FILE COPYReport No. 1668-CM

Appraisal of a Feeder Roads ProjectUnited Republic of Cameroon

November 15, 1977

Regional Mission in Western AfricaFeeder Road Section

FOR OFFICIAL USE ONLY

Document of the World Bank

This document has a restricted distribution and may be used by recipientsonly in the performance of their official duties. Its contents may nototherwise be disclosed without World Bank authorization.

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CURRENCY EQUIVALENTS

Currency Unit = CFA Francs (CFAF)

US$1.00 = CFAF 245

Fiscal Year

July 1 - June 30

System of Weights and Measures: Metric

Metric US Equivalents

1 meter (m) 3.28 feet (ft)

I kilometer (km) 0.62 mile (mi)

I square kilometer (km) 0.386 square mile (sq. mi)

1 hectare (ha) 2.47 acresI metric ton (t) 2,204 pounds (lbs)

Abbreviations and Acronyms

BAC Bamenda Association of Cooperatives

DCD Department of Community Development

DR Department of RoadsFAC Fonds d'Aide et de Cooperation

FED Fonds Europeen de Developpement

FONADER Fonds National de Developpement Rural

MINEH Ministry of Equipment and Housing

MINEP Ministry of Economy and Planning

MINIAGRI Ministry of Agriculture

MOT Ministry of TransportREGIFERCAM Regie Nationale des Chemins de Fer du Cameroun

SATA Swiss Agency for Technical Assistance

SODEPA Societe de Developpement et d' Exploitation

des Productions Animales

UCCAO Union des Cooperatives de Cafe Arabica de l'Quest

vpd Vehicles per day

ZAPI Zones d'Actions Prforitaires Integrees

FOR OFFICAL Us ONLY

UNITED REPUBLIC OF CAMEROON

APPRAISAL OF A FEEDER ROADS PROJECT

TABLE OF CONTENTS

Page No.

SUbMUARY ................................................... ....... soii

Is INTRODUCTION ......................................................... l

2. BACKGROUND ... **.. ... .......................... ............. ... 2A. Geographic and Economic Setting .................... 2B. The Transport System ............. .................. 4C. Transport Sector Management, Goals and Investments.. 5

3. THE HIGHWAY SECTOR ..... .......... 6A. The Road Network ................. 6B. Traffic on the Feeder Road Network 6C. The Road Transport Industry ... 7D. Highway Administration .................... .... 8E. Road Maintenance ... . ......... 9F. Road Engineering and Construction .................. 9G. Road Financing .. 1..$0........... lO

4. THE PROJECT ...................................... .... 12A. General Description .............. .......... . . ... 12B. Feeder Road Program .............. o 12C. Improvement of Project Regional Roads .... .......... 13D. Equipment and Material Purchases ........ . ........... 13E. Technical Assistance and Studies ................... 14F. Training ................ . 15G. Provision of Workshops and Office Space ............. 15H. Project Monitoring ... ... ...................... 15Is Cost Estimates ....*...O..... O.......* ............................. 16J. Execution ................ ......... .......................... 18K. Procurement ............ 19L. Financing and Disbursements ........................ 19

5. ECONOMIC EVALUATION ...... .............. .................. 20A. General ............................................ 20B. Economic Justification ............................. 21

6. AGREEMENTS REACHED AND RECOMMENDATIONS ................... 25

This document has a restricted distribution and may be used by recipients only in the performanceof their official duties. Its contents may not otherwise " disclosed without World Bank authorization.

TABLES

1. Agricultural Production2. Development of Highway Network3. Motor Vehicle Registration4. Consumption of Motor Vehicle Fuels5. Maintenance Allocation for Different Road Types6. Road Expenditures During the Third Plan7. Road User Revenues8. Road Design Standards9. First Year Feeder Roads Improvement Program10. Tentative Second Year's Feeder Road Improvement Program11. Tentative Third and Fourth Years' Program12. Maintenance Standards for Roads13. Roads to be Included Under Proposed Third Highway Project14. Equipment to be Purchased for Improvement and Maintenance of Roads15. Project Costs16. Implementation Schedule17. Financing of Project Costs18. Estimated Schedule of Disbursements19. Transport Cost Savings to Non-Agricultural Traffic20. Results of Sensitivity Analysis for Agricultural Projects

ANNEXES

1. The Project Areas

2. Draft Terms of Reference for Consultants

3. Project Monitoring

4. Summary of Illustrative Economic Analysis

5. Guidelines for Selection of Feeder Roads for the Second, Thirdand Fourth Years of the Project

MAP

UNITED REPUBLIC OF CAMEROON

APPRAISAL OF A FEEDER ROADS PROJECT

Summary and Conclusions

i. Cameroon's broad range of ecoclimatic zones provides excellentdiversification and potential for agriculture, the predominant sector inthe economy. It accounts for about 40% of gross domestic product (GDP) andover 70% of the country's export earnings, and provides the livelihood forover 80% of the population. The Government's investments in the sector, about16% of total investments in the Fourth Plan (1976/77-1980/81), emphasize (a)raising farmers' incomes and reducing regional disparities, (b) increasingexports and (c) alleviating the domestic food shortage. To achieve theseobjectives, Government's strategy consists of (a) implementing projects andschemes aimed at increasing the production of cash crops, food crops andlivestock, and (b) continuing support of institutions such as FONADER (FondsNational de Developpement Rural) for financing agricultural credit and theZAPI (Zones d'Actions Prioritaires Integrees) for implementing integratedrural development projects. Efficient and reliable rural transport is aprerequisite to the success of these programs.

ii. Cameroon's road network of about 58,000 km is reasonably adequatein extent and distribution. However the feeder road network, about 46,000 kmof mostly dry-weather roads and tracks, is in very poor condition due to lowconstruction standards and/or neglect of maintenance. The country needs aprogram to rehabilitate, improve and maintain feeder roads. Such a programwill have to be long-range, partly because of the large amount of funds andwork involved and partly because a parallel effort will be required on thenational and provincial network. The proposed project is the start of thisprogram.

iii. The proposed project is designed to (a) improve and maintain thefeeder roads in the proposed Bank Group-financed ZAPI East Rural DevelopmentProject, the proposed Bank-Group, FED and German Government-financed WesternHighlands Agricultural Development Program and the ongoing Bank Group-financedLivestock I Project in the Adamaoua area, and (b) establish the institutionalframework for the development and adequate maintenance of the feeder roadsnetwork. It consists of (a) a four-year program for the force-account con-struction, improvement,rehabilitation and maintenance of about 2,200 km offeeder roads in the above-mentioned areas, (b) construction of, and provisionof equipment and tools for, a DR workshop including office facilities atNguelemenduka, (c) technical assistance to establish and strengthen a FeederRoads Unit to implement the program and to train local staff, and (d) consul-tant services for studying resources for feeder road maintenance and preparinga follow-up feeder road program.

iv. The total project cost is estimated at US$21.1 million includ-ing US$4.0 million equivalent in taxes and duties. Project costs, netof taxes and duties, are estimated at US$17.1 million equivalent, with for-eign costs of US$11.1 million (65%). The proposed Loan of US$4.6 million

and Credit of US$6.5 million will finance 100% of foreign costs. The Govern-ment's contribution would be US$6.0 million of the net-of-tax project cost.

v. The Ministry of Economy and Planning will have overall responsibilityfor project execution. However, it will appoint as executing agencies forthe construction/improvement and subsequent maintenance the Ministry ofEquipment and Housing (in particular its Roads Department) for about 1,600 kmof feeder roads; the Ministry of Agriculture (in particular its Department ofCommunity Development) for 300 km of feeder roads; the ZAPI East Organizationfor about 150 km of farm access roads; and the SODEPA for 150 km of accessroads. Physical execution is expected to start in September 1978 and becompleted by September 1982. Road construction, improvement and maintenancewill be carried out by force account; local contractors will be used forconstructing drainage structures and for supplying road-building materials.

vi. In order to provide the necessary flexibility in planning andexecuting the feeder roads program, only the first year's program (1978/79)has been defined. The tentative programs for the remaining three yearswill be revised annually by provincial interministerial committees to beconvened annually in the three provinces directly affected by the project.These revisions will be approved by the Bank Group.

vii. Equipment, materials, spare parts and supplies amounting to aboutUS$8 million, net of taxes, will be procured on the basis of internationalcompetitive bidding in accordance with Bank Group Guidelines. A local pref-erence will be allowed for goods manufactured in Cameroon. Contracts forthese items costing under US$50,000 may be awarded on the basis of competi-tive bidding following local procedures acceptable to the Bank; the aggregateamount will not exceed US$600,000.

viii. The proposed project is indispensable to the success of the agri-cultural and rural development projects in the ZAPI East, the Western High-lands and the Adamaoua Livestock area. Specifically, the feeder road workswill (a) provide the cheap, reliable and efficient transport needed to gen-erate and market the increased agricultural and livestock production aimed atin those projects, (b) reduce produce spoilage, (c) provide improved accessto health and social amenities, and (d) reduce transport costs to passengersand other non-agricultural traffic. Evaluated as an integral part of theabove rural agricultural development projects, the proposed feeder roadproject is economically justifiable. The ZAPI East project is expected toyield an economic return of about 27%, the Western Highlands programs about20% and the Livestock project about 18%. 1/

ix. The institution-building component of the project represents amajor project benefit. It will (a) establish an efficient institutional

1/ These are preliminary figures subject to revision.

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framework for planning, developing and maintaining feeder roads, (b) trainlocal staff in performing the above functions, and (c) initiate a concerted,interministerial and interagency approach to planning feeder roads.

x. Project risks include (a) possibility of diversion of projectequipment and goods to non-project work, (b) interference with the selectionof roads for the annual programs and (c) significant modifications in theassociated agricultural projects. These risks should be reduced by the ex-pected alleviation of the Department of Roads' equipment problems, the controlto be exercised by the various executing agencies of the agricultural programsand by the agreement between the Government and the Bank on guidelines forselecting roads for the annual programs.

xi. The proposed project is suitable for a Bank Group Loan of US$4.6million and a Credit of US$6.5 million. An appropriate Loan term would be 20years with a 5-year period of grace. The Credit would be made on standard IDAterms.

CAMEROON

APPRAISAL OF A FEEDER ROADS PROJECT

1. INTRODUCTION

101 Cameroon's road network totals about 58,000 km of which about12,000 km are paved and laterite-surfaced roads classified as national andprovincial roads. The remaining 46,000 kms are mostly dry-weather roadsand tracks classified as feeder roads. Road investments in the past haveconcentrated on the national and provincial network notably the road linkson the Transcameroon rail/road route and the Douala-Bafoussam-Foumban axis.Even though about 66% of total road investments under the Fourth Plan (1976/77-1980/81) will continue to be devoted to these roads, the Government is begin-ning to focus more attention on feeder roads which are in very poor condition.The outlays for construction and improvement of these roads have increasedfrom CFAF 3.9 billion or 9% of total road investments in the Third Plan toCFAF 24.6 billion or 31% in the Fourth Plan. The proposed project supportsGovernment's goals of improving its feeder road network.

1.02 A study of feeder roads was included under the Second HighwayProject (Loan 935/Credit 429-CM, US$ 48 million, 1973; Supplementary Credit,US$15 million, 1976) as part of a general road maintenance study. The Bankagreed in 1976 to study feeder roads separately due to delays in starting themaintenance study and the need to focus on the network's special requirements,establish close links with agriculture and rural development, and permit moreinvolvement of local staff and representatives in project design and prepara-tion. It was also agreed to start with a project concentrating on a fewwell-defined areas, since this was the Bank Group's first operation in thefeeder road subsector in Cameroon and since the country lacked the absorptivecapacity for a nation-wide project. This study, carried out predominantly byGovernment with the assistance of only a total of 5 man-months of short-termconsultant assignments but with considerable input from the Bank's RegionalMission in Western Africa, constitutes the basis for the present project.

1.03 The project would be the Bank Group's third lending operationfor road development in Cameroon and the first involvement in feeder roadsapart from some 900 km integrated with the Bank-financed Cocoa Project (Loan1039-CM, US$6.5 million, 1974). The First Highway Project (Loan 663/Credit180-CM, US$19 million, 1970)) financed the study and construction of theNgaoundere-Garoua (285 km) and the Tiko-Victoria (24 km) roads. The projectwas successfully completed in 1975 but with one and one-half years' delay,largely due to pavement failures that occurred soon after construction, and acost overrun of US$4 million, US$2 million of which was financed by Bank Groupsupplementary financing in 1975.

1.04 The ongoing Second Highway Project is assisting the Government tocontinue improving the Trans-cameroon rail/road route and the Douala-Badoussam-Foumban axis. The project consists of the improvement of about 485 km of main

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roads and consultant services for technical assistance in transport planningand coordination, for studies of forestry policy and forestry roads, and fora study of road maintenance and secondary and feeder roads betterment. Roadconstruction is proceeding satisfactorily after a year's initial delay incontract awards due to an estimated US$72 million cost overrun resulting fromunderestimation of base costs during appraisal and inflation. The Associationmade a supplementary credit of US$15 million in tIarch 1976 to cover part ofthe cost overrun and agreed with the Government to reduce the project scopeby postponing the Garoua-Figuil section (98 km) of the Garoua-Mora road forinclusion in the proposed Third Highway Project. The road maintenance studystarted about a year late because of delays in recruiting consultants. Theconsultants report on Phase I has been found unsatisfactory and they have beenrequested to improve their analysis and review their recommendations according-ly. After about three years and under constant Bank insistance, Governmenthas only recently recruited the other consultants for the ministries responsi-ble for planning, equipment and transport to assist in transport planning andcoordination. For the proposed project, the Government and the Bank havealready agreed on consultants' Terms of Reference, and the Government hastaken steps to recruit the experts.

1.05 The proposed feeder roads project is designed to (a) improve andmaintain the feeder road networks to support the proposed Bank Group-financedZAPI (Zones d'Action Propriataires Integrees) East Rural Development Project,appraised in March 1977; the proposed Bank Group and FED/German Government-financed Western Highlands Agricultural Development Projects, the Bank portionappraised in May 1977, and the ongoing Bank Group-financed Livestock I Projectin the Adamaoua area, and (b) to build the institutional framework for thedevelopment and adequate maintenance of the feeder road network. It includesa 4-year program for the improvement and subsequent maintenance of about 2,200km of feeder roads in the above-mentioned areas. The project would complementthe proposed Third Highway Project which is expected to focus on maintenanceand rehabilitation of the national and provincial network.

1.06 This report is based on data collected and analyzed by CameroonGovernment staff, with the assistance of consultants, and the findings of anappraisal mission, consisting of Messrs. Gyamfi and Tessier-Viennois, whichvisited Cameroon in January and February 1977.

