3 3.9 5.8-1/ Bank credit to Public Sector - 25 -47 -46 320 18 61 Bank credit to Private Sector 4 5 15 3 9 30

Note: All conversions to dollars in this table are at the average exchange rate prevailing during the period covered.

1/ January - September 1973. not available not applicable Page 3 of 3 pages

TRADE PADTS AND CAPITAL FWIB

BALANCE OF PAYMENTS MERCHANDISE EXPORTS (AVERAGE 1971 -7

1971 1972 1973 US $Mln % (Millions US $) Diamonds 70 61 Exports of Goods, NFS 113.3 129.4 145.2 Other minerals 1/17 15 Imports of Goods, NPS 129.8 134.5 171.4 Major agriultural exports- 17 15 Resource Gap (deficit = -) -16.g i r - 5-1 Interest Payments (net) - 4.6 - 2.9 Workers' Remittances - - - 7.7 Other Factor Payments (net) -4.5 - 3.9 Net Transfers ___8 3.0 5.6 All other commodities 10 9 Balance on Current Account -19.8 - 9.1 - 28.3 Total 1114 00.0

Direct Foreign Investment 5.3 3.8 .. EXTERNAL DEBT. DECEMBER 31. 1923 Net MLT Borrowing Disbursements 13.3 11.8 .. US $ Mln Amortization *,. 5.&.L Subtotal 5.6 6.1 17.4 Public Debt, incl. guaranteed 88.7 Capital Grants - - - Non-Guaranteed Private Debt Other Capital (net) 5.7 6.5 8.9 Total outstanding & Disbursed Other items n.e.i 7.1 0.7 0.8 2 Increase in Reserves (+) 3.9 8.o - DEBT SERVICE RATIO for 197 3- Gross Reserves (end year) Net Reserves (end year) 38.4 46.4 50.4 Public Debt. incl. guaranteed 8.4 Non-Guaranteed Private Debt Fuel and Related Materials Total outstanding & Disbursed imports 8.0 8.9 of which: Petroleum (8.0) (8-7) Exports 3.2 3.2 of which: Petroleum (3.2) (3.2) *- IBRD/IDA LENDING. (latest mumth) (Million US $):

IDA RATE OF EXCHANGE IBRD Outstanding & Disbursed Nov. 1967 - Dec. 1971 Dec. 1971 - June 1972 Undisbursed uS $ 1.00 =Le o. US $ 1.00 Le 0.77 Outstanding incl. Undisbursed La 1.00 = US$ 1.20 Le 1.00 US$ 1.30 Since June 1972 The Leone floats with sterling (L1.00 Le 2.00 1/ Cocoa, coffee, palm kernels.

2/ Ratio of Debt Service to Exports of Goods and Non-Factor Services.

not available

not applicable

August 5, 197L

ANNEX IV

EDUCATION

Table of Contents

Page No.

:. THE EDUCATION SYSTEM 1

:I. EDUCATION FINANCE, EXPENDITURE AND UNIT COSTS 3

:I. ISSUES IN SIERRA LEONE EDUCATION 6

Reorienting Primary Education 6 Relating Secondary and Post-Secondary Education to Manpower Requirements 7 Financing Future Growth and Reform of the Education System 14

ANNEX IV Page 1

I. THE EDUCATION SYSTEM

1.01 Introduction: The education system of Sierra Leone is patterned after that of the United Kingdom. Historically, its principal function was the preparation of a small elite to serve the colonial system and support the metropolitan culture. The program was largely of an academic and literary nature leading to administrative and teaching positions in the public sector. Thus, it produced a white collar elite culturally distant from the rural mass of the population. With the coming of independence, the objectives of educa- tion were broadened and the system was seen as a means to promote economic development through the extension of educational opportunities to the various ethnic groups throughout the country. However, since the basic characteristics of the system have remained largely unchanged, the outcome in terms of student attitudes and expectations is similar to that of previous decades; education is still viewed largely as an entree to public administration and the urban society.

1.02 The structure of the general education system consists of (i) a seven year primary program normally beginning at the age of five, followed by (ii) a five to seven year secondary course of study and (iii) one to five year post- secondary programs at the University of Sierra Leone, teacher colleges, and Freetown Technical Institute. Other than university study, both general and technical education are under the authority of the Ministry of Education. Other ministries have training programs for their own personnel.

1.03 PrimaKj school enrollments doubled during the decade of the 1960's; 166,000 children were enrolled in 1970/71, or a little over 34 percent of the 5-11 year age-group. Due however to rapid growth of the age-group, the propor- tion enrolled has remained constant since 1963/64. Enrollment ratios are heavily skewed regionally, with 104 percent of the age-group enrolled in the Western Area while only 16.4 percent enrolled in the Northern Province. 1/ Although dropout and repeater rates are not known it is estimated that only 44 percent of children entering primary school complete the program. Moreover, many children apparently repeat one or more years as indicated by slow growth of first year enrollments (4.8 percent p.a.) relative to growth of total pri- mary enrollments (7.7 percent) during the 1960's. The fact that first year enrollment growth dropped to only about 1 percent p.a. during the second half of the decade has serious negative implications for the Government's policy objective of expanding coverage of primary education.

1.04 The primary teacher-pupil ratio is 1:32, one of the lowest in Africa. Most teachers are Sierra Leonean, but only 40 percent of the 5,500 primary teachers are qualified in terms of the country's standards. These, however, are higher than in many West African countries since primary teacher training consists of a three year program following the fifth year of secondary schooi. Total output from primary teacher colleges numbered 206 in 1972.

1/ Enrollment figures include an unknown number of over-age students. ANNEX IV Page 2

1.05 Secondary education enrollments have increased sharply over the decade at 16.4 percent per year. Roughly 11 percent of the 12-16 year age group was enrolled in 1970/71 but as in primary education the Western Area has the highest enrollment ratio (65.9 percent) and the Northern Province the lowest (3.5 percent). Over 74 percent of secondary students attend fully assisted schools, most of which are denominational; only 15 percent of secondary enrollments are in government schools. More than 59 percent of students entering secondary school complete 5 years of study. However, the secondary system is heavily exam-oriented. Entrance into the first year (Form I) is determined by Selective Entrance Examination results; somewhat over half of primary school completers are accepted. The program is geared toward pre- paring students for 'O' (ordinary) level examinations at the end of the fifth year of secondary school. Only 14 percent of those taking the exam (or 8 percent of those who enter Form I) pass the requisite number of exams to qualify for university entry.

1.06 The secondary teacher-student ratio was 1:21 in 1971/72. Seventy percent of the secondary teaching staff is Sierra Leonean; slightly over half of these have undergone teacher training. Teacher training is provided at the University of Sierra Leone and one secondary teacher training college. Output, including students returning from abroad, was 147 in 1972.

1.07 In 1972/73, 1,135 students were enrolled at Fourah Bay and Njala, the two constituent colleges of the University of Sierra Leone. Degree or diploma courses are offered in the arts, economics, sciences, education and agriculture. Teacher student ratios are low: 1:7+ at Fourah Bay and 1:4+ at Njala. About 1,200 persons are studying abroad.

1.08 Vocational and technical training is offered at four technical in- stitutes and trade centers. Figures on enrollments are conflicting, varying from 330 to 1,160 for 1971/72, but the number enrolled is very low, representing only about 2-3 percent of secondary enrollments. Dropout appears to be high; probably no more than two-thirds of the full-time students complete the one to three year programs.

1.09 Agricultural education is provided in secondary schools, in a limited number of vocational programs administered by the Ministry of Agri- culture and Natural Resources, and at Njala University College where two and four year programs in agriculture and agricultural education are offered. In 1972/73, 428 students were enrolled in professional training at Njala, while enrollments in the Ministry of Agriculture's farmer and vocational training programs totalled only about 85.

1.10 Out-of-school education is limited mainly to general literacy training with about 2,000 adults and youths participating in 1972/73. The program is limited by lack of funds, staff and materials. ANNEX IV Page 3

II. EDUCATION FINANCE, EXPENDITURE AND LT)NIT COSTS

2.01 Education Finance: Financing of the Sierra Leone education system is shared primarily by the Central Government, parents and the private sector. The actual share of each is difficult to calculate due to the relatively large number of denominational schools, the sharing of fee collection between the central government and local employing authorities or schools and the unknown amounts spent by parents for books, uniforms and other school expenses.

2.02 Fees are charged at all levels of the education system. In primary education, annual tuition is Le. 1 for classes 1 and 2, Le. 1.5 for classes 3 to 6 and Le. 2 for class 7. Since the beginning of the school-year 1973/74, primary fees have been turned over to the central government, which in turn allocates Le. 4 per student to all primary schools to cover operating, main- tenance and equipment costs. For secondary education, the annual tuition fee is Le. 21 per student. In government schools the fee is collected by the Central Covernment. In fully or partially assisted and unassisted schools where 85 percent of all secondary students are enrolled, fees are collected by the schools or local employing authorities. Since the salary grant by the Central Govern- ment to nongovernment schools covers only 95 percent of teacher's salaries, approximately 35 percent of non-government school fees are used to supplement salaries. Further, non-government schools charge additional fees for station- ery, books, etc. Boarding charges, usually paid by parents, average Le. 70 per student year. Fees are also charged for higher education, but these are fre- quently covered by central government scholarships. 1/ The Central Government provides an estimated 95 percent of financing at this level; the remainder comes from independent sources such as rents, farm income (for Njala l!nivers-ty College) and grants or donations.

2.03 In 1972/73, fees and private contributions accounted for at least 12 percent of total recurrent educational finance. As a proportion of total. expenditure by level of education, the private sector contribution was highest for secondary education, accounting for roughly 30 percent of total secondary education financing, followed by primary education with 6 percent of total primary education expenditure. The share of private financing is undoubtedly understated at these two levels since, given the unknown amount spent for hooks and uniforms, only fees have been included in calculating the private contribution.

2.04 Education Expenditure: Central government current expenditure on education has grown rapidly over the past decade, with an average rate of increase of 11.6 percent per annum (in current prices), and its share in total current expenditure rose from 18 to 24 percent. Part of the rapid growth in education expenditure is attributable to a 10-15 percent increase in teachers' salaries which took effect in 1971/72. Current education expenditure accounted for 2.6 percent of GNP in 1972/73, up from 2.2 percent in 1962/63.

1/ In 1972/73, scholarship grants to students at the University of Sierra Leone and teacher colleges totalled Le. 1.14 million, averaging Le. 416 per student. In 1973/74, teacher college scholarships were to be increased to Le. 510 for Milton Margai students and Le. 398 for students at primary teacher colleges. Table 1: CENTRAL GOVERNMENT CURRENT EXPENDITURE ON EDUCATION - REVISED ESTIMATES 1972/73 (in Leones)

ActiLinistrative Average Cost Teacher Salaries Salaries Other Expenses2/ Total per Student-Year Level of % Dy Education Leones % Leones % Leones % Leones % Level Enrollment Leones

Administrative - - 171,590 30.0 399,620 70.0 571,210 100 4.4 Primary Education 3,000,000 76.3 121,530 3.1 812,00O0/ 20.6 3,933,530 100 30.0 178,100 22 Secondary Education 2,772,580 84.7 118,400 3.6 384,00023/ 11.7 3,274,980 100 25.0 39,455 83 Teacher Training 522,210 45.7 39,100 3.4 580,420 50.8 1,141,730 100 8.7 1,391 821 Technical Education 146,280 60.8 45,760 19.0 48,600 20.2 240,640 loo 1.8 890 270

Teaching Aids - 27,600 76.1 8,650 23.9 36,250 100 0.3

Higher Education of which 834,210 21.4 541,210 13.8 2,527,820 64.8 3,903,240 29.8

- Fourah Bay College (504,540) (219,990) (1,070,110) (1,794,640) 925 1,940

- Njala University College (329,670) (238,220) (493,630) (1,061,520) 428 2,480

- University of Sierra Leone (83,000) (10,000) (93,000)

- Overseas Scholar- ships - - (872,080) (872,080) 1,200 727

- Library Grant (82,000) (82,000) Total 7,275,280 55.5 1,065,090 8.1 4,802,910 36.4 13,101,580 100.0

1/ Includes scholarships (local and overseas) (2,012,540) Z/ Includes 800,000 grant to primary schools. 2/ Includes boarding grant (120,000)

Source: Sierra Leone Government, Estimates of Revenue and Expenditure 1973-74 >|x ANNEX IV Page 5

2.05 In 1972/73, Central Government current expenditure on education amounted to Le. 13.1 million, of which approximately Le. 7.3 million (55.5 percent) was earmarked for teacher's salaries, Le. 1 million (8.1 percent) for administrative salaries and Le 4.8 million (36.4 percent) for other expenses. The relatively high proportion of the last category is due partly to the inclusion of local and overseas scholarships and boarding grants. Almost 30 percent of the 1972/73 education budget was devoted to higher education, about the same proportion as allocated to primary education. Secondary educa- tion accounted for 25 percent of total expenditure, and the remaining 15 percent was shared by administration, technical and teacher education and teaching aids. Technical training received the smallest share of any level -- only 1.8 percent of the budget.

2.06 A comparison of the average cost per student-year by level of education, based on expenditure and enrollment estimates for 1972/73, shows that the cost of one year of studies at the University of Sierra Leone is roughly equivalent to 100 years of primary education, 25 years of secondary and 8 years of technical education. Average cost per student, particularly at the primary and secondary levels, is generally lower in Sierra Leone than in some other West African countries.

Table 2: AVERAGE COST PER STUDENT-YEAR: SELECTED WEST AFRICAN COUNTRIES -______(in US $) Sierra Leone Nigeria /1 Ivory Coast Gabon (1972/73) (1970) (1970) (1972/73) Primary 22 29 68 68

Secondary 83 2,232 545 460

Technical 270 433 1,454 1,420

Teacher Training 821 226 1,261 2,020

University 2,111 3,627 1,992 3,760

Source: IBRD and UNESCO

/1 Selected states

2.07 Estimated development expenditure for education totalled Le. 2.9 million in 1972/73, of which Le. 1.3 million was financed from domestic (govern- ment) sources. This represents an increase of roughly 50 percent since 1970/71 when development expenditure were only Le. 791,000. Domestic investment was concentrated on fewer projects in 1972/73 than in previous years; the Govern- ment's share on the IDA Project accounted for more than 80 percent of domestic expenditure in 1972/73 and the remainder was allocated to capital investment in Njala University College and secondary school buildings. ANNEX IV Page 6

III. ISSUES IN SIERRA LEONE EDUCATION

3.01 Sierra Leone has made an effort since independence not only to in- crease access to education but to improve its quality. The secondary curriculum is being diversified; an Institute of Education has been established to improve curricula development and teacher education; and the Government has taken charge of fee collection at the primary level to allocate funds more equitably and efficiently. A long-term goal is free universal primary education. Never- theless, the system is still confronted with a number of major problems, such as low internal and external efficiency, growing financial constraints, in- adequate facilities and teaching staff and above all, lack of an indigenously conceived education strategy adapted to national development needs. The University of Sierra Leone, in close consultation with the Ministry of Educa- tion, is presently undertaking an Education Review to study these issues and will recommend reform proposals sometime in 1974. Some of the issues being studied are analyzed below.

