b$orto II It IN "|1$ - | P &'P,,f4 IATAL PMOJECT PAPER (PROP) 1 PACE I eI2Z AG1,l

I. PROJECT IDENTIFICATION rY,1 :eg-T -TL APPENDIX A7 TACHI t UG AL MDAD KAINTINANCE AND ll4B' HENNT

"

W 0C1 New . PROJECT NO. (Of11. I10A.p

I I I625-l -610-180 .sRCIINT .MvrJ /4. LIFf OF PROJECT S Y 196S MORIGINAL

D[ ut ___________k] aoi° , 6 _ REV. No.,EJ *s.,eNALEntente Fundj *NTgRReON*--N_ ENDS Y 76 CONTR.'PASA No.a*r-686

11. FUNDING (5000) AND MAN MONTHS 04M) REUIREMENTS "WNDNG C. O. G.a PRSNELPATCIANS E. IF H. LOCAL EXCHANGE

tOIN I. PERSONNEL PARTICIPANTS COMMOO- OTHERTOTAL P.ASA/CONTR. CURRENCY RATE! S I'SCOSTS (U.S. OWNED FISCAL S N M in TIS 1 2 II) U.S. (2) COOP COUNTRYYEAR S "IM GRANT -

I PRIOR THRU- -TLOAN AlJOINT IU'oGE-T ACTUAL FY 3632* 1832 476 661 2004 1014 125 1653 431 30

A. OPRN FY 75 1538 670 74, 173 691 695 0 670 174 220

3 '0,UOGET.,0 76 815 305 80.440 .161 0 70 305 80 300 4 BUDGET

61 ry $.BUDGET

42 FY G. BUDGET

7ALi SU. FY

S. GRAND

TOTAL 5985 2807 730 12744 149C 1709 195 2628 685 824 9T rR DONOR CONTP.IUTIONS-A1PhA-APE DONOR- OF 10'.KIAO0 OF GOODSISr-RVICES 1ICl A,-C,,,',l

FAC (France) Instructors, scholarships, equipment 1$ 675,000FED ormitory, instructors $1,116,000

M. ORIGINATING OFFICE CLEARANCEI 1ArFTERJames Purcell (Draft) TITLEProject Oticer kLome) oAT L

Bob Geeinsw,_ AFR/CWR Dec.. 21, 1974 2 - F. AN,-' OFFICERCIL TITLE DAT

I IV.PROJECT AUTHORIZATION

I "'OI3ITIOt3SOF APPROVAL The Project Development Committee fo.ussed on several areas in the review of this

Project Paper and recommends that the Grant Agreement for FY 1975 be amended to re­quire certain obligations on the part of the Entente Fund and RRMTC prior to disburse­ment of AID funds for commodities and scholarships in FY 1975. (See Sec. I.F, Page 7)

*FY 1976 CP and 12/31/74 U-203 show cwmmulative obligations of $4,116, difference of $484 which was obligated FYs 1963-1968 under original bilateral project. Total life of

3.;"c. 'A ICr'. project cost. including ,bilateral phase, e ua s $6,469.noI * pf r. I NATI-fli:: DA I" slun 'OFF. SIGNATURE ItNf.

AFR/DP Robert Iluesmann 1taGC/AFR __untsine_

AFR/DS Princeton Lyan) AA/AFR Donald Brown AM"

-l thur Hahdl gC Arthur Z. Cardiner. I-J.-As s1/tnt d inn,Fi I€ r;F1,015.AfricI a1 .4, At-1410VAL A 'Airs Att

"Assistant Administrator, Africa / " * , .-7,,, u ,@,, ,,, ,, . ,.,.-,,., -- • i n n i i­i

PROJECT PAPER OUTLINE

I. St*]IAR' AND REO).IMENDATION

A. Project Development Team 1

B. Grantee 1

C. Life of Project Cost 1

D. Justification for Extending the Life of 3the Project

E. AID Assistance, FY 1975-1976 5

F. Obligations and Covenants 7

G. .Contributions of Other Donors 10

Il. The Logical Framework Matrix 12

. PROJECT BACKGPOUND 17

A." RRTIC Accomplishmer ts 17

B. Implementation Problems 21

7II. PROJEC' ANALYSES 23

*A. .Economri .. nalysis 23

Bo. Policy Analysis 24

C. Administrative Analysis 26

D. Technical. Analysis 27

E. Finoncial Analysis 31

IV. PRDJEOr I!cr'LE'E: TIcN 31

A. lirl ements-ion Plan 31

B. Evaluation Plan 32

?ACIlWENTS

I. Budget Summary, FYs 1969-1976

. Hanpower Requirements

3. Hanagement, Instructor Support Positions

4. Logical Frameowrk Matrix

5. RRiC Equipment Status and New Requirements Report

6. RRMTC Management Action Plan

I. SUMAKY AND RE01TtENDATIONS

A. Project Development Team

Deputy Director, AFR/CWR, Irving Coker .Project Officer, James Purcell AFR/CWR/OIC Entente, Frederick Gilbert AFR/CWR/Coastal States, Bob Gee AFR/DS, Michael Mau AFR/DP, James Govan SER/FM' Mark Vahey PPC/DPR, John Shannon GCiAFR, Thomas Muntsinger

Be Grantee

The Entente Fund for the Regional Road Maintenance Trainin& Center

C. Life of Project Cost (See Attachnent L:Budget Summary FYs 1969-1976)

The original and revised Project Paper life-of-project costs are

as follows:

Original Revised

Obligation span FYs 1969-1973 FYs 1969-1976

Implementation span FYs 1969-1975 F.Ys 1969-1976

Life-of-Project Cost $5,917,000 $5,985,000

Obligated through 6/30/74 ($3,632,000)

FY 1975 obligation ($1,538,000)

FY 1976 obligation ($ 815,000)

*Not increase of $ 68,0o0

-2­

[Ccomncut on the Revision of the Project Paper: The substance of

the revision of the original -Project Paper#whidh was approved in FY 1969#has

been based on the Projact Appraisal Report submitted to AID/Washington by

the Area Development Office/Niamey in April 1974, and on the reconimendations

of the Project Development Team which reviewed the.Project Officer's draft

during October-November 1974. The revised.Project Paper presented here Lakes

into account the substantial implementeion progress made to date and focuses

on those critical areas remaining for successftl completion of the project

by mid-CY 1976. The Project Paper revision, thereforeis.not intended to

be an exhaustive restatement ,of the project and must be read as an adjunct

to the original Project Paper. However the text of this revision has been

written in conformance with the Agencyis revised guidelines for Project

Papers for analytical purposes.]

-3.. D, .,rtificnt.en for rJxtending the Life of t,' rulect

The RIRgUC has entered one of the most, if not the most, critical phases of Its development. It will bp maturing during IY 1975-1976 into a truly independent apd self-supporting regional institution. The challenge to donors assisting in this effort, and most particularly AID, is to remain firm.in the deternination to phase opt external assistance while retaining a certain flexibility to adjust to development in a changing situation.

In pursuing our objective of developing a viable institution at the Lome Center, AID strategy during these final years of assistance is to stress the importance of competence and quality in creating an effective institution. Experience has shown that,llike most training institutions, the Center's success will hinge on the support it receives from its patrons--the Entente states and other African nations. And this support can be expected in pro­portion to the quality of service rendered to these clients.

On the basis of the ADO/Niamey PAR, dated April 1974, particular em.hasis will be given to achievingtgr ater productivly. from the IMITC's considerable human, physical and financial resources in assistine the institution to to realize its potential. AID and the Center!s management have agreed that the following crucial areas will receive primary attention:

1. RR.MTC Personnel

The recruitment and employment of high caliber instructional and supporting staff, improvement of their technical qualifications, enlargement of their understanding of their fields by in-service training, and develop­ment of a professioiial commitment to the institution will be emphasized.

2. Management

A"

Modifications of the organizational structure, including

institutionalizing its mana94ment system (in particular equipment control

and preventive mdintcnancc), so that all departments of the Center are

working in concert Loward cormnon objetives will be emphasized.

3. Fiscal Policy

Broadening and fully developin fiscal resources required for

the Center's program is a matter which will challenge-all parties and re­

quire constant attention. Careful financial controls and reasonable stu­

dent train*.ng costs are essential to the Center's eventual independence.

Institutional development at the RRMTC has been a long-term effort,

and progress has often seemed painfully slow. The building process has not

followed a straight line. However, the AID strategy is to promote those

changes at the Ccnter which take recognicion of lessuns learned to date

and which will make it possible to operat4 the institution without ex­

patriate assistance.