2. BACKGROUND

A. G3graphic and Economic Setting

2.01 The Republic of Cameroon, situated at the junction of West andEquatorial2Africa and extending from the Gulf of Guinea to Lake Chad, covers475,000 km and has a population in 1976 of about 7.6 million growing about2.3% p.a. Wide variations in the country's terrain, climate and vegetationlead to varying transport problems: in the south, dense forest and heavy

rainfall make road construction and maintenance expensive; in the southwest, amountain range hampers transport development; in the Western Highlands, steepslopes, clayey soils and a prolonged rainy season make road construction andmaintenance costly; and in the far north, poor subgrade and shortage of goodroadmaking materials make road construction and upkeep difficult and expensive.The north-central part of the country is the only area where topographyvegetation and soils present no major problems.

2.02 The economy is predominantly rural with about 80% of the adultpopulation engaged in agriculture for which the broad range of the country'secoclimatic zones provides excellent diversification. The agriculturalsector accounts for about 40% of GDP and over 70% of the country's exportearnings. The secondary sectors contribute about 30% and transport about5%, services about 3%, and commerce about 22% of GDP. GDP was about US$1.94billion in 1975 with a per capita income of about US$270. Rural incomesranged from US$80-140 in the forest and savannah areas to some US$70-80in the northern plains. During the 1960's real income grew at an averageof some 6% p.a., but slowed to about 3% p.a. between 1971 and 1975 due mainlyto declining demand and the fall in world prices for cocoa and coffee, deter-iorating terms of trade, and a lower level of private investments. Thecurrent Fourth Plan (1976/77-1980/81) aims at a 7% p.a. growth with emphasison rural and agricultural development (paragraph 2.05).

2.03 About 85% of agricultural production is contributed by the tradi-tional sector--about 1 million smallholders with an average of 2 ha usingfamily labor and producing a large variety of crops. Plantations, mostlystate-owned, are limited to palm oil and rubber. The main foodcrops aremaize, cocoyams, beans, plantain, sorghum and groundnuts (Table 1). Foodproduction has grown at about 3-1/2% p.a. over the past five years, just aheadof population. Except for wheat and rice, Cameroon could be self-sufficientin foodcrops; however, urban centers have been experiencing increasing supplyproblems due to lack of efficient, reliable and cheap transport and effectiveagricultural support services and partly due to significant exports to neigh-boring Gabon.

2.04 The principal cash crops and export commodities are cocoa, coffeeand cotton and, to a lesser extent, palm oil and rubber. Since the beginningof the Third Plan, Government has emphasized smallholder cash-crop develop-ment but progress has been slow. This is because of problems such as lack ofadequate physical infrastructure and agricultural support services andbecause producer prices for the main cash crops, generally about a third ofworld market prices, are low compared with the soaring prices of food crops.Government recently increased the producer price for coffee to about CFAF330,000 per ton which makes its cultivation competitive with foodcrop pro-duction.

2.05 The Government allocated 16% of total investments to speed up ruraldevelopment under the Fourth Plan. The Plan's objectives in agriculture aredirected towards (i) raising farmers' incomes and reducing regional dispari-ties, (ii) increasing exports and import substitution, and (iii) alleviatingdomestic food shortages. To achieve these objectives, Government's strategy

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is (i) implementing projects and schemes aimed at increasing the production

of cash crops, foodcrops and livestock, and (ii) continuing support of institu-

tions such as the Fonds National de Developpement Rural (FONADER) for financing

rural development projects and providing agriculture credit, and the ZAPI's 1/

for implementing integrated rural development programs with emphasis on in-creasing farmers' participation in development. The Bank has assisted

Government's efforts in agriculture by financing eight projects; one CAMDEV

plantation projects, two SOCAPALM oil plantation projects; a SEMRY rice

project, a livestock project, a cocoa project, a rural development project in

the Plaine de M'bo and a FONADER project. In addition, a rural development

project in the ZAPI East and a Western Highlands Agricultural Development

project and a second CAMDEV Plantation project have recently been appraised.

B. The Transport System

2.06 Cameroon's transport system consists of about 58,000 km of roads,

1,170 km of railway, three seaports, a navigable waterway with a river portat Garoua, and five airports. The main transport system, which is export/

import oriented, is focused on Douala the commercial center, where there

are a deep-water port and an international airport. Links to the rest of the

country are provided along two principal corridors--the Trans-Cameroon rail/

road route (1,170 km) and the north-south Douala-Bafoussam-Foumban axis.

Emphasis on transport development to date has focused on modernizing the

main system, an objective which will be practically achieved with the comple-

tion of the Second Highway Project and improvement to the line characteristics

of the railroad between Douala and Yaounde.

Railways

2.07 The railway network, operated by Regie Nationale des Chemins de Fer

du Cameroun (REGIFERCAMV), comprises two main lines originating at Douala:

(i) the central line to N'Gaoundere (930 km), with a branch from Otele toMbalmayo (37 km), and (ii) the northern line to N'kongsamba (172 km) witha branch from Mbanga to Kumba (28 km). From 1968/69 to 1975/76 freight

traffic and ton-km increased by 4% and 11.5% p.a., respectively, reaching1.3 million tons and 437 million tons-km in 1975/6. The corresponding in-

creases for passenger transport were 3% and 7.5% p.a., respectively, to1.86 million passengers and 260 million passengers-km. The northern linewhich accounted for only about 10% of the traffic has received no major

investments for some time. Investment on the central line continues. The

construction of the Yaounde-Ngaoundere line was completed in 1974. The Bank'sSecond Railway Project (Loan 1038-CM) provided equipment, mostly rolling stock

for timber and general cargo. Further line improvement, including realignment

of the Douala-Edea section, is expected to be undertaken with financing primarily

from various European aid agencies. The above development has not, however,

been matched by improvement of REGIFERGAM's managerial and operational capabi-

lity. The Government and the Bank are discussing means to solve this problem.

1/ This is a semi-autonomous rural development agency operating in selected

high-priority areas. The ZAPI's perform marketing, agricultural extension,

training and social services.

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Ports

2.08 The Douala port, by far the most important of Cameroon's threeports, handled over 2 million tons including about 400,000 tons of timber in1975. Under the Bank's First and Second Port Projects, the capacity andproductivity of the port are being improved. The secondary ports of Tiko-Victoria and Kribi serve limited hinterlands. The Port of Tiko-Victoria hasdeclined in importance due to inadequate facilities and the diversion of itstraffic to Douala. The lighterage port of Kribi has much better prospects,especially for timber of which it handled over 200,000 tons in 1975. The portis undergoing expansion to handle increasing exports of logs and is expectedto reach 400,000 tons per year within a few years.

Air Transport

2.09 Owing to the size and elongated shape of Cameroon, air transportis important. There are five airports with paved runways, including that ofDouala which provides international services; the others and nine unpavedairstrips are served by regularly scheduled internal flights. The Doualaairport is being improved under a three-phase plan financed in part by theAfrican Development Bank. Studies have just been completed for the improve-ment of the Garoua Airport so that it can receive international flights andfor finding a new site for the Yaounde airport.

C. Transport Sector Management, Goals and Investments

2.10 The Ministry of Transport (MOT) is officially responsible foroverall transport sector management including reviewing, coordinating andscreening transport investment proposals prepared by other ministries andpublic agencies, formulating transport policy and approving the tariffs ofREGIFERCAM, the National Port Authority and Cameroon Airlines. However, MOT'saccomplishments have been mostly limited to collecting statistical data ontransport. The Ministry has neither the qualified staff nor adequate auth-ority to perform its functions adequately. The Ministry of Planning andEconomy has undertaken some transport planning, but its limited resources,sufficient when investment decisions consisted mainly of ranking high priorityprojects on the principal transport axes, are proving inadequate for the moredifficult investment choices between competing corridors and between majorarteries in the same corridor. The Ministry of Equipment and Housing (MINEH)is responsible for preparing and executing road projects but so far lacksthe qualified Cameroonian staff to perform the task adequately.

2.11 Attempts to reinforce the organization and machinery for transportplanning and policy-making and for project preparation and execution havein the past met with limited success. Recent developments imply changes inGovernment's attitude: (i) the Minister of Transport has prepared a decreefor Presidential approval which would create a Planning Unit within MOT, (ii)the government is in the process of recruiting an expatriate transport specia-list, financed under the Technical Assistant Project, to assist in planning,policy formulation and coordination, and the UNDP transport technical assis-tant's contract is being extended and (iii) the three road experts providedunder the Second Highway Project to assist MINEH have been recruited.

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2.12 During the Third Plan (1971/72-1975/76), investments in the trans-

port sector totalled CFAF 80 billion out of total public sector expenditures

of CFAF 200 billion. The primary objective was to improve the trunk system,particularly the Trans-Cameroon rail/road route with a planned investment of

CFAF 136 billion in the Fourth Plan (1976/77-1980/81) Government's goals are

to (i) complete the works carried over from the Third Plan, (ii) expand

capacity of the Douala port and realign sections of the Douala-Yaounde railway

line, (iii) improve road maintenance and (iv) shift emphasis from trunk roads

to the development of the rural network. These objectives largely reflect the

sector's physical needs.

2.13 The Bank is assisting Government to achieve the above objectives

in the sector through its ongoing projects as well as future projects in

an advanced stage of preparation. The proposed Third Highway Project will

concentrate on road maintenance and rehabilitation; the proposed feeder

roads project will establish institutions for feeder roads administration and

maintenance in addition to providing the necessary resources to construct,

improve and subsequently maintain selected high priority feeder roads (para-

graph 1.05).

3. THE HIGHWAY SECTOR

A. The Road Network

3.01 The road network in Cameroon totals about 58,000 km of which about

2,000 km 1/ are paved and 10,000 km are all-weather gravel or laterite roads;

the remainder are dry-weather roads and tracks (Table 2). About 28,000 km are

classified for maintenance budgeting purposes; 12,000 km of these form the

national and provincial network. The most important roads, which are part of

the Trans-Cameroon route and the Douala-Bafoussam-Foumban axis have recently

been or are being constructed to paved standards. The rest of the classified

roads, though generally adequate in extent and distribution for the country's

economic needs, are mostly in poor condition due to inadequate maintenance.

The problem is even more acute for the unclassified roads, most of which are

in an advanced state of deterioration due to the compound effect of low

construction standards, particularly of drainage, poor construction quality

and practically non-existent maintenance.

B. Traffic on the Feeder Roads Network

3.02 Traffic on the feeder roads network consists of (i) agricultural

produce destined for local markets, district centers as well as cooperative

collecting centers, (ii) small volumes of consumer goods and agricultural

1/ Another 265 km, the Garoua-Mora road, is being paved under the Second

Highway Project.

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inputs, and (iii) passengers. There is a large variation in the trafficvolumes of individual feeder roads depending on population density and level

of economic activity. In general, however, traffic increases from an averageof about 5 vpd on farm-to-market roads to about 30 and in some rare cases 50vpd on roads leading to the main collecting centers or district capitals. The

typical vehicles used for freight transport on these roads are 3-5 tonpay-load light trucks; 7 ton pay-load trucks are more common on the roadsleading to collecting centers or district capitals. The selection of trucksize appears to be influenced as much by road condition as by transportdemand. Traffic is highly seasonal, being over twice as much during theharvest period as during the off-season. Passenger transport is mostly by

small buses and nine-passenger cars.

C. The Road Transport Industry

3.03 The motor vehicle fleet has grown at an average of about 6% p.a.over the past five years to about 63,500 vehicles; about 54% are cars, 35%

trucks and vans, 7% motorcycles and 4% specialized vehicles (Table 3). Motorfuel consumption increased at about 8% p.a. during the same period (Table 4).There is a Motor Vehicle Code which regulates, inter alia, vehicle weights and

dimensions, but these regulations are not generally enforced. The proposed

Third Highway Project is expected to include specific action to solve thisproblem. On the feeder road network rain barriers are erected to prevent

passage of heavy vehicles after rains. Road transport generated by commerce

and industry, including agricultural exports, is dominated by the "Syndicatdes Transporteurs," a union of two large foreign firms and several Camerooniantruckers. The Syndicat handles about 80% of the long-haul trucking business,

mostly interregional, and all of Chad's transit traffic; the balance is

handled by small owner-operators. There are no restrictions on vehicle impor-

tation or entry into the trucking business, but this has not resulted inovercapacity; competition is keen. Inter-city road passenger transport is

mostly by taxi and bus, often owner-operated.

3.04 Transport on the feeder roads network is either by small private

truckers or, in the case of some cash crops, by cooperatives which often

supplement their capacity with private carriers on contract. Supply is

usually adequate; the few instances of undersupply are due mostly to the poorstate of roads. For the transport of passengers, consumer goods and food-

crops, competition among truckers is sufficiently strong to ensure that mostof the savings in vehicle operating costs associated with road improvementswill in general be passed on to the rural population. For the transport of

cash crops, the bulk of the savings goes to the cooperatives which purchase

directly from the producers at prices fixed independently of transport costs.

These savings will either be used by the cooperatives to expand and improvetheir services or will be passed on the Government's Price Stabilization Fund

which usually protects the rural farmers during the period of adverse world

market prices for their cash crops and which sometimes participates in

financing feeder road improvements (para. 3.14).

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D. Highway Administration

3.05 The Department of Roads (DR) within MINEH has legal responsibilityfor planning, developing and maintaining the road network. In practice,however, DR has so far restricted its activities to the national and pro-vincial network; the remaining roads have been developed by local authorities,various Government agencies, autonomous cooperatives and private companies.The DR has two central sub-departments, one for road engineering and con-struction and the other for road maintenance; it has nine regional divisionsdivided into forty subdivisions. Each regional division is headed by a Pro-vincial Delegate of Equipment who also acts as the technical advisor to theregional governor on roads and other civil works.

3.06 Responsibility for the administration of the feeder roads networkis ill-defined, as local authorities and several Government agencies, theDepartment of Roads, the Genie Rural and the Department of Community Develop-ment (DCD), all have statutory responsibility. The proliferation is notnecessarily a handicap since the wide variations in standards, functionsand methods of construction and financing of these roads necessitate diversestrategies not efficiently provided by a single organization. The DR is moresuitable for administering the construction and maintenance of the "highertrafficked" feeder roads using mostly mechanized methods. DCD is mostsuitable for construction or maintenance with intermediate or labour-intensivemethods and for cases where community participation is feasible. The GenieRural could be used for modest-standard feeder roads with or without communityparticipation. The missing element is the coordination of the activities ofthe different groups to ensure (i) consistency with overall road developmentstrategy, (ii) economically and technically reasonable design standards and(iii) adequacy of construction and design quality. The DR is best suited toperform this task. Therefore, under the proposed project, a Feeder Roads Unit(FRU) will be set up within the DR to coordinate and administer the planningand development of feeder roads throughout the country; and more specificallyto execute the proposed project, carry out procurement of equipment and somematerials, advise on and control the technical standards of works, assist inthe preparation of detailed annual feeder road programs, and to executestudies for a follow-up feeder roads project and for organizing resources forfeeder roads maintenance. The Government has given assurances that it willset up the Unit by March 31, 1978.

3.07 FRU's key staff will consist initially of a Cameroonian engineerand a technical assistance expert (road engineer) to be financed under theproject. Initially the economic input for the FRU will be provided by ashort-term consultant (transport economist) provided under the project.In time, another local road engineer and transport economist should be addedif and when warranted by the unit's workload. FRU's local staff should be

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assigned full time on feeder road matters; the alternative arrangement ofhaving existing DR staff working part-time on feeder roads was tried durirgproject preparation and judged unworkable. The Government has agreed to theabove arrangements and is taking steps to designate a full-time, Cameroonianengineer as head of the unit.

E. Road Maintenance

3.08 The DR is responsible for maintenance of the national and provincialroads classified into paved roads and laterite-road categories A, B, C, and D;local authorities are responsible for the rest. Even though sufficientbudgetary allocations are provided for paved roads and those in categories Aand B, maintenance on these roads is still poor due to inefficient use offunds and the inability of MINEH's central Equipment Pool, the only source ofDR's maintenance equipment, to fill the Department's needs. The situation iseven worse for categories C and D where allocations are insufficient (Table5). Consultants are studying DR's maintenance organization and operations.The proposed Third Highway Project is aimed at assisting Government to improveroad maintenance.

3.09 Feeder road maintenance, the responsibility of the local authorities,is practically non-existent. Most of the effort made has come from the localpopulation using their own labour and resources. This is especially true inWest (anglophone) Cameroon where the Department of Community Development (DCD),with technical assistance from SATA (Swiss Agency for Technical Assistance),has had a successful record of organizing and motivating local communities forfeeder road improvement and maintenance. Even there, the frequency of main-tenance has been limited. The results of neglected maintenance are evidenteverywhere; roadways and structures have deteriorated to a point where mostare no longer at an adequate level of servicability or in suitable conditionfor normal maintenance operations. Extensive rehabilitation has becomeimperative.

3.10 The country needs a program for (a) rehabilitation and improvementof high priority feeder roads and (b) adequate maintenance of those roads andother feeder roads recently constructed or planned for construction undervarious agricultural schemes. Such a program will have to be long-range be-cause of the relatively large amount of work and funds that would be involvedand because a parallel effort will be required on the main and secondarynetworks. The proposed project is a start in this direction with emphasis onthe three selected project areas.

F. Road Engineering and Construction

3.11 The DR is responsible for engineering and construction of roads.In practice, only the design and supervision of small projects is carriedout directly by the Department; consultants are employed for work on mostprojects financed by foreign aid agencies. The Feeder Road Unit to be

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established under the proposed project will form the nucleus for developingDR's engineering capacity for the feeder roads network. In the absence oflocal contractors of adequate capability and capacity, practically all majorworks are carried out by foreign firms on the basis of competitive bidding.Force account is used only for minor works and for improvement of feederroads. DR's only significant undertaking with force account, the Kumba-Manfe road, with equipment financed by USAID, proved reasonably successfuland served to train a number of local engineers. Force account road construc-tion under the Bank's Cocoa Project using a local civil engineer, a GenieRural road technician and a technical assistance road expert has so faryielded very encouraging results. Under the proposed project, DR will beequipped to construct higher standard feeder roads in the West Province andthe ZAPI East area by force account. DR will be assisted by three technicalassistant experts (one road engineer and two road technicians); the expertswill also provide on-the-job training for local staff (paras. 4.07 and 4.08).

3.12 The DCD has had reasonable success with feeder road improvementusing labour-intensive methods, intermediate technology and community parti-cipation in the Northwest Province. Under the project DCD will be equipped toconstruct and subsequently maintain about 300 km of feeder roads in thatprovince. The DCD will continue to receive SATA's technical assistance forpreparing the annual detailed programs but will also need a qualified roadengineer. SATA has just trained a Cameroonian engineer in their localtraining school and during appraisal, the Director of DCD agreed to use himfull-time for the project.

3.13 There are a few local contractors, who undertake mostly buildingconstruction. The few who have ventured into roadworks have so far performedpoorly and consequently have discouraged local authorities from using them.The reasons for their poor performance are insufficient capital, lack of ade-quate managerial ability, and a shortage of technical staff. An attempt todevelop the capacity of the local road construction industry will involveconsiderable funds and, most importantly, the Government's commitment whichdoes not appear to be strong. The problem will be examined in the context ofthe proposed Third Highway Project. Therefore, under the proposed project,local contractors will be used for the construction of drainage structuresand workshops and for the supply of local road-building materials. Contractsto be awarded to them are estimated at US$1.8 million.

G. Road Financing

3.14 Road expenditures are financed from general revenues and fromforeign loans and grants. Under the Third Plan, about CFAF 42.3 billion (at1974 prices) was spent on roads, of which CFAF 34.6 billion was for con-struction and improvement and CFAF 7.74 billion for maintenance of theclassified network (Table 6). Under the Fourth Plan, proposed road spendingtotals CFAF 78.2 billion at 1974 prices, of which CFAF 68.5 billion is forconstruction and CFAF 9.8 billion for maintenance. The amount for construc-tion and improvement of feeder roads have increased from CFAF 3.9 billion or

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9% of road expenditures in the Third Plan to CFAF 24.6 billion 1/ or 31% inthe Fourth Plan. Local communities have contributed unknown but significantfinancial resources towards feeder road development. More recently, aboutCFAF 300 million from the Price Stabilization Fund has been spent on improve-ment of some cocoa roads. Revenue from road users derive from import dutieson vehicles, fuel taxes and licensing fees. Over the period 1971/72-1975/76,these revenues amounted to about CFAF 53.8 billion (Table 7), far more thanthe amounts budgeted for road maintenance.

3.15 No central budgetary funds are allocated for feeder road mainte-nance; although local authorities and communities have contributed somefunds and, in some cases, labor and materials, these have often sufficedonly for routine maintenance. Unless adequate funds are made available ona timely basis, the feeder roads being built or proposed, including thoseunder the project, will rapidly deteriorate. A general strategy needs to beadopted to ensure adequate maintenance of the other parts of the feeder roadnetwork as they are rehabilitated to a maintainable state. Given the Govern-ment s increased emphasis on maintaining the classified road network, it ishighly unlikely that sufficient funds will be provided; therefore, additionalsources should be found.

3.16 During appraisal, discussions were held with the Government onthe feasibility of collecting contributions in cash or in kind from thefollowing direct and indirect beneficiaries of feeder roads: (a) the Govern-ment, (b) local population, (c) cooperatives, (d) transporters, and (e) PriceStabilization Fund (PSF). Although Government has agreed in principle to usesome of these sources in some selected cases under the project, it wants tostudy the question in more detail before it adopts a general policy on it.The following approach has therefore been agreed with the Government: Firstthe necessary resources are being mobilized under the project to maintain theproject roads during the four-year project period after their construction andimprovement. This initial maintenance includes minor betterment required bythe low level of improvements inherent in this type of project. It would helpset up the institutional and technical arrangements and training of staffrequired for carrying out adequate maintenance. The DCD, the ZAPI EastOrganization and the SODEPA 2/ will assist in maintaining the roads theyimprove using a maximum of community participation with labor, local mate-rials and cash. Secondly, the Government will provide DR the resources tomaintain a significant and annually increasing number of specific feederroads recently built or programmed for improvement during the next fouryears. These feeder roads will be maintained at a long-term, estimatedcost of about US$400,000 per year, including periodic maintenance. Themaintenance standards which have been agreed upon with the Government aredescribed in Table 12. The remaining feeder roads are not in a suitablecondition for normal maintenance operations. Thirdly, consultant servicesare provided under the project for the study of resources for feeder road

1/ This figure does not include some feeder road investments budgeted aspart of agricultural projects such as those in the proposed project.

2/ SODEPA: Societe de Developpement et d'Exploitation des ProductionsAnimales.

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maintenance. The Government has agreed to maintain the project roads andthe additional specific feeder roads by the end of the project period. TheGovernment also agreed to undertake the feeder road maintenance study forcompletion by December 31, 1978, and to discuss with the Bank promptlythereafter the funding of feeder road maintenance in light of the study'sfindings.

4. THE PROJECT

A. General Description

4.01 The proposed project consists of:

(a) a four-year program of construction, improvement, rehabili-tation, and maintenance, mainly by force account, of about2,200 km of feeder roads including

(i) purchase and rental of equipment;

(ii) purchase of spare parts, fuel, lubricants,and materials; and

(iii) minor civil works by local contractors;

(b) construction of, and provision of equipment and tools for,a DR workshop including office facilities at Nguelemenduka;

(c) technical assistance to establish and strengthen the FeederRoad Unit to be set up within DR, to implement the program,and to train local staff of the Unit in planning, imple-menting and monitoring feeder road improvement and mainten-ance, and in maintaining and repairing road equipment; and

(d) consultant services for

(i) studying the resources for feeder road maintenance; and

(ii) preparing a follow-up feeder road program.

B. Feeder Road Program

4.02 The proposed project provides for the construction, improvement andrehabilitation of about 2,200 km of feeder roads. Of these 850 km are to beexpected within the proposed ZAPI East Rural Development Project, 1,200 km inthe Western Highlands (about 900 km within the proposed Western lHighlandsAgricultural Development Project in the West Province and 300 km in theproposed FED/German agricultural project in the Northwest Province) and 150 kmin the Adamaoua area of the ongoing Livestock I Project. Annex I describes inmore detail the objectives and scope of the above projects. About 320 km ofnew feeder roads will be constructed and the rest improved or rehabilitated.The proposed improvement, rehabilitation consists of (a) reshaping with or

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without widening of roadway, (b) regravelling selected sections, and (c)building, repairing and reinforcing drainage and drainage structures. Thedesign standards for them (Table 8) have been chosen as a function of expectedtraffic level over a ten-year period. Where existing standards are higherthan those proposed, they will be retained. During negotiations, Governmentagreed to use these standards for the project roads, except where otherwiseagreed by the Bank Group.

4.03 A firm work program for the first year (Table 9) and a tentativesecond-year program (Table 10) have been established and agreed in principlewith Government; a tentative list of roads to be included in the third andfourth year programs are shown in Table 11. The criteria for the selectionof roads to be included in the first year's program were (a) economic rateof return (ERR), (detailed in Annex 5); a minimum 10% ERR requirement wasapplied to each road; the ERR was based on road-user savings for those feederroads with substantial existing traffic and on road-user savings, net incre-mental agricultural production and reduced produce spoilage for feeder roadswith little or no existing traffic but in areas expected to have significantfuture agricultural activity; (b) the needs of the agricultural_projectssupported by the roads, and (c) the necessity for geographical coordination toprevent long travel distances by road brigades. For the second, third andfourth year programs, the ZAPI East Organization, UCCAO 1/ and BAG 2/ willselect, using the same criteria as above, the roads to be included under theannual programs for the ZAPI East and Western Highlands respectively forreview and approval by their respective provincial interministerial committeesand the Bank (paragraphs 4.22 and 4.23). The firm first year program and theabove arrangements for establishing the subsequent annual programs wereagreed with the Government during negotiations.

C. Improvement of Project Regional Roads

4.04 In order to achieve the objectives of the project roads, the roadnetwork linking them to the ultimate export outlet or regional market centersshould also be in reasonable condition. Therefore, some national and provin-cial roads in the project areas requiring minor but essential works have beenincluded under the project. These include improvements of roadside andoffshoot drains, repair of culverts and bridges, improvement of embankments oncrossing of marshy areas and regravelling, as necessary. Additionally, about540 km of main roads needing extensive rehabilitation and some reconstructionwill be provided for under the proposed Third Highway Project. A list ofthese roads is presented in Table 13. The total costs for these works aretentatively estimated at about US$3 million. During negotiations Governmentconfirmed its intentions to include these works under the proposed ThirdHighway Project.

D. Equipment and Material Purchases

4.05 The Central Equipment Pool does not have sufficient equipment tofill DR's existing needs and cannot be counted on to supply equipment re-quirements of the force account brigades under the project. Therefore, the

1/ UCCAO: Union des Cooperatives de Cafe Arabica de l0Ouest will be theexecuting agency for the Bank-financed Western Highlands AgriculturalProject.

2/ BAC: Bamenda Association of Cooperatives will execute the FED/Germanproject.

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proposed project provides for all the equipment and spare parts needed tooperate the different brigades as listed in Table 14. However, equipment tobe used for improving the feeder roads in the areas of the proposed Zapi Eastand Western Highlands projects may be subject to modification if the scope ofthese projects is modified or reduced. The bidding documents and schedulefor delivery of the equipment would reflect this. The Government has agreedto these arrangements. Bidding documents for all equipment under the projectwill be prepared by DR's FRU with the assistance of the technical assistanceconsultants (engineer and mechanic) provided under the project. Preparationof these documents should be finished by December 31, 1977 to permit equipmentdelivery by the beginning of the construction period in September 1978. Theproject also provides for purchasing materials such as cement, steel, lumberand for supplies such as fuel, lubricants and tires.

E. Technical Assistance and Studies

4.06 Technical assistance (seven experts for about 133 man-months) willbe provided under the project to assist the Government to:

(a) establish the FRU and train Cameroonian staff;

(b) prepare the bidding documents and procure equipment, spareparts, some materials and supplies;

(c) define the annual programs and prepare detailed plans fortheir execution;

(d) implement the feeder road program;

(e) design and implement a program for the training of DR staffincluding, but not limited to, engineers, road technicians,mechanics, equipment operators, brigade chiefs and foremen; and

(f) prepare a second-phase program for feeder road improvement andmaintenance.

4.07 The experts' draft Terms of Reference, required qualificationsand duration of assignments, are outlined in Annex 2. These arrangementswere confirmed at negotiations.

4.08 The proposed project provides funds for short-term consultants (20man-months total) to assist the Government in preparing (a) by December 31,1978 a study of the resources for feeder road maintenance which will be dis-cussed with the Bank, and (b) by September 30, 1980 a study of a follow-upfeeder roads project. Government has agreed to attach qualified local staffto the FRU on a full-time basis to be trained by the experts, both those fortechnical assistance and studies (Annex 2).

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F. Training

4.09 The project will provide on-the-job training, through the tech-

nical assistance experts and the short-term consultants for the Cameroonian

engineers and transport economists at MINEH's headquarters in Yaounde. In the

field, the project will require 4 road engineers and technicians, 20 foremen,

110 equipment operators and drivers and 33 mechanics. Even though sufficient

staff is available for these positions most of them will require different

degrees of training which is therefore an important element of the project.

The training specialist in the team will propose an outline training program

for each counterpart assigned to the team and for the mechanics, foremen and

equipment operators for review by the Government and the Bank by the end of

February 1978. He will also train a Cameroonian training counterpart. Sup-

plementary training for the road engineers, technicians and the mechanics

will mainly be on-the-job by the technical assistance experts. Training of

operators will be carried out at MINEH's training center at Douala. Equipment

operators who have already received training will receive supplementary train-

ing from the suppliers of the equipment to be purchased under the project.

The bidding documents will specifically include this provision. Training of

personnel for the DCD brigade will be carried out by SATA which is already

providing technical assistance to DCD and has a training center in West

Cameroon. The technical assistance will be phased out gradually and in the

last year the program will be managed entirely by Cameroonians. The Govern-

ment has agreed to these training arrangements, to the local staffing and to

take appropriate budget measures to allow recruitment and training of these

personnel.

G. Provision of Workshops and Office Space

4.10 DR has workshops both at Bertoua in the ZAPI East and at Bafoussam

in the Western Province. The Bafoussam workshop is reasonably well equipped

with both facilities and staff to maintain the equipment of the DR brigades.

A new but modest workshop including office facilities will be built at Nguele-

menduka, which is more central for the ZAPI area, to take care of the DR and

ZAPI brigades. It will also be supplied with the necessary tools and equip-

ment. DCD already has a good workshop at Bamenda. The Government will

provide office space at Bafoussam, Yaounde and Bamenda. The Government has

agreed to construct and have the workshop and office in operation at Nguele-

menduka by December 31, 1978.

H. Project Monitoring

4.11 The economic, social and engineering aspects need to be monitored

closely to determine both the extent to which they should be modified for

preparation of the follow-up project and the long-term impact of the project

roads. Since the bulk of the socio-economic aspects concern the results

of the ZAPI East and Western Highlands Rural/Agricultural Development Projects,

monitoring of these elements will be integrated with the monitoring systems

of those projects. Monitoring under the project will, therefore, be reduced

to (a) the engineering parameters, which will be done routinely with project

execution (see list in Annex 3), and (b) evaluation of traffic forecast and

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evolution of transport costs which can be done periodically by the provincialfeeder road engineers to be appointed under the project. At negotiations,Government agreed to these arrangements as well as the list of items to bemonitored.

I. Cost Estimates

4.12 The total cost of the project is estimated at US$21.1 million,including US$4.0 million equivalent in taxes and duties (Table 15). Projectcosts, net of taxes and duties, are estimated at US$17.1 million equivalent,with a foreign exchange cost of US$11.1 million (65%). The following is asummary of project costs:

ForeignExchange

Local Foreign Total Local Foreign Total Component-----CFAF Million---- -----US$ thousand---- %

I. EquipmentPurchase 81 722 803 330 2,947 3,277 90Rental 1 3 4 4 12 16 75

II. Spare parts 113 283 396 461 1,155 1,616 71III. Fuel and

lubricants 100 266 366 408 1,086 1,494 72IV. Local staff 386 - 386 1,576 - 1,576 0V. Materials 96 320 416 392 1,306 1,698 77VI. Civil works 171 187 358 698 763 1,461 52VII. Technical Assistance 62 160 222 253 653 906 72VIII. Provision of Office

space and equipment 35 35 70 143 143 286 50IX. Workshop equipment

and tools 8 31 39 32 126 158 80X. Studies 6 34 40 24 139 163 85

Total I-X 1/ 1,059 2,041 3,100 4,321 8,330 12,651 67

XI. ContingenciesQuantity 106 204 310 432 833 1,265 66Price 307 468 775 1,254 1,910 3,164 60

Grand Total 1,472 2,713 4,185 6,007 11,073 17,080 65Rounded (6,000) (11,100) 17,100) (65)

Source: Mission estimate

1/ Base costs refer to February 1977.

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4.13 Cost estimates for equipment and tools (Table 14) are based on thefindings of consultants and bids received in 1976 for similar equipment.Operating costs of equipment, assuming 180 working days per year, are based oncost figures observed under the feeder road improvement program in the CocoaProject. The average cost including equipment depreciation but excludingcontingencies, net of tax, for road construction and improvement are asfollows:

Western Highlands ZAPI East Adamaoua(US$) (US$) (US$)

pr. Km

6 m roads 8,000 4,8004.5 m roads 6,000 2,400Access Tracks 5,000 2,000 2,000

The higher cost for the roads in the Western Highlands is mostly due tothe mountainous terrain, the need for more gravelling and the large number ofdrainage structures to be reconstructed or improved. The costs in the ZAPIEast are average. The lower cost in the Adamaoua zone is due to the rela-tively flat terrain, the availability of good road-making soils, the limitednumber of drainage structure and the rather low design standards acceptablefor the expected low traffic on those roads.

4.14 Technical assistance is assumed to be provided by consultants.The average man-month cost is estimated at about US$7,000 which correspondsto rates of the firms working in the region. The billing rate for these ser-vices is estimated at US$4,000 to US$6,500 per field man-month, according tothe experts' qualifications, and comprises salaries and overhead (home officeexpenses, expatriate allowance, social security, etc.). Reimbursable expensespayable to consultants, i.e., housing, travel, etc. is estimated at US$1,500-2,000. These costs will be significantly reduced if the Government elects touse SATA experts for the services (para. 4.10). The cost of short-termconsultants is estimated at about US$8,000 per man-month based on the Bank'sexperience with their use during project preparation and assuming that expertswould be provided by a consulting firm.

4.15 Cost estimates for workshop buildings are based on bids receivedfrom local contractors in 1976 for similar works.

4.16 A quantity contingency allowance of about 10% has been included inthe cost estimates to allow for increases in quantities. Even though this isa program-type operation and would normally not require physical contingen-cies, they have been included since the program target has been set to fitdefinite agricultural programs. Provision for future price increases has beencalculated separately for the various items in the country in accordance withBank Group Guidelines as follows: for equipment and spare parts, 7.5% p.a.from 1977-79 and 7% thereafter; for other items, 9% p.a.from 1977-79 and 8%thereafter. These amount to about 27% of the total base cost for February1977 prices.

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J. Execution

4.17 The Ministry of Economy and Plan (MINEP) will have overall re-sponsibility for execution of the project. However, it will appoint otherministries to be executing agencies for separate components of the project asfollows: (a) MINEH (in particular the Department of Roads) for the construc-tion, improvement and subsequent maintenance of the feeder roads (other thanaccess roads in the ZAPI East and the West Province), the study of the follow-up project and the sources of funds for feeder roads; (b) the Ministry ofAgriculture (in particular the Department of Community Development) for theconstruction and subsequent maintenance of about 300 km of feeder roads in theNorthwest Province; (c) the ZAPI East Organization for the construction andsubsequent maintenance of about 150 km of farm access roads and (d) the SODEPAfor the construction and subsequent maintenance of 150 km of access roads inthe Adamaoua zone.

4.18 Physical execution of the project is scheduled to start in September1978 and be completed in four years in accordance with the implementationschedule shown in Table 16. The Government has agreed to this schedule.Road construction, improvement and maintenance will be carried out by forceaccount; local contractors and 'petty contractors" 1/ will be used to constructworkshops and drainage structures and to supply road-building materials.

4.19 The roadworks under the project will be executed as follows:

Type I and II Feeder Roads in ZAPI East and West Province: two special feederroad construction units will be formed by the Department of Roads, one in theZAPI East and the other in West Province. Each unit will be headed by aprovincial feeder roads engineer who will depend, for technical matters, onthe provincial delegate of equipment.

Feeder Roads in the Northwest Province: these roads (about 300 km) will bebuilt by a brigade from the Department of Community Development equippedrelatively lightly (see Table 14). SATA will provide technical assistance(a road technician and mechanic) to the brigade.

Farm Access Roads in the ZAPI East: the ZAPI East Organization will createa light brigade to build the roads with technical assistance provided underthe project.

Access Roads in the Adamaoua Zone: these roads will be built by SODEPA'sown forces with their existing equipment to be supplemented by some rentedequipment. Construction is expected to be over one construction season.

4.20 The roads to be constructed during the first year were agreedduring negotiations. Roads for subsequent years will be proposed annually by

1/ These are individuals who take on small contracts and assemble theskilled and unskilled labor to execute the works. They usually have tobe supplied with materials and supplies.

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the ZAPI East Organizations for the East Province and UCCAO for the WestProvince and BAC for the Northwest Province according to the guidelines in-cluded in Annex 5. These lists would be reviewed and approved by provincialinterministerial committees (PIC) to be organized within the three provinceswithi provincial representatives from, inter alia, the Ministries of Planning,Finance, Equipment and Housing, Agriculture, Transport as well as importantcooperatives and agencies with direct interest in agricultural feeder roads.During negotiations, the Government undertook to ensure the meeting of thePICs not later than May 31 each year during the period of project execution.The approved programs would be submitted to the Bank for approval three monthsbefore the scheduled start of works to be undertaken in that year's program.FRU will be responsible for preparing the detailed annual programs for the DRroads as well as provide technical guidance on the programs of the otheragencies. These arrangements have been agreed upon by Government.

4.21 Detailed plans for the Nguelemenduka workshop and office buildingsunder the project will be developed by the Feeder Roads Unit.

K. Procurement

4.22 Equipment, materials, spare parts and supplies amounting to aboutUS$8.0 million (net of taxes) will be procured on the basis of internationalcompetitive bidding in accordance with Bank Group Guidelines. These itemswill be bulked to the extent possible to m-ake them suitable for internationalcompetitive bidding. Goods manufactured in Cameroon would be allowed a pref-erence equal to 15% of the c.i.f. price on imported goods or the prevailingduties generally applied to non-exempt imports, which is lower. Contractsfor equipment, materials and supplies costing under US$50,000 may be awardedon the basis of competitive bidding following local procedures acceptable tothe Bank. The aggregate amount for such purchases would not exceed US$600,000.Contracts for the construction of workshops and drainage structures totallingabout US$1.8 million will follow local competitive bidding procedures accept-able to the Bank. Consultants for technical assistance and for the feederroads studies will be employed in agreement with, and under Terms of Referenceand conditions satisfactory to, the Association. All the above arrangementswere discussed and have been agreed to by the Government.

L. Financing and Disbursements

4.23 The proposed Loan of US$4.6 million and Credit of US$6.5 millionwill finance about 65% of total project costs net of taxes; i.e., all foreigncosts. Government will finance local costs of US$6.0 million of net-of-taxproject costs. Taxes and duties are estimated at US$4.0 million. Table 17gives details of project financing. Loan/credit funds will be disbursed asfollows:

(a) 100% of the foreign costs of imported highway equipment,vehicles, spare parts, workshop equipment and tools, officeequipment aLnd wiaterials or 55% of the local costs of theseitems if purchased locally;

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(b) 55% of the total expenditures for fuel, lubricants, and rentedequipment;

(c) 55% of total expenditures for civil works done by contractors;and

(d) 70% of total expenditures for technical assistance experts andconsultants.

Requests for disbursements will be fully documented. Based on the foregoingand the project implementation schedule shown in Table 16, the estimatedschedule of disbursements from the loan/credit account is shown in Table 18.

4.24 Early engagement of the team leader (highway engineer) for thetechnical assistance team (paragraph 4.09) and other project starting costswill necessitate use of the Project Preparation facility for financing ofabout US$100,000.

5. ECONOMIC EVALUATION

A. General

5.01 The Government is emphasizing (a) increased agricultural productionfor both domestic consumption and export and (b) raising the income and thegeneral well-being of the rural population which has an average per capita in-come of only about US$85 p.a., compared to a national average of US$270. Toachieve these objectives, various integrated projects are being implemented orplanned. These provide credit, farm inputs, extension services and improvedmarketing to increase holdings and improve yields. Efficient, reliabletransport of agricultural inputs and produce is vital to their success.Moreover, in existing productive farm areas outside the integrated schemes,poor roads and the consequent high transport costs and unreliability result inexcessive produce spoilage and low farm-gate prices for food crops. Poor roadsalso discourage the use of fertilizers and insecticides and constitutes animportant hindrance and disincentive for increasing production. The planning,development and maintenance of these feeder roads, on the other hand, demandsan efficient well-staffed organization at both the national and local levelsto avoid misinvestments and to ensure proper upkeep of the investments made.The objectives of the proposed project are (a) to establish an efficient in-stitutional framework for planning, developing and maintaining feeder roads,(b) to train local staff in performing the above functions and (c) to pro-vide adequate resources for the construction and subsequent maintenance ofsome 2,200 km of feeder roads to support agricultural/rural developmentprojects in the ZAPI East, the Western Highlands and the Adamaoua Livestockarea.

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B. Economic Justification

5.02 The justification of the proposed project derives from its indis-pensable role in four agricultural and livestock development projects and itsimportant institution-building objective.

Institution Building

5.03 The institution-building component of the project represents amajor benefit, albeit unquantifiable. It will improve DR's capability andthereby reduce the waste of resources concomitant to poor planning, inadequateconstruction quality and insufficient or, in most cases, complete neglect ofmaintenance. The training component will result in increased capacity oflocal staff, at all levels, to handle the development and maintenance of thefeeder road network and decrease the need for technical assistance in follow-up projects. The project will also initiate a concerted interministerial/interagency approach to planning feeder roads as well as to encourage moreintensive local participation in both the decision-making process and infinancing and executing the works.

Feeder Road Programs

5.04 The economic justification of the feeder roads in the proposedproject addresses four issues, namely:

(a) the justification of the roads as an integral partof the agricultural projects they serve (paras. 5.05-5.12);

(b) the justification of the feeder road project withoutthe associated agricultural projects;

(c) the justification of the specific roads included inthe first-year program (para 5); and

(d) criteria for selecting roads for the subsequent annualprograms.

Justification within context of agricultural programs

5.05 The feeder roads in the proposed project are integrated with theZAPI East Rural Development Project, the Western Highlands AgriculturalDevelopment Program (both the Bank and FED/West German-financed parts) and theAdamaoua Livestock Development Project. The justification of the roadshas, therefore, been evaluated as an integral part of those projects in thesame manner as the other components; namely, credit, extension services,health facilities and agricultural inputs.

