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TACR: India: Institutional Strengthening of the Bihar Road Sector Technical Assistance Consultant’s Report Project Number: 41127 March 2011 India: Institutional Strengthening of the Bihar Road Sector Prepared by MMM Group, Canada Vancouver, British Columbia, Canada For Road Construction Department Government of Bihar This consultant’s report does not necessarily reflect the views of ADB or the Government concerned, and ADB and the Government cannot be held liable for its contents. (For project preparatory technical assistance: All the views expressed herein may not be incorporated into the proposed project’s design. Asian Development Bank Road Construction Department Government of Bihar FINAL REPORT ADB TA 7130-IND Institutional Strengthening of the Bihar Road Sector March 2011 (Updated May 2011) Milestone Report MMM Group, Canada Asian Development Bank Road Construction Department Government of Bihar FINAL REPORT ADB TA 7130-IND Institutional Strengthening of the Bihar Road Sector March 2011 (Updated May 2011) Milestone Report MMM Group, Canada Final Report, March 2011 ADB TA 7130-IND Institutional Strengthening of the Bihar Road Sector 3 Final Report, March 2011 TABLE OF CONTENTS 1 INTRODUCTION ........................................................................................................................... 7 1.1 Introduction and TA Timeline ........................................................................................ 7 1.2 Interim Report and Mid-term Workshop ........................................................................ 8 1.3 Need for Changes in TA Scope of Work ....................................................................... 9 1.4 TA Activities since Inception ....................................................................................... 10 2 INSTITUTIONAL AND MANAGEMENT ISSUES ................................................................................. 15 2.1 Bihar Road Network: New Developments .................................................................. 15 2.2 RCD’s Reduced Span of Control ................................................................................ 17 2.2.1 Road Sector Institutional Framework ............................................................. 18 2.2.2 Road Construction Department (RCD) ........................................................... 19 2.2.3 Bihar State Road Development Corporation .................................................. 22 2.2.4 Bihar Bridge Construction Corporation (Bihar Rajya Pul Nirman Nigam) ...... 23 2.2.5 Rural Works Department ................................................................................ 25 2.2.6 National Highways Authority of India .............................................................. 25 2.2.7 Transport Department and Traffic Police ....................................................... 25 2.3 Fresh Look at Institutional and Organizational Issues ................................................ 26 3 PROJECT AND CONTRACT MANAGEMENT AND PROCUREMENT PROCESSES................................. 27 3.1 Project Management Systems in Use and its Adequacy ............................................ 27 3.1.1 Progress of TA Activities ................................................................................ 27 3.1.2 Existing RCD Project Reporting System ........................................................ 28 3.1.3 Visits to RDC Field Offices ............................................................................. 29 3.1.4 Project Management Seminar, 11 Nov 09 ..................................................... 29 3.1.5 Integrated Project Management ..................................................................... 31 3.2 Standard Bid Documents ............................................................................................ 33 3.2.1 Construction .................................................................................................... 33 3.2.2 Consultant Services ........................................................................................ 33 3.3 Performance-Based Contract Maintenance ................................................................ 34 3.3.1 Progress of TA Activities ................................................................................ 34 3.3.2 PBC Maintenance Seminar, 18 Nov 09 .......................................................... 35 3.3.3 PBC Maintenance Contract Packages ........................................................... 36 4 ROAD PLANNING ...................................................................................................................... 38 4.1 Current Status of Planning in RCD ............................................................................. 38 4.2 Development of an RMS ............................................................................................. 40 4.3 RMS Components ....................................................................................................... 40 4.4 Data Needs Assessment ............................................................................................ 41 4.5 RMS Unit at RCD ........................................................................................................ 42 4.6 Training Needs of the RMS Unit ................................................................................. 43 5 QUALITY ASSURANCE ............................................................................................................... 44 5.1 Quality Management-Background .............................................................................. 44 ADB TA 7130-IND Institutional Strengthening of the Bihar Road Sector 2 Final Report, March 2011 5.2 Observations and Capacity Building Work ................................................................. 45 5.3 Recommendations on Quality Management ............................................................... 49 5.4 Sample Outline of a Quality Management Plan .......................................................... 53 6 HIGHWAY ACT AND ENFORCEMENT ISSUES ................................................................................ 54 6.1 Preparation of Draft Legislation .................................................................................. 54 6.2 Road Administration Act ............................................................................................. 54 6.3 Existing Legislation ..................................................................................................... 55 6.4 Structure of the draft Road Administration Act ........................................................... 58 6.5 Road Authorities .......................................................................................................... 60 6.6 Road Declaration and classification ............................................................................ 60 6.7 The Components of a Road ........................................................................................ 60 6.8 Road Development ..................................................................................................... 62 6.9 Provision for PPPs ...................................................................................................... 62 6.10 Establishment of a Bihar Road Maintenance Fund ................................................ 63 6.11 Overweight Vehicles ............................................................................................... 64 6.12 Compounding of Offences ...................................................................................... 66 7 ORGANIZATIONAL CONTEXT AND HUMAN RESOURCE MANAGEMENT ........................................... 69 7.1 Human Resource Development .................................................................................. 69 7.2 Current HRM Issues.................................................................................................... 71 7.3 Current Training Needs ............................................................................................... 73 7.4 Management of Change ............................................................................................. 75 7.5 Summary of Training Needs ....................................................................................... 76 7.6 Proposed Training Strategy ........................................................................................ 76 7.7 Proposed In-House Training Program ........................................................................ 77 7.8 Capacity Building Initiatives of TA including OSTs ..................................................... 78 7.9 External Training Programs ........................................................................................ 85 8 ROAD SAFETY MANAGEMENT .................................................................................................... 87 8.1 Objectives of TA .......................................................................................................... 87 8.2 Meetings and Discussions with Counterpart Staff from RCD ..................................... 87 8.3 Orientation Classes for Road Safety Engineering ...................................................... 87 8.4 Training for Road Safety Audits .................................................................................. 89 8.5 Reports Produced ....................................................................................................... 90 8.6 Road Safety Knowledge Base Provided to Counterpart Staff, Bihar
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