(I- i>* EconomicDevelopment Institute OWNUof The WorldBank Public Disclosure Authorized Thansport Policy Issues in Public Disclosure Authorized Sub-Saharan Africa Public Disclosure Authorized Hernan Levy Patrick 0. Malone Public Disclosure Authorized AN EDI POLICY SEMINAR REPORT * NUMBER 9 Policy Seminar Reports numbers 1 through 7 are 5 Management Rtaining and Research for Afri- available from the Economic Development Insti- can Development. J. Price Gittinger. EDI tute of the World Bank, 1818 H Street, N.W., Wash- Catalog no. 430/008. ington, D.C. 20433, attention: Ms. Edith A. Pena. 5F La formation et la recherche en gestion pour 1 Transport Policies in Francophone Sub- le developpement de lAfrique. J. Price Git- Saharan Africa: Issues and Options. Hernan tinger. EDI Catalog no. 430/008. Levy. EDT Catalog no. 705/016. 6 Land and Water Resources Management. 1F Les politiques de transport en Afrique franco- Jacques J. Kozub, Norman Meyers, and phone au sud du Sahara: Problemes et choix. Emmanuel D'Silva. EDI Catalog no. 070/003. HemAn Levy. EDI Catalog no. 705/016. 7 Export Policies and Administration. Randi 2 Food Policy Seminar. J. Price Gittinger. EDI B. Greenblatt with Joaquin A. Cottani and Catalog no. 505/003. Domingo F. Cavallo. EDI Catalog no. 400/047. 3 Agricultural Policy and Its Relationship to Food Policy in Sub-Saharan Africa. Sakwa The following titles may be purchased from the Bunyasi. EDI Catalog no. 070/001. Publications Sales Unit, World Bank, 1818 H Street, N.W., Washington, D.C. 20433. 3F La politique agricole et ses rapports avec la po- 8 T P litique alimentaire en Afrique subsaharienne. 8 The Political Economy of Reform in Sub- Sakwa Bunyasi. EDI Catalog no. 070/001. Saharan Africa. Ravi Gulhati. 4 Development Policy Analysis. David G. Davies. EDI Catalog no. 420/043. AN EDI POLICYSEMINAR REPoRr * No. 9 TiransportPollicy Issues in Sub-Saharan Africa Report on a Series of Roundtables held in Rome, Italy April 1-18, 1986 Hernan Levy Patrick 0. Malone The World Bank Washington, D.C. Copyright© 1988 The InternationalBank for Reconstructionand Development/ THE WORLDBANK 1818 H Street,N.W. Washington,D.C. ,0433, U.S.A. All rights reserved Manufacturedin th- United Statesof America First printing August 1988 The EconomicDevelopment Institute (EDI) was establishedby the World Bank in 1955 to train officialsconcemed with developmentplanning, policymaking, investment analysis, and project im- plementationin memberdeveloping countries. At presentthe substanceof the EDI's workemphasizes macroeconomicani, sectoraleconomic policy analysis. Through a varietyof courses,seminars, and workshops,most ol whichare given overseasin cooperationwith localinstitutions, the EDI seeks to sharpenanalytical skills used in policy analysisand to broaden understandingof the experienceof individualcountries with economicdevelopment In additionto furtheringEDI's pedagogicalobjec- tives,Policy Semin;rs provide forums for policymakers,academics, and Bank staff to exchangeviews on currentdevelopmientissues, proposals, and practices.Although theEDI's publications are designed to support its training activities,many are of interestto a much broader audience.EDI materials, includingany findings, interpretations, and conclusions,are entirelythose of the authorsand should notbe attributedin anymanner to the WorldBank, to its affiliatedorganizations, or to membersof its Board of Executive;Directors or the countriesthey represent Becauseof the inlformalityof this seriesand to makethe publication available with the leastpossible delay,the typescripthas notbeen preparedand editedas fully as wouldbe the case witha moreformal document,and the WorldBank accepts no responsibilityfor errors. Thebacklistof publications by the WorldBank is shownin the annualIndex ofPublications, which is availablefrom PublicationsSales Unit, TheWorld Bank, 1818 H Street,N.W., Washington,D.C. 20433,U.S.A., or fromPublications, Banque mondiale, 66, avenued'Iena, 75116Paris, France. The authors are wiih the Infrastructureand Urban DevelopmentDivision, Economic Development Institute,the World Bank. Henian Levy is principaleconomist and Patrick0. Malone is a former divisionchief who collaboratedon the reportas a consultantto the WorldBank. Libraryof CongressCataloging-in Publication Data Transportpolicy issuesin sub-SaharanAfrica. (AnEDI policy seminarreport ; no. 9) 1. Transportationand state--Africa,Sub-Saharan--Congresses. I. Levy,HernAn, 1S37- . II. Malone,Patrick O., 1922- III. EconomicDevelopment Institute (Washington, D.C.) IV. Series. HE282.A2T73 1988 380.5'068 88-21170 ISBN 0-8213-1077-1 EDI CatalogNo. 705/019 ISSN 1012-490X Foreword This document is one of a series reporting on policy seminars organized by the Economic I)evelopment Institute of the World Bank. Policy seminars provide a forum for an informal exchange of ideas and experiences among policymakers from different counlries, leading experts in development, and World Bank staff, with respect to major issues of development policy. Policy Seminar Reports focus on issues raJxsedduring seminars that may be of interest to a wider audience. They are not intended to be comprehensive proceedings. .However, they seek to convey the essence of the discussions that took place and to bring out any principal areas of agreement or disagreement that emerged amongst those participating. Christopher R. Willoughby Director Economic Development Institute of The World Bank Contemnts Executive Summary vii 1. Introduction I 2. Economic Prospects and Transport Sector Resource Allocation and Utilization S PRESENTATIONS DISCUSSION 7 Transportpolicies and planning 7 Allocaticnof resourcesbetween investments amd maintenance 8 Definitionof the road networkto be maintained 9 Useof localcontractors 9 Regionalcooperation 9 Training 10 The role and operations of thefinancing cagencies 10 POINTSOF CONSENSUS 11 3. Road Maintenance 13 PRESENTA,1ON 13 Conditionof the networks 13 Futurescenarios 14 Technicalefficiency 14 Costrecovery 15 Financingoptions 15 DISCUSSION 16 Allocationof resources 16 Reductisnin network 16 Efficiencyof highwaymaintenance operations 17 Costrecovery 18 Financingofroad maintenance 19 POINTSOF CONSENSUS 20 V 4. The Management of Transport Parastatal Enterprises 21 PRESENTATION 21 DISCUSSION 24 Role anc size of thepublic and parastatalsector 24 Frameworkof government-transportparastatal relationship 25 Internalmanagement 25 Costrecovery and subsidies 26 Regionaicooperation in internationaltransportservices 26 POINTS OF CONSENSUS 27 5. Institutional Development, Training, and Technical Assistance 29 PRESENTATION 29 DISCUSSICN 31 Objectives and institutionalframeworkof technicalassistance 31 Sourcesand selection 33 Implementation 33 Useof lcocalconsultants 34 Trainingand manpowerdevelopment 35 POINTS OF CONSENSUS 35 Annex A: List of Country Participants 37 Roundtable No. 1 37 Roundtable No. 2 39 Roundtable No. 3 41 Annex B: Participants from Sponsoring Agencies 43 vz TransportPolicy Issues in Sub-SaharanAfrica vii Executive Suinmary Fifteen countries, in sub-regional groups of five, participated in roundtables, conducted in English, held in Rome in April 1936. The country groupings were as follows: Roundtab]e 1: Ethiopia, Kenya, Somalia, Sudan, Uganda (April 1-5) Roundtab:e 2: Malawi, Mozambique, Tanzania, Zambia, (April 7-11) Zimbabwe Roundtab[le3: Gambia, Ghana, Liberia, Nigeria, (April 14-18) Sierra Leone Ministers led the delegations of six countries; deputy ministers/permanent secretaries led most of the other delegations. There were, in addition, observers from the United Nations Economic Commission for Africa (ECA), the African Development IBank(AfDB), and the Eastern and Southern African Management Institute (ESAMI). These roundtables, like similar gatherings conducted in French in March 1985, were organized by the World Bank-principally by the Economic Development Institute (EDI) and the Transportation Divisions of the African Regional Offices-in cooperation with the International Center for Transportation Studies (ICTS) of Rome, Italy. Ihe transport policy issues on which these later roundtables focused, selected in consultation with senior officials from the participating countries, were essentially the same as those for the francophone meetings, namely, (a) economic prospects and transport sector resource allocation and utilization; (b) road maintenance; (c) management of transport parasiatal enterprises; and (d) institutional development, taining, and technical assistance. Economic Prospects, and Transport Sector Resource Allocation and Utilization. Sub-Saharan Africa is undergoing a severe economic crisis. The economy of the region, taken as a whole, stagnated in the last 21)years, and actually declined in the last 10. During the early 1980s, GDP per capita, as a result of a fall in GDP and of high population growth rates, declined at an average of 3.6 percent per annum. While several ifactorsof the crisis are external (deterioration in terms of trade, drop in the level of credits, rise in the value of dollar and of interest rates-although both have dropped over the last two years) plus very unfavorable climatic conditions, internal policies that caused distortions within tde economies led to inefficient use of resources and contributed substantially to the crisis. There was consensus during the roundtables that, with appropriate policies, the transport sectcorcould make an important corntribution in the national efforts to viii Transport P,licy Issues in Sub-Saharan Africa reverse the situation, mainly