MISSION ANALYSIS REPORT

Transcription

1 MISSION ANALYSIS REPORT Document number: Title of mission: Author(s): Status in ILO: Monitoring mission Wilma van Esch Technical Advisor ILO/ASIST Status during the mission: Countries covered: Tanzania Date(s) of mission: March 1998 Objectives: *Provide technical advise on draft designs for Hanna Nassif II. *Discuss draft TOR for consultants for Hanna Nassif *Prepare draft agreement for ATATAP phase II. *Discuss and submit proposal for replication of Hanna Nassif to other urban settlements in Tanzania to NIGP. II. Type of mission: Sources of funding: Technical Advisory Mission URT/97/032 Fields of action: Major findings and recommendations: Draft technical designs Hanna Nassif have been discussed with UCLAS/COWI/NIGP and in general it is agreed that designs need major improvements. Draft TOR s for consultants on contracting have been discussed and revised. Proposal for replication Hanna Nassif has been discussed with NIGP and submitted to the ILO Area Office. Works under community contracts in Hanna Nassif are under implementation. However the community needs more guidance from the Technical Team (UCLAS team should be full time on the site) to ensure that works are implemented cost effectively and that labour issues such as wage level and insurances are documented. Draft agreement for ATATAP phase II (including budget) discussed with MOW and submitted to ILO Combi and BUDCT. Envisaged ILO follow up: Follow up on technical designs and forward sample labour based contract documents and other background material to UCLAS. (van Esch) Forward TOR for contracting consultants to all parties concerned and identify possible 1

2 consultants. (van Esch) Prepare STS proposal, based on the proposal for replication of Hanna Nassif, for submission to NIGP and UNDP Dar es Salaam. (van Esch) Monitor progress in Hanna Nassif and discuss issues related to attendance of project personnel on site and improve procedures and documentation community contracts (Fransen). Follow up on draft agreement ATATAP phase II and completion of activities under ATATAP phase I (van Esch) ILO Thesaurus descriptors: 2

3 List of appointments 23/3/ hrs Arrival DSM 24/3/98 Discussions Area Office staff, meeting with MOW 25/3 Meeting with MOW to complete the draft agreement for ATATAP, meeting with UCLAS. 26/3 Meeting with WFP, meeting with UCLAS and COWI/SERVICEPLAN. Site visit Hanna Nassif 27/3 Technical discussions on design Hanna Nassif, meeting with NIGP, meeting with COWI/SERVICEPLAN. List of people met Hanna Nassif Technical Support Team (UCLAS) Dr Kombe Project Leader Mr Mbyopyo Project Manager Mr Sheuya Project Adviser Mrs Nkya Field Animator Eng Kaseva Project Engineer Eng Kasure DCC Engineer Mr. A. Mwenisongole Community Animator Members of Hanna Nassif CDA ILO Area Office staff Ms. A. Singh Director Saskia Bakker Programme Officer Mr Mfinanga Assistant Programme Officer NIGP Mr Salewi Ministry of Works Mr. Kyombo Ms. Mwesigiye Programme Officer Co-ordinator Appropriate Technology Unit Appropriate Technology Unit COWI Consult Tanzania and Service Plan Mr. M. Orbech Manager COWI Mr. Lema Engineer COWI Mr. Lymo Engineer Service Plan WFP Tanzania Ms. Mari Pennanen, JPO Food for Work, WFP Tanzania 3

4 Abbreviations ASIST Advisory Support, Information Services and Training for labour Based Programmes CBO Community Based Organisation CDA Community Development Association CIP Community Infrastructure Project DCC Dar es Salaam City Commission FF Ford Foundation FFW Food for Work KTC Kisii Training Centre MOW Ministry of Works NCC National Construction Council NIGP National Income Generating Project STS Support for Technical Services at Project Level TOR Terms of Reference TST Technical Support Team UCLAS University College of Lands and Architectural Studies WFP World Food Programme 4

