Ex-post Evaluation

Country:

Ghana

Project Title:

Project for Supply of Equipment for Small Scale Bridges / Project for Construction of Small Scale Bridges

Issue/Sector:

Roads

Cooperation Scheme:

Project-Type Technical Cooperation Cooperation; Grant Aid

Division in Charge:

Grant Aid Management Department

Total Cost:

413 million yen (Project for Supply of Equipment for Small-Scale Bridges)
994 million yen (Project for Construction of Small-Scale Bridges)

Period of Cooperation

FY 1995 (Project for Supply of Equipment for Small-Scale Bridges)
FY 1996 (Project for Construction of Small-Scale Bridges)

Partner Country’s Implementing Organization:

Department of Feeder Roads, Ministry of Roads and Highways

Supporting Organization in Japan:

Related Cooperation:

1-1 Background of the Project

Most of the bridges built on Ghana’s regional feeder roads became decrepit quickly because they were constructed of wood. Many of them were dangerous for vehicles to cross, or collapsed and were washed away when the river water rose. These were all factors that prevented residents from transporting cacao, timber and other agricultural products and inhibited the use and provision of education, health and other social services. The government of Ghana requested Grant Aid cooperation for “Project for Supply of Equipment for Small-Scale Bridges” and “Project for Construction of Small-Scale Bridges” to improve residents’ quality of life and revitalize the local economies by maintaining the local road network.

1-2 Project Overview

The project targeted feeder roads in the six states in the southern region of Ghana (Volta, Eastern, Central, Western, Ashanti, and Brong-Ahafo). This construction was intended to improve regional accessibility by supplying materials and equipment needed for the Department of Feeder Roads, Ministry of Roads and Highways (hereafter, “the Department”) to build 21 small-scale bridges (Project for Supply of Equipment for Small-Scale Bridges), and to build seven small-scale bridges that the Department had difficulties in constructing (Project for Construction of Small-Scale Bridges).

(1) Overall Goal
To improve the quality of life of residents in the targeted region and to revitalize the local economies, for instance by facilitating cacao production.

(2) Project Purpose
To improve accessibility in targeted regions.

(3) Outputs
1) The Department built 21 small-scale bridges by January 1999 and enabled the routes to be used for transport throughout the year.
2) Seven other small-scale bridges were built by March 1998, and each of the routes could be used for transport throughout the year.

(4) Inputs

Japanese Side:

413 million yen (Project for Supply of Equipment for Small-Scale Bridges)

994 million yen (Project for Construction of Small-Scale Bridges)

Ghanian Side:

Land and Facilities

2. Evaluation Team

Members of Evaluation Team

Vincent Kofi, Quans Inter-Continental Associates
Festus Annor-Frempong, Quans Inter-Continental Associates

Period of Evaluation

November 25, 2002- December 11, 2002

Type of Evaluation:

Ex-Post Evaluation by Overseas Office

3. Results of Evaluation

3-1 Summary of Evaluation Results

(1) Impact
After the project was implemented, public-sector traffic such as mini-buses and taxis was increased and the travel times were shortened. Additionally, it became possible for large trucks to transport agricultural produce and as a result, accessibility was improved.

Regarding influence on agricultural field, this study could not identify the production change of cacao since it takes about five years to be harvested. However, there are several regions where cacao traders work together to increase the amount of cacao distribution. Some large-scale, wealthy farmers have been expanding their cacao fields. Opportunities of cash income for farmers were increased for all of the regions, by selling their products at roadsides and markets in neighboring towns. On the other hand, evidence showed that agricultural technology, agro-loan system, nor utilization of chemical fertilizers are being disseminated.

In general, it is difficult to secure teachers in remote areas. However, the improvement of accessibility brought the area more chances to receive teachers dispatched from the central area so that some areas could even prepare new schools. There are also some regions that have started new health and medical services such as educational activities and vaccinations. Beneficiaries of these kinds of activities are increasing in the targeted regions.

