UNIVERSAL RURAL ROAD ACCESS

PROGRAM
I. THE RATIONAL FOR ACTION

1.1 The Current Situation in Rural Ethiopia

The constitution of Ethiopia assigns extensive power to its eleven regional states (Addis Ababa,
Afar, Amhara, Benishangul-Gumuz, Dire Dawa, Gambela, Harari, Oromiya, Somali, Southern
Nations, Nationalities, and People's Region and Tigray). Each region has an elected regional
council with legislative and executive power to direct the internal affairs of the region. The
structure of regional government and its sectoral public institutions is replicated to the district
(Wereda) level and sub-district (Kebele) levels.

Ethiopia is a country of great geographical, climatic and cultural diversity. The main climatic
regions include arid, tropical rainy and temperate rainy areas. Most parts of the country consist of
an enormous plateau more than two kilometres above sea level. The plateau has mountains over
4,500 meters, such as the highest peak at Ras Dejen, 4,620 meters above sea level and some of the
world's deepest canyons. Ethiopia’s high plateaus and mountain ranges are characterized by
precipitous edges and dissection by numerous streams. These areas constitute about 45 percent of
the total area and are inhabited by close to 80 percent of the population, the majority engaged in
small scale farming.

The country's diverse topography, high mountains to low-lying depressions, has the effect of
causing a wide variation to the country’s climate. Most of the country has distinct wet and dry
seasons. There are three primary climate zones differentiated by elevation, ‘Degga’ (above 2,500
meters and cool); ‘Weina Degga” (between 1,500 and 2,500 meters and daytime temperature in the
range 18 to 20oC) and the ‘Kolla’ (the warm low-lying eastern border region (lower than 1,500
meters). Below 1500 meters are the lowland areas, located in the north-west, east and south. The
vast majority of these areas support nomadic and semi-nomadic pastoralism. The descent to the
southwest and west leads to the semi–humid lowlands.

The “tablelands” provide the fertile areas used for agriculture and livestock rearing. Agriculture
remains the dominant sector in the Ethiopian economy, accounting for around 50 percent of
Ethiopia’s GDP. Growth of the Ethiopian economy is thus highly dependent on agriculture with
trade, exports and foreign exchange earning based heavily on agricultural products (including
coffee, chat, hides, skins, sugar and spices).

Approximately 66 percent of the total land area of 1.1 million square kilometres is potentially
suitable for agriculture. Ethiopian soils are fertile, but only around 14 percent are utilized for
cultivation of cash crops. The Ethiopian highlands also provide a vast water resource potential, yet
only 1 percent of the estimated annual surface water of 110 billion cubic metres is harvested for
irrigation and hydropower.

Over 85% of Ethiopia’s population of close to 80 Million (second most populous in sub-Saharan
Africa) live in its rural areas, gaining their livelihood directly or indirectly from the agricultural
sector. Per capita income growth and food security are thus highly dependent on agriculture.
Growth remains central to Government’s drive for sustainable economic development.

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ETHIOPIAN ROADS AUTHORITY
 The over-riding development agenda of the Growth and Transformation Plan is to sustain the rapid and
broad-based growth path witnessed during the past several years and eventually end poverty.

Extract - Growth and Transformation Plan 2010-2015

1.2 The importance of Rural Transport and Services in Ethiopia

The reason for the continued prevalence of poverty with such magnitude is generally associated
with low growth, low productivity of subsistence agriculture and a reliance on rain-fed cultivation
vulnerable to the vagaries of weather conditions. Problems are aggravated by the country’s rugged
terrain, its uneven geographic distribution of population and the predominance of isolated rural
settlements with poor spatial integration. Isolation and unreliable or non-existent access to markets
stifles economic activity and further adds to the rural poverty burden.

Without a minimum of reliable and efficient access to locations of basic social and economic
activities, rural life as a whole stagnates, local development prospects remain limited and the whole
economy suffers. Drought adds a significant risk and can threaten to take the lives of millions of
rural people.

Providing and maintaining a minimum level of basic access is therefore an essential element of any
rural and economic development strategy. Improved logistics to support trade and
communication, the location of services, and the provision of cost effective transport
infrastructure and services are key.