- 22 -

The ZAPI East Road Program

5.06 The 850 km in the ZAPI East area will serve the proposed ZAPI EastRural Development Project.l/ Total investments for that project would amountto US$10.6 million,2/ net of taxes, of which US$9.0 million for agricultureand other direct production and US$1.6 million for health, water supply andmarketing. An additional US$4.0 million is being provided for feeder roadsunder the proposed feeder roads project. Benefits from the ZAPI East projectinclude (a) incremental annual production of crops (food and non-food) esti-mated at about US$2.5 million at full development after 10 years and (b)unquantifiable but significant benefits from improved health and water supplyfacilities. About 16,500 farm families, all below the poverty level of US$80p.a., are expected to benefit from the project. The feeder road componentwill (a) provide the cheap, reliable and efficient transport indispensablefor generating and marketing the increased production, (b) provide improvedaccess to health and social amenities, (c) increase communication betweencommunities and thus enhance the cooperative spirit vital to ZAPI's successand (d) reduce transport costs to existing and future non-agricultural traffic,about US$254,000 per year by 1983, the year after completion of the road proj-ect (Table 19).

5.07 On the basis of the above costs and quantifiable benefits, theintegrated rural development project including the road component is ex-pected to yield an economic return of about 27% over the 20-year life of therural development project. In the calculation of the economic return, furtherinvestments for minor rehabilitation, periodic and routine maintenance on theproject roads to carry them beyond their 10-year normal life have been assumed.

The Western Highlands Road Program

5.08 About 1,230 km of the project roads support two agricultural devel-opment projects in Cameroon's Western Highlands--the proposed Bank-financedproject in West Province 3/ (930 km) and a similar FED/German project(300 km) in the Northwest Province. Investments under the Bank agriculturalproject, about US$30 million, will finance (a) agricultural extension andresearch services, (b) credit to farmers for farm inputs including fertilizers,(c) improved and high-yield seed farms, (d) soil conservation and reforesta-tion, (e) small animal husbandry and (f) marketing assistance (Annex 1);the US$6.4 million for road construction and improvement and annual recurrentcosts for road maintenance are additional.

5.09 Benefits from the Bank-financed agricultural development projectwill include (a) maintenance of production and improved quality of arabicacoffee, and increased production of foodcrops, vegetables, poultry, pigs and

1/ These are the current estimates being used in the ZAPI Appraisal Report(draft yellow cover).

2/ Scheduled for Board Presentation February 21, 1978.

3/ Scheduled for Board Presentation March 7, 1978.

- 23 -

eggs, expected to reach about US$7 million on the fifth year of the project,(b) introduction of appropriate land use patterns and of soil cultivationand (c) introduction of new cultivation systems and techniques. The roadcomponent, will, as in the ZAPI case, provide the cheap, reliable and effi-cient transport necessary for (a) generating and marketing the additionalagricultural population, (b) reducing spoilage of foodcrops and vegetableswhich are transported mainly during the rainy season when the existing feederroads are practically impassable and (c) reducing transport costs to non-agricultural traffic, about US$507,000 p.a., by year 1983 (Table 19). Onthe basis of the above benefits and costs, the agricultural project, includ-ing the road component, is expected to yield an economic rate of return ofabout 20% over its 20-year life time. The project is expected to increasethe family income of about 80,000 farm families by 30-40X.

5.10 The composition and level of investments in the FED/German agricul-tural project is not yet known. The project is, however, expected to besimilar in composition and benefits to the Bank-financed project and, there-fore, expected to yield a comparable economic return.

The Adamaoua Road Program

5.11 The 150 km of low standard roads provided in the livestock areais a component of an ongoing livestock development package including credit,extension services, veterinary services and ranch inputs and aimed at pro-ducing about 1,000 head of cattle in a 3-year period. Additional projectbenefits will include increased agricultural production and other economicactivity as the area is introduced into the market economy and reliabletransport provided among the area's communities hitherto only connected byfootpaths and cattle tracks. Benefits from the roads would consist mostly ofthe provision of low cost and reliable transport of ranch inputs and betteraccess for extension officers as well as transport of agricultural produce.Even though cattle transport will be mostly "on-the-hoof" it is expected thata significant number of ranchers will profit from road transport to reach thevarious markets scattered in the area.

5.12 In the justification of the project, the cost of the roads and otherdiverse inputs required to produce the target heads of cattle have been com-pared to the incremental gains from increased cattle and agricultural produc-tion. The costs and benefits are based on actual figures experienced by theSODEPA in the Bank-financed First Livestock Project; agricultural cost esti-mates were obtained from the provincial staff of the Ministry of Agriculture.On the basis of these costs and benefits, the livestock development packageincluding the roadworks is expected to yield an economic rate of returnof about 18% over the 10-year life of the roads.

Justification of the feeder roads without the agricultural projects

5.13 To verify that the feeder roads component within the agriculturalprojects is viable without the agricultural projects, a separate analysis ofthe feeder roads, without the agricultural projects, was performed using as

- 24 -

benefits, road-user savings, reduced spoilage and modest induced increases inagricultural production. The proposed feeder roads project was shown to yielda minimum economic rate of return of 14%. As an illustration of the justifi-cation of a Category II road, the analysis for one first-year road is providedin Annex 4; a safeguard that the individual roads are justifiable is providedby the selection criteria outlined in Annex 5.

Justification of roads in the first-year program

5.14 Roads selected for the first-year program fall into two categories:

Category I roads (about 70% of total) which serve areas of consi-derable existing economic activity, and Category II roads which serve areaswith little existing economic activity, but where considerable potentialexists for increased agricultural production. Category I roads have beenjustified on benefits from: (a) road-user savings to non-agriculturaltraffic; (b) induced increases in agricultural production; and (c) reducedproduce spoilage. All roads included in the first year have an economicreturn exceeding 10%.

Criteria for selection of roads after first-year of project

5.15 The criteria for selecting roads to be included in the second, thirdand fourth annual programs (detailed in Annex 5) will be: (a) economic rateof return; (b) the needs of the agricultural projects served by the roads; and(c) geographical coordination of brigades. In all cases, road selected forinclusion in the annual programs will have to yield a minimum ERR of 10%.

Distribution of the Project's Benefits

5.16 The distribution of the feeder road project's benefits will beinfluenced greatly by (a) Government's policy on producer prices and (b) theextent of competition in the transport industry. Under prevailing conditions(paragraph 3.04), approximately a third of the benefits from increased cashcrop production, mostly cocoa and coffee, will accrue to farmers, about athird to the Price Stabilization Funds, about a sixth to Government as exporttax and the remaining sixth to various cooperatives. The farmers will even-tually recuperate some of the benefits to the latter beneficiaries throughprice subsidies and improved agricultural services. With regard to foodcrops,farmers will capture most of the benefits through both selling more andenjoying a higher producer price, given the competitiveness of the truckingindustry; transporters and exporters will share the rest. Benefits fromreduced transport costs to passengers and non-agricultural traffic will beshared by the communities in the project area, the transporters and thetraders.

Project Risks

5.17 The risks associated with the proposed project include (a) pos-sibility of diversion of project equipment and goods to non-project work,(b) interference with selection of roads for annual programs and (c) sig-nificant modifications in or partial failure of the associated agricultural

- 25 -

projects in reaching their targets; minor modifications can be easily accommo-dated within the annual program revisions. Diversion to non-project work maybe a serious risk since MINEH, the expected recipient of the bulk of theproject's equipment and supplies, has to date experienced difficulty insatisfying its needs from the Central Equipment Pool (para. 3.08). The riskis reduced by the expected alleviation of MINEH's equipment problem under theproposed Third Highway Project (para. 1.05) and the vigilance of the Provin-cial Interministerial Committees and the various executing agencies of theagricultural programs. The risk of potential interference is alleviated bythe guidelines agreed with Government for justifying roads selected in theannual programs (Para. 5.14 and Annex 5).

5.18 The risk of drastic modifications in the agricultural or ruraldevelopment projects is rather low, but even in the unlikely event of thisoccurring, the proposed feeder roads project, without the agriculturalprojects, would yield a minimum economic return of 14% (para. 5.04). Asensitivity test of the economic returns of the agricultural projects (Table20) to possible variations in the degree of the projects' success and costsof inputs indicate acceptable returns for those projects.

6. AGREEMENTS REACHED AND RECOMMENDATION

6.01 Agreement has been reached with the Government on the following:

(a) that it will set up a Feeder Road Unit by March 31,1978 (para. 3.06);

(b) that Government will take all administrative, technical andfinancial steps necessary to maintain (i) the project roadsto adequate standards after project completion and (ii) asignificant and annually increasing number of specificfeeder roads, not included under the proposed project (para.3.10 and 3.16);

(c) that Government will undertake a feeder road maintenancestudy to be completed by December 31, 1978 and discuss thefunding of feeder road maintenance with the Bank promptlythereafter in light of the study's findings (para. 3.16);

(d) that it will agree to adopt the design standards outlinedin Table 8 except where otherwise agreed bythe Bank Group (para. 4.02);

(e) the first year's road program and the arrangements forestablishing the subsequent annual programs including theguidelines for selecting individual roads (paras. 4.03 and4.20 and Annex 5);

- 26 -

(f) Terms of Reference for consultants and a list of local per-sonnel to be attached to them as counterparts (paras. 4.07and 4.08);

(g) that Government will attach qualified local staff to FRU tobe trained by the experts and make all necessary budgetaryarrangements to ensure that the required local staff isrecruited on time and that all costs, to be met by Governmentare paid on time (paras. 4.08 and 4.09);

(h) that it will furnish to the Bank prior to February 28, 1978,a training program for local personnel assigned to theproject, review its contents with the Bank and agree on aschedule for implementing recommendations made concerningthe program (para. 4.09).

(i) the project procurement and implementation schedule, and thearrangements for monitoring the project (paras. 4.05, 4.10,4.11 and 4.18).

(j) that the Government will organize provincial interministerialcommittees to meet not later than May 31 each year during theperiod of project execution to review and approve the annualroad programs (para. 4.20);

(k) that arrangements for procurement will be on the basis ofinternational competitive bidding in accordance with BankGroup Guidelines (para. 4.22); and

(1) that the Government will employ consultants for technicalassistance and studies under terms of reference andconditions acceptable to the Bank (para. 4.22).

6.02 Since agreement has been reached with Government on the itemsmentioned in paragraph 6.01, the proposed project is suitable for a Loan ofUS$4.6 million for a term of 20 years including a 5 year grace period anda Credit of US$6.5 million on standard IDA terms to the United Republic ofCameroon including a Project Preparation Facility Advance of US$100,000.

UNITED REPUBLIC OF CAMEROON

FEEDER ROADS PROJECT

Agricultural Production('000 tons)

1969/70 1971/72 1972/73 1973/74 1974/75

A. Cash Crops

Cotton 91 43 45 28 40

Cocoa 108 122 107 110 118

Robusta Coffee 58 64 63 60 67

Arabica Coffee 24 30 32 25 32

Bananas (Export) 49 58 63 67 75

B. Food Crops

Millet/Sorghum 376 340 321

Maize 254 283 300

Rice (paddy) 12 14 8

Sugar Cane 185 179 185

Groundnuts 141 153 166

Doliques-Beans 39 53 53

Macabo-Toro 613 603 635

Manioc 595 662 719

Sweet Potatoes 125 128 149

Yams 161 268 380

Plantains 623 763 840

Potatoes 26 31 38

Si

Source: Annexe de Statistique: Ministry of Economy and Plan, 1974/75 (

Table 2

UNITED REPUBLIC OF CAMEROON

FEEDER ROADS PROJECT

Development of Highway Network(km)

1972 1974 1976 1977

A - Classified Network

Paved Roads 1,417 1,610 1,977 1,997

Laterite Roads

A 996 1,195 1,021 1,902

B 2,339 2,468 2,822 2,817

C 2,152 3,064 5,716 7,493

D 6,084 6,196 5,526 3,790

E 7,959 9,315 9,240 10,801

Total 20,947 23,848 26,302 28,800

B - Unclassified Network

Earth 22,000 25,000 28,000 30,000

Grand Total 42,947 48,848 54,302 58,800

Sources: Ministry of Equipment and Housing, February, 1977Frederic R. Harris Highway Maintenance Study, January 1977

Mission, February 1977

Table 3

UNITED REPUBLIC OF CAMEROON

FEEDER ROADS PROJECT

Motor Vehicle Registration

Year Passenger Delivery Buses Trucks Special Purposc TotalCars Vans yehicles F]eeL

1971 3,697 1,352 406 1,021 250 46,800

1972 3,955 1,462 434 1,103 263 44,750

1973 4,153 1,396 469 1,202 350 52,240

1974 4,402 1,508 493 1,262 290 55,370

1975 4,622 1,659 527 1,350 313 59,250

1976 n.a. n.a. n.a. n.a. n.a. 58,690

1977 n.a. n.a. n.a. n.a. n.a. 62,500

Average annual growth (1971-77): 6%

n.a. - not available

1/ The estimated total fleet differs from the number of vehicles registeredsince only imports are registered and retirement of vehicles from serviceis not recorded.

