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AFRICAN DEVELOPMENT FUND
THE GAMBIA
TRANS-GAMBIA CORRIDOR PREPARATORY STUDIES: PHASE II -
KEUR–ALI/FARAFENNI-SENOBA SECTIO
OITC/GECL DEPARTMENT
October 2014
TABLE of CONTENTS
Contents
1. STRATEGIC THRUST & RATIONALE ...................................................................... 1 1.1. Project linkages with country strategy and objectives .................................................... 1 1.2. Rationale for Bank’s involvement ................................................................................... 1 1.3. Donor coordination .......................................................................................................... 2
2. PROJECT DESCRIPTION ............................................................................................. 3
2.1. Development Objectives ................................................................................................. 3 2.2 Project components ......................................................................................................... 4 2.3 Technical solution retained and other alternatives explored ........................................... 4 2.4 Project type ...................................................................................................................... 4 2.5 Project cost and financing arrangements ......................................................................... 4
2.6 Project’s target area and population ................................................................................ 6 2.7 Participatory process for project identification, design and implementation .................. 6
2.8 Bank Group experience, lessons reflected in project design ........................................... 6 2.9 Key performance indicators ............................................................................................ 7
3. PROJECT FEASIBILITY ............................................................................................... 7 3.1. Economic performance .................................................................................................... 7
3.2. Environmental and Social impacts .................................................................................. 7 Climate Change ........................................................................................................................... 7 Gender, Social and Involuntary Resettlement ............................................................................. 7
4. IMPLEMENTATION ..................................................................................................... 7 4.1. Implementation arrangements ......................................................................................... 7 4.2. Monitoring ....................................................................................................................... 8
4.3. Governance ...................................................................................................................... 9
4.4. Sustainability ................................................................................................................... 9 4.5. Risk management ............................................................................................................ 9 4.6. Knowledge building ...................................................................................................... 10
5. LEGAL INSTRUMENTS AND AUTHORITY ........................................................... 10 5.1. Legal instrument ............................................................................................................ 10
5.2. Conditions associated with Bank’s intervention ........................................................... 10 5.3. Compliance with Bank Policies .................................................................................... 10
6. RECOMMENDATION ................................................................................................. 10
Appendix I Country’s comparative socio-economic indicators
Appendix II: Table of ADB’s portfolio in the country Appendix III: Key related projects financed by the Bank and other development partners in
the country Appendix IV: Map of the Project Area
i
Currency Equivalents
As of September 2014
UA = 1.13212 EURO
UA = 61.88068 GMD
EURO = 54.65912GMD
Fiscal Year Gambia: July 1- June 30
Weights and Measures 1metric tonne = 2204 pounds (lbs)
1 kilogramme (kg) = 2.200 lbs
1 metre (m) = 3.28 feet (ft)
1 millimetre (mm) = 0.03937 inch (“)
1 kilometre (km) = 0.62 mile
1 hectare (ha) = 2.471 acres
Acronyms and Abbreviations
ADB African Development Bank
ADF African Development Fund
AIDS Acquired Immune Deficiency Syndrome
CCPTF Technical and Financial Partners’ Consultative Committee
ECOWAS Economic Community of West African States
EDF European Development Fund
ESIA Environmental and Social Impact Assessment
ESMP Environmental and Social Management Plan
EU The Commission of European Union
EUR Euro
FE Foreign Exchange
FS Feasibility Study
GDP Gross Domestic Product
GoTG Government of The Gambia
ICB International Competitive Bidding
IDB Islamic Development Bank
JAS Joint Assistance Strategy
LCS Least Cost Selection method
LTS Long Term Strategy
NRA National Road Authority
PAGE Programme for Growth and Accelerated Development
PBA Performance Based Country Allocations
PCN Project Concept Note
QCBS Quality and Cost Based Selection
RISP Regional Integration Strategy Paper
RO Regional Envelope
ToR Terms of Reference
UA Unit of Account
ii
Loan Information
Client’s information
RECIPIENT: REPUBLIC OF THE GAMBIA
EXECUTING AGENCY: NATIONAL ROAD AUTHORITY
Financing plan
Source Amount UA Million
Instrument PBA Total
ADF 1.00 1.00 Grant
TOTAL COST 1.00
ADB’s key financing information
The Gambia Grant currency UA 1 million
Timeframe - Main Milestones (expected)
Concept Note approval
May, 2014
Project approval October, 2014
Effectiveness December, 2014
Last Disbursement December, 2016
Completion May, 2016
iii
Project Summary
Project Overview
The Trans-Gambian Road Corridor, spanning a distance of about 243km across Senegal and
The Gambia, is a vital economic and strategic link connecting the northern and southern parts
of the two countries. About 26% (62km) of the corridor is in good to fair condition and the
African Development Bank (AfDB) is actively supporting the development of the remaining
sections under the following principal interventions: (i) the construction of a bridge at
Yalitenda in The Gambia and two (2) one stop border posts between The Gambia and
Senegal; (ii) rehabilitation of the section between Dinguiraye and Keur Ayib (44km); and
(iii) subsequent Bank support programmed for 2016 that will include the rehabilitation of the
sections between Senoba – Ziguinchor (137km) in Senegal and strengthening of the Keur-Ali
– Senoba, 24km (Trans-Gambian Highway) in The Gambia whose preparatory studies are the
subject of this Project Appraisal Report.
AfDB’s support for the studies is outlined in the Joint Assistance Strategy for The Gambia
(JAS 2012-2015) through the strategic pillar “Enhancing Productive Capacity and
Accelerating Growth and Competitiveness”, which is aligned to The Gambia’s Programme
for Growth and Accelerated Development (PAGE), 2012-2015) Pillar II (improving and
modernizing infrastructure).
This project will undertake studies aimed at proposing pavement strengthening options for
the 24 km section of the Trans-Gambia Corridor between Keur Ali and Senoba. The studies
will also focus on proposing the best institutional model for managing the tolling of the
Trans-Gambia bridge under the current project. The total project cost is UA 1.00 million to
be financed from the country’s Performance Based Country Allocations (PBA). The project
will be executed over a period of two years (2014 – 2016).
Needs Assessment
The output of this project will provide necessary information for financing the second phase
of the Trans-Gambia Corridor Project in The Gambia. The studies will identify physical
project rehabilitation improvement options arising from the anticipated increased traffic after
completion of the Trans-Gambia Bridge. The outputs will also propose the best institutional
model for tolling the bridge to ensure its sustainability.
Bank’s Added Value
The proposed project will ensure the Bank’s continued involvement and support for the
transport sector in The Gambia. The Bank is committed to further development of the
corridor as demonstrated through these preparatory studies for Phase II.
Knowledge Management
The project is an essential upstream activity that is meant to not only inform the Bank on
establishing immediate future targeted transport investments in the Country but also
complements Bank’s current efforts in developing the Trans-Gambia Corridor into a fully
developed transport logistics chain. The study will contribute knowledge in providing
solutions for bridge tolling management models within the context of the country’s
limitations of such initiatives
iv
RESULTS BASED LOGIC FRAMEWORK
Country and project name: Trans-Gambia Corridor Project: Phase II Preparatory Studies
Purpose of the project: undertake feasibility and detailed design studies and propose an institutional model for tolling the Trans-Gambia Bridge
RESULTS CHAIN PERFORMANCE INDICATORS MEANS OF
VERIFICATION
RISKS/MITIGATION
MEASURES Indicator (including CSI) Baseline Target
IMP
AC
T Contribute to economic growth through
development of transport infrastructure
1.1 Value of government
transport investment
contributions per year
UA 1 million
By 2016
UA 1.2 million
Government budget reports
OU
TC
OM
ES
Increased GoTG’s ability to make
timely decisions based on the road
improvement and bridge tolling
institutional model
1.1 Progress on improvement
and institutional models
development
None
1.1 Improvement and
institutional models
developed by 2015
Study reports
Quality of Study Output:
As mitigation, the quality of
ToR for the study will be
carefully reviewed by Bank
project technical team. Also
outputs at all stages will be
extensively reviewed to
ensure that project objectives
are achieved
OU
TP
UT
S
Component 1: Studies
1.1 Feasibility and detailed studies and
bridge institutional model
1.2 Road safety audit
Component 2: Project Management
2.1 Financial audits
1.1 Study report
1.2 Safety audit report
2.1 Financial audits
1.1 No report
1.2 No safety audit
2.1 No audit
By 2016
1.1 Study report submitted
and approved
1.2 Road safety report
submitted and approved
2.1 Submitted financial
audit performed
Study reports
Procurement Delays:
As mitigation, advance
procurement has already been
requested
Study Coordination: NRA
will appoint dedicated Project
Coordinator. Bank
supervision and monitoring of
project scheduling activities.
KE
Y A
CT
IVIT
IES
COMPONENTS INPUTS
1. Studies 1.1 Feasibility and detailed design and bridge institutional model; and
1.2 Road Safety Audit
2. Project Management
2.1 Financial Audits
UA million
1. Studies 0.89
2. Project Management 0.02
Base Cost 0.91
Plus Contingencies 0.09
Total 1.00
Financing Sources
ADF = UA 1.00 million
Total Project Cost = UA 1.00 million
PROJECT TIME FRAME
v
1
REPORT AND RECOMMENDATION OF THE MANAGEMENT TO THE BOARD OF
DIRECTORS ON A PROPOSED GRANT TO THE GAMBIA
Management submits the following Report and Recommendation on a proposed Grant of UA 1
million to the Republic of The Gambia.
1. STRATEGIC THRUST & RATIONALE
1.1. Project linkages with country strategy and objectives
1.1.1 Country Perspective: The Gambia’s economy, mostly dependant on tourism and agriculture,
has been strong averaging 5% for the past five years. It’s dependency on these principal economic
thrusters has however also made the country vulnerable and this has had mixed impact on overall
poverty reduction. Not surprisingly, development in the country remains highly distorted and more
than half the country remains illiterate and poor, coupled with one of the highest infant mortality
rates in West Africa.
1.1.2 As part of its development agenda, The Gambia has placed development of transport
infrastructure as a principal catalyst to economic development and poverty reduction. With a road
density of 34.7 km/100km2 (measure of connectivity within a country), The Gambia’s situation is
comparable to that of some other Sub-Saharan African countries though it is still below the African
average of 50km/100km2. But there remains a big challenge in terms of required infrastructure
quality due to neglect of maintenance which has affected level of service with at least 82.50% (2009)
of the network in poor condition, resulting in high levels of vehicle operating costs. Transportation
costs thus have continued to be a significant barrier to trade and have generally raised the cost of
doing business
1.1.3 It is within this context that the country has placed improving and maintaining the road
network as a top priority and embarked on a number of high profile transport projects including that
of Trans-Gambia Corridor Project that the Bank is currently supporting under two phases. Phase I is
currently on-going while Phase II, the subject of this Project Appraisal Report (PAR) , outlines these
preparatory activities.
1.1.4 The Government of The Gambia’s support for the project is firmly anchored in its renewed
commitment to poverty reduction through the vision 2020, whose overarching objective is the
“transformation of The Gambia into a middle-income country by the end of the first quarter of the
next (21st) century”. The vision includes outlines of broad policies on development of infrastructure,
including transport, as a catalyst to economic growth. The Gambia’s Programme for Growth and
Accelerated Development (PAGE), 2012-2015, further recognises that “improving and modernizing
transport infrastructure will contribute immensely to economic growth and employment generation in
the country”.
1.1.5 The AfDB/WB Joint Assistance Strategy for The Gambia (JAS 2012-2015) includes
“Enhancing Productive Capacity and Accelerating Growth and Competitiveness” as a strategic pillar
and is thus aligned to the PAGE (2012-2015) Pillar II (improving and modernizing infrastructure).
The financing for these studies are included under “ancillary studies to the Trans-Gambia Bridge” in
the Joint Assistance Strategy (2012-2015). The development of the bridge is within the framework of
the National Transport Policy that seeks to promote development of viable economic infrastructure.