New barbershops and restaurants were observed in some areas after the project implementation. Also, small-scale coconut processing industries were established in some areas. The levels of economic development in the target area have been varied.

(2) Sustainability
As described above, traffic of public transport and large-scale cargo trucks have increased, and accessibility has also improved. Out of the 23 target regions, outcomes were actually expanded in 21 regions, maintained in one region, and minimized in one region only .

The conditions of the researched 27 bridges were all assessed as “good” according to the Department standards (rated on a scale of 1 to 3), and were maintained in good condition. However, the conditions of the researched 17 roads connecting to the bridges have been assessed as “fair,” eight as “good,” and two as “poor” on which vehicles cannot cross.

After the project was completed, many government agencies were becoming decentralized and privatized, and the function of the Department has been switching from management to planning, instruction, monitoring and evaluation of constructions. The plan aimed at reducing labor workers and hiring technical staff has seen no progress due to less availability of technicians who are highly skilled. Moreover, the number of staff members in the state office has been decreasing although the Department has been maintaining the same number.

The maintenance manual for the small-scale bridges prepared in the project are not always available in the state offices, but they are used in training and workshops at the Department. Also, all the regional offices have been monitoring the existing bridges. Therefore, the necessary techniques for maintenance seem to be sustained.

Budget of the Department has been maintained between USD15.437 million (1998) and USD12.701 million (2002 (actual performance till September of that year.)) supported by government funding and the Grant Aid from donors. However, they will need more aid from donors in order to lay out new road network and establish maintenance plans. (It was reported at a donor conference in Nov. 2002 that an additional USD117.85 million would be needed.) This indicates that there are potential issues for their financial sustainability.

3-2 Factors that Promoted the Realization of Effects

Public transport such as taxis and mini-buses has been continuously increasing as long as bridges and roads are safely maintained and connected. This means that there were real demands for these bridges and roads which enable vehicles access. In other words, the bridges to be maintained in the project were appropriately selected at the planning stage.

3-3 Factors that Impeded the Realization of Effects

The two out of 27 maintained bridges cannot be crossed by vehicles because one had deteriorated due to poor drainage system, and the other was affected by a meandering river after heavy rain.

While new medical and health services such as educational activities and vaccinations have started and have increased the number of beneficiaries, agricultural impact has not been expanded. Therefore, improvement of agricultural production as a result of technical improvement and fertilizers usage has not been seen. This indicates that the impact of the project might be limited despite the improvement of accessibility, if existing sector service is weak.

In general, unpaved roads deteriorate in the rainy season, but daily inspections would minimize the damage. Nonetheless, the Department does not have the staff or the financial resources to do it. Therefore, the deterioration of the roads connecting to the bridge has been potentially accelerated.

3-4 Conclusion

The bridges are in good condition, and most of the connecting roads ensure vehicle traffic. Accordingly, the outcomes of the project have been sustained and developed. The Department outsources road maintenance to private-sector companies under the Department’s guidance and supervision, and some residents are also involved in the maintenance work. The impact of regional accessibility improvement has appeared mainly in the health and medical sector, but the degree differs depending on whether or not new services are provided by other sectors in the project sites.

3-5 Recommendations

To sustain the project impact derived from accessibility improvement, the roads connecting with the bridges must be maintained enough to support traffic. Considering the fiscal condition, the Department must repair the bridges before the problems become serious, so that the total cost can be minimized. Therefore, the Ministry of Roads and Highways and regional administrative organizations should work together and encourage local residents to participate actively in daily road inspections and repair. For the projects developing roads and bridges, impacts would be maximized by working closely with projects in other sectors, such as agriculture, health, and medicine. From the point of regional development, it is important that the Ministry of Roads and Highways coordinates with other related organizations to improve regional road networks.

3-6 Lessons Learned

In case that the project finds it difficult to hire new technicians, or the local consultants and construction companies are significantly incompetent, it is important to plan and implement education and training programs by technical cooperation after Grant Aid cooperation. This will help to secure project sustainability.

3-7 Follow-Up Situation

N/A