E691 Volume 11
GOVERNMENT OF THE PEOPLE'S REPUBLIC OF BANGLADESH Public Disclosure Authorized MINISTRY OF LOCAL GOVERNMENT, RURAL DEVELOPMENT & CO-OPERATIVES
Rural Transport Improvement Project
L '~.r-r-: Public Disclosure Authorized A-9~~~~F Public Disclosure Authorized
Borrower's Project Implementation Plan (BPIP) (Volume-l of 11)
Local Government Engineering Department Public Disclosure Authorized April 2003 Table of Contents
I. I ntroduction ...... I 11. The Project ...... 2 A. Project Scope and Objectives ...... 2 B. Detailed Project Description ...... 3 C. Economic and Financial Analyses of Project ...... 11 D. Assessment of Project Risks (Intenial & External) ...... 14 E. Cost Estimates and Financinig Plan ...... 16 Ill. Implementation Arrangements ...... 17 A. Project Implementation Organizations ...... 17 B. Administrative Arrangements for the Project Management ...... 18 C. Management of Project Procurement ...... 19 D. Implementation Arrangement for Works ...... 20 E. Implementation Arrangement for Social Components ...... 20 F. Implementation Arrangement for Environmental Components ...... 21 G. Participation Arrangements ...... 22 H. Implementation Arrangement for Institutional Strengthening ...... 23 Component 1. Role of IDA in Project Implementation ...... 23 IV. Implementation Plan ...... 26 A. Time-bound Detailed Implementation Plan ...... 26 B. Procurement Planning and Monitoring Fonmat ...... 30 C. Project Financial Management ...... 56 V. Monitoring and Evaluation ...... 62 A. Key Indicators of Project Success ...... 62 B. Key Development Impact Indicators for Measuring Progress ...... 64 in Reaching Project Development Objectives C. Key Progress Indicators for Monitoring Delivery of Project ...... 65 Inputs and Achievement of Project Outputs D. Formnat for Quarterly Progress Report ...... 66 VI. List of Annexes Annex-I: Location Map of the Proposed Project (RTIP). Annex-2: Sample District Map. Annex-3 . List of Upazila Roads of 21 Districts under RTIP. Annex-4: List of GCMs. Annex-S List of Ghats. Annex-6 Tentative Training Plan of Proposed RTIP. Annex-7 Cash Flow Chart Annex-8 Five Year Capital Investment Program for LGED (RD&I Sector). Annex-9 Format for Quarterly Progress Report. Abbreviations
ADP Annual Development Program CBA Cost-Benefit Approach CE Cost-Effectiveness DSMC Design, Supervision and Monitoring Consultant EA Environmental Assessment ECP Environmental Codes of Practices EIRR Economic Intemnal Rate of Return EMF Environmental Management Framework EMP Environmental Management Plan ERD External Resources Division FYWP First Year Work Plan GCM Growth Centre Market GDP Gross Domestic Product GIS Geographic Information System GOB Government of Bangladesh IDA International Development Association IPDP Indigenous Peoples Development Plan IWTA Inland Water Transport Authority LCS Labor Contracting Societies LGED Local Government Engineering Department LGIP Local Government Improvement Plan MIS Management Information System MMC Market Management Committee PAP Project Affected People PMU Project Management Unit PPRP Public Procurement Reform Project RAP Resettlement Action Plan RD&I Rural Development & Institution RDP Rural Development Project RF Resettlement Framework RIMC Rural Infrastructure Maintenance Cell RRMIMP-I First Rural Road and Market Improvement & Maintenance Project RRMIMP-II Second Rural Road and Market Improvement & Maintenance Project SEM&E Socio-economic Monitoring and Evaluation SUR Structures on Union Roads TYRP Three Years Rolling Plan UP Union Parishad UMMC Union Market Management Committee UR Union Road UZR Upazila Road 1'~~~~~~~~~~~~~~~~~~~~ I. Introduction
1. This is a Borrower's Project Implementation Plan (BPIP) for the Rural Transport Improvement Project (RTIP) to be implemented by the Local Government Engineering Department (LGED) under the Ministry of Local Government, Rural Development and Cooperatives (MLGRD&C) with the support of International Development Association (IDA). It has been prepared as a reference document to facilitate project implementation. 2. Bangladesh is overwhelmingly rural. About 77 percent of the people live in rural areas and Socio-economic condition of majority of which lies below the poverty line. Agricultural census showed that 56.50% of the rural families are landless or marginal farmers, though the economy of the country is basically agrarian contributing about 34% of GDP and providing about 70% of all employment. The number of landless or marginal farmers is increasing rapidly due to population growth, river erosion and various other social and economic factors. As such, the overall development of the country is dependent on the development of the rural areas. Rural development aiming at improving the quality of life of rural poor thus gained high priority for economic uplift. 3. In 1984 a new sectoral strategy showing basic approach and strategies for rural development project was formulated by the Planning Commission. The strategy emphasizes following three components: (i) Development of physical infrastructure including roads, storage and growth centers. (ii) Irrigated agriculture, drainage and minor flood control works. (iii) Production and Employment Programmes (PEP) for the rural poor.
The strategy requires the execution of a series of Rural Development Projects (RDP) and each rural development project would comprise one lor more of the above components; but must cover a minimum of one full administrative district. 4. Improvement of basic physical infrastructure in the rural areas and facilitation of agricultural development through institutional support and expansion of irrigation are the objectives of Three Years Rolling Plan (TYRP) in the RD&I sector. As envisaged in the TYRP, Rural Development Projects on the development of l)hysical rinfrastructure will itltlcue devclopmenlt of growth centers ancl Upazila Roads (withi necessary bridges anlii culverts o01 thlem alci t-ee plantation) linking the growth centers with the Upazila (Sub-district) HQ pr the arterial road system. 5. The project area covers approximately 44,900 sq. km in the 21 districts of North Western, Central & Eastern part of Bangladesh. The districts include Dhaka, Narayangonj, Gazipur, Narsingdi, Manikgonj, Munshigonj, Rajshahi, Natore, Naogaon, Chapai-Nawabgonj, Bogra, Joypurhat, Pabna, Sirajgonj, Sylhet, Sunamgonj, Moulavibazar, Habigonj, Comilla, Chandpur & B.Baria, with a total population of about 45 million. A map of Bangladesh showing the project districts is shown in Annex-1 and the maps of 21 districts showing the Upazila Roads, Markets and River Jetties are shown in Annex-2.
