Sri Lanka: Eastern and North Central Provincial Road Project

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Lessons

Advance preparatory and procurement actions expedite project implementation.

The feasibility studies, undertaken during the project preparation stage, provided a sound basis for the selection, design, and implementation of the project roads. Particularly, by identifying the roads to be covered and the key design features for each proposed road, these studies facilitated the preparation of contract packages and bid documents and conduct of advance procurement actions that enabled the contracts to be awarded upon loan effectiveness. Overall, these early actions expedited and smoothed project implementation. Building on this experience, project teams can explore using design advances or technical assistance loans to implement most, if not all, of the preconstruction activities before loans are approved. For this project, the processing team tapped the Road Project Preparatory Facility established by the Asian Development Bank (ADB) in 2004 for the government of Sri Lanka to completely undertake the necessary preparatory and preconstruction activities.

Participation by local contractors creates more local ownership and helps develop local capacities.

At the request of the provincial councils, more opportunities were provided for province−based, small−scale local contractors under the phase 2 road packages. In addition to being involved as subcontractors for construction work, these contractors were encouraged to bid for complete packages by reducing the sizes of individual packages in terms of estimated cost. This approach was successful; 3 small local contractors in the Eastern Province and 2 in the North Central Province were able to execute complete packages. This built local ownership of the project and capacity in construction methods and management, which can strengthen the local industry as well as help foster the sustainability of the road network.

Incorporating a performance−based road maintenance contract (PBRMC) in road rehabilitation contracts is effective in promoting the model as an industry good practice.

Although PBRMCs had been introduced before, this was the first project that incorporated the practice in civil works contracts. Under the project, each contractor rehabilitating a road package had to maintain the road for a 3-year PBRMC period. This 3-year PBRMC period assisted both the provincial road agencies in 2 ways. First, it ensured timely routine and periodic maintenance for the first 3 years. Second, it provided adequate time for the agencies to build their institutional and financial capacities to maintain the roads after the initial 3 years. The effectiveness of PBRMCs is reflected in the condition of the roads during the project completion review mission. Except for some sections of a few roads damaged by the monsoon floods in the Eastern Province in 2016, all project roads had remained in good condition.

Proactive interventions to promote stakeholder awareness of relevant Asian Development Bank (ADB) procedures and policies benefit project implementation.

ADB was proactive in carrying out awareness programs for project stakeholders when required. Workshops arranged by ADB on social safeguard policy statements and bid document preparation were helpful interventions. Such workshops contributed in improving project implementation and can be expected to simplify processes in future similar interventions.

Background

The Eastern and North Central Provinces of Sri Lanka were adversely affected by the prolonged internal armed conflict in the country, which ceased in May 2009. The government reestablished the civil administration in the Eastern Province in 2008 and started development activities, including in adjacent provinces, to integrate the socioeconomic development in these provinces with the rest of the country. In line with government initiatives, the Asian Development Bank (ADB) approved in September 2009 a $70 million loan for the Eastern and North Central Provincial Road Project. The project aimed to contribute to improving the transport system in the country. Its intended outcome was improved road networks in the Eastern Province and North Central Province.

The project’s primary output was rehabilitation and improvement of provincial roads, bridges, culverts, and drainage systems. Project roads were selected based on their economic and financial viability and potential in enhancing access to economic and social services, transport connectivity, and poverty reduction, among others. Implemented in 2 phases, the project originally included 11 road and 2 bridge packages in each province; 2 more road packages in the Eastern Province and another bridge package in the North Central Province were later added. Secondary outputs included capacity development of the Eastern Provincial Road Development Department (EPRDD) and the North Central Provincial Road Development Authority (NCPRDA), and improvement of 2 EPRDD offices.

By completion, the project had built or upgraded 385.4 kilometers (km) of provincial roads compared with the 370 km−target. Twice the planned number of bridges, culverts, and causeways on the project roads were rehabilitated or replaced. Use of roads built or upgraded in 2014 was 500,603 vehicle−km and households with reduced flood risk totaled 3000. On-the-job skills development and formal trainings, supported by an associated technical assistance (TA) grant, successfully enhanced EPRDD and NCPRDA institutional and individual staff capacities.

The project consequently achieved its intended outcome, overachieving targets in many cases. Travel time savings for motorized vehicles upon project completion were estimated at 55% in the Eastern Province and 40% in the North Central Province, compared with provincial targets of 50% and 30%, respectively. The reduction in vehicle operating cost in the Eastern Province was estimated at 42%, against a target of 30%; while that in the North Central Province was 32%, against a target of 20%.

Overall, the project significantly helped improve the living conditions and well−being of about 26,000 households in formerly conflict-affected areas in the project provinces. Children who previously rode their bicycles to school now use public transport services. Pedestrians no longer experience a dusty environment during the dry season or slippery surfaces during the wet season. Better road conditions and greater connectivity also triggered more agricultural trading and commercial activities and the establishment of several infrastructure and utility services, improving incomes and livelihoods and stimulating greater economic activity in the project sites.

The project, rated successful by ADB’s South Asia Department, was executed by the Ministry of Provincial Councils and Local Government and implemented by the provincial councils through the EPRDD and NCPRDA.

Project Information

Project Name:

Eastern and North Central Provincial Road Project

Report Date:

September, 2016

Main Sector:

Transport

Country:

Sri Lanka

Project Number:

39619-013

Project/Modality: