Ex-post Evaluation

Country:

Zambia

Project Title:

The Project for Improvement and Maintenance of Lusaka City Roads (Phase 1)

Issue/Sector:

Roads

Cooperation Scheme:

Grant aid

Division in Charge:

Grant Aid Management Department

Total Cost:

2,242 million yen

Period of Cooperation

FY 1996-1997

Partner Country’s Implementing Organization:

Ministry of Local Government and Housing, Ministry of Transport and Communications, Lusaka City Council

Supporting Organization in Japan:

Related Cooperation:

1-1 Background of the Project

Economic and social confusion in the 1980s in Zambia led to significant delays in the construction of roads and other infrastructure for the Lusaka metropolitan area. Only half of the roads in Lusaka City were paved, and even those had only surface dressing and were deteriorating quickly. The Zambian government decided that it was essential for the vital city road network to be repaired and improved. Accordingly, the government of Zambia requested the government of Japan Grant Aid for the Lusaka City Road Rehabilitation Project, focusing on improving the pavement of city roads and strengthening the city’s capacity to maintain the roads.

1-2 Project Overview

By improving the twelve access roads connecting the ten main roads in Lusaka City, the city center and the compound (the living quarters with particularly poor residents) and providing the equipment needed to maintain Lusaka City’s roads, the project aimed to alleviate the transportation bottleneck and revitalize Lusaka residents’ socio-economic activities.

(1) Overall Goal
Lusaka City’s socio-economic activities are revitalized.

(2) Project Purpose
Lusaka City’s road network is improved.

(3) Outputs
1) Twelve access roads connecting the city center and the compound are developed.
2) Ten main roads within the city are developed.
3) Lusaka City’s capacity to maintain its roads is strengthened.

(4) Inputs

Japanese Side:

2,242 million yen 1995 I/II: 838 million yen

1996 I/II: 437 million yen

1997 I/II: 967 million yen

Zambian Side: Land and Facilities

2. Evaluation Team

Members of Evaluation Team

Planning of survey: JICA Zambia Office Post evaluation: Robert Haloba, DMCG
Edward Maembe, DMCG

Period of Evaluation

November 28, 2002 - December 13, 2002

Type of Evaluation:

Ex-post Evaluation by Overseas Office

3. Results of Evaluation

3-1 Summary of Evaluation Results

(1) Impact
The number of public transportation vehicles which travel the roads connecting the compound to the Lusaka city center has been increasing. This survey at the Chawama Compound showed that the traffic of mini-buses and taxis were 194% more than in 1995. In all the nine compounds surveyed, the traveling time to reach the center of the city was reduced, and this effect has sustained in seven compounds. In addition, the routes traveled by the mini-buses have increased at eight compounds along with the expanded travel times, so the convenience of the compounds is greatly improved.

According to the market committee of the Matero Compound, the improvements of the roads made it easier to purchase and deliver products, and the increase of the marketable products also led to a ripple effect to the stores within the compound. In addition, there are also trickledown effects in the medical service sector.It is easier for patients to get to the health center and for the staff to commute to work, and the Kaunda Square compound now has a mini-bus directly to the university hospital.

On the other hand, according to the observation by the study team, there was a temporary increase in traffic accidents in Chawama after the completion of the project, and in several places waste was piled, which caused road drainage blockage and the deterioration of the living environment.

(2) Sustainability
It was reported in the survey conducted in 1999 that the traffic jams tended to be centered in one particular part of the central section in the morning and evening rush hours.*1 According to the Lusaka Engineering Department, traffic increased in all ten main roads, but the traffic jams had eased on five roads, increased slightly on two roads, and significantly on three roads. Furthermore, the Engineering Department reported that out of the twelve access roads, two roads belonged to the top rank, four roads to the second rank, most significantly, six roads to the third rank, and no roads assessed at the fourth and fifth ranks, which indicate the need for repair work.

In terms of the condition of roads, while the road surfaces are comparatively well maintained, many roads have problems distinctively with water drainage. According to the work records of the Road Maintenance Office on the roads improved in the project, they clear the weeds every year but only clean the drains partially and do not mend the road surface.

Regarding operation and management, the Lusaka Engineering Department and the Road Maintenance Office are still responsible for maintaining the city’s roads, including those targeted in the project, however their employees have decreased significantly. In 1995 there were 244 staff, and this had fallen to 144 by 2002. The department’s responsibility for direct maintenance work were consequently reorganized and integrated from seven into two.

The equipment donated in the project were used and stored by the Engineering Department and the Road Maintenance Office. It was reported that a pick-up truck and parts for the concrete cutter were stolen and these have not been replaced. In addition, the road-related budget in Lusaka City is supplied by the Ministry of Local Government and Housing and the Lusaka City Council, but it fluctuates every year and is very unstable.

3-2 Factors that Promoted the Realization of Effects

(1) Factors Concerning the Planning
N/A

(2) Factors Concerning the Implementation Process
The Zambian government created a long-term and integrated “Road Sector Investment Program” from 1997 to 2007. After the project was completed, the 105 km extension of the road network contributed to the decrease of traffic jams throughout the city. Furthermore, the increase in the number of mini-bus companies also contributesd to the development of the effect.

3-3 Factors that Impeded the Realization of Effects

(1) Factors Concerning the Planning
N/A

(2) Factors Concerning the Implementation Process
1) The decrease in personnel at the Engineering Department and Road Maintenance Office and the decrease in the construction work under their jurisdiction was a result of the policy to privatize road maintenance and construction. There are many roads in Lusaka that are in urgent need of large-scale repairs, and the roads improved in the project are likely to be given low priority for repairs since they are in comparatively good condition.
2) As a result of the improved roads, vehicles—the mini-buses in particular—increased their speed and led especially to a rise in the number of traffic accidents in the compounds. A great deal of waste was collected in the roadside drains, exceeding the ability of the Road Maintenance Office to dispose of it and clogging up the drains. Not only does waste accumulation have a negative impact on the surrounding environment, but the water overflowing from the gutters in the rainy season erode the road surface and could accelerate the deterioration of the roads.

3-4 Conclusion

The road network and the expansion in services from mini-buses and taxis has greatly improved the transportation convenience between the compounds and the city center. The residents have gained more opportunities to receive socio-economic services as well as to take part in socio-economic activities after the project. The condition of the roads upgraded by the project was fair at the time of this evaluation, but the Lusaka Engineering Department and Road Maintenance Office has not conducted repairs on the targeted roads on a continuous and systematic basis. Consequently, no maintenance plan has been designed since the project completion.

3-5 Recommendations

Lusaka City should take thorough measures to deal with the problem of garbage collection in the roadside drains that will affect the sustainability of the roads. Given the limited budget available in the organizations, active involvement from local residents will be essential in cleaning out the garbage accumulating in the drains. In order to sustain the improved roads, it would be an appropriate measure for Lusaka City to tackle this issue in conjunction with the divisions directly responsible for garbage collection, organizations related to the health and public sanitation sector, and NGOs currently involved in community development for effective outcomes.

3-6 Lessons Learned

Since traffic accidents became more frequent after the road work was completed, speed bumps were added. In the case of rehabilitating the roads in areas with dense populations such as the compounds, it is required to design measures that prevent speeding as well as installing traffic signs and crosswalks in order to ensure the pedestrians’ safety.

3-7 Follow-Up Situation

N/A