Reorienting Primary Education

3.02 Because curricula at all levels of the Sierra Leonean education system are heavily acaden.ic, the de facto goal of each level is to prepare students for the succeeding rung on the education ladder. This is particularly the case at the primary and secondary levels. Not only does primary education reach little more than one-third of the primary age population, but those it does reach receive an education that is unrelated to the rural environment in which most children live. English, the language of instruction, is alien to that used in the home and many children drop out before they have mastered it. Because primary education alienates children from the rural milieu, ethnic groups in some rural areas, particularly in the Northern Province, show little enthusiasm for schooling. These groups have their own culturally adapted forms of traditional education, such as cultural societies and Koranic schools, but these institutions are unrelated to and ignored by the formal education system.

3.03 Because the seven-year primary program is relatively long, the provi- sion of a full primary education to more children is a costly undertaking, especially if a large number of children repeat one or more years. 1/ respite the long duration of primary education, children emerging from primary school at age 11 or 12 are too young to become fully active members of the labor force. There exist, however, virtually no informal programs to provide the post-primary group with training oriented toward the rural environment. Even If programs were available, they probably would not be very attractive to the rural youth whose attitudes have already been shaped in primary school toward

1/ The Ministry of Education recently endorsed the Education Review's pro- posal to reduce the length of primary education from 7 to 6 years during the Plan period, and to raise the primary school entry age from 5 to 6 by 1976. ANNEX IV Page 7

the urban environment and the importance of a secondary education as a requisite to success. To rectify the biases of an academic-preparatory primary educa- tion which leads only to disenchantment of the majority who cannot continue, this level of the system needs to be viewed more as basic education providing people with the minimum knowledge, skills and attitudes in order to prepare them for the work environment as well as for future schooling. Because of the high illiteracy rate (70-85 percent of the adult population), basic edu- cation should be geared not only to the primary age-group but also to adoles- cents and adults. This would require a restructuring of basic education to provide multiple entry and exit points to facilitate free movement between formal and non-formal programs and between traditional and official education. Furthermore, there is a growing sentiment in Sierra Leone that local languages should be used as the first media of instruction. Curricula should also include basic numeracy and provision of skills that are directly related to the imme- diate economic and cultural environment. Only in this way will communities that are presently wary of the relevance of education be willing to participate in educational efforts, and thereby begin to diminish the strong regional dis- parities in the proportion of children reached by the education system.

Relatg Secondary and Post-Secondary Education to Manpower Requirements

3.04 Requirements: Given the propensity of most young people who continue their education beyond the primary level to seek jobs in the modern sector, it would be beneficial to compare requirements for skilled and upper level man- power with projected output from the secondary and post-secondary, including vocational and technical, levels of the education system. Unfortunately, there is little data on the labor force in Sierra Leone, making projection of future requirements highly risky. The Ministry of Development has made employment projections for the years 1974-1979 by economic sectors and major occupational groups, but no figures are available on a breakdown by skill category or even between salaried and non-salaried employment.

3.05 Rudimentary projections for the years 1975-1979 have been calculated only for high and middle level manpower requirements, positions normally considered to require some form of specialized training following secondary education or the equivalent. The figures presented in Table 3 are based on (i) assumptions regarding aggregate employment growth set forth in the National Development Plan 1974/75 - 1978/79; (ii) coefficients for high and middle level manpower observed in 1963; (iii) an attrition rate of 1.5 percent p.a. (2.5-5.0 percent for teachers); (iv) projected enrollments in primary and secondary education; and (v) an assumption of no expatriate replacement except for those expected to retire during the period. These projections are subject to conjecture since they represent "requirements", not effective demand. This is especially important to consider for public administration, the sector with 80 percent of total manpower requirements over the next five years. If con- straints on public hiring are imposed by the government current budget, as is likely to be the case, far fewer high and middle level positions will be required. Table 3: TOTAL AND SECTORAL HIGH AND MIDDLE LEVEL MANPOWER REQUIREMENTS 1975 - 1979

Recruitment Manpower Requirements Occupied Replace- Workforce High and Middle ment ('000 Manyears) Level Jobs Present High Middle Sector 1974 1979 1974 1979 New Stock Total Level Level Teachers

(1) (2) (3) (4) (5) (6) (7) (8) (9) (10)

Agriculture 805 865 515 905 390 50 440 60 380 -

Mining 33 29 284 249 - 35 20 0 - - -

Manufacturing 52 67 440 568 128 37 165 50 115 -

Construction 26 33 876 1,112 236 74 310 30 280 -

Electricity, Water, etc. 4 4 219 219 0 15 15 3 12 - Commerce 81 95 697 817 120 55 175 20 155 -

Transport & Communications 28 34 840 1,020 180 70 250 50 200 -

Public Administration & Other Services 50 63 18,235 23,185 4,950 2,550 7,500 600 2,785 4,115

Total 1,079 1,190 22,106 28,075 5,969 2,871 8,855 813 3,927 4,115

Source: Ministry of Development and Mission estimates.

"MO A::U~ IV Page 9

3.06 Demands on the education system to fill needs for post-secondary trained personnel will be lower than total requirements, since a proportion of requirements is expected to be filled by upgrading of persons already employed. It is assumed that 95 percent of high level jobs will be filled by university graduates; the remaining 5 percent, consisting primarily of high level management, must be filled by persons with job experience. At the middle level, a larger proportion will be filled by upgrading of personnel; it is estimated, although somewhat arbitrarily, that 70 percent of middle level positions should be filled by persons with some prior training. For teachers, it is assumed that all new teachers should have some pre-service training. Table 4 shows high and middle level and teacher requirements and supply, by major fields of study: sciences, non-sciences, agriculture and primary and secondary teaching.

Table 4: POST-SECONDARY TRAINED PERSONNEL: REQUIREMENTS AND SUPPLY 1975-1979

Requirements Supply Supply/Requirements %

Jligh Level

Sciences 270 180 66.7

Non-Sciences 450 360 80.0

Agriculture 55 50 90.1

Total 775 590 76.1

'Middle Level

Sciences and Non-Sciences 2,480 965 38.9

Agriculture 265 180 67.9

Total 2,745 1,145 41.7

Teachers

Primary 1,095 2,115 193.2

Secondary 970 1,155 119.1

Total 2,065 3,270 158.4

TOTAL 5,585 5,005 89.6

Source: Ministries of Development and Education and Mission estimates. knNTX IV Page 10

The implications of these figures are discussed more fully in the sections which follow on university, teacher and agricultural education. In brief, the output of high level manpower varies by category from 67 to 90 percent of requirement projections, with supply averaging 76 percent of requirements. The area of most critical shortage is middle level manpower, where supply is estimated to reach only 42 percent of requirements. The projected surplus in teacher out- put is misleading due to proposed changes in the structure of primary education (see para. 3.13). In any case the "excess" supply will be needed to begin replacing unqualified teachers. Total supply of post-secondary trained per- sonnel will be 5,005 over the five-year period, or about 90 percent of require- ments.

3.n7 The lack of data on skilled and semi-skilled manpower requirements should not draw attention away from the importance of this skill level for modern sector growth. Given typical coefficients of high to skilled level man- power, the absolute number of skilled persons required will be considerably higher than that for high level persons. Yet enrollment at the University of Sierra Leone exceeds that of vocational and technical schools, implying the likelihood that shortages could be most severe at the skilled level.

3.08 Secondary Education: When attempting to match manpower requirements and supply, secondary education is a pivotal point of the training system since the first few years of secondary school provide a foundation from which students branch off into specialized training or enter the job market. As such secondary schooling is responsible for initial training of future skilled manpower (those who complete 1-3 years of secondary school and then proceed to vocational/ technical training programs or on-the-job training), middle level manpower (those who complete 4-5 years of secondary education and then take some form of post-secondary training on or off the job) and high level manpower (those who pass the '0' level exams and are admitted to the university). Although the first IDA education project is directed toward diversifying secondary curricula, they are still highly academic and do not prepare students for skilled or even middle-level training programs or occupations. The only option facing students is to try to complete the five-year program and pass enough '0' level exams to enter the university. Because such a small proportion is passing these exams, it requires almost 51 student-years to produce one graduate. 1/ When translated into expenditure terms, the cost per graduate is Le. 4,230 (US$5,080).

3.09 If the secondary school system were geared to preparing students for a wide range of jobs, specialized training, etc., these figures would be less alarming -- and might indeed be less relevant than cost estimates for students completing five or even three years of secondary education. But to the extent that secondary schools are oriented more or less exclusively towards '0' level ANNEX IV Page 11

achievement and inability to pass denotes personal failure, the figures are both relevant and disturbing. Broadening of secondary school curricula and addition of options like basic accounting and management, (either in day or evening classes and during or following secondary studies) might facilitate entrance of secondary school leavers into gainful employment. It has also been suggested that secondary education be restructured so that the first three years provide a diversified common core followed by a series of alterna- tive specialized programs, all of which would incorporate applied subjects adapted to employment needs. Encouraging students to follow other than uni- versity preparatory courses of study will require new means of evaluating students' performance to replace the 'O' level examination as the sole index of achievement.

3.10 Vocational and Technical Education: Despite the apparent shortages of technically trained manpower given the very small number of vocational and technical school graduates each year, there are indications that many graduates, particularly those in industrial training, have difficulty finding employment. This is due primarily to a shortcoming common to many training programs: instruction is overly theoretical both at vocational/technical training centers and in vocational streams of secondary schools; students receive almost no practical training. There is very little liaison between employers and training institutions regarding curricula or job placement, and few of the teaching staff have had experience in commerce or industry. The quality of the students is also below average since vocational and technical training is viewed by students, parents and teachers as second-rate education. The low prestige awarded to technical education is reflected in the government current budget; less than 2 percent of education expenditure is allocated to technical training.

3.11 Efforts are being made to expand and adapt training to employmnent needs through the creation of an advisory committee composed of industry and government representatives, the expansion of training facilities under the IDA project, and the launching of an ILO/IJNDP project to assist development of vocational training. Future development of vocational/technical education should include the following objectives:

(a) an increase in the budgetary allocation for technical education;

(b) curriculum revision in general secondary schools to introduce students to concepts of technology, and the training of teachers capable of introducing the new curriculum;

(c) an overhaul of the technician courses offered at the Freetown Technical Institute and a greater industrial involvement in the general policies;

(d) the conversion of the trade centers to Vocational Training Centers as part of a broader scheme for apprentice training being consider- ed by the Government, (these centers would cease to be part of the formal education system and wouLld instead be administered jointly by local industry and the ministry responsible for apprentice training); and ANNEX IV Page 12

(e) the consolidation of diploma courses in engineering being introduced into the engineering school at the university.

The Government should also consider means of fostering expansion of in-service training and general increase in opportunities for on-the-job upgrading of personnel in order to meet requirements for skilled and middle-level personnel.

3.12 University education: Future development of the University of Sierra Leone is handicapped by the lack of manpower statistics necessary to determine the optimal rate of expansion of the various faculties. Assuming enrollments grow by 5 percent p.a. over the decade, output from the university plus stu- dents returning from foreign study is expected to meet roughly 76 percent of requiremerits (Table 4). Hlowever, these requirements (nearly 80 percent of which fall within public administration) are based on trends observed over the past decade, a period of rapid growth of government services. Because budg- etary constraints will probably curb growth of government employment, effec- tive demand for high-level manpower, particularly in "non-sciences", will un- doubtedly be lower than projected "requirements". University enrollment growth should therefore be held below 5 percent p.a. to avoid a surplus of university graduates. Through its sponsorship of the National Education Review, the University of Sierra Leone has demonstrated its desire to ally itself with national development efforts. It is presently investigating expansion of training opportunities for middle-level personnel in manpower short areas such as agriculture, health sciences, engineering and business administration. Any expansion of facilities will have to be coupled with careful scrutiny of university finance, since the university already absorbs 30 percent of current education expenditure. Students tend to be more heavily subsidized at this level than at lower levels of the education system in spite of the substantial private benefits university graduates can anticipate in terms of life-time earnings.

3.13 Teacher education: The surplus in output of primary teachers shown in Table 4 is not significant since it results from plans to raise the primary entry age from 5 to 6 in 1976, at which time there will be little or no intake into grade 1. Thiz will in turn reduce total primary enrollments and result in a negative requirement for teachers for that year. The surplus will help in reducing the proportion ot both unqualified teachers, which presently number 3,300 or 60 percent of the primary teaching force, and of expatriate teachers at the secondary level. During the 1980's, a sufficient number of teachers should be available at both primary and secondary levels to meet all new requirements and replace most unqualified and expatriate teachers. In fact, secondary teacher college enrollments should be stabilized roughly at present levels to prevent oversupply in the 1980's. This will certainly be the case if growth of secondary enrollments is curbed, as is being proposed by the Education Review. More difficult than producing an adequate number of teachers will be the task of providing a teacher training that is adapted to anticipated changes in the structure and curricula of primary and secondary education. A teacher of basic education will need to function as a community leader and will therefore require a broader form of training than primary teachers have to date ANNEX IV Page 13

received. Secondary teacher training should also be diversified. Furthermore, the distribution of output between different secondary teacher training programs should be more closely coordinated with the level of training required. At present, the three year Higher Teacher Certificate program is intended to pro- duce teachers for lower secondary school, while the four or five-year univer- sity teacher education programs produce teachers for the upper secondary grades. Although only 25-30 percent of all secondary students are enrolled in the upper grades, over half the production of secondary teachers will be from university programs. The Government may therefore wish to revise the projected distribu- tion of enrollments between the teacher college and the university to increase output of lower secondary teachers relative to that of those who are trained for teaching at upper grades.

3.14 Agricultural education: To date, university level agricultural education has received more serious attention in Sierra Leone than intermediate level training (for the extension services) or farmer training. At the farmer training level, three rural training institutes or centers have been established to provide a low-cost post-primary vocational program in agriculture, building trades and home economics. While the training has generally been judged satis- factory, the unrewarding nature of village farming has not encouraged students to return to their villages to take up agricultural production. Future training of young farmers should be for shorter periods of time, in order to keep them more closely attached to their own village farming situation. The centers could also be used for agricultural extension education offering non-credit short courses (a few days) in cooperation with other agricultural institutions. Likewise, these locations could be used more intensively for in-service training of all rural development field workers (agriculture, health, social welfare, cooperatives, etc).

3.15 Specialized vocational training programs such as those provided by the Department of Cooperatives in the Eastern Province, with their presently limited staff and students, should be brought to either Kenema or Njala in order to improve the level of training and reduce the overhead costs. A one-to-two year training course for cooperative inspectors could be linked to other certificate work offered at Njala by the Faculty of Agriculture. Improved training programs for cooperative members and staff could possibly bring the Department of Cooperatives closer to the agricultural work being conducted by other agencies and institutions, especially the Ministry of Agriculture and Natural Resources.

3.16 Agricultural science is now offered in some secondary schools but it has been primarily aimed at affording the student an opportunity to pass the O'level examination rather than necessarily preparing him for a vocation in agricultural production or related business. A joint farm-secondary school was established in 1967 but was unsuccessful due to social and technical problems related to training terminal and agricultural O'level oriented students at the same institution. These problems included: (i) a shortage of skilled and experienced agriculturalists to serve as instructors; (ii) a status conflict ANNEX IV Page 14 between terminal and regular secondary students since the terminal program tended to be filled by students who had been rejected from more academic pro- grams; and (iii) the problem of operating on different school schedules and calendars. Attempts are now being made to give the academic agricultural programs a more practical and comprehensive orientation.

3.17 Training of extension agents, professional agriculturists and agri- cultural educators is provided at Njala University College in its certificate and degree programs. Because budget constraints have limited the Ministry of Agriculture's absorptive capacity, it employed less than 20 percent of Sierra Leonean graduates from Njala surveyed in 1971. Nearly three-quarters of the graduates were working as teachers, either at Njala or for the Ministry of Education. Degree holders have reported having the greatest difficulty of all graduates finding jobs related to their field of study, partly because they aspire to fairly high-level administrative or research posts. This phenomenon may explain why the output of high level agricultural manpower falls only slightly short of requirements during the last half of the decade, despite the apparent need for a rapid increase in trained manpower given the state of agricultural development. Although the projections take into account the rapidly increasing demand for agriculturists as a result of anticipated higher levels of investment, agriculture will still be able to absorb probably no more than about ten degree agriculturists per year. The greatest manpower constraint is likely to be the shortage of persons trained in extension work, particularly if rural development efforts are given the much needed impetus. A possible IDA-financed rural development project in the Northern Area would also generate additional needs. However, there has been some feeling in the Ministry of Agriculture that certificate holders do not possess enough applied training to become effective extension agents. Closer cooperation is required between the Ministry of Agriculture and Njala to ensure that the certificate program is adapted to extension needs. Furthermore, if certificate students were given more exposure to business techniques, they might be encouraged to become agricultural entrepreneurs instead of seeking administrative careers.

Financing Future Growth and Reform of the Education System

3.18 _rojected enrollment growth: Preliminary projections of enrollment g,rowth emerging from hie Education Review indicate determination on the part of Sierra Leonean educators to broaden the access to education while at the same time remaining below financial ceilings dictated by a relatively modest projection of budgetary resources (Table 5). ANNEX IV Page 15

Table 5: PROJECTED ENROLLMENTS BY LEVEL 1970/71 - 1990/91

1970/71 /1 1980/81 1990/91 Annual Rate of Growth 1970-1980 1980-1990

Primary 166,110 208,800 417,600 2.3 7.2

Community Education - 610 136,500 - -

Secondary 33,320 51,600 66,500 4.5 2.6

Technical 925 1,490 2,725 4.9 6.2

Teacher Training 1,075 2,810 4,930 10.1 5.8 University

- University of Sierra Leone 1,310 /2 1,770 1,970 3.1 1.1

- Foreign Study 1,160 /2 665 420 -5.7 -4.7

Source: Draft final report, Sierra Leone Education Review, May, 1974. /1 Actual enrollments. /2 1972/73 enrollments.

These projections are more optimistic than extrapolation of past trends would yield, taking into account the system's ability to expand primary and community education and to limit the growth of enrollment in secondary and university education where public demand is very strong. If enrollment patterns were to continue to grow at current rates, primary enrollment growth would do little more than keep pace with population growth. The proportion of the age-group enrolled in primary school would remain roughly at 34 percent instead of ris- ing to almost 60 percent as targeted. On the other hand, secondary and univer- sity enrollments would be at least 50 percent higher than those projected in Table 5. Educational planners hope that the creation of community education centers, aimed at adolescents and adults, will reduce pressures on secondary enrollment growth. However, if community education is to be designed largely for young people with no or incompleted primary education, as is initially planned, the number of primary school completers pressing for entry into secondary school will continue to grow unabated.

3.19 Projected expenditure: The Education Review has calculated enroll- ment projections on the assumption that growth of current education expenditure will be held at 4.5 percent p.a. in real terms. The projected distribution of current education expenditure is expected to shift in favor of the lower levels of the education system, primarily at the expense of higher education. ANNEX IV Page 16

Table 6: DISTRIBUTION OF PROJECTED CURRENT EDUCATION EXPENDITURE 1973/74-1990/91 (in thousands of Le constant 1973/74 prices)

Expenditure Proportion of Education Budget 1973/74 1990/91 1973/74 1990/91

Administration 708 1,100 4.4 3.2

Primary 4,830 12,152 30.0 35.4

Community Education - 1,755 5.1

Secondary 4,025 7,475 25.0 21.8

Teacher Training 1,401 4,030 8.7 11.8

Technical 300 1,090 1.8 3.2

Teaching Aids 48 500 0.3 1.5

University 4,798 6,175 29.8 18.0

- University of Sierra Leone (3,622) (5,681) (22.5) (16.6)

- overseas scholarships (1,079) (354) (6.7) (1.0)

- library grant (97) (140) (0.6) (0.4)

Total 16,1-in 34,277 100.0 100.0

3.20 To remain under these budgetary ceilings, educational planners will have to control both enrollment growth and costs per student. If, for example, secondary and university enrollments are allowed to grow at their present rates instead of those projected in Table 5, education expenditure could exceed 35 percent of the government current budget by 1990, -- assuming that total current expenditure growth would average 4.5 percent a year in real terms until 1990. Moreover, holding the line on unit costs will be difficult given teacher demands for higher salaries and the Government's desire to increase the equipment provision per student. Yet expenditures projected in Table 6 assume that unit costs will remain virtually constant; only at the secondary level are costs per student expected to rise much, but even there the unit cost increase is projected at less than one percent p.a. ANNEX IV Page 17

3.21 A number of measures could help the Government to broaden the coverage of the education system without putting undue pressure on the education budget.

Mi) Reducing the length of primary education would free more places for additional entrants. The Education Review has proposed reducing the program from seven to six years. The length of the program will have to be further reduced if the Government wishes to reach more than 60 percent of the age-group by 1990;

(ii) Community education should have a strong self-help component. Local communities should participate in construction and maintenance of buildings and in monitoring students and programs;

iii) Local industry should be encouraged, possibly through an apprentice- ship tax, to become more involved in vocational training. Firms with training schemes could be subsidized from the tax revenues;

(iv) Fee and scholarship policy, particularly at the university level, should be re-examined to better align costs with benefits of education. A modified student loan system for university studies would not only reduce costs to the Government but could be used to encourage students into manpower-short fields of study.

(v) Programs at all levels could be made more cost effective through better utilization of teachers and facilities. At the primary level, the teacher-pupil ratio should be raised; in secondary education, improved planning of facilities would allow small schools within a given radius to share laboratories, workshops and other specialized facilities.

Improving the system's efficiency requires more than cost-saving measures; one of the most important means of assuring the efficient use of resources allocated to education will be by relating the output from the education system to Sierra Leone's employment requirements. These measures to improve both the internal and external efficiency of the education system will help to rationalize the kinds of education provided to those already in, and benefiting from, the sys- tem, and to fuel funds for use in extending learning opportunities to a larger proportion of the population which has so far been relatively untouched by its benefits.

ANNEX V

TRANSPORTATION

Table of Contents

Page No.

CONCLUSIONS AND RECOMMENDATIONS ...... i-iv

INTRODUCTION ...... 1

I. GENERAL OVERVIEW OF THE SECTOR ...... 2

Early Developments ...... 2 Recent Developments ...... 2 The Transport Sector in 1974 ...... 3 Administration Responsibility and Policy Coordination ...... 4

II. ROADS ...... 6

Road Network and Traffic Density ...... 6 Highway Administration ...... 6 Road Construction Costs ...... 7 Road Maintenance ...... 8 Feeder Roads ...... 9

III. ROAD TRANSPORT ...... 10

Vehicle Fleet and Traffic Growth ...... 10 Traffic Volume: Composition and Directions ...... 11 Structure of Road Transport Industry ...... 12 Road Transport Corporation ...... 12 Vehicle Operating Costs and Transport Rates and Fares ...... 14 Road Transport Policy ...... 15 Road Transport Taxation ...... 15

IV. RAILWAYS ...... 17

Phasing-out of Sierra Leone Railways ...... 17 DELCO Railway Line ...... 18

V. PORTS AND SHIPPING ...... 18

Ports ...... 18 TABLE OF CONTENTS (continued) Page No.

VI. AIRPORTS AND CIVIL AVIATION .19

VII. GOVERNMENT'S TRANSPORT DEVELOPMENT PLAN 1974/75-1978/79 .20

General .20 Roads and Bridges .21 Road Transport .23 Ports .23 Airport .23 Summary .24

VIII. TRANSPORT DEVELOPMENT PRIORITIES .24

Roads .25 Ports and Shipping .28 Airports and Aviation .28 Summary Investment Program .29 Policy Issues .29

Appendix A: TABLE OF CONTENTS OF MAIN REFERENCE SOURCES

Appendix B: ECONOMIC BENEFITS EXPECTED FROM THE ROADS PROPOSED FOR FEASIBILITY AND ENGINEERING STUDIES

CHART: Proposed Ministry of Works Organization MAP ANNEX V Page i

CONCLUSIONS AND RECOMMENDATIONS

1. In the absence of a permanent government body to deal with overall transport planning and coordination, the development of transport infrastruc- ture is programmed by the Ministry of Planning in the context of its prepara- tory work for the current five-year Plan. Transport policy is intended to be the responsibility of the Road Transport Board, but this body lacks the neces- sary competence to make it active in the field and needs to be strengthened before it will be able to deal effectively with matters pertaining to road transport policy. The need for coordination of transport policies of different sub-sectors had diminished since the railways ceased operations but it is still desirable to have a body which can make an overall assessment of transport matters. It would appear advisable to pool scarce human resources and create a single transport pol'icy unit within the Ministry of Planning (paras. 1.14, 1.15 and 3.28).

2. Most of the public sector investment has been for improvements of infrastructure, and the network of modern roads has considerably expanded over the past few years. It is true that many more roads are needed, and the temptation is great to over-expand investments in roads, an area where absorptive capacity exists. However, with the limited resources available, the emphasis on transport development has to be reduced if investments are to be implemented in those sectors which can produce the needed foreign exchange earnings and/or savings (para. 8.20).

3. The list of roads selected for construction under the Plan is con- sistent with the intentions of the Land Transport Survey and the long-term investment programs recommended. However, for many of the roads identified in the Survey, no feasibility and engineering studies have been carried out and execution of proposed investments in the first two years of the Plan threatens to be seriously impaired. Reduction of the proposed program will therefore be inevitable, and the priority and urgency of each of the projects should be thoroughly investigated in order to determine their relative im- portance and priority. This review should also take into account the shifts of emphasis in public investment following from the general economic outlook as discussed in the Main Report, i.e., a period of financial austerity calling for the strictest economy and an acute sense of priorities in selecting development projects.

4. Of the road construction and improvements projects contained in the most recent project list (January 1974) of the Ministry of Planning, two are already ongoing, and financing for two others has been committed. The status of the other projects is summarized as follows:

(i) Makeni-Kabala road (76 miles), a frontier development type project which does not appear to be appropriate in a period of financial strain and structural problems and is therefore considered premature; ANNEX V Page ii

(ii) Kenema-Sefadu road (62 miles) will not experience very dynamic growth once the diamond industry starts stagnating, and this project can be classified as low priority;

(iii) In place of the above road, it is proposed to improve the road link between Kenema and the Kailahun District. The area beyond Kenema is the most agriculturally productive in the country, and the main provider of foreign exchange earnings in the sector. Development of the region should therefore be given priority (an IDA-financed agricultural development project is already underway). A feasibility study should be undertaken to determine the optimal alignment for the proposed road.

(iv) Improvement of the road link between Freetown and Waterloo remains an important element even within a reduced investment program. Feasibility and preliminary engineering studies done by consultants indicate a high rate of return in spite of high costs per mile of construction. However, the alignment proposed needs careful study in many respects, and the urban section of the project is presently under review in the Bank. The Mission recommends that this project be limited to the Eastern Branch (2.3 miles) of the urban section.

(v) The road section Waterloo-Mile 47 (27 miles) carries almost all traffic between the hinterland and the capital. This road section will become a serious bottleneck once improvements on the three connecting roads are completed. Preliminary calculations show a high first-year benefit return for improvement and reconstruction of the road to Class I standards, and the Mission recommends that a feasibility study and subsequent detailed engineering be carried out.

(vi) The Songho-Moyamba road is the only classified road branching off Freetown-Mile 47. Its upgrading to Class II standards would suffice for the transport of agricultural production and passengers in the region; a U.K.-financed reconnaissance study is underway, but this road should only have second-order prior- ity. The priority of this road would have to be reconsidered, however, if the rutile deposits at Rotifunk were to be exploited.

(vii) The road from Mile 66 to the Guinea border is justified primarily by its expected contribution to opening up the most densely populated agricultural area in the country which is one of the foremost rice-growing areas. The Mission recommends that feasibility and detailed engineering studies be initiated ANNEX V Page iii

so as to allow the start of road construction immediately on completion of the first of two bridges across the Scarcies River which the People's Republic of China has agreed to build.

(viii) The Mano River bridge, to be financed by the African Development Bank, needs to be complemented by a road linking Liberia with the main centers of Sierra Leone. This connection gains particu- lar significance in view of the recent establishment of the Mano River Union. In selecting the alignment of such a road, con- sideration should be given to its potential development effect on the Pujehun District of Southern Province.

5. Road construction costs are high compared to other countries in West Africa, partly because of topographical difficulties, but more so because most of the works are financed by bilateral loans and suppliers' credits, and. because of the absence of competition and the fact that there are no domestic enterprises capable of undertaking major construction. The Ministry of Works has attempted to lower costs by using a type of "management contract" involv- ing a special invoicing procedure whereby plant costs of the works are paid on the basis of unit prices and bills of quantities, and direct costs (e.g., wages, fuel, tools and materials) are reimbursed on the basis of receipted bills; however, control of the latter item is very difficult, particularly when the contractor is simultaneously engaged in other projects. The Mission suggests that, in order to keep road construction costs as low as possible, the Bank should recommend to MOW that building and upgrading of roads should be effected through international competitive bidding, and contracts should be established on the basis of unit prices/bills of quantities, plus a lump sum for mobilization, including management fees (paras. 2.08 - 2.12).

6. A feeder road d7evelopment effort will have to be undertaken to match the increased emphasis on agricultural production. One project by the CARE organi- zation and USAID started in 1973, under which about 400-500 miles annually are to be constructed; which may be an overestimate; also, the UK Government has expressed its readiness to finance a feeder road program geared preferably to areas of ongoing and planned IDA agricultural projects. Successful execution of these feeder road projects, assuming adequate maintenance, will go a long way towards meeting the country's needs until the end of the decade. Over the longer term, however, it would be desirable to conduct a systematic review of feeder road problems which should include details of past construction programs and of maintenance arrangements, and then establish priority areas and standards for further development of these roads. The Government has earmarked funds for such a study in its 1973/74 development budget, but no arrangements have so far been made for its execution.

7. The Road Transport Corporation has'made considerable progress over the last two years but'still does not pay its way. The Mission recommends that RTC do not pursue its experiments with freight haulage but concentrate on passenger transport. Growth potential appears to be best in inter-city trans- port. If the company's investment and replacement prograDm is geared to the ANNEX V Page iv profitability of each individual activity it may break even in the near future, particularly if government interference in rates policy is kept to a minimum.

8. A more rational use of the vehicle fleet could be achieved with the introduction of organizational improvements into the road transport industry. However, a pre-condition to effecting any such improvements would be the undertaking of a systematic review of the economic conditions under which road transport operates with particular emphasis on freight haulage. The results of such a survey could, for example, help the Government to start fully utilizing the powers of the Road Transport Board, recommend to its agencies the level of rates to be applied for freight haulage, and review taxation of the industry. It would also allow studying the relationship between RTC and private operators, and eventually regulating urban transport in the Freetown area (para. 8.22).

9. In spite of very significant traffic increases at the Lungi inter- national airport over the past five or six years, its profit and loss account shows a debt balance of about one-quarter of the revenue. To improve this financial situation, it is recommended that the tariff policies at the airport be revised in order that revenues cover at least operating expenses. Particularly, it will be necessary to increase landing charges which are now about one-third less than those at international airports in neighboring West African countries. The short-term development needs of Lungi airport are a modern approach lighting system and an instrument landing system. Construction of a parallel taxiway and a terminal area on the north side of the airport can be delayed until the eighties without normal operations being affected (paras. 6.01 - 6.03).

10. Major expansions of the Freetown port have been completed over the last five years. Only secondary port investments will be required in the near future. These investments could possibly include construction of transit sheds and warehouses for two berths, and the purchase of handling equipment. Before this work is started, however, a thorough analysis should be made of handling and storage practices at the port (including rates charged to users), so as to determine to what extent organizational improvements could increase capacity and thereby defer the need for these investments. ANNEX V Page 1

INTRODUCTION

The purpose of the present review is as follows:

- to update the Bank Group's knowledge of the transport sector, and to summarize information that has recently become available;

- in particular, to assess transport development requirements after phasing-out of the railways;

- to analyze the draft of the National Development Plan 1974/75 - 1978/79.

The basic source for the information presented in this report is a Land Transport Survey carried out over 1966-70 with UNDP financing and the Bank acting as Executing Agency (para. 1.05); the survey was then updated and complemented by a series of pre-feasibility studies commissioned and financed by the Government. For hi-hways, the most recent available data comes from a 1973 consultant's report on the highway organization and main- tenance program, which contains data on road maintenance and road user costs, traffic densities, and a road inventory.

Following from the Land Transport Survey, the Bank Group in 1970 helped finance a First Highway Project (which to date is the only operation in the country's transport sector) consisting essentially of:

(i) construction of a new 43-mile highway between Bo and Kenema, two of the largest towns; and

(ii) technical assistance and mechanical equipment for the highway maintenance section of the Ministry of W4orks (MOW).

Road construction started only in early 1973 following difficulties encoun- tered at the procurement stage, but good progress is now being made, and the works are expected to be completed by mid-1975. Reorganization of M1O and improvement of road maintenance is now proceeding satisfactorily. ANNEX V Page 2

I. GENERAL OVERVIEW OF THE SECTOR

Early Developments

1.01 The opening-up of the interior of the country began at the turn of the century with the construction of the Sierra Leone Railway (SLR), and the railway remained the backbone of the entire transport network until the sixties.

1.02 The main line of the railway from Freetown to Pendembu (227 miles) bridged all the principal rivers south of Freetown, while the sideline from Bauye to Makeni (83 miles) also crossed the Rokel River to the north, there- by opening up the entire (then) protectorate (see Map). Road development started with feeder roads to the railway-line, running parallel to the rivers on the main line and perpendicular to the rivers on the sideline. Only as from 1930 connections were developed between several of these feeder roads; also the first roads into territory not linked to the railway zone of influence were built at that time (to Kabala and Sefadu).

1.03 Until World War II, there was no road link between Freetown and this elementary network up-country. During the war this link was finally established, but up to 1950 there existed no bituminized roads outside the Western Area, and all rivers had to be crossed by ferries. The feeder func- tion to the railways was still the dominant feature which resulted in lengthy itineraries for long-distance routes (for instance Freetown-Kenema). -Build- ing of bridges and bituminization of roads started in the fifties', but bridges simply replaced ferries and few attempts were made to realign existing roads into a more rational pattern.

1.04 This became a major problem when the fifties' in Sierra Leone, as in other countries, brought an intensification of road competition which increasingly drained traffic from the railways. In the end, this rationally aligned mode of transport carried only a small fraction of total freight and passenger volume (see Statistical Appendix, Table 3.4), while the bulk of the traffic volume traveiled on under-developed and round-about road itineraries between the Freetown Peninsula and the interior.

Recent Developments

1.05 The Government approached the United Nations Development Program (UNDP) which agreed to finance an overall study of the transport situation and transport development priorities under a Land Transport Survey. Its main recommendations were:

to close down the Sierra Leone Railway, whose freight and passenger volume had continued to decline sharply throughout the sixties'; ANNEX V Page 3

to embark upon a long-term (10 years) road construction program in order to effectively replace the railway, and to build a highway network that corresponded to the needs of the country.

The Government has accepted all these recommendations. In implementing them, Sierra Leone has been assisted by UNDP, the Federal Republic of Germany, the United Kingdom and the Bank Group (para. 1.07).

1.06 Sierra Leone Railways have ceased commercial operations, and are now exclusively engaged in dismantling the rails and sleepers and hauling them to the port. The only remaining railway in the country is the track from Marampa to Pepel (56 miles) which is used for the haulage of iron-ore (para. 4.05).

1.07 The following stages of the basic network recommended by the Land Transport Survey have been built over the last four years (see Map):

- the entire distance from Lunsar through Makeni and Matotoka to Sefadu (about 113 miles) has been constructed with assistance from the Federal Republic of Germany; the last section of this road was opened to traffic in April 1974;

- the section Taiama-Bo (32 miles) has been built with the assistance of the United Kingdom: this road was also opened to traffic in April 1974;

- the adjoining section Bo-Kenema (43.5 miles), linking the second and third largest towns of Sierra Leone is being built with the assistance of the Bank Group;

- finally, the Ministry of Works built a new laterite road from Bauye to Yonibana (37 miles), in order to provide a substitute for the side-line of the railway (Bauye-Makeni) which was phased out in 1970.

1.08 In the 1969/70 - 1973/74 period, Sierra Leone has invested some Le 25 million (US$30 million) in the road network, or Le 5.0 million annually on average (see Statistical Appendix Table 3.5). With 42 percent of total development expenditure in this period, roads were by far the largest single item. The port of Freetown and Lungi airport were other major items.

The Transport Sector in 1974

1.09 With aviation and inland navigation playing a very minor role - which is further reduced by the improved road transport facilities - the inland transportation systen is now largely identical with the road systenm and the road transport industrv. The second important element of the trans- port system is the port of Freetown. ANNEX V Page 4

1.10 There is now a network consisting of 643 miles of paved roads and 3,405 miles of classified gravel roads (see Statistical Appendix Table 3.6). The focal point of the transportation network is Freetown, the capital and main port. A poorly designed and maintained paved road built during the forties' leads out of the peninsula on which Freetown is located. At 47 miles from Freetown, the road divides into two trunk roads that cross the central zone of the country from the west to the east; the northern road ends in Sefadu, the heart of the diamond mining area, the southern one in Kenema, the growth centre of Eastern Province. The basic idea of the Land Transport Survey was to construct these two trunk roads, which are now near completion, and to link them by a high--standard road connection Sefadu-Kenema. This connection has not yet been built. From the trunk network, secondary roads branch off towards the more remote provinces in the north, east and south.

1.11 This systemn accords with the present geographical distribution of economic activities and the flows of traffic generated by them: the essence of the system in its present state is the linkage of the capital with the diamond area in the Kono district, and with the growth center of agricultural production in the Kenema district. Links with the rice and palm-oil producing areas in Kambia/Port Lol.o districts to the north and Moyariba/Pujehun districts to the south of Freetown are less adequate, but in the case of the former area, the effect is mitigated by the relatively short distance from Freetown. Since secondary roads built before the sixties were all centered on the railway which now has been phased out, one shortcoming of the present system is the inadequacy of road links to some areas previously served by the railway (para. 4.04).

1.12 Sierra Leone has four ports, of which three are managed by the Port Authority while the iron-ore port of Pepel is owned by the Sierra Leone Development Company (DELCO). Freetown has the best natural harbour on the West Coast of Africa. In the late sixties an extensive development pro- gram was carried opt. The port is now fully adequate for the cargo handled (nearly one million tons including fuel), and capacity is ample for the next decade except for handling and storage facilities. The two other ports, Bonthe at the Sherbro estuary and Sulima near the Liberian border are of marginal importance only (paras. 5.01 - 5.05). Inland waterways and coastal shipping, while of some importance in the early stage of the country's development, have been declining as road transport became widely available.

1.13 Domestic air transport is ensured by Sierra Leone Airways, a small national company managed by British Caledonian Airways. Passenger transport volume is stagnating, probably due to the relative decrease in demand for domestic air services as roads are improved.

Administration Responsibility and Policy Co-ordination

1.14 The responsibility for the various transport subsectors is divided between the Ministry of Transport and Communications (for road transport, ports; and civil aviation) and the Ministry of Works (for road ANNEX V Page 5 construction and maintenance of roads and airfields). There is no government body dealing with overall transport planning and co--ordination on a permanent basis. For the time being, the Development Plannithg Unit in the Ministry of Planning handles transport infrastructure planning within the framework of the Five Year Plan 1974/75 - 1978/79.

1.15 Transport policies are supposed to be the responsibility of the Road Transport Board (para. 3.26), but this body is not active in the field of policy making nor does it have the necessary competence. In the course of the proposed reorganization of the Ministry of Works a road construction planning and programming unit is to be created. The need for coordination of transport policies of different sub-sectors has certainly diminished since the railways ceased operations. Nevertheless, there is still need for a body that can assess transport matters from an overall point of view. It seems advisable, therefore, to pool the scarce human resources and create only one transport policy unit within the Ministry of Planning. ANNEX V Page 6

II. ROADS

Road Network and Road Traffic Density

2.01 Analysis of the road network of individual Provinces and Districts in relation to both surface area and size of population shows that different areas are fairly equally equipped with roads (both primary and secondary), Particularly with respect to the mileage per capita (see Statistical Appendix, Table 3.7). In comparison with West African countries of similar area and population the road network densitv (1.5 mile per 1,000 inh. and 150 miles per 1,000 sq.m.) is quite satisfactory (Dahomev: 1.0/62, Togo: 0.6/58, Senegal: 1.3/73).

2.02 Road traffic densitv on individual sections of the network is sholwn in the Statistical Appendix, Table 3.8 for 1966 and 1973, with some preliminary results for 1974. Traffic densities of 250-500 are the most typical for the main road sections beyond Mile 47, rising to nearly 1,000 in the vicinity of the major towns (Kenema, Sefadu) and above 1,000 on the main artery from Mtile 47 to Freetown (see also Map).

2.03 It aDpears that most of the traffic has its origin or destination in the capital, which is the focus of the transport system. Apart from the marginal ports in Bonthe and Sulima, Freetown is the only port for general cargo, and almost all of the country's imports and exports travel the Freetown- lile 47 road. The almost complete absence of road links with neighboring countries reinforces the strategic importance of the port within the transport system. This fully explains the heavv suburban traffic (3,500 vehicles a day) encumbering the narrow road between the city of Freetown and the Kissy-W4ellington industrial area outside Freetown.

2.04 The composition of extra-urban road traffic according to categorv of vehicle is shoxwn for 1966 and 1973 in the Statistical Appendix, Table 3.9. DTe salient feature is the decline in the share of trucks and buses while the share of cars has correspondinglv increased. Unfortunatelv no breakdown exists for the category "truckcs and buses," and it cannot be established whether the share of trucks has fallen within this category, reflecting the relative stagnation of freiRht movements and the dynamic nature of passenger transport. iiighway Administration

2.05 The Ministry of lTorks (MOW) is responsible for enpineering, construc- tion, maintenance and administration of all Drimary and secondary roads, and since -January 1972, of all District Council roads. It is expected that in future some or all of the feeder roads will also be handed over to the M.OW for continued maintenance. The MOW is also responsible for buildings and water supply. ANN EX V Page 7

2.06 A report prepared by Italconsult had stressed the necessity to reorganize the MOW, and in particular the highway maintenance section. The first highway project financed jointly by the Government, UNDP and the Bank Group comprised technical assistance for highway organization and maintenance. Main proposals for reorganization of M,O0W comprise of:

(i) creating a separate highway maintenance department headed by a chief engineer; the previous or-anization had only one highway department grouping engineering, design, construction and maintenance;

(ii) increasing the engineering staff and improving the administrative structure of highway maintenance on the regional level;

(iii) opening two additional regional districts at M4ile 91 and Lungi headed by area engineers assisted by a highway engineer respon- sible for road maintenance; it is planned to create two additional districts at Kono (Sefadu) and Koinadugu (Kabala) later on.

These proposals have been approved by the HAOW, and are being implemented. Also, new rational procedures for budgeting, programming and accounting will be introduced during 1974. Also the MOW has been strengthened with new equip- ment purchased under the First Highway Project (IJS$1.5 million).

2.07 The M01 employs more than 4,000 staff, but suffers from serious shortages at the upper and middle echelons (see Statistical Appendix, Table 3.10). The budgeted slots for each category of personnel are nominally filled, but the majority of the staff have not been trained for their respective positions. The shortage of engineers and technicians in the government agen- cies results primarily from low salaries. The MOW recognizes that its long- term staff needs can only be met through an extensive education and training effort and an improved salary policy. Proposals for an efficient training program have been worked out, and Government has already recruited some addi- tional hiiRhwjay technicians. Attracting more teclhnicians and engineers from the private sector and from abroad bv competitive salaries will, however, be necessary if the skill shortage is to be overcome.

