Document of The World Bank s FOR OFFICIAL USE ONLY Public Disclosure Authorized Report No. 6105 Public Disclosure Authorized PROJECT PERFORMANCE AUDIT REPORT BENIN FIRST AND SECOND FEEDER ROAD PROJECTS (CREDITS 717 AND 1090-BEN) Public Disclosure Authorized March 21, 1986 Public Disclosure Authorized Operations Evaluation Department This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization. ABBREVIATIONS AND ACRONYMS CARDER - Regional Development Agency (Centre d'Action Rggionale pour le Dgveloppement Economique Rural) CNAERDR - Rural Road Development and Maintenance Coordinating Committee (Comit6 National d'Aminagement et d'Entretien des Routes de Desserte Rurale) SRDR - Service ees Routes de Desserte Rurale evolved from the old Feeder Roads Division (Division des Routes de Desserte Rurale - DRDR) DROA - Direction des Routes et Ouvrages d'Art succeeded the old Directorate of Roads and Bridges (Direction des Routes et Ponts - DRP) ITC - Interministerial Technical Committee MTPCH - Ministry of Public Works, Construction and Housing (Ministre des Travaux Publics, de la Construction et de 1'Habitat) UNCDF - United Nations Capital Development Fund THE WORLD BANK Iu U111 L UaL UNLY Washnton. DC 20433 U.S A Once no Q.ectorenweral Opseaas eakoslm March 21, 1986 MEMORANDUM TO THE EXECUTIVE DIRECTORS AND THE PRESIDENT SUBJECT: Project Performance Audit Report on Benin First and Second Feeder Road Projects (Credits 717 and 1090-BEN) Attached, for information, is a copy of a report entitled "Project Performance Audit Report on Benin First and Second Feeder Road Projects (Credits 717 and 1090-BEN)" prepared by the Operations Evaluation Department. Attachment This document has a restricted distribution and may be used by recipients only in the performance of their of1cial duties. Its contents may not otherwise be disclosed without World Bank authoriation. OJ OFICILM ONLY PROJECT PERFORMANCE AUDIT REPORT BENIN FIRST AND SECOND FEEDER ROAD PROJECTS (CREDITS 717 and 1090-BEN) TABLE OF CONTENTS Page No. Preface ...... ,...................... Basic Data Sheet .......... ... s........... ........ 1i Evaluation Summary ............ ........................... iv PROJECT PERFORMANCE AUDIT MEKORANDUM I. INTRODUCTION . 1 II. THE FIRST AND SECOND FEEDER ROAD PROJECTS .................. 3 (a) Objectives ......................................... 3 (b). Overview: First And Second Projects .................. 4 (c) Implementation: Planned and Actual Results ........... 5 (d) Alternative Construction Methods ...................... 7 III. LESSONS .......... 40..................................... 10 (a) Choice of Technology ........................... 11 (b) Technical Assistance .................................. 15 (c) Training ........................ 16 IV. CONCLUSIONS . ..... ................. ... 17 (a) General ............. ................... 17 (b) Future Prospects for the Rural Roads Program .......... 19 ANNEXES: 1. Benin: Summary of Two Agricultural, One Technical Assistance and One Education Projects, 1969-1077 ...... 23 2. Benin: Summary of Three Highway Projects, 1970-1977... 29 Thyt&b domen h mrusktda didbutand may be sd by ruipients only in t puformace of their oMcal duties. Its contents may not otherwise be disclosed without World Bank authorition. -2- Table of Contents (Cont'd.) Page No. PROJECT COMPLETION REPORT I* Introduction ................................. 33 II. Project Identification, Preparation and Appraisal ..... 34 III. Project Implementation and Cost ...................... 37 IV. Institutional Performance and Development ............. 49 V. Economic Reevaluation ................................. 52 VI. Role of the Bank ....................... 55 VII. Conclusion ..................................... 56 ANNEXES 1. Borrower's Compliance with Main Covenants............... 59 2. Actual and Expected Project Implementation ............. 61 3. Output of Feeder Road Units, Actual and Expected Physical Output ........................................ 62 4. Equipment Composition of Labor-Intensive, Intermediate and Equipment-Intensive Brigade ........... 63 5. Construction Brigade per km Cost ....................... 64 6. Actual and Appraisal Estimates of Project Costs (First Feeder Roads) ................................. 66 7. Actual and Appraisal Estimates of Project Cost (Second Feeder Roads) .................................. 67 8. Details of Economic Analysis ........................... 