Approximately 64 per cent of the land area in Ethiopia lies more than 5 km from an all weather
road. Some 48 million people in the rural areas of Ethiopia live further than 2 km away from the
nearest all weather road. On average, households are often more than 10 kilometres away from a
dry-weather road and 18 kilometres away from public transport services.

Communities are often left isolated and without access, particularly during periods of rains. This
excludes them from exposure to new ideas and influences1. Remoteness, isolation and lack of
services increases vulnerability and severely constrains their ability to contribute to the economy
and development of Ethiopia.

Investment in transport, and particularly road transport, improves the well being of the poor.
Provision of all-weather roads:

√ improves the quality of universal education – it makes it possible to recruit and retain
qualified teachers and assistants;
√ improves access by the poor to human, natural, social and financial resources that they
need to raise living standards and welfare;
√ provides opportunities for the poor to participate more fully in development opportunities
– it gives access to markets, jobs, schools, social and health facilities;
√ provides both short (road building) and long-term (road maintenance) employment
opportunities; and

1
Illustrative facts, World Bank, January 2005

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 √ reduces the negative impacts of natural disasters and shocks and provides the links needed
to manage it.

The greatest returns for agricultural productivity, food security and poverty reduction often come
from appropriate investments in roads.

“In sub-Saharan Africa the transport sector is clearly one of those that needs to be enabled to achieve the quantum leap in
scale and ambition that was called for by the UN Secretary-General……….Increased effort on rural infrastructure and
services to raise the overall level of maintenance and hence reliability and simultaneously, to strengthen and extend the
network in close coordination with emerging agricultural potential”
Extract from working document for meeting of experts, African Transport Ministers Meeting,
April 2005.

1.3 Policy Framework

Government’s policy and action framework with regards improved rural accessibility is driven by
the Growth and Transformation Plan (2010-2015), GTP. The Growth and Transformation
Plan is underpinned by the Road Sector Development Program (RSDP IV)

The Growth and Transformation Plan constitutes Government’s guiding strategic framework for
the five year period 2010-2015 and is considered to be a high growth path to build an economy
which has a modern and productive agricultural sector.

The GTP is directed toward achieving Ethiopia’s long term vision of sustaining rapid and broad
based economic growth, transforming the country’s economy from a subsistence-based agrarian
economy towards a modern, industrialized economy underpinned by the agricultural sector. GTP
is anchored on experiences drawn from earlier and successful programming and policies such as
the PASDEP (2005-2010) and the process of the Agricultural Development Led Industrialization
(ADLI) strategy. The over-riding aim is to sustain the current levels of growth and end poverty.

In line with the strategic objectives for Ethiopia’s economic development, the Road Sector
Development Program (RSDP-IV) is closely aligned to the objectives of GTP. The roads sub-
sector has targets for the improvement and expansion of the country’s road network and these
targets have been influenced by the needs assessment of the required road infrastructure with
respect to the Millennium Development Goals.

Table 1: Growth and Transformation Plan Targets

Development Objective Indicators Baseline 2009/10 Target 2015
Growth Real GDP Growth 11.0 11.2 p.a
Reducing Poverty Total Poverty Head Count, 29.2 22.2
%
Improving the Food Food Poverty Head Count,
Security Situation % 28.2 21.2

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An important sub-Program of the earlier phases of the Road Sector Development Program, with
specific emphasis on the rural sector, was the Ethiopian Rural Travel and Transport Program
(ERTTP). ERTTP explored methods, technologies and approaches for new road construction and
improvement at community and village level, in the context of poverty alleviation and improving
accessibility for the rural poor.

The key objective of Government, as enunciated in the GTP, is to improve peoples livelihood
through sustaining higher economic growth, progress towards the MDG’s and eventually to
eradicate poverty.

1.4 Building on Success and Progress in the Road Sector

Successive Road Sector Development Programs (RSDP) have been successfully implemented.
These RSDP have been aligned with the goals and objectives of the governing strategic
development frameworks. The current RSDP-IV (2010-1015) is thus aligned fully with the
objectives and targets of the GTP (2010-1015).

