Rural Road Maintenance System Development Project Completion Report - Jica

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THE UNITED REPUBLIC OF TANZANIAPRESIDENT’S OFFICE, REGIONAL ADMINISTRATIONAND LOCAL GOVERNMENT (PO‐RALG)RURAL ROAD MAINTENANCE SYSTEMDEVELOPMENT PROJECTCOMPLETION REPORTMARCH 2016JAPAN INTERNATIONAL COOPERATION AGENCY (JICA)EIGHT‐JAPAN ENGINEERING CONSULTANTS INC.INFRASTRUCTURE DEVELOPMENT INSTITUTEEIJR16-048

Acronyms and AbbreviationsADRICSAnnual District Roads Inventory and Condition SurveyAMTCAnnual Monitoring and Training CycleAFCAPAfrica Community Access ProgrammeATTIAppropriate Technology Training InstituteBSDBidding Security DeclarationCRBContractors Registration BoardCTBCouncil Tender BoardDCDistrict CouncilDEDistrict EngineerDEDDistrict Executive DirectorDROMASDistrict Roads Management SystemDRDPDistrict Road Development ProgrammeEBTEquipment Based TechnologyECEvaluation CommitteeJICAJapan International Cooperation AgencyLBTLabour Based TechnologyLGTPLocal Government Transport ProgrammeMCMunicipality CouncilMDMunicipal DirectorMPMember of ParliamentPMO-RALGPrime Minister’s Office Regional Administration and Local GovernmentPO-RALGPresident’s Office, Regional Administration and Local GovernmentPMUProcurement Management UnitPPRAPublic Procurement Regulation AuthorityRFBRoad Fund BoardRSERegional Secretariat EngineerRSPSRoad Sector Programme SupportTANROADSTanzania National Roads AgencyTASAFTanzania Social Action Funds

Table of Contents1. General Outline of the Project ····················· 11.1 Background of the Project ············· 11.2 Framework of the Project ·············· 11.3 Outputs ·········· 21.4 Target Groups ·· 21.5 Project Design Matrix (PDM) ········· 31.6 Project Activities ························ 31.7 RMSD Experts Assignment ··········· 42. Progress and Achievement 2012-2016 ············ 52.1 Results of Project Activities based on the APO ·············· 52.2 Progress and Achievement for Output-1 ······················ 82.3 Progress and Achievement for Output-2 ····················· 112.4 Progress and Achievement for Output-3 ····················· 262.5 Progress and Achievement for Output-4 ····················· 332.6 LBT Equipment Management ········ 373. Project Monitoring and Achievement of Outputs····················· 513.1 Monitoring of Project Activities ····· 513.2 Achievements based on ········ 524. Terminal Evaluation ······ 744.1 Results of the Terminal Evaluation ·· 744.2 Recommendations from the Terminal Evaluation Team ··· 854.3 Lessons Learned ······················· 885. Other Important Activities ······················· 895.1 Joint Coordinating Committee ······· 895.2 Provision of Equipment ··············· 895.3 Conducting the Baseline Surveys ···· 905.4. Modification of the PDM ············ 915.5. Training in Japan ······················ 915.6 Public Relations ························ 92

6. Issues, Contrivance, and Lessons Learned ···· 936.1 Lessons Learned from the Project Operation ··············· 936.2 Lessons Learned from the Capacity Development ········· 946.3 Lessons Learned from the Dissemination of the Output ··· 957. Recommendations for Further Action ········· 96(Table and Figures)Table1-1 RMSD Expert Team ················ 4Table2-1 Summary of the Results of the Project Activities ········ 5Table2-2 Outline of Regular Meetings on Operational Guidelines(2012-2016 February) ············ 8Table2-3 Outlines of Meetings for LBT Specification ············· 9Table2-4 Working groups and contents of the guidelines ········· 10Table2-5 Annual Schedule of DE in the Model ··············· 13Table2-6 RMSD Technical Training Courses ······················· 13Table2-7 River level change according to bridge lengths ········· 18Table2-8 Utilization of GIS/GPS and ·· 19Table2-9 Training Topics ····················· 19Table2-10 Mid-and Long Term Plan FY 2015/2016 Chamwino DC ····················· 22Table2-11 Items Proposed for the Annual Rural Road Maintenance Plan ··············· 23Table2-12 The Procedure of the Road Works in the Model Districts ····················· 24Table2-13 Outline of the work plan of the Pilot Projects ········· 28Table2-14 Before and After, Challenges of the Operational Guidelinesin practice ························· 31Table2-15 AMTC Operation in the Project ························· 33Table2-16 The Procedure of the Road Works in the Disseminated Districts ············ 36Table2-17 Chamwino DC Annual Leasing Budget Plan ·········· 37Table2-18 Iringa DC Annual Leasing Budget Plan ················ 37Table2-19 Leasing Price Transition (Chamwino DC) ············· 38Table2-20 Leasing Price Transition (Iringa DC) ··················· 38