-5­

go AID AssiNstnnce, FYs 1975-1976 (SOO also PP facesheet)

L. Personnel (See Attachment 2)

The Philco-Ford contract is being extended a total of 22 months, from September 1974 to June 1976, to provide for the long-term servic,s of three management advisors and the Chief Mechanic on the support staff.

Ten instructors and three support staffers will be carried only through December 1975. The instructors will work with their counterparts utili:-

Ing the recently revised practical-training curriculum; they wil1 also provide in-service training for incoming instructors. In FYs 1975 and 1976, a total of $950,000 is required for 248 man-months of long-term

se.',ices, or .$645,000/168mm and $3 05,000/80mm, respectively. In FY 1975, $25,000 is tequired for 6 man-months of silort-tnrn ccn.ultant ser­vices in the areasof financial managemept and maintenance systems

deve 1opment.

26 Participant Training

The number of man-months of trainin p

program will continue to decline, as it has over the past three years. For FYs 1975-1976, a total of'$288,000 will be required to fund 1,152 man-months of training at the RRPI: FY 1975/$173,000/692 M and FY 1976/

15,0ooo/46o MMs.

In FY 1976 $60,000 will be required to fund 10 trainees (2 fr-om each Entente state) in nlddle-managcment 'raining in the U.S. The

program will emphasize skills development in costing and budgeting

-6­

systems@ On completion of their nine-month training course (1 man-months),

they will return to their rtispective public works departments to apply

their new management skills.

For FY 1976, '$265,000 willi be set aside as a final scholarship con­

tribution to this terminating project. While projections for financial

self-sufficiency are good, they are based on the principle that participat­

ing countries will be able to finance the cost of sending students to

the Center: This may not be the case with the poorer African states,

especially those which are incurring treitendous financial burdens imposed

by recurring drought. Provision will be made in the F1 197b grant agree­

ment for a conditionnl amount NTE $265 ,00to be placed in a Trust Fund

for use over several years for the most needy countries for 1,060 man-months

bf training.

3. Cormodities

The improved and revamped practical-training program incorporates

the former activities-of the mobile teams, and will also be equipped in

FY 1975 at a cost of $570,000, This am-iJnt restores, in effect, a portioil

of the funds obligated in FY 1972 and 1973 to equip Mobile Tc,.,m I, but

which were subsequently deobligated. Some of the vintage U.S. excess property

equipment supplied for the project will also be replaced. Other r.ommodities

to be purchased in FY 1975 include spareparts ($100,000) to support pre­

viously supplied U.S. equipment and training aids ($25,000). These sub­

stantiol expenditures for equipment and spareparts will fulfill the Center's

equipment and spareparts support requirements.

4. Other Costs

Costs in this category ($70,000) are for seminars and support

of the expanded practical-training program. (See also pp. 29-30)

-7-

T. jtio.s and Covenant4 Coverning Continued AID Assistance

The Project Development Committee focused on several areas in the

review of the Project Paper as submitted by the Project Officer, and re­

comwmends that the following actions described below be taken. With AID

fully intending to terminate funding by the end of FY 1976, RRMTc policy­

makers and management must m ove decisively if they are to maximize AID

The FY 1975 Grant Agreement shall beassistance during the next 18 months.

amended to contain certain obligations and covenants to be met by the Entente

Fund and RRMTC as an understanding to continuance of AID assistance. These many of the

obligations and covenants are realistic and/staffing and financial management

planning requirements can be met by April 30, 1975 and approved by the

Council of Administration NLT June 30, 1975. Th-se obligations and covenants

are vital to achieving the "conditions at the end of tho project" or EOPS.

The.Philco-Ford contractor began last December B'74 to assist the RRMTC to meet

these requirements by working out detailed implementation/management plans

in the following areas:

1. Realistic Africanization Staffing Plan (See Attachment z)

To date, the plan to gradually Africnnize the Center's staff

has been guided less by the availability of candidates than by budget con­

siderations. The RRMTC is planning to complete the counterpart staff in

1975 to coincide with planned increased contributions from the Entente states.

The obligation/covenant regarding staffing will serve as an additional in­

centive to the EF to move rapidly. This also satisfies the intent of the

Audit Report (July 1973, No. 4-625-74-3) which recommends that AID and Lhe

Entente Fund mutually agree to a counterpart staffing schedule as a condition

for continued AID assistance.

48.. 2. Realistic African Financial Planning

The problems of achieving timely financial contributios by the.Entente states and effeczve budget controls at the Center are.of such Importance to the Center's viability as to require AID to include improve­ment in these areas as an obligation/covenant in the FY 1975 Grant Agreement amendment in FY 1975. Accomplishmants in the financial planning #rea will also meet the intent of the Audit Report recommendation on this subject.

3. Equipnent Control and Preventive Maintenance Systems

The justification for the major input of $670.,000 for new heavy equipment and spareparts is based on the comprehensive technical and cost analysis of the Center~,s overall equipment requirements. This was performed by the contractor and is provided at Attachment 5. However, the Center must devhlop equipmt­1 control and preventive maintnnance systems if the new equipment and spareparts are to be utilized efficiently and to their maximum. Because of the long lead-time involved in procuring this equipment (minimum 18 months), the PIO/Cs should be processed as soon as the Grant Agreement is amended whereby the RRMTC commits itself to meeting this obligation/covenant"

(In the event that there is a delay in the delivery of equipment, the project budget is sufficiently flexible to provide for the continuation of one con­tract position into FY 1977 to oversee the assembly and testing of the new equipment and checking of spareparts compatibility.)

[Page 9 deleted]

0. Contributions of (W"her Donors

i. FED (FY 1975/$ ,016,OO0)

The VED is finanncing from "FED 111" the construction of a

fully furnished 160-bed stiMent dormLtory.complex at a cost of $1

million (250 million CFA). Construction will be completed next summer.

Savings on operating costs which are expected will contribute to even­

tual finanpial independenc. nf the institution. By housing students in

modern facilities adjacent to the Center rather than some miles away as

they are today, RRITC management will also be eliminating many adminis­

trative problems while enhancing the Center's institutional identity and

cohesiveness. These new modern doritories will offer a very visible

exnwple of the RPtfC's growth.

Since the beginning of the project, FED has contributed about

$100,000 for instructors' salaries. It will provide $16,000 in FY 1975.

1. FAC (FYs 1975-1976 $182,000)

France will continue to provide for two more years of as­

sistance as follows: In FY 1975, $90,000 will fund three instructors

and provide for 40 student quarters or 160 man-months of training. In

FY 1976, $92,000 will continue to fund 'the three instructors and provide

for 42 student quarters or 168 man-months of training. Additional funds,

to be determined, will be granted to the .RRMTC for the purchase of

spare parts and training aids, thereby conleting FAC's assistance to

project for a total of $675,000 since FY 1969.

3. Other

It is expected that by 1976, at least 75 per cent of .the

annual financial requirements of the RRMTC will be met from African sources.

It is likely that external donorsp including AID~will consider inakitg small*

-11­grants undor other projects to help finance student stipends for study

at the Center or to permit advanced instructor'training abriad.

-12.

H. The Logical Framework Mtatrix (See also Attachment 3)

A. Sector Coal

To improve the capacity of the Entente states to

maintain their road network

A.2 Measurement of Coal Achievement

ac Increased numbers and skills of road maintenance

personnel employed in maintenance and improvement

of roads

b. Increasingly standardized road maintenance techniques

c. Increased kilometers of roads maintained and/or

improved 'annually

A.3 Important Assumptions (as related to Goal)

a. Improvement in capability to maintain roads leads

leads td adequante maintenance through proper

management of improved human resources

Entente states continueb. to provide productive employ­

ment on road maintenance for newly trained perconnel

c. Adequate euipment shops are available for productive

employment of upgraded operator personnel

d. More and better trained road maintenance personnel

will cotinue to be required as traffic increases on

Entente roads

B.1 Purpose

Establishmnnt of a viable regional training institution

(RRMTC) for Entente road maintenance personnel

B.3

-13­

5.2 End of Project Status

a. Full policy and nagement responsibility is ex­ercised by the Council of Administration working

-through the RRHTC Director

b. Full African instructor and management staff in

place

c. Training curriculum is fully developed and imple­

mented

d. Center's budget is fiPanced at least 75 per cent

from African sources

e. Entente and other states send participants

f. Clasrooms, garages, shops are fully utilized

for training

g. quir~cd eqituu is avai inble orer"t n an

fully utilized for training

:Important Assumptions (as related to purpose)

a. Countries realize better use of scarce resources

availa!,le for training can be achleved through

regional effort

b. Qualified African management and instructor personnel

can be retained

c. Management and instructors continue to provide train­

ining at same level after termination of AID assist­

ance

d. Sufficient donor support in formative years and con­tinued limited support thereafter