1.2. Rationale for the Bank’s involvement
1.2.1 The Trans-Gambia Corridor (Kaolack-Dinguiraye-Keur-Ayib/Ferafenni-Senoba-Ziguinchor),
which is part of the Trans-West African Highway and spans a distance of about 243km across
2
Senegal and The Gambia, is an important economic and strategic link connecting the northern and
southern parts of The Gambia and Senegal, serving both intrastate and interstate traffic. Transit on
the corridor is however hampered by the lack of a reliable connection at Yalitenda in The Gambia,
currently serviced by a ferry across The Gambia River and poor road conditions in Senegal between
Dinguiraye - Keur Ayib (44km) and between Senoba – Ziguinchor (137km). The sections between
Kaolack to Dinguiraye (38km) and Keur-Ali/Farafenni – Senoba, 24km (Trans-Gambian Highway)
are presently in good condition.
1.2.2 Bank participation in the development of the Trans-Gambia Corridor project has been
programmed under two interventions. The first intervention includes two projects approved by the
Bank board between 2011/12 and 2014, namely: (i) construction of the bridge at Yalitenda in the
Gambia and two (2) one stop border posts in the Gambia and Senegal; and (ii) rehabilitation of the
section between Dinguiraye - Keur Ayib (44km).
1.2.3 The second intervention planned for 2016 will include rehabilitation of the Senoba -
Ziguinchor(137km) section and road pavement strengthening of 24 km of Keur-Ali /Farafenni –
Senoba in The Gambia. Though this latter section has recently received maintenance under the
European Development Fund (EDF) financing, the anticipated increased traffic after bridge
construction will strain its current loading capacity and necessitate strengthening. Studies for Senoba
- Ziguinchor are completed while there are no studies for Keur-Ali /Farafenni – Senoba. This Project
Appraisal thus aims to finance preparatory studies for the Keur-Ali /Farafenni – Senoba road section.
Realisation of these studies will inform government on the best road improvement options.
1.2.4 These various interventions highlighted above will complete physical development of the
entire Trans-Gambia Corridor serve for soft transport facilitation measures that will still need to be
addressed through other project interventions.
1.2.5 After the Trans-Gambia bridge construction, the Government of The Gambia (GoTG)
anticipates implementation of a cost recovery scheme through tolling that will guarantee sustainable
financing of maintenance. However, institutional mechanisms are neither in place nor being
developed. The study will in addition therefore assess and propose a toll management model that will
facilitate effective management of the bridge to ensure sustainable maintenance.
1.2.6 The Project is consistent with Pillar No.1 of Infrastructure Development in the Bank’s Long
Term Strategy (2013-2022). The Bank’s involvement in the first interventions makes its participation
in the second inevitable to ensure that the road targeted for strengthening is able to withstand
increased traffic after completion of the bridge. The studies are an essential pre-requisite to similar
projects that the Bank is involved and as such, the Bank will leverage its wealth of experience and
leadership on the project. The project is also particularly expected to contribute knowledge in
providing solutions for optimum bridge tolling management models within the context of the
country’s limitations in such initiatives.
1.2.7 As demonstrated above, Bank support for this project is premised on continued support and
development to functionality of the entire Trans-Gambia Corridor as a complete transport logistics
chain that responds to the growing transportation needs and demands of not only the Gambia and
Senegal but the entire ECOWAS community.
1.3 Donor coordination Several development partners actively participate in the Transport
Sector. These include the European Union, Kuwait Fund, the OPEC Fund (OFID), Saudi Fund,
BADEA, Islamic Development Bank (IDB) and the World Bank. The European Union was the lead
partner under the 9th European Development Fund (EDF) and provided financing for rehabilitation
and upgrading of approximately 260 km of trunk roads. As part of EDF X programming, EU is
considering committing an additional €10 million towards programmes in feeder roads and axle load
3
control, development of a network wide maintenance strategy and rendering of technical assistance.
Assistance is however contingent upon improvement in performance of various government
commitments that have been identified since 2012. IDB, OPEC and BADEA, have also previously
funded major road rehabilitation works on the North Bank and currently with the Kuwait Fund and
Saudi Fund are financing other major road works at the south bank of The Gambia. The donors
have also more recently made additional pledges to finance construction of the remaining unpaved
section (126km) of primary road network in the north.
1.3.2 There is no formal Transport Sector donor coordination in The Gambia, although the Middle
Eastern Donors (OPEC, BADEA, Kuwait Fund and Saudi Fund) have continued with informal adhoc
meetings for coordination of their road sector activities. The GoTG has set up the Management and
Aid Coordination directorate in the Ministry of Finance and Economic Affairs to compile data on
project management and aid coordination. As a strategy for institutionalising Transport Sector Donor
Coordination, the GoTG shall be advised by the Bank to assign the responsibility of Transport Sector
Donor Coordination to the Management and Aid coordination Directorate in the Ministry of Finance
and Economic Affairs. On the Bank side, previous efforts to harmonise and align strategies with the
World Bank have led to two successful preparations of Joint Assistance Strategies i.e. JAS 2008-
2011 and more recently JAS 2012-2015.
Table 1.1 Donor Coordination
Sector or subsector Size
GDP Exports Labor Force
Road Transport – The Gambia*
Players - Public Annual Expenditure (average)
GOTG a Donors
UA 1.8 million (3%) UA 60.6 million (97%)
EU 21.9%
ISDB 13.4%
BADEA 27.6%
Saudi Fund 9.60%
Kuwait Fund 27.5%
AfDB 0.1%
Level of Donor Coordination Existence of Thematic Working Groups: Yes Existence of SWAPs or Integrated Sector Approaches: No ADF's Involvement in donor coordination***: No
*** L: leader, M: member but not leader, none:
no involvement
‘a’ - five years average
2. PROJECT DESCRIPTION
2.1. Development Objectives
2.1.1 The overall development objective of the project is to support economic growth of the
countries on the Trans-Gambia Corridor and ECOWAS at large by fostering integration through
reliable, efficient and seamless transport infrastructure in the region.
2.1.2 The objective of the study is to identify physical project rehabilitation improvement options
on the section of the Trans-Gambia road corridor in The Gambia, arising from the anticipated
increased traffic after completion of bridge construction, analyze technical and economic viability,
assess the environmental and social impact and prepare detailed engineering and tender documents.
The study will also assess and propose the best institutional model for tolling the bridge, as a
sustainability maintenance measure.