Table2-21 Result &Target Comparison in Chamwino DC ········ 39Table2-22 Result &Target Comparison in Chamwino DC ········ 39Table2-23 2 Years Income Comparison (Chamwino �·········· 39Table2-24 2 Years Comparison (Iringa DC) ························ 39Table2-25 Leasing Period/Days (Chamwino DC) ················· 40Table2-26 Leasing Period/Days (Iringa DC) ······················· 40Table2-27 Maintenance Cost (Chamwino DC) ····················· 40Table2-28 Maintenance Cost (Iringa DC) ·· 40Table2-29 Expense for depreciation including initial cost (Chamwino DC) ············ 40Table2-30 Expense for depreciation excluding initial cost (Chamwino DC) ············ 41Table2-31 Expense for depreciation including initial cost (Iringa DC) ·················· 41Table2-32 Expense for depreciation excluding initial cost (Iringa DC) ·················· 41Table2-33 Revenue prediction for next 3 years (average, Chamwino DC) ·············· 42Table2-34 Revenue prediction for next 3 years (average, Iringa DC) ···················· 42Table2-35 Mid/Long-Term Prediction without equipment renewal(Chamwino DC) ················· 42Table2-36 Mid/Long-Term Prediction without equipment renewal(Iringa DC) ······················· 42Table2-37 Mid/Long-Term Prediction with equipment renewal(Chamwino DC) ················· 43Table2-38 Mid/Long-Term Prediction with equipment renewal (Iringa DC) ··········· 43Table2-39 Satisfaction of Contractors on their own serviceand district services ·············· 44Table3-1 The maintenance status of rural roads in model anddisseminated districts (FY2011/12 – 2014/15) ········· 53Table3-2 Satisfaction ratings of contractors who executed the pilot projectsin Chamwino and Iringa DC ····· 54Table3-3 Satisfaction ratings of community people working for the pilotprojects in Chamwino and Iringa �···················· 55Table3-4 The percentage of the rollover funds (RF) for rural road maintenancein the model districts (FY 2011/12 – 2014/15) ········· 57Table3-5 The percentage of RS/Council Engineers utilizing the OperationalGuidelines and their satisfaction ratings ·················· 59Table3-6 Items necessary for the Annual Rural Road Maintenance Plan ················ 61

Table3-7 The percentage of the road maintenance completion in the modeland disseminated districts (FY 2011/12 – 2014/15) ··· 63Table3-8 The rating results of Council Engineers and Technicians in ChamwinoDC on their practical skills and knowledge ············· 64Table3-9 The rating results of Council Engineers and Technicians in Iringa DCon their practical skills and knowledge ·················· 65Table3-10 The number of consultations provided by the Council Engineers/Technicians in the model and disseminated districts(FY 2013/14 – FY 2014/15) ·· 69Table3-11 The ratio of LBT works to all the maintenance works in the modelDistricts (FY 2011/12 – 2014/15) ····················· 69Table3-12 (1) Agenda of Monitoring W/S in Dodoma Region ··· 71Table3-12 (2) Agenda of Monitoring W/S in Iringa Region ······ 71Table3-13 (1) Participant List in Dodoma Region ················· 72Table3-13 (2) Participant List in Iringa Region ···················· 72Table3-14 Persons in charge of each Form in Model and Disseminated DCs ··········· 73Table4-1 Rating of Achievement of Project Purpose ·············· 74Table4-2 Maintenance status of rural roads in model anddisseminated districts ············· 75Table4-3 Satisfaction ratings of contractors in Chamwino DC and Iringa DC ·········· 76Table4-4 Satisfaction ratings of community people in Chamwino DC andIringa DC ·· 76Table4-5 The percentage of the rollover funds for rural road maintenancein the model and disseminated districts ················· 76Table4-6 Rating of Achievement of Outputs ······················· 77Table4-7 Items necessary for the Annual Rural Road Maintenance Plan ················ 79Table4-8 Percentages of the road maintenance works Completed in themodel districts ····················· 80Table4-9 The total rating on average results of engineers and technicians inChamwino and Iringa DC on their practical skills and knowledge ··········· 80Table4-10 The number of consultations provided by the district engineers/technicians in model districts ···· 81Table4-11 Statistics and comments at consultations in the model districts ·············· 81Table4-12 The ratio of LBT works to all the road maintenance works in the

model districts ····················· 82Table4-13 Percentages of the road maintenance works Completed in thedisseminated districts ············ 83Table4-14 Rating of Achievement of Overall Goal ················ 84Table5-1 RMSD Joint Coordinating Committee 2012-2016 ····· 89Table5-2 Equipment Procured by the Project ······················· 89Table5-3 Contents of Baseline Survey (TOR) ······················ 90Table5-4 Member of the Study Tour in Japan ······················ 92Table7-1 Indicators and the means of verifications for the Overall Goal ················ 97*****Figure2-1 Photos of the Regular Meeting for the Operational Guidelines················ 9Figure2-2 Operational Guidelines, Members of Launching Ceremony ·················· 10Figure2-3 Photos of Stakeholders’ Meeting 2015 ·················· 11Figure2-4 Iringa District Bridges ··········· 15Figure2-5 Chamwino District Box Culverts ························ 15Figure2-6 Photos of Training on Site ······· 16Figure2-7 Photos of Indoor training in Iringa DC ················· 16Figure2-8 Confirmation of the Attribute Table ····················· 20Figure2-9 Confirmation the property ······· 20Figure2-10 Integration the OSM and the GPS data ················ 20Figure2-11 Setting the Print ············· 20Figure2-12 GIS Training onsite in Kondoa DC ···················· 20Figure2-13 GIS Training in Mufindi DC ··· 21Figure2-14 Training for Vehicle Calibration Odometer in Chamwino DC ·············· 22Figure2-15 Proposed Value Added Prioritization ·················· 23Figure2-16 Annual Plan of the Model Districts ···················· 24Figure2-17 Kitayawa-Wangama Road (Iringa DC, LBT pilot � 25Figure2-18 Location of the Pilot Project in FY 2013/2014 ······· 26Figure2-19 Location of the Pilot Project in Chamwino DC FY2014/2015 ·············· 27Figure2-20 Location of the Pilot Project in Iringa DC FY2014/2015 ···················· 27Figure2-21 Before and After the rehabilitation of bridge in Iringa DC ·················· 28Figure2-22 Before and After of the PP in Iringa DC ·············· 30

Figure2-23 Topic and cycle of AMTC ······ 33Figure2-24 Photos of AMTC in Mufindi DC and Kondoa DC ··· 34Figure2-25 Unkuku-Loo-Kalamba Road, Pilot Site in Kondoa DC ······················ 36Figure2-26 Contract Form Contractor to District ·················· 46Figure2-27 Contract Form District to Contractor ·················· 46Figure2-28 Income Management Form ···· 47Figure2-29 Maintenance management Form ······················· 47Figure2-30 Proposed New Hiring System · 49Figure3-1 Comparison between “Satisfaction” and “Improvement”in each Chapter ··················· 60Figure3-2 Results of Checklist in Model Districts(Form 4 in Monitoring System) ······················· 62Figure3-3 Results of Checklist in Disseminated Districts(Form 4 in Monitoring System) ························· 63Figure3-4 Change in the rating results on the practical skills and knowledge ofCouncil Engineers/Technicians by RS Engineer (evaluation by anotherperson) in Dodoma Region and Council Engineers/Technicians(self-evaluation) in Chamwino DC (from 3rd to 5th QuestionnaireSurveys) ·· 67Figure3-5 Change in the rating results on the practical skills and knowledge ofCouncil Engineers/Technicians by RS Engineer in Iringa Region andCouncil Engineers/Technicians in Iringa DC (from 3rd to 5thQuestionnaire Surveys) ········ 67Figure3-6 Comparison of the rating results between Council Engineers andTechnicians (self-evaluation) in Chamwino DC and RS Engineer(evaluation by another person) in Dodoma Region (4th and 5thQuestionnaire Surveys) ········ 68Figure3-7 Comparison of the rating results between Council Engineers andTechnicians in Iringa DC and RS Engineer in Iringa Region (4th and 5thQuestionnaire Surveys) ········ 68Figure5-1 Photos of ILO International Seminar in Benin 2015 ·· 92

Annex Annex-1: PDM-1, PDM-2, PDM-3Annex-2: PO (2012-2016)Annex-3: RMSD Expert Team AssignmentAnnex-4: Monitoring System, Monitoring ManualAnnex-5: EquipmentAnnex-6: JCCAnnex-7:Counterpart DesignationAnnex-8: Summary of Project Input

1. General Outline of the Project1.1Background of the ProjectTanzania's mid-term plan for national development, Tanzania Development Vision 2025 (enacted in1999), states "Improvement of an appropriate amount of infrastructure will contribute to thedevelopment of all sectors." Roads” in particular, are important tools for regional development.Improvement of rural roads is emphasized as having a direct bearing on the promotion of agriculturaldevelopment and the improvement of the lives of the poor, which are important issues in Tanzania'snational development. Their improvement in terms of both quality and quantity is necessary.In these circumstances, the Project for “Rural Road Maintenance System Development” was launchedaimed at improving the administrative and practical capacity of rural road maintenance andmanagement.1.2Framework of the Project1.2.1 Term of the ProjectFrom February 2012 to March 2014 for the first operational periodFrom May 2014 to March 2016 for the second operational period1.2.2 Tanzanian Counterpart and Administrative Personnel Implementing agency: PMO-RALG, reformed as PO-RALG as of January 2016 Supporting agency: MOW (ATTI as the LBT training institute) Project Director:Permanent Secretary, PMO-RALG Project Manager:Director of Infrastructure Development Unit (IDU), PMO-RALG Counterparts: IDU officials/ PMO-RALGOfficials of Regional Roads Department/ MOWRS Engineers and District Engineers in the target area1.2.3 Target area Target Regions:Dodoma Region, Iringa Region Model Districts:Chamwino District, Iringa District Disseminated Districts: Kondoa Districts, Mufindi District.1.2.4 Super GoalDistrict roads in whole Tanzania are properly maintained through application of appropriatetechnology and methodology.1

1.2.5 Overall GoalThe district road maintenance procedure and services of LGAs in Dodoma and Iringa regions areimproved.【Indicators】1) Annual Rural Road Maintenance Plans prepared by the LGAs of the respective regions containnecessary items based on the checklist.2) The percentage of the road maintenance works completed by contractors (including defect liabilityperiod) for all the maintenance works in the Plan is increased within the fiscal year in therespective regions.3) The maintenance status (Good, Fair, and Poor) of rural roads is improved in the respective regions.1.2.6 Project PurposeAdministrative services of rural road maintenance provided by LGAs are improved in the target areas,and its nationwide expansion approach is developed.【Indicators】1) The maintenance status (Good, Fair, and Poor) of rural roads is improved in the model anddisseminated districts of the respective regions.2) The satisfaction ratings of the contractors/community people in the model and disseminateddistricts of the respective regions exceed 75/75% (Chamwino and Iringa) on average withreference to rural road maintenance works or status.3) The percentage of the rollover funds for rural road maintenance is decreased in the model anddisseminated districts of the respective regions.1.3Outputs(1) The capacity of PMO-RALG for coordinating and supporting LGAs in collaboration with MOWon district road maintenance is strengthened.(2) The district road maintenance procedure of the LGAs is strengthened in the model districts.(3) The practical skills and knowledge of responsible organizations (concerned departments of theLGAs, contractors, etc.) on district road maintenance are improved through the LBT applicationin the model districts.(4) The dissemination mechanism for district road maintenance approach within the respectiveregions is established.1.4Target GroupsRS and District Engineers, District Technicians, contractors, and community people living around thepilot project sites2

1.5Project Design Matrixes (PDM)The outline of the Project is summarized in the Project Design Matrix (PDM) as shown in Annex 1.The PDM is subject to modifications through further discussions with the project stakeholders inaccordance with the progress and achievements of the Project.1.6Project Activities(1) Activities for [Output 1]1-1Convene regular meetings on operational guidelines development for rural road maintenancewith PMO-RALG and MOW.1-2Prepare and revise operational guidelines of rural road maintenance with PMO-RALG andMOW.1-3Share the contents of the guidelines and the lessons learned from LGAs in the model districtsduring the Annual Meeting between PMO-RALG and RS and District Engineers.1-4Assist RS engineers to monitor rural road maintenance in LGAs based on the guidelines.(2) Activities for [Output 2]2-1Select model districts based on the criteria established.2-2Review the current activities done by technical staff in the model districts.2-3Provide training on rural road maintenance for the district engineers and technicians in themodel districts.2-4Prepare and update the rural road inventories in the model districts.2-5Prepare and revise a mid- and long-term rural road maintenance plan.2-6Confirm the needs of rural road maintenance in the model districts and prioritize the needs.2-7Prepare the annual rural road maintenance plans, including procurement, construction method,etc., in consideration of gender aspects in the model districts.(3) Activities for [Output 3]3-13-23-3Select pilot projects in the model districts from the annual rural road maintenance plan.Formulate work plans of the pilot projects.Assist district engineers and technicians in the model districts to procure contractors andsupervise the pilot projects based on the work plans.3-4Provide consultations on the operation of the pilot projects for the district engineers andtechnicians, contractors, etc. through ATTI.3-5Promote PR activities on rural road maintenance through the pilot projects.3-6Document the process, experiences, outcomes, and lessons learned of the pilot projects.(4) Activities for [Output 4]4-1 Organize sensitization workshops on rural road maintenance for the other LGAs in the respective3

regions in collaboration with the RS engineers.4-2 Select a LGA to be disseminated in the respective regions.4-3 Assist the LGAs selected in the respective regions to promote rural road maintenance based onthe guidelines with the full commitments of RS engineers.4-4 Monitor the rural road maintenance promoted by the LGAs in the respective regions.4-5 Feedback the monitoring results into the guidelines.1.7RMSD Expert AssignmentThe Expert Team members of the RMSD Project are listed below:Table 1-1RMSD Experts TeamExpertiseTeam Leader/Road MaintenanceSub Leader/Rural Road /Quality Control)Road DesignName of ExpertsOrganizationTatsumi TOKUNAGAMotoki OGAWAMotoki OGAWATatsumi TOKUNAGAHirokazu MIYAMOTONoboru SHIMIZUMasahiko NISHIDAEJECEJECEJECEJECIkumasa KAWASAKIEJECConstruction/Contract ManagementKenko OKAMURAIDILight Equipment ManagementMasanori TAKEISHICDCIKazunobu KAMIMURAPACETTakaaki HIRAKAWAINTEMCoordinating/Training PlanningYumiko TAKEDACDCICoordinating/Public RelationsGo EBISUEJECCapacity BuildingMonitoring4

