Document of
The World Bank
Report No:
PROJECT BRIEF
ON A
PROPOSED CREDIT
IN THE AMOUNT OF USD 29.0 MILLION EQUIVALENT
AND
A PROPOSED GRANT
FROM THE GLOBAL ENVIRONMENT FACILITY TRUST FUND
IN THE AMOUNT OF USD 7.0 MILLION EQUIVALENT
TO THE
GOVERNMENT OF GHANA
FOR A
GHANA URBAN TRANSPORT PROJECT
April 20, 2006
This document has a restricted distribution and may be used by recipients only in the
performance of their official duties. Its contents may not otherwise be disclosed without World
Bank authorization.
1
CURRENCY EQUIVALENTS
(Exchange Rate Effective January 6, 2006)
Currency Unit = Ghanaian Cedis (GHC)
GHC 1 = US$0.0001136
US$1 = GHC 8,800
FISCAL YEAR
January 1 -- December 31
ABBREVIATIONS AND ACRONYMS
ADB
ADT
AMISU
APL
BOT
BRT
BRRI
C&AG
CAS
CDF
CFAA
DFR
DUR
DVLA
ECOWAS
EIA
EOI
ERR
EMP
GHA
GOG
GPN
HDM
HSIP
KM
MDA
MMDU
MOF
MRT
MOTC
MTEF
NGO
NMT
NPV
PIM
RMRP
African Development Bank
Average Daily Traffic
Accounting and Management Information Systems Unit
Adaptable Program Lending
Build Operate and Transfer
Bus Rapid Transit
Building and Road Research Institute
Controller and Accountant General
Country Assistance Strategy
Country Development Framework
Country Financial and Accountability Assessment
Department of Feeder Roads
Department of Urban Roads
Driver and Vehicle Licensing Authority
Economic Community of West African States
Environmental Impact Assessment
Expression of Interest
Economic Rate of Return
Environmental Management Plan
Ghana Highway Authority
Government of Ghana
General Procurement Notice
Highway Development and Management Model
Highway Sector Improvement Project
Kilometer
Ministries, Departments and Agencies
Metropolitan Municipality District Units
Ministry of Finance
Ministry of Road Transport
Ministry of Transport and Communications
Medium-Term Expenditure Framework
Non-Governmental Organization
Non-Motorized Means of Transport
Net Present Value
Project Implementation Manual
Road Maintenance and Rehabilitation Program
SIL
SSATP
TOR
Sector Investment Lending
Sub-Saharan Africa Transport Policy Program
Terms of Reference
2
GHANA
URBAN TRANSPORT PROJECT
CONTENTS
A. Project Development Objective
1. Project development objective
2. Key performance indicators
B. Strategic Context
4
4
4
4
1. Sector-related Country Assistance Strategy (CAS) goal supported by the project
2. Key development issues and rationale for Bank involvement
5
3. Sector issues to be addressed by the project and strategic choices
8
C. Project Description Summary 10
1. Project components
10
2. Benefits and target population 14
3. Institutional and implementation arrangements
15
D. Project Rationale 16
1. Lessons learned and reflected in the project design
2. Evidence of the borrower’s commitment 17
3. Monitoring and evaluation 18
E. Summary Project Analysis
1. Economic
19
2. Financial
19
3. Technical
19
4. Institutional 19
5. Environmental
20
F. Sustainability and Risks
19
21
Annexes
Annex 1: Results framework and monitoring
24
Annex 2. Sector Background 28
Annex 3 Description of components 37
Annex 4: Incremental cost analysis
44
Annex 5 Incremental cost matrix 49
Annex 6 Procurement and Disbursement Arrangements 52
3
16
4
PROJECT BRIEF
GHANA URBAN TRANSPORT PROJECT
A. Project Development Objective
1.
Project development Objective.
The project objective is to enhance mobility and affordability of bus transport services in the
Greater Accra Metropolitan Area (GAMA) in a socially and environmentally sustainable
manner. The project would focus on: (a) strengthening policy, institutional and regulatory
framework for managing, coordinating, planning and monitoring urban transport services in
GAMA; (b) facilitating person movement on major corridors through a combination of traffic
management and implementation of bus rapid transport system and ; and (c) monitoring and
evaluation of local and global environmental benefits.
2.
Key Performance Indicators:
The key performance indicators of the project are:




Modal shift to more efficient and less polluting forms of bus transport (share of trips in public
transport modes as a share of total trips, with and without project scenarios in target corridors)
Increase in share of trips by NMT modes
Potential for at least 22% reduction in GHG emissions by EOP
Incorporation of environmental considerations into the public policy in the transport sector,
influence policy decision makers, strengthen government technical teams on air pollution and
establish alliances with civil society.
B. Strategic Context
1.
Sector-related Country Assistance Strategy (CAS) goal supported by the Project:
The Ghana Country Assistance Strategy (February 20, 2004) has identified Ghana as one of the
few countries in Sub-Saharan Africa to have a chance of meeting the Millennium Development
Goals (MDGs). The 2003 Core Welfare Indicator Questionnaire, conducted as part of the ongoing PRSP process, has revealed that there is an increasing problem of urban poverty
(increasing at an average annual rate of 6% over 1997-2003 as compared to national average
growth rate of 2%). The Strategy, rooted in the Strategic Framework for IDA’s Assistance in
Africa, rests on three pillars to support the Ghana Poverty Reduction Strategy (GPRS): (a)
sustainable growth and job creation; (b) service provision for human development; and (c)
governance and empowerment. The Project will support all three objectives of the CAS and
GPRS in four ways: (a) by reducing the cost of doing business in the capital city, it will increase
Ghana’s competitiveness in foreign trade and promote linkages in domestic markets, which are
crucial factors for rapid and sustained growth. These linkages will improve the cost of access, by
poor and women, to social services, markets and economic opportunities, thereby contributing to
social sustainability and human development; (b) it will help improve governance through
4
clarifying roles and responsibilities in the transport sector and encouraging wider and more
meaningful participation of stakeholders (private bus operators, users, commercial banks,
insurance agencies, NGOs) in the decision making process; (c) by providing more emphasis on
low cost traffic management techniques and helping establish a suitable framework for public
transport, the project will contribute to more effective and efficient public sector expenditure;
and (d) the project will support private and financial sector development by advancing limited
competitive regime in the provision of infrastructure and services.
2. Key development issues and rationale for Bank involvement
Main sector issues and Government strategy:
Transport Sector Overview.
The transport sector plays a strategic role in the economy of Ghana. It accounts for
approximately 9% of GDP and generates a significant share of the total budgetary revenues of
the Government. The country has a well developed transportation system consisting of two large
deep-water ports that yearly handle about 7 million tons of import and export traffic; a 944 km
railway system serving the southern part of the country; a 40,000 km road network system
consisting of 13,433 km of trunk roads, 24,000 km of feeder roads and over 2,200 km of urban
roads; and one international airport and 8 regional airports and airstrips throughout
the country. Roads are the predominant mode of transportation, currently accounting for 94% of
freight and 97% of all traffic movements in the country. There are no widely available
alternatives to roads other than for the movement of bulk commodities for export, such as timber,
cocoa, bauxite and manganese ore, which are suited to transport by rail from central collection
centers and mining areas to the ports. The railway network has limited coverage (Accra-KumasiTakoradi) and presently operates at low efficiency under parastatal management. Internal water
transport is limited to Lake Volta. The road transport industry, which is dominated by the private
sector, has unrestricted entry and competition is prevalent, but its efficiency is constrained by the
high cost poor roads impose on vehicle operation. In the past Ghana, and in particular Accra,
had a relatively healthy infrastructure base. However, economic crisis and decline during the
1970s and 1980s, combined with weak institutional capacity, led to a deterioration in the
infrastructure network and its operations. This left transporters and producers without
the ability to expand services to a larger segment of the population and unable to compete
effectively in regional markets. Since 1990 the Government has deployed, within the framework
of projects supported by the Bank and a number of other donors and international financial
institutions, major efforts to remedy deficiencies in the transport sector. In 1997 GOG reformed
its own role and function in the sector, by merging its involvement in all transport modes into
one Ministry, the Ministry of Roads and Transport. At this time Government also adopted the
principle that Government's role should be that of regulating, managing and monitoring, not of
executing, agent. Within this principle, widespread intensification of the involvement of
the private sector has begun in areas previously dominated by Government: port operations,
maritime trade, and road maintenance. The process of concessioning operations of the railway to
the private sector has also begun. In 2001, the Government again split roads and transport into
two Ministries, the Ministry of Roads and Highways (MRH) and Ministry of Transport and
Communications (MTC), but the envisaged role of Government remains the same.
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The road network is the responsibility of three agencies, all under the oversight of MRH:
The Ghana Highway Authority (GHA) is in charge of the trunk road network (13,433 kin; 5,968
km paved and 7,465 km unpaved), and roads leading through minor towns. GHA is a
semi-autonomous agency, which since mid-1999 has operated under the direction of a Board
with significant private sector representation; its staff are in public employ but outside the civil
service. The Department of Feeder Roads (DFR) is a department of MRH. DFR is in charge of
all 24,000 km of feeder roads, and is presently changing from a centralized structure to a
decentralized one in response to Government's decentralization policy, which is to devolve
decision-making to district councils. The Department of Urban Roads (DUR) is a department of
MRH. DUR is in charge of roads in seven main urban agglomerations: Accra, Tema, Cape
Coast, Sekondi/Takoradi, Kumasi, Tamale, and Koforidua. Decentralization efforts involve
partial devolution of decision-making to municipal authorities and councils.
Main Issues in the Urban Transport Sector
Key Issues. Accra city, with a population of about 2.5 million, is the administrative and
commercial capital of Ghana, growing at above the national average (4.4 percent per annum as
compared to a national average of 2.7 percent), accounting for about 35 percent of the country’s
urban population and contributing a high proportion to the country’s GDP. Almost half of the
country’s urban population is expected to be living in Accra over the next decade. In spite of the
growing economic importance of Accra, the city is not adequately served by municipal services.
The transport environment in Accra, for example, is characterized by heavy congestion
particularly during the peak periods, low vehicle utilization, weak implementation of traffic
management measures, inadequate facilities for pedestrians and bicyclists, poor road safety
arrangements and high accident rates. Almost 70% of the person trips in the city depend on
some form of buses as the dominant mode which use less than 25% of the road space; in
contrast, private cars and taxis move less than 30% of the person trips but consume about 70%
of the road space. Despite the importance of urban public transport in satisfying mobility needs
of the residents, it operates under financial and management constraints. The poor public
transport suppresses the economic and social advantages for which the city developed in the first
place.
The public transport in Accra has evolved with successive administrations since independence in
1957. At that time, the public transport services were nationalized and a public owned company
was created (Omnibus Service Authority, OSA Ltd), where services operated under an overzealous fare regulation. The impact of fare controls was to limit revenue of the public operator
to an extent that it was not able to maintain vehicles on road. In response to declining services
and growing demand, Government partly deregulated the sector in the early 1990s, encouraging
the private sector to participate in the provision of bus services. The fare controlled private
sector bus operators entered the market to fill-in the deficit in public service, but they found it
profitable to operate only at high load factors associated with a low quality of service.
Investment in new large vehicles could not be sustained in this regime. The residual deficit in
services was filled by taxis operating outside the fare control, contributing to a proliferation of
small vehicles. Therefore, while deregulation of the public transport services in Accra has
increased supply, it has worsened road congestion, the urban environment, user safety and
6
security. The private mini-buses (trotros) in Accra have operated on an opportunistic basis,
without any schedule, route licensing or service standards. The license gives them a permission
to operate anywhere, resulting in their concentration along the main high density corridors. This
situation has particularly worsened the travel environment for the poor who live in outlying areas
and depend most on public transport.
Key issues facing the sector are: (a) the environment is characterized by multiple institutions with
over-lapping responsibilities and unclear mandates; and a discouraging record of public sector
provision and maintenance of urban services and infrastructure; (b) the problem of traffic
congestion on the primary road network is as much due to a lack of road capacity as to the
inefficient use of the existing road space, poor road maintenance, indiscriminate parking and
street trading; (c) the full benefits of liberalization have failed to reach the consumers because of
a dysfunctionality in the urban transport sector. Urban transport in Accra is characterized by a
fundamental paradox of a market with proven excess demand and shortage of supply that is not
attracting sufficient new investment to redress this imbalance. The “excess” demand is reflected
in overcrowded buses and long waiting times without even accounting for the “latent” demand
because of the lack of affordability and access. The supply “shortage”, in spite of a proliferation
of taxis and trotros, implies constraints in the provision of large, good quality buses operated by
the formal sector. The missing link arises from low productivity of the capital assets in a highly
congested traffic and from the inability of informal operators to attract the necessary funding to
operate large, good quality buses; and (d) urban development trends are encouraging sprawling
settlement patterns which discourage use of slow moving NMTs (particularly bicycles and
pedestrians) and increasing dependence on private motor vehicles.
Government Strategy:
The focus of Government strategy in the past has been on rehabilitating the road network and
related infrastructure development. Accordingly, improvements in urban transport have been
mainly confined to upgrading the quality of the road network. Prompted by growing congestion
in the urban centers, which has resulted in declining city productivity, road safety and
environmental standards, Government is motivated to address broad strategic urban transport
issues related to strengthening the policy and institutional environment and enhancing demand
management.
The newly elected President of Ghana, as part of his electoral campaign in 2004, identified
improvements in public transport as one of the top priorities of his agenda. He has set up a 23member Committee, including Ministers of State, representatives of Metropolitan, Municipal and
District Assemblies, Regional House of Chiefs and Institute of Planners. The objective of the
Commission is to determine the economic, social, sectoral and environmental policies for
development of the metropolitan area and supervise their implementation. Central to the
Commission’s agenda is improvements in urban transport in the metropolitan area with a view to
improving its competitiveness, bankability and growth.
Government has set up Metro Mass Transit Ltd (MMT) as a limited liability company through
which support for improving bus quality can be channeled. It was originally provided (in 2004)
with 176 second-hand city buses donated by the Italian Government and 75 new Dutch city
7
buses. During the past year, 250 buses have been committed by the Chinese Government, most
of which have already arrived. In addition, there are 100 buses committed by Tata and two
further tranches of DAFs.
The Government has also commissioned studies, with the support of IDA and other
Development Partners, to examine urban transport planning and traffic management for the
major urban centers in Ghana. The focus of these studies is to develop a medium to long range
urban transport policy framework, strategic plans, traffic management and improvement plans
and an urban transport data base. In addition, the potential for public transport priority measures
will be identified, through the reallocation of existing road space and new construction such as
dedicated bus-ways. The Government has also just completed (with the support of Public
Private Infrastructure Advisory Facility) a study of regulatory framework for managing
competitive environment for bus transport in Accra.
3.
Sector issues to be addressed by the project and strategic choices:
As a direct outcome of the Government's sector strategy, the key roads issues to be dealt with
through the project are:
Decentralization: The Government's decentralization plans will have a significant impact on the
roads sector, with immediate effect on feeder roads. The structure of decision-making related to
roads in both urban and rural areas is expected to continue to evolve during the program period.
The RSDP is designed so that MRH and its agencies can respond to and participate in this
process. District and Municipal Assemblies will be increasingly involved in the selection of
works and the programming of maintenance.
Poverty alleviation: The roads sector is only now beginning to contribute proactively to the
Government's declared goal of giving first priority to mitigating extreme poverty wherever it
exists. This focus will sharpen through the RSDP period and cause greater focus on extending
and maintaining the feeder road network and upgrading roads in the slum areas of towns. Given
that the real impact will only come from improved transport, the agencies implementing the
RSDP will work together with the Rural Travel and Transport Program (RTTP) to assist with the
development of a National Rural Transport Policy, the deepening of current knowledge of rural
transport issues in Ghana, and the promotion of transport options, including intermediate means
of transport. Safety: Under the HSIP an environmental and road safety department was created
in GHA, but no significant progress has been made in road safety. Basic elements such as control
of truck loading, driver proficiency, accident reporting and statistics, and rescue services, are all
in need of significant improvement. To address these problems, a comprehensive road safety
program will be developed under the RSDP. Ghana has joined the Global Road Safety
Partnership, which will assist in creating the framework for a partnership between Government at
central and local level, and private commerce and industry. Road safety policies are now under
the purview of the recently established National Road Safety Commission (NRSC), and driver
proficiency and vehicle standards fall under the now restructured Driver and Vehicle Licensing
Authority (DVLA). Both of these entities will be strengthened under the RSDP.
8
Social sustainability and equity: Social assessments have been carried out within the sector on
a pilot basis, but have not been systematically applied. A study focusing on the Socio-economic
Impact of Trunk Road Maintenance was carried out by GHA, which analyzes social impacts
more systematically. Under the RSDP, social impact assessments will be conducted to mitigate
negative impacts and maximize benefits to targeted groups. The program will be designed to be
sensitive to gender issues in transport and maximize gender participation in decision-making in
all aspects of program development and implementation.
Environment: A methodology for environmental impact assessments (ElAs) of road
investments was developed under the HSIP for GHA and the resulting EIAs are satisfactory.
Similar assessments will be introduced in a systematic fashion for feeder roads and urban roads
under the RSDP. The Environmental Unit in GHA will be given the lead role in extending this
function to DUR and DFR and their respective networks. The capacity in the Ministry of
Environment would also be strengthened to monitor environmental emissions and GHG
reductions in relation to proposed improvements in the urban transport environment.
Sector Management and Implementation Capacity: Issues in these areas fall in two broad
categories: those that need to be addressed before the start or in the initial stages of the program,
and those that the program itself will address over time. The first category comprises (i) design
and start of a payment plan to eliminate the arrears problem and isolate it from the RSDP until its
final resolution; (ii) establishment of the expanded environmental and social assessment and
mitigation system to cover DUR and DFR in addition to GHA; (iii) establishment of the
reformed financial management system in MRH and its agencies by transforming the Accounting
and Management Information Systems Unit (AMISU) into a MRH accounting facility to oversee
the accounting and financial management activities of the Ministry's three road agencies; (iv)
agreement between the Government and the donor community on the design of a joint decisionmaking process relevant to the RSDP being implemented in accordance with the CDF, and (v)
assignment of staff in MRH and the donor agencies of sufficient number and qualification to
make this process work. The second category covers (i) establishment of the Government
procurement code; (ii) consolidation of the use of existing contract management systems and
related monitoring and decision-making processes; (iii) continuous development of the RSDP
management aspects relevant to Government's decentralization program; and (iv) long-term but
less critical issues being addressed through training programs under the RSDP for MRH, its
agencies and the private sector.
Sector programming and analysis: Priority must be given to the establishment of a sound basis
for analysis and programming in the sector. There is a need for comprehensive, but manageable,
databases on the state of roads, which will permit realistic estimates of maintenance,
rehabilitation and new investment needs to be made. To this end, the program will develop a
training package, with a focus on upgrading capacity in existing techniques as well as
introducing integrated methods for analysis. Capability for transport sector monitoring and
analysis through the use of geographic information systems (GIS) will be introduced in both
GHA and DUR as appropriate, and HDM-4 will be used for the economic analysis,
together with other appropriate social development criteria.
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Human resource development: There is a need to improve the capacity of middle and lower
level technicians in the road agencies, including skills, salary levels and housing conditions. The
human resources aspect of the program is being assessed through the Organizational
Development and In-Country Training (ODICT-P) study and includes (i) an evaluation of
training needs of both genders; (ii) an adequate training plan reflecting these needs; and (iii)
proper targeting of technical assistance to include know-how transfer targets and the design of a
follow-up mechanism.
C. Project Description Summary
Project Components
This is a blended activity with the base line components financed by IDA and Government of Ghana and
incremental components financed by GEF. The project would support the following components:
1.
2.
3.
4.
5.
Institutional strengthening (IDA and GOG financed)
Traffic management and safety (IDA and GOG financed)
Integration of land use/transport management and environmental management (blend
activity with the base line activities supported by IDA and GOG and incremental
activities supported by GEF)
BRT Infrastructure design and implementation (blend activity)
Monitoring and Evaluation (blend activity)
Table: Project Components by Source of Funding (in US$ million)
Component
Institutional
Strengthening
Traffic Management
and Safety
Integration of Land
Use
BRT
Monitoring &
Evaluation
Total
Cost, by funding Source
IDA/ GoG and
GEF
Others
2.0
14.5
3.3
1.1
6.5
2.7
5.5
0.4
29.0
7.0
Component 1: Institutional Strengthening (US$2,000,000) - policy and institutional reforms (including
strengthening of environmental management, decentralization, development of a national transport
strategy encompassing rural and urban transport, and road safety); studies; training; technical assistance;
and provision of buildings, vehicles and equipment. The project would support this component
particularly to strengthen capacity of the urban roads department and Ministry of Environment to plan,
manage and monitor urban transport operations and services. This component was designed as an
outcome of a diagnostic and capacity assessment exercise carried out jointly with the expected
10
beneficiaries. It aims at laying the groundwork for improving person movement and environmental
management. Specific components include: institutional strengthening and capacity building both for the
public sector bodies managing the system, including necessary monitoring and evaluation capability, and
the private sector operators providing the transport services; improved capacity for dispatching and
scheduling bus services, bus maintenance management, fare collection methods, bus driver training. This
component would also support introduction of a ‘limited competition’ regime for the regulation of urban
passenger transport, and establishment of the associated planning, procurement, monitoring and
evaluation capacity. Ministries directly involved include MRT, Ministry of Tourism and Modernization
of the Capital City (MTMCC) and MLGRD. Relevant local authorities include Accra Metropolitan, Tema
Municipal and Ga District Assemblies.
Component 2: Traffic Engineering, Management and Safety (US$14,500,000) – This component would
focus on road improvements, traffic improvements, strengthening the NRSC and DVLA; developing a
comprehensive road safety strategy and implementation program; and setting standards for safety,
reliability, and efficiency in the transport sector. Additionally, this component would focus on short-term
and low-cost measures complemented by environmental improvements and public education and
enforcement plans. The specific activities would include: traffic management measures, bus
maintenance facilities, transport lay-byes, improvements in riding quality of roads, pedestrian walk
facilities, intersection improvements, fly-overs, bus stops, bus-only lanes and education and enforcement
measures. This component would also focus on capacity development for traffic management, nonmotorized feeder services and network integration in the central business district.
Component 3. Integration of land use/transport management and environmental management
(US$4,400,000). IDA/GOG will finance about US$3,300,000 and GEF incremental financing will be
US$1,100,000.
The IDA financed base line activity would support sound transit oriented development policies and
sustainable transport elements in current plans and strategies. The component will explore arrangements
to further promote the use of bicycle and pedestrian ways in selected areas as a viable and safe alternative
to private cars. This component will also help design instruments and incentives, including an action plan
for implementation of changes in current land-use patterns. Specific components include:
a. Strategic transport-land use plans (US$650,000). This component would finance preparation
and annual review of transport plans for the Accra metropolitan area;
b. Development of data base inventory (US$1,300,000). This component will finance: 1) review
and assess a comprehensive vehicle technology binning system; 2) collection of data on
vehicle driving patterns per vehicle per class; 3) estimation of average vehicle kilometers
traveled per day, by different vehicle classifications along key corridors in different types of
traffic conditions. The data would be conducted on an annual basis for the four years of
project implementation;
c
Strategic Environmental Assessment (SEA) of Land Use Plan (US$550,000). GEF will fund
the SEA of master land-use plans, which in many cases need to be updated to accommodate
to new realities of development plans. This component will also finance training of
Environmental Protection Agency (EPA) staff to build capacity to generate emission
inventories for the Accra metropolitan area;
d
Estimation of cold starts and hot soaks (US$200,000). Based on the information collected on
total vehicle kilometers traveled by vehicle type and roadway class as part of base line
studies, this component would finance estimation of cold starts, during which emission levels
11
tend to be higher then under normal operating conditions depending on type of technology
used. It will also estimate hot-soak periods; and
e
Real life emission management and measurement (US$600,000). The objective is to estimate