-14­

C.l Outputs

a. Well-trained and performing management, instruc­

tional and s.upport staff

b. -Students tra ined annually

ct Practical 'training program developed and implemented

*d. Periodic regional seminars on road maintenance

a. Public works mid-management personnel trained and

utilizing new skills

f. Management systems and operating procedures

C.2 0utput indicators

a. Afri:can staff: management 5, instructors 4,

support 4

b. 225 students tra!ned annually from cross-section

of Entente and other'states

c. 13 courses conducted annually in French

d. Basic operator and mechanics courses offered in

English

e, One or more biannual regional seminars

f. Total 10 participants return from U.S. after 9­

month courses and making use of new skills

g. More effect.tve use and better care of equirpment

Important Assumptions (as related to outputs)

a. Full and capable African staff can be recruited

(Covenant in FY 1975 G.A. ainendmont)

b. Entente national budgets will place increasing

emphasis on meeting financial needs of Center

C.3

-5­

(Covenant In FY 1975 C.A. ainealdment)

C. RRXTC training satisfie~s needs of African

.nations

d. "ormal personnel relations and rapport exist

D.1 Inputs

a. AID

-TA contract personnel (14+)

-Project Manager (Direct hire funded under operating

expenses)

-Commodities (equipment and spareparts)

-Scholarship grants

-U.S. participant training

-Other costs (seminars, etc)

b. FAC

-Instructors (3)

-Scholarship grants

-Commodities

c. FED

-Construction of dormitory

-Instructor (1)

d. Entente states

-Annual dues

-Management

D.2 Budget/Schedule (Se'e I.E. 1-5)

-16.

b.3 Isportant'Assumptions(as related to inputs)

a .Techical assistance ocnv~yed will be timely and

in language of trainees and Center staff b. 'Effective RRHTC management of scholarship, seminar

and operational funds (Covenant in FY 1975 G.A.

amendment)

C% Qualified candidates for U.S. management training

available

d. Eqpipment ordtred and delivered when required.

(subject to cited covenants in FY 1975 G.A. amendment) e. Equipment proylded suitable to training needs f." Entente states increase contributions and make

timely payments (Covenant in FT 1975 G.A. amendment)

1I. P*OW.£CT BACK'GROUND

A. RDITC Accomplishments

Five years of collaboration between the U.S., France, the FED and

- five Africaq nations, has created one of Africals.leading training institu­

tions. Many of the basic end of project conditions delinoated in the original

PROP - regionalization and Africanization of the former U.S. - Togo training

center leading to a viable and independent institution - have already been

substantially established.

1. Regional Policy and Management Direction

Since 1969, full policy direction and management responsibility

of the Center has been exercised by its Council of Administration composed

of two representatives from each Entente member state. Chaired by a Nigerien,

the Council has met on nine occasions. The approval of budgets, hiring of

*a ...-.pruL£ IutaI . . o...... l, "- tlng .: , :J.._. ....... ... h ,.-:­

governing board. Between Council meetings a permanent Management Co::;mittee

works closely with the Togolese Director of the Center in planni!1g, managing

and evaluating the Center's programs. The make-up and activities of these

'two governing bodies reflect the truly regional nature of the RRMITC.

2. Regional Financial Participation

Regionalization of th; Center in 1969 implied a clear comnit­

ment by the participating nations to assume gradually financial respohsibility

for RRMTC operating costs through country contributions,tulion and operating

receipts. A five-year Financial Plan (1972-1976), leading to solvency and

basic financial independence of the RRMTC, was developed by a Philco-Ford

financial analyst and adopted by the Council of Administration March 1972.

-IS-

Annual dues paid by each Entente state amounted to $7,000

(2 million CFA) in 1971, $12,O00 (3 million CFA) in 1972 and $31,000 (7

million CFA) in 1973, an increase in only two years of 350.. Contributiols

from each nation in 1974 are set.at $38,000 (9.5 mil.lion CFA).

3. African Management and Instructor Staff (See Attachment 3)

Explicit in development of RRNTC as an African institution is

the replacement of American and French expatriate personnel and gradual

Africanization of all management, instructional and support positions. The

original PROP identified the following key positions to be filled: 8

instructors, 2 administrative/logistic experts and a vocational education

specialist. These quantitative targets were met; however, the education

expert and one instructor subsequently resigned.

With the Center's training program expanding and the need to reflect the Center's regional nature in its instructional staff, the Council

of Administration adopted a new, time-phased Africanization plan in March 1972.

A year of only modest success in recruiting additional personnel from the

region led to the adoption in late 1973 of induceme-its to those outside

Togo to accept positions on the RRMTC staff. The offer of a bonus of

20%4 of base salary, a $60/month housing stipend and a transportation allowance

are expected to improve markedly the prospects of:acquiring high caliber staff.

4. Meaningful Training for the Region

Since 1969, the RRMTC has offered a full range of 12-15 French

language courses for heavy equipment mechanics and operators, road crew fore­

me*, and classes in the specialized fields of machine tools, supply manage­

ment, electricity, die!el injection and soils. Mechanic and operator

courscs in En.lish have also been conducted for Anglophone African nations.

-19-

These courses in English Ijave been dropped tcwnpor:irily from the curriculu

until substanial unpaid training bills are cleared by three delinquent

Anlophone countries.

Training offered at RMTC is not only meeting the needs of

-the Entente sponsors but is being used extensively by other African nations.

In 1973 the Center trained 175 students bringing the total number trained

since 1963 to 1130 from twenty-two nations. Of this total, 32% (361 trainees)

were frcm sixteen non-Entente countries; five were from Europe.

Entente States Non-Entnte States

Dahomey 183 Cameroun 22 Senegal 1

Ivory Coast 36 Zaire 25 Madagascar 2

Niger 85 Gabon 76 Congo 4

Tc-o 374 Chad 47 Sierra Leone 32

Upper Volta 86 C;Ak 44 Liberia 4 764

Mauritania 25 Ghana 28

Mali 22 Nigeria 11

.Burundi i Gambia 4

361

A thoroughgoing reassessment and adjustments in the curriculum

were completed in 1973. In December of that year, the Council of Administration

approved the first major modifications to the education program, most notably:

a) adoption of a fixed 11-month (September-July) school year which began in

1974; b) reduction of the number of courses to 13; c) reduction in instructor

teawhing hours to 6; and d) authorization for Center management to make

major changes in the content of courses.

-20­

5. Regional Resource .Cntai

Tn addition to its role as a school offering course and on­

the-job training to.-meet specific needs of the participating countries,

"the'Center serves as a resource center: a)to ascertain training needs and

analyze existing and planned programs of the participating countries;

b) to advise participating countries on methods of developing in-service

training programs; c) to develop training aids and materials; and d)

to host periodic regional seminars on coninon road maintenance problems.

Late in November, 1970, the RRTC was host to 30 Entente

and donor ,iation representatives for a four day seminar on road maintenance

personnel training requirements. Several recoimneidations of this con­

ference were later incorporated into the Center's training programs.

RRMTC collaborated in 1973 with the FED and the Administrative

Secrcariat of the Gou.ull uf Lh EutCta i,, publication of "N'lotc c on the

Training Needs of the Entente". Based on surveys undertaken in each

nation, road maintenance trairsing requirements by numbers and type were

projected for 1973-19/Y. The study concluded that these training require­

ments for-several years to come corresponded qualitatively and quantitatively

to the capacities of the RRMTC.

-21­

3, ZWlmentatfn Prcblneui (See Also I.F' p. 7)

Theno'very real cuccesses to date were accompanied by several

1Mlcmentation problems which hampered more rapid development of the

Insait~tion.

I. Project Personnel

o-ne r of U.S. contractFrequent turnover in Center mn

team leaders; difficulties in keeping equipment operational,untitmely country

financial con ,ributions, sub-par contract employees and mediocre local support

staff combined to pose formidabl.e obstacles. Continuity and momentum, two

critical elements in the institution building process, were denied to the

project when in less than four year (1969-1973), RRMTC had three Directors

General and three Philco-Ford team leaders. An auxiliary problem, but one

that has now been resolved, was the AID contractor's difficulties employing

'eh- persv.[ inh ri.cip- ine n,ofidJtcchn-.c _y speakin ntahiIah n

It was only beginning inand conveying to them a sense of project purpose.

late 1973 that for the first time in two years, determined and forceful

management was being.p.-ovided from all quarters.

