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Terms of Reference: Advisory services on Transport Policy in Liberia

Form 41-10-9-en 1

Terms of Reference

Advisory services on Transport Policy in Liberia VN: 81175992 PN: 2012.2539.0 – Capacity Development in the Transport Sector in Liberia

Terms of Reference: Advisory services on Transport Policy in Liberia

Form 41-10-9-en 2

Table of Content

Table of Content 2

Abbreviations 3

1. General Approach 4

I. Introduction 4

II. Key issues of Consultancy 5

2. Terms of Reference 7

I. General Terms of Reference for the Firm of Consultants 7

II. Detailed specifications 8

III. Terms of Reference for the experts 11

IV. Specification of inputs 14

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Abbreviations

AfT Agenda for Transformation

ALCC Association of Liberian Construction Contractors

BMZ Bundesministerium für wirtschaftliche Zusammenarbeit und Entwicklung

Federal Ministry for Economic Cooperation and Development of Germany

CCCS Contractors Classification and Certification System

EIA Environmental Impact Assessment

GIZ Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ) GmbH

GPS Global Positioning System

HDM-4 Highway Development and Management Model -4

ILO International Labour Organization

M&E Monitoring and Evaluation

MOT Ministry of Transport

MPW Ministry of Public Works

MSME Micro, Small and Medium-sized Enterprise

NTMP National Transport Master Plan of Liberia

NTPS National Transport Policy and Strategy

PP Public Participation

PPP Public Private Partnership

RA Road Authority

RED Road Economic Decision Model

RFA Road Fund Administration

RI Road Inventory

RMMS Road Maintenance Management System

RMMU Road Maintenance Management Unit

WP Work Package

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1. General Approach

I. Introduction

Liberia is a fragile state and one of the world’s least developed countries. Its citizens have

lived through years of civil war and instability. It was ranked 175 out of 187 countries on the

United Nations’ Human Development Index for 2014. Population growth, economic

development and reconstruction in the wake of the crises all pose huge challenges on

Liberia. According to the World Bank’s World Development Indicators 2012, 84% of Liberians

live below the poverty line of USD 1.25 a day. According to the International Labor

Organization’s (ILO) Liberia Labor Force Survey 2010, 79% of the population are in

precarious employment, are self-employed or do unpaid work at home. The government

budget for the 2013/14 financial year only amounts to approximately USD 550,000,000. The

institutional apparatus is still weak, despite the improvements made in recent years.

Corruption is endemic. Since mid-2014, the country experiences a severe Ebola-epidemic,

which adds to the social and economic challenges. The growth expectations for the GDP

have been halved to pre-Ebola forecasts. The overall impact for the country can only be

estimated so far.

In late 2012, the Liberian Government launched its Agenda for Transformation (AfT) as a

new poverty reduction and development strategy, replacing the Lift Liberia Poverty Reduction

Strategy. The AfT covers the period from 2012 to 2017 and forms part of the Liberia Rising

2030 long-term national vision, which aims to achieve middle-income country status by 2030.

The objective for the transport sector is to secure safe, reliable, accessible and efficient

transport services throughout the country. Roads and bridges are considered to be the

linchpin when it comes to offering public services and carrying out key economic activities.

One of the AfT’s sector goals is to improve year-round accessibility of roads and bridges.

Upgrading road links across the country and enhancing the operational efficiency of the road

sector (administration, construction and maintenance) through improved planning processes

and by increasing the involvement of the private sector in construction and maintenance are

considered to be key factors for political and social reconstruction.

GIZ, under the commission of BMZ, has given support in the transport sector for the

development of a National Transport Master Plan (NTMP) till its endorsement in 2012. The

NTMP is also integrated in the AfT. The road maintenance management system in a pilot

region has been set up since 2012. This is a transparent system for determining the

measures and budget required for maintenance. The institutional and human resource

capacities in the sector are improved, especially at Ministry of Public Works (MPW). With the

Contractors Classification and Certification System (CCCS) and the support of Association of

Liberian Construction Contractors (ALCC), important foundations for promoting Liberian

micro, small and medium-sized enterprises (MSMEs) have been laid.

Liberian MSMEs lack sufficient resources and capacity to participate in tenders and works

implementation for road construction projects. Due to inadequate road maintenance and the

lack of new road construction measures, Liberia’s transport sector is in very poor condition.

Investment is badly needed in the transport sector. The AfT anticipates the construction or

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maintenance of over 13,000 kilometers of primary, secondary and urban roads by 2017.

Nearly all of the reform projects described in the NTMP for the sector (e.g. road management

and funding, public transport and traffic safety) are still awaiting country-wide

implementation. The capacity of Ministry of Transport (MOT) and MPW outside the capital is

weak when it comes to needs assessment and the implementation and monitoring of

construction measures. In nearly all counties only one resident engineer is employed.

Overall, the transport sector’s performance capacity at legal, institutional and human

resources level is low (core problem).

II. Key issues of Consultancy

The Firm of Consultants is expected to provide services to support the implementation of

objectives as described in the NTMP. This will be done by supporting the staff of the

ministries and the integrated expert of GIZ in MPW as well as in cooperation with the regular

staff of the GIZ project. The consultancy will focus on Capacity Building, Policy Advice and

Technical Advice on road maintenance and general transport policy issues. This may include

Capacity Building for ministries and national agencies in road management and

maintenance as well as strategic planning

o study tours

o workshops

o peer-learning

o training courses

Policy Advice to national ministries:

o drafting of policies

o drafting of legislation

o drafting of reform programmes

Technical Advice:

o drafting of national road standards

o road and bridge inventory

Consultancy will be given in close cooperation with local stakeholders as well as integrated

experts of GIZ. The consultant needs to ensure that contributions of the stakeholders are

appropriately addressed and incorporated in the various drafts results. Pro-active support to

the stakeholder engagement at different levels of participation will be expected from the Firm

of Consultants. It will work in close cooperation with the Management of the Ministry of Public

Works, Ministry of Transport and the GIZ Transport Project in Liberia. The Firm of

Consultants in collaboration with the GIZ project staff is expected to organize workshops and

meetings with partners and stakeholders for capacity building and training of staff.

Success of the provided support by the Firm of Consultants will be measured by the

achievement of indicators as described in the project proposal of GIZ to BMZ (see Annex).

Two of the five indicators described in the project-proposal will be directly connected to the

work of the Firm of Consultants:

1. 4,000 kilometers of roadways (primary roads, secondary roads, access roads) are

maintained on an ongoing basis.

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Baseline value: 0 kilometers of roads in budget year 2012/13, 480 kilometers of roads

planned in budget year 2013/14; target value: 4,000 kilometers of roads (primary roads,

secondary roads, access roads) in budget year 2016/17; source: results of the analysis of

MPW’s road maintenance management system.

2. Five drafts of laws, implementing regulations or reform projects in the road sector based

on the National Transport Strategy and the NTMP have been presented to the parliament

or the cabinet or have been approved by the responsible ministry.

Baseline value: 0; target value: five drafts have been presented or approved, starting from

budget year 2014/15; source: announcement of implementing regulations and reform

projects in newspapers or on the government’s website, results of analysis of the agenda

of the cabinet meetings (depending on the type of draft; drafts must be presented to the

parliament or the cabinet or be approved by the responsible ministry).

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2. Terms of Reference

I. General Terms of Reference for the Firm of Consultants

The Firm of Consultants will provide consulting services and technical assistance to the MOT

and MPW to implement NTMP and NTPS. The Firm of Consultants works closely with and

supports the project Capacity Development in the Transport Sector. The staff members

seconded by the Firm of Consultants must cooperate closely with and adhere to orders from

the project manager responsible for the commission by BMZ.

Besides high technical competence, long-term experience in the sector as well as the region,

advanced social sensitivity and intercultural competence are required to operate in the post-

conflict and now post-Ebola situation.

Reports are submitted every six months with a final report at the last month of contract based

on the format of GIZ progress reports. All reports have to be written in English. Regular

feedback shall be provided to the project manager after each assignment. Terms for

missions shall be determined by the GIZ project staff before the beginning of each

assignment.

After an inception visit and a common workshop with GIZ, project management and local

partners the Firm of Consultants should provide an Inception Report, including technical

methodology and working plan. It is important to indicate that the project is within the

objectives corridor defined above. The Firm of Consultants shall ensure that the Capacity

WORKS management model is used.

