This document has a restricted distribution and may be ...

[Pages:68]Public Disclosure Authorized

Public Disclosure Authorized

Public Disclosure Authorized

Document of

The World Bank FOR OFFICIAL USE ONLY

Report No. 16773

IMPLEMENTATION COMPLETION REPORT JAMAICA

ROAD INFRASTRUCTURE PLANNING & MAINTENANCE PROJECT (LOAN 3275-JM) June 25, 1997

Environment and Infrastructure Division Country Department III Latin America and the Caribbean Region

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.

Public Disclosure Authorized

CURRENCY EQUIVALENTS

Currency Unit - Jamaican Dollar (J$)

(April 1990)

US$1.00

=

J$7.00

J$ 1.00

=

US$0.14

(December 1996)

US$1.00 J$ 1.00

=

J$35.00

US$0.03

WEIGHTS AND MEASURES Metric System

FISCAL YEAR OF BORROWER

April 1 - March 31

ABBREVIATIONS AND ACRONYMS

MOC(W) MLGW MPUT PIOJ FYIIP MLG IDB EU RIPMP PSMP IBRD NCHIP

Ministry of Construction (Works) Ministry of Local Government & Works Ministry of Public Utilities & Transport Planning Institute of Jamaica Five Year Infrastructure Investment Program Ministry of Local Government Inter-American Development Bank European Union Road Infrastructure Planning & Maintenance Project Public Sector Modernization Project International Bank for Reconstruction & Development North Coast Highway Project

Vice President: Director: Manager: Task Manager:

Shahid Javed Burki, LAC Paul Isenman, LA3 Eugene McCarthy, LA3EI Robin Hughes, LA3JM

FOR OFFICIAL USE ONLY

Table of Contents

PREFACE

EVALUATIONSUMMARY

i

PART I- PROJECTIMPLEMENTATIONASSESSMENT

1

A. Statement/Evaluation of Objectives

I

B. Achievement of Objectives

2

C. Key Factors Affecting Project Implementation

9

D. Project Sustainability

12

E. Bank Performance

12

F. Borrower Performance

13

G. Assessment of Outcome

14

H. Future Operations

15

L Key Lessons Learned

15

PART H - STATISTICAL TABLES

17

APPENDIX A: Aide Memoire B: Borrower's Contribution to the ICR

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.

IMPLEMENTATIONCOMPLETIONREPORT

JAMAICA

ROADINFRASTRUCTUREPLANNINGANDMAINTENANCEPROJECT LOAN 3275-NM

PREFACE

This is the ImplementationCompletionReport(ICR)forthe RoadInfrastructurePlanning and Mainteance Project(RIPMP)in Jamaica,for whichLoan 3275-JMinthe amountofUS$35 millionequivalentwas approvedon April 12, 1990. The LoanAgreementwas signedon December12, 1990and madeeffectiveDecember19, 1990.

The originalloanclosingdatewas June30, 1996butthis was extended,at the requestof the Borrower,by sixmonthsto December31, 1996. The loanwas 100%disbursed,andthe last disbursementookplaceonMay28, 1997. It is expectedthatthe Borrowerwillprovide supportingdocumentationin respectof the US$16,328.97balanceofthe SpecialAccountby June 30, 1997.Followingthe closureof the BankfinancedKingstonUrbanTransportProject(KUTP, Loan 2389-JM)on September30, 1993certainincompleteactivitieswereaddedto RIPMP. This ICRthus reportsonthoseactivitiescarriedoutunderRIPMP,includingthoseactivitiescarried forward from KUTP.

T-heICR was preparedby Mr. RobinHughes(LA3JM)and reviewedby Messrs.Raj Nallari(ActingResidentRepresentativeLA3JM),EugeneMcCarthy(DivisionChiefLA3EI)and Maria VictoriaLister(OperationsOfficer,LA3DR)ofthe LatinAmericaandthe Caribbean Region.

Preparationof the ICRwas begunduringroutinesupervisionby the ResidentMission duringthe latterhalf of 1996andthe finalsupervisionmissionwas carriedout in January1997. It is basedonmaterialonthe projectfileand interviewsconductedinWashingtonandJamaica. Projectfileswerenot availableforKUTPas the projectwas beingauditedby OED.TheBorrower contributedto the preparationofthe ICRby conductingan ex-postevaluationof a sampleof road subprojectsfinancedunderthe loan,providingstatisticaldata anda retrospectiveassessmentofthe projectand commentingonthe draft ICR.