Source: Ministry of Transport, Cameroon, February 1977Mission Estimates, February 1977

Table 4

UNITED REPUBLIC OF CAMEROON

FEEDER ROADS PROJECT

Consumption of Motor Vehicle Fuels

Fiscal Year Gasoline Diesel Total

1971-1972 124,581 118,464 243,045

1972-1973 133,111 136,945 270,056

1973-1974 140,839 156,175 297,014

1974-1975 139,091 156,000 295,091

1975-1976 145,351 167,780 313,131

1976-1977 146,000 168,000 314,000

Source: Ministry of Transport, Cameroon, February, 1977Frederic R. Harris Highway Maintenance Study, January, 1977

Mission, February 1977

Table 5

UNITED REPUBLIC OF CAIIEROON

FEEDER ROADS PROJECT

Maintenance Allocations for Different Road Types(Fiscal Year 1976/77)

AmountRoad Category (CFAF/kmYear)

Paved Roads 296,000

Laterite Roads

A 164,000

B 132,000

C 108,800

D 55,250

Source: Ministry of Equipment and Housing, Cameroon, February, 1977Frederick R. Harris Highway Maintenance Study - January, 1977

Mission, February 1977

Table 6

UNITED REPUBLIC OF CAMEROON

FEEDER ROADS PROJECT

Road Expenditures during the Third Plan(CFAF Million)

Fiscal Year 1971/1972 1972/1973 1973-1974 1974/1975 1975/1976

Studies 350 400 800 300 380

Construction 3,603 4,943 4,591 10,503 12,940

Maintenance 1,455 1,483 1,790 1,797 2,356

TOTAL 5,408 6,826 7,181 12,600 15,676

Source: Frederic R. Harris Highway Maintenance Study, January, 1977

Mission's Estimates, February 1977

Table 7

UNITED REPUBLIC OF CANEROON

FEEDER ROADS PROJECT

Roader User Revenues(CFAF Million)

Custom duties Fuel Vehicle TransportFiscal Year on vehicles Tax Registration Taxes Total

1971/1972 4,167 3,443 320 110 8,040

1972/1973 4,626 4,000 375 146 9,147

1973/1974 5,135 4,892 375 161 10,563

1974/1975 6,810 5,095 400 170 12,475

1975/1976 7,560 5,393 450 180 13,583

1976/1977 8,400 5,483 465 100 14,448

Source: Ministry of Transport, Cameroon, February, 1977

Frederic R. Harris Highway Maintenance Study, January, 1977

Mission Estimates, February 1977

Table 8

UNITED RE?MJLIC OF CAMEROON

FEEDER ROADS PROJECT

Feeder Road Design Standard

Type I Type II Access Tracks

Clearirn 10-12 m 7 - 8 m 8 m

Road Formetion M-'dth 6 m 5 m 5 m

Gravelled Width 5 m 4m 3m

Thickness of,Gravel 15-20 cm 10-15 cm 10-15 cm

Drainage Lateral ditches, fords and culverts(bridges only where the size of riveror the volume of traffic warrants this)

Traffic v0 oc Over 15 5-15 Under 5

Source: 3K."ission estimate February 1977..;ne 1977

UNITED REPUBLIC OF CAMEROON

FEEDER ROADS PROJECT

First Year's Feeder Road Improvement Program

Province and District Road Name Road Road Road Lenath Remarks

no Standard kmNorth-West To be improved- Bamenda (Mezam) pinyin-Bali 1 Class II 10.4 by C.D.D.

Pinyin-Kontoko 2 " 6.3Pinyin-Santa Mbu 3 " 15.2Santa-Estate Awing 4 " 8.6

Sub-Total Bamenda 40.5

- Nji-ikom (Metchum) Njinikom-Anyajua 5 " 10.3Anyajua-Mbezenaku 6 " 29.7

Sub-Total Ninikom 40.0

Grand Total North-West 80.5

West To be improved- Mifi Bandjoun-Bansoa 51 Class I 15 by MINEH

Bamendjou-Langou 49 " 10 "

Kena-Bankadjou 31 " 20Bankadjou-Baju 32 10Tyo-Bamafo 15 " 15

Sub-Total Mifi 70

- Bamoun Koutaba-Kouden - 28

Sub-Total Bamoun 28

- Menoua Balele-Toufem 62 15Fombap-Foutsa-Toula 65 " 8Fomopea-Fokwe 63 " 15Dschang-Foutsa-Toula 73 " 20Bafou-Bangang (via 78 " 12Balenying)

Sub-Total Menoua 70

- Bamboutos Bamendjina-Galim 7 " 58Estate Roads

a'(Dl-'

province and District Road Name Road Road Road Lencrth Remarksno Standard km

To be improved- Bamboutos (cont'd) Ngossong-Bougeka-Bati 24 Class I 4 by MINEH

Nkieneghang-Bati 18' 4Bakalou-Bati Road 19 2Bamendjing-Mt Fouoya 11 9

Sub-Total Bamboutos 77

Grand Total West 245

East

Angossas-Zuine-Mboma 08 Class I 20Ngoap-Nguelemendouka-Mbet 09 70Djende-Bika 113 33

Doumaintang-Oubliam-Baditoum 116 29Sub-Total Class I 152

To be improvedNdjimbou-Bengoua 121 Class II 6 by the ZAPINgoumou-Old Village 122 2Badouma-Djelzok 123 2Aminemenkoud-Zilly 124 4

Ambaka-Metsoumb 221 7Bagoloul-Djankel 222 5Djokoundi-Djow 223 9Ankom-Agoamba 224 4Kek-Mpalamedja 225 7Npoundou-Mbakou 226 9

Sub-Total Class II 55

Grand Total East 207

t- -

Province and District Road Name Road Road Road Length Remarksn° Standard km

Adamaoua

Dibi Tournigal Access tracks Access 150 To be improvedtracks by SODEPA

Grand TotalNorth West 80.5

West 245.0

East 207.0

Adamaoua 150.0

TOTAL 682.5

Source: Mission estimate February 1977June 1977

XDIJ.a

UNITED REPUBLIC OF CAMEROON

FEEDER ROADS PROJECT

Tentative Second Year's Feeder Road Improvement Program

Province and District Road Name Road Road Road Length Remarks

no Standard km

North-West To be improved

Njinkoum Kikfuni-Mbwene 7 Class II 11.9 by C.D.D.

Sub-Total Niinkoum 11.9

- Kumbo (Bui) Mbiami-Mbo Nso 8 " 33.9Mbo Nso-Ntaba 9 14.4Jikijem-Ibal 10 12.9

Sub-Total Kumbo 61.2

Grand Total North-West 73.1

West To be improved

- Bambouto Babadjou-Mt Bambouto 9 Class I 15 by MINEHMendosa-Bawo 17 " 5 "

Balatchai-Bamaka-Nzindeng 20 18 "

Old Babadjou Mt Bamclo 23 " 8

Sub-Total Bambouto 46

- Menoua Bamendou II-Beleving 72 " 15Bafou-Fozimbong (Eossimoudi)66 " 25Bafou-Eossimoudi (Ntruetetse)76 20

Dschang-Baloum (Bamenda II) 71 " 40

Sub-Total Menoua 100

- Mifi Bangon-Kamna 44 7 3'

Baju-Tomdjo 33 20Tamdjo-Djoue 34 " 30

Bandjoun-Bamessing 36 10

Bamessing-Kena 37 " 16

Sub-Total Mifi 83

0

Province and District Road Name Road Road Road Length Remarks

n° Standard kmTo be improved

- Haut Nkam Banka-Bana (Bafeko) 105 Class I 15 by MINEH

Banfeko-Bokassa-Bana 110 II 15 "

Bafang-Babwanko (Banka) 115 " 20 asSub-Total Haut Nkam 50

Grand Total West 279

EastAbong-Mbang-Bagbetout 07 " 48 laNguelemendouka-Doume 010 " 76N'Ka-Azomekut-Esseng 111 " 48

Sub-Total Class I 172

non identified - Access tracks 59 To be improvedby ZAPI

Sub-Total East 231

Grand Total 583.1

Source: Mission estimate February 1977June 1977

(D

o

Table 11Page 1

UNITED REPUBLIC OF CAMEROON

FEEDER ROADS PROJECT

Tentative Third and Fourth Years' Program

Province and District Road Name Road Road RoadNo Length Standard

North West

non identified - 147 Class II

West

- Mifi Bafoussam-Menzi II 39 10 Class IBaham-Bangou 52 20 "Baham-Wambo-Bangou road 53 15 iNijinga-Ndenda-Tesse-Bandjoun 40-41 15 "Bangou-Bandenkof-Famgoun II 45 20Batie-Bamendjou-Baham-Bawan-Noun 46-48 50Bangam-Road 49 50 10

Sub total Mifi 140

- Bambouto Bamendjing Mkt.-Fouoya-Ngoyo-Prov. Border (Ndop) 16 12Mifi Junction-Prov. Border (Ndop) 3 30Bangang Mkt.-Nzin 8 20Mbefou-Bati 13 10Bamesso-Bagam 10 8Bangang-Balena-Balessing 14 4Maila-Bawa 21 10Balekang-Bamendjou Mkt. 4 8Galim-Tampanam-Fouoya 12 20Bamelo-Toumaka 22 3Bamendjinda-Bagam 15 10Balaloum-Mifi Nord 2 8Bamendou-Balegmo 5 3Bafangmo-Blamessingue-Mbouda 6 10 "Mendossa-Bawo 17 5

Sub total Bambouto 161

- Menoua Bansoa-Baloum 75 10Fomopea-Ndoumburo 79 10Fokoue-Bamendou 80 20Bafou-Banggang (West Route) 77 10Bafou-Road 80 81 10Fongo-Ndeng-Fondonnera 67 15

Sub total Menoua 75

Grand Total West 376

Table 11Page 2

UNITED REPUBLIC OF CAMEROON

FEEDER ROADS PROJECT

Tentative Third and Fourth Year Program

Province and District Road Name Road Road RoadNo Length Standard

East

Kak I-Zoume-Ngoap 112 12 Class IIMakok-Ezambe-Ngouong-Azomekout 114 17 "Lamba-Baditoum-Kouambang 115 19 "Samba-Kak 117 6 "Messague-Zembe II-Mparagnang 118 15 "Akilbenza-Koumbou 119 13 "Nguelemendouka-Ebah-Kak III 1110 20 "Lamba-Miambo 1111 6non identified 205

Sub-Total Class II 313

non identified 99 Accesstracks

Grand Total 412

Source: Mission estimate February 1977June 1977

TABLE 12

UNITED REPUBLIC OF CAMEROON

FEEDER ROADS PROJECT

Maintenance Standards for Roads

I. The minimum acceptable maintenance standards for feeder roads.

(a) roadway will be kept over width to which it was constructed,with adequate camber to ensure drainage, and with sufficientbearing capacity to ensure that the road is basically all-weather (only to be closed for short periods after heavy rain),and potholes and larger corrugations will be eliminated;

(b) drainage will be kept without obstructions to original standardor improved to ensure that: lateral ditches and cross-drainage structures are able to carry water to outlets orrecipients without causing erosion; and

(c) drainage structures (culverts and bridges), retaining wallsand slope protection, will be maintained or improved toensure structural soundness and adequate protection againsterosion and scour.

II. To attain the above standards, at least, the following works will

be carried out:

(a) one light grading annually for farm access roads and two for

Class I and Class II feeder roads;

(b) elimination of corrugation by a drag at intervals depending onsoil conditions and traffic;

(c) repair of potholes with good materials; and

(d) routine culvert and drainage repairs and clearing.

Table 13

UNITED REPUBLIC OF CAMEROON

FEEDER ROADS PROJECT

Roads to be Included under the Proposed Third Highway Project

Road Name Road Length Type of WorkNo km

1. West Province

Balaloum-Mifi Sud-Nkajou 1 18 construction (4 km)improvement (14 km)new bridge

Djone-Bandjoun 35 30 improvement

Bandjoun-Bangou-Bajou 43 25 improvement

Fongo-Ndeng-Dschang 70 15 improvement

Dschang-Fondonnera-Bamengui 61-63 120 construction (72 km)improvement (48 km)

Sub-total 228

2. ZAPI East Area

Bonis-Doume-Abong-Mbang 109 improvement

3. North-West Province

Ring Road 200 improvement

Grand Total (1, 2, 3) 537

Source: Consultant O'Sullivan and Partners, November 1976Mission, February 1977

UNITED REPUBLIC OF CAMEROON Table 14

FEEDER ROADS PROJECT

Eouipmoent to be Porchas..d for Improvetont and Maintenance of Feeder Road(CCFA Million) 1/

Nomber of Unit Unit Coats Total Costa

Item Equipoent Public Works Brigade Comaunity Dev. Brigade ZAPI EastBrigade To- Lo- Tax Foreign Total Local Tax Foreign Total

Improvement Maint. Improveoent Maint. Improv. tal cal

I BuIldoner 140 HP W/Ripper 4 1 5 1.2 5.6 21.9 28.7 6.0 28.0 109.5 143.5

2 Grader 120 NP 8 3 1 1 1 14 0.8 3.7 16.3 20.8 11.2 51.8 228.2 291.2

3 Wheel Loader 1.2 m3 100 HP 4 4 0.6 3.2 11.0 14.8 2.4 12.8 44.0 59.2

4 Self-prop. rubber tired roller 22T 4 4 0.6 3.9 12.0 16.5 2.4 15.6 48.0 66.0

5 Agricultural tractor 65 HP 4 4 8 0.2 1.5 3.0 4.7 1.6 12.0 24.0 37.6

6 Pneumatic tired tracted roller 1 1 2 0.2 1.5 3.0 4.7 0.4 3.0 6.0 9.410/12/T

7 Bottom dump trailer 8 4 12 0.1 0.1 0.7 0.9 1.2 1.2 8.4 10.8

8 Loading ohovels 2 2 4 0.1 0.1 0.4 0.6 0.4 0.4 1.6 2.4

9 Grader attochoent 1 1 2 0.2 1.0 2.2 3.4 0.4 2.0 4.4 6.8

10 Tipper truck S m3

20 1 21 0.2 2.2 4.4 6.8 4.2 46.2 92.4 142.8

11 Water truck 5 m 3 W/Pwp 8 8 0.2 2.5 4.5 7.2 1.6 20.0 36.0 57.6

12 Water Bowoer 3m3

1 1 2 0.2 0.2 1.3 1.7 0.4 0.4 2.6 3.4

13 Fuel tanker 4 4 0.3 1.8 5.6 7.7 1.2 7.2 22.4 30.8

14 Service truck 4 3 1 8 0.2 1.1 3.5 4.8 1.6 8.8 28.0 38.4

15 Light truck 1.5 T. 2 1 3 0.1 0.4 1.7 2.2 0.3 1.2 5.1 6.6

16 Mobile Workshop 4 4 0.5 3.3 10.2 14.0 2.0 13.2 40.8 56.0

17 Water Pump 50 3/h 4 4 1 9 0.1 0.2 0.3 0.9 1.8 2.7

18 Portable concrete mimer 4 5 1 10 0.2 0.1 1.1 1.4 2.0 1.0 11.0 14.0

19 Generator 6 KVA 4 4 0.1 0.2 0.8 1.1 0.4 0.8 3.2 4.4

20 Chain Say 2 5 7 0.01 0.04 1.15 0.2 0.07 0.28 1.05 1.4

21 4 Wheel drive vehicle 8 1 1 10 0.1 1.4 1.6 3.1 1.0 14.0-e 16.0 31.0

22 Compresoor with toola 1 1 2 0.2 1.0 2.8 4.0 0.4 2.0 5.6 8.0

23 Pick-up 4 4 0.1 0.9 1.3 2.3 0.4 3.6' r 5.2 9.2

24 Light vehicle 8 2 2 12 0.1 0.9 1.3 2.3 1.2 10.8 15.6 27.6

Total 42.77 257.18 760.85 1060.8

1/ An of February, 1977

Source Miniotry of Equipnent and Houting, February 1977 nisnion

June 1977

CAMEAtaJNFEEDER ROADS PROJECT

Table 19Proje.t Copst 21/

(CFAF Mill-So)

1977 1978 1979 1980 1981 198 L T F ToetaL T F Totel L T F ratiL7T F L 7 F otal. F Ttl T F Total

Equipeent Si- - 8257722 1060…- -…- 51 257 722 1900Purch.s.