One of the thrusts of the GTP is the intensification of support to marketing farm produce both
for the domestic and export market, and by small and large farmers. Key measures identified and
intended to achieve this include:
• Construction of farm to market roads,
• Improved availability of agricultural research and extension services (access to fertilizers,
seeds, pest control measures and veterinary services ) and improved marketing, and
• Promotion of high value crops for export (spices, cut flowers, fruit and vegetables,
sericulture).

Between 1991 and 2004, the rate of expansion of the road network has been of the order of 8.5
per cent per annum on average. In terms of meeting the Millennium Development Goals, the
required rate of expansion would need to rise by some 16 per cent per annum over the period
2004-2015.

The RSDP performance over the thirteen-year period 1997/98-2009/10 has been significant and
substantial as illustrated by the increases gained on the selected target indicators, shown in Table
47.

Table 2: Increase in Selected Indicators

Indicators 1997 2010
Proportion of Asphalt roads in Good Condition 17% 70%
Proportion of Gravel roads in Good Condition 25% 54%
Proportion of Rural roads in Good Condition 21% 50%
Proportion of Total Road network in Good Condition 22% 56%
Road Density/ 1000 sq. km 24.1 km 44.4 km
Road Density/ 1000 Population 0.46 km 0.58 km
Road Density/ 1000 sq. km (including community roads) 24 km 136.6 km
Road Density/ 1000 Population (including community roads) 0.49 km 1.83 km
Proportion of area more than 5 km from all weather road 79% 64.2%
Average distance to all weather road, km 21.4 11.3

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The impact of the RSDP on the expansion of the community/Wereda road network has been
encouraging as outlined in Table 48.

Table 3: Accomplishment of RSDP - Community Roads

Period, Yr Plan, Km Accomplished, Km % Target

2004/05 to 2009/10 80,000 100,384 125

The distribution of the network of rural roads, comprising those administered by the Regional
Roads Authorities and the Wereda/community is shown in Table 49.

Table 4: Rural Road Network

Total Community
Total Regional Road Total Rural Road Stock
Region Road Network
Network (km) (km)
(km)

Tigray 1,473 5,614 7,087

Afar 1,101 3,988 5,089
Amhara 3,683 22,480 26,163
Oromiya 8,354 43,974 52,328
Somali 2,137 1,351 3,488
SNNP 7,482 17,413 24,895
Benishangul-
Gumz 1,590 4,695 6,285
Gambella 846 489 1,335
Dire Dawa 278 380 658
Total 26,944 100,384 127,328

1.5 Building on Experience in the Road Sector

Launched in 2003 by the Government the Ethiopian Rural Travel and Transport Program worked
in eight districts to build roads, expand transportation and construct essential public facilities.
Wereda communities are feeling the benefits of this pioneering program that brought “new
approaches” to the development of rural Ethiopia. Building the foundations for better roads in the
Wereda has enhanced the ability of districts to plan, carry out and maintain a whole range of
practical improvements.

The ERTTP approach demonstrated the means by which not just access, but a sustainable and
reliable access, can be made universally available to all.

More than 100 Wereda now have a ten-year strategic plan and annual development plan that
includes road provision and maintenance. Better local planning is having an impact on the quality
of local transport and services. Sensible planning of other essential infrastructure, such as clinics,

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schools and water supplies, can, when provided with reliable linkages, bring facilities ever closer to
the rural poor.

The approaches demonstrated through the ERTTP can make roads accessible to all and can
decrease the distances to them to within the accepted international markers of 2 km. Community
roads, built without the correct technical support, are not sustainable in terms of the standard
adopted, quality and maintainability. In contrast, those community roads constructed under pilot
project of ERTTP can provide the needed access and have benefited the rural communities.

“We can now get a wider range of goods at the market as the bus operates twice a week,” says Birahan who sells
‘tellaa’ (local beer) for a living.
Birahan lives in Dera, in the north west of the country, in a Wereda enriched through the
ERTTP experience.