2.Progress and Achievement February 2012-February2016In the second operational period of the Project’s implementation, 22 activities out of the 23 identifiedin the PDM were realized by the middle of February 2016.2.1Results of Project Activities based on the APOThe progress and attainment of the Project’s activities as of February 2016 are summarized as follows:Table 2-1 Summary of the Results of the Project ActivitiesProject ActivitiesProgress Situation of Each ActivityOther ActivitiesJoint Coordinating Committee (JCC)Mid‐term Review and TerminalEvaluationDocumentation and submission ofthe Work PlanDocumentation of (Mid‐term)Progress ReportProcedure of provision of equipmentThe fourth JCC meeting was held on 20 August, 2015. Past achievementsand results as well as the roadmap for nationwide expansion aftertermination of the Project were discussed and confirmed.Also, the fifth JCC meeting was held on 23 February, 2016. Final outcomesand continued operations after the end of the Project were reported anddiscussed during the final JCC meeting.The Terminal Evaluation Study was conducted on 21 August 2015, and theevaluation results, recommendations, and lessons learned were extractedby the Study Team. As the Project terminates earlier before the end offinancial year, the Team emphasizes that C/P shall aggregate the dataextracted after the end of the financial year and confirm the changes intarget values.N/AThe Final Progress Report was prepared and submitted as scheduled inMarch, 2016.N/AOutput 1: The capacity of PMO‐RALG for coordinating and supporting LGAs in collaboration with MOW on rural roadmaintenance is strengthened.1‐1 Convene regular meetings onAccordingly the recommendation from the mid‐term review team, theoperational guidelines developmentProject incorporated the production of the LBT specification into thefor rural road maintenance withproject activities 1‐1.PMO‐RALG and MOW.Regular meetings of the Operational Guidelines, and the meeting for LBTSpecification were held as follows. 7th Regular meeting (in July 2014) 8th Regular meeting (in August 2015) 9th Regular meeting (March 2015) 10th Regular meeting (LBT Specification Meeting 1 convened in August2015) 11th Regular meeting (LBT Specification Meeting 2 convened inDecember 2015) 12th Regular meeting (LBT Specification Meeting 3 convened in January2016)1‐2 Prepare and revise operationalRegarding the Operational Guidelines, it has been approved by MoW inguidelines of rural road maintenance December 2014. The Project had a ceremony for the launching thewith PMO‐RALG and MOW.Operational Guidelines in March 2015. After the completion of theOperational Guidelines, the need of LBT technical specification wasdiscussed. As the maintenance work methods are different between EBTand LBT, the quality of LBT works is not secured by referring to the current5

1‐3 Share the contents of theguidelines and the lessons learnedfrom LGAs in the model districtsduring the Annual Meeting betweenPMO‐RALG, RS Engineers and DistrictEngineers.1‐4 Assist RS engineers to monitorrural road maintenance in LGAsbased on the guidelines.specification of EBT. Thus, the same member of the Operational Guidelinescame to develop the Guidelines for LBT technical specification. Theschedule is shown in the Activity 1‐1.The Annual Engineers Meeting was convened in Arusha from 24th to 28thAugust, and the presentation on the project outcomes was carried out bythe model district (Iringa DC). The questionnaire survey for the utilizationof the Operational Guidelines was conducted for RSEs and CouncilEngineers during the meeting, and the Engineers in other LGAs wereencouraged to use the Operational Guidelines.The budget for rural road maintenance was reduced and delayed in thisfinancial year, and only 50% of the original budget was approved. Thedelay of the disbursement of the budget caused the delay of series of roadwork procedure in LGAs. It is supposed the quarterly monitoring by RSEswas difficult in this year due to the late disbursement of the budget to theLGAs.Output 2: The rural road maintenance procedure of the LGAs is strengthened in the model districts.2‐1 Select model districts based onthe criteria established.2‐2 Review the current activitiesdone by technical staff in the modeldistricts.2‐3 Provide training on rural roadmaintenance for the districtengineers and technicians in themodel districts.2‐4 Prepare and update rural roadinventories in the model districts.2‐5 Prepare and revise a mid‐ andlong‐term rural road maintenanceplan.2‐6 Confirm the needs of rural roadmaintenance in the model districtsand prioritize the needs.2‐7 Prepare annual rural roadmaintenance plans, includingprocurement, construction method,N/AN/AIn preparation for the termination of the Project in March 2016, themonitoring W/S was convened in Dodoma and Iringa Regions (26 January2016 in Dodoma and 29th January in Iringa). Because the Project isterminated before the end of the financial year of Tanzania, C/P shallcollect the data and information that will be extracted and fixed after theend of financial year. Thus, the Monitoring Expert provided theinstructions on the overall picture of M/S, the method for data entry ofeach form, etc. for the C/P during the W/S. Also, the indicators and variousforms necessary for the monitoring were summarized and confirmed. Inthis way, it is required for the C/P to carry out the monitoring activities ontheir own ini

THE UNITED REPUBLIC OF TANZANIA . RSPS Road Sector Programme Support TANROADS Tanzania National Roads Agency . 1.1 Background of the Project Tanzania's mid-term plan for national development, Tanzania Development Vision 2025 (enacted in 1999), states "Improvement of an appropriate amount of infrastructure will contribute to the .

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