.2.Mobile Training Units

To complement the instructional program offered at the Lome

Center, RRMTC attempted on bi-national mobile units to offer training in

actual job productivity and teamwork'for public works department employees

who lacked the qualifications for more-in-depth formal training offered

at the Center itself. The first cycle of Mobile Unit I,.working on a road

between Togo and Dahomey during the period October 1971 to July 1972,

-22­

provided valuable experience for 28 heavy equipmeajt mechanics and operators

who reconstructid 17 kms of laterite road. However, this first effort as

well as an aborted second cycle were plagued by equipment breakdowns and_...

administritiOe difficulties.

Following a critical analysis and evaluation of the operations

of Mobile Unit I and plans for a second unit to operate between Upper Volta

and Ivory Coast, the Coun il of Administration decidod to abandon the mobile

team concept. The combination of high c6sts relative to studcnts trained,

inadequate quality of training provided, and most importantly, the

forraidabl c qg3tic and minagemant dii'.. ties of i;unning the teams far

from the center, led to the conclusion that mobile training teams are 4. uneconomical 'instruments for practical training. (Proceedings of the RPMITC

Council of Administration meeting, Lome, Togo, Derember 10-12, 1973.)

3. Maintenance and Spareparts

Development of the Center was also adversely affected by

maintenance problems created by the 608 Excess.-ropertyh-.avyeqWuipment

fu..nished hy the 7.S. in 1970-1971. Much of this equipment was unsuitable

or ob olete and thus difficult t.i support with spare parts; other pieces

were inadequately rehabilitated prior to delivery in Lome. Only recently

has it been confirmed that improper equipment use, without adequate super­

vision, caused e;uipment damage. The Center was simply unable to cope with

this state of affairs, training programs suffered, ond worse, officials of

the Center and their expatriate advisors were consumed by the task of

tryiq, to keep this equipment operating.

-23­111o PROJECT ANALYSIS

A. Econon'ic Analvsis

Within the Entente countries a high priority is given to the

development of the transportation sector. The coLntries possess a well­

planned road network built during the colonial period,.and since indepen­

dence have received extensive qssistance for the construction and improve­

ment of major links, particularly by FAC and FED.

In recent years, increasing emphasis has been placed on the

development of adequate systems of road maintenance as the countries become

more aware of the high cost and difficIty of transportation over poorly

maintained rcads. The continually deteriorating road network causes great

losses to local economies, both directly and indirectly. Many roads in

these countries are cut off completely in certain seasons, and in other

seasons are so poor that cormmercial carriers do risknot their vehicles by

traversing them. The result is that large agricultural areas are without

access to markeLs anid consequently do not increase their production even

if new agricultural techniques would allow such increase. There is also the

direct relationship of poorly maintained roads to vehicle operating costs.'

In addition to direct economir. losses, poor road corlitions cause serious

problems in other domains, including administration, health, security, and

in allxeas which require movement of personnel and merchandise.

-24-

B. Policy.Anlysis

With litilced funds and enormous demands on resources for agri­culture, health and other sectors, essential road maintenance traitilng must be met in the'most economic manner possible. In addition, many

road maintnance relate d activities - coordination of in-service train-Ing prgrams, sponsorship of technical seminars, and the development of

training aids -are also carried out best by sharing.thc high overhead

and technichl personnel costs. For these reasons, decision makers in the Entente countries now look to their K-gional Road Maintenance Train­ing Center in Lome t,. provide the required trairning for technical per-onnel

in their public 'ork. departments. By pooling their human and financial

resources in common development of this training center, the member states

uave bee.a maximizing use of their scarce resources in receiving quality

L-ailtoz ailored to t . . ...

Offic.ais of the Entente states are responding to the need to improve their road networks by placing priority emphasis and taking vigorous

steps to.develop their road mairAtenance apabilities. Larger portions of

their transportation budgets are being allocated to road maintenance; there is greater movement toward coordination of road construction standards and maintenance policies; ministries of public works have be.en reorganized, and with aid from the IBRD (Upper Volta has benefited from rAC.assistance), each

of the five Entente nations ha underway a comprehensive road maintenance

program. Realizing that modern equipmert and the best road maintenance

techniques are only partial answers, considerabjattention is being given

M25.

to the scarcity of adequately trained operational and technical personnel.

A recent FED - Council of the Entente study, conducted in collbboration with

the.Rogional Road MainLenance Training CenLer, shows a fairly steady and

constant demandfor training'road maintenance personnel of the Entente

community.

Training Needs of the Entente Countries

1973 1974 1975-1977

Dahomey 37 38 63

Ivory Coast 35 32 78

Niger 66 53 65

Togo 55 64 104

Upper Volta 56 62 135 249 249 445

-26-

C. Adminf-trntive An-ilvss. (See also A1,tcthvr.cnt 6)

To cmplete development of the Centcr's capacity tv plan, manage

and evaluate its own affairs without expatriate assistance, considerable

attention will be given in 1975-1976 to refining and institutionalizing

management systems. Only with sound and sharply defined internal operating

procedures in place can the Center hope to maximize use of the resources

at its command. These systems can also partially reduce the need for highly

skilled support .staff.

Beginning with a major revision in the organizational chart and

pt.rsonnel position descriptions, clear lnes of authority and the principle

of r*ccountability will be established. Separate departmental budgets will

be drawn up and regular management staff meetings instituted. Development

.of feedback,to management from the Center's basic "work order" system will

1nr'y"'; A ~rtc r -~ -art~ mvAre Is at Oioy hi~vt ~and nten.al

procurement, as well as equipment utilization and personnel. With these

mechanisms and controls, the Director of the Center will have the con­

fidence to delegate responsibilities and decision-makng authority ariong Center

depar:ment chiefs and make possible the rigorous enforcement of modern

operating procedures.

New procedures for recruiting, matriculating and evaluating students

are being simplified and standardized. In early 1975, the education advisor,

with technical expertise from his AID counterpart and an outside consultant,

will design and conduct .afollow-up survey of Center graduates. Among the

other areas identified for.attention is the need to systematic.ally public.ize

R101TC through paknphlcts and other_ promotAonal materials.

-27-

D. Technical Analvsis

1. African Management and Instructor Staff

The foremost task in these remaining years of AID assistance is

to complete the instructional staffing pattern and impart to these instructors

modern teaching techniques of vocational education. Attachment 2 shows

the key personnel who have been identified as critical to the complete

development and independence of the Center. Nearly 50% of these 23 strategic

positions are presently vacant.

To facilitate selection and recruitment of candidates, AID will­

urge the liberalization of employment procedures. By lowering unnecessarily

high instructcr qu:'lifications which currently require a college degree

(generally in engincering), lifting the ban on the employment of RRMTC

graduaten as instructcrs and modifying the Council's practice of deciding

who shall be hired, the prospects of acquiring additional capable staff will

be substantial!y "ncreased.

AID's approach is to work indirectly through the Philco-Ford

assistance team, as well as directly with the Council of Administration,,in

a concerted recruit:nent effort to fill vacant positions. Two avenues will

be pursued: to continue direct hirings from the private sector with a

series of well-publicized recruiting trips through thw"region and secondly,

to encourage seconding to the Center's faculty of personnel from the public

works departments of the Entente states.

The latter approach will be co secure from the Entente members

agreement to supply two instructors for two year tours at the RRNTC. Salaries'

of these instructors codd continue to be paid by the public works. departments

-28-

In their respcective countries, and would be supplemented by Lhe financial

Incentives recently adopted by the Center. Teaching at the RMJTC would thus

become a prestigious assigrnent for these employees. Staffing in this

manner would also assure a constant reservoir of instructors for RRMTC

while improving the skills of pul1ic works training personnel.

Philco and the FED staff devebpment advisor initiated in September

1974 a comprehensive in-service training program for RRNITC instructors

which includes upgrading of driving skills, cross-training on equipment, and

periodic lectures on teaching techniques, utilization of graphics and

simulation.. FAC is offering overseas training for Center instructors to

upgrade their skills. While the availability of these opportunities for study

abroad will serve as an inducemeaL to join the RRMTC staff, the implementation

of this program will require careful preparation if "over training" of

i c rs.C to be .-,oded,

2. Traiiing Program

Center management is exercising its newly delegated authority

over curriculum by redesigning into its course syllabi the "teaching by

objectives" approach and by bringing the real worl into the classroom

with a new emphasis on what a trainee can do rather than what he knows.

These changes inevitably require that trainees be given far more and better

practical training than they have received heretofore. In 'turn, the currently

inadequate practical teaching facilities of the Center need revamping and

improvement. While mechanics training is now well organized and highly

integrated, the road works section is not, thus precluding the type of

-29­

teamwork necessary to simulate public works activities. The Center's

current practice fleld is small and limits the quality of on-equipment

training.

