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Regional Seminar Proceedings 1992
3.3 Options for Improvement The logical framework approach uses the problem analysis as a basis for developing comprehensive programme for action. The consultant's report contained 18 options which could be used to improve road maintenance relying on labour-based jand intermediate technology equipment methods. The options are grouped into the categories of:
3.4 Network of Adopted Options In principle all suggested options except one were accepted during the workshop. In order to show the linkages between the various options, they were arranged in a network. It transpired that there are two pivotal technical options, which relate to different types of road (categorised by their traffic volumes):
Both options were considered necessary; they compliment each other and should be developed in paralles. For these options to work properly additional options are necessary in the fields of planning (HMMS & PMS) and MANPOWER (various staff development measures including reducing staff complement). Option MR2 concerns "RATIONALISATION OF SUPPOR STAFF". This option directly links into the discussions held at the annual MRP GoK - donors meeting. SPOT improvements are a complementary element that should accompany both technical approaches to reduce maintenance needs. The use of TRACTOR UNITS for grading on roads in non-MRP districts was classified as desirable, though not essential. This option could be developed with a time lag to the more important LENGTHMEN-based options. The extension of the use of CONTRACTORS to gravelling and grading operations forms another vital element of the network. Two options refer to this feature. All adopted options should be subject to an empirical pilot-run, as they involve substantial modifications of existing techniques and methods. In addition the aspect of FUNDING was included with special reference to the CESS as a revenue source of high potential. Although not subject to pilot-run testing it is an aspect well worth pursuing with monitoring and additional planning. The only option rejected by the workshop referred to re-organising road maintenance into a PARASTATAL organisation. It was rejected on the grounds of a change of stance in Kenyan national policy towards parastatals in general. Furthermore the costs may be high and benefits long term with considerable risk of non-performance. It was agreed that the private sector options offer higher potential for success. The network shows how the various adopted options dovetail. The network, therefore, suggests an initial approach towards a pilot project design (see chart). Annexes la 1b show the potential cost savings (of the order of 30%) and substantial increases in labour productivity (of the order of 10 fold) achievable by adopting the proposed labor and tractor-based technology options for routine maintenance. The annexes also set out the added benefits of additional productive rural employment, savings in foreign exchange and encouragement of local manufacturing capability. The development of small scale contractors could bring additional benefits.
3.5 Need for Pilot Project The individual options proposed in the previous section range from modest to extensive in the changes from the existing situation and practices. Furthermore in maintenance performance. Previous experience of maintenance initiatives (World Bank et al) has shown that improvements in maintenance performance can only be achieved and sustained by such a comprehensive initiative, tackling all aspects of institutional arrangements, manpower development, systems, technology and funding. It has also been shown that significant changes can only be brought about over an extended period of time (of the order of 10 years) and with sustained commitment and effort. The proposed overall changes and anticipated results are so substantial that it is necessary to test the combined options in a limited and controlled scale on a pilot basis. In this way the necessary development work may be carried out, requirements and effects can be monitored, and modifications made where necessary prior to preparations, training and implementation on a wider scale. The workshop participants therefore confirmed that the options for improvement must be tested in a pilot phase. Kericho and South Nyanza districts were endorsed as pilot locations.
4.0 CONCLUSIONS
4.1 LABOUR OPERATIONS The labour-based approach to the routine maintenance operations would cost only 40% of the equivalent equipment-based operations. This analysis is based on the present agreed establishment for subordinate staff. The analysis compared the cost for an equivalent deployment of manpower at one person per 8 km of classified road on a full time basis. The following important points should be made. (i) As shown in Annex 1a the productivity of the lengthmen is likely to be approximately 10 times higher than the subordinate staff. (ii) If the lengthmen were deployed at a rate of 1 every 4 km full time then full routine maintenance could be achieved , based on the experience of the MRP. This assumes that the lengthmen concentrate on off- running surface maintenance and patching only. This would still be achieved at a cost of only 70 % of the present equipment based system. On this basis 8000 subordinate staff could be replaced by 16,000 lengthmen working full time (or 26,000 lengthmen working 3 days a week) for a 30 % cost saving over the present system. The potential improvement in productivity is of the order of a ten fod increase per man. The foreign exchange component of the present equipment based system is 5 times more than that of the proposed labour system.
4.2 Equipment Operations The analysis shows that the likely cost savings in grading by the adoption of heavy tractor towed grader technology are of the order of 40 % over the existing methods. The analysis has been carried out conservatively and actual savings are potentially even greater. The foreign exchange components of the two systems are 50 % (motorgrader) and 42 % (tractor towed grader). The foreign exchange component of the capital cost of the heavy towed grader is estimated to be only 30 %. The adoption of this technology would create manufacturing employment in Kenya and a potential for export earnings. Adoption of tractor technology for the equipment operations would offer flexibility based on the simplest large power source; the tractors could be used for towing gravel haulage trailers, rollers, bowsers or mobile accommodation when not grading. Standardisation on tractors would significantly reduce spares costs and procurement problems. All of the tractor attachments could be manufactured in Kenya.
DISCUSSION
Maintenance Strategy Road maintenance has become an increasingly important issue during the last years. In many developing countries previous lack of attention to maintenance has led to a declining state of the road network. In order to halt jtheis process drastic measures are required. In Kenya the current total expenditures on maintenance amount to approximately a third of the amount required to cover routine maintenance only. Studies show that the total amount required to maintain the classified road network at a reasonable standard would be the equivalent of the current total allocations for construction and maintenance, only roads with high traffic volumes would receive full maintenance while other roads with little traffic would receive a minimum or no maintenance at all. On the basis of the above it can be concluded that major policy changes and decisions are needed to avoid a further deterioration of the network in the region. First of all, a major shift from investments in construction of new roads to maintenance is required. Secondly, it is important to produce a plan where the roads are prioritised in terms of planned maintenance levels. This prioritisation may in certain countries mean that certain roads have to be excluded from the maintenance programme.
Choice of Equipment The choice of technology on labour-based programmes depends on a series of factors such as site conditions, quality and design standards, locally available resources and finally the costs of the various alternatives. In Kenya tractors and towed graders have proven to be more economical than motorgraders. The reasons for this are:
However, this may not be the optimal solution in other countries. In Kenya the tax policies favour the use of tractors since imported equipment such as motorgraders are heavily taxed while tractors are not. In other countries where tractors are more expensive the optimal choice of light equipment may be different. In addition, other appropriate combinations of equipment with a similar level of sophisitication can be effectively used. On labour-based projects in Tanzania tipper trucks proved more economic for haulage that using tractors. It was further mentioned that the old caterpillar model C120B is relatively cheap and easy to operate and maintain. As a conclusion the optimal solution for one programme may not necessarily be appropriate in other countries. It is therefore important to carefully analyse the various alternatives taking into account local conditions as described above before making the final choice of equipment. Such analyses should be shared with ASIST which then could forward this information to other interested parties.
Research and Development High quality equipment is essential for the success of any labour-based programme. Although a great deal of research on appropriate light equipment for labour-based works has been carried out, there is still a need for feasible to design and construct a trailer which stands up to the requirements of the Minor Roads Programme in Kenya. Experience shows that it is necessary to make an effort to design and procure more durabe light equipment. In Botswana the labour-based road programme is currently developing a new tractor drawn trailer. |
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