4
2.2 Project components
A summary of the project components are presented in table 2.1 below:
Table 2.1: Project Components
No. Component Name
Estimated
Base Cost
(Million UA)
Component Description
1 Studies
1.1 Feasibility and Detailed
Studies and Bridge
Institutional Model
0.79 Road feasibility and detailed design studies aimed at proposing
pavement strengthening options for the 24 km section of the
Trans-Gambia Corridor between Keur Ali and Senoba. The
studies will principally take into consideration the anticipated
traffic increase that will arise from increased demand on the
bridge.
The studies will also focus on proposing the best institutional
model for managing the tolling of the Trans-Gambia Bridge.
This is in consideration that although the Government intends to
toll the bridge, no measures are proposed for managing the toll
bridge, either internally through the National Roads Authority or
externally through management contracts. One of the tasks to be
included in the Tolling Terms of Reference (ToR) is to define the
regulatory and institutional framework for the Toll Bridge.
1.2 Road Safety Audit 0.10 This will focus on an independent road safety assessment for
Keur Ali to Senoba (including the bridge) aimed at providing
specific road safety features. The audits will be undertaken at all
stages of study i.e. feasibility, draft and detailed design level.
2 Project Management
2.1
Financial Audit 0.02 An audit by external independent auditors to express an opinion
on the financial statements provided to the Bank and provide
reasonable assurance that the funds have been applied for the
intended purposes with due attention to economy and efficiency
2.3 Technical solution retained and other alternatives explored
The proposed study will provide GoTG with information to make decisions required for
improvement of the 24km section of the Trans-Gambia Corridor as well as adequate information to
implement a preferable bridge management model.
2.4 Project type
The project is designed as a stand-alone operation. The investments against which the funds
are to be disbursed are definite and specific. As such, the project approach is the most appropriate
arrangement for the Bank’s intervention in this operation.
2.5 Project cost and financing arrangements
2.5.1. Project cost estimates are based on similar studies undertaken in The Gambia as well as
international norms and average unit prices for consultancy services.
5
Table 2.2: Project cost estimates by component
No Components
UA (millions)
% FE Currency
Foreign Local Total
1. Studies
1.1 Feasibility, Detailed Design & Bridge Institutional Model 0.63 0.16 0.79 80
1.2 Road Safety Audit 0.07 0.03 0.10 70
Sub-Total 0.70 0.19 0.89
2 Project Management
2.1 Financial Audit 0.02 0.02
Sub-Total 0.02 0.02
Base Cost 0.70 0.21 0.91
Price Contingency 0.07 0.02 0.09
Project Cost 0.77 0.23 1.00
2.5.2. The estimated total cost of components (net of taxes) as summarised in Table 2.2 above is
UA 1.00 million (EUR 1.12 million) of which the foreign exchange cost is UA 0.77 million (EUR
0.86 million) or 77% of the total, and the local cost is UA 0.23 million (EUR 0.26 million) or 23% of
the total.
2.5.3. The proposed project will be financed by ADF through the country’s PBA. Government has
confirmed contribution of PBA towards this project. In view of budgetary constraints, government
requested that it be exempt from the entire Counterpart Funding (CF) requirements of 10% stressing
that CF requirements for capital projects have continued to put pressure on the national budget.
2.5.4. In line with the Policy on Expenditure Eligible for Bank Group Financing and The Gambia’s
Country Financing Parameters, ADF can finance components up to 100% as outlined in the
justification attached in Annex A.
Table 2.3: Sources of financing
Source of Financing UA millions %
FE Foreign Exchange Local Currency Total
ADF Grant 0.77 0.23 1.00 77
Total Project Cost 0.77 0.23 1.00 77
2.5.5. The project cost by category of expenditure and schedule by component are presented in
tables 2.4 and 2.5.
Table 2.4: Project cost by category of expenditure per country (UA millions)
Components
Euro (millions) UA (millions)
Foreign
Exchange
Local
Currency Total
Foreign
Exchange
Local
Currency Total
1 Consultancy
1.1 Feasibility, Detailed Design &
Bridge Institutional Model 0.70 0.18 0.88 0.63 0.16 0.79
1.2 Road Safety Audit 0.08 0.03 0.11 0.07 0.03 0.10
1.3 Financial Audit
0.03 0.03
0.02 0.20
Sub-Total 0.78 0.24 1.02 0.70 0.21 0.91
Base Cost 0.78 0.24 1.02 0.70 0.21 0.91
Price Contingency 0.08 0.02 0.10 0.07 0.02 0.09
Project Cost 0.86 0.26 1.12 0.77 0.23 1.00
6
Table 2.5: Expenditure schedule by component
No Components UA millions
2014/15 2015/16 2016/17 Total
1 Studies 0.18 0.71 0.89
2 Project Management 0.01 0.01 0.02
Total Base Cost 0.18 0.72 0.01 0.91
Price Contingency 0.02 0.07 0.09
Total 0.20 0.79 0.01 1.00
2.6 Project’s target area and population
The study will encompass the population along the 24 km section of the Trans-Gambia
Corridor between Keur-Ali/Farafenni - Senoba. The study will accurately confirm the affected
population, though recent reports1 have estimated the Project Influence Zone (PIZ) catchment area of
about 1 million. The PIZ is predominantly rural with high agricultural production though poverty
rates appear high at around 60%. Lack of transport services and infrastructure has been cited as one
of the factors contributing to high incidence of poverty. The study will thus also look at inclusion of
key high impact socio-economic hard and soft infrastructures initiatives that emboldens the project’s
inclusiveness in addressing the high poverty level.
2.7 Participatory process for project identification, design and implementation
Given its regional and strategic importance, the study Consultant is expected to consult
widely with different government administrative and technical authorities as well as with the
population in the project area. The opinion and concerns of the population will be collected through
organised focus groups or through any such methodology as the consultant shall propose and
approved by the Executing Agency (EA).