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ROADINFRASTRUCTUREPLANNINGANDMAINTENANCEPROJECT LOAN3275-JM

JAMAICA

EVALUATIONSUMMARY

Introduction

1. Between1965and 1990,the Bankhasbeeninvolvedin sixprojectsinthe roads subsectorinJamaica. Thefirst andthird highwayprojectswerefordetaileddesignand constructionof mainarterialroads.The second,fourthandfifth highwayprojectsfocusedonroadmaintenance.Thesixthproject,the KingstonUrban TransportProject(1984)addressedupgradingand maintenanceofurban roadscombinedwithimprovements to publictransport,and ran concurrentwiththe RoadIr&astructurePlanningandMaintenanceProject (RIPMP)for twoand a halfyears.In addition,the PublicAdministrationReformProject(PARP),1984, addressedthe rationalizationofministerialfunctionswhichwas to seriouslyimpactonthe effortsto reorganize the Ministryof Construction(Works)(MOC(W)- subsequentlyreconstitutedasthe Ministryof Local Governmenat ndWorksin early 1995and hereafterreferredto as "theMinistry". Improvementswerealso madeto humanresourcemanagemenbt ut this had limitedsustainableimpactonemploymenct onditionsat the Ministry.

2. The previoustransportsectorprojectssufferedin varyingdegreesfromthe lackof implementation capacitywithinthe Ministryandavailabilityof counterpartfunds.RIPMPsoughtto builduponthe limited improvementsin institutionalimplementationcapacitythathad beenachieved.RIPMPwas conceivedas part of a US$302millionFiveYearInfrastructureInvestmentPlan (FYIIP)designedto upgrade,and bringbackto a conditionof maintainabilityafteryearsof neglect,the nation'sextensiveroadinfrastructure,includingrural andurban roads,bridges,drainagefacilities,andtraffic signs,signalsandmarkings.The projectprovidedthe following:(i) supportfor the annualinvestmenet valuation,prioritizationa, nd implementatiopnrocess;(ii) coordinationoftechnicalassistance;(iii)facilitatedthe coordinationof the variousexternallyfundedprojects in the Ministry;(iv)and financingthosepriorityactivitiesforwhichtherewas no alternativefunding.

Project Objectives

3. Theprimaryobjectivesofthe projectwereto: (i) strengthenthe institutionacl apacityofthe Ministry to plan,manageandmaintainthe roadtransportinfrastructurein Jamaicain a costeffectivemanner;(ii) improvethe costeffectivenessofthe Borrower'sinvestmentsinits roadtransportsector;and (iii)improveroad safety.Followingclosureof the BankfinancedKingstonUrbanTransportProject(KUTP)in September1993, the scopeofRIPMPwas extendedthroughinclusionofthe followingunfinishedKUTPactivities: a Transport SectorStudy,a highwayupgradingfeasibilitystudyand rationalizationof the bus franchisearrangementsin the KingstonMetropolitanRegion(KMR).Theseactivitieswereto assistthe Governmenwt ithformulationof TransportPolicy,identificationof futureinvestmentsfor possibleprivatesectorinvolvemenat ndto provide foran adequateandefficientsystemofurbantransportinthe KMR.'

4. Theobjectiveswereclearlystated,consistentwiththe Bank's andGovernment'ssectorpolicies, realisticbut relativelybroadin focus.Therewerelimitedperformanceand impactindicatorsincorporatedin the projectdesignwhichmadethe impactof the projectdifficultto assess.In execution,the strategies developedto achievethe projectobjectivesweresimpleandthe projectprovedto be veryflexiblebut of relativelyhighriskdueto the difficultfiscalenvironmentthat existedat the time.