Results-based project implementation

According to the agreement between GIZ and BMZ based on international commitments,

objectives and results have to be achieved. Pre-defined indicators will prove the

achievement. The framework of results-based project implementation allows greater flexibility

on the input side. These two principles (results and greater flexibility) must be addressed in

the service package offered by the Firm of Consultants.

The above gives leeway with respect to the method proposed by the Firm of Consultants and

to project implementation. In order to describe the success of a project, clear indicators that

can provide evidence of the project results are needed. These are described in the project

proposal (see Annex). Because of this, it is necessary to examine the conditions in the

beginning and the situation at the end of the current project-phase. This should be taken into

account in the service package to be drawn up by the Firm of Consultants. When preparing

the service package, thought should be given to how to determine measurable values for the

indicators in the key project phases, taking into account GIZ's principles on results

monitoring.

The Firm of Consultants is expected to act in agreement with the GIZ project staff and the

partners, but respond to changes flexibly, especially if the project is in danger of straying

from the defined results corridor (indicators above). All activities by the Firm of Consultants

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are to be made in agreement with the GIZ project manager. In this context, the Firm of

Consultants shall make appropriate use of the five success factors of GIZ's Capacity

WORKS management model.

Monitoring und evaluation

GIZ attaches importance to monitoring of project developments. As in every project,

developments that may lead to difficulties in a later project phase should be identified as

early as possible. Furthermore, in view of the focus on results described above, results

monitoring is crucially important. An efficient monitoring and evaluation system must be set

up that allows our Liberian partners, the Firm of Consultants and GIZ to monitor project

development and change strategy if necessary.

The Firm of Consultants must therefore contribute to the existing monitoring and evaluation

system. Care must be taken to align M&E with GIZ and Liberian partners to avoid the

creation of parallel structures, and to ensure that use is made of already existing information.

Here, too, the framework of a results-based project implementation must be adhered to. It is

suggested that the M&E system is geared to the results chains.

II. Detailed specifications

Background: Policy development

Since March 2008, the German government has been commissioning GIZ to implement the

project Capacity Development in the Transport Sector in Liberia. So far, the National

Transport Policy and Strategy (NTPS) and the National Transport Master Plan (NTMP) have

been adopted and implementation efforts have started. Both documents will be given to the

consultants for preparation of the task after contracting.

These two core documents form the basis for strategic development of the whole transport

sector, with specific focus on roads as the main mode of transport in Liberia. NTMP provides

more detail from economic and engineering perspectives using scientific methodology

through processes and procedures in sustaining the road network, by using the Road

Economic Decision Model (RED) and Highway Development and Management Model -4

(HDM-4). After analyzing all of those processes and procedures the NTMP recommends a

systematic way of implementing road rehabilitation and maintenance by instituting a Road

Maintenance Management System.

In the field of policy development, the project is working with the two line ministries of the

sector, MPW and MOT. For MPW support was given to the planning- as well as to the

technical department for further strategic and policy development. MPW has the mandate to

manage all public infrastructures. Support to the MOT included strengthening its role in the

sector and the decentralization of its services. MOT should be the government entity

responsible for regulation and strategic planning of the Liberian transport sector. It currently

also provides driver licensing and vehicle registration.

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During the project term so far, several draft documents were developed and submitted to

MPW and MOT: Environmental Impact Assessment (EIA), Public Private Partnership (PPP)

Public Participation, draft act on RA/RFA , decentralization of driver licensing and standard

contacts type for MSME. However, planning and implementation capacities within the

ministries and changes on the political level hampered the execution process.

Background: Road Maintenance

Recent policy statements reiterate the government intentions to give the road sector its

fullest attention in terms of infrastructure development and service delivery. However, the low

commitment for road maintenance by the Liberian government is holding back progress,

which also influences further donor inputs.

In Liberia, the approach for road maintenance is based on the road maintenance strategy

adopted by MPW. The strategy recommends the establishment of a Road Maintenance

Management System (RMMS), setting up a Road Maintenance Management Unit (RMMU)

and creating a Road Authority and Road Fund Administration.

The first two conditions have been supported by the GIZ project in the last term. The RMMU

is a unit specifically for planning and steering maintenance measures. RMMS is the software

system used for processing and storing road related data. It will determine in a transparent

way the required budget and regular works for road maintenance. Currently, Roughton

RoMaps is the basic software in use. In 2012, a pilot region was set up and the system so far

included road condition survey for primary and secondary roads, as well as budget

calculation. However, due to budgetary constraints, no works contracts were awarded. For

further implementation MPW needs to select major corridors for a pilot based on the

ministry´s priority.

The Maintenance strategy strongly recommends the establishment of a Road Authority (RA)

and Road Fund Administration (RFA) for dedicated management of road maintenance. The

RA will be formed out of existing MPW structures, whereas the RFA is a completely new

entity which is to collect revenue for road maintenance financed through fuel levy, road user

and cross border charges, vehicle registration revenues etc. So far, GIZ has been supporting

the ministry in drafting new legislation in the road sector, e.g. the Road Authority Act and the

Act for Road Fund Administration. Additionally, the reformed classification system for

construction contractors (CCCS) has been established within the MPW to strengthen

implementation quality.

During the project´s recent phase, institutional and human capacities in the sector have

improved, especially at MPW. Nevertheless, capacities remain low and ownership is still

lacking. There has been intensive training in GPS for residents engineers of the ministry, and

GIS training was successfully done for two engineers based in the ministry. The RMMU to

some extend conducts surveys in collaboration with some of the donor partners who are

working in line with MPW on road maintenance related issues. The MPW trained GPS

technician´s duty is to further support other resident engineers in the counties who have not

benefited from the trainings so far.

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Specific Requirements:

The Firm of Consultants is expected to provide technical assistance to both ministries MOT

and MPW in the implementation of the NTMP and NTPS.

MPW shall be supported to improve the road maintenance management. Key to that will be

the development of national standards and enhancing the road inventory including bridges.

The road inventory (RI) is essential for financing road works or maintenance, it consist of

reliable technical data that is needed for budgeting of road works.

MOT is the lead ministry on the policies component of the NTMP and NTPS, through sector

coordination. It ensures that recommendations in these two documents are implemented

through a stakeholder dialogue within the transport sector. To be able to do this it is

important to revive a NTPS secretariat for transport sector coordination to ensure full

implementation. MPW has the lead on the technical components of the NTMP with respect to

roads maintenance in establishing and implementing a Road Maintenance Management

System.

The scope of work is divided into two work packages (WP):

WP 1: Technical assistance on development and implementation of national transport

policies.

The following policies are in discussion or under preparation

o MPW: regulation on standardized procurements system

o MOT: Road Safety regulation, Decentralization of basic services

Additional topics have to be defined in cooperation with the political partners of the

project

WP 2: Implementation of a road maintenance management system

Development of national, technical standards as well as safety standards for road

works

Enlargement of the national road inventory to national level and including bridges

The Firm of Consultants has to bear in mind, that the institutional reform for road

maintenance, including the foundation of a National Road Authority and Road Fund

Administration, can have influence on the advisory work. Support for the reform might be part

of the GIZ project, but under a different assignment.

The inputs in WP2 have to be done in strong collaboration with two integrated experts in

MPW. All activities have to be aligned with their work.

Technical assistance includes the elaboration of legal drafts and strategies, decentralization

of public services and capacity development on human and organizational level.

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The Firm of Consultants shall provide intermittent experts and short-term experts with a total

personnel input of up to 33 expert months. The team of experts should comprise of experts

with international, regional and national experience, proven knowledge in road maintenance,

financial and institutional set-up as well as in the development of transport-policies and

strategies in developing countries. The profiles for the experts will be defined in accordance

with the needs identified with the Liberian partners. However, the Firm of Consultants is

requested to include CVs of available experts, indicating (international) experience,

qualifications and language skills.

III. Terms of Reference for the experts

To achieve the specified objectives, GIZ expects the Firm of Consultants to provide an expert

pool that covers the two work packages:

- a pool of intermittent international short-term experts (WP1) (up to 18 person-

months) to provide consultancy services to the MPW and MOT on policy drafting and

implementation and capacity development.

- a pool of international short-term experts (WP2) (up to 8 person months) to provide

consultancy services to MPW on road maintenance issues.