emissions from originally clean, three way catalyst cars in the city. The emission factors are
not known and purpose is to investigate the extent to which the lamda sensor regulates the
air/fuel mixture and the extent to which the cleaning system still works. This component will
finance purchase of a new not contaminated car with three-way catalyst and conduct research
to estimate emissions from cars driven on Ghanaian gasoline at periodic intervals (2 months,
6 months, 1 year) and compared to emissions from new car models from official
homologation index.
The GEF financed incremental activity would finance:
f Study to Determine Environmental Impact of Passenger and Freight Transportation
(US$300,000). This component will fund development of TOR and execution of a base line
study to determine the level of emissions of GHG and air pollutants resulting from current
freight transportation practices, in order to determine a sound baseline. The studies will assess
opportunities for reducing emissions as result of freight management programs, and will
propose alternative freight management measures, ranging from mobility plans and traffic
management, to advanced logistic design for freight transfer stations. Also, the study will
assess the need for fleet renewal regulation and incentives. The study will be limited to the
urban areas of the city implementing BRT system;
h
Study on Mobility Plans and NMT (US$300,000). This component will finance studies to
develop a sound mobility plan for the Accra metropolitan area and formulate a Master Plans
for Non motorized transport (NMT), particularly bicycles; and
g
Bus Route Restructuring (US$500,000) for BRT system. This component will finance
development and implementation of TOR for studies aimed at restructuring bus routes in
Accra.
Component 4. BRT Infrastructure design and implementation (US$ 12,000,000). A corridor was
selected for pilot implementation, based upon the degree of compliance of each of the potential BRT
corridors with passenger demand, cost, potential impact, accessibility to low income communities and
urban and regional planning impacts are criteria. The selected corridor is Winneba Road and Graphic
Road from Mallam to the Accra CBD. Grade separation is likely to be required at two locations on the
route, namely at Obetsebi Lamptey Circle at the intersection with the Ring Road and the Railway crossing
on Graphic road. Most of the route from Mallam to the Ring Road on Winneba Road has three lanes per
direction, and a portion of this has adjacent service lanes. Graphic Road, which links the Ring Road to the
CBD has two lanes per direction. Within the CBD two circulation routes are proposed: the CBD / Circle
route utilizes the existing 3 lane / direction one-way pair of Kwame Nkrumah Avenue and Kojo
Thompson Road, whilst the CBD / Ministries uses an portion of Kwame Nkrumah Avenue and
predominantly 4 lane dual carriageway roads for the remainder of the circulation route. IDA/GOG will
finance about US$6,500,000 and GEF incremental financing will be US$5,5000,000.
The IDA/GOG financed activity would support:
a. Environmental analysis of pilot corridor and CBD distributor routes (US$500,000). An
Environmental Assessment shall be undertaken of potential impacts, e.g., loss of trees,
adequate drainage, increased pollution levels, health and safety, etc., and appropriate
mitigation measures and management arrangements as part of the preparation and
12
implementation of an Environmental Management Plan. The Environmental Management
Plan will summarize anticipated environmental and social impacts of the project and will
provide details on the measures, responsibilities and scheduling to mitigate these impacts, as
well as costs of mitigation and monitoring. Mitigation measures and responsibilities for
mitigation will be contained in the Environmental Management Plan (EMP). EMPs will
provide a critical link between the mitigation measures specified in an Environmental
Assessment report and the integration of such measures during the implementation and
operation of the project.
b. Infrastructure (stations, terminals, pedestrian and bicycle access, intersections,
feeder routes) (US$6,000,000). This component will finance: road rehabilitation,
grade separation, topographic surveys, geotechnical surveys; conceptual design and
implementation of Obetsebi Lamptey Circle Flyover; civil works for BRT
requirements for: geometric alignment and pavement structure for bus way, station,
terminal and depots designs, such as required width of bus way, bus occupation,
station occupation, load factors for selected bus under desired bus occupation, area
plans for stations, terminals and depots (facilities included, minimum areas), required
ancillary facilities (criteria for pedestrian overpasses or signalized pedestrian
crossings, width of pedestrian an bicycles facilities; and engineering and architectural
design of roads (reconfiguration of bus way corridor geometry and rehabilitation of
feeder roads).
The GEF financed incremental activity (US$5,500,000) would finance:
c
Infrastructure design of BRT System and Facilities (US$1,000,000). Elaborate the technical,
social and environmental design of a pilot BRT project to be implemented in the short term;
This component will finance the creation of a user friendly BRT system incorporating the
needs of pedestrians and bickers using the BRT. Pedestrian facilities and BRT terminal
facilities will be part of the infrastructure design.
d
Engineering and Design of the exclusive bus lanes along the BRT corridor (US$5,500,000).
The GEF financing would supplement the IDA/GOG financing of road rehabilitation and
grade separation at intersections by financing creation of exclusive bus lanes along the BRT
corridor. Without the exclusive bus lanes, the improvements of roads and traffic management
may have the unintended impact of promoting vehicle-kilometers traveled, which may
increase rather than decrease GHG emissions. By financing exclusive bus lanes, movement
of mass transport will be facilitated, bus operations will become profitable and financial
incentives will be created for the bus owners and operators to finance clean large buses and
substitute them for old small vehicles. This is expected to promote modal shift to more
efficient and less polluting forms of public and freight transport. This initiative would
provide an opportunity of reduction in GHG emissions and promote technologies whose cost
will drop significantly with economies of scale in manufacture and increase in demand.
Component 5. Monitoring and Evaluation (US$3,500,000).
IDA/GOG will finance about US$2,700,000 and GEF incremental financing will be US$400,000.
a. Developing appropriate regulations (US$250,000). The current Road Traffic Regulations –
LI 953 of 1974 – are silent on quantified limits with regard to vehicle exhaust emissions.
This sub-component would provide Technical Assistance to the Committee in establishing a
set of quantified regulations appropriate to the current vehicle park in Ghana taking due
13
recognition of the specification of road transport fuels available in the country at this time.
Such regulations would then enable the appropriate authorities – principally the Driver and
Vehicle Licensing Agency – to enforce standards in an objective and legally sustainable
manner. Further, the TA program would also design a program for the progressive tightening
of these standards over a realistic timeframe taking into account the planned investments in
the Tema refinery aimed to reduce the sulfur content of automotive gas oil (diesel fuel) in
particular. Costs of this component would include the necessary technical assistance;
b. Socio-economic survey of residents in Accra metropolitan area (US$1,5000,000). The goal of
this study is to better understand the travel patterns of people living in the Greater Accra
Metropolitan Area (GAMA) and the role that transport plays in their lives. The specific
objectives are to: (a) examine the travel behavior of people in GAMA, with a special focus on
residents and business activities along the project BRT pilot corridor; (b) identify specific
transport constraints faced by residents in their performance of day- to-day activities; (c)
examine the social and economic dimensions of residents and their impact on transport
choices; and (d) prepare travel diaries to document typical travel patters on a daily basis. The
study will particularly focus on bus and taxi transport character along the BRT project
corridor. It is expected that the study will be replicated on a periodic basis to examine before
and after impacts of the proposed investments. The analytical scope of attributes to be
identified, evolve around four main attributes: affordability, accessibility, acceptability, and
availability. The studies would be replicated annually over the four year project period to
examine the impact of investments under the project; and
c. Monitoring of Bus performance (US$250,000). This component would finance development
of specific indicators for measuring performance of bus performance, particularly in areas of
operational performance, technical performance and financial performance. The indicators
for evaluating performance contracts between bus operators and regulatory authority will be
developed and capacity of the authority developed in monitoring and supervision.
d.
Improving the environmental performance of the current vehicle park (US$700,000).
Because of the basic technology and the lack of recent investment at the Tema refinery, the
levels of sulfur in its automotive gas oil output is significantly higher than international
standards. Under these circumstances, the only appropriate technology for reductions in the
level of particulate emissions is an exhaust trap. By using a fuel-borne catalyst it is possible
to make such traps self-cleaning (CRT), whereas the high sulfur level would poison a
conventional precious-metal catalyst. Recent large-bus imports into Accra from both China
and India have featured Euro-1 engines for which particulate emissions levels are not defined.
Under these circumstances, retrofitting such buses with a CRT using a fuel-borne catalyst
would provide a significant reduction in emissions. A trial could be used to determine the
benefits, and hence provide the justification for a wider application of this approach; and
The GEF financed incremental activity (US$ 400,000) would finance:
e
Improving the standard of fuel-injection equipment maintenance (US$400,000). Reducing
visible smoke emissions from the over-aged vehicle park in Accra will require a substantial
improvement in maintenance and repair standards for the fuel-injection equipment on
compression-ignition engines. However, this capability has not been in high demand, both
because of the lack of appropriate regulations and their enforcement and because the typical
vehicle owner doesn’t bear the cost of fuel consumed in daily operation (this cost is borne by
the driver hiring the vehicle). Under these circumstances, the fuel-injection equipment
maintenance sector has failed to attract the levels of investment necessary to sustain the
14
vehicle park in good operating condition. In order to assess the investment needs for the FIE
maintenance industry will require a detailed survey of the current installed equipment
capacity and condition, including trained artisans and appropriate spare-parts support. From
this an investment program will be identified, and a financial package then developed to
enable this to be funded by existing or intending enterprises.
TABLE 1
FINANCIAL MODALITY AND COST EFFECTIVENESS
The total project is approximately US$37.0 million, with a GEF grant of US$8.0 million, IDA Credit of
US$25.0 million, Government contribution of about US$2.0 million and other co-financing (DANIDA,
AFD) of US$2.0 million.
Component
Institutional
Strengthening
Traffic Management and
safety
Land use-transport and
environmental
management
BRT infrastructure
design and
implementation
Monitoring and
Evaluation
Total Project Cost
Front-end Fee
Total Financing
Required
Indicative
% of
costs
Total
(US$M)
2.0
5.3
Bank
% of Bank
financing financing
(US$M)
2.0
8.0
GEF
% of
Financing
GEF
(US$M) financing
0.0
0.0
14.5
40.0
13.0
52.0
0.0
0.0
4.40
10.7
3.30
8.0
1.1
15.7
12.0
34.7
6.5
50.0
5.5
78.6
3.1
9.3
2.7
4.0
0.4
5.7
100.0
36.0
25.0
7.0
36.0
25.0
7.0
CO-FINANCING SOURCES
Name of cofinancier (source)
IDA
Classification
Type
Amount (US$)
Status
Development
Partner
Borrower
Credit
25,000,000
Confirmed
Counterpart funds
2,000,000
To be confirmed
Grant
2,000,000
To be confirmed
Government of
Ghana
Other
Development
Development
Partner
Partners
(DANIDA, AFD)
Sub-Total Co-financing
29,000,000
15
2.
Benefits and Target Population
The preparation phase of this project has involved several consultations organized by the GOG, they
included: focus group discussions and workshops involving government agencies, users, private
operators, tro tro bus drivers, bus owners, commercial banks, insurance companies, NGOs and
development partners. Different workshops were conducted to design the project. In a two day
workshop, representatives of the private sector, government, commercial banks and other stakeholders
were involved in detailed discussions - formulating ideas on options to improve the urban transport
environment. Based on the discussions, institutional, financial, regulatory, technical and environmental
strategies were developed and presented in a second workshop. The project design was modified further
based on discussions and this was presented in a third high-level workshop, with participation of the
Office of the President and other key stakeholders. In addition, a number of focus group discussions were
organized with the bus operators and users to inform on the project design. Communication programs
were developed to target high-level actors (ministry officials, city authority, local community leaders,
local employers, etc) in order to build support for the program at the decision maker’s level.
Following is a first stab at a stakeholder analysis, but this will be further developed during
preparation.
Stakeholder
Passengers
General traffic
Pedestrians
Population in corridor
Residents off corridor
PT drivers
PT owner/drivers
PT owners
PT unions / associations
Local Assemblies
Vehicle supply industry
Investment community
Project impacts
Faster, more regular, and more reliable service; no increase in fares
unless full recovery of infrastructure investment cost is intended.
Reduced congestion in corridor, allowing time and cost savings.
Improved safety in corridor through smoother traffic flows, and on
parallel rat-runs that will be used much less intensively.
Reduced pollution as a result of reduced congestion.
Reduced noise and emissions as a result of less rat-run traffic
Less job opportunities, but better working hours in a regulated
environment; greater security and reliability of income; less hassle
from enforcement authorities.
Relatively few in number, but will be offered the opportunity to
migrate to bigger buses and build a significant capital stake.
Vehicles will no longer be permitted on the trunk route and its highcapacity feeders, but growth of the metropolis should absorb these
vehicles elsewhere in the network; tighter enforcement of safety and
environmental regulations will result in scrapping of worst vehicles;
opportunity will be given to migrate to bigger buses.
Loss of regulatory role to Licensing Authority, but will still manage
feeder terminals and interchanges; driver members will tend to benefit,
but owner members will tend to lose; potential framework within
which owner-driver sector could develop.
Development of institutions to enable them to fulfil their statutory
duties in the urban transport domain; visible investment in the sector
with obvious political benefits; potential to recycle financial surplus
from BRT scheme to support socially desirable services elsewhere in
the network.
Opportunities for sales and service support, including development of
contract maintenance.
Opportunity for productive investment outside the property sector;
16
development of innovative finance mechanisms for the informal sector
that will have wider development implications.
3.
Institutional and implementation arrangements
Implementing Agencies:
The program will be coordinated by MRH, which will have the overall responsibility for its
management. Each of the implementing road agencies (GHA, DFR, DUR) will make its own
internal management arrangements and report, in formats established and agreed, to MRH in
accordance with procurement and disbursement arrangements agreed to by the Bank and the
GOG. All other components will be managed in line with Bank conditions. AMISU functions
will be integrated into MRH's mainstream functions. In those areas where expertise is lacking or
not fully developed, short-term consulting specialists (management, engineering, financial,
modeling) will be employed to enhance sector performance and project implementation.
Implementation will be based on an Annual Work Program and Budget prepared by each
agency, and consolidated by MRH. A Project Implementation Manual (PIM), finalization of
which will be a condition of Credit effectiveness, has been prepared to provide the necessary
guidelines for all implementing agencies.
Accounting, financial reporting and auditing arrangements:
AMISU will be transformed into a MRH accounting facility to oversee all expenditures in the
roads sector, including arrangements for audits, in accordance with systems and procedures
acceptable to IDA. It will work in accordance with the procedures that have been prepared and
put in place under the on-going HSIP. Establishment of the agreed financial management and
accounting systems in MRH, GHA, DUR and DFR will be a condition of Credit effectiveness.
New special accounts for the IDA Credit will be opened and maintained in a commercial Bank
acceptable to IDA, managed by the relevant agencies. Independent auditors acceptable to IDA
will audit the use of all IDA funds available under the credit, including the IDA special account
and the statements of expenditures. Financial audit reports will be submitted to IDA no later
than six months after the end of the fiscal year. The format and the frequency of periodic
reporting are defined in the PIM. The financial/technical audit system, introduced under the
HSIP, will be continued and enhanced under the RSDP to assess the cost/effectiveness and
adherence to agreed work programs for the agencies.
D. Project Rationale
1.
Lessons learned and reflected in the project design
Drawing upon its international and regional experience, the Bank is in a strong position to
support the Government in formulating strategies to explore alternative solutions to complex
traffic and transport management issues. The Bank has extensive experience in supporting
projects on urban transport systems. For example, in Brazil and Chile, the Bank supported the
concept of physically separating buses from worsening traffic congestion. In Bogota, the Bank is
supporting a second phase of separated bus corridors as part of the successful TransMilenio bus
rapid transit system, which was first introduced in Curitiba. A project has been designed in
17
Lima, partly with support from GEF funds, along the lines of TransMilenio. The experience
gained in Brazil, Chile, and Colombia in this sector will play a key role in assisting Accra
municipality efforts to improve the urban transport system. The Bank can also utilize the
experience gained from SSATP and other regional initiatives to support the reform agenda.
The advantages of a participatory design process. Prior to the HSIP, the Bank financed transport
operations in Ghana in various forms: road, urban transport and feeder roads projects; port and
railway projects; and finally, rural roads components under agricultural projects. These projects
all attempted, with some results, to introduce reforms in the transport sub-sectors. The more
recent of these completed projects, plus the on-going HSIP, have provided an opportunity for the
Bank to establish a substantive dialogue with the Government on the major issues in the
transport sector. The MRH drew up an overall strategy for the sector, and developed this into
strategic plans for each sub-sector. Acceptance of these plans by the public and by particular
interest groups was obtained through extensive debate in Cabinet, Parliament, and parliamentary
sub-committees, and through outreach activity and stakeholder consultations by MRH (formerly
MRT). In this fashion, agreement has been obtained, for instance, on concessioning of the
railway and on successive increases in the fuel levy for the Road Fund, without disruptive
confrontations. The main lesson learned from this is that although the process is slow, it is both
in accord with Ghanaian tradition, and in the end, probably more effective than a faster but less
inclusive process.
The need for donor coordination and consultation. Other donors have been active in the transport
sector. They have participated in program design and co-financing arrangements, often based on
their own sub-sector preferences. During implementation, coordination has sometimes been
inadequate leading to imbalances in the sector program. The practice of regular consultations
between donors and MRH, the annual GOG/donor meeting instituted under the HSIP, and the
stakeholder consultations arranged by MRH, have demonstrated the advantage of continuous
contact between all actors and interested parties.
The importance of accompanying stable maintenance funding with better programming. The
positive experience with the reform of the Road Fund is significant and is incorporated in the
design of the program. The reformed Fund improved revenue-raising immediately. However,
the lack of clear work programs caused a build-up of liquid funds, which were then diverted to
other uses, sometimes the payment of arrears. The lesson is that stable raising of revenue for road
maintenance does not in and of itself insure that the maintenance is done. For this to occur,
proper advance work planning and programming must be present, together with implementation
capacity in the private sector and managerial capacity in the executing agencies.
The importance of coordinating activities of multiple agencies. Multiplicity of organizations
responsible for urban transport planning and implementation is not conducive to efficient
operations. As part of the GEF grant, it is proposed to set up a semi-autonomous urban transport
authority, responsible for planning, management and monitoring of transport services.
18
2.
Evidence of the borrower’s commitment.
In the past decade, Government of Ghana (GOG) has initiated a wide range of new approaches to
develop and improve the transport infrastructure and services. Ghana has also become one of the
pilot countries for implementation of the Comprehensive Development Framework (CDF). This
holistic approach to development is being applied with the support of its Development Partners
to enhance operational efficiency of the road network, reduce socio-economic disparities,
strengthen institutional capacity and mitigate the adverse environmental and social impact of
road-related activities. Specific activities initiated by GOG in the past year include:
(a) setting up Metro Mass Transit Ltd (MMT) as a limited liability company through
which support for improving bus quality can be channeled. It was originally provided
with 176 second-hand city buses donated by the Italian Government and 75 new
Dutch city buses. An additional 250 buses have been purchased from China and the
Netherlands.
(b) commissioning studies, with the support of IDA and other Development Partners, to
examine urban transport planning and traffic management for the major urban centers
in Ghana. The focus of these studies is on developing a medium to long range urban
transport policy framework, strategic plans, traffic management and improvement
plans and an urban transport data base.
(c) setting up an Urban Transport Advisory Group, with representation from the
Ministry of Roads and Transport (MRT), Department of Urban Roads (DUR),
Ministry of Tourism and Modernization of the Capital City, traffic police and the
private operator. The objective of this Advisory Group is to coordinate different
initiatives in the city for developing appropriate solutions to address the growing
traffic congestion and deteriorating travel environment in Greater Accra.
(d) undertaking a study trip to Bogota, Columbia, in early 2003, to examine the workings
of a Bus Rapid Transit (BRT) system. During 2003 and 2004, the Institute for
Transportation and Development Policy (ITDP) has organized a number of
stakeholder workshops to disseminate lessons of BRT experience in Bogota and other
Latin American cities.
(e) the Department of Urban Roads (DUR) with the support of Development Partners and
NGOs (ITDP) has been involved in creating bike paths in Accra and other cities in
Ghana (Tamale). The efforts have led to an increasing appreciation of the use of
bicycles but there is a need to further expand the program to other areas and reduce
the conflict between motorized and non-motorized transport.
3.
Monitoring and Evaluation
The project includes a comprehensive monitoring and evaluation component based on qualitative
and quantitative performance indicators for each of the sub-components. These indicators would
include public transport rider ship data, road safety data, affordability surveys and poverty
impact assessment. This data will be used, in turn, to estimate project-related GHG emission
reductions. A mobile source inventory would be established, strapped to vehicles to track vehicle
position and speeds in addition to other methods of surveying the vehicle population by age and
vehicle-km.
19
The monitoring strategy for this project aims at tracking the changes towards adoption of new
transport patterns and behavior. The objective of the exercise is to provide the GEF with the
necessary information it needs to decide whether expanding their scope to similar sustainable
measures is justified from a climate change perspective. Progress towards the project objectives
will be measured on a regular basis through the following actions:




Design and validation of the monitoring system in cooperation with the implementing
agency and all stakeholders;
Implementation of an automated data processing system;
Project monitoring using the following indicators: (a) public transport use; (b) road
safety; (c) vehicle-km; (d) modal share; (e) travel time and speed; and (f) GHG emission
levels; and
Monitoring through periodic surveys of the target population to measure the market
evolution and to estimate impact of the proposed investments on access to employment
and other opportunities, particularly for the very poor.
20
E. Summary Project Analysis (for details, please see project file)
1. Economic :
A detailed economic analysis would be conducted for all of the program's main civil works
components to be implemented in the first year, as well as a part of the overall maintenance
program over a 4-year program period. The rest will undergo analysis during the project period.
2. Financial :
NPV=US$ million; FRR = %
Financial Management will be done at the macro level within the framework of the MTEF, and
at the project level by the agencies using their contract management systems.
3. Technical:
4. Institutional:
During the RSDP, improvements in institutional structures and efficiency will focus on:
1.
human resource development in the MRH and its three agencies, being defined
through the ODICT-P study;
2.
establishing clear structures and operational practices to apply the Government's
decentralization policy to the roads sector;
3.
improving and consolidating the work practices of the Road Fund;
4.
strengthening NRSC and DVLA;
5.
consolidating the financial management and monitoring systems of MRH and its
agencies; and
6.
introducing systems, regulations and practices to manage privatized operations of
parts of the road system through concessioning, tolling, and performance
contracting.
Procurement issues:
The absence of a comprehensive government procurement code necessitates the mandated use of
financing agencies' procurement guidelines. A national procurement code is under preparation
with assistance from IDA
5. Environmental: Environmental Category: A (Full Assessment)
5.1 Summarize the steps undertaken for environmental assessment and EMP preparation
(including consultation and disclosure) and the significant issues and their treatment emerging
from this analysis. An environmental impact assessment (EIA) of the program was undertaken
by international consultants in association with local experts. The EIA concluded that the project
is unlikely to have adverse effects on the environment, as it mainly involves the maintenance,
rehabilitation and upgrading of existing roads. No new construction is intended, except where
linkage to the next level road has been identified as necessary from both a social and commercial
standpoint. Negative environmental impacts during the works, such as dust, noise, detours,
21
traffic delays, spoil materials, fumes, construction camps and affiliated services, will be of short
duration and will be included in the mitigation plans of the contracting entities. In a very few
cases, removal of structures within the road reservation may be required. Positive
environmental impacts are expected to be achieved through improved safety designs, including
guard rails, barriers, overpasses, sidewalks and road shoulders. Paving of gravel roads will
eliminate dust pollution, and improved drainage will reduce exposure of near-by residents to
waterborne diseases associated with standing water. Improvements in vehicular controls will
address noise and visual pollution issues, reduce road deterioration (through overloading
regulations), and thus minimize the need for extensive road works. Copies of the environmental
assessment reports are available and have been disclosed to the relevant domestic agencies,
stakeholders, as well as external funding agencies. Specific projects under the program will be
identified on an annual basis and the environmental and social impact of each road will be
evaluated individually, in keeping with national environmental assessment requirements, as well
as those of the Bank. An acceptable mitigation framework/plan has been discussed and agreed
upon, and the required additional costs are reflected in the project costs. (See Annex I 1).
5.2 What are the main features of the EMP and are they adequate?
Under the RSDP, the GHA Environmental Unit will continue to ensure that EIAs are prepared
and that the resulting environmental and social mitigation measures are implemented and
monitored. The project will strengthen the Environmental Unit's capacity to implement and
monitor these measures and extend the scope of its work to include DFR and DUR Based on the
environmental and social management experience gained under the HSIP, the EMP, which
includes a resettlement and compensation policy framework, will support the following
activities: (i) environmental and social capacity strengthening, (ii) policy enhancement, and (iii)
environmental and social oversight. As the RSDP adopts a programmatic approach, specific
projects under the program will be identified annually and the environmental and social
assessments of each road will be prepared in keeping with environmental assessment
requirements of Ghana and the Bank.
5.4 How have stakeholders been consulted at the stage of (a) environmental screening and (b)
draft EA report on the environmental impacts and proposed environment management plan?
Describe mechanisms of consultation that were used and which groups were consulted?
The Environmental and Resettlement/Compensation Framework was disclosed at public hearings
beginning November 17, 2000, in conjunction with the Government's annual donor conference in
the road sector held in Accra. A second hearing was held on November 21, 2000, also in Accra.
There were four national broadcasts (two daily) of the EIA on Radio Ghana on November 25 and
December 2, 2000, respectively.
The preparation phase of the GEF financing components has involved several focus group
discussions and workshops involving government agencies, users, private operators, tro tro bus
drivers, bus owners, commercial banks, insurance companies, NGOs and development partners.
Different workshops were conducted to design the project. In a two day workshop,
representatives of the private sector, government, commercial banks and other stakeholders were
involved in detailed discussions - formulating ideas on options to improve the urban transport
22
environment. Based on the discussions, institutional, financial, regulatory, technical and
environmental strategies were developed and presented in a second workshop. The project
design was modified further based on discussions and this was presented in a third high-level
workshop, with participation of the Office of the President and other key stakeholders. In
addition, a number of focus group discussions were organized with the bus operators and users to
inform on the project design. Communication programs were developed to target high-level
actors (ministry officials, city authority, local community leaders, local employers, etc) in order
to build support for the program at the decision maker’s level.
F. Sustainability and Risks
The project would support a number of strategies (with a specific focus on introduction of traffic
management schemes, consolidation of bus operating industry, institutional reforms and
introduction of a limited competition regime) to achieve higher productivity of buses and
improve standards of vehicle maintenance and repair, which would enable a high return to be
earned on the bus investments.
Increased asset productivity derived from improved traffic management would allow the
informal bus operators to attract the necessary funding. Rationalization of bus transport supply
would eradicate predatory competition, increase rider ship and fare box revenues, and reduce
operating costs. This would make the public transport industry more profitable and allow
informal private operators to secure funding, thereby improving chances of financial
sustainability.
The project would also focus on ensuring the sustainability of the critical legal and institutional
structures necessary to support long-term implementation of an integrated urban transport plan.
The strengthening of planning, coordination, monitoring and evaluation capacity in the Greater
Accra Urban Transport Authority would support rationalization of public transport operations
and institutions responsible for regulating the public transport services. Currently, there are
inadequate arrangements to regulate bus services, impose safety standards, plan bus services or
adjust services to better respond to the market demand. Establishment of a regulatory body,
supported by a nucleus of professionals, would ensure institutional sustainability of the BRT
plans, NMT facilities, and limited competitive regime, etc. In addition, setting up institutional
arrangements to coordinate activities related to transport planning, management, monitoring and
implementation would provide a sustainable basis to manage an effective and efficient transport
system in the long run.
23
Potential risks and mitigation
Potential Risks
Mitigation
Risk Rating
Lack of political commitment. The
arrangements to coordinate activities of
multiple Ministries and agencies in the
delivery and management of urban
transport services are not in place.
There could be delays in formulating
the necessary legislation to establish the
appropriate institutions.
The Government has set up an Urban Transport
Advisory Group, with representation from the MRT,
DUR, Ministry of Tourism and Modernization of the
Capital City, municipal assemblies, traffic police and
the private operator. During project preparation, this
group will be formalized with a clearly defined
mandate and supported by legislative rulings. Setting
up of this body would be completed prior to
Negotiations. It is proposed to structure the scope of
this Group in the form of the Greater Accra Urban
Transport Authority to coordinate and manage the
multiple activities during project implementation.
Support will be provided during project preparation
and implementation to the transport planning and
monitoring Group to carry out and monitor bus
franchise arrangements
H
Specific arrangements to strengthen the capacity of
traffic police and city department in traffic
management will be developed during preparation.
Discussions would be held with MRT during project
preparation to develop MMT as a holding company
rather than as an operator. Agreements on suitable
arrangements to ensure fair competition will be
sought prior to Negotiations.
A number of workshops and focus groups have been
organized with the private bus operator to sensitize
them to the project concept. The discussions will
continue during project preparation and the final
recommendations will be based on a consensual
arrangement. The small private operators will be
encouraged to form associations and participate in the
bid for route franchising.
The proposed project will introduce route franchising
arrangements on a pilot corridor. The taxi and trotro
operators will continue to operate along other
corridors. The impact on small operator business will
be examined during project preparation and suitable
mitigation measures proposed.
A number of stakeholder workshops will be
organized to discuss the institutional and operational
alternatives and agreements will be reached on a
common framework.
S
The local authorities and institutions
responsible for regulating public
transport operations have insufficient
institutional capacity to implement the
project
The capacity to plan and implement
traffic management measures remains
weak.
The Metro Mass Transit Ltd continues
its operations with support from
Government, limiting the scope of fair
competition on tendered routes.
The current bus operators do not accept
relocation of their work routes and
rationalization of the transport system.
Introduction of large buses in the formal
sector may have the unintended
consequence of discouraging the private
sector investments.
Introduction of route franchising may
result in a loss of business for the
existing taxi and trotro operators.
Inadequate stakeholder commitment to
the planning process
Overall Risk Rating
Risk rating-H (High Risk), S (Substantial), M (Modest), N (Negligible or Low Risk)
24
S
S
S
S
M
S
ANNEX B: RESULTS FRAMEWORK AND MON ITORING
GHANA: CLIMATE CHANGE MITIGATION IN URBAN TRANSPORT PROJECT
PDO/Global
Project Outcome Indicators
1. To reduce GHG emissions through
the promotion of long term modal shift
to less energy intensive transport
modes in Ghanaian and hopefully
African cities.
(1) Number of trips in public
transportation increase by 10% in
intervened corridors compared to
other modes of transport.
(2) Number of NMT trips increase by
5% in intervened areas compared to
other travel modes.
(3) CO2-equivalent tons emitted by
ground transport decrease by 22%1
(4) Reduction in travel time by at
least 8 minutes per trip by public
transport along pilot corridor
Use
of
Project
Outcome
Information
1. Results will be disseminated to the
international community to help as
guidance for other upcoming projects
2. At local level, results will help
build the case for replication in other
cities
3 Inclusion of results in national
communications to the United
Nations Framework Convention on
Climate Change (UNFCCC) and
inform policy makers in charge of
3. Climate Change mitigation plans
4. Incorporate environmental
considerations into public policy, and
strengthen government technical
capacity based on project outcome
Intermediate Outcomes
Intermediate Outcome Indicators
Component 1 – Institutional Strengthening
1. The Urban Roads Department and
1. Legal and institutional framework
the Ministry of Transportation have
drafted prior to project
acquired the capacity to plan,
implementation.
implement, and monitor urban
transport infrastructures and services.
2. Regulatory body established to
manage and monitor bus franchise in
the BRT pilot corridor
5. Identify key elements for a scaleup project for additional financing
from development partners.
Use of Intermediate Outcome
Monitoring
1. Periodical reports on sustainable
transport measures
2. Dissemination of policy options to
enhance public participation and
allow feedback
3. Review of draft plans, policies by
international experts to enhance
quality and ensure consistency
4. Identification of gaps or
shortcomings in understanding
among local leaders and technical
staff, and determining whether GEF
resources are appropriately focused
in response.
1
Comparing with and without project scenarios
25
Component 2 - Traffic Engineering, Management and Safety
1. Increased public acceptance of
1. Number of sensitization campaigns
cycling as mode of transport;
to promote walking and/or cycling
for one or more groups.
2. Committed budget allocations to
upgrade pedestrian and biking
2. Number of km of pedestrian and
facilities;
bikeways.
3. Proper zoning to stimulate
interconnectivity of NMT to other
transport modes
3. Policies and plans promoting
multi-sector transport development,
including multi modal transport
1. Periodical progress reports
2. Dissemination material and
promotion of public participation
3. Review of draft regulation plans to
ensure consistency
4. Capacity building workshops for
policy makers and budget planners
Component 3 -Integration of Land use planning, transport management and environmental management
1. Land use planning, transport
1 MAPs of integrated land use
1. Periodical progress reports,
management and environmental
planning for Accra Metropolitan area creation of institutional bodies
management are integrated
produced.
2. Dissemination of results
2. Adequate legal framework for mix
2. BRT corridor established along 10
land-uses and interconnectivity of
km route, Wineba – Graphic road
3. Assessment and
pedestrian facilities in densification
enhancement of successful
areas;
3. Policies and regulations for mix
GEF funded activities that are
land-use and interconnectivity of
most effective at encouraging
pedestrian facilities are drafted,
coordination of transport, landuse, and environmental
planning.
4. Procedures for planning & design
of BRT systems adapted based on
pilot outcome.
Component 4 - BRT Infrastructure design and implementation
1 BRT system infrastructure and
1. Number of persons using the BRT
design implemented.
steadily increasing ;
2. Travel time for BRT users
decreased compared to earlier mode
of public transport
3. Traffic congestion levels
decreased in the BRT and the bus
corridors, compared, compared to the
levels before the BRT
Component 5 – Monitoring and Evaluation
1. A monitoring and evaluation system 1. Number of M&E reports regularly
of the BRT is in place, encompassing
produced
both transport, environmental and
social variables
2. Number of GHG M&E reports
regularly produced
2. GHG emissions are monitored
1. Periodical progress reports
2. Dissemination material and
Promotion campaigns
3. Review of draft plans regulations
to ensure consistency
1. Critical review of reports
produced to ensure quality, before
dissemination
2. M & E reports
3. Dissemination of M7E reports
26
Arrangements for results monitoring
Key indicators
Project Outcome
Indicators
Target Values
YR2
YR3
YR4
Data Collection and Reporting
Frequency
Data
Responsibili
and
Collection
ty for Data
Reports
Instruments
Collection
Baseline
YR1
1 The Urban Roads
Department and the
Ministry of
Transportation have
acquired the capacity
to plan, implement,
and monitor urban
transport
infrastructures and
services
Training
opportunit
ies
identified
Establishmen
t of training
“curriculum”
and
execution of
the first
training
sessions
Continuation
and
completion
of training
“curriculum”
Training by
doing
Training by
doing
Annual
Progress reports
Field surveys
DUR
PPO
2. Number of trips by
public transportation
increased by 10% in
pilot corridor
40%
40%
45%
45%
50%
Annual
Annual
DUR
PPO
3. CO2 equivalent
tons emitted by ground
transport decrease by
22%
5%
10%
15%
22%
Annual
Annual
DUR
PPO
4. Number of NMT
trips increase by 5% in
intervened areas
0%
1-3%
3-5%
5%
Quarterly
and Annual
Quarterly and
Annual
5. Reduction in travel
time by at least 8
minutes per trip by
public transport along
pilot corridor
Base line
established
<5 minutes
5 minutes
0
Core team
set up
Policy
preparation
Continue
preparation
Policy
adopted
Quarterly
and Annual
Quarterly and
Annual
DUR
PPO
0
Core team to
start with
data and
information
collection
Preparing
Standards
Draft core
standards
ready for
adoption
Regulations
adopted
Quarterly
and Annual
Quarterly and
Annual
DUR
PPO
DUR
PPO
8-10 minutes
Intermediate Outcome
Indicators
1. Legal and
institutional
framework drafted
prior to project
implementation
2. Regulatory body
established to manage
and monitor bus
franchise in the BRT
pilot corridor
27
4. Number of km of
pedestrian and
bikeways.
Establishmen
t of a
baseline
+ 10
At least 5 km
a year, on
each side of
the BRT
+20
At least 10 km
in other bus
corridors
+20
At least 10 km
in other bus
corridors
Quarterly
and Annual
Quarterly and
Annual
DUR
PPO
Core team
set up
policy
preparation
Continue
preparation
Policy
adopted
Quarterly
and Annual
Quarterly and
Annual
DUR
PPO
MAPs
prepared
Further
refined and
updated
Quarterly
and Annual
Quarterly and
Annual
DUR
PPO
5. Policies and plans
promoting multi-sector
transport development,
including multi modal
transport
0
6. MAPs of integrated
land use planning for
Accra Metropolitan
area produced.
0
7. BRT corridor
established along 10
km route, Wineba –
Graphic road
Feasibility
study and
detailed
design
Start of civil
works
including
BRT
terminals
Continuation
of civil
works
Continuation
of civil works
Completion of
civil works
along 10km
corridor
Quarterly
and Annual
Quarterly and
Annual
DUR
PPO
9. Number of persons
using the BRT steadily
increasing
0
Survey of
number of
persons
traveling
along
projected
BRT
corridor
Update of
survey
10%
20-30%
Quarterly,
monthly and
Annual
Quarterly,
monthly and
Annual
DUR
PPO
Update of
travel dairy
survey
Update of
travel dairy
survey
Quarterly,
monthly and
Annual
Quarterly,
monthly and
Annual
DUR
PPO
Update of
survey for
traffic
congestion
levels
Update of
survey for
traffic
congestion
levels
Monthly
Quarterly
and Annual
M&E system
in place and
operating
M&E system
in place and
operating
Monthly
Quarterly
and Annual
M&E system
in place and
operating
M&E system
in place and
operating
Monthly
Quarterly
and Annual
10 Travel time for
BRT users decreased
compared to earlier
mode of public
transport
11. Traffic congestion
levels decreased in the
BRT and the bus
corridors, compared,
compared to the levels
before the BRT
12. Number of M&E
reports regularly
produced
13. Number of GHG
M&E reports regularly
produced
0
0
0
0
Travel diary
survey
Survey of
traffic
congestion
levels
M&E core
team
established
and
operating
M&E core
team
established
and
operating
Update of
travel dairy
survey
Update of
survey for
traffic
congestion
levels
M&E system
in place and
operating
M&E system
in place and
operating
28
Monthly
Quarterly and
Annual
DUR
PPO
Monthly
Quarterly and
Annual
DUR
PPO
Monthly
Quarterly and
Annual
DUR
PPO
29
Map 1: Map of Selected Corridors for Implementation of Bus Rapid Transit Scheme
aaaa
BRT 1: Guggisberg Ave.
BRT 2: Winneba / Graphic Rd
BRT 3: Nsawam Road
BRT 4: Liberation Rd / Independence Ave
BRT 5: Ring Road
BRT 6: Motorway Extenssion
BRT 7: Accra - Tema
BRT 8: Nima / Kanda Highway
CBD / Ministries Circulation system
Dotted lines = high capacity feeder routes
aaaaaaaaaaaaaa
Annex 2
Ghana Urban Transport Project
Sector Background
The urban transport situation in Greater Accra Metropolitan Area
Accra, the capital city and main administrative and commercial centre of Ghana, had a
population of 1,659,000 in 2000, while the population of the other urban centres were: Tema
506,000 and Ga 550,000. The combined effect of growth and migration will be to increase the
population of GAMA to just less than 4 million by 2013, and by 2023 the combined population
of the three assemblies will exceed 5 million.
Population growth and increasing rates of car ownership are expected to increase the number of
cars in GAMA from 181,000 in 2004 to over 1 million in 2023.
The highest traffic volumes are found in the Winneba Road and Liberation Road corridors,
which have volumes over 50,000 vehicles per day at certain points.
30
Approximately 10,000 vehicles enter the central area of Accra within the Ring Road in the
morning peak hour and on a typical weekday 270,000 vehicle trips are made into, or out of, the
Accra central area. Higher volumes, of approximately inbound 16,000 vehicle trips in the
morning peak hour and 300,000 daily vehicles trips in both directions, cross into the area inside
the motorway extension. These vehicle trips correspond to 50,000 inbound passenger trips into
the Accra central area and 85,000 into the area inside the motorway extension in the morning
peak hour. Approximately 1.3 million passenger trips per day are estimated to enter or leave the
area within the Accra Ring Road and 1.6 million passenger trips into or out of the area within the
motorway extension.
Eighty four percent of these passenger trips are made by public transport. Over half (56%) of
daily passengers are carried by trotros, and a further 15% by taxi. Approximately 1 million
passenger trips are made each day into and out of the central area of Accra using trotros and
taxis. In Accra trotros and taxis carry an average number of passengers per trip of 13 and 2.3
respectively. These vehicles are inefficient in terms of the amount of road space used, and
congestion caused, to transport each passenger.
Congestion is a major problem on arterial routes with 70% of major roads operating at
unacceptable level of service at some time during the day (<20 km/h). Considerable scope
therefore exists to improve the efficiency of people movement through a shift from low capacity
public transport vehicles to large and double-decker or articulated buses with the potential to
carry over 100 passengers.
Government control over the operation of public transport is very limited; however the private
operations are strictly controlled by trade unions of which the most powerful is the Ghana
Private Road Transport Union (GPRTU). The overall quality of public transport is poor, most
vehicles are old, and maintenance standards are extremely low. High vehicle maintenance costs
arising from poor road surfaces and limitations imposed on earnings by the acute congestion on
the urban roads constrain the operators to invest in new vehicles. The limited number of vehicles
and their low capacities result in long waiting times during the morning and evening rush hours.
BRT Background
The key technical elements of BRT are borrowed from rapid rail systems, These elements are
aimed to provide high quality service to the users by minimizing the time buses are stopped for
boarding and aligning of the passengers (dwell time), maximizing the vehicle cruise speed,
facilitating transfers and enhancing the reliability of bus operations. Six major BRT technical
elements have been identified as BRT characteristics:

Running-Ways range from general traffic lanes to fully-grade separated BRT
transit-ways.

Stations vary from simple stops with basic shelters to complex inter-modal
terminals with many amenities.

Vehicles - BRT systems can utilize a wide range of vehicles, from standard buses
to specialized vehicles.

A BRT system requires a Service and Operations Plan that specifies vehicle frequency,
31



reliability, and coordination, as well as the route alignment and structure.
Fare collection options range from traditional pay-on-board methods to pre-payment with
electronic fare media (e.g., smart cards).
A wide variety of Intelligent Transportation Systems (ITS) technologies can be
integrated into BRT systems such as vehicle priority, operations and maintenance
management, operator communications, real-time passenger information, and
safety and security systems.
In a developing metropolitan area like Greater Accra it is necessary to combine the
technical elements of BRT with a series of regulatory, financial, institutional and legal
elements to provide a sustainable public transportation system. The purpose of these
elements is to turn the prevailing negative aspects of current public transportation service
provision, into an adequate structure.
Outline design of the BRT route network
The proposed long-term BRT network consists of a combination of radial and circumferential
routes that together will form a network of routes that cover most major employment areas. Due
to the capital costs involved in providing the BRT running-ways the proposed BRT network is
restricted to major corridors of demand. Based upon the general criterion of hourly peak
passenger bi-directional flows greater than 10,000 in 2013, and the need to provide an integrated
public transport network, the following routes were identified as routes on which Bus Rapid
Transit (BRT) services should operate in an exclusive running-way:










Guggisberg Avenue from Mpoase to CBD.
Winneba Road from Mallam to CBD
Nsawam Road from Apenkwa to CBD
Liberation Road and Independence Avenue from Tetteh Quarshie to CBD
Ring Road from Korle Bu to Labadi
Motorway Extension from Mallam to Tetteh Quarshie
Accra - Tema Coastal Route
Nima / Kanda Highway
CBD / Ministries circulation system
Feeder services are required to link the dispersed residential areas of the study area to the
high capacity BRT trunk routes. A hierarchy of feeder services is proposed in order to
maximise the usage and efficiency of the BRT service. On high volumes routes that do not
meet the criteria for BRT services on a dedicated running way, high capacity feeder
services are proposed.
It is envisaged that dedicated BRT routes would replace the high-capacity feeder routes
described above when demand on the feeder routes warranted a higher level of service.
On lower density routes, feeder services are proposed that will utilise existing trotro operators
using vehicles of capacity similar to existing trotros. These mid-capacity feeder services should
32
be a formal part of the BRT system, and operated under contractual agreements between the
operators and the relevant Public Transport Authority. Low-capacity feeder services would be
provided on an informal basis by current taxi operators.
Non-motorised transport plays an important role in provision of feeder services. An integrated
system of pedestrian walkways and bicycle routes will increase accessibility of the system, in
particular for low-income users.
The location of proposed trunk and feeder routes is shown below.
BRT 1: Guggisberg Ave.
BRT 2: Winneba / Graphic Rd
BRT 3: Nsawam Road
BRT 4: Liberation Rd / Independence Ave
BRT 5: Ring Road
BRT 6: Motorway Extenssion
BRT 7: Accra - Tema
BRT 8: Nima / Kanda Highway
CBD / Ministries Circulation system
Dotted lines = high capacity feeder routes
BRT Options for a general hypothetical corridor
Most of the general characteristics of the initial pilot corridor will be applicable to other
corridors in Accra. For this reason a set of characteristics was generated that will be applicable
for the whole system and not only for the initial pilot corridor. An analytical tool was developed
to calculate at a macro level the expected costs and impacts of a given option. The model
incorporates several characteristics of the BRT corridor and calculates the capital and operational
costs for infrastructure, buses and fare collection system. Infrastructure includes the
rehabilitation or construction of bus lanes, construction of transfer and terminal facilities and
construction of garages. Travel time impacts on the passengers are also estimated.
Options were compared pair by pair using outputs of the cost and impacts model as well as other
general considerations. A preferred option was selected from the pair, which became the base
33
case for the next step-wise comparison. From this procedure the general characteristics of the
BRT network for Greater Accra were defined as:

Closed system of operator access in preference to an open system.

Feeder-trunk services with interchange in preference to direct services.

Median running-way location within the roadway in preference to bi-lateral curb-side
lanes.

Median station location in preference to outer (lateral) stations in a median BRT system.