Eq.c9p-t Him I…… …… 1 3 8……… - - - -

Spare parts. 7 11 19 37 30 44 74 148 28 42 7014 2 2 2 14a 20 30 so 100 113 109 293 5c"F.el & Lubri-ets a 4 9 15 28 23 34 59 116 21 35 62 11 37 36 69 142 15 27 61 103 84 141 266 491Local Staff 2 - - 2 15 - - 21 57 - - 87 94- - 9 _ _ 86 95 - 95 402 - - 402Materials . - - 8 920 31 24 21 80 125 2421 8012524 21 8 So 125 18 15860 84 98 84 320 500ciil Works - - 10 4 11 25 44 18 S0 110 5 8 9 1 ~j 1 8 10 3 0 3 8 11 8 8 2contracted

4 6 5 1 0 1 5 10 3 D 3 5 11 6 8 2

Techni.lceAssist. 5 1 18 22 14 I 34 49 25 3 70 88 14 1 34 49 3 - 7 10 - - - 82 9 180 228Office Hi- &reEquip. - - - - 10 4 11 P9 9 2 9 20 9 2 9 20 8 1 4 10 2 1 2 s 35 10 35 80Warkshop Eq.cpeest - - - - I 3 5 7 2 2 36 39 - - - -- 8 3 31 44and TooLs

St.dues - - - - 3 - 17 20 3 - 17 20 -…- -3 4Sub-total 8 1 115 24 517 '92 4 3031 25 123 88 1764 1234 117 708 656 223 1115 27 83 8 205 4? 11059 73 2041 3833Contingencies

- Physi.allO 1 - 1 2 18 29885 130 28 12 39706 23 12 31166 22 119 81 188 21 47 106 204 380- costs.

l978 Equip.0 & - - 8 27 74 110…-- - -- -- - - -- - 9 27 74 110Spare parts 105

Other Shoes.

1977(.819% -…

19% (1.09.1,045-1) - - - 9 4 14 27…-K.…9 40 14 27is %

1979 (1.0&1,045-1)…83 28 87 1688…93

28 87 18824 %1980j (1,0031,04-1)…-

- 70 38 9204…70 38 96 20435

1981 (1.09Pc1.08…9 81221 - - - - 9 0 1 S1l.04-1) 45%9

,2219 8 1 51992 (1.09 c1. 08273

4 15 7 8 8 151,04-1) 45 536 8 9 5 6 8 5

Sub Total 2 3 34 80 73 98 8 40 128 244 93 80 12 '7 '?T W 14( 312 93 d4 09 1242 413 1251 72 1336Creed Tatsl 10 1 17 ~28 1191 3211027[1570 331 18 514 1098 1327 187? 2 1926 33 744492 781831 1 1472 1984 12713 5169

F .Foreign

1/ As of F.bruary, 1977

Table 16Page 1

UNITED REPUBLIC OF CAMEROON

FEEDER ROADS PROJECT

IMPLEMENTATION SCHEDULE

A C T I V I T Y 1977 1978 1979 1980 1981 1982

Institution Building

- Establishing Feeder RoadUnit (3/30/78) xMINEH EASTUnit (6/30/78) xMINEH WESTUnit (6/31/78) xZAPI East Unit(6/30/78) xNorth West Develop.Unit (6/30/78)InterministerialCommittees (5/30) x x x

- Budget Allocations: General x x x x x x

Technical Assistance and Studies

- Recruitment of Team Leader andTraining Specialist (10/30/77) x

- Start Maintenance funds study6/1/78 x

- Completion " it12/31/78 x

- Discussion " " "1/31/79 x

Procurement of Equipment

- Prepare bidding documents 12/31/77 x- Call for bids 1/31/78 x- Evaluate bids 3/31/78 x- Select suppliers 4/15/78 x- Approve contracts 4/30/78 x- Deliver Equipment 11/30/78

Program Preparation

- Preparation of Yearly program -- Present program to interminis.

committee (5/30) x x x x

Program Execution

- EAST MINEH Unit ------------------------------------ WEST MINEH Unit ------------------------------------ ZAPI EAST Unit ----------------------------- NORTI WEST Development Unit ------------------------------------ DIBI-TOURNIGAL Works ---------- Routine maintenance __ r-------- r ----

Source: Mission, August 1977

UNITED REPUBLIC OF CAM~EROON

FEEDER ROADS PROJECT

Works' Schedule of Implementation

Provinces 1978 1979 1980 1981 1982 Ta al Remarks

North-West ' 73 | 300 1 C.D.D. Brigade

West ,245 279 '- 200 zc 2c f 930 3 MINEH Brigades

East Main Feeder Roads : 152 tH 172 : 163 w 160 647 1 MINEH Brigade

Access track rv | ' 55 }so 59 03 59 o 3'S o 150 1 ZAPI Brigade0 I ~~~~~~~I c

I I I rs l D l .rs '_ X:amaoua 1 * 150 1 SODEPA Brigade

Total (km) '682 583 497 468 2,230

Source: MissionJune 1977

OQ u3

r'3D i-

a,D

UNITED REPUBLIC OF CAMEROON

FEEDER ROADS PROJECT

Financing of Project Costs(000,000' CFAF)

Government Financing Bank FinancingGrand Total Bank

Local Tax Total Foreign Including Tax Financing

EquipmentPurchase 81 257 338 722 1060 68Hire 1 1 2 3 5 60Spare parts 113 169 282 283 565 50Fuel and Lubricants 84 132 216 215 431 50Local Staff 350 - 350 - 350 0Materials 96 84 180 320 500 64Civil Works contracted 171 62 233 187 420 46Operating costs formaintenance 52 9 61 51 112 46Technical assistance 62 6 68 160 228 70Office hire and Equipment 35 10 45 35 80 44Workshop Equipment andTools 8 3 11 31 42 74Studies 6 - 6 34 40 85

Sub Total 1059 733 1792 2041 3833 53

ContingenciesPhysical 106 73 179 204 383 53Price variations 307 178 485 468 853 43

Sub total 413 251 664 672 1336 46

Grand total 1472 984 2456 2713 5169 52 a

(US$ million) (6,007) (4.016) (1002) (11073) (2L075)

(Rounded) (6,00) (4,000)(10X000) (11100) (2L100)

Source: Mission estimateAugust, 1977

Table 18

UNITED REPUBLIC OF CAMEROON

FEEDER ROADS PROJECT

Estimated Schedule of DisbursermentsUS$ Thousand

Disbursements

IDA Fiscal Year Quarter During Quarter Cumulative Undisbt_rsed Amount

1978 123 200 200 10,9004 400 600 10,500

1979 1 400 1,000 10,1002 1,000 2,000 9,1003 1,900 3,900 7,2004 400 4,300 6,800

1980 1 200 4,500 6,6002 400 4,900 6,2003 400 5,300 5,8004 600 5,900 5,200

1981 1 200 6,100 5,0002 700 6,800 4,3003 700 7,500 3,6004 700 8,200 2,900

1982 1 200 8,400 2,7002 600 9,000 2,1003 600 9,600 1,5004 500 10,100 1,000

1983 1 200 10,300 800

2 500 10,800 300

3 300 11,100 0

Sourcce: Mission estimate

Jure, 1977

Table 19Page 1

UNITED REPUBLIC OF CAMEROON

FEEDER ROADS PROJECT

Transport Cost Savings to Non-Agricultural Traffic

1. WESTERN PROVINCE

A. Network Characteristics

Average Daily Traffic 5 15 25

Length of Roads with Indicated 200 380 350

traffic (km)

Average Weighted Vehicle 30.0 19.5 16.5operating cost savings/km(CFAF net of taxes)

Annual Savings 54,700 106,763 150,563

(CFAF/km)

B. Total Annual Savings

Year 1979 1980 1981 1982 1983

Composition of NetworkCompleted (im)

ADT 5 35 70 155 200 200ADT 15 50 100 200 380 380ADT 25 150 300 350 350 350

Total Annual Savings

(CFAF million) 14.8 46.7 77.9 107.9 126.8(US$ Thousands) 59.5 186.6 311.7 431.7 507.1

II. ZAPI EAST AREA

A. Network Characteristics

Average Daily Traffic 5 10 15 20

Length of Roads with Indicated 280 180 120 60traffic (km)

Average Weighted Vehicle 28.6 25.3 20.2 17.5operating cost savings/km(CFAF net of taxes)

Annual Savings 52,195 92,345 110,595 127,75()(CFAF/km)

Table 19Page 2

B. Total Annual Savings

Year 1979 1980 1981 1982 1983

Composition of NetworkCompleted (im)

ADT 5 - 60 140 280 280

ADT 10 - 80 160 180 180

ADT 15 100 120 120 120 120ADT 20 60 60 60 60 60

Total Annual Savings

(CFAF million) 9.4 26.3 41.0 55.1 63.4(US$ Thousands) 37.4 105.4 164.1 220.4 253.6

Source: Consultants and Mission's Estimates, February, 1977

Table 20

UNITED REPUBLIC OF CAMEROON

FEEDER ROADS PROJECT

Results of Sensitivity Analysis for Agricultural Projects

(Economic Returns %)

Project ProjectBasic Cost BenefitsInputs 20% - 20%

ZAPI East Project 27 22 21

Western Highlands Project 20 16 13

ANNEX 1

UNITED REFJBLIC OF CAMEROON Page 1

FEEDER ROADS PFOJECT

The Project Area

C H A R A C T E R I S T I C S ZAPI EAST AREA W E S T E R N H I G H L A N D S ADAMAOJA

West Province North-West Province

1. Geographical

Location East Province around Nguelemen- Around Bafoussam. Around Bamenda. Dibi-Tournigal area,neardouka. Ngaoundere.

Physical Features Generallyrolling terrain but High altitudes,between 1000- High altitudes,over 1500 m Flat terrain on north-centralmarshy. 1800 m. Plateau.

Vegetation Forest zone. Forest,but completely cultiv Furest,but extensively cul- Savannah.

Size 13,500 km2

ted 3000 km2

tivated n.e. 600 km2

2. Population

Total and Density 75,000 , about 30/kM2 660,000 , average density 350,000 , average density 6,100 average 10/km2

200/km 2 . 50/km 2

No. of farm families 16,500 40,000 20,000 n.a.

Characteristics Small scale subsistence Bamileke group, one of th Bamileke Hausas, excellent herdsmanfarmers most industrious in Cameroon

3. Agriculture

National Importance Potentially good cocoa and Produces over two-thirds Produces arabica and robus- High potential livestockcoffee area - Supplies Yaounde country's arabica coffee ta coffee, but less impor- area and focus of SODEPAareaplantain tant than West Province

Main cash crops Coooa and coffee Coffee, both arabica G Arabica and robusta coffee Livestockrobusta

Main Foodcrops Plantain, cassava, maize Maize, groundnuts, manioc Maize, potatoes Millet and sorghumMacabo potatoes

Problems Primitive farning methods and Excessive pressure on land, Rather primitive cultivation Scarce population, poorGeneral poverty rather primitive cultiva- methods access.

tion methods

4. Road Network

Extent Adequate in extent except farm Adequate in extent except Adequate access into the areaaccess access to new agricultural Same as for the West Province but intra-zone practically

estates non-existant. Tracks often toonarrow to permit four-wheeldrive vehicles

ANNEX 1Page 2

UNITED REPUBLIC OF CAMEROON

FEEDER ROA]S PROJECT

The Project Area

C H A R A C T E R I S T I C S ZAPI EAST AREA W E S T E R N H I G H L A N D S ADAMAOJA

West Province North-West Province

Condition Poor condition of drainage str- Major problem is in$ufficient Same as for the West n.applicableuctures, off-shoot drains, sur- drainage structures and slippe- Provinceface condition of steep grades ry steep slopes. Mtst roadsG inadequate marshland cros- impassable during rainy seasonssings

Road Improvements Clearing, regravelling, repair Repair & reconstruction of As for West Province Track widening, regravellingProposed or reconstruction of drainage drainage structures, provision as necessary and provision of

structures offshoot drains and extensive adequate drainage structuresregravelling

5. Transport & MarketingMarketing of cash crops by Marketing of cash crops by Marketing by Bamenda Coope- Livestock marketing by indivi-ZAPI, foodcrops by private UCCAO & foodcrops by private ratives Association dualranchers, foodcrops bytraders traders individual farmers,Poor feeder roads resulting in Poor roads and ther*fore access Poor roads and poor access Transporting cattle on thehigh transport costs and infre- preventing farmers from incree- lead to high transport costs hoof limits number of marketsquent supply of agric.inputs sed production produce spoilage S cons- accessible to ranchers andthere oreand extension services & produ- traints on increased produo- limits possible expansionce spoilage tion

6. Elements of Agricul-tural Projects

Objectives Increase disposable income of Increasing producti~n of foodsome 12,000 fare families in crops, coffee, riae G smallthe ZAPI East Area by increa- animals through the!introduc-sing labor 6 land productivity tion of modern agri(ultural& decreasing marketing costs methods, credit & efficient

US 5 million marketingComposition & Costs Credit 2.0 Credit 6.0

Extension Services & 1.0 Extension services 1.5training & research Details not available Details not availableProcessing, storage & 2.8 Bottom lands develoF.O.Smarkets Small livestock 2.0Fisheries 0.5 Water supply 0.9Technical assistance 0.5 Seed production 5.2Adaptive research 0.7 Training 2.4Health, water supply 0.8 Erosion prevention 0.5Retail marketing 0.9 Service centres 3.2Institutional support 0.5 Follow-up 0.8Contingencies 3.0 Contingencies 7.3

12.7 30.3

Economic return Estimated 27% Estimated 20% Not available About 18 %Sensitivity Not available Not available Not available Not available

ANNEX 2

UNITED REPUBLIC OF CAIIEROON

FEEDER ROADS PROJECT

Draft Terms of Reference for Consultants

I. INTRODUCTION

1. The Government of Cameroon, with the assistance of the World BankGroup, is carrying out a four-year feeder roads improvement and maintenanceproject. The consulting services required to assist the Government inexecuting the project are outlined below.

II. OBJECTIVES

2. The purpose of the services are generally to assist the Ministry ofEquipment and Housing (MINEH), the Department of Community Development (DCD)and the ZAPI East Organization, hereinafter referred to as the executingagencies, to:

(i) establish a Feeder Roads Unit within the Roads Department (DR) ofMINEH;

(ii) purchase highway equipment, tools and spare parts and suppliesfor operations included under the project;

(iii) prepare bidding documents for work to be done by contractors;

(iv) implement a four-year program for improvement, rehabilitationand maintenance of about 2,100 km of feeder roads in theWestern Highlands and in the ZAPI East area;

(v) design and implement a program for the training of DR and DCDstaff, including but not limited to engineers, road technicians,mechanics, equipment operators, chiefs of brigades and roadforemen; and

(vi) prepare a second-phase program for feeder roads improvement,rehabilitation and maintenance.

III. SCOPE OF SERVICES

A. General

3. The consultants shall advises and assist the executing agencies inthe performance of all engineering and administrative work, organization and

ANNEX 2Page 2

financial analyses, personnel and all related work herein described asrequired to attain the objectives in Section II above. In the conduct ofthis work, the consultants shall cooperate fully with the executing agencies.

B. Establishment of the Feeder Roads Unit

4. The consultants shall assist the DR to establish a Feeder Roads Unitat its headquartes in Yaounde and provide operational support for the Unitduring the duration of consultants services. They shall advise on the staff-ing of the Unit and the organization of its functions and provide on-the-jobtraining for the Unit's key staff.

C. Procurement of Equipment and Supplies and Award of Tender to DomesticContractors

5. The consultants shall assist the DR with the procurement of equip-ment, spare parts and workshop tools under the project including those destinedfor the DCD and the ZAPI East Organization and with the award of bids for worksto be done by domestic contractors. Specifically, they shall assist in (i)preparation of bidding documents, (ii) call for bids, (iii) bid analysis andthe selection of suppliers and contractors, and (iv) reception of equipment,spare parts and tools and supervision of works by contractors.

6. The consultants shall assist the executing agencies in the purchaseof materials and supplies, including cement, reinforcement steel, culverts,and fuel.

D. Implementation of the Feeder Roads Program

7. The consultants shall advise and assist the executing agencies inthe implementation of the four-year feeder roads program. They shall, interalia, assist in:

Preparation of Detailed Annual Programs: DR will receiveannually a list of feeder roads from the Provincial Inter-ministerial Committee of the West Province, North-WestProvince and East Province. The consultants shall assistthe DR in preparing detailed physical and financial plansfor the works to be done.

Construction of Workshop at Nguelemendouka: Consultantsshall assist the DR with the preparation of plans for theworkshop, tendering to local contractors and supervisionof construction. Consultant shall also assist the DRwith preparation of a list of necessary workshop equip-ment and tools and their purchase.

Execution of Roadworks: The consultants shall assistthe executing agencies in executing the annual workprograms ensuring (i) adequate efficiency and quality

ANNEX 2Page 3

of works, (ii) adequate analytical acconting andreporting procedures and (iii) well-directed on-the-job training for local staff including counterpartengineers and technicians.

Engineering Evaluation: The consultants shall assistthe DR in establishing and implementing a system formonitoring the execution of the feeder roads program.Activities will include (i) evaluating the productivityand costs of the force account brigades and of localcontractors mainly engaged in drainage structures,(ii) monitoring the quality of operations and therate of deterioration of project roads in relation toconstruction materials used, rainfall and traffic,(iii) identification and analysis of operationaldifficulties, (iv) estimating traffic on the projectroads both before and after the improvements, and(v) depending upon information derived from (i) through(iv), modifying methods of operation, equipment use,road standards for feed-back into the programs forthe subsequent years and as a guideline for the follow-up feeder roads program.

E. Training of Local Personnel

8. The consultant shall assist the executing agencies in designing andimplementing a training program for local personnel including engineers, roadtechnicians, training specialists, mechanics, equipment operators, chiefsof brigades and road foremen. This training should be additional to andcoordinated with any provided by local representatives of equipment suppliersor the Ministry of Equipment's training school at Douala, Yaounde and Bueaand should cover more than the personnel needed to implement the feeder roadprogram. Consultants shall propose definite training targets to be met witha clear indication of schedules. On-the-job training will be emphasised.

F. Preparation of Second Phase Feeder Roads Program

9. The consultants shall assist the Feeder Roads Unit to preparea follow-up feeder roads development and maintenance program including aworking program for 1982/83 and an outline program for the following twoyears. It is expected that short-term consulting services, separate fromthose contained herein, will assist DR in providing some inputs including (i)a condition inventory of selected high priority feeder roads, (ii) evaluationof the works to be performed on the roads, (iii) an evaluation of the requiredresources to accomplish the works, (iv) the estimated cost of these resourcesand (v) soci-economic evaluation of the program. The consultants shall onthe basis of these elements and any necessary modifications thereof assistthe DR in defining the strategy for the follow-up program.

ANNEX 2Page 4

IV. STAFFING

A. Personnel, Qualifications and Outline Duties

10. The consultants' team shall be composed of:

I Highway Engineer (Chief of Team)1 Highway Engineer2 Road TechniciansI Mechanical Inspector1 MechanicI Training Specialist

11. The minimum qualifications and outline duties of the individualstaff are set forth below.

(1) Highway Engineer, Chief of Technical Assistance Team (36 months)

(a) Qualifications: Civil Engineer with minimum 10 yearsprofessional experience in (i) planning, constructionand supervision of roadworks, including low standardroads; (ii) public works administration and (iii) per-sonnel management and training.

(b) Duties: (i) overall responsibility for work of thetechnical assistance team; (ii) assist in planning,directing, supervising and monitoring implementationof the feeder road program in close cooperation withhis counterparts; (iii) assist in preparation andanalysis of bids for equipment, spare parts andworkshop tools, and supplies to be purchased underthe project; (iv) assist in developing detailed annualphysical and financial plans for feeder roads construc-tion; (v) assist in the recruitment and training ofpersonnel for the road programs and in particularprovide on-the-job training for his counterpart andother professional personnel; (vi) implement adequateaccounting and reporting procedures, and (vii) provideengineering support for the ZAPI East Brigade.

(2) Highway Engineer/Technicians (58 man-months total)

(a) Qualification: Civil Engineers or Road Technicianswith minimum 8 years experience in (i) constructionand maintenance of roads including low-cost roads;(ii) road surveying, and (iii) operation ofmechanived road brigades.

ANNEX 2Page 5

(b) Duties: (i) assist the Chief of Team in developingthe detailed annual road programs (ii) plan and directthe work of road improvement brigades ensuring adequateefficiency and quality and (iii) conduct on-the-jobtraining for local staff to ensure that daily operationscan be competently handled by Cameroonians after consul-tants' departure.

(3) Mechanical Inspector (Total 12 man-months)

(a) Qualification: (minimum 10 years experience) should beexperienced in the inspection, repair and operation ofhighway and workshop equipment and should be capableof training equipment operators and mechanics.

(b) Duties: (i) assist the Chief of Team in equipmentprocurement, (ii) provide overall responsibility forequipment maintenance and repair and (iii) provideon-the-job training for local mechanics.

(4) Mechanic (Total 18 man-months)

(a) Qualification: (i) mechanic with minimum 8 years ofprofessional experience at least 4 years in maintenanceand repair of road construction equipment in a develop-ing country.

(b) Duties: (i) plan and direct equipment maintenancefor two road construction brigades, and (ii) provideon-the-job training for local mechanics.

(5) Training Specialist (Total 9 man-months)

(a) Qualification: 8 years professional experience astraining specialist. Should have experience in design-ing and supervising training programs for mechanics andequipment operators, chiefs of brigades, foremen, etc.

(b) Duties: (i) design comprehensive training programs forroad construction and equipment maintenance personnel,(ii) supervise implementation of above training programs,(iii) train counterpart Cameroonian training specialist.

ANNEX 3

UNITED REPUBLIC OF CAMEROON

FEEDER ROADS PROJECT

Project Monitoring

A. Objectives and Responsibility

1. The objectives of the monitoring system are:

(a) to evolve on a continuous basis the economic, social andengineering aspects of the project to permit, if necessary,modification of the project during implementation andduring the preparation of the follow-up feeder roadsproject to maximise the output of the project;

(b) to permit the assessment of the long-term impact of thefeeder roads, as part of the integrated rural/agriculturaldevelopment projects and on the socio-economic developmentof the project areas; and

(c) to test some of the assumption underlying the engineeringdesign of the project, including the productivity ofdifferent operations and the appropriateness of the designstandards recommended.

2. Since the bulk of the socio-economic aspects concern the ZAPI EastRural Development Project and the Western Highlands Agricultural DevelopmentProject, monitoring of these elements will be integrated with the monitoringsystems of those projects. Monitoring under the feeder roads project willfocus on (i) the engineering concepts and parameters and (ii) the evaluationof traffic forecasts and evolution of transport costs. Both (i) and (ii)will be the responsibility of the Feeder Roads Unit assisted by the technicalassistance staff.

B. Methodology

3. Economic Aspects: Activities will include collecting data periodi-cally on the items below to permit analysis of the economic evolution in theproject area:

(a) measuring traffic flow on statistically selected roads toestablish growth and evolution in traffic composition;

(b) for the project roads, collecting data periodically on (i)the size of population in the influence areas, (ii) agri-cultural crop production and the proportion marketed,(iii) investment in economic and social fields, and (iv)evolution of farm-gate prices for different commodities; and

ANNEX 3Page 2

(c) collecting and updating information on vehicle operatingcosts and transport charges on project roads.

4. Engineering Aspects: Activities will include:

(a) evaluating the productivity and costs of force accountbrigades and local contractors mainly engaged in drainageworks; and

(b) evaluating the quality of works and the rate of deterio-ration of project roads in relation to materials used,rainfall, traffic and maintenance effort and techniques.

5. Reporting

The Feeder Roads Unit will assemble the results of the monitoringoperations and submit the consequent modifications recommended for review bythe Bank at the same time as the Bank reviews the annual work programs.Within six months after project completion, the Unit will submit a reportsummarizing the results and recommendations of its monitoring effort for Bankreview. The results will be updated and submitted to the Bank for review twoyears after project completion.

ANNEX 4

REPUBLIC OF CAMEROON

FEEDER ROADS PROJECT

Summary of Illustrative Economic Analysis

Road Name: Fombap-Fontsa Toula (15 km)

Economic Data

Estimated Road Improvement Costs: US$250,000Average Savings in Annual Road Maintenance: US$ 900Traffic Volume (non-Agricultural): 25 vpdWeighted Average Vehicle Operating Cost Saving: US184/km/veh

net of taxes

Vehicle Operating Cost (VOC) Savings:

Year 1979 1980 1981 1982 1983 1984 1985 1986 1987 1988

Savings(US$) 24,600 25,600 27,000 28,300 30,000 31,500 33,100 35,100 36,900 38,700

Total VOC and Road Maintenance Savings

Year 1979 1980 1981 1982 1983 1984 1985 1986 1987 1988

Savings(US$000) 25.4 26.5 27.9 29.2 30.9 32.4 34.0 36.0 37.8 39.6

First Year Returns (FYR) based on voc + maintenance savings 10.2%

Agricultural Production Data

2Influence Area of Road = 70 km

Base Year Aggregate Marketable Production: 2500 tons mixed (coffee, maize,groundnuts, manioc)

US$112,000

Incremental Production attributable to Road Investments:

Year 1979 1980 1981 1982 1983 1984 1985 1986 1987 1988

Savings(US$) 8,500 10,900 14,300 15,800 15,800 15,800 15,800 15,800 15,800 15,800

Reduced Spoilage attributable to Road Investments: $4500/year

ANNEX 4Page 2

Total BenefiLs (voc & maintenance & increased production & reduced spoilage)

Year 1979 1980 1981 1982 1983 1984 1985 1986 1987 1988

Savings(US$000) 38.4 41.9 45.9 49.5 51.2 52.7 54.3 56.3 58.1 59.0

FYR (including agricultural benefits) = 15.4%

Economic Return over 10-year period = 16%

ANNEX 5

UNITED REPUBLIC OF CAMEROON

FEEDER ROADS PROJECT

Guidelines for Selection of Feeder Roads for theSecond, Third and Fourth Years of the Project

Institutions

1. The lists of feeder roads to be included in the second, third andfourth years of the project will be selected in the year preceding the roadworks by the ZAPI East Organization for roads in the East Province, by UCCAOfor the West Province and by BAC for the Northwest Province. ProvincialInterministerial Committees (PIC) to be established within the three provinceswill be responsible for approving these lists.

Procedures

2. The lists of roads included in the tentative second, third andfourth year programs (Tables 9 thru 11) will be used as a basis for selectingroads for the annual programs but will also consider roads not included in

these lists if warranted by changes in the agricultural projects. The annualprograms will be presented to the PIC's for review and approval. The approvedproposals will then be submitted to the Bank (RMWA) for its approval not less

than three months before the scheduled start of work to be implemented underthe year's program. The first of these programs for the 1979/80 constructionseason will be submitted to the Bank by May 30, 1979.

Criteria for Road Selection

3, Roads to be included in any given annual program will be selectedaccording to the criteria described below:

Az Economic Rate of Return (ERR): roads will be ranked according to theirERR. An economic rate of return of at least 10% is required for a roadsection to be included under the program. The ERR will be based on thefollowing quantifiable benefits depending upon the road type as follows:

Category I: This includes roads in areas of existing sub-stantial economic activity. The ERR will be based on road-user savings;

Category II: This includes roads other than those in Category 4

I. The ERR will be based on the sum of (i) road-user savingsto non-agricultural traffic, (ii) net value added to incremen-tal agricultural production and (iii) benefits from reducedproduce spoilage.

ANNEX 5Page 2

B. Needs of Agricultural Programs: subject to the 10% ERR cut-off rateabove, inclusion of roads in the annual program will specifically considerthe needs of the agricultural programs they serve. Thus, for example, aroad providing access to a central seed multiplication facility may be in-cluded in the program in preference to one with a higher ERR calculated bythe methods prescribed under A above.

C. Geographical Coordination of Brigades: subject to the criteria under Aand B above, the inclusion of roads in the annual programs will take intoconsideration the geographical coordination of the road brigades to preventlong non-work travel distances.

Information Requirements

4. The Feeder Roads Unit (FRU) within the Ministry of Equipment will beresponsible for assembling the necessary data to justify the annual programs.The following checklist is illustrative of the input requirements:

Engineering Input: condition inventory; roadworks required;methods of execution and costs;

Transportation Economic Input: Traffic (volume, type, com-position load factor and seasonal distribution) and vehicleoperating costs (of existing and proposed road conditions);

Agricultural Input: existing and future land utilization;existing and future production patterns; without and withproject agricultural production (composition, volume andgross value); without and with project costs of production;farm budget with and without project; farm income with andwithout project.

Sociological Input: population (volume and characteristics)in road's influence area; social ammenities served by road.

CAMEROON

FEEDER ROAD PROJECT

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