II. The Project
A. Project Scope and Objectives
6. The Borrower's Project Implementation Plan (BPIP) for Rural Transport Improvement Project (RTIP) is essentially a blueprint and monitoring tool of the Government of Bangladesh to implement the project with the support of IDA. It contains a detailed description of the project, the activities, targets and time required to implement all project components. It will serve as a reference document throughout the life of the project.
7 The overall development objective of the proposed project is to help in increasing rural employment and incomes and reduce rural poverty by establishing improved, sustainable rural transport and trading infrastructures. More specifically, the project objectives would be to:
(a) help remove physical bottlenecks, improve quality and reduce costs in rural transport and marketing in order to provide rural communities with improved access to social services and economic opportunities; (b) create employment and income-generating opportunities among the rural poor and particularly for disadvantaged women; (c) increase participation of local communities and the local government bodies in project selection, implementation and monitonng; and (d) increase institutional capacity for efficient rural transport infrastructure management including maintenance;
To meet the above development objectives, the project will produce the following main outputs: (a) Improvement of about 1,600 km of priority Upazila Roads and Union Roads including critical bridges and cross drainage structures; (b) Maintenance of about 1,500 km priority Upazila Roads and targeted Union Roads; (c) Improvement of about 150 Growth Center Markets and 45 River Jetties; (d) Increased role of local government and communities in management and financing of local transport and trade facilities; (e) Effective GOB policy frameworks for Union Roads management and rural transport safety; (f) Major increase in GOB rural road maintenance funding in real terms; (g) Significantly improved LGED infrastructure management capabilities, efficiency and accountability; (h) The overall objective of the project is consistent with the GOB's Poverty Reduction Strategy Paper (PRSP).
2 B. Detailed Project Description
8. The proposed project includes the following main Components:
(a) Upazila Roads Improvement (US$ 110.5 million): LGED has the Road Inventory of Upazila Roads (UZRs) as per definition approved by the Planning Commission of the Govt. of Bangladesh. Many UZRs in the project area are earthen embankments - most of them constructed under Food for Works (FFW) Programs but without mechanical compaction-often with unspanned 'gaps' across rivers and flood plaines. Some UZRs have been paved with Herring Bone Bond (HBB) but often without full compaction of the embankment resulting in a rough riding surface and a few sections have been given a bituminous seal. However a Regional Road Network Prioritization Study (RRNPS) was made under RRMIMP-2 to short-list the UZRs and URs. These short-listed roads were economically appraised having an EIRR over 12%. After having the recommendation of RRNPS, the Project Preparation Consultants (PPC) and LGED finalized the list of about 1100 km UZRs to be implemented under Rural Transport Improvement Project. Improvement and upgrading of these UZRs including all appurtenant structures will be done to provide all- weather road access to serve Growth Center Markets. A total of about 66 NCB Contract Packages and 4 ICB Contract Packages will be made. A detail list giving name and length of Upazila Roads is enclosed in Annex-3.
Improvement of about 1,100 km of UZRs including minor & major Structures
Phases Length Estimated Cost Estimated Cost (Km.) (US$ Million) (Tk. Million) First Year 272 06 26.28 1,524.00 Second Year 475 46 45 62 2,646 00 Third Year 352 48 38 60 2,239 00 Total = 1,100.00 110.50 6,409.00
(b) Union Roads (UR) Improvement (US$ 23.5 million): LGED has also the Road Inventory of Union Road (UR) as per definition approved by tile Planning Commissioni of the Giovt. of Rangladesh. As per recommendation of the Regional lRoad Network Prioritization Stucly (RRNPS), about 500 km of Union Roads (UR) including construction of minor structures will be taken from LGED's Road Inventory for improvement and upgrading in the same project area of 21 districts. A total of 200 contract packages will be made.
3 Improvement of about 500 km of URs
Phases Length (URs) Estimated Cost Estimated Cost (Km.) (US$ Million) (Tk. Million) Second Year 170 00 7.28 422.00 Third Year 170 00 8 00 464 00 Fourth Year 160.00 8 22 477 00 Total = 500.00 23.50 1,363.00
(c) Land Acquisition and Implementation of Social (RAP/IPDP) and Environmental Components (US$ 14.0 million): As no new road alignment are involved in the road improvement and upgrading component, so minimum land acquisition would be required. In some cases, however, for widening and raising of existing embankments to meet the technical design standards and, in specific cases where it is necessary, to realign short sections of road, land acquisition will be required with duly addressing OP 4.12 safeguards of IDA. Tree plantation program will be undertaken after completion of the road improvement works. It will (i) contribute towards ecological balance in the environment (ii) provide shed to the road truck and protection to the road from erosion (iii) produce fruit, timber, fuel wood etc. providing income to local bodies, saplings will be planted on each side of the roads Landless destitute women will be given preference to implement this activity. They will plant and take care of the trees. The ownership of the planted trees will be retained following GOB policies in order to generate revenue for UPs and to give benefits to the caretakers.
The project has prepared an Environmental Management Framework (EMF) with a view to establishing the process and institutional arrangement requirements for the environmental management during planning, design, implementation and operation and maintenance stages of the project.
The EMF aims to ensure that (a) the sub-projects are subjected to an appropriate level of Environmental Assessment (EA), (b) the sub- project activities do not create any serious impacts on the local community and environment, (c) appropriate mitigation and enhancement measures are implemented adequately and effectively and (d) potential inconvenience to the local public during construction stage is minimized.
To achieve these objectives, the following strategies will apply (1) all the proposed sub-projects under each of the project components will be screened by LGED through the screening process and the results will be documented properly. (2) The minimum mitigation measures are included in the bidding/contract documents as appropriate and the compliance will be monitored and the results recorded systematically.
4 Based on the EMP cost for Ist year road sub-projects and that for other sub-projects under different components, a total EMP and ECP implementation costs for the total sub-projects of the project have been estimated and adding with this other cost as above gives a total figure of US$ 4.2 million
(d) Periodic Maintenance and Rehabilitation of Upazila Roads (US$ 39.0 million): LGED is presently doing routine and periodic maintenance of Upazila and Union Roads in all 64 districts of the country through the Rural Infrastructure Maintenance Cell (RIMC) under the GOB revenue budget. But the periodic maintenance and rehabilitation of only the Upazila Roads will be taken under RTIP on priority basis in the 21 districts by avoiding all types of duplication with RIMC of LGED. Periodic maintenance and rehabilitation of Upazila Roads of about 1500 km including rehabilitation of appurtenant structures will be taken by dividing into 100 contract packages.
(e) Construction of Structure on Union Roads (SUR) (US$ 30.5 million): In Bangladesh, there are about 30,000 gaps (1,30,000 linear meters), yet to be bridged on its Union Roads network, which make the roads fragmented and less effective for all weather mobility. About 15,OOOm of small bridges and culverts will be constructed in the project area, which would bridge approximately 1,500 numbers of gaps. Because it involves a large number of small, dispersed investments where priorities are best defined locally, the SUR component provides the opportunity to encourage the participation of the communities, local bodies and other interest groups in planning, decision-making and implementation. The component will introduce participatory approach in selection, implementation and management. Concerned Union Parishad (UPs)/B3eneficiaries will share 20% cost.
Improvement of about 15,000 m of SUR
Phases Length (SUR) Estimated Cost Estimated Cost (m.) (US$ Million) (Tk. Million) First Year 2,200 00 3 79 220.00 Second Year 5,000 00 9 57 555 00 Third Year 5,000 00 10 58 613 00 Fourth Year 2,800 00 6 56 380 00 Total = 15,000.00 30.50 1,768.00
(f) Improvement of Growth Center Markets (GCM) & River Jetties (US$ 17.5 million):
(i) Growth Center Markets (GCM): Growth Center Markets are focal points for the sale and processing of rural produce, for the distribution of agricultural inputs and consumer goods imported into rural areas, and for other economic and social activities. Unimproved markets are
5 congested, unhygienic, dusty in the dry and muddy in the wet - a problem compounded by the fact that many markets are low-lying, close to rivers and not free draining. Many markets trade in meat and fish, but without adequate facilities for hygienic operations. There are no arrangements for solid waste management in an environmental friendly condition. All these factors contribute to deteriorate the environmental condition of the market. The project would finance basic infrastructure and improved common facilities at 150 Growth Center Markets. The main improvements would include covered sheds for the sale of perishable goods, slaughter house, sales platforms, internal roads and walkways within the market areas and connecting with the main Upazila Roads serving the market area, drains, latrines, garbage pits, provision of parking space, women's corner and an office for market administration Priority has also been given to integrating road, inland water transport, and markets improvements in order to enhance the efficient operation of the rural transport and trading network. The user's input participatory approach will be applied to the detailed design of the markets, which will involve market vendors and other users in design. The user participation in selection and detailed design will develop a sense of local ownership of the improved markets. Additional participatory measures will be adopted to improve the operation of the markets. The GOB and Union Parishad will contribute 20% of investment costs. Markets were being managed by Union Parishad (UP) through Market Management Committees (MMCs). Recently new circular regarding management and maintenance of market has been issued by the government. The circular reorganized the authority and responsibility of the existing committees keeping the share of UP as it is. The circular has given clear and well-defined responsibility to Market Management Committee (MMC) in order to improve and maintain the market in terms of planning, budgeting (15%-25% of lease value) and implementation. It is expected that such breakthrough would help the committees to carryout their responsibilities proactively. A detail list of the Growth Centre Markets is enclosed in Annex-4.
Improvement of about 150 Nos. Market (total cost of component including contingencies)
Phases Nos. Estimated Cost Estimated Cost (US$ Million) (Tk. Million) Second Year 40 3.49 202.00 Third Year 40 3 83 222.00 Fourth Year 40 419 243 00 Fifth Year 30 3.40 197 00 Total = 150 14.91 864.00
6 ii) Construction of River Jetties: Inland Water Transport (IWT) through country boats remains to be important for the rural movement of people and goods. The project will provide improved facilities for the safe, dry, loading and unloading of cargo and people at 45 rural river ghats, 12 in the Northeastern and 33 in Northwest Region, which is more riverine. This will increase the efficiency of loading/unloading, increase the role of IWT, reduce transport costs, and will reduce the accidents, mjunes and losses that presently occur during this process and will provide a healthy environment. This component emphasizes local participation in selection, detailed design and operation of the improved ghat using the same methodology as for the growth center markets. The ghats to be improved have been selected by the same procedure as for the markets. The GOB and Union Parishad will contribute 20% of investment costs. Attention has also been given to integrating ghat improvements with UZRs network and market. The ghat improvements will consist of 'river-bank' facilities for safe loading and unloading and for mooring, and 'on-land' facilities comprising a paved area' with drainage, footpaths, a passenger shed, clean water supply, sanitary latrines, garbage bins, a small administration office and an internal access road to connect the ghat to the nearby UZR or main road. The aim is to provide low-cost but effective river-bank facilities, and design standards will be evolved as the project develops practical experience of designing for different conditions. Most of the ghats selected for improvement serve Growth center markets, and their improvement will contribute to the integration of the water/road transport and trading network. Ghat users and boat operators will participate in the detailed design of the ghats, through application of the Users Input approach. All ghats construction works will be on public land, and all improved ghats will be operated through competitive leasing. Measures will be adopted to establish effective operation and maintenance of the ghats by the ghat management committees, using the same participatory procedures as for the market component. Involvement of country boat operators / owners associations, one of the main user groups of ghats, in the management of the ghats will be emphasized. Like markets under RRMIMP-II, LGED has reviewed and developed improved gulidelines, wh-iichi has subsequently been approvecd by the government regarcling ghat leasinlg and(i management systems. A cletail list of the River Jetties is enlclosed in Annex-S. Construction of about 45 Nos. River Jetties (total cost of component including contingencies) Phases Nos. Estimated Cost Estimated Cost (US$ Million) (Tk. Million) Second Year 15 0.79 45 00 Third Year 15 0.86 49 50 Fourth Year 15 0 94 54.00 Fifth Year 0 0 00 0.00 Total = 45 2.59 148.50
7 (g) Design, Supervision, Monitoring and Quality/Technical Audit Consultant Services (US$ 14.0):
(i) Design, Supervision and Monitoring (DSM) Consultant: The project will finance DSM consultant services. The DSM consultants will be responsible for engineering design, preparation and evaluation of bids, supervision of works, certification of payment in respect of quality & quantity and disbursement. They will assist LGED in project planning, contracting, implementation, training, monitoring (including SEM&E) and reporting, and will provide technical assistance on different aspects of the projects including TA, maintenance management system in the project area In addition to that consultant will ensure good environmental management in line with Environmental Management Framework (EMF) inclusive of Environmental Management Plan (EMP) and/or Environmental Codes of Practice (ECP). (ii) Procurement Audit/Studies: A procurement audit will be carried out by an independent and private firm. Such audit shall be in accordance with an appropriate methodology acceptable to the IDA. The Auditors shall prepare an Auditing Report presenting the findings and recommendations from the performance and procurement compliance audit for each Fiscal Year of the Project work based upon review of a sample of 10% of all works under execution and completed during the fiscal year.
(iii) Technical Audit: An annual technical/quality audit of the project to make opinion about the design, procurement procedure and quality of works executed will be carried out by an independent, private firm of consultants/auditors appointed by the LGED and acceptable to the IDA. The annual technical audit of the project shall be in accordance with an appropriate methodology acceptable to the IDA. The Auditors shall prepare an Annual Technical Audit Report presenting the findings and recommendations from the performance and technical compliance audit for each Fiscal Year of the Project work based upon review of a sample of 10% of all works under execution and completed during the fiscal year. (iv) Financial Audit: The objective of the separate financial audit is to enable the auditor to express a professional opinion on the Project Financial Statements-FS or Balance Sheet (comprising Sources and Application of funds Statements, Notes to the Project Financial Statements or Balance Sheet, at the end of each fiscal year. In conducting the audit, the audit team should ascertain the following:
* That all external fund have been used in accordance with the conditions of the relevant financing agreements, with due attention to economy and efficiency, and only for the purposes for which the financing was provided.
8 * That counterpart funds have been provided and used in accordance with the relevant financing agreements, with due attention to economy and efficiency, and only for the purposes for which they were provided,
* That goods and services financed have been procured in accordance with the relevant financing agreement and
* That all necessary supporting documents, records, and accounts have been kept in respect of all project ventures.
* That resources have been obtained and used in accordance with legal and contractual requirements, including financial ones established by appropriate authority.
(h) Technical Assistance (TA), Studies, Project Staff, Training and Equipment (US$ 6.0 million):
(i) Technical Assistance (TA): The project will provide technical assistance to strengthen the institutional capacity and capability of LGED, local government bodies and the private sector contracting industry. Technical assistance will be provided through consultants (local and foreign) as part of Design, Supervision and Monitoring (DSM) consultants, and as additional specialists, and through training programs (internal and external) The project will carry out Socio- economic Monitoring and Evaluation (SEM&E) to monitor the performance of the project in meeting development goals, through a series of economic and social indicators including reduction of road transport charges, increase in traffic volume and creation of employment. The project will appoint local SEM&E consultants and Monitoring & Evaluation Specialist in order to verify the compatibility of the outputs.
(ii) Studies: The project will conduct a series of studies including study on rural revenue raising and financing, LGIP evaluation and follow-up pre-investment studies. In addition to those comprehensive study to evaluate and quantify the impacts of rural infrastructure investment in the project area on the transport and trading system, on economic and social developmenit, and on poverty alleviation will be carried out during projecL period (which will supplement traffic impact studies carried out as parL of SEM&,E and other studiesj.
(ifil Project Staff: LGED has sufficient experience in implementation of similar rural development projects and performance of the RRMIMP- 1 and RRMIMP-2 is adequately satisfactory, LGED is capable to handle the implementation of the proposed project on its own. However, for the major project components especially improving UZRs and construction of structures on union roads, where the quality control is a matter of concern, the project would strengthen the institutional capacity of the Project Management Unit (PMU) by
9 financing DSM consultant services, incremental staff positions and the urgently needed operating costs following similar arrangements under RRMIMP-1 and RRMIMP-2.The proposed implementation support wvould ensure the timely completion of all project components, will build institutional capacity and technical capability of LGED in the planning and management of RDPs. The project will finance incremental staff positions and operating costs for project implementation.
(iv) Training: The main focus would be on need-based long-term as well as short-term training for LGED staff in.
* Supervision, quality control and reporting procedures, * Maintenance planning and management; * Implementation procedures for the SUR component; * Procedures for enhancing local community and beneficiary participation with an emphasis on information sharing and "User's Input" approaches in the selection, design, operation of investment schemes; * Procurement of goods and services; * Financial Management; * Environmental and social aspects; * GIS applications * MIS development. * Computer Aided Designs and uses of other application software. * Intranet/Internet. * Training on Road Safety Engineering, Road Safety Awareness, Monitoring and Evaluation, Quality Management, Project Management, Administrative Skills, Manager Development and / or Leadership Skills. * Technical Training * Action Learning and * Training Management"
A training plan has been prepared by the LGED which is furnished Annex-6.
(v) Equipment: There would be a provision for procuring Road Pavement Cutter, Pick-up, Mini truck, Vibratory Rammer, Bitumen Mixing Plant, Motorcycle, Computer and accessories, Photocopier, Leveling Sets, Nuclear Densometer, Bump Integrators, GIS and LAN accessories, Materials and Soil Testing Laboratory equipments, teaching aids in order to facilitate training, office equipments etc. under this project.
10 C. Economic and Financial Analysis of Project
Following matrix depicts a Summary of the Economic Analysis of Upazila road, markets and maintenance component.
Upazila Road Market Maintenance Item EIRR Item EIRR Item EIRR Base Case 20.50 Base Case 28 9 Base Case 66 08 Cost increased by 20% 16.72 20% increase in cost 17.7 20% increase in 64.13 cost Benefits reduced by 15.84 20% reduction in 16 7 20% reduction in 50.77 2 0% spoilage rate spollage rate Combined case 13.16 Combined the two 12.6 Combined the two 48.12 Time benefits not 14.60 One year delay in 23.6 included implementation Project delayed by one 22.52 yearII
9. Economic Review of UZR: Economic Analysis was conducted by the Regional Road Network Pnoritization Study (RRNPS) consultants. However, PPC has reviewed cases having EIRR below 20% only. The main purpose of the review was to establish whether the Economic Internal Rate of Return (EIRR) on selected projects lay above or below the EIRR hurdle rate of 12%, utilizing the RDP-7 traffic model. During the World Bank Project Preparation Mission, PPC's use of the RDP-7 economic evaluation model as an appropnate checking instrument was fully approved
10. For the First Year, all 34 roads had a Base Case EIRR of more than 12%. Preliminary Ranking of the 34 viable roads was undertaken in terms of descending EIRR, extending from a maximum of 48.1% to a minimum of 12.1%. The capital (investment) cost (economic) of these viable projects is some 26.5 US$ million. The average EIRR for the 34 roads is a robust 19.9%. Of the 34 roads proposed for the FYWP, some 12 roads (32% of the total) appear reasonably sensitive to the Sensitivity Tests, pushing EIRR results in some cases slightly below 12%.
