Islamic Republic of Afghanistan: Proposed Grant for Additional Financing and Administration of Grants for the Road Asset Management Project

Transcription

1 Project Administration Manual Additional Financing for Islamic Republic of Afghanistan: Road Asset Management Project (RRP AFG ) Project Number: Grant Numbers: G0508-AFG; GXXXX Draft as of 21 August 2017 Islamic Republic of Afghanistan: Proposed Grant for Additional Financing and Administration of Grants for the Road Asset Management Project

2 ABBREVIATIONS ADB Asian Development Bank ADF Asian Development Fund AFMIS Afghanistan Financial Management Information System DMF design and monitoring framework EA executing agency EMP environmental management plan GDP gross domestic product ICB international competitive bidding km kilometer LARP land acquisition and resettlement plan LIBOR London interbank offered rate MOF Ministry of Finance MPW Ministry of Public Works NCB national competitive bidding O&M operation and maintenance PAM project administration manual PMO program management office QBS quality based selection QCBS quality- and cost based selection RRP report and recommendation of the President to the Board SOE statement of expenditure SPS Safeguard Policy Statement TOR terms of reference

3 CONTENTS I. PROJECT DESCRIPTION 1 II. IMPLEMENTATION PLANS 3 A. Project Readiness Activities 3 B. Overall Project Implementation Plan 4 III. PROJECT MANAGEMENT ARRANGEMENTS 5 A. Project Implementation Organizations Roles and Responsibilities 5 B. Key Persons Involved in Implementation 6 C. Project Organization Structure 6 IV. COSTS AND FINANCING 8 A. Detailed Cost Estimates by Expenditure Category 8 B. Allocation and Withdrawal of Grant Proceeds 9 C. Detailed Cost Estimates by Financier 10 D. Detailed Cost Estimates by Outputs and/or Components 11 E. Detailed Cost Estimates by Year 11 F. Contract and Disbursement S-curve 12 G. Fund Flow Diagram 15 V. FINANCIAL MANAGEMENT 16 A. Financial Management Assessment 16 B. Disbursements 17 C. Accounting 18 D. Auditing and Public Disclosure 18 VI. PROCUREMENT AND CONSULTING SERVICES 20 A. Advance Contracting and Retroactive Financing 20 B. Procurement of Goods, Works and Consulting Services 20 C. Procurement Plan 22 D. Consultant's Terms of Reference 32 VII. SAFEGUARDS 41 VIII. GENDER AND SOCIAL DIMENSIONS 42 IX. PERFORMANCE MONITORING, EVALUATION, REPORTING, AND COMMUNICATION 43 A. Project Design and Monitoring Framework 43 B. Monitoring 46 C. Evaluation 46 D. Reporting 47 E. Stakeholder Communication Strategy 47 X. ANTICORRUPTION POLICY 48 XI. ACCOUNTABILITY MECHANISM 49 XII. RECORD OF CHANGES TO THE PROJECT ADMINISTRATION MANUAL 50

4 Project Administration Manual Purpose and Process The project administration manual (PAM) describes the essential administrative and management requirements to implement the project on time, within budget, and in accordance with Government and Asian Development Bank (ADB) policies and procedures. The PAM should include references to all available templates and instructions either through linkages to relevant URLs or directly incorporated in the PAM. The Ministry of Public Works are wholly responsible for the implementation of ADB financed transport projects, as agreed jointly between the recipient and ADB, and in accordance with Government and ADB s policies and procedures. ADB staff is responsible to support implementation including compliance by the Ministry of Public Works of their obligations and responsibilities for project implementation in accordance with ADB s policies and procedures. At Grant Negotiations, the recipient and ADB shall agree to the PAM and ensure consistency with the Grant agreements. Such agreement shall be reflected in the minutes of the Grant Negotiations. In the event of any discrepancy or contradiction between the PAM and the Grant Agreements, the provisions of the Grant Agreements shall prevail. After ADB Board approval of the project's report and recommendations of the President (RRP) changes in implementation arrangements are subject to agreement and approval pursuant to relevant Government and ADB administrative procedures (including the Project Administration Instructions) and upon such approval they will be subsequently incorporated in the PAM. a The name of the operational financing document may vary on a project-to-project basis; this reference shall be deemed to encompass such variations, e.g., a Framework Financing Agreement, as applicable

5 I. PROJECT DESCRIPTION 1. The Road Asset Management project (RAMP) will finance priority maintenance works for part of Afghanistan s regional highway sections from Kabul to Ghazni and from Kabul to Jalalabad, which are the economic lifeline of the country s eastern region. The project will include a capacity development component to introduce sustainable road management practices, specifically in road asset management and road maintenance. The additional financing will help finance the gap arising from changes in financing arrangements and a change in scope of the RAMP, to include priority maintenance works for the Southern National Ring Road of Afghanistan s regional highway, which is the economic lifeline of the country s eastern region. The project will include a capacity development component to introduce sustainable road management practices, specifically in road asset management and road maintenance. The overall project will facilitate regional connectivity, improve quality and efficiency of road transport services, and promote inclusive economic growth. 2. The main challenges facing the roads O&M in Afghanistan are related to institutional sustainability. Financially, Afghanistan is not expected to be self-reliant over the next decade. Funding requirement for the roads O&M is estimated upwards of $200 million annually, while the Ministry of Finance (MOF) only disburses $23 million annually, out of $83 million collected through roadway user fees and taxes, for the roads O&M. Institutionally, the challenges include organizational and human resource issues. Organizationally, the mandates of the different organizations responsible for roads need to be properly delineated. Functionally, the Ministry of Public Works (MPW) lacks the specialized support systems required for adequate and accountable operations. A tool for planning and management roads O&M at the national level is virtually non-existent. 3. The original RAMP (Grant 0508-AFG), has two major components, which are road maintenance and road asset management system (RAMS). Under the road maintenance component, a section of the Kabul-Jalalabad Highway not covered under the recent pilot subproject (from Surubi to Jalalabad), 1 and a section of the Kabul-Kandahar Highway from Kabul to Ghazni were selected for maintenance operations. Both roads are arterial road network and thus significant for the country s economy. The RAMS component will develop a road asset management system as a primary decision-making support tool to help MPW plan and manage roads O&M. The activities proposed are design, development and trial deployment of the system. 2 Adequate ICT infrastructure, including equipment and network, internal within the MPW and between the MPW and the provincial MPW offices, will be provided. 4. The additional financing is needed to address the financing gap of $30.0 million resulting from changes in financing arrangement from USAID; and to include a further 240 km of roads in the southeastern region of Afghanistan that was part of the appraised project, and is still in dire need of basic road maintenance. The additional financing will also support scaling up of O&M practice, including addressing overloading issues; which MPW has identified as one of the main cause of deteriorating road condition on the southern ring road of Afghanistan. It will help consolidate development outcomes by providing sustainable road management practices, specifically in road asset management and road maintenance. 1 A pilot subproject was launched under Tranche 4 of the MFF Transport Network Development Investment Program to provide periodic maintenance for a 50-km section of Kabul-Jalalabad Highway from Kabul to Surubi. 2 This includes the proper design and harmonization of the existing different GIS databases to bring them into one database under MPW s purview. 1

6 5. The overall project is aligned with the following impact: increased sustainability of Afghanistan s road transport sector, as highlighted in Afghanistan s O&M Strategy The overall project will have the following outcome: improved road connectivity and safety. 6. The project outputs will be (i) national highways in the southeastern region maintained, and (ii) O&M and road asset management capacity enhanced. The additional financing will enable the expansion of the project outputs. It will finance periodic and routine maintenance works performed on approximately 328 kilometers (km) along the Southern National Ring Road, between Ghazni and Kandahar as a priority, and other locations along the Southern National Ring Road as needed. The additional financing activities will also expand the capacity development of MPW component to include strengthening MPW s capacity in overloading control. 2

7 II. IMPLEMENTATION PLANS A. Project Readiness Activities Indicative Activities Advance contracting actions Table 1: Project Readiness Activities for Grant 0508-AFG Sep Nov Dec Jan Feb Mar Responsible Individual/Unit/Agency/ Government Establish project implementation arrangements Grant Negotiation X MPW/MOF/ADB ADB Board approval X ADB Grant signing X MOF/ADB Government legal opinion provided X MOF/MOJ/ADB Government budget inclusion X MPW/MOF Grant effectiveness X MOF/ADB ADB = Asian Development Bank, MOF = Ministry of Finance, MOJ = Ministry of Justice, MPW = Ministry of Public Works. Source: Asian Development Bank. Indicative Activities Table 2: Project Readiness Activities for Additional Financing 2017 Responsible Individual/Unit/Agency/ July Aug Sep Oct Nov Dec Government Advance contracting MOF/MPW/ADB X actions Establish project implementation arrangements X MOF/MPW/ADB Grant Negotiation X MOF/MPW/ADB ADB Board approval X ADB Grant signing X MOF/ADB Government legal opinion provided X MOF/MOJ/ADB Government budget inclusion X MPW/MOF Grant effectiveness X MOF/ADB ADB = Asian Development Bank, MOF = Ministry of Finance, MOJ = Ministry of Justice, MPW = Ministry of Public Works. Source: Asian Development Bank. 3

8 B. Overall Project Implementation Plan 7. The Gantt chart below outlines the activities for the implementation of the project. The outputs and implementation activities, which are shown on a quarterly basis, will be updated annually and submitted to ADB together with contract and disbursement projections for the following year. Table 3: Overall Project Implementation Plan Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q 1 Q 2 Q 3 Q 4 Q 1 Q 2 Q 3 A DMF 1. Output 1 Complete road condition surveys for 1.1 Kabul to Jalalabad and Kabul to Ghazni by Dec 2016 and Ghazni to Kandahar by Dec 2017 Complete procurement of civil works for 1.2 maintenance of Kabul to Jalalabad and Kabul to Ghazni by Dec 2017 and Ghazni to Kandahar by Sep 2019 Complete road maintenance works on 1.3 Kabul to Jalalabad and Kabul to Ghazni by Jun 2020 and Ghazni to Kandahar by Jun Output Complete recruitment of consultants by Dec Establish RAMS by Sep Enhance capacity of MPW staff in road O&M and RAM by Sep 2021 B Management Activities 1. Procurement plan activities to procure contract packages 2. Consultant selection procedures 3. Annual/Mid-term review 4. Project completion report DMF = design and monitoring framework, MPW = Ministry of Public Works, O&M = operation and maintenance, Q = quarter, RAMS = road asset management system. Source: Asian Development Bank estimates. Q 4 4

9 III. PROJECT MANAGEMENT ARRANGEMENTS A. Project Implementation Organizations Roles and Responsibilities Project implementation Management Roles and Responsibilities organizations Ministry of Finance Facilitate negotiation, signing, and execution of the grant (Recipient and executing agreements agency) Monitoring project progress and instructing MPW to take corrective action to prevent significant variations and deviations from schedules and budgets (if any) Ensure timely submission of withdrawal applications to ADB Ministry of Public Works Focal point for communication with ADB on project related (implementing agency) matters, and signatory to important documents such as consultancy service contracts, withdrawal applications, and audit reports Ensure timely and effective completion of project Ensure coordination with other concerned government agencies and development partners Ensure that PMO is fully staffed and functional during the entire period of implementation Ensure compliance with grant covenants, ADB s guidelines, procedures, and policies Program Management Office Day-to-day implementation of the project, including (implementing unit) administration of all consultancy contracts (instructing the supervision of consultants, approving variations, suspending and terminating contracts) ADB Supervise MPW s implementation of the project by: o o Facilitating knowledge sharing ADB = Asian Development Bank, PMO = program management office. o o Selecting the consultants Reviewing and facilitating approval of project implementation and procurement documents submitted by executing agency Disclosing project information to the public Fielding review missions 5

10 B. Key Persons Involved in Implementation Grant Recipient and Executing Agency Ministry of Finance Implementing Agency Ministry of Public Works Dr. Mohammad Khalid Payenda Deputy Minister Pashtunistan Watt, Kabul, Afghanistan Abdul Rahman Salahi Deputy Minister O&M +93 (0) First Macroryan District 16, Kabul, Afghanistan Program Management Office Asian Development Bank Transport and Communications Division (CWTC) Central and West Asia Department (CWRD) Mission Leaders Aminullah Hatam Program Director +93 (0) First Macroryan District 16, Kabul, Afghanistan Dong Soo Pyo Officer-in-Charge Telephone: Fax: address: dspyo@adb.org 6 ADB Avenue, Mandaluyong City, 1550 Metro Manila, Philippines Grant 0508-AFG Witoon Tawisook Principal Transport Specialist Telephone: address: wtawisook@adb.org 6 ADB Avenue, Mandaluyong City, 1550 Metro Manila, Philippines C. Project Organization Structure Additional Financing Nana S. R. H. Soetantri Transport Specialist Telephone: address: nsoetantri@adb.org 6 ADB Avenue, Mandaluyong City, 1550 Metro Manila, Philippines 8. MOF will be the recipient of the grant and executing agency (EA). MPW will be the implementing agency (IA), which has the mandate for planning, designing and implementing transport projects as well as policy and regulatory authority over the sector. The program management office (PMO) has already established within MPW for day-to-day administration and execution of ADB-financed road sector projects. The PMO will also supervise the additional financing to RAM project, in accordance with the provisions of the Grant Agreement. This PAM, and related legal agreement for the proposed project, the PMO will be strengthened through consultants recruited under the grant. 6

11 PROJECT ORGANIZATION STRUCTURE MoF (EA) ADB MPW (IA) AITF, WB and other donors PMO Consultants Contractors AITF = Afghanistan Infrastructure Trust Fund, ADB = Asian Development Bank, MOF = Ministry of Finance, MPW = Ministry of Public Works, PMO = Program Management Office, WB = World Bank. 9. The PMO contains the PMO program director and key staff (project managers, procurement and contract management, engineering, financial management and accounting). Under this Grant, PMO will handle day-to-day implementation activities, in particular (i) administering the civil works contracts for maintenance, (ii) evaluating design options for the road asset management system (RAMS), (iii) reviewing supporting documents submitted by contractors and consultants, (iv) obtaining ADB approvals, (v) monitoring and evaluating project activities and outputs, (vi) reporting the project grant s progress to MPW and ADB, (vii) reviewing the project progress with ADB missions, and (viii) consultations with stakeholders and disclosing project information to them in consultation with ADB. 10. MPW will ensure that, during the entire period of the project, a team of staff on procurement, engineering, financial management, accounting, program monitoring and evaluation, legal, administrative, and secretarial staff remains in place. MPW will ensure that a project manager be assigned in the PMO for the day-to-day management of the project. The consultants to be hired under the project will offer additional capacity to the PMO in road asset management, operation and maintenance, procurement and contract management. PMO will also be equipped with the necessary office space, equipment, and facilities. 7

12 IV. COSTS AND FINANCING 11. The project is estimated to cost $56.3 million, including taxes, duties and contingencies (Table 4). Table 4: Project Investment Plan ($ million) 8 Current Amount a Additional Financing b Item Total A. Base Cost c 1. Road Maintenance Road Asset Management Capacity Building Subtotal (A) B. Contingencies 2.5 d 2.5 e 5.0 Total (A+B) a Refers to the original amount. Includes taxes and duties of approximately $1.7 million to be financed from Asian Development Fund sources. b Includes taxes and duties of approximately $1.56 million to be financed from Asian Development Fund sources. c In mid-2017 prices. d Physical contingencies computed at 10% for civil works and 3% of consultancy services. Price contingencies computed at 2.5% on foreign exchange costs and 5.5% on local currency costs; includes provision for potential exchange rate fluctuation under the assumption of a purchasing power parity exchange rate. e Physical contingencies computed at 5% for civil works and 3% of consultancy services. Price contingencies computed at 2.5% on foreign exchange costs and 5.5% on local currency costs for 2017, 5.8% for 2018, and 6% for 2019 to 2022; includes provision for potential exchange rate fluctuation under the assumption of a purchasing power parity exchange rate. Source: Asian Development Bank estimates. 12. The financing plan is in Table 5. Amount ($ million) Table 5: Financing Plan Current a Additional Financing Total Share of Amount Share of Amount Total (%) ($ million) Total (%) ($ million) Share of Total (%) Source Asian Development Bank Special Funds resources (grant) % % % Government % % % Total % % % a Refers to the original amount (Grant 0508-AFG). Source: Asian Development Bank s estimates. A. Detailed Cost Estimates by Expenditure Category Table 6: Grant 0508-AFG ($ million) Item Cost % of Total Cost A. Investment Costs 1 Civil works % 2 Equipment % 3 Consultants % Subtotal (A) %

13 Item Cost % of Total Cost Total Base Cost % B. Contingencies 1 Physical % 2 Price % Subtotal (B) % Total Project Cost (A+B) % Source: Asian Development Bank estimates. Table 7: Additional Financing ($ million) Item Cost a % of Total Cost A. Investment Costs b 1 Civil works % 2 Equipment % 3 Consultants % Subtotal (A) % Total Base Cost % B. Contingencies c 1 Physical % 2 Price % Subtotal (B) % Total Project Cost (A+B) % a Includes taxes and duties of approximately $1.56 million to be financed from Asian Development Fund sources. b In mid-2017 prices. c Physical contingencies computed at 5% for civil works and 3% of consultancy services. Price contingencies computed at 2.5% on foreign exchange costs and 5.5% on local currency costs for 2017, 5.8% for 2018, and 6% for 2019 to 2022; includes provision for potential exchange rate fluctuation under the assumption of a purchasing power parity exchange rate. Source: Asian Development Bank estimates. B. Allocation and Withdrawal of Grant Proceeds 13. In the Grant Agreements to be shared and agreed with the government, the Schedule entitled 'Allocation and Withdrawal of Grant Proceeds' will contain both narrative paragraphs and the 'Table of Allocation and Withdrawal of Grant Proceeds'. ALLOCATION AND WITHDRAWAL OF GRANT PROCEEDS (Road Asset Management Project) Number 1 Item Works, Equipment and Consulting Services Total Amount Allocated for ADB Financing ($) Category Total 25,500,000 Basis for Withdrawal from the Grant Account 25,500, % of total expenditure claimed 9

14 Number 1 ALLOCATION AND WITHDRAWAL OF GRANT PROCEEDS (Additional Financing to Road Asset Management Project) Item Works, Equipment and Consulting Services Total Amount Allocated for ADB Financing ($) Category Total 30,000,000 Basis for Withdrawal from the Grant Account 30,000, % of total expenditure claimed C. Detailed Cost Estimates by Financier Table 8: Grant 0508-AFG Government Asian Development Bank Amount % of Cost % of Cost Total Amount Category Category Cost Item A A/C B B/C C A. Investment Costs 1 Civil works % % Equipment % % Consultants 0.5 a 20.0% % 2.5 Subtotal (A) % % 23.5 B. Contingencies % % 2.5 Total Project Cost (A+B) % % 26.0 % Total Project Cost 1.9% 98.1% a Government contribution will be in kind through providing office space and counterpart staff to the project. Source: Asian Development Bank estimates. Table 9: Additional Financing Government Asian Development Bank Amount % of Cost % of Cost Total Amount Category Category Cost a Item A A/C B B/C C A. Investment Costs b 1 Civil works % % Equipment % % Consultants 0.3 d 23.1% % 1.3 Subtotal (A) % % 27.8 B. Contingencies c % % 2.5 Total Project Cost (A+B) % % 30.3 % Total Project Cost 1.0% 99.0% a Includes taxes and duties of approximately $1.56 million to be financed from Asian Development Fund sources. b In mid-2017 prices. c Physical contingencies computed at 5% for civil works and 3% of consultancy services. Price contingencies computed at 2.5% on foreign exchange costs and 5.5% on local currency costs for 2017, 5.8% for 2018, and 6% for 2019 to 2022; includes provision for potential exchange rate fluctuation under the assumption of a purchasing power parity exchange rate. d Government s contribution will be for incremental administrative expenses, communications and office facilities. Source: Asian Development Bank estimates. 10

15 D. Detailed Cost Estimates by Outputs and/or Components Table 10: Grant 0508-AFG ($ million) Total Cost 11 Road Maintenance Amount % of Cost Category Road Asset Management Amount % of Cost Category Item A. Investment Costs 1 Civil works % % 2 Equipment % % 3 Consultants % % Subtotal (A) % % B. Contingencies 1 Physical % % 2 Price % % Subtotal (B) % % Total Project Cost (A+B) % % Source: Asian Development Bank estimates. Table 11: Additional Financing ($ million) Total Cost a Road Maintenance Capacity Building % of Cost Amoun % of Cost Amount Item Category t Category A. Investment Costs b 1 Civil works % % 2 Equipment % % 3 Consultants % % Subtotal (A) % % B. Contingencies c 1 Physical % % 2 Price % % Subtotal (B) % % Total Project Cost (A+B) % % a Includes taxes and duties of approximately $1.56 million to be financed from Asian Development Fund sources. b In mid-2017 prices. c Physical contingencies computed at 5% for civil works and 3% of consultancy services. Price contingencies computed at 2.5% on foreign exchange costs and 5.5% on local currency costs for 2017, 5.8% for 2018, and 6% for 2019 to 2022; includes provision for potential exchange rate fluctuation under the assumption of a purchasing power parity exchange rate. Source: Asian Development Bank estimates. E. Detailed Cost Estimates by Year Table 12: Grant 0508-AFG ($ million) Item Total Cost A. Investment Costs 1 Civil works Equipment

16 Item Total Cost Consultants Subtotal (A) B. Contingencies Total Project Cost (A+B) % Total Project Cost 100.0% 26.9% 61.5% 11.5% 0.0% Source: Asian Development Bank estimates. Ite m A. Table 13: Additional Financing ($ million) Total Cost Investment Costs 1 Civil works Equipment Consultants Subtotal (A) B. Contingencies Total Project Cost (A+B) % Total Project Cost 100.0% Source: Asian Development Bank estimates. 0.0% 10.8 % F. Contract and Disbursement S-curve 51.4 % 26.4% 3.9% 14. The graph below shows indicative contract awards and disbursement projections over the implementation period of the project. These projections are subject to revision. Table 14: Total Contract Awards and Disbursement Projections Contract Award Disbursement Projection Cumulative Projection Cumulative Year Quarter $ Million $ Million $ Million $ Million Q Q Q Q Q Q Q Q Q Q Q Q Q Q % 12

17 Contract Award Disbursement Projection Cumulative Projection Cumulative Q Q Q Q Q Q Q Q Total Source: Asian Development Bank estimates Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q Total Contract Award cumulative Disbursement cumulative Table 15: Contract Awards and Disbursement Projections (Grant 0508-AFG) Contract Award Disbursement Projection Cumulative Projection Cumulative Year Quarter $ Million $ Million $ Million $ Million Q2 Q3 Q4 Q1 Q

18 2019 Q3 Q4 Q1 Q2 Q3 Contract Award Disbursement Projection Cumulative Projection Cumulative Q Total Source: Asian Development Bank estimates. Table 16: Contract Awards and Disbursement Projections (Additional Financing) Contract Award Disbursement Projection Cumulative Projection Cumulative Year Quarter $ Million $ Million $ Million $ Million 2017 Q Q Q Q Q Q Q Q Q Q Q Q Q Q Q Q Q Q Q Total Source: Asian Development Bank estimates. 14

19 G. Fund Flow Diagram Executing Agency Ministry of Finance (MOF) WITHDRAWAL APPLICATION Asian Development Bank DIRECT PAYMENT Implementing Agency Ministry of Public Works (MPW) Program Management Office (PMO) INVOICES Contractors Consultants Suppliers Cash Flow Advance Account Paper Flow Payments below the minimum value per withdrawal applications 15

20 A. Financial Management Assessment V. FINANCIAL MANAGEMENT 15. An update of the financial management assessment (FMA) for capacity the MPW and its PMO has been conducted in May 2016, 3 based on ADB s Guidelines on Financial Management and Analysis of Projects. 4 The update took into consideration the capacity of MOF, MPW, and PMO, including funds-flow arrangements, governance, staffing, budgeting, accounting and financial reporting systems, internal control procedures, financial information systems, and internal and external auditing arrangements. The updated FMA is presented in Supplementary Appendix According to the updated FMA, the overall control risk from the financial management perspective is moderate and the experience and capacity of MPW and PMO in financial management are adequate to manage the project funds as well as adequate fund flow, accounting, and budgeting arrangements. Following the restructuring in 2015, the overall capacity of the PMO has improved significantly. Staffing of the finance department of the PMO includes a manager, 5 accountants and one trainee. Internal audits are conducted by MPW periodically, while external audits are conducted annually with recent satisfactory results. MPW is responsible for ensuring an adequate audit trail, for which annual financial statements are audited by an independent auditor acceptable to ADB in accordance with auditing standards. In addition to MPW and PMO s continued improvement in their financial management capacity, MOF has been equipped with an online financial management database named Afghanistan Financial Management Information System (AFMIS) that tracks the transaction for all spending categories of each loan/grant. Thus, all the transactions are recorded before being processed. 17. The areas that need improvements are (i) accounting policies and procedures; and (ii) reporting and monitoring. In the accounting policies and procedures, PMO has been using singlebook approach in its accounting system. However, replacement of single-book approach by modern accounting software is in process. In the area of reporting and monitoring, PMO has demonstrated capacity to report and monitor project finances based on ADB requirements. However, there have been major delays in the submission of APFSs. Thus, the updated FMA recommended that (i) modern accounting software be procured and installed as soon as possible so that the relevant PMO staff can be trained in its use; and (ii) international financial management specialist be recruited to support PMO staff in conducting financial management, improve the timeliness of submission of APFSs, and integrate their system with AFMIS. Financial management risks and risk-mitigation measures should be reviewed and updated throughout the life of the project. 3 ADB Pre-Fact Finding Mission for Preparation of Central Asia Regional Economic Cooperation Corridors 5 and 6 (Salang Corridor) Project. 4 The FMA focused on the capacity of MPW and PMO, including funds-flow arrangements, governance, staffing, budgeting, accounting and financial reporting systems, internal control procedures, financial information systems, and internal and external auditing arrangements. Available at: 16

21 B. Disbursements 1. Disbursement Arrangements for ADB 18. The Grant will be disbursed in accordance with ADB s Loan Disbursement Handbook (2017, as amended from time to time), 5 and detailed arrangements agreed upon between the Government and ADB. Online training for project staff on disbursement policies and procedures is available at: Project staff are encouraged to avail of this training to help ensure efficient disbursement and fiduciary control in this section. 19. The PMO will be responsible for (i) preparing disbursement projections, (ii) requesting budgetary allocations for counterpart funds from MOF (if any), (iii) collecting supporting documents, and (iv) preparing and sending withdrawal applications to ADB. 20. Advance fund procedure. Separate advance accounts should be established and maintained for each funding source. The currency of the advance accounts is US dollar. The advance accounts are to be used exclusively for ADB s share of eligible expenditures. The government who administers the advance account is accountable and responsible for proper use of advances to the advance account. The total outstanding balance to the respective advance account will not at any time exceed the estimated ADB financed expenditures to be paid from the respective advance account for the forthcoming 6 months. The request for initial and additional advances to the respective advance account should be based on Estimate of Expenditure Sheet setting out the estimated expenditures for the forthcoming 6 months of project implementation. Supporting documents should be submitted to ADB or by the borrower in accordance with ADB s Loan Disbursement Handbook (2017, as amended from time to time) when liquidating or replenishing the advance account. 21. The PMO should ensure that every liquidation and replenishment of each sub-account is supported by sufficient documentation in accordance with ADB s Loan Disbursement Handbook (2017, as amended from time to time). 22. Statement-of-expenditure (SOE) procedure. The SOE procedure may be used for reimbursement of eligible expenditures. SOE records should be maintained and made readily available for review by ADB's disbursement and review mission or upon ADB's request for submission of supporting documents on a sampling basis, and for independent audit Before submitting the first withdrawal application, MPW should submit to ADB sufficient evidence of the authority of the person(s) who will sign the withdrawal applications on behalf of the government, together with the authenticated specimen signatures of each authorized person. The minimum value per withdrawal application is set in accordance with the Loan Disbursement Handbook (2017, as amended from time to time). Individual payments below this amount should be paid from the advance account by the EA/IA and subsequently claimed to ADB through reimbursement, unless otherwise accepted by ADB. 5 Available at: 6 Checklist for SOE checklist may be found in Appendix 7C of the Loan Disbursement Handbook (2017, as amended from time to time). 17

22 2. Disbursement Arrangements for Counterpart Fund 24. The PMO/ MPW will maintain separate project accounts and records by funding source for all expenditures incurred on the Road Asset Management Project Grant. The Project accounts will follow international accounting principles and practices. C. Accounting 25. The MPW will maintain, or caused to be maintained, separate project accounts and records by funding source for all expenditures incurred on the Road Asset Management Project Grant. The project accounts will follow international accounting principles and practices. D. Auditing and Public Disclosure 26. The MPW will cause the detailed consolidated project accounts to be audited in accordance with International Standards on Auditing and in accordance with the Government's audit regulations by an auditor acceptable to ADB. The audited project financial statements together with the auditor s opinion will be presented in the English language to ADB within 6 months of the end of the fiscal year by the implementing agency. The annual audit report will include a separate audit opinion on the use of the project accounts. 27. The audit report for the project financial statements will include a management letter and auditor s opinions, which cover (i) whether the project financial statements present an accurate and fair view or are presented fairly, in all material respects, in accordance with the applicable financial reporting standards; (ii) whether the proceeds of the {loan} {grant} were used only for the purpose(s) of the project; and (iii) whether the borrower or executing agency was in compliance with the financial covenants contained in the legal agreements (where applicable). 28. Compliance with financial reporting and auditing requirements will be monitored by review missions and during normal program supervision, and followed up regularly with all concerned, including the external auditor. 29. The government, MOF and MPW have been made aware of ADB s approach to delayed submission, and the requirements for satisfactory and acceptable quality of the audited project financial statements. 7 ADB reserves the right to require a change in the auditor (in a manner consistent with the constitution of the borrower), or for additional support to be provided to the auditor, if the audits required are not conducted in a manner satisfactory to ADB, or if the audits are substantially delayed. ADB reserves the right to verify the project's financial accounts to 7 ADB s approach and procedures regarding delayed submission of audited project financial statements: (i) When audited project financial statements are not received by the due date, ADB will write to the executing agency advising that (a) the audit documents are overdue; and (b) if they are not received within the next 6 months, requests for new contract awards and disbursement such as new replenishment of advance accounts, processing of new reimbursement, and issuance of new commitment letters will not be processed. (ii) When audited project financial statements are not received within 6 months after the due date, ADB will withhold processing of requests for new contract awards and disbursement such as new replenishment of advance accounts, processing of new reimbursement, and issuance of new commitment letters. ADB will (a) inform the executing agency of ADB s actions; and (b) advise that the loan may be suspended if the audit documents are not received within the next 6 months. (iii) When audited project financial statements are not received within 12 months after the due date, ADB may suspend the loan. 18

23 confirm that the share of ADB s financing is used in accordance with ADB s policies and procedures. 30. Public disclosure of the audited project financial statements, including the auditor s opinion on the project financial statements, will be guided by ADB s Public Communications Policy After the review, ADB will disclose the audited project financial statements and the opinion of the auditors on the project financial statements no later than 14 days of ADB s confirmation of their acceptability by posting them on ADB s website. The management letter, additional auditor s opinions, and audited entity financial statements will not be disclosed. 9 8 Public Communications Policy: 9 This type of information would generally fall under public communications policy exceptions to disclosure. ADB Public Communications Policy. Paragraph 97(iv) and/or 97(v). 19

24 VI. PROCUREMENT AND CONSULTING SERVICES A. Advance Contracting and Retroactive Financing 31. All advance contracting will be undertaken in conformity with ADB Procurement Guidelines (2015, as amended from time to time) and ADB s Guidelines on the Use of Consultants (2013, as amended from time to time). The issuance of invitations for bid (IFB) and consulting services recruitment notices (CSRN) under advance contracting will be subject to ADB approval. The borrower, EA and IA have been advised that approval of advance contracting does not commit ADB to finance the project. 32. Advance contracting. Advance contracting will be undertaken for civil works and consulting services packages to facilitate project implementation for the additional financing. The bidding documents and consultants TORs of these packages will be reviewed by ADB. Under advance contracting, MPW can complete the consultant selection process entirely and the bidding process up to the contract award. 33. Retroactive financing. There will be no retroactive financing. B. Procurement of Goods, Works and Consulting Services 34. All procurement of goods and works will be undertaken in accordance with ADB s Procurement Guidelines (2015, as amended from time time). 35. The goods to be procured under the original project are equipment for the road asset management project to be procured through International Competitive Bidding (ICB). The cost of the package is estimated at $6.00 million. 36. The goods to be procured under the additional financing include equipment, installation and training for weighbridge system to be procured through ICB. The cost of the package is estimated at $2.50 million. 37. An 18-month procurement plan indicating threshold and review procedures, goods, works, and consulting service contract packages and national competitive bidding guidelines is in Section C. 38. All consultants will be recruited in accordance to ADB s Guidelines on the Use of Consultants (2013, as amended from time to time). 10 The terms of reference for all consulting services are detailed in Section D. 39. The original project (Grant 0508-AFG) will require hiring individual international and national consultant to evaluate options for the road asset management system, provide training in applying the chosen option, and prepare bidding documents for procurement of the RAM system. The consultants will also conduct road condition surveys using the equipment procured under the project and collect pertinent primary data. Another set of individual consultants will be 10 Checklists for actions required to contract consultants by method available in e-handbook on Project Implementation at: 20

25 responsible for supervision of the civil works during the civil works implementation. The consulting inputs will total 370 person-months, 130 international and 240 national. 40. The additional financing will require hiring individual international and national consultant to evaluate options for the weighbridge system and prepare bidding documents for procurement of the weighbridge system. The consultants will also conduct road condition surveys under the project to prepare bidding documents for the civil works packages. Another set of individual consultants will be responsible for supervision of the civil works during the civil works implementation. The consulting inputs will total 107 person-months, 30 international and 77 national. 41. To minimize the risk of procurement delays, the government has agreed that ADB carries out the procurement of the RAM system and recruitment of consultants. This follows the ADB and the government s agreed approach on enhancing project delivery in Afghanistan which encourages the use of existing procurement methodology and to the extent possible avoid new or major changes in procurement and consultancy packages during project extensions. 21

26 C. Procurement Plan 1. Grant 0508-AFG Project Name: Road Asset Management Project Basic Data Project Number: Approval Number: 0508 Country: Afghanistan, Islamic Republic of Project Procurement Classification: Project Procurement Risk: Moderate Project Financing Amount: US$ 26,000,000 ADB Financing: US$ 25,500,000 Cofinancing (ADB Administered): Non-ADB Financing: US$ 500,000 Executing Agency: Ministry of Finance Implementing Agency: Ministry of Public Works Project Closing Date: 31 December 2020 Date of First Procurement Plan: 31 October 2016 Date of this Procurement Plan: 21 May 2017 A. Methods, Thresholds, Review and 18-Month Procurement Plan 1. Procurement and Consulting Methods and Thresholds Except as the Asian Development Bank (ADB) may otherwise agree, the following process thresholds shall apply to procurement of goods and works. Procurement of Goods and Works Method Threshold Comments International Competitive Bidding for US$ 2,000,000 and Above Prior review Goods Shopping for Goods Up to US$ 100,000 Prior review National Competitive Bidding for Works Between US$ 100,001 and US$ Prior review 4,999,999 Shopping for Works Up to US$ 100,000 Prior review Consulting Services Method Individual Consultants Selection for Individual Consultant Prior review Comments 2. Goods and Works Contracts Estimated to Cost $1 Million or More The following table lists goods and works contracts for which the procurement activity is either ongoing or expected to commence within the next 18 months. Packag e Number CW-1 General Description Maintenance of section 2 of Kabul- Jalalabad Road Estimated Value Procure ment Method Review (Prior/ Post) Bidding Procedure Advertiseme nt Date (quarter/year) Comments 3,000, NCB Prior 1S1E Q1 / 2017 Prequalification of Bidders: N Domestic Preference Applicable: N 22

27 Packag e Number General Description Estimated Value Procure ment Method Review (Prior/ Post) Bidding Procedure Advertiseme nt Date (quarter/year) Comments Bidding Document: Small Works CW-2 Maintenance of section 3 of Kabul- Jalalabad Road 3,000, NCB Prior 1S1E Q1 / 2017 Prequalification of Bidders: N Domestic Preference Applicable: N Bidding Document: Small Works CW-3 Maintenance of section 1 of Kabul- Ghazni Road 3,000, NCB Prior 1S1E Q2 / 2017 Prequalification of Bidders: N Domestic Preference Applicable: N Bidding Document: Small Works CW-4 Maintenance of section 2 of Kabul- Ghazni Road 3,000, NCB Prior 1S1E Q2 / 2017 Prequalification of Bidders: N Domestic Preference Applicable: N Bidding Document: Small Works CW-5 Maintenance of section 3 of Kabul- Ghazni Road 3,000, NCB Prior 1S1E Q2 / 2017 Prequalification of Bidders: N Domestic Preference Applicable: N Bidding Document: Small Works Goods-1 Equipment for road asset management system 6,000, ICB Prior 1S1E Q1 / 2017 Prequalification of Bidders: N Domestic Preference Applicable: N Bidding Document: Goods 23

28 3. Consulting Services Contracts Estimated to Cost $100,000 or More The following table lists consulting services contracts for which the recruitment activity is either ongoing or expected to commence within the next 18 months. Packag e Numbe r Indiv- Support 1 General Description Individual consultants for road asset management system, survey, data collection, and supervision of implementation Estimated Value Recruitment Method Revie w (Prior/ Post) Advertiseme nt Date (quarter/year) Type of Proposal Comments 2,500, ICS Prior Q1 / 2017 Assignment: International Expertise: Various 4. Goods and Works Contracts Estimated to Cost Less than $1 Million and Consulting Services Contracts Less than $100,000 (Smaller Value Contracts) The following table lists smaller-value goods, works and consulting services contracts for which the activity is either ongoing or expected to commence within the next 18 months. Goods and Works Package Number TBD1 General Description Renting Armoured Vehicle Estimated Value Number of Contract s Procuremen t Method Revie w (Prior/ Post) Bidding Procedu re Advertisement Date (quarter/year) 100, SHOPPING Prior Q2 / 2017 Comment s Consulting Services Package Number None General Description Estimated Value Number of Contract s Recruitment Method Revie w (Prior/ Post) Advertiseme nt Date (quarter/year) Type of Proposal Comments B. Indicative List of Packages Required Under the Project The following table provides an indicative list of goods, works and consulting services contracts over the life of the project, other than those mentioned in previous sections (i.e., those expected beyond the current period). Goods and Works Package Number None General Description Estimated Value (cumulative) Estimated Number of Contracts Procurement Method Review (Prior/Post) Bidding Procedure Comments Consulting Services Package Number None General Description Estimated Value (cumulative) Estimated Number of Contracts Recruitment Method Review (Prior/Post) Type of Proposal Comments 24

29 C. List of Awarded and On-going, and Completed Contracts The following tables list the awarded and on-going contracts, and completed contracts. 1. Awarded and Ongoing Contracts Goods and Works Package Number None General Description Estimated Value Awarded Contract Value Procuremen t Method Advertisemen t Date (quarter/year) Date of ADB Approval of Contract Award Comments Consulting Services Package Number None General Description Estimated Value Awarded Contract Value Recruitment Method Advertisemen t Date (quarter/year) Date of ADB Approval of Contract Award Comments 25

30 2. Additional Financing Basic Data Project Name: Road Asset Management Project - Additional Financing Project Number: Approval Number: TBD Country: Afghanistan, Islamic Republic of Executing Agency: Ministry of Finance Project Procurement Classification: TBD Implementing Agency: Project Procurement Risk: Moderate Ministry of Public Works Project Financing Amount: US$ 30,000,000 Project Closing Date: 31 December 2021 ADB Financing: US$ 30,000,000 Cofinancing (ADB Administered): N/A Non-ADB Financing: N/A Government Contribution: $0.3 million for incremental administrative expenses, communications and office facilities Date of First Procurement Plan: 7 July 2017 Date of this Procurement Plan: 7 July 2017 A. Methods, Thresholds, Review and 18-Month Procurement Plan 1. Procurement and Consulting Methods and Thresholds 1. Except as the Asian Development Bank (ADB) may otherwise agree, the following process thresholds shall apply to procurement of goods and works. Procurement of Goods and Works Method Threshold Comments International Competitive Bidding for Goods US$ 2,000,000 and Above prior review Shopping for Goods Up to US$ 99,999 prior review National Competitive Bidding for Works Between US$ 100,000 and US$ prior review 4,999,999 Shopping for Works Up to US$ 99,999 prior review Consulting Services Method Quality- and Cost-Based Selection for Consulting Firm prior review Individual Consultants Selection for Individual Consultant prior review Comments 2. Goods and Works Contracts Estimated to Cost $1 Million or More 2. The following table lists goods and works contracts for which the procurement activity is either ongoing or expected to commence within the next 18 months. Package Number CW-1 General Description Maintenance of section 1 of Ghazni- Kandahar road Estimated Value Procurement Method Review (Prior/ Post) Bidding Procedure Advertisement Date (quarter/year) Comments 4,000, NCB Prior 1S1E Q4 / 2017 Prequalification of Bidders: N Domestic Preference Applicable: N Advance Contracting: Y Bidding Document: Small Works 26