All experts should be internationally experienced with good spoken and written English and

preferably German language skills and be familiar with GIZ Capacity WORKS management

model. Furthermore, capacity development experience should include public administration,

preferably in developing countries. One member of the team is to be named team leader.

The team-leader is to have excellent spoken and written skills of the English language. Also,

at least the team leader should have significant experience in working in Liberia, the Mano

River Union and fragile states in general. The dates and duration of the individual

assignments are to be coordinated flexibly with the Liberian partners and GIZ.

Assignment under WP2 might require travels to the countryside of Liberia.

The contracting period is estimated to be from July 1st, 2015 – June 30th, 2017

1. Keys tasks in the area of policy development:

For WP 1, the Firm of Consultants shall provide the following services:

1. Technical

assistance, including drafting of policies and regulations, to MOT and MPW for the

advancement of policies in discussion; the core areas will be defined during the

inception visit according to the priorities of the partners in the road-sector.

2. Support to both

ministries in the identification of further relevant priority legislation and reform

programs according to the NTMP and their advancement.

3. Capacitation of

staff of relevant authorities on transport policy and legislation

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(conducting workshops and training courses, support knowledge exchange and

learning)

4. Support both

ministries in implementing new legislation and reforms.

In this WP the consultants shall directly contribute to the achievement of indicator 2 (see

above): “Five drafts of laws, implementing regulations or reform projects in the road sector

based on the National Transport Strategy and the NTMP have been presented to the

parliament or the cabinet or have been approved by the responsible ministry.”

A constant consultation with the partners to agree upon strategies and mid-term plans in the

road-sector is mandatory. The consultancy relies on the national priorities of the government

of the Republic of Liberia and is obliged to follow the national demands and strategies in the

road sector. Therefore, a close cooperation with the partners and stakeholders to keep up to

date is demanded. However, work plans and all work-steps will be discussed with the GIZ

project manager and her/his representative.

2. Advisory functions under WP1

Provide advisory services to partners in drafting and implementation of standards, legislation and reform programs.

Prepare respective draft documents to be forwarded to cabinet and parliament.

Develop reform programs with partners based on the NTMP and be forwarded to the cabinet or adopted as regulations within the ministries.

Providing assistance and liaise with MPW on drafting national technical standards for construction and maintenance and developing a safety standard for road works.

Align activities with the efforts of implementing the Road Fund Administration and the Road Authority (not subject herein).

Support capacity development on transport policy, strategic development and management within the partner ministries. This can be done through specific training, workshops or other suitable methods like e.g. on the job training. Ministry staff must be capacitated to develop and implement policies based on the NTMP on their own.

3. Key tasks in the area of Road Maintenance:

For WP 2, the Firm of consultants shall provide the following services:

1. Technical Assistance to MPW on implementation of a road-maintenance management system, and on

2. Capacitation of staff of relevant units within MPW on road management and road maintenance (conducting workshops and training courses, support knowledge exchange and learning). These measures have to be aligned with the input of the integrated experts.

3. Design and set-up an expert concept for expansion of the road inventory, including additional secondary roads, and establishing a bridge inventory.

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4. Support in planning of road maintenance measures and their budgeting.

The work of the consultants shall directly contribute to the achievement of indicator 1:

“4,000 kilometers of road (primary roads, secondary roads, access roads) are maintained on an ongoing basis.”

4. Advisory functions under WP2

Provide advice and support to strengthen the institutional setup for sustainable road maintenance

Support capacity building through workshops, trainings etc. on road maintenance and construction with partners and relevant stakeholders. Specific topics and methods for capacity building will be determined together with GIZ project management and partners.

Collaborate and align with Integrated Experts (IF/CIM), whose key tasks are the management of road and bridge inventory and conduction of a road condition survey. They are expected to deliver a complete inventory list of roads and bridges, including all relevant data, in collaboration with MPW and Resident Engineers)

5. Project management function

The assignment requires several project management activities within both work packages. These shall be done by one team leader who is to be assigned for these tasks in advance. Functions include:

1. Provide support and expert advice to the GIZ project team, thus supporting to implement the German contribution in the partner country institutions.

2. Coordinating all activities with key stakeholders and ensuring transparency for the partner

3. Supporting GIZ project management in

updating and adapting the project design based on principles of Capacity WORKS, and in

preparing and adapting the plan of operations.

4. Identifying the need for short-term assignments, planning and steering the assignments, and supporting the local and international short-term experts

5. Monitoring and documenting work progress, ensuring an M&E system is in place

6. Support preparation and conduction of evaluations

7. Regular reporting every six months and providing a final report in the final month of the contract period.

6. Deliverables

The firm of consultants is to deliver the following:

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1. Inception report: An inception report should be issued by the end of week 4 from the start of the contracting period . The inception report shall confirm the detailed approach to the assignment, confirm the intended methodology, work plan and time schedule. Inception interviews with the partners are to be done and results included in the report too. The report should also point out critical elements in the study and indicate possible mitigation scenarios. A short review and further use of existing studies, policies and other documents should be included in the report. Also the inception report is to include results of the kick-off workshops and point out the needs and opinions of the partner organizations.

2. Draft Policies: The consultancy will deliver draft policies developed in cooperation with the partners, based on the national demands.

3. Regular reports: For both working packages the firm of consultants will deliver joint reports on the progress to the GIZ project manager. Mission reports are to be handed in after each assignment of STE, regular reporting is to be done every six month

4. Workshops: The firm of consultants will conduct at least two workshops for each work package. The first one is to be considered as a kick-off workshop to gather the opinions, interests and ideas of the major stakeholders as well as to develop a common idea for each work package. The kick-off workshops are to be conducted not later than 4 weeks after start of the contracting period. The documentation and results of these workshops are to be included in the inception reports. A wrap-up workshop at the end of the consultancy will summarize all activities and provide the partners as well as the project with further options for the future. Results of the wrap-up workshops are to be included in the final report.

5. Trainings: Various trainings in different topics concerning road maintenance as well as policy development are to be conducted and prepared. Training material is to be developed and given to the participating partners after the training courses. The total amount of trainings is to be clarified with the partners and GIZ project manager after the inception report.

6. Final report: The final report will conclude the consultancy. It is to be delivered in the final month of the contracting period. One key-element of the final report will be a conclusion with a future view on both work packages. The report should point out critical points for the future and give first ideas on how to solve them. The final report is to be discussed with GIZ project management before finalization.

IV. Specification of inputs

1. Assignment of personnel

WP 1: Pool of intermittent int. experts for up to 18 expert months.

WP 2: Pool of short-term int. experts for up to 8 expert months.

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2. Items of equipment

The Firm of Consultants will procure office equipment (computer, printer, etc.) related to implementation up to a total value of EUR 10,000. All procurement has to follow GIZ rules and regulations.

GIZ will provide one vehicle for the Firm of Consultants. A driver, maintenance and fuel costs will be covered by the Firm of Consultants.

The Firm of Consultants will provide one apartment for their experts to cover accommodation.

3. Expendable goods

The Firm of Consultants shall assume the operating costs for project vehicles and ongoing office costs in the partner country (costs for materials and telephone/fax etc.).

GIZ will provide for water and electricity.

4. Partner inputs

The local partners provide office-space for up to 2 persons.

5. Trainings, Workshops and upgrading

The Firm of Consultants shall assume the costs for preparation, training materials, venue and feeding for trainings and workshops as well as own participation at stakeholder workshops up to EUR 100.000,00. Costs for participants must not be covered by the Firm of Consultants.

6. Flexible remuneration item

A flexible remuneration item of EUR 95.000,00 shall be foreseen.

Capacity Development in the Road Transport Sector in Liberia, Project number 2012.2539.0

Form 12-6-13-de

ANNEX 1: PROJECT PROPOSAL

Submission of an

offer for implementing a follow-on phase

at an estimated offer price of up to EUR 6,000,000

CRS purpose code: 21010

DAC and BMZ markers

GG (Gender equality): 1

PD/GG (Participatory development/good governance): 1

UR (Environmental protection and resource conservation): 1

TD (Trade development): -

DES (Combating desertification): 0

KLM (Climate change, greenhouse gas reduction): 0

KLA (Adaptation to climate change): 1

BTR (Biodiversity convention): 0

PBA (Programme-based approaches): 0

Action is required due to risks and/or potential in the fields of environmental protection

and resource conservation, greenhouse gas reduction or adaptation to climate change;

see annex on in-depth environmental and climate assessment.