11. All remaining 109 roads had a Base Case EIRR of more than 12%. Preliminary ranking of the 109 viable roads has been undertaken in terms of descending EIRR, extending from a maximum of 46.0% to a minimum of 12%. The average EIRR for the 109 candidate roads is a robust 23.8%. Since the economic review has been undertaken on a limited sample basis and the results for the sensitivity tests lie in all cases or in the "worst case scenario" at 11.66%, very close to the 12% threshold, these properly satisfies the requirement.
12. Economic Analysis of Growth Center Markets: Economic analysis of 187 markets was under taken. The Consultants developed a simplified economic evaluation methodology for small, medium and large Growth Center Markets. This model is a simplified development of the existing Bank approved LGED market evaluation model. A conventional CBA approach for Markets was adopted. The results of the quantitative economic appraisal of investments in the provision of improved Growth Center Market facilities is based principally upon the benefits from reduced spoilage. Using previously researched data on turnover from field
II surveys of markets and crops sold, the turnover of spoilage in the markets was estimated. Large non-quantifiable benefits like improvement in the health conditions are also expected, as a result of improvement of the GCMs.
13. The overall economic rates of return lie significantly over 12% and remain sufficient to justify the investments, when subject to sensitivity analysis. The average EIRR for all 109 projects having an IRR of over 12% is a robust 26.1%. The average Benefit/Cost Ratio for the 109 projects is 2 0. The cumulative NPV for the 109 projects is US$ 7.3 million. Preliminary Ranking of the 109 wholly viable Projects (assuming a 2% spoilage level) was undertaken in terms of descending EIRR, extending from a maximum of 62% to a minimum of 14%.
14. Economic Analysis of Ghats: Survey, data collection and subsequent analysis were conducted for 82 ghat proposals The main criteria proposed for the selection of Ghats identified within each district were: Functional Status, Connectivity, Community Preferences, Cost Benefit/Cost Effectiveness Ratio and Status of Connecting Roads. PPC have researched and adopted a conventional Economic Appraisal which has been applied to the pre-screened Ghat proposals, permitting Sensitivity Testing. The CE approach requires an accurate assessment of investment scheme costs and thus entails a focus on scheme costing and accurate definition of the population served by each Ghat.
15. A conventional CBA approach for Ghats was adopted even though the estimation of quantifiable benefits arising from ghat improvements is considered to be both time-consuming and problematic. Simultaneously, a CE approach has also been applied. For the conventional CBA approach, 16 projects had EIRR of less than 12%, and were therefore classified as non-viable. Some 66 projects remained with EIRR over 12% and 13 projects had EIRR of between 12% and 14%, and could therefore, ceteris paribus be considered as somewhat marginal. The remaining 53 projects each had an EIRR of more than 14%.
16. Preliminary Ranking of the viable ghats was undertaken in terms of descending EIRR, extending from a maximum of EIRR 45.80%, to a minimum EIRR of 14 3% The capital (investment) cost (economic) of viable projects is some 3 6 US$ million. The avcrage EIRR for the 53 ghats is a robust 21.5°%, with a corresponding average Beencfit/Cost ratio of 2.2. SincC th1e eC0O1101111C L1s11iSI ha\s been 1undertaken using the CF metlho(lology, this Iprecut(ie(d presentation or sensitivity test results for these sub-component.
17. Economic Analysis of Union Roads (UR): The strategic objective of this project was to adopt a participatory approach i.e. one that can easily be undertaken and adopted by local Engineers and Planners The CE approach fits this well. To calculate the Cost Effectiveness Ratio in an important study in India, the statistic calculated was the number of population served divided by the amount of investment required to bring the existing road up to a basic access standard. In India, the least-cost solution was considered for financing. Based on available finance, a maximum amount of US$ 50 per person was identified as the threshold, above which road works would not be financed
12 18. It is felt that in general Bangladesh has better land than Adhra Pradesh and this would permit a slight extension of the cut-off, from U$ 50 per capita. Thus if the CE ratio for the proposed link intervention lies below the cut-off US$ 55 per capita, the project is considered viable. Projects having the lowest CE ratios should be prioritized.
19. The population served within the Zone of Influence of each link was determined by the Road Prioritization Study, on the basis of a selection from the population recorded in towns and villages along the route. For the sample, costs were calculated for each proposed rural road improvement based upon PPC latest engineering cost estimates of various treatments. These costs were then converted into economic costs. In the sample, the estimated economic costs of UR interventions for maintenance lie between US$ 6,400 to US$ 24,000 per km. The estimated economic cost of UR interventions for upgrading lies between US$ 38,900 to US$ 138,100 per km.
20. In the sample, the traffic on these sample URs lies within a range of 8 to 102 vehicles per day with the corresponding range of zonal population per link ranging from a low of 1,411 persons to a high of 11,624 persons. Some 19 out of the 38 (50%) roads meet (e g. are lower than) the CE cut-off threshold of 55. The resulting list of viable projects will of course in all cases include all projects for which maintenance treatments are proposed. Project interventions are ranked according to increaseing CE ratio between 1 and 55. In the CE methodology, the lowest value (theoretically 1) indicates the highest priority for project selection.
21. The preliminary ranking illustrated excludes, for instance, the results of the environmental and social checks that can only be undertaken after the necessary fieldwork has been completed in due course according to World Bank Guidelines. It also excludes the data resulting from the stated LGED requirements to select projects with the minimum-required local contributions of 10 or 20% of cost, since these data are not yet available.
13 D. Assessment of Project Risks (Internal & External)
22. Assessment of Project Risks (Internal and External):
Risk Rating Risk Mitigation Measure From Outputs to Objective Land Acquisition processes will be Land acquisition may not M undertaken followvng the Resettlement proceed in a timely manner, Framework and Resettlement Action Plan which results in the delay of (RAP). LGED will take necessary measure implementation progress. if any delay occurs in this regard. Utmost attention would be paid so that all contracts could be awarded within agreed procurement plan.