2.8 Bank Group experience, lessons reflected in project design
2.8.1. With the exception of the more recently approved financing for the Trans-Gambia Bridge in
late 2011 amounting to UA 66.73 million, the Bank’s intervention in the Transport sector in the
Gambia has been limited. The last major Transport Sector operations financed by the Bank were
prior to 1996 and these included: (i) an ADF loan of UA 14.51 million which was approved in 1989
for the Rehabilitation of North Bank Roads and Banjul Streets; (ii) a grant of UA 2.76 million was
approved in 1991 for Institutional Support to the Ministry of Works and Communication and studies
for the Essau – Farafenni Road; and (iii) the development of Banjul Port was approved in 1993 with
an ADF loan of UA16 million. With the exception of the current project which is on-going, the
above operations were successfully completed and had positive outcomes and impacts on The
Gambia’s economy. In general the projects contributed to lowering vehicle operating costs and
improved transport accessibility.
2.8.2. The Bank’s current Country Portfolio Performance Review (CPPR) Report has identified
some challenges that should be considered on future project design, namely: (i) non-availability of
preliminary and feasibility studies of projects; and (ii) lack of capacity building of agencies and
structures notably at departmental level, which are responsible for the implementing of Bank
operations in the Gambia. Some lessons arising from previous operations aimed at improving current
project design are included under Phase I of the ongoing Trans-Gambia Corridor Project and are
expected to positively impact the current project. These include support to the Executing Agency
(NRA) through: (i) provision of logistics in the form of office equipment and vehicles and; (ii)
provision of long term Technical Assistance in project, planning, procurement and contract
1 Trans-Gambia Corridor Project Appraisal Report
7
management. Adoption of relevant loan conditions is a major lesson particularly included under this
project
2.9. Key performance indicators Key performance indicators have been discussed with the
governments and are shown in the Results Based Logic Framework (RBLF). The principal key
indicators include: (i) value of government transport investment contributions per year; (ii) an
outcome related indicator that measures progress on development of road improvement options and
bridge management institutional choice; and (iii) output indicators as shown in the RBLF. The
indicators will be measured during project implementation, specifically at: (i) Project inception
(baseline survey); (ii) mid-term; and (iii) final survey after completion of the study.
3. PROJECT FEASIBILITY
3.1. Economic performance
The project interventions do not require economic analysis at the appraisal stage. Economic
analysis will be undertaken by the study consultant that will be procured, for some of the project
outputs.
3.2. Environmental and Social impacts
Environmental impact
3.2.1. The project was validated and categorized at level 3 in June 2014. Therefore for the purpose
of presenting this project to the Board, there is no requirement for an Environmental and Social
Impact Assessment (ESIA). However all project related requirements for the ESIA are detailed in the
Terms of Reference in line with Bank requirements and particularly the recently approved Integrated
Safeguards System (ISS) that came into force in July 1, 2014. The Bank will provide the necessary
guidance to ensure that ESIA studies are conducted in line with Bank requirements and at the same
time fully address the requirements of the National Environmental Agency (NEA) of the Gambia.
Climate Change 3.2.2. In addressing climate change related issues, the study will be conducted in line with the
National Adaptation Programme of Action (NAPA) of The Gambia that identifies potential climate
risks. Risk such as increase in temperate and rainfall could lead to floods and affect the section of the
road particularly in mangrove areas. The study will identify project focus areas related to climate
change resilience that have to be addressed.
Gender, Social and Involuntary Resettlement
3.2.3. Gender, social and resettlement concerns will be considered and identified as guided through
elaborate Terms of Reference for the ESIA and Resettlement Action Plan (RAP) that will be carried
out during the studies.
4. IMPLEMENTATION
4.1. Implementation arrangements
Executing Agency
4.1.1. The project components will be executed by the National Roads Authority (NRA). The NRA
has experience in implementation of several donor funded projects (AfDB, EU, BADEA, OPEC and
Islamic Development Bank) and is familiar with the requirements of multi-lateral donor institutions.
The NRA is currently implementing the Bank financed construction of the bridge at Yalitenda and
the one stop border post between the Gambia and Senegal. NRA will appoint a Senior Engineer from
within the NRA to coordinate project activities. Long term technical assistance has been included
under Phase I to reinforce NRA technical capacity in various aspects of Project Management
including contract management, cost control and procurement. This support will be extended to this
project to ensure sound project management and guarantee timely delivery of outputs.
8
Procurement Arrangements
4.1.2. All procurement of Consultancy Services will be with “Rules and Procedures for the Use of
Consultants”, using the relevant Bank’s Standard Bidding Documents.
4.1.3. NRA will be responsible for all procurement and will manage the process of obtaining the
necessary internal approvals in line with respective Public Procurement Laws and Regulations.
Procurement of Consultancy services for the proposed project would be carried out in accordance
with the Bank’s Rules and Procedures: ‘Rules and Procedures for the Use of Consultants’, dated May
2008 Edition, revised July 2012 or as may be revised, using the relevant Bank Standard Bidding
Documents, and the provisions stipulated in the Financing Agreement. The project will use the
Bank’s Standard Bidding Documents and the provisions stipulated in the Financing Agreement. The
services are packaged under three (3) lots as follows: (i) feasibility and detailed studies and bridge
institutional model; (ii) road safety audit; and (iii) project financial audits.
4.1.4. The Bank has approved advance contracting to facilitate procurement of the major
consultancy services i.e. feasibility studies, detailed design and bridge institutional model, to ensure
that the studies are carried out within the JAS period (2012 -2015).
Financial Management and Disbursement Arrangements
4.1.5. A review of the proposed FM arrangements for the project was carried out with the following
conclusions:
i) The Gambia National Roads Authority accounting department would handle financial management
for the project, in line with the arrangements for the first phase of the project.
ii) The FM capacity assessment concluded that the residual FM risk continues to be moderate, and
that NRA has adequate qualified staff to carry out the required FM work for the new phase. Navision
(the accounting system) is still in use and will be used to produce the required accounting
information and reports. The audit of the study will be conducted annually by a private firm of
auditors hired on terms of reference acceptable to the Bank.
As the project is expected to consist primarily of consultancy related contracts, direct payment
arrangements similar to those in place for Phase I will be used for disbursements. All disbursements
will follow the procedures outlined in the Bank’s Disbursement Handbook.