Road Construction Costs

2.08 In spite of relatively economicAl design standards, construction costs are high compared to those in other countries in Tlestern Africa. The Bo-Kenema and Taiama-Bo roads under construction will cost about Le 218,000 per mile with taxes and supervision (US$260,000). The 1970 appraisal esti- mate for Bo-Kenema was about US$160,000 per mile.

2.09 High construction costs are partly due to the topographical obstacies which exist in Sierra Leone: rolling terrain and major river crossings requir- ing important earthworks and numerous large bridges. In Ivory Coast, however, ANNEX V Page 8

the Man-Duekoue-Issia road which is under construction in a comparable terrain but with a thicker pavement than the Taiama-Bo-Kenema road, will cost less than US$200,000 per mile including supervision.

2.10 A second reason for high road construction costs is that most of the highway construction in recent years has been financed by bilateral loans from the F.R. of Germany (US$23 million) and the UK (about US$6 million), and suppliers' credits (Italy). The absence of competition and the non-existence of domestic enterprises capable of undertaking major works has led to high costs, and has given a foreign contractor a quasi-monopolistic position.

2.11 In an attempt to lower costs, the MOW had taken resort to a hybrid type of contract termed "management contract." The invoicing procedure of the management contract is the following:

(i) plant costs of the works (including amortization, overheads and profits) are paid on the basis of unit prices and bills of quantities (70 percent of total cost), which is easy to control and supervise;

(ii) direct costs which include wages, fuel, tool and materials, freight and miscellaneous (30 percent of total cost), are reimbursed on the basis of receipted bills.

2.12 Control of the second item is very difficult, particularly when the contractor is simultaneously engaged in other projects in the same country. Therefore, it would be advisable that future construction and upgrading of roads be based on international competitive bidding with con- tracts established on unit price/bills of quantities, including a lump sum for management fees, in order to keep costs as low as possible.

Road Maintenance

2.13 The road inventory conducted in 1972 indicated a need for major rehabilitation and improvement works on much of the road system before normal and periodic maintenance operations can become effective. About 1,650 miles require reshaping of roadway and ditches and reballasting with laterite mate- rials. Almost 1,000 miles need shaping and re-excavation of side drains. About 150 miles of paved roads need resurfacing. With the assistance of consultants the MOW has established a preliminary 6-year rehabilitation program and a detailed program for 1974-1975. In this first year, about 355 miles are budgeted for rehabilitation at a total cost of about Le 1 million (US$1.2 million) or about Le 2,800 per mile, which is reasonable.

2.14 Allocations for routine maintenance in 1974-1975 amount to Le 2 million (US$2.4 million). Routine maintenance costs per mile are the following (in Leones): ANNEX V Page 9

Road Class Laterite Surface Paved Surface

I 755 2,460 II 565 2,460 III 280 2,460 /1

/1 About 30 miles of Class III roads are paved.

The breakdown of the above costs is: labor 70 percent, equipment 27 percent, materials 3 percent (Statistical Appendix, Table 3.12). Routine maintenance- should mainly be carried out by labor intensive methods. The high labor com- ponent of the total cost is due to the fact that the majority of tasks (cleaning side drains, grass clearing, patching and spot surface replacement, cleaning and repairing of culverts and timber deck bridges) are assumed to be done by manpower. Since the proposed methods have not yet been experimented in Sierra Leone, adjustments in techniques and costs are bound to occur in the coming years. Provided that sufficient funds continue to be allocated to the MOW, a notable improvement of the road network by maintenance and rehabilitation operations can be expected in the next few years.

Feeder Roads

2.15 Feeder roads (farm-to-market) have been built both by units of the MOW and by village and chiefdom communities. No inventory of feeder roads exists. A main problem of feeder roads built in the past has been the lack of provisions for the maintenance of roads, bridges and culverts constructed, and roads have consequently deteriorated quickly.

2.16 Two new efforts are presently under way and under preparation, sponsored respectively by the private CARE Organization (USA) and the United Kingdom (para. 8.13). Government is conscious of the need to support the present drive for increased agricultural production by a feeder road program. A comprehensive study on feeder road requirements is planned. ANNEX V Page 10

III. ROAD TRANSPORT

Vehicle Fleet and Traffic Growth

3.01 The vehicle fleet increased at a rate of about 15 percent p.a. until 1968/1969, but has since, surprisingly, stagnated at the level of about 15,000 vehicles (see Statistical Appendix, Table 3.13). On the bapis of new registrations and import statistics, the following approximate distribution emerges: 1/ cars: 9,000; vans: 3,800; trucks: 1,500; buses: 360.

3.02 The stagnation in license renewals is supported by the trend of authorizations for the operation of commercial vehicles issued by the Road Transport Board, which shows the same stagnation. Imports of vehicles have fluctuated since 1968. The average annual number of vehicles imported (about 3,200) is, however, consistent with the assumption of a constant vehicle fleet if an average life span of five years is assumed. (Average life was estimated at three years in 1966, but road conditions have considerably improved since then.)

3.03 There is some evidence that the average size of commercial vehicles has been increasing at the same time. Satisfactory data exist only for buses. Here, the share of units with 26 and more seats increased from 16 percent to 23 percent over the 1969-1973 period, while the share of the units with 15 seats and less fell from 58 percent to 46 percent, the remainder being the medium-sized buses, the share of which also increased slightly. From qualitat- ive evidence it appears that a similar though less pronounced development has taken place with respect to trucks (gross weight of about 10 tons at present).

3.04 The growth of overall traffic can be estimated on the basis of records of consumption of petroleum products; as for extra-urban traffic, traffic counts conducted in 1966 and in 1973 can be used. Consumption of gasoline, which accounts for more than 80 percent of fuel consumed by road vehicles increased by 8 percent annually until the end of 1973. Extra-urban traffic as measured by traffic counts in 1966 and 1973 increased by approxi- mately 10 percent per annum on the trunk road network; the rate of increase was certainly markedly less on secondary and feeder roads, as agricultural production and income has been stagnating.

1/ "Marches Tropicaux" of March 22, 1974 gives a figure of 32,000 vehicles for 1972. This figure is difficult to reconcile with registration data and with import figures since it implies an average vehicle life of 10 years. As many licenses in Sierra Leone are issued for 6 months, the error may be due to adding up all licenses issued during one year. ANNEX V Page 11

3.05 The high rate of growth of road traffic may be ascribed to the phasing-out of Sierra Leone Railways and, to a greater extent, to the opening of bituminized roads between Lunsar and Kono district (Sefadu). Preliminary results from a January 1974 count suggest that a period of markedly slower growth may be ahead, but the data are not conclusive. Petroleum distributors expected a continuous increase by 7 percent p.a. until 1980, but this forecast was made before the oil crisis, and may be on the high side.

Traffic Volume: Composition and Directions

3.06 Freight traffic, excepting local and intra-urban movements, has been estimated at 400-450,000 tons in 1966. In 1970, consultants made a forecast for 1975 based on a low and a high growth hypothesis. According to the low hypothesis, which will still be somewhat higher than growth recorded for the last few years, traffic would be about 550,000 tons in 1975 which corresponds to an increase of 2.9 percent per annum since 1966 (taking the medium figure of 425,000 tons as a basis). As physical production has in- creased by 2.7 percent per annum over the last decade this appears to be a sound hypothesis, and a likely order of magnitude of present freight traffic.

3.07 In 1966, the main elements of freight were petroleum products (18 percent), palm kernels (14 percent), rice (12 percent), firewood (10 percent), palm-oil 5 percent), cement (5 percent), drinks (4 percent), sugar (5 percent), cereals (5 percent), building materials other than cement (4 percent). These characteristics of a largely agricultural hinterland have not changed signifi- cantly according to the 1970 consultant study and observable developments since.

3.08 No estimate of total ton-mileage exists. Main long distance hauls are from Freetown to Sefadu (200 miles) and to Kenema (230 miles). A smaller proportion of longer trips (to Kailahun/Pendembu) is more than counterbalanced by hauls from Freetown to intermediate destinations (Makeni, Port Loko, Bo, etc.), and above all by movements between cities other than Freetown. The average distance may roughly be estimated at 120-150 miles, which puts total extra-urban haulage at 65-80 million ton-miles.

3.09 Passenger traffic at Mile 47, the strategic crossroad for all long- distance traffic out of Freetown, had been 3,000 per day in 1966. As total traffic on the trunk roads increased by 10 percent per annum since that time, and total freight volume increased probably by no more than 3 percent per annum, there is reason to believe that passenger traffic has been buoyant. This is in line with the expectation that the improved network encourages increased travelling. In particular, the diamond boom in Kono district at the terminus of the new roads constructed in the early seventies, has generated considerable passenger movements.

3.10 The total number of passengers travelling between Freetown and up- country was about 1 million in 1966; on the basis of a 8-10 percent growth rate, it may be estimated to be twice that figure in 1974 (including private vehi- cles). There is no basis for estimating numbers of passengers travelling between other towns but from the returns of the Road Transport Corporation, ANNTEX V Page 12

it can be deduced that a very substantial proportion of passengers use long- distance buses for short trips (average trips of 50-90 miles on routes of 150-200 miles). Very tentatively total passenger-miles can be put at 200 million. Main origins and destinations are reflected by the traffic density chart (see Map). Here again, Freetown is the radiating and attracting pole of the country.

Structure of Road Transport Industry

3.11 Road haulage is ensured by a large number of small truckers, few of whom own more than 2-5 trucks. The total number of trucks, vans, buses and taxis is nearly 6,000, of which one quarter are trucks (including Govern- ment's). The average size of vehicles is fairly small, due to the axle load limitations (4 t) prescribed by the Road Act dated 1959 and revised in 1964. It would seem, however, that the characteristics of the transport market would make it difficult to utilize the capacity of much larger vehicles.

3.12 Road transport faces a fairly narrow freight market, which moreover is geographically not well balanced. The stagnation in the number of commer- cial vehicles may well be the reflection of a saturated and unprofitable market. The freight market is further characterized by the strong position of a few institutions like the Sierra Leone Produce 'Marketing Board (SLPMB), the Rice Corporation, and some 10 major trading and production firms, producing drinks, textiles, cement, etc. These firms, mostly foreign-owned, are prohibited by the Non-Citizens Trade and Business Act of 1969 from engaging in transport activities. Their transport demand is handled by a small number of firms that have succeeded in establishing regular business relations with these companies.

3.13 The plight of transport operators is further affected by the lack of cooperation between operators based in the Provinces and those of Western Area. This impedes coordination of haulage operations and freight acquisition, and results in low load-factors due to insufficient return-loads.

3.14 Passenger transport is the more dynamic and more profitable branch of transport activities. Both in urban and long-distance traffic, demand continues to increase and new and larger buses are being put into service. Competition is keen, and passenger fares have not increased much over the last few years.

Road Transport Corporation

3.15 The competitive situation of the road transport industry has been considerably changed over the last few years by the revitalization of the Road Transport Corporation (RTC), in particular with respect to passenger transport. Throughout the sixties', RTC, a public corporation founded in 1964, has run a consistent and heavy deficit both on its Freetown City Service and its Inter-City Service. A new start was made in 1971 with technical assistance from the Federal Republic of Germany and a new fleet ANNEX V Page 13

of supplier-financed buses (49 in early 1974). By the end of 1973, definite signs of improved efficiency and profitability have become apparent, although RTC still does not pay its way (see Statistical Appendix, Table 3.14). In 1972-1973, RTC buses transported 4.6 million passengers and travelled 2.3 million vehicle-miles; total revenue from this activity was Le 850,000. In the first half of 1973-1974, vehicle-miles increased only marginally, while number of passengers -and revenue incre-a0s-e-dby--abou-t-3-0percent-.

3.16 RTC operates in Freetown with buses carrying 70 passengers (of which 35 seated), and enjoys a high load factor. 30 buses (more than 60 percent) of the fleet) serve Freetown and the Peninsula, but they produce only 45 percent of total revenue. Reasons for the low profitability are:

- the low fares in town (5 cts. per stage, average receipts 15 cts. per passenger, Peninsula service included);

- very 'Low fare for school children;

- the low speed of buses in the congested city which sets limits to the mileage per day.

3.17 The low fares are imposed by Government. The slow speed is partly due to the bulky structure of the buses which reduces maneuverability in the narrow streets and causes frequent damage. With moderate increases, or a restructuring of city-fares and a subsidy for the special rates granted to children, RTC could break-even on this branch of its activities. RTC could possibly also improve its efficiency by eventually replacing their over-sized city buses with somewhat smaller units.

3.18 The Inter-City Service, which is run with 55-seaters, is a profitable venture (see Statistical Appendix, Table 3.15 for the service schedule). Private operators follow the level of rates set by RTC (with certain rebates reflecting the difference in comfort according to the state of the vehicle). RTC now plans to introduce express-buses for double fare on the main routes (offering airconditioning and music entertainment).

3.19 Comparison of revenue per route shows that the long-distance service to the major towns (Sefadu, Kenema, Bo, and Segbwema) are the most profitable, and the only ones to cover more than average cost per mile (see Statistical Appendix, Tables 3.14 and 3.16). Other routes, some of which are poorly served by private transporters, are operated at a loss as a public service. There is scope for intensifying the service on busy routes and thereby improv- ing the company's financial position.

3.20 In 1972-1973, RTC also entered into the freight haulage business with an initial fleet of 15 trucks. Here, however, no progress was made, and the company keeps incurring heavy losses as no more than half of total costs are covered; but this is not surprising given the state of the freight market. Fixed schedules and a certain rigidity of service, which are RTC's ANNEX V Page 14

force in passenger service, are of little use in the freight business where agility and inventiveness in securing freight in a narrow market are at a premium. So far, RTC has not been able to conquer an appreciable portion of the freight of commercial and industrial firms, as private operators offer lower rates.

3.21 The corporation may, after some more experimentation, find it profitable to confine its activities to passenger conveyance, and thereby considerably increase its chances of getting out of the red within a few years. Without freight haulage, breaking even on City Service and making a profit on Inter-City Service seem attainable goals, provided that the Government allows RTC to be run on commercial principles. 1/

3.22 In the passenger transport sector, RTC fulfills a useful role in setting fares at a level where both private operators, with little or no overheads, and RTC itself, with higher efficiency and better maintenance to make up for higher overheads, can compete on a sound basis. Government would therefore be well advised not to comply with RTC's wish to have competition reduced by imposing restrictions on taxis, or according a posi- tion of preference to RTC in freight haulage for government agencies.

Vehicle Operating Costs and Transport Rates and Fares

3.23 The most recent reliable calculation of vehicle operating costs was made in 1970 for the appraisal of the First Highway Project (see Statis- tical Appendix, Table 3.17). Unfortunately, no distinction is made between trucks and buses, and between vans, pick-ups and land-rovers. In order to arrive at an order of magnitude estimate for the 1974 level of operating costs, the 1970 data were increased by a flat 5 percent per annum for the 1970-1973 period plus the rise calculated for the 1973-1974 period according to type of vehicle and road. Steep price rises have occurred between 1973 and 1974: for fuel, 125 percent; for vehicles, 30-45 percent; for tires, 25 percent, for repair and maintenance, 20-30 percent. The weighted average is between 45 per- cent and 60 percent according to the cost structure of different types of vehicles and the type of roads considered. Table 14 shows operating costs which are comparable with those observed in other West African countries. They mainly serve to assess the economic benefits to be expected from the road proj- ects planned for the 1974/1975-1978/1979 period (see Appendix B). They are not, however, precise enough to allow analysis of the economics of road trans- port in Sierra Leone.

3.24 Data on freight rates and passenger fares in road transport are compiled in Statistical Appendix, Tables 3.18 and 3.19. Though no time series are available it appears that rates and fares have remained fairly

1/ RTC's accounts, though admirable from an organizational point of view, give too favorable a picture of the financial situation since depre- ciation is based on purchase value and not on replacement value. The latter would require another Le 350,000 to be set aside annually. ANNEX V Page 15 stable over the last few years while costs have kept rising. This has been possible because of the dominant position of a small number of public and private trading and manufacturing firms controlling the bulk of the freight volume to be shipped. This situation has led to a relatively depressed state of business in freight transport, while in passenger transport the brisk in- crease in the number of passengers and the well-balanced pattern of flows have resulted in a high load factor.

3.25 The present fuel crisis will induce a general increase in rates and fares. The major users have agreed to this in principle. SLPMB has taken the lead by increasing freight rates for export produce as from mid- December 1973, and it is expected that the level of other rates will soon increase by about 20-25 percent. RTC has applied for authorization to raise fares, and private transport operators are waiting to follow RTC to the new level once this has been approved.

Road Transport Policy

3.26 Transport policy is the responsibility of the Road Transport Board. This body is headed by the Director of the Road Transport Department (managing the government vehicle fleet), and counts among its members appointed repre- sentatives of the three Provinces and the Western Area, of the Ministries of Interior and Trade and Industry, as well as the Police. The only function effectively exercised by the Board is the examination of applications for the operation of commercial vehicles; but even this is merely a pro-forma exercise, since not a single application has been rejected in the last seven years for which records exist.

3.27 The Road Transport Department is in charge of inspecting vehicles for technical faults. This is obligatory every six months for commercial and government vehicles, but not for private cars. Renewal of licenses of six months' validity for commercial vehicles is predicted upon successful passing of this examination and clearance by the Income Tax Division of the Treasury. (For a summary of activities of the Road Transport Board and Road Transport Department, see Statistical Appendix, Table 3.20.)

3.28 The Road Transport Board is aware of its limited responsibility and executive capacity, and has called for a strengthening of this institu- tion in order to be able to deal effectively with all matters pertaining to road transport policy. Such an upgrading of the RTB would not be possible without some technical assistance. It would be advisable to create only one transport policy institution, and attach it to the Ministry of Planning.

3.29 The Road Traffic Regulations set up in accordance with the Road Traffic Act of 1964 are being revised and adapted to present day conditions. The draft is under review, and no details of its contents have been disclosed.

Road Transport Taxation

3.30 Table 3.21 of the Statistical Appendix shows public revenue derived from road transport, and public expenditure on road construction and maintenance for the 1968-1973 period. The excise tax on gasoline and ANNEX V Page 16 diesel (28 cts. and 24 cts. per gallon respectively) is the main source of income, but revenue from import duties has also increased considerably. Import duties are presently as follows: cars, 40 percent; dual purpose vehi- cles, 31 percent; lorries and vans, 30 percent; special purpose vehicles, 45 percent; chassis fitted with bodies, 25 percent; tires, 16 percent.

3.31 Total expenditure on road construction and maintenance has been of the same order of magnitude as public revenue from the road transport industry, the only exception being 1972 when three major road construction projects overlapped.

3.32 The data on vehicle imports and on gasoline consumption in Table 3.13 of the Statistical Appendix cannot be reconciled with the fiscal returns in Table 3.21. The standard of government accounting and auditing is very low, and in recognition of this fact, Government has just hired a British firm of chartered accountants to improve its accounting system. GoVernment also benefits from the advice of IMF in this matter.

3.33 So far, taxation has not been used for specific policy purposes, such as encouraging the use of certain types (diesel vs. gasoline) or sizes of vehicles. No official views appear to exist on such issues. ANNEX V Page 17

IV. RAILWAYS

Phasing-out of Sierra Leone Railways

4.01 The traffi volume of Sierra Leone Railways (SLR) had fallen by 1968/69 to a mere 40,000 tons and 600,000 passengers. The "Land Transport Survey" had recommended the phasing-out of SLR and the simultaneous construc- tion of the first stage of a highway network designed to effectively replace the railways. Considerable delays have occurred, however, both with respect to the phasing-out operations and the preparation and execution of road proj- ects. By the end of 1973 commercial operations had ceased, but only the Bauye-Makeni side-line (83 miles) and some 75 miles of the main-line total length of 227 miles had been dismantled. Rails and sleepers are hauled by rail to the port of Freetown, from where they are sold as scrap to Japan. At the present rate dismantling of the remaining 150 miles may take another 3-4 years, which makes the operation a dubious economic proposition (even if one takes into account that the opportunity cost of labor is only the difference between salaries and the pensions to which laid-off staff are entitled).

4.02 Though commercial operations have ceased, total staff is still about 1,300, down from nearly 2,100 in 1968/69 (and 3,000 in 1963/64). Several hundreds of them are accounted for by the Railway Workshops which continue to do repair work of various kinds for third parties, and repair the remain- ing locomotives used for scrap haulage. The majority of staff are only kept in service because of the dismantling operations, although this activity directly occupies not much more than one hundred. As revenue has fallen to some Le 60,000 (returns from assets, workshops services etc.), SLR continues to need Le 1.2 million annual subsidy which it has been receiving over the last years of commercial operations.

4.03 It is planned to convert the Railway Workshop into a national work- shop, i.e. a unit that provides repair and overhaul services for machines, boilers, generators etc. and produces basic hardware like nuts and bolts, cast iron pieces to order etc. A UNIDO industrial advisor is scheduled to examine the feasibility of such a scheme in 1974. Hungaria is reported to be willing to provide the required technical assistance. It is hoped to start the workshop in mid-1975. The profile of the proposed national workshop is not very clearly defined at present. While there seems to be scope for a unit offering high grade repair and overhaul services, careful scrutiny should be given to the feasibility of producing various kinds of hardware that can be purchased from abroad in superior quality and according to international standards.

4.04 The termination of SLR's commercial operation has left certain areas of the country without adequate means of communication and transport. The global impact is limited, however: for one, total freight transport of SLR had already fallen to a.marginal level when the railway closed down; also, in most cases motorable roads are not too far away. In the case of the most ANNEX V Page 18 apparent need (Bauye-Yonibana), the Ministry of W4orks has built a modern laterite road. What is needed in other cases is mostly an upgrading of the feeder roads linking the villages on the railway line with the highway network. This can be handled within the framework of the road maintenance priority program presently being prepared and/or by the feeder road programs.

DELCO Railway Line

4.05 Since SLR ceased commercial operations, the iron-ore railway from the Marampa mine near Lunsar to the Port of Pepel (56 miles) is the only remaining railway in the country. It is owned by the Sierra Leone Development Corpora- tion (DELCO) which operates the Marampa mines. Annual production is about 2-1/4 million tons.

4.06 The Sierra Leone Ore and Metal Company which exploits the Gbangbatok bauxite deposit has located a further deposit in the Port Loko area for which it has prospecting rights. If the deposit is mined eventually, construction of a branch line of a few miles would link the deposit to the DELCO railway and the port of Pepel.

V. PORTS AND SHIPPING

Ports

5.01 The Sierra Leone Port Authority is a public corporation founded in 1964 which controls and manages the main port in Freetown, and two small ports, one in Bonthe, about 80 miles south of Freetown, and the other at Sulima, near the Liberian border. The Ports Authority has recently completed a major expansion of quay facilities in Freetown Port at a cost of Le 11.3 million (US$13.6 million) with French contractor financing. The quay now has an area of 32 acres, a length of 3,906 ft., and can berth 6 to 8 vessels. Deptlh at the quay is 32 ft. About 1,400 vessels dock annually; total cargo, including petroleum products averages 0.9 - 1.0 million tons annually, which is far below capacity (see Statistical Appendix, Table 3.22).

5.02 As a result of increased port cliarges and the introduction of cost accounting in 1967, the Authority has been able to reverse previous deficits; harbour and port operating revenues amounted to Le 4.1 million in 1973 with a net profit after depreciation and interest on loans (Le 830,000 in 1973) of Le 309,000 for the year. Profits accumulated between 1967 and June 30, 1973 totalled Le 3.4 million. The SLPA is a well staffed and well managed commer- cial organization and financial results are satisfactory. The present capital commitment amounts to Le 5,810,000 to be repaid over the next 6-7 years. The SLPA is able to self-finance or borrow money on the market to improve Dort facilities. Hlowever, the capital cost of the new quay has not been taken into account in the balance sheet (nor does it appear in the ANNEX V Page 19 development budget of the Government). It is expected that the quay will eventually become the property of the Authority, and discussions are being held to determine the transfer value and the method of payment.

5.03 A UK loan of Le 250,000 has financed renewal of mechanical equip- ment. Suppliers' credits amounting to Le 2.8 million were obtained for purchasing two harbour and salvage tugs, fork-lifts, cranes, etc. The port has now modern cargo-handling equipment including facilities for palm-kernel oil, grains and frozen fish. Only four berths have single-story transit sheds providing an area of 175,000 sq. ft. of covered storage space and a pipeline for crude oil also has been installed recently.

5.04 The access roads to the port do not meet requirements: they are narrow, tortuous and with high gradients. The new four-lane highway Freetown-Waterloo (urban section) which is under consideration will alleviate congestion of the port area and provide good access from the countryside, avoiding the heavy suburban traffic. However, the alignment proposed in the feasibility study and preliminary engineering passes too closely behind the port area and would, if adopted, seriously restrict the possibilities of expanding the port area in depth, for instance for an extended commercial and warehousing area.

5.05 Bonthe is a small lighterage port, mainly for the export of palm kernels, ginger and piassava (a palm-fiber). An anchorage nearby in the Sherbro river channel is used for loading rutile and bauxite brought 18 miles downstream on barges. The port of Sulima consists of an open roadstead; loading is carried out by surfboats. The importance of Sulima has been steadily declining and the cargo volume is very small.

5.06 In 1973, a National Shipping Company (NSC) was founded, which has taken over the profitable stevedoring activities from the foreign companies. Government owns 60 percent of NSC, while the Norwegian Company Ocean Transport Bergen holds 40 percent. The company bought two vessels of 2,800 tons, of which only one has entered service so far. The acquisition of an oil tanker is under consideration.

5.07 Transport on the rivers and coastal creeks had been an important mode of transport before World War I, in particular for palm produce from Southern Province (centered on Bonthe). Since that time, water transport has continuously diminished, and is today of local importance only in some coastal areas. The only exception is the shipping of bauxite on barges from Gbangbatok to the Sherbro estuary.

VI. AIRPORTS AND CIVIL AVIATION

6.01 There is no Civil Aviation Authority, and these matters are handled by the Directorate of Civil Aviation which is a Department within the Ministry ANNEX V Page 20 of Transport. The Directorate is understaffed and does not even have a civil aviation engineer. The maintenance of airports is carried out by the Ministry of Works and funds are allocated in the Ministry of Works budget.

6.02 The international airport serving Freetown is situated at Lungi on the opposite side of the estuary of the Sierra Leone river. Travel time from Freetown has been reduced to about 1:15 hours by bus and ferry through the introduction of three modern ferries (unit cost Le 658,000) running at about 20/30 minutes interval. In 1971, a team of US consultants surveyed the Sierra Leone Peninsula in order to find an alternative location for a new international airport; however, no suitable site could be identified.

6.03 Lungi airport is served by 12 international companies. All types of modern aircraft except jumbo jets can land at Lungi. Passenger traffic has doubled over the last five years, and passed the 100,000 mark in 1973. Air cargo amounts to 700 tons p.a., and aircraft movements to 4,800 (see Statistical Appendix, Table 3.23). The number of transit passengers has in- creased by 400 percent in six years. The profit and loss accounts show a debit balance of about 1/4 of the revenue. The tariff policies at Lungi air- port should be revised in order that revenues cover at least operating expenses. It will be necessary to increase landing charges which are about 1/3 less than those of the neighboring West African countries.

6.04 Sierra Leone Airways (SLA) was created in 1958. The share of Govern- ment is 51 percent, the remainder belonging to British Caledonian Airways who are also in charge of management and operations. The SLA financial situation is still good. Accumulated profit since 1971 amounts to Le 180,000; however, annual profits are declining rapidly. About 15,000 passengers flew SLA in 1973. Traffic has been stagnating since 1970, which may be explained by the fact that the substantial improvement of the highway network has reduced the demand for domestic air services. SLA provides air connections from Hastings, some 10 miles from Freetown, to five points in the interior (Kenema, Bo, Sefadu, Bonthe and Gbangbatok). The fleet consists presently of two Heron carriers. The company has placed a $550,000 order for two 17-passenger Trislanders, and will be the third airline in Africa to adopt this aircraft. The Tris- landers were due to enter service in May 1974 on domestic routes and eventually to neighboring countries.

VII. GOVERNMENT'S TRANSPORT DEVELOPMENT PLAN 1974/75 - 1978/79

General

7.01 In mid-1973, the Government had been planning a Five Year Public Investment Program of Le 222 million (US$265 million) to be financed from budget surpluses (Le 70 million), contributions of public corporations (Le 50 million), other domestic services (Le 15 million), and foreign contributions ANNEX V Page 21

of Le 87 million (nearly 40 percent of total public investment). Total invest- ment for transport (excl. telecommunications) was to be Le 69.3 million or 31 percent of the total. The cost estimates underlying this allocation were however far too low (see para 7.05).

7.02 The increase in international prices since mid-1973 have made it necessary to review the investment program and consider cuts in its overall volume. This process is still underway, although the new planning period was expected to start in July 1974. The following overview over Government's plans for the transport sector must therefore be regarded as a maximum program that can only be partially fulfilled.

7.03 The overall magnitudes for the individual subsectors are as follows:

-- roads and bridges Le 54.74 million 79% - road transport 4.00 " 6% - ports 7.09 " 10%., - airports 3.47 " 5%

Total Le 69.30 100%

Roads and Bridges

7.04 For the Makeni-Matotoka road and the Bo-Kenema road which are under construction and scheduled to be completed in 1974 and 1975 respectively, residual costs are budgeted amounting to Le 4.59 million.

7.05 Cost estimates for the new roads to be constructed vary considerably according to different government sources, reflecting the low degree of detail- ed project preparation (para 7.07). The highest of conflicting cost estimates has been quoted below besides the figure in the most recent government project list on which the above mentioned global figures are based. Since cost increases following from the oil crisis have not been taken into account in these highest estimates, there should be no overestimate involved in using these figures as a preliminary bench mark. ANNEX V Page 22

Govt. Project List Ifighest estimate Le US$ Le US$

(a) Freetown-Waterloo, urban section (5.5 miles) 4.7 5.6 10.8 13.0

(b) Freetown-Waterloo, rural section (20.5 miles) 7.0 8.4 9.4 11.3

(c) Waterloo-Mile 47 (27 miles) 5.0 6.0 5.3 6.3

(d) Kenema-Sefadu (62 miles) 10.5 12.6 10.5 12.6

(e) Moyamba-Songho (40 miles) 2.0 2.4 4.2 5.0

(f) Makeni-Kabala (76 miles) 13.5 16.3 14.0 16.9

(g) Mile 66-Guinean border (38.5 miles) 7.5 9.0 7.9 9.5

Total 50.2 60.3 62.1 74.6

To this figure must be added:

(h) the Mano River Bridge which the African Development Bank has agreed to finance. Costs for this project are about Le 1.3 million (US$1.5 million). Including the two roads under construction, this list of road projects thus amounts to Le 68 million (US$82 million) using the higher estimated (instead of the Le 54.7 million mentioned in para. 7.03).

7.06 The selection of road projects is largely consistent with the intentions of the Land Transport Survey and the long-term investment program spelled out there. The primary functions of the roads selected are:

- to improve the linkage between the capital and port, Freetown, and the newly created modern road network (a, b, c);

- to complete the ring-road concept of the Land Transport Survey (d);

- to provide transport facilities to an area affected by the phasing-out of the railway (e);

- to open-up an area with insufficient infrastructure (f);

- to improve links with the two neighboring countries (g, h);

7.07 Execution of road investments in the first two years of the plan period threatens to be seriously impaired by the lack of feasibility and engineering studies for the roads identified. The Government has commissioned ANNEX V Page 23 consultants only for the Freetown-Waterloo and Makeni-Kabala roads, and has not initiated a systematic preparation of the second Five-Year Program as intended at appraisal of the First Highway Project. Since a reduction of the program outlined above will be inevitable, the priority and urgency of each of these projects ought to be thoroughly scrutinized. This review should also take into account the shifts of emphasis that follow from the general economic outlook for the country.

Road Transport

7.08 Government has budgeted Le 2.9 million for the replacement of vehicles of the Road Transport Department, and Le 1.1 million for the Road Transport Corporation. Replacement of Government vehicles is overdue, and has been requested in vain by the RTD over the last few years. However, this item ought to be budgeted under current expenditure, and appropriate provision for replacement ought to be made there. Investment plans of RTC comprise acquisition of 15 buses for city service and 50 buses for inter-city services, the construction of a workshop, 2 inspection ramps, a store, an administration building and a maintenance station, as well as acquisition of machinery and tools.

Ports

7.09 Port development projects during the plan period concern exclusively Freetown. The biggest item is the acquisition of equipment for harbor manage- ment (mainly tugs and patrol boats) for which Le 3.62 million are budgeted. (Part of the equipment has already been purchased in 1973 by means of suppliers' credits). Development of two berths in Freetown port will require Le 1.87 million, while the building of an oil-jetty costs Le 1.60 million, which puts the total at Le 7.09 million.

Airport

7.10 After the decision to retain Lungi as the final location of the international airport, the Government requested the assistance of the International Civil Aviation Organization (ICAO). A consultant study in 1971 recommended various successive improvements of Lungi international airport. The airport will require a precision approach lighting system in order to meet the standards recommended by the ICAO Air Navigation Plan. An instrument landing system (ILS) will have to be installed when justified by the number of aircraft movements in the bad weather season, or by the rising frequency of large turbine-engined aircraft movement. The major element of the longer- term development planned for Lungi is construction of a taxiway and terminal area on the North side of the existing runway. As the number of transit pas- sengers has increased by 400 percent over the last 6 years, the terminal fa- cilities, which presently only accommodate 120 persons, are to be extended. Total cost of the program is Le 6.05 million. Expenditure proposed for the plan period is Le 3.47 million only as the construction schedule extends until 1980/1981. ANNEX V Page 24

Summary

7.11 Assuming that projects other than roads are correctly costed (which is doubtful in view of the general price rises that have occurred between mid-1973 and early 1974), the investment program would amount to Le 86 mil- lion. In spite of the proclaimed intention to shift the sectoral emphasis of investment from infrastructure to agriculture, transport would then again end up with its traditional share of about 40 percent if the overall volume of public investments are maintained as planned in mid-1973, and with an even higher share if some cuts were to be decided upon eventually.

VIII. TRANSPORT DEVELOPMENT PRIORITIES

8.01 Sierra Leone will be facing two major difficulties in the plan period 1974/75 - 1978/79:

- the leading role of the diamond sector will almost certainly come to an end in the seventies, and agriculture and industry must take over as the main generators of further growth, foreign exchange earners, and providers of employment;

- the shift in emphasis in public investment required to bring about this reorientation will be made more difficult by the extreme constraints facing the country following the rise in prices of major import products (rice, fuel).

8.02 The recent past has been an impressive demonstration of the thesis that road development in itself is not sufficient to induce substantial increases in agricultural production: Sierra Leone has seen the most spec- tacular improvement of communications in its history - but agricultural pro- duction has increased by 1.6 percent p.a. in the recent past. Though further road development is necessary to improve connections between Freetown and the country and to open up the most productive areas, transport is not a key sector in the medium-term future. As far as development outside the Peninsula is concerned, the crucial issues are an appropriate price policy for agri- cultural products, large investments and inputs, agricultural extension, a new approach to project management and marketing. This should also be reflected in the allocation of capital and recurrent expenditures.

8.03 In order to be in line with the overall strategy of the plan, trans- port investment should:

- support ongoing and planned efforts in the field of agricultural development and other activities which are foreign exchange earning (or saving), notably fishery and mining; and ANNEX V Page 25

diminish in relative importance in order to leave sufficient funds for directly productive investments.

Roads

8.04 Of the 10 road construction and improvement projects contained in the most recent list of the Ministry of Planning (January, 1974), 2 are ongoing projects (Makeni-Matotoka and Bo-Kenema); for a further 2 projects finance has already been committed (Freetown-Waterloo, rural section, and the Mano River Bridge, financed by the F.R. of Germany and the African Develop- ment Bank, respectively). The remaining 6 projects will be reviewed below. Some of these are considered as premature or of low priority, while some are retained; in addition, two projects not included in the government's investment program are proposed for early consideration.

8.05 The Makeni-Kabala road (76 miles) is designed to open up Koinadugu District, an area poorly served by road. There is a good production potential in this area for cattle, tobacco, vegetables, and swamp rice, but the develop- ment cost is high, both in terms of infrastructure and agricultural extension, and yields will be forthcoming rather slowly. This opinion is in agreement with the findings of consultants who classified the project as marginal. The project is a typical frontier development which is less well suited in a period of financial strain and structural problems. Also, as long as no decision has been made with respect to the Bumbuna dam, the optimal alignment of the northern half of the road must remain uncertain. In the present context, the project must be regarded as premature. It should be noted, however, that Government is keenly interested in the road for political reasons since most of the politicians in power have their base in Northern Province.

8.06 The Kenema-Sefadu road (62 miles) would complete the loop design intended by the Land Transport Survey (see para 1-10), but it is doubtful whether there is much demand for the circular traffic route. Also, the Sefadu-Kenema road will not experience a very dynamic traffic growth once the diamond industry starts stagnating. Only the southern section of the road (not beyond Bunumbu) is within the highly productive agricultural area of Kenema District where road development promises a high pay-off. The project can therefore be classified as low priority, and an alternative development in the same area is discussed below (see para 8.11).

8.7 Improvement of the links between Freetown and the network up-country must remain an important element even within a reduced investment program. Virtually all of the country's export produce and import goods pass over the Eastern Branch (2.3 miles) of the so-called urban section of the Freetown- WJaterloo road: either to and from the hinterland or from the port to the city. The Western Branch (2.2 miles), which is separated from the Eastern Branch by the core of the city, is of a very different character, linking the city with the residential suburbs towards Wilberforce. Construction of this section could easily be postponed for a number of years, as a by-pass ANNEX V Page 26 that promises to ease traffic conditions in that area (Congo Bridge) has just been completed. Consultants did the feasibility study and the preliminary engineering commissioned by UNDP, with the World Bank acting as Executive Agency. They indicated a high rate of return in spite of high costs per mile. The alignment proposed needs careful scrutiny in various respects: number of interchanges, obstruction of port area, etc. The project is presently under review in the Bank. It is recommended that the project be limited to the Eastern Branch (estimated cost: Le 6-7 million). In spite of high costs per mile, the economic justification of this section should not be in doubt, as initial traffic will be not less than 20,000 vehicles per day.

8.08 Due to the location of Freetown on a mountainous peninsula surround- ed by swampy coasts, nearly all the traffic to and from the capital and port must follow the trunk road to Mile 47. Traffic density was about 1,000 vehicles per day in 1972. The alignment is poor, and relocation of the road is required in the Okra Hills. With better roads adjoining in three direc- tions after completion of the German-financed rural section of the Freetown- W4aterloo road, the Waterloo-Mile 47 section (27 miles) will become a serious bottleneck. Preliminary calculations indicate first-year benefit return (FYBR) of 1.25-1.27 for the improvement and reconstruction to Class I standards, on the basis of 1974 traffic and 1974 prices. A feasibility study and sub- sequent detailed engineering is recommended (see Appendix B).

8.09 The Songho-Moyamba road is the only classified road branching off the Freetown-Mile 47 trunk road. It crosses an area of fairly high agricul- tural potential (rice, palm produce). The region has suffered somewhat from the closing of the railway, but the existing laterite road runs close to the rail alignment, and is generally in fair shape. An upgrading of the existing road to a Class II laterite standard, and conversion of the railway bridge over the Ribbi River to a road bridge (replacing the ferry presently in use for road traffic) would appear to suffice for transporting agricultural pro- duce and passengers. A reconnaissance study of the road, financed by UK, is under way. In spite of its second order priority, the Government is expected to go ahead with this project, Moyamba being the home town of President Stevens. The priority of this road will have to be re-assessed, however, if the rutile deposit at Rotifunk, halfway between Songho and Moyamba, were to be exploited. A decision by the prospecting company Bayer-Preussag of Germany wvas expected by the middle of 1974.

8.10 The road from Mile 66 to the Guinea border is justified not so much as an international link as by its contribution to the opening-up of this most densely populated agricultural area with its high rice production and much untapped potential. Improvement of this road would be a useful comple- mentary measure to government's drive to step up rice production and reach self-sufficiency eventually, one of the major development objectives. Con- struction of the road must await completion of the first of the two: bridges across the Scarcies rivers which the People's Republic of China has agreed to build. Preliminary analysis indicates a FYBR of 1.11 - 1.12 for a class II laterite road on the basis of 1972 traffic figures (see Appendix B). This includes neither the international traffic nor the induced traffic to be ANNEX V Page 27

expected after completion of the Mange bridge. As the present low level of traffic is due to the absence of bridges over the two Scarcies rivers, the 1972 traffic data are not a valid indicator of traffic levels to be expected. Also, the road is scheduled for 1978 only when traffic density will have increased sufficiently to raise the rate of return above the present somewhat marginal level. It is recommended to initiate a feasibility study and detailed engineering in order to be able to implement the road construction upon completion of the Mange bridge.

8.11 In place of the Kenema-Sefadu road (see para 8.06) it is proposed to im,rove the road link between Kenera and Kailahun District as soon as the Bo-Kenema road is completed in 1975. The area north-east and east of Kenema is Sierra Leone's most productive agricultural region and its main provider of foreign exchange earnings from agriculture. At a time when fast increases in foreign exchange earnings (or savings) activities are at a premium, development of this region should be given priority. So far, no plans exist to provide the area with a substitute for the phased-out railway. The region is the focus of an IDA agricultural development project. A preliminary analysis based on 1972 traffic shows a FYBR of 1.13 - 1.14 for the shortest alignment, which closely follows the railway (see Appendix B). Traffic density fully justifies extending the project beyond Kailahun up to the Liberian border. A feasibility study should be undertaken in order to decide upon the optimal alignment.

8.12 Construction of the Mano River bridge will not make sense without the subsequent construction of a road link between Sierra Laone and Liberia. This connection gairs particular importance in view of the recent establish- ment of the Mano River Union. International traffic would hardly justify the construction of even a Class II laterite road, but two of the three possible alignments cross an area of substantial agricultural activity and potential (Potoru/Pujehun). Present traffic density shows a FYBR of 1.13 - 1.14 for a Class II laterite road (see Appendix B). A feasibility study is required to establish which of the three possible alignments is optimal.

8.13 The increased emphasis on agricultural production, both for exports and for import substitution (rice), requires concomitant efforts in the field of feeder road development. With some support from USAID (Le 10,000) and the Government of Sierra Leone, the CARE Organization has embarked since 1973 on a five-year feeder road building program in various key agricultural areas of the country (mainly Kenema, Makeni, Port Loko, Bo) for which CARE has budgeted Le 450,000. Not less than 400-500 miles are to be constructed annually, which seems rather optimistic. The U.K. Government has expressed its readiness to provide technical assistance and to finance a feeder road program of Le 600,000 that is to be geared preferably to the on-going and the planned IDA agricultural projects in the Kenema and Makeni areas. These two projects, if executed successfully, will go a long way towards meeting Sierra Leone's needs in feeder roads in the 1974/75 - 1978/79 period, provided that adequate maintenance is ensured. ANNEX V Page 28

8.14 In the longer term, however, a systematic review of feeder road problems would be desirable. This should include a review of past construc- tion programs and of maintenance arrangements and should establish priority areas and standards for further feeder road development. The Government has earmarked funds for this study in the 1973/74 development budget, but no arrangements have been made so far for its execution.

8.15 Investment plans for the public road transport industry is partly routine replacement of government vehicles and, as far as RTC is concerned, a blend of replacement and expansion investments. The place and direction of expansion should be governed by RTC's need to further improve its financial position. From this point of view, a higher proportion of investments should go into inter-city services where marginal returns promise to be high.