Station platforms at saloon-floor height in preference to bus first-step height

Pre-paid in preference to on-board fare collection

Bus passing lanes at stations in preference to single lane operation

Integrated downtown distributor services in preference to a CBD terminus.
Other options were left to be analysed later in the study specifically for the selected corridor.
Selection of the pilot BRT corridor
In order to select a corridor for pilot implementation, the Project Team assessed the degree of
compliance of each of the potential BRT corridors with a number of criteria. Five high level
criteria, some of which had second- and third level sub-criteria, were evaluated:
Each criteria and sub-criteria were either quantitatively or qualitatively rated and then
normalised on a scale of 0 to 1. The table below shows the normalised scores, where a higher
score more positive compliance with the criteria.
Criteria
Travel demand
Ease of
implementation
Transport
impact
Access for low
income
population
Urban planning
impact
BRT 1
BRT 2
BRT 3
BRT 4
BRT 5
BRT 6
BRT 7
Guggisberg
Winneba
Nsawam
Liberation
Ring Rd
M’Way ext
Tema
0.00
1.00
0.86
0.71
0.54
0.01
0.07
0.27
0.78
1.00
0.88
0.65
0.70
0.53
0.25
1.00
0.08
0.25
0.92
0.00
0.67
1.00
0.46
0.92
0.00
0.69
0.46
0.77
0.45
0.70
1.00
0.81
0.15
0.28
0.36
The relative importance of each criteria (and sub-criteria) was established by a series of
interviews with relevant role players. A combined score for all interviews was determined for
each criterion as follows:
Transportation impact
27.7%
Total travel demand
26.4%
34
Accessibility low income population
21.4%
Cost/ease of implementation
17.7%
Urban planning impacts
6.8%
Applying the weightings for each criterion to a normalised rating the following aggregate scores
were obtained of the relative attractiveness of each corridor for pilot implementation.
1.0
0.80
Utility rating
0.8
0.65
0.65
0.6
0.47
0.43
0.4
0.35
0.22
0.2
0.0
BRT 1
BRT 2
BRT 3
BRT 4
BRT 5
BRT 6
BRT 7
The highest ranked corridor was BRT 2: Winneba / Graphic Road from Mallam to the Accra
CBD, which scored 0.80. Winneba Road rated highly with regard to the number of potential
users of the system and the impact that the BRT will have on travel time in this corridor.
Notwithstanding the need for grade separation at Obetsebi Lamptey Circle and the Railway
crossing on Graphic road, the existing portion of three lane road, and relatively low impacts on
the Graphic Road section contributed to a good scoring for ease of implementation. Integration
with the CBD and good linkages to transportation infrastructure resulted in an above average
rating for BRT with regard to urban planning impacts. BRT 2 however scored below average on
accessibility to low income communities.
Based upon the preceding analysis the ranking of the various routes analysed was found to be
relatively robust to changes in the weighting of criteria. The seven potential BRT routes were
therefore ranked in decreasing order of priority for implementation as follows:
1.
2.
3.
4.
5.
6.
7.
BRT2 Winneba Road from Mallam to CB
BRT3 Nsawam Road from Apenkwa to CBD
BRT5 Ring Road from Korle Bu to Labadi
BRT7 Accra - Tema along the Tema Beach Road
BRT4 Liberation Road and Independence Avenue from Tetteh Quarshie to CBD
BRT1 Guggisberg Avenue from Mpoase to CBD
BRT6 Motorway Extension from Mallam to Tetteh Quarshie
Corridor BRT 2 therefore can be considered as offering the best combination of demand, ease of
implementation, transport impact, attention to low income population and urban and regional
planning impacts. Therefore the Winneba / Graphic Road corridor from Mallam to the CBD was
selected for implementation of the BRT pilot project.
Travel demand and transport supply analysis in the Pilot Corridor
Current traffic volumes at the Accra Academy on Winneba Road are 60,100 per day. Of this
traffic 13,300 (22%) were taxis, 18,100 (30%) were trotros and 5,700 (10%) were buses. Traffic
was heaviest in the morning peak, and thereafter declined during the remainder of the day.
35
Morning peak hour traffic comprised 8.6% of daily traffic, and the evening peak was
significantly lower with 5.7%.
Traffic volume is lower inside the ring Road. AT Japan Motors on Graphic Road daily traffic is
38,600 vehicles, with a more even spread between morning and evening peak. The evening peak
hour, with 6.8% of daily traffic was slightly higher than the morning peak hour which had 6.6%
of daily traffic.
Current trotro fares in the corridor are 2,500 for a trip from Mallam into the CBD, and 1,800
from Mallam to Kaneshie Market. The cost of feeder services varies significantly. The highest
fare is 2,500 from Kasoa to Mallam, however certain origins such as Anyaa require two feeder
trips to reach the pilot corridor which increases the feeder fare. An average fare for existing
feeder services to the pilot corridor is 2,000 per trip.
Kaneshie Market
= Trunk terminal
= Feeder terminal
= Modal interchange
= Trunk Station
Nkrumah Circle
Roxy Cinema
Kingsway
Accra
Poly (Tudu)
First Light
(Outer Ring Road)
Accra Academy
Darkuman junction
Ordorkor junction
Busia Junction
Dansoman High St
Market
New Gbawe Rd junction
Kasoa
Prampron / Ring Road
Legend:
= CBD / Circle Route
= CBD / Ministries Route
= Feeder Routes
Gbawe
Anyaa
Santa Maria
Nyameche Junction 1
Trunk, feeder and CBD distribution routes were planned based upon existing public transport
infrastructure and demand patterns, together with providing access to major trip generators and
attractors. The following figure summarises the proposal for Feeder, Trunk and CBD circulation
routes, together with the location of stations on the BRT pilot corridor.
Fire Station
Makola
Mall
Dansoman Roundabout
Schematic pilot BRT route map
Levels of travel demand on the BRT trunk and feeder routes was analysed using the Questor
model developed during the earlier DHV study. A ten year horizon was deemed appropriate for
analysis of the BRT system. The analysis therefore used the Questor model for the year 2013 in
addition to the base year of 2004.
It must be stressed that the Questor model used for this analysis was developed for the purposes
of regional demand modelling of road network improvements throughout GAMA. With 140
zones in the GAMA model the degree of accuracy available from the model is very coarse for
the purposes of operational demand analysis. The impact of this is particularly noticeable in the
36
vicinity of centroid connectors such as the Kaneshie zone. Nevertheless, the volumes obtained
from the model were considered to be sufficiently indicative for the purposes of this prefeasibility assessment. Passenger volumes obtained from the model along the trunk portion of
the proposed pilot BRT route, for each of the four periods analysed are shown in the figure
below:
0
1000
2000
3000
4000
5000
6000
Route Distance (m)
7000
8000
9000
10000
-5000
Inbound
0
1000
K' Nkrumah
Outer Ring Rd
Kaneshie Market
Darkuman Rd
Ring Road
7000
8000
9000
10000
Outbound
2000
3000
4000
5000
6000
Route Distance (m)
7000
8000
9000
-5000
Inbound
10000
K' Nkrumah
Ring Road
Outer Ring Rd
Accra Academy
Darkuman Rd
Kaneshie Market
5000
Dansoman Rd
Mallam
Passengers / Direction / Hour
K' Nkrumah
Ring Road
Kaneshie Market
Outer Ring Rd
Accra Academy
Dansoman Rd
Darkuman Rd
Ordorkor Junction
Dansoman High St
1000
10000
Dansoman High St
2013 PM Peak hour passenger load
15000
Mallam
Passengers / Direction / Hour
4000
5000
6000
Route Distance (m)
Inbound
0
-10000
3000
-10000
2013 AM Peak hour passenger load
0
2000
-5000
15000
5000
Dansoman Rd
0
Outbound
-10000
10000
Ordorkor Junction
5000
Dansoman High St
Mallam
10000
Ordorkor Junction
0
Passengers / Direction / Hour
K' Nkrumah
Ring Road
Kaneshie Market
Outer Ring Rd
Accra Academy
Darkuman Rd
5000
Dansoman Rd
10000
Ordorkor Junction
Mallam
Passengers / Direction /
Hour
Dansoman High St
15000
Accra Academy
2004 PM Peak hour passenger load
2004 AM Peak hour passenger load
15000
0
0
1000
2000
3000
4000
5000
6000
Route Distance (m)
7000
8000
9000
10000
-5000
Outbound
Inbound
Outbound
-10000
Peak hour passenger demand profiles
The profiles above vary slightly from the earlier demand assessment used to select the pilot
corridor. The main differences are the different assumptions regarding mode shift, and the fact
that the modelling for corridor selection included the full long-term BRT network, whilst the
analysis above incorporated only the pilot corridor.
It is interesting to note the relatively low growth projected between 2004 and 2013. The
estimated ridership is projected to grow at an annual rate of 1.7%. This low value is largely due
to the anticipated high growth of private vehicle ownership, and subsequent mode swing towards
private cars. For the purposes of the modelling shown above it was assumed that no current (or
future) private car users would shift mode to the BRT. This is a conservative assumption as
experience on South American systems has clearly demonstrated that provision of a high quality
BRT system has the potential to attract car users.
Annual passenger volumes were calculated assuming:

Daily passenger volumes equals morning plus evening peak volumes multiplied by 5

320 Equivalent weekdays in a year.

Ratio of total passenger trips to peak section volume = 1.4
Key parameters derived from the demand modelling exercise are shown below.
Peak cross section
Total
Total
AM Peak
PM Peak
Route
demand demand
37
Inbound Outbound Inbound Outbound
pax/hour pax/hour pax/hour pax/hour pax/day
Trunk route
2004
2013
Feeder routes
CBD / Circle
CBD /
Ministries
Kasoa
Gbawe
Anyaa
Santa Maria
Nyameche
Dansoman
13,500 6,500
14,700 8,500
4,400 6,900
5,700 7,500
2,900 One-way
2,100 One-way
3,400 One-way
1,600
1,100
3,100
1,800
2,700
1,500
7,700
5,300
2,200
600
1,900
1,900
2,000 One-way
800
1,300
2,000
2,000
900
1,400
3,700
4,100
600
1,100
1,400
1,900
38
pax/year
217,000 69,400,000
253,000 81,000,000
35,000 11,200,000
38,000
33,000
62,000
45,000
145,000
31,000
49,000
12,200,000
10,600,000
19,800,000
14,400,000
46,400,000
9,900,000
15,700,000
ANNEX 3
GHANA URBAN TRANSPORT PROJECT
Description of Components
COMPONENT 1. INSTITUTIONAL STRENGTHENING AND CAPACITY BUILDING (US$2.0 MILLION). THE
PROPOSED GEF FINANCING WOULD SUPPORT THIS COMPONENT PARTICULARLY TO STRENGTHEN CAPACITY
OF THE URBAN ROADS DEPARTMENT AND MINISTRY OF ENVIRONMENT TO PLAN, MANAGE AND MONITOR
URBAN TRANSPORT OPERATIONS AND SERVICES. THIS COMPONENT DESIGNED AS AN OUTCOME OF A
DIAGNOSTIC AND CAPACITY ASSESSMENT EXERCISE CARRIED OUT JOINTLY WITH THE EXPECTED
BENEFICIARIES, AIMS AT LAYING THE GROUNDWORK FOR IMPROVING PERSON MOVEMENT AND
ENVIRONMENTAL MANAGEMENT. THE GEF FINANCING WOULD SUPPORT: INSTITUTIONAL
STRENGTHENING AND CAPACITY BUILDING BOTH FOR THE PUBLIC SECTOR BODIES MANAGING THE
SYSTEM, INCLUDING NECESSARY MONITORING AND EVALUATION CAPABILITY, AND THE PRIVATE SECTOR
OPERATORS PROVIDING THE TRANSPORT SERVICES; IMPROVED CAPACITY FOR DISPATCHING AND
SCHEDULING BUS SERVICES, BUS MAINTENANCE MANAGEMENT, FARE COLLECTION METHODS, BUS
DRIVER TRAINING. THIS COMPONENT WOULD ALSO SUPPORT INTRODUCTION OF A ‘LIMITED
COMPETITION’ REGIME FOR THE REGULATION OF URBAN PASSENGER TRANSPORT, AND ESTABLISHMENT
OF THE ASSOCIATED PLANNING, PROCUREMENT, MONITORING AND EVALUATION CAPACITY. MINISTRIES
DIRECTLY INVOLVED INCLUDE MRT, MINISTRY OF TOURISM AND MODERNIZATION OF THE CAPITAL CITY
(MTMCC) AND MLGRD. RELEVANT LOCAL AUTHORITIES INCLUDE ACCRA METROPOLITAN, TEMA
MUNICIPAL AND GA DISTRICT ASSEMBLIES.
This component would also include:
 Development of a public transport regulator and a service planning / procurement agency to support
the introduction of a ‘limited competition’ regime for urban passenger services in Accra.
 Replacing competition on the route with competition for the route will reduce the congestion and
blocking at bus stops that often spills over into adjoining traffic lanes. Not only will PT vehicles
operate more smoothly, consuming less fuel in the process, but so will the general traffic that is being
obstructed by the overspill.
 Institutional capacity will also be built in the enforcement agencies, particularly DVLA, EPA, and
MTTU. Raising the quality of vehicle inspection will eliminate the most polluting vehicles from the
roads, as well as improving road safety. Improving driver training and testing will enable an
improvement in standards, including a reduction in fuel consumption through better technique.
Helping EPA to develop its monitoring of vehicle emissions (both on the road and at the testing
stations) will improve the environmental performance of the vehicle parc – this component will
support an initiative being developed by Danida. Finally, training and equipping the MTTU of the
Ghana Police Service will help to raise general driving standards.
COMPONENT 2. TRAFFIC ENGINEERING, MANAGEMENT AND SAFETY .
The component would support the long-term objective of implementing a Bus Rapid Transit (BRT), with
an immediate focus on facilitating person movement on major corridors through a combination of traffic
management and implementation of improved bus transport system and creating an environmentally
39
sustainable urban transportation system; The area-wide traffic management measures for the main travel
corridors in GAMA consists of intersection improvements and arterial traffic management. The
intersections in Accra proposed for improvement were evaluated and the following priority junctions
were selected. Investments are focused on low-cost measures for intersection improvements and arterial
traffic management. Selected components all offer a very high rate of return, based both on passenger
time savings and reductions in fuel consumption.
The traffic and environmental measures will be implemented along the following corridors:
 BRT corridor
 Ring road
 Accra-Tema Coastal route
 Accra-Tema corridor
 Motorway extension
This component would support the long term objective of implementing a BRT system, by removing
immediate bottlenecks in traffic flow, strengthening traffic management, developing a detailed BRT plan
and putting in place incentives for a gradual phase out of the old polluting buses.
The specific activities would include traffic management measures, bus maintenance facilities, transport
lay-byes, improvements in riding quality of roads, pedestrian walk facilities, intersection improvements,
bus stops, bus-only lanes and education and enforcement measures. This component would also focus on
capacity development for introducing a ‘bus rapid transit’ system in a pilot corridor, with associated
traffic management, non-motorized feeder services and network integration in the central business
district.
Component 3. Integration of land use/transport management and environmental
management
Background. This component is aimed at promoting sound transit oriented development policies
and sustainable transport elements in current plans and strategies. The component will explore
arrangements to further promote the use of bicycle and pedestrian ways in selected areas as a
viable and safe alternative to private cars. This component will also help design instruments and
incentives, including an action plan for implementation of changes in current land-use patterns.
The project will make use of traffic demand management measures by focusing on the city
corridor that will implement the BRT system. Measures such as selective street closures, parking
controls, pedestrianization schemes, traffic-cell circulation patterns or congestion pricing could
help reduce traffic volumes and associated costs to promote a more efficient transport of freight
in the city.
40
The IDA financed base line activity would support sound transit oriented development policies and
sustainable transport elements in current plans and strategies. The component will explore arrangements
to further promote the use of bicycle and pedestrian ways in selected areas as a viable and safe alternative
to private cars. This component will also help design instruments and incentives, including an action plan
for implementation of changes in current land-use patterns. Specific components include:
c.
Strategic transport-land use plans (US$650,000). This component would finance
preparation and annual review of transport plans for the Accra metropolitan area;. (there
must be parts of this that are specific to improving public transport and facilitating BRT
that would be appropriate for GEF support)
d.
Development of data base inventory (US$1,300,000). This component will finance: 1)
review and assess a comprehensive vehicle technology binning system; 2) collection of
data on vehicle driving patterns per vehicle per class; 3) estimation of average vehicle
kilometers traveled per day, by different vehicle classifications along key corridors in
different types of traffic conditions. The data would be conducted on an annual basis for
the four years of project implementation;
e.
Strategic Environmental Assessment (SEA) of Land Use Plan (US$550,000). GEF will
fund the SEA of master land-use plans, which in many cases need to be updated to
accommodate to new realities of development plans. This component will also finance
training of Environmental Protection Agency (EPA) staff to build capacity to generate
emission inventories for the Accra metropolitan area;
f. Estimation of cold starts and hot soaks (US$200,000). Based on the information collected on
total vehicle kilometers traveled by vehicle type and roadway class as part of base line
studies, this component would finance estimation of cold starts, during which emission
levels tend to be higher than under normal operating conditions depending on type of
technology used. It will also estimate hot-soak periods; and
g.
Real life emission management and measurement (US$600,000). The objective is to
estimate emissions from originally clean, three way catalyst cars in the city. The
emission factors are not known and purpose is to investigate the extent to which the
lamda sensor regulates the air/fuel mixture and the extent to which the cleaning system
still works. This component will finance purchase of a new not contaminated car with
three-way catalyst and conduct research to estimate emissions from cars driven on
Ghanaian gasoline at periodic intervals (2 months, 6 months, 1 year) and compared to
emissions from new car models from official homologation index.
1.12 The GEF financed incremental activity would support:
f)
Study to Determine Environmental Impact of Passenger and Freight Transportation
(US$300,000). This component will fund development and implementation of TOR and
execution of a base line study to determine the level of emissions of GHG and air
pollutants resulting from current freight transportation practices, in order to determine a
sound baseline. The studies will assess opportunities for reducing emissions as result of
freight management programs, and will propose alternative freight management measures
improving the efficiency of freight transport (primarily energy use), ranging from
mobility plans and traffic management, to advanced logistic design for freight transfer
stations. Also, the study will assess the need for fleet renewal regulation and incentives.
The study will be limited to the urban areas of the city implementing BRT system;
41
g)
Study on Mobility Plans and NMT (US$300,000). This component will finance studies to
develop a sound mobility plan for the Accra metropolitan area and formulate a Master
Plans for Non motorized transport (NMT), particularly bicycles;
h)
Bus Route Restructuring (US$500,000) for BRT system. This component will finance
development and implementation of TOR for studies aimed at restructuring bus routes in
Accra.
Component 4. BRT Infrastructure design and implementation
Background. A corridor was selected for pilot implementation, based upon the degree of
compliance of each of the potential BRT corridors with passenger demand, cost, potential
impact, accessibility to low income communities and urban and regional planning impacts are
criteria.
The selected corridor is Winneba Road and Graphic Road from Mallam to the Accra CBD. This
route is the heaviest loaded route in the metropolitan area and was predicted to carry the highest
number of potential users of the system, as well as to deliver the largest saving in travel time.
Grade separation is likely to be required at two locations on the route, namely at Obetsebi
Lamptey Circle at the intersection with the Ring Road and the Railway crossing on Graphic road.
Most of the route from Mallam to the Ring Road on Winneba Road has three lanes per direction,
and a portion of this has adjacent service lanes. Graphic Road, which links he Ring Road to the
CBD has two lanes per direction.
Within the CBD two circulation routes are proposed: the CBD / Circle route utilises the existing
3 lane / direction one-way pair of Kwame Nkrumah Avenue and Kojo Thompson Road, whilst
the CBD / Ministries uses an portion of Kwame Nkrumah Avenue and predominantly 4 lane dual
carriageway roads for the remainder of the circulation route.
The IDA/GOG financed activity would support:
b. Environmental analysis of pilot corridor and CBD distributor routes (US$500,000). An
Environmental Assessment shall be undertaken of potential impacts, e.g., loss of trees,
adequate drainage, increased pollution levels, health and safety, etc., and appropriate
mitigation measures and management arrangements as part of the preparation and
implementation of an Environmental Management Plan. The Environmental Management
Plan will summarize anticipated environmental and social impacts of the project and will
provide details on the measures, responsibilities and scheduling to mitigate these impacts, as
well as costs of mitigation and monitoring. Mitigation measures and responsibilities for
mitigation will be contained in the Environmental Management Plan (EMP). EMPs will
provide a critical link between the mitigation measures specified in an Environmental
Assessment report and the integration of such measures during the implementation and
operation of the project.
c.
Infrastructure ( stations, terminals, pedestrian and bicycle access, intersections, feeder
routes) (US$6,000,000). This component will finance: road rehabilitation, grade
separation, topographic surveys, geotechnical surveys; conceptual design and
42
implementation of Obetsebi Lamptey Circle Flyover; civil works for BRT requirements
for: geometric alignment and pavement structure for bus way, station, terminal and
depots designs, such as required width of bus way, bus occupation, station occupation,
load factors for selected bus under desired bus occupation, area plans for stations,
terminals and depots (facilities included, minimum areas), required ancillary facilities
(criteria for pedestrian overpasses or signalized pedestrian crossings, width of pedestrian
an bicycles facilities; and engineering and architectural design of roads (reconfiguration
of bus way corridor geometry and rehabilitation of feeder roads).
1.15 The GEF financed incremental activity (US$5,500,000) would finance:
a.
Infrastructure design of BRT System and Facilities (US$1,000,000). Elaborate the
technical, social and environmental design of a pilot BRT project to be implemented in
the short term; This component will finance the creation of a user friendly BRT system
incorporating the needs of pedestrians and bickers using the BRT. Pedestrian facilities
and BRT terminal facilities will be part of the infrastructure design.
b.
Engineering and Design of the exclusive bus lanes along the BRT corridor
(US$4,500,000). The GEF financing would supplement the IDA/GOG financing of road
rehabilitation and grade separation at intersections by financing creation of exclusive bus
lanes along the BRT corridor. Without the exclusive bus lanes, the improvements of
roads and traffic management may have the unintended impact of promoting vehiclekilometers traveled, which may increase rather than decrease GHG emissions. By
financing exclusive bus lanes, movement of mass transport will be facilitated, bus
operations will become profitable and financial incentives will be created for the bus
owners and operators to finance clean large buses and substitute them for old small
vehicles. This is expected to promote modal shift to more efficient and less polluting
forms of public and freight transport. This initiative would provide an opportunity of
reduction in GHG emissions and promote technologies whose cost will drop significantly
with economies of scale in manufacture and increase in demand.
Component 5. Monitoring and Evaluation (US$3,100.000)
The IDA/GOG financed activity (US$2,700,000) will support:
Developing appropriate regulations (US$250,000). The current Road Traffic Regulations of
1974 – are silent on quantified limits with regard to vehicle exhaust emissions. This subcomponent would provide Technical Assistance to the Committee in establishing a set of
quantified regulations appropriate to the current vehicle park in Ghana taking due recognition of
the specification of road transport fuels available in the country at this time. Such regulations
would then enable the appropriate authorities – principally the Driver and Vehicle Licensing
Agency – to enforce standards in an objective and legally sustainable manner. Further, the TA
program would also design a program for the progressive tightening of these standards over a
realistic timeframe taking into account the planned investments in the Tema refinery aimed to
reduce the sulfur content of automotive gas oil (diesel fuel) in particular. Costs of this
component would include the necessary technical assistance;
43
e.
Socio-economic survey of residents in Accra metropolitan area (US$1,500,000). The goal
of this study is to better understand the travel patterns of people living in the Greater
Accra Metropolitan Area (GAMA) and the role that transport plays in their lives. The
specific objectives are to: (a) examine the travel behavior of people in GAMA, with a
special focus on residents and business activities along the project BRT pilot corridor; (b)
identify specific transport constraints faced by residents in their performance of day- today activities; (c) examine the social and economic dimensions of residents and their
impact on transport choices; and (d) prepare travel diaries to document typical travel
patters on a daily basis. The study will particularly focus on bus and taxi transport
character along the BRT project corridor. It is expected that the study will be replicated
on a periodic basis to examine before and after impacts of the proposed investments. The
analytical scope of attributes to be identified, evolve around four main attributes:
affordability, accessibility, acceptability, and availability. The studies would be
replicated annually over the four year project period to examine the impact of
investments under the project; and
f. Monitoring of Bus performance (US$250,000). This component would finance development of
specific indicators for measuring performance of bus performance, particularly in areas of
operational performance, technical performance and financial performance. The
indicators for evaluating performance contracts between bus operators and regulatory
authority will be developed and capacity of the authority developed in monitoring and
supervision.
g.
Improving the environmental performance of the current vehicle park (US$700,000).
Because of the basic technology and the lack of recent investment at the Tema refinery,
the levels of sulfur in its automotive gas oil output is significantly higher than
international standards. Under these circumstances, the only appropriate technology for
reductions in the level of particulate emissions is an exhaust trap. By using a fuel-borne
catalyst it is possible to make such traps self-cleaning (CRT), whereas the high sulfur
level would poison a conventional precious-metal catalyst. Recent large-bus imports into
Accra from both China and India have featured Euro-1 engines for which particulate
emissions levels are not defined. Under these circumstances, retrofitting such buses with
a CRT using a fuel-borne catalyst would provide a significant reduction in emissions. A
trial could be used to determine the benefits, and hence provide the justification for a
wider application of this approach.
1.18 The GEF financed incremental activity (US$ 400,000) would finance:
e
Monitoring and Evaluation of GHG Emissions (US$400,000). This component will
support the Ghana Environmental Protection Authority and the Environmental and
Science Ministry in monitoring GHG emissions induced by the modal shift to less energy
intensive transport. The .results will be communicated to national policy makers and
stakeholders, and incorporated in national communications to the United Nations
Framework Convention on Climate Change (UNFCCC).
44
ANNEX 4
INCREMENTAL COST ANALYSIS
Concept
In accordance with OP11, significant change of transport modal (e.g., bicycles and pedestrians) emission
reductions can be achieved through the rationalization of the public transport system, transport demand
management and improved planning and institutional arrangements.
Greater Accra Metropolitan Area (GAMA), with a population of over 3 million residents, has a fleet of
private motor vehicles and minibuses that is growing faster than the 3% annual GDP growth rate. The
vast majority of trips are concentrated in the central city, with three radial routes serving over 500,000
daily person trips entering the area. These roads are heavily congested with 200,000 private vehicles,
about 10,000 tro-tros (10-15 seat minibuses) and 2,000 shared taxis (5 seats). If nothing is done to check
their growth, CO2 emissions from the transport sector are projected to increase by 50% by 2010, an
increase of 2,000,000 MT just within the affected area. The project aims to improve operational
efficiency of transport modes and influence mode choice in favor of high capacity public transport buses.
These are expected to reduce significantly greenhouse gas and other emissions over the projected
baseline, reducing CO2 emissions in the project area by over 100,000 MT during the project.
Baseline (without GEF support) Course of Action
Government of Ghana is committed to improving urban transport environment in Accra and other cities.
In 2002, GOG commenced implementation of a five-year Road Sector Development Program, which
aims to achieve sustainable improvements in the supply and performance of roads and road transport
services country-wide. This project focuses on routine and periodic road maintenance; major
rehabilitation, reconstruction, and upgrading; traffic management and safety; and institutional
strengthening. While the need to improve the supply and performance of Ghana’s road network is
certain, the project is not designed to adequately remedy Accra’s increasingly dysfunctional urban
transport system.
The Government has procured a large number of buses in the past year to augment supply. However,
increasing the supply of buses alone is not sufficient to alleviate the serious traffic congestion and
declining environmental and safety standards. What is required is the development of a regulatory
framework to manage the competition, rationalize route planning and licensing, set up a tendering
authority, and strengthen management capacity of the implementing agencies.
Without the GEF project, the city is likely to continue using the available resources to invest in new buses
and widen the road network, in an attempt to be responsive to the residents’ immediate transport needs.
These may be necessary initiatives to alleviate congestion, but their impact in absence of other
complementary measures is likely to be short-lived. The opportunities for expanding the road network
are limited and benefits of additional buses in the market, without addressing the fundamental planning,
routing and regulatory issues, are likely to be sub-optimal.
The concern with dealing with the immediate problems has led Government to overlook the long term
impact of the proposed solutions. No attempts have been made to come to grips with defining policies
that relate the value and needs of the urban transport sector to macro-economic considerations.
Interventions have been carried out on a project-by-project basis and the transportation system has
evolved from the ad-hoc accumulation of public projects and policies. This approach has neglected the
45
critical interconnections between parts of the system and between the system and the basic processes of
the city. The solutions implemented in such a scenario are unlikely to be sustainable.
GEF alternate scenario
The GEF contribution is expected to encourage development of environmental-friendly transport options
and to bias decisions toward more globally sustainable solutions. GEF funds would address the most
pressing problems affecting urban transport in Greater Accra through the provision of segregated
busways, of facilities for NMT and pedestrians as feeders to pilot corridors, and the development of
institutional capacity in planning, monitoring and evaluation.
The project is designed to produce the following key outcomes:





Strengthened policy and institutional framework for managing, coordinating, planning and
monitoring urban transport services in Greater Accra;
Improved capacity of Greater Accra urban transport authority to effectively operate, manage, plan
and monitor an efficient delivery of urban transport system.
Strengthened regulatory environment of the urban transport sector both to raise the standard of
service provision (including higher standards of vehicle maintenance) and improve its efficiency
and productivity, thereby lowering rates of vehicle emission;
Introduction of prioritized bus schemes on pilot corridors and feeder bicycle and pedestrian paths,
thereby achieving modal shifts to more efficient and less polluting forms of public transport; and
Development of an integrated urban transport strategy and plan.
Selection of Pilot Corridor for Implementation of BRT
The highest traffic volumes are found in the Winneba Road and Liberation Road corridors, which have
volumes over 50,000 vehicles per day. Approximately 10,000 vehicles enter the central area of Accra
within the Ring Road in the morning peak hour and, on a typical weekday, 270,000 vehicle trips are made
into or out of the Accra central area, carrying over 1.3 million passengers. Over 80 percent of these trips
are made by public transport. Over half (56%) of daily passengers are carried by tro-tros and additional
15% by taxi. These vehicles are old and poorly maintained and are inefficient in terms of amount of road
space used, congestion caused and environmental pollution created.
Considerable scope exists to improve the efficiency of people movement with reduction in environmental
pollution through a shift from private cars and low capacity public transport vehicles to large and better
maintained bus system. The additional financing from GEF would support establishment of a clear and
strong framework of regulation and administration for BRT.
It is proposed to construct a BRT network on a combination of nine radial and circumferential routes that
together form a network of routes serving dominant centers of generation and attraction. A hierarchy of
feeder routes is also proposed in order to maximize the usage and efficiency of the BRT system. In
addition, it is proposed to construct an integrated system of pedestrian walkways and bicycle routes to
increase accessibility of the system, in particular for low-income areas.
46
The initial focus of the project is to implement BRT on a pilot corridor which would serve as an example
for expansion to other areas. The pilot route was selected from amongst the nine corridors identified
using five selection criteria (travel demand, ease of implementation, transport impact, access for low
income population and urban planning impact). The highest ranked corridor is Winneba/Graphic road
from Mallam to the Accra CBD, which is 8.9 km long and carries 60,000 passengers per
weekday (5,000 passengers per peak hour and direction).
Emission reductions expected from additional financing by GEF
(These estimates would be finalized during appraisal)
The pilot project would capture all of the existing transit trips in the corridor as well as attracting some
additional trips from cars and taxis. In addition, it is reasonable to assume that with improved traveling
conditions and level of service, the demand along this corridor would increase because of diverted and
latent demand. The resulting increase in demand has not been included in the CO2 emission reduction
estimate. The BRT system would be designed for a daily capacity of about 60,000. In addition, traffic
management in the GAMA and enhanced capacity for planning and implementation would significantly
improve maintenance practices, improve traffic flow and reduce delays, resulting in CO2 and PM
reductions.
Given the fleet composition in GAMA and the average number of km per bus and per month, the
emissions that can be attributed to public transport are as follows:
CO2
Tro-tros
Regular bus
Shared taxis
Number of
vehicles
10,000
500
2,000
gCO2veh-km
Km/month
MTCO2/year
604
1208
383
4,000
4,000
800
289,920
28,800
7,353
326,073
Number of
vehicles
12,000
500
2,000
gPM/veh-km
Km/month
MT PM/year
1.51
2.01
1.23
4,000
4,000
800
725
48
24
797
PM
Tro-tros
Regular bus
Shared taxis
The EPA in Ghana is conducting a baseline study on the levels of exhaust pollutants emitted by vehicles
currently in use. However, this work has been delayed by lack of equipment and equipment failures. The
additional GEF Grant would support ongoing initiatives by EPA and the Ministry of Environment and
Science and strengthen their capacity in developing a data base of GHG inventories.
The GEF financing is expected to be implemented over a three-year period. Short-term emission
reductions from capacity building component or the regulatory reform component may be hard to
47
measure, though they are expected to maintain CO2 reductions on a long-term basis. On the other hand,
improved traffic management practices, mode shift in favor of bicycles, large and better quality buses and
improved vehicle maintenance standards would result in immediate benefits in CO2 reductions. The GEF
financing would allow putting place a monitoring and evaluation framework for regular monitoring of
environmental emissions, which would form the basis of policy advice and information sharing.
Local benefits include:
1. The scheme will result in the displacing of small-capacity public transport vehicles (mini- and midibus tro-tros and shared taxis) by large buses. Large buses offer lower greenhouse gas emissions per
passenger-place kilometer than smaller vehicles, and the high occupancy that can be obtained through
regulated control of the transport supply will ensure that this translates into lower levels of emission
per passenger kilometer.
2. Reductions in public-transport travel time as a result of the BRT scheme should result in a modal shift
away from private cars, with a corresponding reduction in greenhouse gas emissions. This effect may
be reduced, though, by the relatively low displayed value of time (Cedi 2,250 / hour—US cents 28.0).
Current traffic volumes at the Accra Academy on Winneba Road are 60,100 per day. Of this traffic,
22% are taxis, 30% are tro-tros and 10% are buses. Of the remaining 38% of vehicles, cars make up
33% and commercial vehicles (mostly light delivery vehicles) 5%. Occupancy levels in taxis and
cars average 2.3 and 1.8 respectively, 13.1 in tro-tros, and 23.2 in buses. This is equivalent to a total
passenger movement of 440,000 per day, of which taxis constitute 13,000, trotros 234,000, buses
138,000 and cars 36,000. Model estimates suggest a reduction in travel time of about 8 minutes for
bus passengers due to improved traffic management and bus priority schemes on the pilot bus-only
corridor. Assuming no change in mode share, after introduction of bus priority measures (which is
very conservative considering the expected mode shift, as discussed later), this travel time saving
amounts to roughly 45,000 hours per day, or 13,500,000 hours per year. At even US cents 28/hour of
time evaluation, this represents a gain of about US$4 million/year, which provides a favorable
benefit/cost ratio.
3. Removal of on-the-road competition for passenger transport services in the corridor will greatly
enhance the flow of general traffic, despite its being confined to two running lanes rather than the
three that are theoretically currently available. This will result in the reduction of greenhouse gas
emissions from general traffic, but may result in a small reduction in the expected modal shift to cars
from public transport.
4. The increase in the functionality of the arterial road will reduce the attraction of ‘rat runs’ through
parallel business and residential streets, thus reducing local emissions and increasing road safety for
pedestrians in particular. Diverting vehicles are also a cause of congestion where they rejoin the main
traffic corridor.
5. The provision of an integral CBD distributor service as part of the BRT scheme will greatly increase
the attraction of public transport to office and government workers in these areas who are users of
private cars at present but face real affordability problems. This will result in significant modal shift,
which will be further enhanced when premium bus services are introduced in the BRT corridor.
6. Large buses used for the BRT trunk and main feeder services will provide lower levels of exhaust
pollution than the general vehicles, having Euro 1 limits at worst and mostly Euro 2. By contrast,
existing tro-tros can be 20 years or more old (pre-dating Euro standards) and are often in poor
maintenance condition with visible smoke emissions.
7. Enhancements to operational viability as a result of the higher bus speeds obtained in the BRT
scheme, and the security offered by contracts with the regulatory authority, will provide operators
48
with the opportunity to invest in fleet renovation; tightening vehicle standards in the supply contracts
will reinforce this move. This will result in the scrapping of some of the oldest and most-polluting
tro-tros that will have become uneconomic to operate.
Costs
1. Environmental costs relate largely to the impacts of infrastructure construction. However, as much of
the proposed scheme can be incorporated within the existing roadway, these costs will be low in
comparison with the benefits obtained.
2. Similarly, construction of the BRT scheme will require only a small land take and will result in
minimal displacement of economic activity.
Quantification
1. Traffic data would be obtained for GAMA from the Urban Transport Planning and Traffic
Management Study, and the output of the traffic modeling assessment of the impact of the BRT
scheme. These data would be used to quantify the anticipated environmental benefits of the scheme.
2. Initial estimates suggest the potential for a 22% reduction in greenhouse gases over the proposed BRT
network. In the pilot corridor, with the highest passenger flows and the worst congestion, this benefit
is expected to be even higher.
Monitoring
1. The Environmental Protection Agency has sited six air-quality testing stations across the Accra
metropolitan area, one of which is positioned in the BRT pilot corridor close to the location of
maximum existing congestion. This station will provide the base-line data for emissions levels in the
corridor, and tangible evidence of the impacts of the BRT scheme as outlined earlier. Cross-reference
to the other test sites will enable separation of project impacts from those arising from more general
interventions such as improving fuel quality and tighter control of vehicle standards.
2. The EPA also has a mobile air-quality testing station that could be used to identify pollution levels on
the feeder routes to the BRT scheme, and hence locate particular areas of concern. Post-investment
monitoring could then focus on those black-spots to determine the effectiveness of the intervention.
49
Annex 5
INCREMENTAL COST MATRIX
Baseline
Domestic Benefits