5 1. Hanna Nassif Phase I The ILO Area Office has been requested to hand over the equipment to NIGP for further use in Hanna Nassif phase II. Before the letter from the Area Office can be send out, the DCC land surveyor need to submit a letter to the ILO explaining the loss of some minor equipment. Saskia Bakker will follow up on this. The ILO Area office has been requested to hand over the equipment as soon as possible because the land surveying equipment is urgently needed on the site (at the moment the project needs to hire equipment). 2. Hanna Nassif phase II 2.1 Consultants on private contracting and community contracting Draft TOR s were prepared and discussed with UCLAS (see annex 2 for the revised TOR s). The consultants will be paid under STS funds (as specified in the STS proposal) and the missions should be fielded as soon as possible. 2.2 Designs for drainage, roads and drinking water supply UCLAS and NIGP agreed on most of the comments made in my fax (dated 16 March 1998) and it was generally agreed that the designs need to be improved (see annex 2 for brief minutes of the design meetings). UCLAS and COWI/SERVICEPLAN are preparing minutes of the various design meetings which will be forwarded to the parties concerned. COWI/SERVICEPLAN mentioned that there seems to be a communication problem between the parties concerned. COWI/SERVICEPLAN has an agreement with UCLAS and the past design meetings have been held between UCLAS and COWI/SERVICEPLAN. ILO has not always been well informed on what was discussed in these meetings and consequently issues have been raised by ILO which had already been discussed. There is a need to minute the design meetings in more detail and to forward copies to all parties immediately after the meetings. COWI/SERVICEPLAN and UCLAS still have to decide when the designs should be finalised but a considerable amount of work needs to be done. However, the project is urgently waiting for the designs to allow the work to continue. Currently, road and drainage construction works take place under community contracts on the extension of the main drain. Designs were made by COWI/SERVICEPLAN in phase I. This work is almost finished. If COWI/SERVICEPLAN could prepare the final designs on some stretches (to be defined in agreement with UCLAS, COWI/SERVICEPLAN and the CDA) construction could continue, while COWI and Service plan finish the overall designs. However, it is essential that construction works should only be implemented according to designs which have been approved by all parties as final designs (even if it only concerns some stretches of drains and roads, we have to be sure that invert levels are correct). Mr. Kaseva will discuss the above with UCLAS and make an official request to COWI/SERVICEPLAN. 5

6 Detailed minutes of the meetings will be provided by UCLAS and COWI/SERVICEPLAN. 2.3 Site visit Hanna Nassif The progress on the construction of the main drain extension is good. The work is carried out under community contracts with technical guidance of Eng. Kasure. One of the main problems is the thickness of the walls of the drain. According to the design this should be around 10 cm but in practice it is around 20 cm. This results in additional costs on the construction works. Eng. Kasure has tried with various types of foam work to reduce the thickness but he has not succeeded yet. As Eng. Lema from COWI designed drains with 10 cm wall thickness we asked him if he could come up with adequate and affordable foam work which will result in 10 cm thick walls. Eng. Lema and Eng Kasure will work together on this. Community contracts are still not following the correct procedures. Community contract 2 for example is under implementation but has not yet been signed by UCLAS. The site engineers are still experimenting with the correct size of a community contract (J. Fransen to follow up during his monitoring mission). During discussions with UCLAS the need for accident insurance for labourers has been raised and UCLAS will take this up. Wage level has also been discussed and UCLAS will prepare a note on how wage levels have been determined (J. Fransen to follow up during monitoring mission). Community members indicated that not all staff of UCLAS is on the site full time. This issue has been raised before and the project co-ordinator keeps a daily record regarding the presence on the site. However, this record only indicates if someone has been on the site and not how long the person has been there. I feel it is essential that staff assigned to Hanna Nassif are full time on the site according to their contract. To avoid further rumours the daily attendance list should indicate the time people have been present on the site (J. Fransen to follow up) In discussions with Mr. Sheuya, Ms. Nkya and Mr. Kasure it became clear that various former labourers from Hanna Nassif phase I now have employment with the City Commission (as casual labourers for road maintenance) and in other unplanned settlements. Mr. Sheuya promised to gather some more details on this matter (how many workers, who exactly employs them and if employment is due to experiences gained in Hanna Nassif). This type of information is very important in discussions on the impact of labour-based/community-based urban infrastructure (S. Sheuya and J. Fransen to follow up). 3. Replication of Hanna Nassif to other urban settlements in Tanzania The proposal has been revised according to the comments from NIGP. The revised proposal has been submitted to the Area Office for official submission to NIGP. Mr. Salewi requested a detailed STS budget for phase I for submission to NIGP and UNDP (W.van Esch to follow up) 6