Sustained demand may not M Enough motivational work and pursuance exist by the UPs and will be undertaken to track the issue. communities for SUR and Recent circulars / Government Orders UR, and upfront will help the UPs / Community arrange contributions are not upfront contribution. deposited within the -stipulated period of time. GOB falls to provide M GOB is increasing its funding for adequate counterpart maintenance at the rate about 8% per funding for maintenance year. However, LGED will take special and other components in a attention in order to arrange required timely fashion; and UPs may counterpart funding. Pilot activities will not demonstrate be initiated with high performing UPs on commitment to pilot a demand driven basis. maintenance activities. Undue interference with M New guideline is expected to minimize the market/jetties leasing risk at a grater extent. However, process may not be transparent bidding processes to be minimized. adopted with increased involvement of users in management. Incentives will be given at UP level to increase market revemnes. L,1,ED1, will establish a monitorinig and review mechanism on the leasing of markets/jetties within the project area.
Counterpart funding may M Measures have already been adopted to not be available timely for enhance the financial capacity of the UPs. the improvement of Markets However, GOB as well as LGED will take and River Jetties by the UPs. adequate measure so that funds could be available timely.
14 Risk Rating Risk Mitigation Measure Local Government S Specific actions will be taken to enhance Institutions may not have the capacity of the Union Parishads. It is enough capacity and, may expected that in collaboration with LGED, not maintain commitment to UPs will be able to perform their decentralization of responsibility satisfactorily. LGED will responsibilities, and adopt participatory process involving increase participatory communities / UPs and other processes. stakeholders.
Women and other minority M LGED will implement gender development groups may not be willing to plan and Indigenous People Development participate in project Plan (IPDP) in order to minimize the risk. activities. Environmental Management M Adequate weight has been given to Framework (EMF) including address the environmental issues in Environmental Management contract documents as well as Plan (EMP) or / specifications. However, LGED will Environmental code of provide training and ensure accurate Practice (ECP) may not be implementation of EMF/EMP/ECP. implemented in an acceptable manner. Activities / M LGED by playing proactive role through recommendations provided involving its District Sociologist and in the Social Assessment Community Organizers and in documents may not proceed collaboration with DSMC will be able to as per plan. address the social aspects duly. The LGIs will be also involved in the whole process.
Technical assistance and M Advance procurement action to appoint consultancies are not the consultants is taken in this regard. awarded in a timely manner Delay in award of contracts M Award of contracts as per agreed and approval of bid procurement plan and continuous evaluation reports for works, pursuance as well as time-bound actions goods and services. will mitigate the risk. Overall Risk Rating M
Risk Rating: H (High Risk), S (Substantial Risk), M (Modest Risk), N (Negligible or Low Risk)
23. Sensitivity Analysis: Most of the risks mentioned above, if they materialize, would express themselves as delays in project completion and deferment of benefits and possibly increased costs. Detail analysis will be done later.
15 E. Cost Estimates and Financing Plan
24 Project Cost Estimates (in US$ million):
Tentative Project Components GOB IDA Total IDA Costs as Costs Costs Costs % of Total 1. Improvement of about 1100 km of UZRs 22.1 88 4 110.5 80.00 2. Improvement of about 500 km of Union 4 7 18 8 23.5 80 00 Roads (UR) 3 Land Acquisition and implementation of 9 5 14 35 71 Social (RAP/IPDP) and Environmental (EMP) components 4 Periodic maintenance and rehabilitation 15 6 23 4 39 60 00 of about 1500 km of UZRs 5. Construction of about 15000 meters of 6 1 24 4 30 5 80 00 bridges/structures on URs (SUR) 6. Improvement of up to 150 Growth 3 5 14 17 5 80.00 Center Markets (GCM) and about 45 Rural Jetties 7 Supervision, Design, Monitoring and 2.8 11 2 14 80 00 Quality Audit Consultants. 8 TA, Studies, Project Staff, Training and 1.2 4 8 6 80 00 Equipment. I Total Cost 65 190 255 74.51
25. Financing Plan: Assuming total project cost of US$ 255 million (about Tk 1,480 Crores) and a GOB counterpart furnding ratio of 25.49% for the project, GOB is required to contribute about US$ 65.0 million (about Tk 377 Crores) over a five year period to implement the project. Based on the historical project implementation pattern, disbursements during the 3rd year of implementation of the project could 'peak' at about US$ 76 0 million (Tk. 440 78 Crores), requiring a GOB counterpart funding of about US$ 19.37 million (Tk. 112.36 Crores). However, the projected peak year disbursement for the proposed RTIP will be about 46.93% above the actual peak year disbursement of about Tk 300 Crores for the RRMIMP-2. Adequate provisions would be made in the Three Years Rolling Plan (TYRP) and subsequent Annual Development Program (ADP) of the Govt. of Bangladesh to fully meet the funding requirements of the project.
26. 'I'he det.lls of the 1ina.ncing 1P11lan a1-c' slhownl clearly In the Caslh Hlow Chart foI RuiaI Iransport ImproveineniL Project (RT1'll) us shiown in Annex-7. TIIC five year capital investment program for LGED is shown in Annex-8.
16 - *~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~
I
I1, I1I. Implementation Arrangements
A. Project Implementation Organizations
27. The Project Management Unit (PMU) of RRMIMP-2 managed the preparatory activities of RTIP with the help from project staffs as well as LGED core staff at different functional levels. However this process was supported by the services from the Project Preparation Consultants (PPC)
28. Local Government Engineering Department (LGED) under the Ministry of Local Government, Rural Development and Cooperatives (MLGRD&C) will be responsible for project implementation. However, a number of agencies will be involved with the implementation process in course of time, which is shown in the following table.
Organizations involved in implementation and their responsibilities:
Organization Function GOB Agencies Local Government Engineering Principal organization responsible for Department, under the MLGRD&C. implementation of the project, which Government of Bangladesh. includes planning, budgeting, procurement, coordination, management and monitoring. Revenue Department (District Land acquisition and Resettlement & Administration). Rehabilitation activities. Ministry of LGRD&C Procurement dectsions for larger contracts and overall administration of the project. Ministry of Planning Assist Ministry of Finance in issues related to Project financing Ministry of Finance GOB counterpart funding and project financing. External Resources Division (ERD), Ensuring fulfillment of loan covenants and Ministry of Fiinance. serving as the main interface with the IDA I on behalf of GOB. Accountant's General Office Disbursement of GOB fund. Bangladesh Bank and a probable Disbursement of RPA fund. Commercial Bank Other Agencies Local Government Body {Union Identify, select and co-finance the sub- Parishad) projects )UR, SUR, Market and Ghats) under RTIP. IDA Ensuring terms of loan are met and standard procedures are followed in procurement of works, goods and services related to the proect.