AO (Poverty orientation): MSA

FS (Peace and security): 1

LE (Rural development and food security): 1

After a review of alternative options, the TC measure presented in the offer and its promotion

are held to yield the most favourable relationship between the purpose of the TC measure

and the funds to be used.

Capacity Development in the Road Transport Sector in Liberia Project number 2012.2539.0

17

Table of contents

List of abbreviations 18

A.1. Brief description 20

A.2 Context in the priority area 20

A.2.1 Goals and strategies of partner country in the priority area 20

A.2.2 Activities of other donors, harmonisation of donor contributions 21

A.3 Description of the German development cooperation programme 22

A.4 Proposed measures to be taken by BMZ 22

A.4.1 Measures within the scope of the political and priority area dialogue 22

A.4.2 Modifications to the delivery of German development cooperation 22

B.1 Brief description of the Capacity Development in the Road Transport

Sector in Liberia project 22

B.2 Problem and potential analysis (related to the TC measure) 24

B.3 Description of the TC measure 26

B.3.1 Objectives and indicators 26

B.3.2 Target groups and other stakeholders 27

B.3.3 Executing agency and partner structures 28

B.3.4 Design of the TC measure 28

B.3.5 Total costs, commission value, partner inputs, combined financing,

term/schedule 32

B.3.6 Results and risks of the TC measure 33

B.3.7 Declaration 36

Annexes

Cost estimate and plan of outgoing funds by financial year

Results matrix

In-depth environmental and climate assessment


18

List of abbreviations

AfDB African Development Bank

AfT Agenda for Transformation, Liberia

Liberia’s growth and development strategy 2012 – 2017

ALCC Association of Liberian Construction Contractors

CCCS Contractors Classification and Certification System, Liberia

EU

HCD

European Union

Human capacity development

ILO International Labour Organization

MSME

Micro, small and medium-sized enterprises

LRA Liberian Road Authority

LRF Liberian Road Fund

LRTF Liberia Reconstruction Trust Fund

MOT Ministry of Transport, Liberia

MPW Ministry of Public Works, Liberia

NTMP National Transport Master Plan


19

OPRC Output- and performance-based road contracts

USAID United States Agency for International Development


20

A.1. Brief description

Not applicable as this is an individual proposal. See B.1

A.2 Context in the priority area

A.2.1 Goals and strategies of partner country in the priority area

In late 2012 the Liberian Government launched its Agenda for Transformation (AfT) as a new

poverty reduction and development strategy, replacing the Lift Liberia Poverty Reduction

Strategy. The AfT covers the period from 2012 to 2017 and forms part of the Liberia Rising

2030 long-term national vision, which aims to achieve middle-income country status for Liberia

by 2030. The objective for the transport sector is to secure safe, reliable, accessible and

efficient transport services throughout the country. Roads and bridges are considered to be the

linchpin when it comes to offering public services and carrying out key economic activities. One

of the AfT’s sector goals is to improve year-round accessibility of roads and bridges. Upgrading

road links across the country and enhancing the operational efficiency of the road sector

(administration, construction and maintenance) through improved planning processes and by

increasing the involvement of the private sector in construction and maintenance are considered

to be key factors for political and social reconstruction. The strategy also calls for the use of

labour-intensive technologies to reduce unemployment. Participation of stakeholders and local

administrations in road construction planning and monitoring construction projects is to be

improved. While road construction is to continue to be financed largely by international donors,

the costs of road maintenance are increasingly to be financed from the government’s budget.

When it comes to prioritising the measures for roads and bridges, and the road maintenance

strategy, the AfT refers to the National Transport Master Plan (NTMP), which is supported by

the technical cooperation measure. The NTMP was adopted in May 2012 as a basis for

planning for the next ten years. The debate that preceded its approval demonstrated that new

construction and paving of roads continues to be a high political priority. The Ministry of Public

Works (MPW) is responsible for achieving the AfT’s goals for roads and bridges, while the

Ministry of Planning and Economic Affairs is responsible for overall implementation of the AfT.

The associated monitoring system requires surveys to be conducted at three-month intervals.

The participating ministries, such as the Ministry of Transport (MOT) and MPW, will supply their

data for this. Private sector development is one of the AfT’s superordinate objectives for

creating employment and prosperity, as well as for reducing poverty. Since 2012, the Liberian

Government has increasingly considered measures to fight youth unemployment and promote

youth employment. When selecting sectors to be promoted, a key factor that speaks in favour of

Liberia’s infrastructure and roads sector is the employment and poverty reduction potential that

can be realised in the medium term.

In the budget for 2012/13 – which forms part of a medium-term financial planning process for

the first time – the largest individual item among the national priority programmes is the


21

infrastructure sector, comprising ports, roads and power, as well as internet technology. Good-

quality nationwide road links, particularly between Monrovia and the regional administrative

centres, are seen as essential for national political and social reconstruction and are connected

with the Ministry of Planning’s economic corridors scheme. Infrastructure is also a priority for the

2013/14 budget, which provides USD 553,000,000 in national funds and foresees an additional

USD 648,000,000 in donor funding (2012/13: USD 672,000,000 budget funds and USD

487,000,000 donor funding). This increase in donor funds is at odds with the government’s

earlier declaration of intent to reduce this funding by 2016.

A.2.2 Activities of other donors, harmonisation of donor contributions

Other donors such as the World Bank, the African Development Bank (AfDB), the European

Union (EU), Norway, Sweden and the United States are focusing their inputs on financing

infrastructure projects (road construction and rehabilitation, energy supply, ports, rehabilitation

of public buildings, etc.), both as contributors to the Liberia Reconstruction Trust Fund (LRTF)

administered by the World Bank, as well as in their own measures. As stated in the new

European Development Fund (EDF), the EU will no longer provide funding for the road sector in

future. Activities in the education sector will be expanded. The World Bank is currently still

implementing a project for constructing over 200 kilometres of access roads on behalf of the

EU. The Kuwait Fund and AfDB plan to pave individual primary roads. For this undertaking,

AfDB will use a traditional form of contract rather than the output- and performance-based road

contracts (OPRCs) approach promoted by the LRTF. According to AfDB, the traditional form of

contract (road construction and maintenance awarded in two lots) is cheaper and quicker to

execute. The costs of rehabilitating and maintaining 249 kilometres of roads through OPRCs will

be financed for a period of ten years via the LRTF. Furthermore, projects will be financed in the

urban road sector in Monrovia. The government is still unclear about the LRTF’s future role. The

contractors carrying out road construction measures financed by the LRTF through OPRCs are

exclusively Chinese construction firms. Japan is planning to upgrade a primary road in Greater

Monrovia and Sweden is funding the construction of rural access roads in Lofa and other

regions amounting to 560 kilometres. The United States Agency for International Development

(USAID) is planning a road construction programme for rural access roads in several Liberian

regions amounting to approximately USD 35,000,000. Implementation of the programme has

been delayed since 2012, however. USAID is also involved in academic education. Working

with Liberian universities, it is improving teaching and access to academic education, especially

in the areas of agriculture and engineering. Capacity development is only available through

German technical cooperation activities (for rural access roads, Sweden is providing this service

to a limited extent). All other contributions are specifically earmarked for road construction

measures. Both the World Bank and the EU are seeking support, primarily to address the fact

that neither a Liberian Road Authority (LRA) nor a Liberian Road Fund (LRF) has yet been set

up, and to pave the way for the transformation of the Infrastructure Implementation Unit (IIU) at

MPW (which is financed by the World Bank) into an LRA. There is a good chance that the EU

will provide cofinancing for advisory services that facilitate this institutional reform.


22

There is a regular exchange of information between the Liberian Government and the donors

and implementing organisations, especially the EU, USAID, Sweden, Japan, AfDB, the World

Bank and Germany. Based on the cooperative approaches adopted under the aegis of the EU,

and supported by a provisional secretariat organised by the German technical cooperation

actors, coordination meetings take place at MPW every two months. At these meetings,

activities are agreed and issues of common interest are discussed. Improved coordination is

needed, as funding is still being provided for road construction projects without making

arrangements for future maintenance. Meetings have been held with Sweden, USAID and the

World Bank on the role and development of MPW’s Road Maintenance Management Unit. The

meetings focused on how the unit can support new donor-financed projects if in future road

maintenance measures introduced with the support of the technical cooperation measure are

also expanded to include other counties beyond the pilot region. As individual donors, such as

Sweden, provide further training for Liberian construction contractors, German technical

cooperation actors also conduct regular meetings to coordinate training measures.