A newiy designed Center approach t'o practical studbnt training,

once dubbed the "cole chantier",' is composed of two phases: the first

encompasses simulated road maintenance tasks conducted on an expansive

practice field near the.Center; the second facet consists of actual

revenue producin road works projects undertaken in the vicinity of Lome.

Figures available indicate that Niger and Upper Volta derive too

little beiefit from the RRITC, not by choice, but apparently because of a

scarcity, compared to Togo and Dahomey, of trainable personnel who can be

freed to attend the Center. RRMTC will examine wore closely the availa-flity

for training of public works personnel from Niger and Upper Volta ith an

eye toward possiblv establishiaiz uiure uiL ry irai u ~a3 cpratrary curses

and me-hanics at the Center. A study is also contemplated of the role

RRMTC might play in assisting in the rehabilitation work planned for Niger,

Upper Volta and the oLher Sahel nations.

3..Regional Resource Center

AID and Center management will give new eaphasis to the functions

of RRM1TC as well as its form. Concern over the question of treating the

"organization" as an end must be balanced with equal attention to the institu­

tion's role in serving its clients.

As a regional resource center, the Center Ulans to continue its

seminar program in FY 75 and FY 76. In doing so, it will be contributing in

-30­

a concrete way to Improving road maintenance whilc demonstrating a deter­

mination to b6come a force in West Africa's development. AID funding

amounting to $70,000 will finance the costs of a 5-day workshop on Voca­

tional Education and a 3-day seminar on African Rural Road Maintenance

Techniques to which Center instructors and representatives of 15 Francophone

and Anglophone nations will be invited to participate. Conference funding

includes transportation, honorariums, per diem, simultaneous translation

and costs of organization.

In 1975 leading U.S, and European vocational education experts

ofwill present a program techniques in course dciign, instruction and cvaluatiOn.

This conference will also be an integral part of'the in-service training and

'instructor development program of the RMITC staff. The following year, the

Rural Road Maintenance Techniques Seminar will bring together the RP !TC

staff and two representatives from the public works departmenc of i5 nations

to share problems and explore latest road maintenance techniques, equipment

selection and utilization, and critical path methodology.

__

-31-

S. Financial Analysts

FolloWing the Africanization of the Center staff is the davelopment

of o wider array of alternntive sources: of lon_rnpne financing a1hJ

"pplIction of rigorous controls over costs.

A revised long-term financial plan adopted by the Council of

Administration in 1973 calls for budgets of $332,000 (CFA 83 mill'on) in

1974, $348,OOb (CFA 87 million) the following year and $356,000 (CFA 89

million) in 1976. Contributions from each of the Entente states are

projected to increase annually from $38,000 (CFA 9.5 million) in 1974 to

$50,000 (CVA 12.5 million) in 1975 and $70,000 (CFA 17.5 million) in 1976,

or 98% support from the participating states. Noti ithstanding the admirable

past performance of the Entente members in steadily increasing their annual

financial contributions to the present level of $38,000, it is unrealistic

ond vnytepr4 *rn val~v emp~letey mpon receint of there contryf-i. nrtllic

and in a timely fashion.

Accordingly, AID's approach is to broaden the financial base of RRPTC.

The Center will be encouraged to use the machine shop and heavy equipment to

generate revenues within the scheduled training program. In 1972 RRMTC earned

revenues from "outside projects" of $76,000 (CFA 19 million) and $30,000

(CFA 7.3 million) in 1973. It is thus not unreasonable to expect that a

mininuiru of 10% of future annual budgets can 6e derived from these special

proj(,,(. It will bp proposed that income from this source, be used exc]tisivoly

for hpta' nn prwoetromoi L and oquipmoen replacomuits.

New avenues will also be explored to encourage tl IBRD..and bilateral

donors to incorporate a program of training at the RRMITC into their transport­

ation sector activities in other African nations. An effective way this

-32­

can be done is through establislhment of scholarship programs similar to

those of AID an4 FAC. The Center is also ready to provide custom-designed

programs such as the special four-week operators course RRITC offered to

conduct for Morrison-Knudsen personnel slated for'the.Parakou-Malanville

Road project. These sources are expected to contribute an additional 15 %

to Center income.

There is an absolute necessity for greater cost effectiveness.

Philco-Ford estimates that, given adequate financial management tools, the

Center can achieve 10-15% savings and attendant reductions in per-student

training costs. To achieve this, however, will require improvement in the

overall quality of management of the Center as well as an overhaul of

present accounting systeis and procedures.

IV. PROJZCT IMPL7IliNrATIcN AND EVALUATION

A. Project Implementation (See also 4dministrative Analysis, P. 26)

The Regional Development Office/Niamey submitted Philco-Ford's

Project Implementation Plan to AID/W in February 1975. This plan was

developed for the RRMiC in accordance with the contract with Philco-Ford

and has been adopted by the Council of Administration of Lhe RRMTC. A

Calendar of Actions has been excerpted from the plan and is provided as

Attachment 6.. The purpose of this "Management Action Plan" is to delineate

RRMTC decisions and benchunarks leading to the Center's capacity to plan,

manage..and evaluate the institution on its own without expatriate assistance.

B. Evaluation Plan (Sea also Logical Framework End-of-Project-Status,

P. 13)

-33-

The ilanagement Action.Plan described in Section A above has bepn

designed under tho PERT system whereby manafemcnt rnd operational actions

have bean projected on a month-by-month.basis. Adherence to this calendar

-of actions will enable the RRMTC to evaluate in progress towards conditions

expected at the end of the project.

D^27T S=:V.";.Y Ff 1969-1976

(":0o)

TOTAL T'ICA\T AL CC. OTHER - TAI-,IR GA._ININGCOSTS

(1) Original Li.e of Project " aFY 1969-1973 5917 3413 575 1524 405 (2) Revised Life of Project b /

FY 1969-1975 5985 2807 1274 1709 195

(- Difference 3etween(1) and (2) + 68 -605 +699 +185 -210(- zr) ,­

( ) OblizgtionsF Thru C/ 183"66FY 1974 3632- 1832 661 1014 125.

(3) a!-~act to be obligated --Difference Between(2) and (4) 2353 975 613 695 70

d //f(6) FY 1975 Obligation 1538 7-- 1 7 3 63 (7) FY 1976 Obligation 815 305 440 0 70

a/Las- obligating ye-r was to have been FY 1973, with planned implementation through Fry 1975.

b/Revised total = (4) + (5)

c.'Y"176 CP and 12/31/74 U-203 shows cumulative obligations of $4,116, difference of $484,-...:ch was obligated FYs 1965-1968 under original bilateral project. d/Fo date, $469,000 obligated for Philco-Ford contract; $70,000 for participant training.

e!*'sbursemcnL depcndent on EF/RRNIrC cornmitment :o ObLigations and Covenants (See Sec. I.F, PP).

f':. 70 for direct co:mrod~iLes to replace $655 deoblig3ted in FY 1974; $25 for contract cv:-nodities.

gi. 5 for r:;]i;,:; 8;cho~S60 for mic !lce.-Innge1I't IT. . trinin. :265 fur s;chlars, i -rus: fund

Attachment 2

TECHNICAL ASSISTANCF MA.T-OWER REQUIrrEMENI'S

1974

erSnt JJ JJ O-N AS . FF A M J J A I S'ON BDJ F M A M "J

1. INT't. Avasor2.!. Advisor• xx x xXl xx X ~x Xxxx.x :Xx x XX XX x xX x xX XxX x xX x -xX x 2. E,... Xd.Ivisor i3.EC.XD'oY x xx x x 7xx x x x x x x x x x x x x x x x x4. FicldPracticeDir.- x x x x x x x x x xx x x x x x x x x. xx xxx x 5. Ec.u!i. III,. Dir.

I:,s tnt ctor's

1. MacehLii-s: Aids. 2. 11cch'aiics x x x.x x x x x xxx x x x x x x x

. C-if.icChanics x x. x x x x x x x x x x x x x x x x x 4. M echan-cs r,Iotors) x xx xxxx x xx xx xx x X xx •5. Iaehi.'Shop xxxxx:xx :cxxx xx x x x G. Electricity 0 7. Diesel Inj./Hydr., o S. Eqvi.).O!)erators (I) XXx xx x x xxx x xx x xx x x9.Eu~.Oeuratoxrs (11) 2: x x x x x x :cx x x x x x x x x x x -i:p.Operators 0 0 0 0 0 0 0 0

10. Rmz:iCrzw Foremen x xx x xx x xxx xxx xx x xx !l. Scc!'onChicls 0 0 0 0 0 0 o 0 0 0 0 0 0 0 0 0 0012. S:;p!y&Wr.,house* x x x xx x x x x x x x x x x x x xx 13. Sis Lab Technicians x x x x x x Icx x xx x x x x x x x

S'u~roi't Staff

1. Accountant " 2. Chk!'-cc'an-c x x x x x x :rx x x x x xf x x x x x x x xx x

Suppv OfMcer * I 4. Spoc. Proj. Chief x x xjli x x x x :Lx xx X X

U.S. TOTIALS • 42M i 168MM 80LNI ,24V4" ~+6: .='4 o Financed by FAC ':" yI.ty & Warchouscmc- instructor also serves short­;S S.1;.1'.vy OIi r'-i** r i:(].