1'7 B. Administrative Arrangements for Project Management
29. The project has been proposed to be implemented by the Local Government Engineering Department (LGED) establishing a Project Management Unit (PMU) at Dhaka, as it is a foreign aided nation wide project.
Chief Engineer : Chief Engineer, LGED will supervise the overall project activities. He will monitor the works of the Project Coordinator, two Project Directors, Technical Assistant Team and will coordinate in all aspects of the project.
Project Coordinator: One senior engineer of LGED in the rank of Additional Chief Engineer will be appointed to coordinate the whole project. The project will be implemented in the 21 districts of the Western, North-Eastern and Central Part of the country. For better implementation of the project two senior and experienced Engineers will be appointed as Project Director under the Project Coordinator. The Project Coordinator will also receive direct assistance from an Executive Engineer and some specialized officials. The Project Coordinator will coordinate all activities of the project, prepare the overall work plan, budget and also keep liaison with different Government Organizations and Donor Agencies related to the project.
Superintending Engineer: Superintending Engineers (Rajshahi, Sylhet, Dhaka and Comilla Region) of LGED, working in the project area will supervise the project activities and guide the district Executive Engineers. One Executive Engineer (Training) along with required number of office staff will be appointed to assist them.
Project Director: Two Project Directors will be appointed for the project under the Project Coordinator. One Project Director will be responsible for the North-Western Central part comprising 11 districts (Dhaka, Gazipur, Manikgonj, Pabna, Sirajgonj, Bogra, Joypurhat, Rajshahi, Naogaon, Natore & Chapai-Nawabgonj) and another Project Director will be responsible for North-Eastern and Central part comprising 10 districts (Narayangonj, Munshigonj, Narsingdi, Comilla, Chandpur, B-Baria, Sylhet, Habigonj, Moulavibazar & Sunamgonj). Under the direct supervision of the Project Coordinator, the Project Directors will procure all civil works, goods and equipments and be responsible for mantaining all accounts and audits of the project. Each Project Director will get assistance from one Deputy Project Director, two Executive Engineers and a good number of Assistant Engineers and other officials.
Executive Engineer : The Executive Engineer of LGED of the Project District will implement, supervise, monitor and coordinate all development works of the project. Two Assistant Engineers and one Sociologist (for social, environmental and participation activities) along with other necessary support staff will be appointed to assist him. Before implementation of road development works, he will also coordinate closely with the Local Government Institutions regarding their responsibility on maintenance and local contribution. He will maintain accounts and face audit of all works within the project district.
18 Upazila Engineer: Upazila Engineer and his support staff working at the Upazila level will assist the Executive Engineer in implementing the project works under the Upazila. One Sub-Assistant Engineer will be appointed to assist the Upazila Engineer. He will ensure the participation of concerned Local Government Institutions and Market Management Committee in market and ghat development work. GOB Community Organizers will assist the Upazila Engineers in respect of social, environmental and participation issues.
Design, Supervision and Monitoring Consultant (DSMC): Two Design, Supervision and Monitoring Consultant (DSMC) will be appointed in line with the two Project Directors for successful implementation of project. The DSM Consultant Services are designed to assist LGED in all aspects of engineering preparation, procurement, supervision and monitoring of all works including social and environmental components under the project.
30. The PMU will be responsible for overall implementation of the project, which includes planning, budgeting, procurement, coordination, management, and monitoring of various components. It's key responsibilities will include the following: o Procurement of works, goods and services as per Annual Plan of Operation (APO) following IDA and GOB rules. o Monitor and prepared report on physical and financial progress of implementation. o Maintain financial accounts. ci Conduct technical, financial and procurement audit. o Expedite the Land Acquisition process and compensation to the Project Affected Persons (PAPs) and implementation of Resettlement Action Plan (RAPs) and Indigenous Peoples Development Plan (IPDP). c Supervise, monitor and ensure DSMC services. ci Liaison with the ministries / planning commissions and IDA or other institutions / agencies / ministries etc., if required. o Ensure implementation of Environmental Mitigation Plan (EMP) as set out in the Environmental Assessment (EA). o Comply with the Credit Covenants. o Prepare Implementation Completion Report (ICR) and Operational Plan (OP).
C. Management of Project Procurement
31. LGED has designated a mid-level Engineer (Executive Engineer) as procurement expert in the PMU for the duration of the project period, who would be responsible to coordinate all procurement activities with the field, provide guidance and disseminate procurement knowledge to the concerned engineers. In addition, two LGED Engineers are undergoing training of trainers course under the Public Procurement Reform Project (PPRP). LGED will also carry out procurement audit every year using the services of private independent auditors with TOR acceptable to IDA.
19 D. Implementation Arrangement for Works
32. Orgamzational set-up of LGED at district and Upazila level together with the incremental staff support from the project will be responsible for physical implementation of works and reporting to the PMU. The organizational arrangement for the implementation is outlined in Figure-I and the organizational arrangement for PMU is shown in Figure-2. Apart from that, the PMU will utilize the services of Design, Supervision and Monitoring (DSM) consultants for the preparation of the designs, bidding documents and assist in implementation of all the components and coordination and management of the project.
E. Implementation Arrangement for Social Components
33. Environmental and social impacts are envisaged along the upgradation roads only Except for some temporary negative environmental impacts during construction no major social impacts are envisaged under this project. However the issues related to social and environmental aspects are dealt separately under this project with due emphasis.
34. The following documents have been prepared as a part of project preparation activities, on the basis of a base line survey, to identify the social issues and to develop measures to address the socio-economic issues related to the project.
Social screening: This identifies roads and other transport structures to be improved under the RTIP program that may require further social assessment.
Resettlement Framework: The RF formulates a legal framework outlining the principles and guidelines to be used for land acquisition, impact mitigation principles and measures, institutional/organizational arrangements to be used to implement and monitor them, as well as this specifies the processes leading to yearly Resettlement Action Plan (RAP) preparation and implementation.