A.3 Description of the German development cooperation programme

Not applicable as this is an individual proposal.

A.4 Proposed measures to be taken by BMZ

A.4.1 Measures within the scope of the political and priority area dialogue

None

A.4.2 Modifications to the delivery of German development cooperation

None

B.1 Brief description of the Capacity Development in the Road Transport Sector in

Liberia project

Liberia is a fragile state and is one of the world’s least developed countries. Its citizens have

lived through years of civil war and instability. The institutional apparatus is still weak, despite

the improvements made in recent years. Nearly all of the reform projects described in the NTMP

for the sector (e.g. road management and funding, public transport and traffic safety) are still

awaiting country-wide implementation. Due to inadequate road maintenance and the lack of

new road construction measures, Liberia’s transport sector is in very poor condition. In the

budget year 2013/14, 480 of the total approximately 5,000 kilometres of primary and secondary


23

roads were maintained for the first time. The capacity of MOT and MPW outside the capital is

weak. The core problem is the low performance capacity of the transport sector at legal,

institutional and human resources level.

The module objective is as follows: Performance capacity in the transport sector is improved at

legal, institutional and individual level.

The technical cooperation measure supports the government with improving performance

capacity in the transport sector at legal, institutional and individual level. The main thrust of the

measure involves implementing the national sectoral reform, with a focus on the road sector.

The measure aims to expand road maintenance management from the pilot region (stretching

from the area to the west of Monrovia to the border with Sierra Leone) to other regions that

have not yet been selected. Additionally, youth employment promotion measures are to be

integrated in the road sector in order to strengthen the performance capacity of the private

sector. Traffic safety measures will aim to reduce the negative impacts of traffic growth. The

technical cooperation measure works with the government, business associations and

representatives of civil society at national level and increasingly in the counties. The project

focuses on three fields of activity that contribute to achieving the module objective: (1)

improving road maintenance, (2) implementing laws, strategies and reform programmes, and

(3) employment promotion.

The project cooperates with the Association for Liberian Construction Contractors (ALCC) in the

following areas: monitoring the labour market, providing careers guidance, determining current

and future training needs, and designing needed training content.

The term of the technical cooperation measure is three years (August 2014 – July 2017) and

the German technical cooperation contribution will cost to up to EUR 6,000,000.


24

B.2 Problem and potential analysis (related to the TC measure)

Liberia is a fragile state and is one of the world’s least developed countries. Its citizens have

lived through years of civil war and instability. It was ranked 174 out of 186 countries on the

United Nations’ Human Development Index for 2012. Population growth, economic

development and reconstruction in the wake of the crises all pose huge challenges for Liberia.

According to the World Bank’s World Development Indicators 2012, 84% of Liberians live below

the poverty line of USD 1.25 a day. According to the International Labour Organization’s (ILO)

Liberia Labour Force Survey 2010, 79% of the population are in precarious employment, are

self-employed or do unpaid work at home. The government budget for the 2013/14 financial

year only amounts to approximately USD 550,000,000. The institutional apparatus is still weak,

despite the improvements made in recent years. Corruption is endemic. Further challenges

include implementing land reform, improving the conditions for investments and fighting youth

unemployment. Liberian micro, small and medium-sized enterprises (MSMEs) lack sufficient

resources and capacity to participate in tenders for road construction projects. Due to

inadequate road maintenance and the lack of new road construction measures, Liberia’s

transport sector is in very poor condition. In the budget year 2013/14, 480 of the total

approximately 5,000 kilometres of primary and secondary roads were maintained for the first

time. Investment is badly needed in the transport sector. The AfT anticipates the construction or

maintenance of over 13,000 kilometres of primary, secondary and urban roads by 2017. Nearly

all of the reform projects described in the NTMP for the sector (e.g. road management and

funding, public transport and traffic safety) are still awaiting country-wide implementation. The

capacity of MOT and MPW outside the capital is weak when it comes to needs assessment and

the implementation and monitoring of construction measures. Only one resident engineer is

employed per county. The transport sector’s performance capacity at legal, institutional and

human resources level is low (core problem).

The causes are rooted in the country’s fragile statehood. To date, the government institutions

have been not able to adequately guarantee legal security and transparency in administrative

processes in all regions of the national territory. Additional reasons include underfunding of the

road sector, particularly with respect to road maintenance. Most road construction and

rehabilitation is financed by international donors. MPW’s institutional transformation process,

which will turn it into a streamlined core ministry with a subordinate road authority and road

fund, has not yet been completed. The inadequate coordination between MOT and MPW and

with other stakeholders in the sector reduces efficiency and effectiveness. Furthermore, the

technical and management capacity of the public administration and the private sector is not

sufficient. Due to civil war-related flight and loss, resources in the public administration and in

private construction companies are only being restored very gradually. The generally poor level

of education prevents the administration and the private sector from finding qualified personnel,

despite high youth unemployment. The low employment rate in the formal sector is largely

attributed to the major obstacles MSMEs have to overcome to enter the sector (i.e. official


25

registration of the companies). The plethora of regulations and high taxes in the formal sector

means that the informal sector remains attractive.

Negative effects include the lack of year-round access to road and transport services and the

ensuing decelerated economic and social development. Products do not reach the markets, and

social services such as health care and education are mostly unavailable in remote regions.

Outside the capital, government services are available to only a limited extent and the poor

accessibility of the county capitals complicates public administration. This causes increasing

distance between the people and the government administrative bodies, with the people

expecting little or no input from these bodies to improve their own situation. This lack of

confidence in government bodies can compromise state legitimacy in the medium term. Failure

to maintain the roads leads to high repair costs. The government’s regulatory, planning,

management and coordination capacity in the sector is low and this is conducive to corruption

and bad investments. Liberian MSMEs are unable to provide practical training or work for

unemployed young people. MSMEs have little access to funding and, as long as they operate in

the informal sector, are unable to participate in official tenders. MSME employees have few

possibilities to assert their employee rights, such as punctual wage payments, and are generally

employed only on a seasonal basis. There are too few suitable jobs for Liberia’s young people,

most of whom have a low level of education. This contributes to a growing lack of prospects

among young unemployed people, especially in remote regions. As a result, young people are

more prone to violence, a tendency which is accommodated by local gang structures.

The technical cooperation measure’s potential: including the National Transport Master Plan in

the AfT has made the measures described in the plan a top political priority. Implementing the

list of legislative initiatives and reform programmes to be developed (which was adopted with

the NTMP), especially those relating to road maintenance management, creates the foundation

for the sustainable funding and maintenance of the roads. It secures the sustainability of the

donor-financed investments and has the potential to improve the transparency of administrative

processes. The measure can build on the capacity already developed at MPW. The Liberian

Government also sees employment and poverty reduction potential in the road sector. The

Contractors Classification and Certification System (CCCS) offers a financing mechanism for

training courses in the construction sector that registered MSMEs can use to train employees.

MPW’s contractual conditions, which are suited to MSMEs, offer these enterprises the potential

to increase commissions and employment. Cooperation with the World Bank on road

maintenance management and with ILO, USAID and other organisations on employment

promotion boosts the German contribution’s effectiveness.

The results achieved to date include the adoption of the National Transport Master Plan in

May 2012 as the planning framework for the next ten years. The NTMP is also integrated in the

AfT. The road maintenance management system in the pilot region has been in use since 2012.

This is a transparent system for determining the budget required for maintenance. The

institutional and human resource capacities in the sector are improved, especially at MPW. With

the CCCS and the support of ALCC, important foundations for promoting Liberian MSMEs have

been laid.


26

Access to educational and health care facilities is not guaranteed all year round in all regions,

which constitutes a violation of the human right to equal opportunities and the right to food,

health and employment. Women are currently not equally represented in the transport sector.

Planning processes in the transport sector are not participatory. The concerns of women,

people with disabilities and marginalised population groups are not adequately taken into

account.

B.3 Description of the TC measure

B.3.1 Objectives and indicators

The technical cooperation measure directly continues German support provided in the transport

sector since February 2008. During the first phase, the measure enabled the Liberian

Government to formulate the necessary framework at strategic level through the National

Transport Policy and Strategy and the NTMP. The second commission phase focused on

implementing reform programmes and legislative initiatives in the road transport sector. The

measure focuses on developing and piloting a national road maintenance management system

and on drafting laws, for example for founding LRA and LRF. Further support for the transport

sector will be required beyond the technical cooperation measures’ second commission phase,

especially in the areas of local public transport, traffic safety and establishing LRA and LRF.