--

3

C T 1TICAL MANAGEM.NTE NI1 '-pSTI

__________n

1. Director General 2. Adni'i -stvU0vefficer" 3. -u'-=tional Director 4. i ,! Practice Director S. Ec.uipmcnt Mt. Director

Instrecot's

1. Mk-clianics' Aids 2. - cc: .ic£ 3. Chii* Mecbiaic:i. -4.",'ee-.uicS (MotOr Specialists) ,. -. i'.eu Shop)

G. Electricity 7. Dlescl Injection/Eydraulics S. Epu;m-,nt Operators (I) 9. ..,... t Operators (It)

- 'c:.iipnt Operators 10. Road. Crew Foremen 31. Section Chiefs 12. Su.ply & Warehousemen if

!-:.S;i3 L b Teclicians

1. Accou..nt.,. 2. Chicf -Mcchanic 3. " 0.0Offccr i 4. Special Projects Chief

African Stmaff

Cb.,'rc 0

Vacant Vacant

Dogbe

Dos Reis Vacant 4' Vacant Edorh Sanon . Toupe Djafpata Vacant fotsoe Ioudjodji f Vacant Vacant:

Vact Vacatnt

Vacan; Essien Sokel Vacant

Attachment

JCT-ON &SU'PPORT POSITIONS

E.,riate Counterparts

f'I '-^ (AID))BBI ea'a.

,N fl )IImpircys(A,)

Nonc rcquired

None rqquired Perton (AID) Vacant (AID) Chidiak (AID) Delt (AIUD) Jouv.au (FAC) Jou-cau (FAC) Couturier (AID)

(.%!D) Sol (A)

V."cant (AID) Tcyssi-re (FAC) Gruanb.ar (AID). Scholcn (AID)

None required Granier (AID) (-rumbar (AM))

I'ortara (AID) .Positions vacated in 1973 by personnel (A.boku and Akue) who acceptcd overseas

*' O):'ly*~n-Tcgrolese instructor. C­

........-.-.cal,:hcs a port-an ,rcbof-, o:x'rator cou:es (I) and (It).(H ,.:l,.r- .,P:.. :. II,:I-.Iuc.lf.7O o[f. .911 /'.',~col:(- ,, row-,..o.. Tn .tu:, .:&:nni~v orie ­

X

AOC. 7 LOGICAL FRAMEWORK MATRIX - PROP WORKSHEET Attac.-n, ,m~ o tA~~Objectively Verifiable Ind c~ e.1.G l 7

-_ iA. /de~M-.w t G-1| Ach--,ae

Increased numbers ve=nt in ibtLy ' .2and skills rov- caCpacity of Entente stateg to

of road m15-ntenence personnol a-e: .te ZA .*te--- " -. intain their roed network. ezploycd in mintenince and inmprovezcnt of roeds. " -

Increasingly sta-vidardlzed road maintenance techniques. or L=-oved h L-. re o..r:.:.t'nte r.stes c€ntin.% t3 p-. . .P! 0l:)&on roadIncreased kms. 1tn -..of roads maintained and/or Imp-oved ," .-* a

annumlly. p~rsrn e!..dequfk e'dpz.nt sb2ps " "

bre P-id better traIned d -- ..jce -..-A-.Vill crnntin: toStP8?E.. re-..1 p,*,,, ,aIul en~,Eablisment of viable regional training of Administration working Colnoil tles realize

policy and Mtnagnsont responsibflity exercised by 5.3t rdiz. ".s --African through ImxC Dlrecto:r. r-. r s &a­instructor and manageaent staff. la!L fur traL-,fr * can L,;.:*.-nil .. .- Stl. n!. (R?.'r C) f or Ltent . road Tr a nin gcUr r i culhim f ul l y d evel oped .ort.­l i ti - -.-=Ina.tennce pora..nl. and i pl ehen t ed. 4 na i Africi n -" ez--n a &:.insBudget financed :­at least 75% from African sources. nel c ibW retn!nod.

Countries sending st.udents. Classroonm, garage3, sanop eager::est a-:d i-ntru.tors =ir*--.fully utilized for traLning. nl.na. -:" .cx--ilev.l ar'.'r " :-.". f ,Required eTj1ipzent artilable, operatLng,training. filly utilized for a-"7ciit oncm: o i,. ..­suppo.- t , ,r--:tln'--' 11:71.t.e. ..rtioo-t i -'_C.!. OgveC.2- O,0~~ 1-1-1- C.3 .**.- ars&%4.;ell trained and parforming management, ins- Africantru.ct!.-nil and support staff. staff: "angerent 5, instructors 1'., support 4.225 students trained annully from .0l and capable AtriL--n rtaff -a:Students trained cross sction E tente an - - --Fn' -tratlo:,.i b:,-! "'1 .onually,ote- states. ". .Practi-:al train-Le progran developed and 13 c-i)rsas conducted annually in French. fa,'-.sl..........­

-=ented. s tits .-Basic op-rator and rechanics coursesPerc-ic reloasl se-l::2rs on road mainte- offered in nglisn. -.lpunn'el relations a, a-.. -

.­0n,:o. .- rej--"a sa.mtn rss p'-' - .s.nanc_ .~Ont o7:c: biaatnonse eebirinnual re-ionnl s.ranare. "'=Te

.. % :'s id- an &e N~ ao Total 10 participants retu-n from U.S. .hr u rs -"w r = - =n t r s onnl a-. ........ .rs nt after nine- onth courseen Stdents retureLn., hoen to =n:kc uze of now skills.

-rp.atinp. procedures. D.2. FY 1475.jb3eeffectiv -use and better careFY 1976 of equi-j.-,nt.1. Crn:r :" . , ;r;'c(?!,ilco-Ford Corp.) T.,al1. $6702. Partcaitrr.ntnn $J3(72. 173 as3s:,nce con.ryd440 wil t *- -.

.P. 613:..r cipu.c!, rahini lafnguage of traine!. an!s a C :. -teraining (173 (115 (288S-:!-larship Tru.st Fund ( 60 -'tfective Pa*Z4rC mangeo---It of £2ola-:;,(265 ( 60(265 aid op-rational f'.Lis.3. '.

3. 695 -(570 695 alit'i.d ctddate for U.7.Spare par:s 0:-%1Cr.-r.ztt ­:.rainng conno'tJIies (100 (570-4. 0:--hr C.::s (:'ainlng support) ( 25 -(C (100 q-p,-C-t ordered25 and d-.'i'. -- "i. .4. - 70 P-o'td:. 3Jitabie -oo-FAC: 70 . se:otars.i'ps, Coroditles -4ttcnte state incre3s- c=,rn .i:.. a -ka90+ Y-D: d.'r-'. .-.-. f.tclL tv 9292 182

f-1016'-:.:s 2 1082220 300 520BEST AVAILABLE COPy

UNITED STATES CUOVERNNIENT ' Attachment 5

Memorandum TO Mr. F-)rank iler, AFIVCWR DATE: June 11, 197.1

AII)/W

-FRO" Jtmos II. Purcell, Project Officer, Lome

SUDJEC-r: RRMTC - Equipment Status &New Requirements Report

Attached please find four (4) copies of the Philco-Ford status report on heavyequipment of the Regional Road Maintenance Training Center and additionalequipment requirements to upgrade practical training at the Center.

Preparation of this report was by its natue a tine-consumming task. Asdirected by the Council of Administration at its December 10-11, 1973meettng, Philco- Ford first had to ai ~eer the costs of continuing MobileTeam I. Secondly, each piece of p j-ad..t be+niiicd aid a deter­mittion made as to the economics of keeping it operating. And finally,spare pajrts Kreq r.ents had to be developed. These iu turn had b

the be matched

with supplier parts numbers and then divided between U.S. and local source procurement as iell as air rd surface shipments.

The involvement of Director General Gbarre throughout this process requi..edoonsiderable patience. Contrary to the impression he may have given youin his conversations in Washington, the Director has agreed with this reporLtand the recommendations contained therein.