Indigenous Peoples Framework and Indigenous Peoples Development Plan: The Framework and Development Plan outlines information about indigenous people who may potentially be affected by the RTIP and guidelines on how to involve these IP in achieving effective mitigation of any adverse impacts and enhance any positive impacts. In relation to resettlement, the Framework also details how to restore IP's income and way of life.
Stakeholder Analysis: The Report identifies stakeholders in the RTIP. The role of the stakeholders in deciding, influencing and or setting the strategic planning of the project is identified in this report. Information critical to planning, implementation and monitoring of the RTIP has also been identified in this report. The stakeholder analysis will also help enable the avoidance or minimization of adverse effects and the realization of positive effects of the RTIP.
20 Social Development and Gender action Plan: This document provides the background of social development for the RTIP and a gender action plan to enable benefits of the project to accrue to women as well as men.
Linkage of Social Screening with Design: The report demonstrates how the result of participation and consultation of PAPs in the early stages of project preparation (screening) have been incorporated into the design of the project. It focuses on the first year UZRs only. Also, it focuses on physical cultural properties
Implementation Mechanisms and Capacity Building: This document determines present capacity of institutions, allocate their roles and responsibilities in relation to Resettlement and Rehabilitation (R&R) of Project Affected People (PAPs), and detail how capacity can be built where required
35. The Project Management Unit (PMU), with the organizational capacity of LGED at District and Upazila level and assistance from the DSMC, will implement the social and environmental components according to the recommendations laid down in the aforementioned documents There will be one incremental post of District Sociologist at the district who will be responsible for the social issues under the guidance of the Executive Engineer and will coordinate with the Community Organizers at the Upazila Level. Community Organizer is a LGED core staff, who will be the key person in implementing the social component at the Upazila level.
F. Implementation Arrangement for Environmental Components
36. In order to address the environmental aspects of the project the following documents have been prepared by the PPC, which will be duly followed during implementation. A brief account of the prepared documents are given below:
Environmental Management Framework (EMF): The purpose of the Environmental Management Framework (EMF) is to establish the process and institutional arrangement requirements for the environmental management during planning, design, implementation and operation and maintenance stages of the project.
The EMF aims to ensure that (a) the sub-projects are subjected to an appropnate level of EA (b) the sub-project activities do not create any serious impacts on the local community and environment, (c) appropriate mitigation and enhancement measures are implemented adequately and effectively and (c) potential inconvenience to the local public during construction stage is minimized.
The EMF includes separate Environmental Codes of Practice (ECP) and model Environmental Management Plans (EMPs) for each of the six project components viz. Upazila Roads Improvement, Union Roads Type (UR) Improvement, Growth Center Markets (GCM) Improvement, River jetties (Ghats) Improvement, Upazila Roads Periodic Maintenance and Rehabilitation, major bridge construction. These documents would be used as guidelines to prepare sub-project specific EMPs or environmental specification clauses for incorporating into respective construction contract documents.
21 In order to establish the environmental management requirements, sub-project specific EMPs have been prepared for all 36-upazila roads finalized for improvement under the first year works program It need not be over emphasized that community consultation and information disclosure would continue to form an integral component of the entire planning, design and implementation process including the EA process.
37. All the civil works sub projects would be executed by the LGED Executive Engineer or Upazila Engineers in their respective Districts/Upazilas through contractors. The DSM consultant would also assist the Executive Engineers / Upazila Engineers in supervision and monitoring of the works. Although most of the civil work contracts shall be implemented through the contractors selected through World Bank standard procurement procedure for such works, small labor intensive works such as ancillary earth works on rural roads associated with the SUR sub projects and road side tree plantation and maintenance will be undertaken through specially formed Labor Contracting Societies (LCS).
The Environmental screening and preparation of EA, and implementation of the environmental mitigation measures would be the responsibility of the EMU of the PMU. The EMU will comprise one Executive Engineer (Environment) and two Assistant Engineers (Environment).
The DSM (Design, Supervision and Monitoring) Consultants are to be selected through ICB and are expected to have in-house capacity to prepare EA, to advise on and to supervise the implementation of the EMF and the EMPs including making the decisions regarding environmental categorization of the sub-projects, to assess the applicability of relevant ECP to the sub-projects, preparation of site specific environmental designs and modifications to the mitigation and enhancement measures, as necessary, during the sub-projects' implementation.
The DSM consultants will also document an Environmental Supervision Manual in the beginning of their contract to confirm the environmental supervision procedures and systems including inspection, monitoring and reporting mechanisms to be followed by each associated parties during the sub-project implementation.
The execution of the works including environmental management measures will be the responsibility of the contractors. It is expected that the contractor will have adequate environmental expertise to incorporate environmentally sound construction practices.
G. Participation Arrangements
38. Participation of major stakeholders and beneficiaries has been incorporated into the design of the project from the start of preparation. A separate document on Participation and Consultation has been prepared which provides the methodology of participation and consultation and its implementation mechanism in the project framework for all the components. LGED will ensure the participation and consultation process in due fashion as outlined in the document.
22 H. Implementation Arrangement for Institutional Strengthening Component
39. An Institutional Strengthening Action Plan (ISAP) has been prepared by LGED, which outlines specific short and long-term actions to enhance the institutional capacity. LGED will appoint major TA consultants to support the implementation of the ISAP. Apart from the ISAP TA consultants, LGED will also call upon smaller consulting services to facilitate LGIP, SEM&E, Quality/Technical Audit, Environmental Audit and Safety Audit. Such services, particularly the major TA will be an additional structural element of LGED arrangements during RTIP.
I. RZole of IDA in Project Implementation
40. The role of IDA during the project implementation will be to monitor the compliance of credit covenants and assist in resolving any issue arising out thereof and maintaining regular liaison between project Coordination officials. IDA's monitoring during implementation will focus on:
a. Compliance with loan agreement including * Procurement * Disbursement, financial management and auditing * Envirorimental issues * Resettlement b. Project progress (physical and financial) c. Attainment of agreed performance indicators.
Monitoring will include visiting project sites in the form of supervision/review missions and reviewing the implementing agency Project Monitoring Reports. The missions may also identify problems and suggest their probable solutions.
23 Figure-1
Administrative Arrangements for Project Management
Local Government Division Under the Ministry of Local Government, Rural Development & Cooperatives (MLGRD&C)
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24 Figure-2 Rural Transport Improvement Project Project Management Organogram
Chief Engineer
Project Coordinator
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