7 4. ATATAP A draft agreement for ATATAP phase II has been prepared by MOW and ILO. The draft agreement includes a project description and project budget. The draft agreement has been submitted by ILO Area Office to COMBI, BUDCT, ASIST Harare and POLDEV for comments and approval. To improve the project matrix and to prepare detailed yearly workplans it is proposed to organise a two days meeting with ATU, ATTI and ILO staff (T. Tessem and W.van Esch). Activities under ATATAP phase I need to be finalised and paid before June The printing of the technical manual will be carried out by DUP (cheapest of 3 quotations) and the ILO Area Office has been requested to prepare an EPA of USD 10,000 on budget line 53 for printing in January. This has not yet been done and Mr. Mfinanga will follow up on it. The budget of USD 10,000 will not be sufficient to print all 4 volumes (200 copies each). The MOW forwarded a letter indicating that additional funds for printing can be obtained from bl 53 under ATATAP II. ASIST has agreed to fund the printing of an additional 50 copies of the technical manual. The ILO Area Office (Mr. Mfinanga) has been informed and he will contact DUP and request a quotation for an additional 50 copies. The ILO Area Office forwarded the TOR regarding the Assessment of Labour-Based Contracting in Tanzania to the MOW, NCC and UNDP. The Area Office also submitted a draft STS proposal for cost sharing of this study to UNDP for comments. I called UNDP but the responsible programme officer ( Mr. Daimu Mkwawa) was on mission (W. van Esch to follow up). 5. Food for Work activities in Tanzania WFP Tanzania contacted the ILO Area Office requesting a meeting to discuss ffw activities in Tanzania. WFP is in the process of preparing small proposals for rural ffw (implemented by NGOs). However, the programme officer felt that the management of the ffw projects was difficult and time consuming due to the fact that NGOs often have limited capacity and due to the lack of clear guidelines on design and implementation of ffw projects. I informed her about the upcoming study and our contact with Els Kocken in Maputo. She was very interested and would contact Els Kocken to request additional information. The programme officer also expressed interest in urban ffw. She has already contacted Care International to start up urban ffw activities. Care has already conducted an extensive livelihood survey in Tanzania (copies of the report are in the ASIST doc. centre). I informed her on the proposal for urban infrastructure upgrading in 10 Tanzanian towns. We agreed to co-ordinate our efforts and I would forward her a draft copy of the proposal. 7

8 Annex 1 TOR for consultants Hanna Nassif II A. Private Small Scale Contracting B. Community Contracting 8

9 Consultant private contracts Hanna Nassif phase II 1. Objective To develop contracts and contracting procedures for small scale labour based private contractors in urban upgrading works in Hanna Nassif unplanned settlement in Dar es Salaam. 2. Background In the Hanna Nassif project a labour and community based approach has been chosen to carry out construction works on storm water drainage and access roads. The main objectives of the project are to combine infrastructure upgrading activities in low income areas with employment creation, skills upgrading and community capacity building. The first phase (UNDP, Ford Foundation, EDF, ILO, UNCHS, UNV) demonstrated that upgrading of infrastructure in low income settlements can be successfully carried out by the community and City Council with guidance of a technical team. The community actively participated in planning, design, implementation and maintenance activities. It also demonstrated the advantages of implementing works through community contracts whereby small contracts are issued to the community for the implementation of the works. The second phase of the project (NIGP, UCLAS, Ford Foundation, ILO) extends the works to a much larger area within Hanna Nassif unplanned settlement and includes solid waste management, drinking water supply and credit schemes. Hanna Nassif phase II also intends to further improve the labour and community-based approach and to partly contract out work to labour-based contractors. There is little or no experience in the urban low income areas to improve infrastructure through contractors. This is especially true for community based infrastructure upgrading whereby a close relationship need to be developed between the community/municipal authorities and the contractor. In rehabilitation and maintenance of rural roads various countries have already adopted a labour-based contracting approach and various contract documents and procedures have been developed to support this approach. However in the urban low income areas labour-based contracting is a new experience and suitable simple and practical contract documents and contracting procedures need to be developed (or adapted from the rural areas). 3. Issues to be addressed Define which contractors fall in the category of labour-based contractors suitable for implementing urban community and labour-based storm water drainage, roads and drinking water supply works. The National Construction Council in Dar es Salaam has a list of classified contractors which should be reviewed to assess which class of contractors would be appropriate for the above works. Design works have been prepared by COWI consult Tanzania indicating scope of work, specifications, BoQ etc. The Ministry of Works in Tanzania and NCC have conducted labour based contractor training in Kilimanjaro and Mwanza and possibly contract documents and trained contractors could be used. Together with the implementing partners (NIGP and UCLAS) an invitation list of possible contractors should be prepared for a one day meeting. The one day meeting will 9