Please make the AID/W distribution you deem to be appropriate. Ifaddirionalcopies are needed, please drop me a note and I shall forw.ard them.

cc: A] Baron, RDO/Niamey David Shear, REDSO/WA

UNCLASSIFIED

ZL RODUCTION

The ,folovin C is a complote status report on the equipmont of theRegional Road Maintenance Training Center and the additional equipment requirements for the proposed Practical Field School.

It i divided into four p.rts

U isa report of accomplisiaents under 608 repair project.

MT is the ruture stau of equipment throuljh December 1975 based upon AID's acceptance of these roooimmendations.

AT n states the objectives and provides a description of the

Practical Field School. Ineludcd thero unisa list of the now equipment required if the Practical Field School

is to tmction.

APPENDX This section includes the parts listi required to rccoplish the equipment status set forth inpart two.

.P&. c.

6~~~' q-ieq~r4 t ~ pd

PAR I

M 608 REPAIR PROJECT

BACKGROUND

US/AID has donated a large amount of U.S. military surplus equipment

to the Regional Road Maintenance Training Center at Lome, Togo. For varicus

reasons, ninety percent of this equipment became non-operational. The C.C

Administrativo Council had requested permission from AID to sell the "608

equipment" and permission was granted. At that time, early September 1973,

the Philco-Ford team at the RR14TC proposed a major repair project. The basic

rationale for the project was that operatig equipment would generate more

revenue at the pcint of sale than non-operating equipment. Philco-Fora

therefore submitted the following proposals to US/AID

PROJEj'. DESCRPI'ION

US/AID has given RRMTC permission to sell the 608 equipment. The proCOE-:

from the silo are to be placed in & special fund for the purchas., of ",ew.

equipment. The Philco-Ford team in conjunction with Center personel offer-4

to undertake the rehabilitation and repair of the 608 equipment prior to its

sale. Spare parts support was limited to local manufacture and purchase,

cannibalization, modification, substituton and use of parts available at the

Center. The work was accomplished by Philco-Ford and RRMTC personnel and a

group of eighteen Heavy Equipmont Hechmnic students, werewho just beginnine

the three month practical phase of their training.

BENEFITS ACCRUIN1G TO ATD

The rehabilitation and repair of the equipment prior to its sale would

mar.imize Center proceeds. This in turn would reduce the overall cost to

the U.S. Government for now equipment. In addition, the expenditures requirtl

to accomplish the repair oporation woro smill relative to the valug added.

ATtACH .

-2-

Another plenificant benefit derived from this project wan the valu'±Ale

axperionco Cainod in utilizini the total capabilitien of Centor-fnciliLios,

African and expatriato staff, and students to accomplish a major project

supported by locally available resourcts.

The attached cost ostimite to complete this work reflects the anticipatoi

cost by systems Croup, and is based on equipment condition surveys previous1'

carried out. It is not possible to include a detailed list of requirements

since the disposition of individual itews cannot be determi,ed until Lhu work

is nearly completed.

It was requested that immediate approval for this expenditure be grtantcd,

pending formal authorization. The interim approval was vital for threc rceasons.

Firct, students and supervisors were currently available to carry out the

necessary work. Second, this was the first in a series of now efforts to

place JtRHTC in top operating condition. Any delay now would retard the entire

program. Third, it was in the best interest of -he Center to complete this

project prior to t.. next meeting of the Council of Administration on

Dee~ber 10, 1973. Work had to begin immediatel;' if the Council members were

to see RRMTC equipment in the best possible condition. Ahis project had been

discussed in detail with the Director of the Center, Mr. Gbarre, who has given

his approval.

The project was approved approximntely 15 November, 1973. Our genoral

observation at the start of the project concerning the causes for equipmaent

failures were as follows

1, Operator deficiencies were a =aJor cause of breakdowns.

For example, improper use of the clutch had resulted in clutch

fail-res in the following equipment :

-3­

(a) 3/4 Ton Trucks

(b) 3 5 Ton Trucks

3)PWtor Graders

(d) 1 Hydraulic and fMchanical Shovel.

2. Operator negligence while operating vehicles had led to serious

damage, which reflects a lack of attention to basic prin'iples an'

safety precautions for example :

(a) Transfer -n'd transmission cases and clutch housing breaks in

2 * Ton and 5 Ton trucks, cargo trucks, traotors and scrapers.

(b) Three trucks had been in serious accidents.

3. Lack of maintenance on the part of maintenance teams3 and operators

resulted in the following :

(a) LacK of oil in transfer case un two *:areo motor graders, luad~ng

to a complete stripping of all transfer case gears on one of

the units, and minor damage on the other.

(b) Complete breakdown of rear axle in 3/4 Ton truck duo ,o lack of

oil.

(c). Fuel oil leaking into the crankcase of a Curains engine on a

Michigan front-end loader went unobserved, lerding to major

damage to the crankshaft, connocting rod bearizns, and to a

eannecting rod.

4. Tho starter installation on the 3/4 Ton Bedford Diesel engites was

poorly designed.

These observations cover both 608 equipamnt, non-'.OS equipment, and that

provided through -aid from France.

ThM repair effort under this project basLcally coverod truckI, built'+,.. r:1 ard graders. Other units such as front-end loaders were avoided becauso of" th, oosts involved in bringing single units into operation.

Trucks were also a major area of concern. Since many were very old, our efforts were concentrated on those modified with new Diesel engines.

n the five ton group, fourteen (14) trucks with now Mack ongi.es were available. Two of these had been in serious accidents. We cannibalized

the two wreeks and one additional truck. Thus we now have eleven (11) o"erating five ton tr-cks. Nino (9) of these are dump trucks and two (2)

are tractors.

In the two and one-half ton group, we began with ninc trucks with Allis-Chalmers engines. One of these had been wrecked. We camnibalized the wreck. We now have seven operating trucks, and one progra:.'mod for repair. Of these, five Are dumps, two are flat beds, and one is a tanker.

In the throe-quarter ton group with Bedford engines, we began with

seven mits. One was cannibalized, wL now have six operating units.

spare parts situation for theseThe trucks is unique. 'te can support

them for three years with major components resulting from cannibalization,

and parts from less modern trucks. These are : housings, axles, motors, transfer cases, transmissions, differentials, and other major components. In other areas, we are actually short of spare parts. These are : bearings,

Cears, clutches, air system parts, hydraulic and brake system parts. Jo arc also experiencing problems with electrical system parts. Namely, the non­availability, locally, of alternators and regtators.

Immodiate action is necessary to procure required parts if these trucks

are to be kept in runnig order.

Graders were another area of concern since only one was operational at

the start of the project. 'o began with cight graders of variou:& vintages and

umnufaeturora. Sevor, were not operating. At this point, four are operational.

Two additional graders need minor parts to bring them to an operational

condition. These parts are on order. I

Bulldozors wore also handled as a group. A Caterpillar DE was completely

disaqseebled. This unit was completely repaired and reassembled. Two other

cable controlled D7s comploted the Bulldozer group. Since we had two old

partlally complete D7s in the Junk yard, we had parts for cannibalizaiion.

As a result, at the end of the project we estimated the life of each of these

bulldozers at three to four thousand hours of work without a major overhaul.

The only deviation from the project description was that it became

necessary to or-ler about fourteen hundred dollars worth of spare Port- frc.-i

the U.S.A.

It should be noted however, that the objective was to make equipment

cperational. Additional funds will be needed to put it in like-new

condition. This is proposed in Part II of this report.

i emzoranaum Z Mr. Fritz cilbert &%Tz: rebruMa7 11. 1975

IZuene Oesk Officert ZV.s. OF r-9 .!.X=". WT .C?1!9H ME Gans Chisea ' Actit4 ROISiacey

1M.'sot C pi

The folovirg pates ,efer to me flow-oshart of Ua

gaglaged flE three copies of the project mplemuntation plan davelbped Ikoagertnt Action :,Ian. All of the actions of the hahrt s by ihLlco-ford Corporation for the R-C. The plan bs bean adopted by the Cumetl of Adziatestraiom of the Center. ezplained. !..fy a- aned mtb 1y month a#SntllJ I* &Vaes -. ha

dates. and within each conth they are classif ed byWei plan is submitted as a substitute PIP. While not in the form projsctse tpically epmloyed for a PIP. it nevertheless to In a form that the Cener persosl and the Entente Pund can use, their ide--ifcation m0.-bers for easy consultati:=. Ih t r" gm

this pla is also submitted as fulfflcent of the PT contract require- digits of the idettLficaton nu:ber ideatify thw action as follos mvt to davelop such a pl-.

ea: SZ3IC'I0Ohilt (vlaetachcent) 01 - '¢,.na c=-ezni.. the l,a~st: Depk~tv.e-nt

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G2- Ltans cocernincg the Zdu..i~nla 2 ptastae

04 - Lctions concer.Lneths Ac ounti- Doartr.cat

05 - -LtLnsConcerring the Director Gerr&l

The section ooncl'=es vith a CalorY-.r of stLe"s w hia

stows a1 of the actLoan to be acccepl@ish d each zorth.