4.2. Monitoring 4.2.1. Project execution will be monitored both internally and externally. Internally the Executing
Agency will supervise the consultants through a Senior Engineer, appointed by the EA as the Project
Coordinator. NRA is expected to provide the Bank with quarterly progress reports that will detail
project implementation status. The Bank will provide external support through extensive review of
all study outputs to ensure that they are in line with Bank requirements as well as conduct periodic
field supervision missions. Table 4.1 provides a summary of the Bank’s key monitoring milestones.
Table 4.1 Implementation and Monitoring Timeframe
Timeframe Milestone Monitoring process Feedback loop
Q4 - 2014 Project Launching, Procurement
Arrangements,
Supervision Mission Progress Report
Q1/Q2 - 2015 Study in progress Supervision Mission Progress Report
Q2,Q4 - 2015 Study in progress Supervision Mission Progress Report
Q3,Q4- 2016 Substantial Completion Supervision Mission Project Completion Report
9
4.2.2. Additionally financial management and auditing aspects will be monitored through existing
accounting and reporting procedures. The EA will schedule preparation of the Project Completion
Report towards the end of the project.
4.3. Governance GoTG is committed to undertake the project using adequate safeguards on public
expenditure. As such the Gambia has continued to implement Public Expenditure Reforms (PEF)
aimed at improving governance systems such as tightening of fiscal policy through cash-budgeting
for monthly expenditure. As mitigation, the project provides for periodic financial audits to provide
feedback and early warning on the project’s implementation.
4.4. Sustainability 4.4.1. The sustainability of the project depends on the availability of resources to cover recurrent
maintenance costs, quality of works and conditions under which the road is to be used. A section of
the road near the bridge site is established on highly unstable mangrove soils which over the years
has proved costly to maintain. The study will thus evaluate economically sustainable engineering
solutions that will guarantee sustained performance of the road, particularly under expected heavy
loading.
4.4.2. The institutional study aims to propose a bridge management model that will ensure
sustainable maintenance of the bridge infrastructure. Under the current arrangement, tolls are
collected by the ferry operators (Gambia Ports Authority) on behalf of government as national
revenue under the authority of the Ministry of Transport, Works and Infrastructure. After the bridge
is constructed, the ferry services at the site will be discontinued and it is anticipated that tolling
mechanisms to be managed by NRA and or another entity as proposed by the study will be put in
place.
4.5. Risk management
The potential risks and outcome indicators are:
Outcome Risks
Quality of Study Output: The appointed Consultant may fail to provide the desired quality of a
useful report. As mitigation, the quality of ToR for the study will be carefully reviewed by Bank
project technical team and the outputs at all stages will be extensively reviewed to ensure that project
objectives are achieved.
Specifically, limited experience on tolling in the ECOWAS Region, could limit government and
public contribution on the study processed and subsequent acceptability of the study output. As a
mitigation measure, the Government will be advised to include resources at implementation for
wider public consultations and advocacy on tolling.
Output Risks
Procurement Delays: Delays in the procurement of Consultant could affect the study deliverables.
As mitigation, the Bank has approved advance procurement to ensure that the procurement process
commences along the processing schedule.
Study Coordination: Lack of proper coordination and efficient monitoring of the consultant. This
risk is mitigated through the NRA appointing dedicated Project Coordinator to manage daily project
activities. This will be included as a project condition prior to first disbursement. The Bank will also
ensure close monitoring of project scheduling activities International Competitive bidding.
10
4.6. Knowledge building
The project is an essential upstream activity that is meant to not only inform the Bank on
establishing immediate future targeted transport investments in the Country but also to complement
the Bank’s current efforts in developing the Trans-Gambia Corridor into a fully developed transport
logistics chain. The study will also contribute knowledge in providing solutions for bridge tolling
management models within the context of the country’s limitations of such initiatives
5. LEGAL INSTRUMENTS AND AUTHORITY
5.1. Legal instrument
The Bank instruments to finance this operation is an ADF Grant to The Gambia amounting to
UA 1.00 million. The standard ADF financing terms and conditions are applicable to the grant.
5.2. Conditions associated with Bank’s intervention
Conditions Precedent to the Entry into Force of the Grant Agreement
The Grant Agreement shall enter into force upon signature by the Republic of The Gambia and the
Fund.
Conditions Precedent to First Disbursement of the Grant
The obligation of the Fund to make the first disbursement of the Grant shall be conditional upon the
entry into force of the Grant Agreement and evidence by the Recipient to the satisfaction of the
Fund, that the following conditions have been fulfilled:
(i) Submission of the CV of the Project Coordinator to the Bank for no-objection.
5.3. Compliance with Bank Policies
(Yes) This project complies with all applicable Bank policies.
(None) The following exceptions to Bank policies are recommended for approval. The project
complies with all other applicable Bank policies
6. RECOMMENDATION
Management recommends that the Board of Directors approve the proposed grant of UA 1.00
million to the Government of the Republic of The Gambia subject to the conditions stipulated in this
report.
I
Appendix I Country’s comparative socio-economic indicators
Indicator Year Gambia AfricaDeveloping
Countries
Developed
CountriesCharts
Basic Indicators
Area ('000 Km²) 11.3 30,046.4 80,976.0 54,658.4
Total Population (millions) 2013 1.8 1,109.0 5,628.5 1,068.7
Urban Population (% of Total) 2013 58.4 40.2 44.8 77.7
Population Density (per Km²) 2012 157.2 35.4 66.6 23.1
GNI per Capita (US $) 2011 610.0 1,594.2 2,780.3 39,688.1
Labor Force Participation - Total (%) 2013 43.1 37.4 0.0 0.0
Labor Force Participation - Female (%) 2013 48.3 42.5 39.8 43.3
Gender -Related Development Index Value 2007 0.5 0.5 .. 0.9
Human Develop. Index (Rank among 169 countries) 2012 165.0 .. .. ..
Popul. Living Below $ 1 a Day (% of Population) 2003 33.6 .. 25.0 ..
Demographic Indicators
Population Growth Rate - Total (%) 2013 3.2 2.5 1.4 0.7
Population Growth Rate - Urban (%) 2013 4.1 3.4 2.4 1.0
Population < 15 years (%) 2013 45.9 40.9 29.2 17.7
Population >= 65 years (%) 2013 2.4 3.5 6.0 15.3
Dependency Ratio (%) 2013 82.7 77.3 52.8 ..