Ports and Shipping

8.16 Freetown port, after completion of the major expansion program of the last plan period, will need only secondary investments over the next few years in order to harmonize the capacity of the various elements (quays, sheds, handling equipment). The construction of transit sheds and warehouses for two berths, and the acquisition of handling equipment seems justified, as bottlenecks exist in these areas. However, before construction is started, handling and storage practices at the port (including rates charged to users) should be thoroughly analyzed in order to find out to what extent organiza- tional improvements would increase capacity, and thereby allow postponement of these investments.

8.17 If such an examination shows that development of the two berths along the lines proposed is necessary, the oil jetty at Kissy will have to be improved 1/ too, as the oil pipeline presently occupies one berth. This linkage between the two investments underscores the desirability to look for organiza- tional improvements as a medium-term solution.

Airports and Aviation

8.18 The short-term development needs of Lungi airport are a modern approach lighting system and an instrument landing system. In view of the atmospheric conditions during the rainy season, the proposed investment is appropriate. Construction of a parallel taxiway and a terminal area on the north side of the airport can be shifted into the eighties' without affecting normal operations. The maximum number of movements per day was 6.9 during the peak months of 1973; the theoretical maximum number of movements per hour is 5.5 under existing conditions. Even if traffic doubles until 1980, there will still be only 14 movements per day, and hourly movements can be kept well within the capacity limits by appropriate planning.

1/ It should be noted that the existing oil jetty is repaired with the financial assistance of the UK (Le 1.6 million). ANNEX V Page 29

8.19 There are no plans in domestic air transport development except the construction of an airfield in Kabala to be executed by the Ministry of Works. This is a justified extension, particularly if construction of the costly Makeni-Kabala road is postponed.

Summary Investment Program

8.20 It has been emphasized previously that the transport investment program will have to be reduced in order to be compatible with the country's limited financial means and with the objectives to give increased emphasis to agriculture. Several projects have therefore been singled out as less urgent, but two major projects have been proposed in turn. Reduction of the invest- ment volume to a size compatible with financial and absorptive capacity will come automatically. The Government has in any case not prepared enough projects, and the slippage that is bound to occur in the first years of the plan will make for a volume of disbursements more in line with financial possibilities than the budget figures.

8.21 Projects that can be ready for execution within the first 2-3 years of the plan period are:

- Makeni-Matotoka (completed in 1974) - Bo-Kenema (completed in 1975) - Freetown-Waterloo rural section - Freetown-Waterloo urban section - Mano River Bridge - Two Scarcies Bridges (possibly)

For all these projects, with the exception of the urban section of the Freetown-Waterloo road, financial assistance has been pledged by bilateral and multilateral donors. Total cost will be some Le 28 million (assuming Le 1.3 million for each of the Scarcies Bridges). For the remaining five projects, feasibility and engineering studies have to be initiated, and financial assistance has to be sought. This will take another two years, and allowing for the tender and contract procedures, work will probably not be able to start before 1977 or 1978. Total cost, in 1974 prices, of the five projects is estimated at another Le 28 million but not more than a quarter or a third will be disbursed before the end of the plan period, which puts -naximum disbursements for roads and bridges at about Le 35-37 million. If Le 4 million are added to this for road transport investment by RTC and RTD, Le 5.5 million for port development and Le 1.5 million for Lungi airport, total transport investment would be Le 46-48 million. Policy Issues

8.22 Coordination of transport policies is not much of a problem, since the railways have ceased commercial operations. The remaining modes of transport are complementary rather than competing (with the partial and insignificant exception of domestic air transport and road transport). It ANNEX V Page 30 should not be ignored, however, that road transport policy is politically a sensitive subject. While road transport had originally been dominated, like everything else, by the Krio population of the Peninsula, with the shift of power to the people of the Provinces, wealth is now accumulating in the new political class, and part of this is channelled into road transport, an investment outlet favored by the wealthy wihout business experience and/or training. Nevertheless, organizational improvements in road transport are needed to ensure a more rational use of the vehicle fleet. A pre-condition of this is a systematic review of the economic conditions of road transport, with particular emphasis on freight haulage: the structure of business by number and type of vehicles per firm, operating costs, load-factors, rates granted by the major users, adequacy and inequities of taxation and insurance, capacity of vehicles in relation to transport demand etc. On the basis of the results of such a survey, the Government could begin to use the powers of the Road Transport Board, decide on the optimal number of commercial vehicles to be licensed, make recommendations to government agencies as to the level of rates to be applied for freight haulage, review taxation of the industry, etc. The survey would also permit reviewing the relation between RTC and private operators, and eventually regulating urban transport in the Freetown area. Appendix A

TABLE OF CONTENTS OF MAIN REFERENCE SOURCES

OF THE SIERRA LEONE TRANSPORT SECTOR a) Italconsult: Land Transport Survey, Final Report, Rome 1970

I. Sierra Leone Railway, 199 p., Annexes to Final Report Railway (1-15)

II. Ten-Year Highway Investment Programme, 274 p.

III. Economic Feasibility Studies and Preliminary Engineering of Specific Roads:

- Freetown - Waterloo (rural section) - Bo - Kenema - Taiama - Bo - Mile 47 - Matotoka b) Walter-Davies, Ten Year Highway Development Programme, Freetown, July 1970 Part I - Updating Economic Studies (1970)

1. Report 2. Economic Annexes 3. Transport Annexes

Part II - Feasibility of the Modernization Scheme for:

4. The Road Kenema-Sefadu 5. The Road Makeni-Kabala-Gberia-Fotombu 6. The Road Loko-Kambia-Panelap 7. Traffic Survey Telu-Junction 8. The Road Bo-Yele-Matotoka 9. The Road Freetown-Waterloo (inter-urban section) 10. The Road Bo-Kenema 11. The Road Lunsar-Makeni-Matotola 12. First Analysis of the opportunity of construction of a modern highway between Bo and the Liberian border c) R. Jorgensen Ass.: Technical Assistance for Highway Organization and taintenance. Phase I (1973 - 1974) Programme, Freetown May 1973, 154 p.

I. Traffic Studies II. Road User Costs and Cost Savings III. Road Inventory IV. Road Maintenance Costs V. Road Maintenance Priorities VI. 1973-1974 Programme for Road Maintenance.

Appendix B Page 1

ECONOMIC BENEFITS EXPECTED FROM THE ROADS PROPOSED FOR FEASIBILITY AND ENGINEERING STUDIES

All four of the roads discussed below are contained in the Land Transport Survey and in the Ten Year Highway Development Plan. Only two of them appear in the draft of the Five Year Development Plan 1974/75 - 1978/79, (i.e. Mile 47-Waterloo, and Mile 66-Pamelap). The other two projects are proposed as substitutes for some of the projects which are judged to be of lower priority.

(i) Reconstruction of the Waterloo-Mile 47 road (27 miles)

The section from lWaterloo to the Freetown suburban area will be reconstructed, as from late 1974 or early 1975, with assistance from the Federal Republic of Germany. The remaining section which continues the road to the port and the fringe of the city is under consideration as a Bank Group project within the framework of the Second Highway Project. After completion of these two sections, the W4aterloo - Mile 47 road will have a markedly inferior quality while carrying not much less traffic than the section to Wlaterloo. The Mile 47-Freetwon road is, moreover, part of the alignment adopted for the Trans-West African Highway (coastal road) at the last TWAH Meeting at Niamey.

The existing paved road carries more than 1,000 vehicles per day, of which 36% are trucks. Horizontal and vertical alignment is poor, the pavement has deteriorated due to insufficient sub-structure and the roadway is only 18' to 20' wide without adequate shoulders. A section of about 5 miles crossing the Okra Hills will have to be completely realigned, preferably through by-passing the Okra Hills.

A preliminary analysis based on the 1972 traffic counts and a construction cost of Le 220,000 per mile shows that the construction of a Class I paved road is justified. The FYBR on the basis of 1972 traffic figures is 1.26-1.27.

(ii) Connection between Kenema and Kailahun District

The area between Kenema and Kailahun is one of the most densely populated and most productive regions of the country. Since the phasing-out of the railways there are only very round-about connections between Kenema on the one side and Pendembu and Kailahun on the other. There are at present three different routes from Kenema to Kailahun (and, beyond, to Buedu at the Liberian border):

To Kailahun To Buedu

(a) via Bunumbu and Manora Ferry (71.0 m.) (88.5 m.) (b) via Daru and Nuandehun (78.5 m.) (96.0 m.) (c) via Joru and Nyandehun (77.0 m.) (94.5 m.) Appendix B Page 2

A preliminary analysis based on 1972 traffic counts shows that the construction of a Class I paved road is justified from Kenema to Kailahun and Buedu. The highest return would result from opening up a new road located close to the alignment of the railway track i.e. linking Kenema with Kailahun via Segbwema-Daru-Pendembu, which are the most important towns in the area. Total distance to Kailahun would be about 46 miles which constitutes a saving of 30-35 percent in length compared to the existing connections.

The 1972 traffice density on individual sections of the routes between Kenema and Kailahun/Buedu was: 1972 Traffic (in AADT)

Length Section (miles) cars vans buses/trucks Total

Kenema-Mano Junction 12 397 321 202 920 Mano Jct.-Segbwema 15.50 65 98 53 216 Segbwema-Daru Junction 2 30 83 27 140 Daru Junction-Daru 6.25 19 42 25 86 Daru-Nyandehun 2 12 36 30 78 Nyandehun-Pendembu 23 24 71 106 201 Pendembu-Kailahun 17.50 38 97 63 198 Kailahun-Buedu 17.50 47 133 88 268

The new alignment would carry at least 300 vehicles a day on average (assuming 1972 traffic density). The FYBR is 1.13-1.14 on the basis of construction costs of Le 220,000 per mile. This does not include the traffic generated by intensified agricultural production and international traffic to and from Liberia.

Although there is a prima facie case for the shortest alignment, which also links the four main towns, a feasibility study should be commissioned to study the alternative routes taking full account of the developmental effects of each of them.

The road from Kenema to the town of Kailahun would be a complete project in itself. The section to Buedu and the Liberian border could be included or postponed depending on the amount of financing available.

(iii) Connection between Sierra Leone and Liberia

The African Development Bank has agreed to finance a bridge across the Mano River at Manoma, a few miles South of Fairco. This is to be followed up by the construction of a road linking Sierra Leone and Liberia, in particular the capitals of Freetown and Monrovia. There are three alternative routes between the Mano River bridge and the trunk road Kenema- Bo-Freetown:

(a) via Zimi-Joru-Kenema to Bi (117.5 miles) (b) via Zimi-Potoru-Bandajuma-Koribundu to Bo ( 89.6 " ) Appendix B Page 3

(c) via Pujehun-Bandajuma-Koribundu to Bo ( 75.4 )

Government plans to provide for the construction of alignment (a) which is by far the longest route. The Trans West African Highway (costal road) is to pass by Zimi-Joru-Koribundu to Bo, combining elements of solution (a) and (b).

A preliminary economic evaluation based on 1972 traffic figures shows that the construction of a Class II gravel road is justified between Bo and the Liberian border. The highest return is for the improvement and construction of alignment (c) via the district capital of Pujehun. The FYBR is 1.13-1.14 on the basis of construction costs of Le 50,000 per mile. The road, which would shorten the distance between the Mano River and Bo by 42 miles or nearly 40 percent compared to the Joru-Kenema alignment, would carry at least 200 vehicles per day. This includes neither the international traffic that will be generated nor the impact on agricultural production in an area hitherto neglected. Traffic densities on individual sections of the Pujehun route are given below for 1972 traffic:

Length Traffic 1972 in AADT Miles Cars Vans Trucks/buses Total

Bo-Sawa bridge 7.2 381 206 83 670 Sawa bridge-Koribundu Jct. 13.4 60 163 57 230 Koribundu Jct.-Bandajurma Jct. 11.8 22 54 36 112 Bandajuma .Jct.-Pujehun 15 20 35 15 70 Pujehun-Mano River 28 8 20 _ 30 58 75.4

Although there is a prima facie case for the Pujehun alignment (c) - which was also proposed by consultants Walter-Davies in 1970 - the margin over solution (b) is very small, a feasibility study should be commissioned in order to analyse the three alternatives., taking into account the developmental impact of each of them.

The alignment of the TWAH should be adapted to the choice that is eventually made on the basis of this study.

(iv) Improvement and Construction of the Connection between Sierra Leone and Guinea

The road from Mile 66 to the border station of Pamelap is part of the proposed alignment of the Trans West African Highway. It crosses the two Scarcies Rivers and a densely populated region which is the foremost rice-producing area of the country. The two Scarcies must still be crossed by ferries. Access to the district capital of Kambia, located between the two rivers, is therefore difficult and time-consuming. The People's Republic of China las agreed to finance two bridges over the Scarcies Rivers.

The existing road from Mile 66 to Pamelap is paved until the Mange Ferry (27 miles). The remainder (23.9 m) is only a bad dirt road. The con- struction of a Class II gravel road on this section is justified on the basis of 1972 traffic density: Appendix B Page 4

Length Traffic 1972 in AADT Section Miles Cars Vans trucks/buses Total

Mile 66-Port Loko 10.1 166 181 81 405 Port Loko-Batkanu 4.4 43 129 64 236 Batkanu-Mange Ferry 12.5 21 63 42 126 Mange Ferry-Rokupr 12.6 11 44 30 85 Rokupr Jct.-Kambia Jct. 6.6 25 100 52 177 Kambia Jct.-Kambia Ferry 0.6 62 80 98 240 Kambia Ferry-Pamelap 4.1 62 80 98 240

50.9

The low traffic density is an anomaly which is bound to disappear with the construction of the Mange bridge. Average traffic density, on the basis of 1972 traffic, can be expected to be 150/200 vehicles per day and the FYBR, on the basis of construction costs of Le 50,000 per mile, 1.11-1.12. This does take into account the generation of international traffic and of agricultural commodity movements towards Freetown. In particular the latter effect may be expected to be substantial.

(v) Summary

In consequence, the following feasibility studies are required to firm up or modify the Mission's preliminary findings:

(i) Waterloo-Mile 47 27 miles (ii) Kenema-Kailahun District (3 alignments) 280 miles (iii) Bo-Mano River (3 alignments) 240 miles (iv) Mile 66-Pamelap 50 miles

Total about 600 miles

Assuming that a case can be made for each of the four roads proposed and that the alignments suggested in this preliminary analysis were chosen in each case, detailed engineering would subsequently be required for the following lengths of road:

(i) Waterloo-Mile 47 27 miles (ii) Kenena-Kailahun-Buedu 63 miles (iii) Bo-Mano River 75 miles (iv) Mile 66-Pamelap 24 miles

Total about 190 miles

Total cost of these feasibility and engineering studies is estimated at close to US$1.0 million in 1974 prices. SIERRA LEONE: PROPOSED MINISTRY OF WORKS ORGANIZATION

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