68 MAP Second Feeder Road Project - IBRD 15160 PROJECT PERFORMANCE AUDIT REPORT BENIN FIRST AND SECOND FEEDER ROAD PROJECTS (CREDITS 717 and 1090-BEN) PREFACE This is the performance audit report on the First and Second Feeder Road Projects for which Credits 717 and 1090 in the amounts of US$5.5 and US$7.0 million were respectively approved on May 26, 1977 and December 23, 1980. Funds for techical assistance ran out towards the end of the First Project and additonal financing in the amount of US$889,000 was provided from the surplus of the Supplementary Credit (of March 1976) for the Second Highway Project (Credit 415-DA). The Credit Agreement for the First Feeder Road Project was amended accordingly on May 16, 1980. Both credits have been fully disbursed. Improvement of planning, construction and maintenance of the Beninese rural road network was the essential objective of both projects. Extensive experimentation was carried out with different construction methods so as to arrive at a comacination of labor and equipment resources that would reduce expenditures in foreign exchange and increase employment in the rural areas. Lessons from the First P roject were applied on the design and execu- tion of the Second and, for this reason, the two projects have been audited together. This document consists of a Project Performance Audit Memorandum (PPAM) prepared by the Operations Evaluation Department (OED), and of a Project Completion Report (PCR) prepared by the Western Africa Regional Office. OED studied the documentation preserved in the Records Center and reviewed the projects against the Staff Appraisal (SAR) and the President's Report (PR), as well as against the legal documents and the transcripts of the Executive Directors' meetings which considered the projects. Discussions on project formulation, Implementatifn and follow up were held with Bank staff and consultants. An OED mission visited Benin in March 1985, secured Ge,ixnment views on the inception, preparation and execution of the two proj- ects, travelled on many project roads, and discussed project organization and work methods with construction brigade staff and laborers. The assistance and courtesies extended to the mission are gratefully acknowledged. Drafts of this report were sent to the Government for their comments; however, none were received. The PCR provides an adequate summary of the experience derived from the two projacts. The PPAX is focussed on organizational aspects related to an expanding feeder roads program and on lessons to be drawn from the experi- mentation with alternative construction methods. PROJECT PERPORMANCE AUDIT REPORT BENIN FIRST AND SECOND PEEDER ROADS PROJECTS (CREDITS 717 and 100-1E) BASIC BATA SHET ET PRO18CT DATA first Feeder Roads Project Second Feeder Roade Project (Credit 717-UN) (Credit 1090-88N) Actual Actual Item Appraisal or Current Appraisal or Current Expectation Estimate Expetation Bstiate Total Project Cost (US$) 6.6 8.74 Overrun () + 16 - Credit Amounts (US$) - 5.5 - Disbursed 5. 5- 6.84/ Caneelled Repaid - - - Outstanding - 5.5 7.0 Date Physical Components Completed Dec. 1980 Jan. 1981 Dec. 1983 Dec. 1984 Proportion Completed by by Original completion (2) 100 36/b 70 98 Economic Rate of Return (M) 27 See 1cond 19 30/e CUMULATIVE ESTMiATED AND ACTUAL DISBURSMENTS (US$ stilton) FY77 FY78 FY79 -FTS PY81 FT81 FY82 FT83 FY84 FT85 Appraisal Estimate 0.3 2.8 4.0 5.2 5.5 d 2.5 4.5 6.5 7.0 7.0 Actual 0 1.3 2.6 4.3 5.5; 0 2.5 4.6 6.84 7.0 Actual/Estimated (2) 0 46 65 83 100 0 56 71 98 100 OTHER PROJECT DATA Actual Actual original or Bet. Criginal or Set. Item Pla Revision Actual Plan Revisions Actual First mention In Files - - 02/26/74 Government's Application - - - Negotiations - - 04/11/77 08/25/80 - 11/01/80 Board approval - - 05/26/77 11/11/80 - 1223/80 Credit Agreement Date - - 06103/77 12/11/80 - 01/14/81 Effectiveness Date 0901/77 11/01/77 12/06/77 05/14/81 0914/81 12/01/77 12/14/81 I11181 Closing Date 0W30/81 - 09/30/81 06/30/84 - 06/30/84 Borrower Peoples Republic of Benin Eecuting Agency Min, of Equipet Min. of Public Works & Construction Director of loads and Bridges Fiscal Year of Borrower January - December 31 Follow-up Project Second Feeder Roads Third Feeder Roads Credit Number Credit 1090-lE Credit 1485-B1N Amount (US$M) 70 12.0 (Include WON SF) Credit Agreement Dote 01/14/81 07/03/84 /a Ao of DRceebo 10, 1984. X Reminder of che project was financed under the Second Project. 7c' For both First and Second Projecta. Au of July 1981. Jn la As of October 1981. MISSION DATA - Month/ No of No. of Man- Date of Month/ No. of No. of MHan- Date ITEM Year Weeks Persons Weeks Report Year Weeks Person Weeks Report Identification 12/73 1.5 1 1.5 3/74 - - - - - Preparation 11/75 1.0 2 2.0 4/75 2/80 1.0 2 2.0 2/80 Preappraisal 5/76 1.0 2 2.0 5/76 3/80 1.0 2 2.0 - Appraisal 7/76 3.0 4 9.0 7/76 4/80 - 1 - - Post Appraisal 10/76 2.0 2 4.0 10/76 5/80 - 1 - - Sub-Total 18.5 18.5 Supervision I 12/77 0.5 1