1 ActivitieusndertakenbytheKUTPwerereportedonbyICRNo. 14694d, atedJune26,1995.

ii

ImplementationExperienceand Results

5. Theprojectwas designedto facilitateachievemenot f its objectivesby providingmechanismsand resourcesto the Ministrythrougha programof: InstitutionalStrengtheningT, raining,TechnicalAssistance and Studies- US$5.6million(actualexpenditureUS$6.63million);EligibleInfrastructureInvestmentsUS$25.5million(actualexpenditureUS$27.1million);EquipmentManagemenat nd SparePartsUS$400,000(actualexpenditureUS$1.26million);and Unallocated- US$3.5million(reallocated).

6. Project outcome.Althoughtechnicallysound,onlya smallnumberofthe projectobjectiveswere achieveddueto a numberof implementatiocnonstraintsas listedbelow.The Ministrywas onlypartially reorganizedandits InstitutionalCapacityreceivedlimitedstrengtheningthroughthe provisionoftechnical assistanceresources,studies,trainingandthe developmenotf planningtoolsand mechanismsA. lthough significantlydifferentfromthatplanned,a programof road andbridgemaintenanceand rehabilitation, togetherwithfloodcontrolactivities,was implementedA. n ex-postevaluationof a sampleof road maintenancesubprojects(approximately22%ofthe loanvalue)indicatesthat the investnentsweregenerally costeffective.However,it hasnot beenpossibleto measureif improvementsinoperationaland investment costeffectivenessweremade.Improvementsin overallroadsafetywereachievedbut it is difficultto attribute allof the gainsmadeto the Road SafetyStudyinitiatedbythe project.Limitedimprovementsweremadeto the Ministry'sEquipmentManagementandMaintenancecapabilities.TheTransportSectorStudyassistedthe Borrowerwithtransportpolicyformulationbut subsequentimplementatioonf its recommendationtso rationalizethe existingbus franchisearrangementsdidnot providean adequateandefficientsystemof urban transport.Theprojecthas a highprobabilityof maintainingthe achievementsgeneratedbythe RoadSafety componenth; owever,the Sustainabilityofthe InstitutionalStrengtheningcomponentandthe Ministry'sability to planandmanagethe road networkis lesscertainas it is verydependentonthe prioritythe Borrowerplaces onattractingandretainingqualitystaffand developingmechanismsthat willprovidesufficientandtimely fundsto financethe activitiesof the Ministry. Overall,outcomeis ratedas unsatisfactorya, nd sustainability as unlikely.

7. The projectwas implementedovera six yearperiodandapartfromthe hiringof someofthe Technical Assistance(TA)consultantsn, oneofthe projectactivitieswereimplementedas plannedduringprojectdesign. Threeyearsintoimplementationonly30 percentof the loanhadbeendisbursedcomparedto the appraisal estimateof 62 percent. Aftera sixmonthextensionofthe closingdateanda fourmonthgraceperiodthe loan was 100percentdisbursed.Fivenain factorsnegativelyaffectedprojectimplementation(:i) fiscalconstraints andcumbersomeadministrativeprocedureswhichaffectedprojectfinancing,procurementandstaffing;(ii) frequentchangesin seniormanagementat the Ministryresultedin a lackofcommitmentto the reorganization process;(iii)twomajorministerialreorganizationsduringthe lifeof the project;(iv)the shortageof counterpartstaffdueto poor remunerationlevels,and (v)the lackofa ProjectCoordinatorfor 18months.

8. Bank performance.Bankperformanceduringthe projectcyclewas generallyunsatisfactoryand sufferedfrm deficienciesattributableto twomainfactors.First,the designofthe project- whichwas technicaly soundand inkeepingwithacceptedpracticesofthe time- didattemptto incorporatelessons leamedfrompreviousprojectsin the sector,namelythat:(i) financingmechanismsnecessaryto maintainthe roadnetworkin an acceptableconditionmustbe established;and(ii) theprovisionof adequatelevelsof remunerationto attractqualifiedandexperiencedstaffwithinthe Ministryisessential. However,analysisof the projectperfonnancehasrevealedthatthe measuresincorporatedin the projectdesignto addressthe issues wereinadequate.Second,changesin task managemenftivetimesduringthe projectnegativelyaffected implenientationP. erformanceduringimplemenationwas unven: (i) obstacleswereidentifiedbut underlying constaints werenot addressed,(ii) inputsweremonitoredbutthe projectimpactwas ignored;and(iii)

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