10 be organised to discuss the interest, willingness and capacity of the contractors. UCLAS will organise the meeting but the consultant should give technical input and ensure that a general profile of the contractors is made and criteria are established for shortlisting contractors for urban labour-based works in Hanna Nassif. Assess the necessary capacity of labour-based contractors to implement the designed road rehabilitation, drainage works and drinking water supply works (financial, human resources and equipment). Formulation of suitable labour-based contract documents and contract procedures (including surety, mobility allowance etc.). The labour based contract documents should be in a format which can be presented to local authorities for approval and can be tested in the following year of implementation. After various test contracts (approximately one year) a consultant will be requested to review the contract documents and procedure and make changes if necessary. Identify training needs of contractors and site supervisors. Assess what kind of supervision is needed on the site. Ensure that the developed labour-based contract documents fits in with the existing contracting regulations (or that special permission can be acquired). Define labour issues in the contract documentation (labour wage, discrimination, min. age, health insurance, labourers from community etc.) 4. Methodology The consultant will work closely together with a team member of the project (UCLAS). The 3 week study will be conducted in Dar es Salaam which will include a one day meeting with shortlisted contractors and a 2 hours presentation on the outcome of the study for all partners involved in the project (UCLAS, NIGP, City Commission Dar es Salaam, Community representatives and people identified during the study). This debriefing meeting should also be open to selected UCLAS lecturers and students. Proposed starting date of the field study is May The consultant should submit a draft report three days after the end of the mission. Comments will be submitted within two weeks after receiving the draft. The consultant should prepare a final report two weeks after receiving the comments. 5. Output Study report which provides guidelines on the use of labour-based contractors in labourbased/community-based urban infrastructure upgrading addressing the issues raised under section 2. The report should have annexes with examples of suitable contract document(s), appropriate contracting procedure(s) and proceedings of the meeting with the selected contractors. Three hard copies of the report should be submitted to ILO ASIST and on diskette in Word 6.0 or WP. 10