Module objective

Performance capacity in the transport sector is improved at legal, institutional and individual

level.

Indicators

3. 4,000 kilometres of roadways (primary roads, secondary roads, access roads) are

maintained on an ongoing basis.

Baseline value: 0 kilometres of roads in budget year 2012/13, 480 kilometres of roads

planned in budget year 2013/14; target value: 4,000 kilometres of roads (primary roads,

secondary roads, access roads) in budget year 2016/17; source: results of the analysis of

MPW’s road maintenance management system.

4. Five drafts of laws, implementing regulations or reform projects in the road sector based on

the National Transport Strategy and the NTMP have been presented to the parliament or the

cabinet or have been approved by the responsible ministry.

Baseline value: 0; target value: five drafts have been presented or approved, starting from

budget year 2014/15; source: announcement of implementing regulations and reform

projects in newspapers or on the government’s website, results of analysis of the agenda of

the cabinet meetings (depending on the type of draft; drafts must be presented to the

parliament or the cabinet or be approved by the responsible ministry).

5. 24 commissions from the Ministry of Public Works (MPW) for maintaining roads are

implemented by Liberian micro, small and medium-sized enterprises (MSMEs).


27

Baseline value: 0; target value: 24 (commissions are considered to be successful if they are

implemented in accordance with the standard tender documentation in the construction

phase of a budget year (up to 9 months)); source: tender documents, publication of the

tender results in the list of the department at MPW responsible for tenders or in newspapers,

confirmation of payment by the commissioning party in accordance with the commission,

implementation of the work in accordance with the commission and with the MPW monitoring

system.

6. 3,000 additional employment contracts for 15 to 35-year-olds (10% of which are for women)

that last at least three months and provide the usual commercial remuneration are created

with MSMEs registered in the CCCS.

Baseline value: the number of jobs and employment contracts with MSMEs registered with

the CCCS will be determined by July 2014 as part of a gender-differentiated baseline survey;

target value: 3,000 additional employment contracts, 10% of which are for women; source:

tracer study with training programme participants

7. The satisfaction rating among both men and women in the road maintenance pilot regions

increases by 20% due to better accessibility of markets, workplaces and services.

Baseline value: X, figures will be presented in the first progress report; target value:

satisfaction ratings among both men and women 20% higher than baseline value (X plus

20%); source: representative gender-differentiated and age-differentiated baseline survey

carried out in the road maintenance pilot regions prior to introducing a road maintenance

management programme and at the end of the term; the surveyed individuals are considered

to be satisfied if they give a rating of 1, 2 or 3 on a scale of 1 to 5. Surveyed individuals are

asked to give reasons for improved satisfaction (e.g. year-round access, better traffic safety).

B.3.2 Target groups and other stakeholders

The target groups comprise men and women, including people living in poorer areas and

especially outside the capital region, who make use or would make use of transport services if

they were affordable and available. Women are especially affected because, in the post-war

situation, they are particularly responsible for providing for families and selling agricultural

products.

Other participants include experts and managers in transport and vocational training sector

institutions (e.g. Ministry of Finance, Chamber of Architects, Engineering Society of Liberia,

private training providers), who are advised and trained, and also women and men who obtain

training and employment through the measures, especially those who were formerly

unemployed. The participants also include all providers who are able to offer citizens transport

services in passenger and freight transport (transport, taxi and bus companies, etc.).


28

B.3.3 Executing agency and partner structures

The executing agency of the technical cooperation measure is the Ministry of Planning and

Economic Affairs, whose merger with the Ministry of Finance was announced in 2013, but has

not yet been implemented.

On placement of the commission, the lead executing agency has the right to demand the

services to which it is entitled direct from GIZ. GIZ and the lead executing agency shall set out

the details in an implementation agreement. BMZ may exercise its rights pursuant to the

commission, in particular those arising from the General Agreement, without the approval of the

lead executing agency.

Important implementation partners are MOT, which is responsible for political steering and

regulation of the sector, and MPW, which is responsible for infrastructure. MPW is already able

to absorb the measure’s support inputs. However, financial resources are very limited, which

means that important functions are dependent on donor financing. MOT is weak in terms of both

human and institutional resources and performs its role in the sector to only a very limited

extent. ALCC is the sole employer’s representative for Liberian MSMEs in the construction

sector and is an important representative of the formal economy. ALCC’s institutional capacities

remain low, and it does not adequately represent the sector. Another implementation partner

from the formal economy is the Liberian Chamber of Commerce, whose German Desk helps

establish contact with the German business sector. The Chamber of Commerce has good

human resource and institutional capacity. In addition to ALCC, the Chamber of Architects and

the Engineering Society of Liberia are responsible for implementing the CCCS-financed training

courses. Both associations have only limited experience with conducting training courses and

are unable to perform their responsibilities to provide specialist input for the sector. The Ministry

of Finance is involved with the inter-ministerial taskforce charged with establishing LRA and

LRF and will be the superordinate ministry for LRF. The Civil Service Agency is responsible for

implementing public service reform and in turn for creating attractive wage structures for public

administration. The project is working with the Ministry of Youth and Sports in the area of youth

employment promotion.

B.3.4 Design of the TC measure

B.3.4.1 Methodological approach and use of instruments

Methodological approach

The technical cooperation measure supports the government with improving performance

capacity in the transport sector at legal, institutional and individual level. The main thrust of the

measure involves implementing the national sectoral reform, with a focus on the road sector.

The measures aims to expand road maintenance management from the pilot region to other

regions. Additionally, youth employment promotion measures are to be integrated in the road

sector in order to strengthen the performance capacity of the private sector and, at the same

time, offer young people prospects. Traffic safety measures will aim to reduce the negative


29

impacts of traffic growth. The technical cooperation measure works with the government,

business associations and representatives of civil society at national level and increasingly in

the counties.

The project focuses on three fields of activity that contribute to achieving the module objective:

(1) improving road maintenance, (2) implementing laws, strategies and reform programmes,

and (3) employment promotion.

Field of activity 1, improving road maintenance: MPW will extend the road maintenance

management system to further regions, in so doing covering the whole primary and secondary

road network. The project contributes to improving the visibility of government provision of

services and the accessibility of basic services for the population, thereby also supporting

peace-building developments. With the help of on-the-job training, coaching and technical

equipment, MPW will be enabled to improve road maintenance at national level and in the

counties. The resident engineers responsible for the roads in the counties will perform their

responsibilities (in terms of assessing road condition and planning and monitoring measures) to

a higher standard. At national level, the ministry’s capacities in the superordinate planning and

management of road maintenance and for creating more transparency and coordinating

mechanisms for awarding commissions will be improved. Providing advisory services and

expanding the IT infrastructure will make it possible to include all bridges and primary and

secondary roads in the existing inventory. A register of roads will be set up to inventory roads in

other categories and the first entries will be made.

National technical standards for planning and implementing road construction and maintenance

measures, based on standards from similar countries, will be developed with the help of

technical advice and regional exchange and will become a compulsory element in all road

projects. The challenges of climate change, for example increased heavy rain, will be taken into

account in the standards. Technical advice on the use of international traffic safety standards in

road construction and maintenance will enable MPW to integrate traffic safety into the planning

and implementation of road construction measures. This includes technical parameters for

planning roads and safety measures for road construction zones. Construction project

monitoring by MPW is to be institutionalised in order to facilitate the systematic monitoring of the

implementation of road construction commissions. To this end, training courses will be offered

both centrally and locally. Measures to boost the transparency and participation of civil society

will aim to improve the quality of planning and monitoring.

Technical advice will enable MPW and ALCC to refine and implement tender guidelines that are

suited to MSMEs, for example with respect to commission volume, use of machines and

payment conditions. The guidelines will be defined as the standard for inviting tenders for

construction services, and will also help reduce corruption. Through sector dialogue,

international donors will be encouraged to recognise these guidelines for all tenders in Liberia.