Institutional
Strengthening
component







Integration of land
use-transport and
environmental
management



Alternative
Increment


limited competitive
regime for regulation of
urban passenger
transport services
introduced
Improved capacity for
scheduling and
dispatching bus
services; maintenance,
fare collection, driver
habits
Implement urban
transport policy to
improve delivery of
services and strengthen
coordination with
Ministry of
Environment
Set up legal and
institutional structures
necessary to support
long-term
implementation of an
integrated urban
transport plan
Rationalize public
transport operations
and organizations
responsible for
regulating
Formulate urban
transport policy
Formulate traffic
management plans
Local bus routes
restructured
Urban transport policy
developed
Update land use plans
to adjust current
development patterns
Better transport flows,
air quality, fleet
50
GEF will ensure that all
new plans for
establishing new route,
or to restructure
existing routes will
follow the sustainable
transport principles

Promote a sustainable
urban public transport
system
Increased walkability,
better planning for
NMT and better
interconnectivity to



Monitoring and
Evaluation








analysis
Mobility plans gets
prepared to respond to
transport needs of
BRT; NMT plans
developed without
integrating
interconnectivity
concept
Estimates of average
VKT by vehicle and
road type
Monitoring framework
is developed with a
focus on evaluating
impact of transport
investments on poverty
reduction
Monitor performance
of domestic contractors
Conduct annual
technical and financial
audit of the program
Six air quality testing
stations across the
Accra metropolitan
area
Mobile air-quality
testing stations
Dissemination
workshops
Control of vehicle
standards
Set up mobile source
inventory to track
vehicle position and
speed, age and
consumption

Develop traffic
management plans for
improving traffic flow
Rehabilitate road




Data on average daily
engine start rate per bin
and average engine off
to engine on time, per
bin

Traffic Management,
Engineering and
Safety





51
Master plans will
incorporate global
dimension
Assessment of
opportunities to reduce
GHG emissions
Support EPA and Env
& Science Ministry in
developing capacity and
technical data in GHG
emissions
Emission monitoring
stations established
along the pilot corridor
Monitor performance of
tro-tros, private cars,
goods vehicles and
large buses in terms of
fuel consumption,
emissions, maintenance
practices and operations
Develop a data base of
key urban transport
characteristics,
including vehicle fuel
economy, trip, length,
speed.
Develop a
demonstration project
with clear benefits, such
as reduced uncertainties
about cost, performance
and market acceptance
of BRT and integrated
planning approaches
Create dedicated and
exclusive lanes for
mass transport





promote less car use
Mobility plans and
NMT strategy
integrated and
articulated to BRT
development to allow
GHG emission
reductions
Articulating strategic
land-use and transport
planning to the local
and global
environmental objective
of reducing air
pollution and GHG
emissions
Emission monitoring
stations mobile source
inventory
Tracking of GHG
emissions
Estimation of real life
emission management
and measurement
Develop BRT
system



network to improve
vehicle flow
Develop road accident
data base
Improved vehicle flow
in the city
Government passes a
Road Safety Act


Global Benefits
Create infrastructure
(stations, terminals,
pedestrians and bicycle
access, intersections,
feeder routes)
 Technical, social and
environmental design
to support BRT
 Develop EMP for the
pilot corridor
 Urban transport
planning and
implementation
without integrating
global concerns such
as GHG reductions


Offsets of GHG
emissions through
environmentally
sustainable urban
transport planning
and implementation.
This is reflected as
efficient traffic
management, BRT
and adequate
monitoring of
emissions
Elements of the project
are replicable and hence
can contribute to
improved climate
change mitigation in
other SSA cities. By
identifying more
concrete issues that will
be addressed this makes
it easy for the “next
city” to see where to
start
Long-term modal shift
to more efficient and
less polluting forms of
public transport
 Remove institutional
and physical
barriers to
introduction of
BRT and
demonstration of
mass transport
schemes
 Replicability of BRT
scheme in other
cities (Kumasi,
Tamale, Sekondi,
Cape Coast) and
SSA (Dar, Addis,
Lagos)
Cost by Component
Figures in US$
Figures in US$
Figures in US$
1. Institutional
strengthening
2. Traffic
management and
engineering
3. Land use-transport
& env. management
B. BRT infrastructure
design &
implementation
C. Monitoring &
evaluation
Total Cost and GEF
share
2,000,000
2,000,000
0.0
14,500,000
14,500,000
0.0
3,300,000
4,400,000
1,100,000
6,500,000
12,000,000
5,500,000
2,700,000
3,100,000
400,000
29,000,000
36,000,000
7,000,000
52
Annex 6
Procurement and Disbursement Arrangements
GHANA: ROAD SECTOR DEVELOPMENT PROGRAM
Procurement
1. Ghana's Procurement Environment
The World Bank conducted Country Procurement Assessment Reports (CPAR) in 1985 and 1996, a
consultant report in 1997, and a Country Portfolio Performance Review (CPPR) in 1998. These reports
cite factors contributing to weaknesses in the public procurement practices, including (i) lack of a
comprehensive legal framework, (ii) lack of uniform and codified procurement procedures and
regulations, (iii) weak capacity of procurement staff, and (iv) loose institutional and organizational
arrangements for collective decision making in awarding of contracts. Some of the unacceptable features
in the current public procurement practices highlighted in the reports are (i) extensive use of the sole
source method for selection of consultants, (ii) extensive and repetitive use of shopping procedures, often
including the same
firms, (iii) unclear procedures for opening of bids and criteria for bid evaluation and contract award, (iv)
post contract negotiations, (v) mandatory use of the state insurance company for goods contracts, and (vi)
over-centralization of procurement in Accra. The reports recommend a comprehensive procurement
reform for Ghana. This recommendation was also endorsed in the 1999 CDF initiative document for
Ghana. These problems have arisen in part because Ghana's procurement procedures and regulations are
scattered in various legal documents and circulars, which often are not clear, contradictory and subject to
misinterpretation. There also are no mechanisms for monitoring procurement or for dealing with
complaints. As the Government does not yet have a comprehensive procurement code for the
procurement of goods, works and services by Government ministries and agencies, most entities
implementing donor-financed projects follow the Banks guidelines for works and goods contracts below
ICB thresholds
and for selection of consultants. To remedy these problems, the Government is in the process of
developing rationalized and codified public procurement procedures and regulations, which will be
applicable to all public procurement entities. The resulting streamlined procedures and regulations for
procurement of goods, works, and services, and monitoring system will ensure proper utilization and
developmental impact of public resources.
The on-going procurement reforms are financed by an IDA credit under the Public Finance Management
Technical Assistance Project (Cr. 2952-GH). In 1999 the Government established, in MOF, a
Procurement Policy Oversight Group (PPOG) to oversee the process of the preparation and
implementation f public procurement reforms in Ghana. The PPOG selected consultants to prepare a
Procurement Reforms Proposal (PRP). In order to ensure that the PRP is not just as a desk exercise, the
TOR required the consultants to liaise with stakeholders in the public and private sectors, paying due
attention to consultation, participation and ownership. It is expected that a new procurement code and law
will be implemented by September 30, 2001.
In the absence of a national procurement code, procurement procedures to be followed by the
implementing agencies are described in the in the Project Implementation Manual.
Registration/classification of contractors may be used for establishing bidder qualification or for
preparing a list for use under quotation procedure, but not as criteria for bidding or for award of contract.
A draft of these procedures, which includes thresholds for use of the various procurement methods,
thresholds and institutional arrangements for decision making on contract awards, and amendments and
53
procedures for disposal of assets, was reviewed at appraisal and found satisfactory. The procurement
procedures in the Manual will be amended
to be consistent the new national code when the code becomes available.
2. Use of Bank Guidelines
All works and goods financed under the IDA credit will be procured in accordance with the Guidelines:
Procurement under IBRD Loans and IDA Credits, January 1995 and as revised in January and August
1996, September 1997 and January 1999. Consultants will be selected in accordance with the Guidelines:
Selection and Employment of Consultants by World Bank Borrowers, January 1997 and as revised
September 1997 and January 1999. National Competitive Bidding (NCB) procedures will include: (a) an
explicit statement to bidders of the evaluation and award criteria; (b) national advertising with public bid
opening; (c) award to the lowest evaluated responsive and qualified bidder; and (d) a statement that
foreign bidders will not be precluded from participation in NCB. The Bank's Standard Bidding
Documents (SBD) will be used for all ICB (and with appropriate amendments for all NCB) for works and
goods. The Bank's Standard Request for Proposals (SRFP) will be used for all consulting assignments.
Each time an agency initiates procurement/selection of consultants, it will use the latest version of the
SBD/SRFP, incorporating any addenda issued by the Bank. The detailed procedures to be followed are
described in the Project Implementation Manual. Domestic preference will be allowed for ICB contracts.
3. Advertising
A General Procurement Notice (GPN) will be published in the United Nations Development Business
(UNDB) as provided under the Guidelines. The GPN will be updated on a yearly basis and show all
outstanding ICB and all consulting services estimated to cost US$200,000 or more. Specific Procurement
Notices (SPN) will be required for contracts to be procured under ICB and NCB procedures and Requests
for Expressions of Interest (EOI) for consultant contracts with an estimated cost of US$100,000 or more
prior to preparation of the short list SPNs will (as a minimum) be published in a newspaper of wide
national circulation. Consultant contracts estimated to cost US$200,000 or more will be advertised in
UNDB.
4. Procurement Capacity
A procurement capacity assessment of all implementing agencies was conducted in 2000 and the report
updated during project appraisal. The summary assessment (copy in the project file) shows a medium risk
for this program. The Project Implementation Manual will indicate the capacity available in each
implementing agency, any shortfalls, and how the Government will address the shortfalls, to ensure
project implementation will not be impaired. MRH and its road agencies, DFR, DUR and GHA have
implemented several Bank projects and are familiar with the Bank's procurement procedures.
5. Procurement Plans
The MRH has prepared a Global Procurement Plan by aggregating the plans of each implementing
agency for the whole project period. Each implementing agency has prepared a detailed annual
Procurement Plan for the first year of the project showing contract packages, and for each package its
estimated cost and procurement method and time to completion. These plans will be finalized and agreed
with IDA before effectiveness and incorporated into the final Project Implementing Manual. Two months
prior to the start of each subsequent fiscal year, MRH, in consultation with the road agencies, will submit
up-dated versions of the Global Procurement Plan and the annual Procurement Plan in respect of the
following year. Each quarter MRH and the road agencies will submit a procurement process monitoring
report to IDA as part of
the Project Management Report (PMR). The report will indicate how each contract in the Procurement
Plan has progressed. The Project Implementation Manual has sample procurement formats.
54
6. Project Implementation Arrangements
Procurement of works and goods and the selection of consultants, including procurement planning, will
be the responsibility of the various implementing agencies under the project. MRH will be responsible for
coordinating the project implementation, including ensuring procurement planning and preparation of
progress reports. Each agency will track the accumulation. of contracts under each procurement method
and MRH will consolidate the information on a quarterly basis so as to ensure that the aggregate amounts
under the non-ICB procurement methods are not exceeded. The project will also finance a number of
activities and investments for communities. The project does not envisage delegation of procurement and
financial responsibility to communities. However, for investments that would involve decisions by and
participation of communities, the implementing agencies will assist communities to play their respective
roles. Community participation in procurement may be allowed under community-based activities.
55