11 Consultant Community Contracting Hanna Nassif phase II 1. Objective To improve community contracts for community-based/labour-based infrastructure upgrading in Hanna Nassif. 2. Background In the Hanna Nassif project a labour and community based approach has been chosen to carry out construction works on storm water drainage and access roads. The main objectives of the project are to combine infrastructure upgrading activities in low income areas with employment creation, skills upgrading and community capacity building. The first phase (UNDP, Ford Foundation, EDF, ILO, UNCHS, UNV) demonstrated that upgrading of infrastructure in low income settlements can be successfully carried out by the community and City Council with guidance of a technical team. The community actively participated in planning, design, implementation and maintenance activities. It also demonstrated the advantages of implementing works through community contracts whereby small contracts are issued to the community for the implementation of the works. The second phase of the project (NIGP, UCLAS, Ford Foundation, ILO) extends the works to a much larger area within Hanna Nassif unplanned settlement and includes solid waste management, drinking water supply and credit schemes. Hanna Nassif phase II also intends to further improve the labour and community-based approach and community contracts. The planned infrastructure works for phase II are designed by COWI Consult Tanzania and the works have been roughly divided in minor and major works. The minor works are considered suitable for implementation under community contracts. The major works will most likely be carried out by private contractors. In phase I of the Hanna Nassif project, labour and community based infrastructure (storm water drainage and roads) has been carried out through community contracts. In general the community and municipal council have reacted very favourable on the use of community contracts. The community contracts are also seen as a tool of involving the community in implementation and increasing the capacity of community members in dealing with contracts, book keeping, store keeping, procurement of material and recruiting labourers. However, community contracting is still in an early stage of development and there is a need for standard community contracts (including annexes), contracting procedures, reporting and capacity building of all partners to deal with contractors. During the last two years many issues related to community contracts have been discussed with the project team and community and at the moment there is a need to incorporate the various issues in the contract document and agree on guidelines regarding contracting procedure and reporting which can be adopted by the community, project team and city commission. 3. Issues to be addressed 3.1 Standard Community Contracts for construction and maintenance 11

12 1. Define appropriate size of contract (quantity of works, workdays involved and/or costs of works)* 2. Define how infrastructure work should be described in document (design details, indication of work involved, BoQ)* 3. Explore appropriate wage level and work norms (how can they be regularly reviewed and if needed adapted).* 4. Define procedures to select and rotate labourers* 5. Recommend suitable profit level on contracts*. In phase I of the project the CBO received 10% of the contract sum as profit. This profit was placed on the maintenance bank account of the CBO for future maintenance of the improved infrastructure. 6. Recommend suitable risk level on contracts. (At the moment it is not clear who will be formally responsible if damages occur on properties etc. during construction works. 7. Define strategy for accident insurance for labourers* 8. Indicate essential tools, equipment and protective gear (for example a standard list could be prepared as annex to the community contract whereby for each contract the necessary tools etc. can be ticked off) 9. Recommend procedures for advance and final payment. Should payment be based on reporting? 10. Recommend who should sign the contract and what the responsibilities are of the partners involved*. 11. Prepare a standard format of a community contract with all annexes 3.2 Contract procedures, implementation and reporting 1. Define who will be responsible for drafting community contracts and signing the contract.* 2. Evaluate the involvement of the community in the contracting procedure and recommend improvements. Which community group represents the community as client and which community group act as contractor? 3. Define the division of responsibility between the community contracting group and the site supervisors (city council or project engineer). 4. Identify training needs (capacity building) for the parties involved in community contracting. 5. Evaluate reporting procedures and recommend improvements if necessary. 6. Define how many community contracts can be under implementation at the same time. Community contracts have been carried out in Hanna Nassif for the last two years. Various issues mentioned above have been discussed and agreements have been made on how to deal with them. Those issues have been marked (*) and in those cases the task of the consultant is more to review and document what actual happens. Other issues are still under discussion and in those cases the consultant should discuss and advice how to deal with it. As community contracts should be understandable for the community the contracts should be simple and practical (after approval, the standard contract will be translated in Kiswahili). 4. Methodology The consultant will work together with a project team member (engineer and community 12

13 animator from UCLAS) who will be full time attached to the consultant. The consultant will have a 10 days mission to Dar es Salaam and will submit a draft report before departure. The consultant will debrief all parties involved during a half day mini workshop organised by UCLAS. 5.Output 1. Standard community contract with all annexes. 2. Study report which provides guidelines on community contracting procedures, implementation and reporting, addressing the issues raised under section 3. Three hard copies of the report and an electronic copy (WORD or WP) should be submitted to ILO ASIST. 13