Gender aspects will be taken into account when they are drawn up. Contractual forms that have

proven effective in the past have included elements that, for example, allow flexibility in terms of

time and are therefore compatible with other activities. The use of MSME-friendly tender

guidelines and training courses in this area will enable Liberian MSMEs to win more public


30

commissions for periodic and regular road maintenance and construction. Since 2013, the

CCCS has provided financing for training measures for ALCC member enterprises. Technical

and organisational advice gives the organisations in the formal economy that have been

selected to conduct training courses the skills they need to develop and conduct these courses.

Field of activity 2, implementing laws, strategies and reform programmes: Developing a

monitoring system, supporting organisational development and offering training courses will

enable the unit responsible for implementing the NTMP, which is based in MOT’s planning

division, to assume leadership for implementing the NTMP. Technical advice will help the

ministries to draw up and apply implementing regulations and draft laws (e.g. traffic safety

strategy, introduction of helmet laws, reform of the MOT planning division, decentralisation of

MOT citizen services), and to translate the guidelines of the Economic Community of West

African States (ECOWAS) into national law (e.g. regulation of reliable axle load and control).

A core element of the transport sector reform involves ensuring that there is funding for road

maintenance and that a functioning road authority is in place. Technical and process advisory

services will enable the inter-ministerial taskforce – consisting of MPW, MOT and the Ministry of

Finance – to prepare draft laws for establishing LRA and LRF and present them for

parliamentary approval. Macroeconomic studies on the impacts of introducing a fuel tax and

other financing instruments will be used to open up alternative financing sources for road

maintenance.

It is expected that there will be inadequate funding for the transport sector for the foreseeable

future, and so the project will look at options for private investment in the road sector, for

example by mining companies. Coaching and technical advice will be used to train public

administration employees to acquire private funding and use it in the transport sector.

The technical advice will enable the government to develop and implement measures for

improving traffic safety for pedestrians and cyclists. To raise awareness among drivers and the

population, educational initiatives to accompany road construction measures will be developed

and implemented. Further fields of activity may emerge from the traffic safety study conducted

as part of the current commission phase.

Field of activity 3, employment promotion: Organisational advisory services and on-the-job

training will enable ALCC to work on improving the business environment, for example when it

comes to funding for companies registered in the CCCS. An integrated employment approach

will link the companies’ requirements with labour market-oriented vocational training. ALCC’s

capacities will be developed to allow it to play a key role as a representative of the formal

economy in monitoring the labour market, providing careers guidance, determining current and

future training needs, and designing needed training content. As a result, regular (non-self-

employed) employment contracts that last at least three months and provide the usual

commercial remuneration will be created with MSMEs registered in the CCCS. Attention will be

paid to ensuring employment opportunities for women, for example carrying out physically non-

strenuous road maintenance work. The establishment of a portfolio of advisory and training

services for start-ups in the road construction sector will be supported. The information and

advisory services offered by the Chamber of Commerce’s German Desk for Liberian and


31

German companies are to be publicised on an online platform. In addition, advisory services for

Liberian companies will be provided during dedicated office hours. The project will cooperate

with the EU and ILO, complementing their activities and using the synergy effects from the

measures in labour market-oriented vocational training offered by these organisations. The

technical advice will enable the government to develop and pilot labour-intensive road

construction measures.

In 2013, BMZ's crisis early warning system assessed Liberia as a ‘yellow’ country with

heightened potential for escalation. For this reason, the project will implement the following

minimum standards for designing projects defined by BMZ: implementation of a project-related

context analysis and a relevance assessment, as well as establishment of an adequate risk

management system and a context-sensitive results-monitoring system (‘do no harm’).

Use of instruments

An international long-term expert, who is also responsible for the commission, provides advisory

services on private sector development and employment promotion at macro and meso level.

The expert will coordinate the international, regional and national short-term and long-term

experts. A second international long-term expert will support MOT with further implementation of

the NTMP and with developing and applying traffic safety standards. Two national experts will

provide assistance with developing, coordinating and implementing training programmes,

legislative initiatives and reform programmes. Two integrated experts will help MPW expand the

road maintenance management system. These experts will support the Road Maintenance

Management Unit at national level and the resident engineers at county level (assuming a line

manager role) with carrying out their duties and train them on the job. Human capacity

development (HCD) will be provided through training courses for experts and managers in all

fields of activity, for training institutions in the construction sector and for international dialogue

platforms on road maintenance management and funding. Funding is planned for local

subsidies that support cooperation with local organisations and for hardware and software for

the road maintenance system. There are no plans to assign development workers, since the

required profiles do not match those of the development workers.

B.3.4.2 Public-private partnerships (PPPs)

An implementation agreement will be signed with ALCC. The aim of cooperation is to increase

employment in the construction sector and includes monitoring the labour market, providing

careers guidance, determining current and future training needs and designing needed training

content. The German Desk of the Liberian Chamber of Commerce provides a cooperation

platform for German and Liberian companies. MPW will improve collaboration with private

companies, especially those with concessions for extracting mineral resources and creating

agricultural products, in order to increase the share of private investments and maintenance

obligations in road construction. The PPP potential will be reviewed in the course of


32

implementation and, if needed, will be harnessed in cooperation with the regional project PPP-

Fund Fragile States West Africa (PN 2010.2247.4). The project is assigned the marker PPP-1.

B.3.4.3 Interaction with other development programmes in the partner country

The interaction with other donors’ development programmes in the transport sector is described

in section A.3.4. Furthermore, the project coordinates its plans with the technical cooperation

measure Regional Resource Governance in the Extractive Sector in the Fragile States of West

Africa (PN 2011.2274.6) when they concern good governance in the raw materials sector and in

order to link implementation of the NTMP with possible consultation on raw materials corridors.

The Sector Project on Land Management (PN 2010.2249.0) provides support with analysing

existing concession agreements between investors and the Liberian Government with respect

to land management and infrastructure measures. The measure also works with the project

Improving Livelihoods in Lofa County (districts of Kolahun, Vahun and Foya) in Liberia (PN

2012.1990.6) to review pilot approaches for road projects in Lofa County.

The German financial cooperation approaches include a financing contribution to the LRTF. In

addition to Germany, the LRTF’s contributors include the EU, the United Kingdom, Sweden,

Norway and Ireland. The German financial cooperation measure is designed as an open

programme. In accordance with the LRTF’s statues, individual donors cannot earmark

contributions for specific individual projects or subsectors. Close exchange on the LRTF among

technical cooperation and financial cooperation measures is encouraged. Furthermore, financial

cooperation actors are supporting Liberia through a reintegration and reconstruction programme

running from 2006 to 2014 in the south-eastern part of the country, similar to the technical

cooperation approach used in Lofa County. The goal of the financial cooperation measure is to

improve livelihoods through road construction measures and by reintegrating refugees,

displaced persons and traumatised women into civil life. The programme is supported by

Deutsche Welthungerhilfe. Regular exchange of information is ensured, especially on road

maintenance. The possibility of expanding the pilot regions of the road maintenance

management system to include the south-eastern part of the country is under consideration.

Future cooperation with ILO, USAID and/or the EU is envisaged for establishing and

implementing labour market-oriented vocational education and training systems.

The transport sector is a component of the AfT national development strategy. Where available,

local instruments will be used to implement this project. While donor coordination under Liberian

leadership is not yet guaranteed, it is slowly improving. The project does not meet the PBA

criteria and is therefore assigned the marker PBA-0.

B.3.5 Total costs, commission value, partner inputs, combined financing,

term/schedule

B.3.5.1 Commission value

EUR 6,000,000


33

B.3.5.2 Partner inputs

MPW is creating two positions for integrated experts in the Road Maintenance Management

Unit and will fund them during the entire term. The value of these inputs amounts to

approximately USD 7,500 per year. Furthermore, MPW will create a point of contact for

cooperating with the private sector in the areas of road construction and maintenance. MPW will

cover the ongoing expenditure (including consumables, possibly vehicle supplies) for the

monitoring and evaluation unit, the Road Maintenance Management Unit and the CCCS, and

will also provide office space in the MPW building for international and national long-term

experts. The value of these materials and equipment amounts to around EUR 20,000 per year.

MPW, MOT and the Ministry of Finance are appointing points of contact for the inter-ministerial

taskforce on road financing and administration and have agreed to participate until the

taskforce’s work has been completed. All implementation partners are allowing suitable

employees time away from their day-to-day work so that they can attend training measures and

are employing personnel funded by grants for at least three years in appropriate positions. The

partner will provide staff for the measure for a total of roughly 50 expert months per year.

B.3.5.3 Term

From August 2014 to July 2017 (3 years)

B.3.6 Results and risks of the TC measure

B.3.6.1 Macroeconomic, socio-economic, socio-cultural, political and ecological assessment

Gender equality: Gender equality is a major secondary objective of the project. It is an integral

part of most of Liberia’s normative frameworks. However, the actual distribution of the rights,

roles and spheres of action is characterised by discrimination against women. They are clearly

under-represented, especially in leadership roles. For this reason, women are an important

target group in the advisory and participatory process. They receive training through the project.

Gender equality in public administration recruitment is to be promoted. Women in particular

benefit from the improved accessibility of markets and social services, since they use these

more often than men. When developing measures, for example in the area of social and

environmental impact analysis, gender aspects are taken into consideration. The project is

assigned the marker GG-1. A gender analysis was conducted.

Participatory development/good governance: With the road maintenance system, a

transparent procedure for assessing maintenance measures was introduced that supports MPW

with determining and justifying the budget. Monitoring and implementing the NTMP strengthens

MOT’s management and regulatory role in the sector. The dialogue on maintenance between

centralised and local authorities and citizens’ representatives is systematically promoted

through new forms of citizen participation that accompany construction progress. The project is

assigned the marker PD/GG-1.


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Environmental protection and resource conservation: The technical cooperation measure

supports the introduction of project-related environmental impact assessments and traffic safety

standards for all road construction measures. The project is therefore assigned the marker UR-

1, need for action: yes. An in-depth environmental and climate assessment was conducted.

Adaptation to climate change: An increase in the already high rainfall levels (5,000 mm/year)

is expected. There will be an overall increase in the amount of heavy rainfall. For this reason,

road construction and maintenance methods must be adapted to climate developments. The

project is assigned the marker KLA-1.

Poverty orientation: The transport sector is a priority in the Liberian development strategy. An

improved road sector will contribute to developing previously inaccessible regions, in turn

contributing to poverty reduction. The measure is assigned the marker AO-MSA.

Rural development and food security: The improved accessibility of rural regions will lead to

an increase in agricultural production and, at the same time, to food security, since products can

be sold on the markets. The project is assigned the marker LE 1.

Peace and security: The measure contributes to creating an environment for peaceful and

inclusive development in Liberia. The provision of transport infrastructure is a basic government

service and helps improve access to other government services, such as health care, especially

in the rural regions that are still difficult to reach. Moreover, young people that previously had no

prospects will be trained to work in the road construction sector and will have the opportunity to

earn a higher and possibly more regular income. The measure is assigned the marker FS-1.

Human rights: An improved transport infrastructure will strengthen human rights. Access to

educational and health care institutions will be improved. Promoting the participation of women

in transport planning will create conditions that foster codetermination, as well as non-

discrimination and equal opportunities.

B.3.6.2 Development effectiveness at TC measure level

Relevance: The project contributes to implementing the AfT’s priorities. The AfT sees good-

quality nationwide road links, particularly between Monrovia and the regional administrative

centres, as essential for Liberia’s economic and social reconstruction. Infrastructure is also a

priority of the Liberian budget. Liberia is one of West Africa’s fragile states and is a category B

cooperation country. Neither a country strategy nor a priority area strategy paper is in place for

Liberia. The measures are guided by BMZ’s sector strategy paper on road transport in

development cooperation (BMZ concept no. 107/January 2000).

Effectiveness: The NTMP identifies the necessary steps for sectoral reform, which are

gradually being put into practice. Systematic road maintenance is already being implemented in

one pilot region. The measure can build on these experiences as it expands the activities to

other regions. The capacity of key actors at MPW was improved by the previous project and this

has increased MPW’s ability to implement measures, although this is not yet optimal due to

frequent personnel changes and lack of specialist skills. The focus is on cooperation with ALCC,

which ensures that the Liberian MSMEs are involved.


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Efficiency: In the road maintenance sector, the measure cooperates with the World Bank,

which covers the majority of the partner’s staffing costs in the Road Maintenance Management

Unit. By cooperating with other donors in the area of vocational education and training, and

focusing on matching job supply and demand, it is possible to achieve high results with little

effort. The instrument concept involves a large contingent of short-term experts that can be

deployed flexibly and in line with needs.

Impact: The project contributes to capacity and structural development in the transport sector.

The improved accessibility of rural regions promotes Liberia’s economic development and

political integration, which in turn contributes to reducing poverty (MDG 1) and social disparity

and to achieving political stability. Women in particular will benefit from improved transport

services in rural regions (MDG 3). The transport costs will drop, especially in the rural regions.

Creating transparent criteria for infrastructure planning reduces the potential for corruption. Job

creation generates employment and income and contributes to poverty reduction (MDG 1).

Sustainability: The targeted organisational changes in the participating institutions, the

development and implementation of relevant regulations in the road sector, and the training of

experts and managers, both in the private sector and at ministerial level, will secure

sustainability.

Monitoring concept: The monitoring system developed jointly by all project partners is updated

on a quarterly basis. All activities are assigned to a project partner. In each partner organisation,

an employee is responsible for obtaining and entering data. Establishing monitoring systems at

MPW for road construction measures and at MOT for implementing the NTMP makes it possible

to coordinate data acquisition and processing.

B.3.6.3 Assessment of risks

Overall risk that objectives will not be achieved

Very high: High: X Medium: Low:

Description and assessment of the individual risks

Although the Liberian budget has included funds for maintenance for three years in a row, there

is a risk that this budget will not increase or that it will not be used in accordance with the

agreed purpose. The technical cooperation measure does not have funds to finance the

operational road maintenance measures; similarly, other international donors and the LRTF

have not provided for funds for maintenance measures. The low capacity at MOT may delay the

implementation of reform programmes. International donors and the LRTF are financing the

majority of the road construction measures and conduct their tenders according to their own

standards. National standards will not be effective until the donors also adopt them. Liberian

MSMEs will need to absorb the majority of the trained experts in order to achieve the desired

employment results. This can only be achieved if the overall budget for road maintenance

increases and the MSME-friendly tender standards are used. The anticipated economic

development will boost demand for trained personnel in both the public and private sector.

There is a risk that, due to the low wages, too few employees will be available for the


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government institutions or that the present personnel that have undergone training will migrate

to the private sector. However, wage reform is beyond the scope of the project. The low level of

education of potential participants in training and employment promotion measures jeopardises

their success. Upgraded roads will allow vehicles to move faster, which may result in the

number of accidents increasing. A better road network can have negative social implications, for

example it can lead to more migrant work with impacts on the spread of HIV/AIDS, even if the

overall level of health care is improved through better accessibility.

Degree to which risks can be influenced

High: Medium: X Low:

Risk-reduction measures

The government will be made aware of the importance of providing an adequate maintenance

budget and of the increasing need for funds. Advice provided when setting up the Liberian Road

Fund will, in the long term, help the stakeholders obtain funding for road maintenance from

sources other than the Liberian Government’s budget. Furthermore, efforts will be taken to

persuade international donors and the LRTF to provide funds for maintenance. The advice

given to MOT will improve the ministry’s management capacity. When designing the technical

cooperation measure, care was taken to ensure that the module objective and outputs can be

achieved primarily by cooperating solely with MPW. Intensive dialogue with international donors

ensures that they are involved in the process to create national standards for road construction

measures. This should encourage the donors to adopt these standards when they tender

construction services. The project cooperates with donors such as the EU, the World Bank and

Sweden, all of whom are developing the vocational education and training system. In the

medium term, they will ensure that there will be more qualified school-leavers and employees to

participate in training measures in the transport sector. The technical cooperation measure will

help to improve traffic safety and mitigate negative impacts of increased traffic and, during

training events, will raise awareness of the potential negative impacts, such as the spread of

HIV/AIDS.

B.3.7 Declaration

The relevant directives contained in the country strategies, priority area strategy papers, binding

sector strategies and cross-sectoral strategies of BMZ have been taken into account during

planning and will be adhered to during implementation of the technical cooperation measure.

We assure BMZ that all specifications, and conceptual and technical standards have been

complied with and will assume responsibility for the proper implementation of the technical

cooperation measure. BMZ may therefore assume that it no longer needs to verify the

compliance of the technical cooperation measure design with the specifications in every

individual case.

terms of reference - hydroplan · msme micro, small and medium-sized enterprise ntmp national...

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