Sex Ratio (per 100 female) 2013 97.9 100.0 934.9 948.3
Female Population 15-49 years (% of total population) 2013 23.8 24.0 53.3 47.2
Life Expectancy at Birth - Total (years) 2013 58.8 59.2 65.7 79.8
Life Expectancy at Birth - Female (years) 2013 60.2 60.3 68.9 82.7
Crude Birth Rate (per 1,000) 2013 42.7 35.3 21.5 12.0
Crude Death Rate (per 1,000) 2013 9.7 10.4 8.2 8.3
Infant Mortality Rate (per 1,000) 2013 54.9 61.9 53.1 5.8
Child Mortality Rate (per 1,000) 2013 99.5 97.4 51.4 6.3
Total Fertility Rate (per woman) 2013 5.8 4.6 2.7 1.8
Maternal Mortality Rate (per 100,000) 2010 360.0 415.3 440.0 10.0
Women Using Contraception (%) 2013 23.0 31.7 61.0 75.0
Health & Nutrition Indicators
Physicians (per 100,000 people) 2010 3.8 52.6 77.0 287.0
Nurses (per 100,000 people)* 2008 56.8 .. 98.0 782.0
Births attended by Trained Health Personnel (%) 2010 56.6 .. 39.0 99.3
Access to Safe Water (% of Population) 2011 89.3 67.8 84.0 99.6
Access to Health Services (% of Population) 2000 93.0 65.2 80.0 100.0
Access to Sanitation (% of Population) 2011 67.7 40.5 54.6 99.8
Percent. of Adults (aged 15-49) Living with HIV/AIDS 2011 1.5 4.7 161.9 14.1
Incidence of Tuberculosis (per 100,000) 2011 279.0 235.8 .. ..
Child Immunization Against Tuberculosis (%) 2011 90.0 81.2 89.0 99.0
Child Immunization Against Measles (%) 2011 91.0 76.3 76.0 92.6
Underweight Children (% of children under 5 years) 2006 15.8 .. 27.0 0.1
Daily Calorie Supply per Capita 2009 2,643.0 2,564.7 2,675.2 3,284.7
Public Expenditure on Health (as % of GDP) 2011 2.4 5.9 4.0 6.9
Education Indicators
Gross Enrolment Ratio (%) .. .. .. ..
Primary School - Total 2011 80.5 101.8 106.0 101.5
Primary School - Female 2011 81.9 97.8 104.6 101.2
Secondary School - Total 2010 54.1 45.4 62.3 100.3
Secondary School - Female 2010 52.6 41.9 60.7 100.0
Primary School Female Teaching Staff (% of Total) 2011 28.6 43.7 .. ..
Adult Literacy Rate - Total (%) 2011 51.1 .. 19.0 ..
Adult Literacy Rate - Male (%) 2011 41.9 .. .. ..
Adult Literacy Rate - Female (%) 2011 60.9 .. .. ..
Percentage of GDP Spent on Education 2011 3.9 5.3 .. 5.4
Environmental Indicators
Land Use (Arable Land as % of Total Land Area) 2011 44.5 8.4 9.9 11.6
Annual Rate of Deforestation (%) 2000 -1.0 0.6 0.4 -0.2
Annual Rate of Reforestation (%) .. .. .. ..
Per Capita CO2 Emissions (metric tons) 2011 0.2 1.1 .. ..
Last update: May 2014
Gambia
Comparative Socio-Economic Indicators
Sources : ADB Statistics Department Databases; World Bank: World Development Indicators
UNAIDS; UNSD; WHO, UNICEF, WRI, UNDP; Country Reports.
Note : n.a. : Not Applicable ; … : Data Not Available.
0200400600800
10001200140016001800
201
0
201
1
GNI per Capita (US $)
Gambia Africa
0
0.5
1
1.5
2
2.5
3
3.5
201
0
201
1
201
2
201
3
Population Growth Rate - Total (%)
Gambia Africa
0
10
20
30
40
50
60
70
80
90
100
201
0
201
1
Access to Safe Water (% of Population)
Gambia Africa
0
20
40
60
80
100
120
200
0
200
1
200
2
200
3
200
4
200
5
200
6
200
7
200
8
200
9
201
0
Secondary School - Total
Gambia Africa
II
Appendix II: Table of ADB’s portfolio in the country
A. National Operations
Sector / Operation
Approval
Date
Approved
Amount
Disbursed
Amount
Disb.
ratio
Closing
Date Age
(UA m) (UA m) (%)
(Yrs)
RURAL
● Livestock and horticulture development 26/12/08 4,02 3,74 93,02 31/12/14 4,8
● Sustainable land management 26/10/10 2,85 1,54 53,91 30/06/14 3,0
● Food & agriculture sector devpt project
(GAFSP) 15/05/13 17,26 0,58 3,37 30/06/19 0,4
Sub-Total 24,13 5,86 24,28
2,8
SOCIAL
● Entrepreneurship promotion and
microfinance 15/11/06 8,00 6,53 81,62 31/12/ 13 6,9
Sub-Total 8,00 6,53 81,62
6,9
WATER/SANITATION SECTOR
● Support for national water reform 7/04/10 1,76 0,80 45,26 31/12/14. 3,5
● Rural water supply and sanitation
Initiative 13/02/12 1,11 0,00 0,00 31/12/15. 1,7
13/02/12 3,55 0,57 16,12 31/12/15 1,7
Sub-Total 6,42 1,37 21,33
2,3
MULTI SECTOR
● ISP for economic and financial
governance 30/09/11 2,00 0,74 36,79 30/06/15 2,1
● Economic and financial governance
operation (EFIGO II) 24/0713 0,61 0,00 0,00 31/12/14 0,2
Sub-Total 2,61 0,74 28,19
1,2
TOTAL 41,16 14,49 35.2%
3,3
B. Regional Operations
Sector / Operation Approval
Date
Approved
Amount
Disbursed
Amount
Disb.