14 Annex 2 Summary of minutes of meeting on design Hanna Nassif II Issues discussed in the meetings were: Designs have been discussed with he community and minutes of these meetings will be added as annex to background to design. According to COWI box culverts will not be more expensive than pipe culverts (TSH 263,000 for 6 meter pipe culverts and TSH 150,000 for the material for the designed box culverts) The design will indicate were it is absolutely necessary to use geotextile and the background to design will explain why. The agreement between UCLAS and COWI/SERVICEPLAN indicates that drawings scale 1:2500 should be prepared. The meeting agreed that this scale is not sufficient for these type of works and UCLAS will negotiate with COWI/SERVICEPLAN for the additional preparation of drawings scale 1:1000 (indicating all structures, contour lines and beacons and bench mark). The road and drainage system of phase I will be indicated in the drawings including all connections and invert levels. Names of roads and drainage canals will be logical and clearly indicated. COWI/SERVICEPLAN will submit all calculations and cost estimates. COWI/SERVICEPLAN will also look into maintenance requirements of the various options. In the various meetings the size of the culverts has been discussed. Maintenance of 6 meter long culverts of 40 cm high will most probably cause maintenance problems. COWI/SERVICEPLAN will look into this. It was also mentioned that proposed drinking water pipes should be readily available in DSM. According to COWI/SERVICEPLAN phase I road drains do not indicate the need for stone curbing to protect the edge of the road side drain. A workplan will be prepared by COWI/SERVICEPLAN All design documents will be checked on the correct terminology regarding labour-based private contractors and labour-based community contracting. ILO promised to forward some standard l.b. contracts to COWI/SERVICEPLAN for information. Although ILO felt that not all roads need to be gravelled, NIGP and UCLAS did not agree on this and would like to see all newly rehabilitated roads to be gravelled. Compaction. It was agreed that hand rammers of 25 kg were to heavy. A hand towed grid roller could be a good alternative for hand rammers. (Background information has been provided to UCLAS, COWI and NIGP.) Comments made on invert levels and slope of drains were subject to a separate meeting (with only the engineers).cowi/serviceplan accepted the comments and will correct the invert levels, indicate connecting invert levels and indicate depth of drain. In the background of design the minimum slope (0.5 or 0.3 %) and min and max drain depth will be stated and all drains will follow this requirement. Outfall nr.4 is not essential for the drainage of the area and can be omitted from the design (UCLAS to discuss with community and make final decision). There are still many questions regarding the drinking water design concerning cost, operation and maintenance of the system, land availability for the water kiosks and 14

15 security of the kiosks. In the second design meeting Service Plan informed us that the water distribution system would cost approximately USD 190,000 and the water kiosks USD 50,000 (10 kiosks). A rough cost estimate for the total cost would be USD 240,000. The UCLAS engineer informed the meeting that according to the budget only USD 80,000 is available. Various options were briefly discussed: cost sharing with City Commission as part of the system would fall under the city s responsibility, no water kiosks but private water points (to be discussed with community), a drinking water supply system for only part of the Hanna Nassif community, or extra funds from donors to finance the construction of the present design. These issues need urgently to be discussed between UCLAS, Service Plan and the community. Another important problem is the location of the water kiosks. There doesn t seem to be enough space for the construction of the water kiosks and most land is private land and cannot simply be used. This needs to be discussed and documented. NUWA needs to approve the design. A network flow diagram will be prepared. The design proposes 10 water kiosks (not 12) COWI and Service plan need to indicate in the workplan and background to design what needs to constructed first (road and drainage or drinking water) Construction under private contracts and community contracts need to be specified (also how they will work together) and BoQ should allow for easy split up of work under private and community contracts. It is clear from the above that still some work need to be done in order to finalise the designs. However, the project is urgently waiting for the designs to allow the work to continue. Currently, road and drainage construction works take place under community contracts on the extension of the main drain. Designs were made by COWI/SERVICEPLAN in phase I. This work is almost finished. If COWI/SERVICEPLAN could prepare the final designs on some stretches (to be defined in agreement with UCLAS, COWI/SERVICEPLAN and the CDA) the work could continue while COWI and Service plan finish the overall designs. However, it is essential that construction works will only be implemented according to designs which have been approved by all parties as final designs (even if it only concerns some stretches of drains and roads, we have to be sure that the correct invert levels are on the design). Mr. Kaseva will discuss the above with UCLAS and make an official request to COWI/SERVICEPLAN. Detailed minutes of the meetings will be provided by UCLAS and COWI/SERVICEPLAN. 15