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Facilitios Classroom, Library, ;.nd

;.udio-Visual rrojection Room

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hpnd Spare rartu "nd DX Storaa. FaCiliti'

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Trainla. Of Afrioaz Tersenm~l

Syposiu- On Coutse ChaCes For "a

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Tedhnicians. mIC'iotOf Sector

Increase Center's .epU Capability

Covio Student la(gltjco irocoduv.

-ooept Student8 FrM Otber Tbas hteute States

44- 1975

r.Y 1975

.. y. 1975

Y-. 1975

ui. 1975

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Place Orders For Nov Rooks

Evaluate Instructor's Use Of Training ,.Ldf

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Job 1975 0ecritItensiv Rocruit Intensivelly

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1 - 70

BC_..F.,VAIL.ABL COPY

S-:-- 1,975 02-0--SMO P"11 Utilization Of Field School

o03-01H-Oroaie Cenral dinitration Support MnY

K;,T 1976

1976

03-02L

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C. 1975 05-03 TotallZ Staffed inrd Nnaged Dy African@ ]C. 1975 05-09 Approve ;.nd Fund The DooiCn For 4 Cleaning

S. 1975 05-23

AM Lubricating ;.rea

Present The i.lerrative To The Council Of

JULY 1976

, 1976

04-01

05-01

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Instruction .nr Equilxent Faintenance

- 1975 05-11 Open The Student Irilag 3iMMSa

J:. 1976

Mi. 1976

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.

1975

1975

1975

05-12 0

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Install !quipcaat

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1975 05-15 Eesin rie Cotreato Of the Stoloet

Operator Training Aide

PRlL 1976 020O1 Fully tilze The Training Facilities Of The Center 1-72

:LVJXL 1976 "5-02--01-M Offer Pro-2ntry .xsiszance

1 - 71

3 C " iVAiLA3LE COPY.

WUUftT I Catrai oad Woot Af ricz nw.,onoal

PRijCr TZI.S a NOIS!onal JRosd ZMaintenmica 4&nd

?RDJSCr IUMM3R S625.11a610.1w0

APTO2PITION4 CA=OOrli 'Sclctad Oevolopmint ProblIor

M~&tUDZD OIIATION $105309000

In azccorcbnee with~ Sction 113 of .:. ea­Aasi~itanca and Eelatad r',.n 'Lt.n

we 1iliem4 to ObILgate funj1a 4.n o r =90unts IncLudad li the o;c ~ c~na

Duri Irf 197.3, tilo RP.3;iou4 1P.oi r~lte-,11nO .lj.''AL*(fl=70C and A.110, 1--W3 agrSed to 1..:i the 1Loilo­

the proje3ct by ?1l 1970, which its to ba L=,: ;.;,.:L C. .. D taclinfcal asistaant.g ()cltA .LaLiu. RMITC m~nagrt and instructor Stafe, (2) SUP0Tt b7' the i-.ra~to mamtwvb vtatoas m-icO t,..) L,Coastp To,3o, Dalmmry, IZigr~ ad I'mpar V.ta, (3) It1 nd financtat mnTtr01* ov~r iCt'I oporatioua, and (4) iliat'41.­tion oi off--etive eqtvk7=t utlizatiOI onmtrai anau '*,,vztivratA:.nLr.mnacG Sy~t~aoIs n order to assure t;i,l4a

tlastmmaurs, *1#333,OOO Art IF 1975 fUnd13 will be ruivad

~h1co.2or (~?Oa~iUrequires $67CP.00Oj fo~r 174 me--~ of ser~vLC03 from~ Septmitor 1,37 to. Senta.,r Ut/5 Lothe t dram, of the V4 MLmakgent a'4 Lutrtuctor -sa~ totalus ovr all R!' VWC poiltions bi Juno 1976* To, $469,030)ba bnqn pzowldod to the contractor for 122 ms~n­ar..'is of &6eviCos

B3EST AVAIL~ABLE c~

-2­

2e Participant trainins F-RI-ITC training scholarships In the amunt of $173,00J Is required for 173 studant quar. ton or 692 man-wnths of training.

3. Canrmdtiest A total of $695,000 is required for cotmrodity procurwent* Of this amoet, $25,,00 is for trainin3 aids and equpcmnt under the Philco-Ford contract,$570,000 isfor direct procur.ecrnt of heavy equipmant for use in th improved practical training progran, and $100,000 is for spare parts. The lascar t;.o awounts in eftoct rake up for'the $655,000 in prior year u-,Jinthat was doobligated In 71 1974. Cotlotion of aquiprea,specifications and design of tho trainig , pro,3=r n permit the procuremant'of direct-comwdiic%.

A total of $1,538,000 in PT 1975 and $815,00) in 71 l47:­will complete A.1.D* aasistnce to the Rc:,ional Road MIntz==c TraLnin,- C"uters

Attacbment Activity data sheet

..Clearances:

AF/CWR Ma of (draft) AFR/CWER:DShear AFR/DP:JGcvan A'­AA/AFR:DBrown -|\

AA/AFR: SCAdams GC/LPC:DNeil1 .PPC/RB:GCauvin..

Drafted byrd:. IR:FGilbert/BGee 0'..1/75 E tc22929

An 30f 433 PHIS/00 ACTION

THRU

NRHCRANDUK FOR

: AA/PPC, Hr.

THE DEUAIJ.'~~5

Philip Birnbauu 0 APR 1.07S

ES

FROM 3 AA/AFR, Samuel C. Adams, Jr.,49i 7

SUBJECT: Approval of Improvement

Revised Project Paper for Regio(No. 4&1+tUT5)

nal Road Maintenance

Problem: Your approval of the attached revised Project Paper is required because the total planned A.ID. dollar funding from the time of revision to completion exceeds $2 million.

Discussion: As part of the effort to improve the capabilities of the five Entente states (Ivory Coast, Togo, Dahomey,_Niger and Upper Yolta) to main­tain and improve secin-da-iiro-ads, the Entente Fund, U.S. and other donors have collaborated in the development of the Regionaf-R-o-d Maintenance Training Center (RRMTC) in Lome, Togo. The predeupSr of the RRMTC was the Lome Center, which was assisted by A.I.D. on a bilateral basis from FYs 1963 to 1968 at a cost of $484,000 to develop the Togolese capability in road maintenance and improvement. Because the other Entente states shared similar problems as Togo in this area, the Lome Center project was expanded as a regional institution in FY 1969 under the auspice of the Entente Fund. Since that time, the RRMTC has received $4,116,000 in A.I.D. assistance through FY 1974.

The Project Paper has been revised at the recommendation of the Project Manager and Project Review Committee, primarily to incorporate into the project certain obligations and covenants to assure that certain critical elements are in place by the end of the project. These elements are des­cribed on Pages 7-8 of the Projdct Paper and include: complete Africaniza-'I tion of the Center's staff, effective operational and budgetary controls, installation of equipmet.t utilization and preventive maintenance systems. The revised Project Paper increases the cost of this regional project by$68,000 (from the original $5,917,000 to $5,985,000 or $6,469,000 includ­ing the earlier bilateral assistance). The life of the project is also extended by one fiscal year to FY 1976.

Final A.I.D. inputs for FYs 1975-1976 for contractor personnel, participant training, commodities and other costs are described on Pages 5-6 of the revised Project Paper, and contributions of other major._donors on Pages I0­11, which include the Europ-ean Development Fund and the Fund for Assistance and Cooperation,

A Notification to the Congress is in clearance justifying the net increase of $999,000 in FY 1975 from the original FY 1975 Congressional Presentation request of $539,000 to the revised request of $1,538,000. A copy of this notification is provided at Attachment 7 for your information.

-2-The cost-shering reuiripmentof FAA Section 110(a) is inapplicableIn this case since the projject Was oriinally authlorediFY16prior to enactment of-that requirement. Moreover, the project isregional and multi-donor in nature rather than bilateral, and re­ceives contributions from the Entente states themselves and fromother international donors. Recommendation: That you approve the revised Project Paper forRegional Road Maintenance and Imvrovement.

Approved:

Disapproved:

Date:

attach a/s

Clearances: v'/AAFR/CWR:DShiear_N AFR/DS:SKlein (drL.1:t)PPC/DPR:AHandley (draf"l A GC/AFR:Tuntsinge AFR/DP:RHuesmann AA/AFR:DBrown GC:AZGardine,.j'._

Drafted by:AFR/CWR:BGee'o? 03/19/75 Ext 2929