Ratio
Closing
Date
(UA m) (UA m) (%)
Status
Rural
● Regional Project on sustainable
management of endemic ruminant
livestock in West Africa (PROGEBE) 25/01/06 10,24 8,22 80,23 30/06/2014
NON PP /
NON PPP
Sub-Total 10,24 8,22 80,23
Infrastructures
● Trans-Gambia River crossing Project 16/12/11 63,55 0,03 0,05 30/06/2017 NON PPP
Sub-Total 63,55 0,03 0,05
Multi sector
● Payments systems development project
in WAMZ (Guinea, Gambia, Sierra Leone) 09/07/08 14,00 10,38 74,13 30/06/2014
NON PP /
NON PPP
● Supplementary Grant to WAMI for
Multi sector (Guinea, Gambia, Sierra
Leone) 09/11/10 5,00 0,98 19,60 30/06/2014
NON PP /
NON PPP
Sub-Total 19,00 11,36 59,78
TOTAL 92,79 19,60 21,13 NO PAR
III
Appendix III: Key related projects financed by the Bank and other development
partners in the country
Project Length Donor Euro,
million
Essau - Kerewan 51 Taiwan 7.61 Kerewan - Farafenni 52 IsDB 6.23 Farafenni - Laminkoto 115 OPEC and BADEA 16.61 Mandinaba - Soma 141 Kuwait Fund,
BADEA, OPEC
Fund, Saudi Fund
29.76
Soma – Basse - Sabi 192 EDF 22.00
Amdellai - Barra 20 EDF 6.10
Serrekunda - Mandinaba 28 ISDB, OPEC
Mandinaba - Selety 13 EDF 3.20
Trans Gambia 24 EDF 7.20
IV
Appendix IV: Map of the Project Area
Dinguiraye - Keur Ayib (44km)
(To be financed by BANK this
year)
Phase II (2016)
Senoba – Ziguinchor (137km)
Phase II (2016)
Project Road
(Trans-Gambia Highway)
Keur Ali - Senoba (24 km) Trans-Gambia Corridor
Dinguiraye - Keur Ayib (44km)
(Recently approved in May 2014
for Bank financing)
V
Annex A: Justification for Request of GoTG for Contribution of Less Than 10%
A.1 As indicated in the main text, this operation is proposing government financial contribution of
less than 10%. The policy on Eligible Expenditure for Bank Group Operations
(ADB/BD/WP/2007/106/Rev.1, paragraph 4.2.2) allows ADF to finance more than 90% to be justified by
the Task-team on the basis of the following three criteria: (i) Country Commitment to Implement its
overall Development Program; (ii) Financing Allocated to Sectors Targeted by Bank Assistance; and (iii)
Country Budget Situation and Debt Level.
A.2 Country Financing Parameters
An assessment of the Country Financing Parameters for expenditure eligibility by the World Bank
confirms The Gambia’s eligibility for Bank financing of project components up to 100%.
A.3 Country Commitment to Implement Its Overall Development Program
Gambia’s current overall development strategy is the Programme for Accelerated Growth and
Employment (PAGE, 2012-2015) seeks to accelerate economic growth and fight poverty through pro-
poor interventions. The government is fully committed to the PAGE which serves as a platform for
Gambia’s assistance from various development partners including the Bank.
A.4 Financing Allocated by the Country to Sectors Targeted By Bank Assistance
The Gambia’s Road Infrastructure Projects are mainly financed through Development Partners that
provide finance in the form of loans and grants. The Government has prioritized road infrastructure
development as demonstrated through the share of Overseas Development Assistance (ODA) that
accounted for the second largest share (18%) after Health and Social Welfare. The GoTG has also
demonstrated its commitment to mobilizing local resources by steadily increasing annual contributions to
the road fund from about Euro 0.29 million in 2007 to Euro 1.34 million in 2013. The cumulative
commitment of the Bank to transport amount to over 24% of total commitments since inception of Bank
operations in 1974.
Source: Ministry of Finance and Economic Affairs: 2013
A.4 Country Budget Situation and Debt Level
The current budget situation and debt levels are summarized in the table below. Among other things,
which indicates the country’s continued dependence on external financing of its budget. Overall debt
levels are however within International Monetary Fund (IMF) debt sustainability levels.
Debt Level
Public Debt (domestic and external) as a % GDP (2014) 85%
External Debt as % of GDP (2014) 46%
Agriculture 15%
Communication 2%
Education 7%
Energy (Electricity)
4%
Environment & Nat.
Res. 9%
Health & Social
Welfare 30%
Multisector /General
12%
Other 3% Transport
18%
Indicative Sectoral Distribution of ODA
VI
Annex B: Detailed Cost
Table B.1: Source of financing by components
No Components
Euro (millions) UA (millions) %
FE Currency
Foreign Local Total Foreign Local Total
1 Studies
1.1 Feasibility and Detailed Studies
and Bridge Institutional Model 0.70 0.18 0.88 0.63 0.16 0.79 80
1.2 Road Safety Audit 0.08 0.03 0.11 0.07 0.03 0.10 70
Sub-Total 0.78 0.21 0.99 0.70 0.19 0.89
2 Project Management
2.1 Financial Audit 0.03 0.03 0.02 0.02
Sub-Total
0.03 0.03 0.02 0.02
Base Cost 078 0.24 1.02 0.70 0.21 0.91
Price Contingency 0.08 0.02 0.10 0.07 0.02 0.09
Project Cost 0.86 0.26 1.12 0.77 0.23 1.00
Table B.2: Source of financing by category of expenditure
No Components
Euro (millions) UA (millions) Source
%
FE
Currency
Foreign
Exchange
Local
Currency Total
Foreign
Exchange
Local
Currency Total PBA
1 Consultancy
1.1 Feasibility and
Detailed Studies and
Bridge Institutional
Model
0.70 0.18 0.88 0.63 0.16 0.79 0.79 80
1.2 Road Safety Audit 0.08 0.03 0.11 0.07 0.03 0.10 0.10 70
1.3 Financial Audit
0.03 0.03
0.02 0.02 0.02
Sub-Total 0.78 0.24 1.02 0.70 0.21 0.91 0.91
Base Cost 0.78 0.22 1.02 0.70 0.20 0.91 0.91
Price Contingency 0.08 0.02 0.10 0.07 0.02 0.09 0.09
Project Cost 0.86 0.26 1.12 0.77 0.23 1.00 1.00