Through the period of the ERTTP, the Federal and Regional Road Authorities have been
instrumental in strengthening the ability of the Wereda authorities to carry out improvements
themselves. For instance, investments made in three of the Wereda districts through the ERTTP
have seen road lengths almost triple. As well as creating employment opportunities for rural
dwellers, many of them women, the expansion of the local road network has encouraged the
emergence of public and private transport services that didn't exist before. Trucks hauling goods
to and from market, buses transporting passengers and carts and bicycles providing a local “taxi
service”, are not uncommon. Whilst demand for transport services has increased there has been an
attendant reduction in fares – this has meant that more people are now able to travel to markets,
service centers and clinics, even during the worst of the rainy season.

The ERTTP has shown that the improvement of access to social and economic centers within
Wereda and Kebele can be achieved through the appropriate development of road and other
infrastructure, in tandem with making available affordable means of transport and transport
services. Success of the approach can be demonstrated in all regions of the country and across a
range of Wereda with differing agro-ecological and livelihoods systems.

The experience of ERTTP has provided important information, data, planning tools and
implementation manuals for application at a Wereda level.

Successive external reviews of pilot projects under ERTTP have commented on the good
standards and quality of the roads, drainage works and bridges constructed in the pilot Wereda. It
only remains to spread the message, impact and benefits of this experience to the rest of the
country.

“I used to travel to Wukro on foot and spend more than a day bringing commodities to sell. As a result of the
road that connects our village, Gebra Kidana to Atsbi, I can now pay 8 birr for the bus journey and it now just
takes me one hour to get there!”

Words of Tesfaye, a retailer from a rural market in an ERTTP Wereda

1.6 Rural Transport Services

Importantly, access is not just a matter of providing roads. Freedom of movement depends on
provision of appropriate transport services. Efficient rural transport plays a huge role in promoting

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rural development by lowering transport costs, cutting travel time and improving the quality of
transport services.

Most Ethiopians still rely on pack animals and carrying loads on their own heads and backs to get
goods to market. The ERTTP has shown that other, more efficient; options are available at
affordable cost. Animal-drawn carts are just one example.

The Growth and Transformation Plan stresses the importance of agriculture, and rural
transportation infrastructure and services. As agriculture will be the most critical for sustained
improvements in Ethiopia’s growth performance, involving revitalization and higher productivity
in traditional areas such as coffee, cereals, pulses, oilseeds, and hides and skins, as well as progress
in new crops such as high – value fruits and vegetable, floriculture, rice, cotton, and agro-
processing, there is the implied need for the expansion and improvement of rural transport
services, as well as roads.

Key Lessons from Ethiopian Rural Travel and Transport Program

Main Message

“Potentially dramatic improvements to local areas in Ethiopia can be brought about

improving rural access and mobility”

Improved Access

• Wereda and Kebele level roads constructed or improved using the approaches developed under ERTTP have
brought about substantial reductions in travel time in eight pilot Wereda.
• Farmers can now travel to local markets and traders deliver agricultural inputs and purchase agricultural
produce from farmers

Improved Mobility

• Mobility in rural areas has increased due to the introduction of new transport services. Moreover, in some
Wereda, the use of Intermediate Means of Transport (IMTs), mainly animal carts, has increased due to
interventions such as new credit schemes.
• Constructing new facilities such as health posts and schools closer to users has reduced travel time and increased
usage.

Income Generating Activities

• Wereda report positive changes in the socio-economic conditions in rural areas, including increases in farm
production, increases in marketed output, diversification into new products, reductions of the price of
manufactured goods in local shops and the increased availability of micro-credit.
• Labour-based methods, generating employment, have been successfully used for most road construction
interventions, achieving satisfactory standards that are maintainable. is sustainable. Labour-based methods
have also proved popular with local people.
• Farm gate and local market prices for local produce have increased.

Source – External Assessment of ERTTP (2008)

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Anticipated growth in industry, centering around light manufacturing, leather products, textiles,
food and beverages has significant agriculture sector linkages to further increase demand. This
requires the reduction of Ethiopia’s transport services deficit in rural areas.

Synergy is needed between efforts to expand rural access roads and the provision of suitable and
affordable transport services.

Intermediate Modes of Transport (IMTs) can play an important role as efficient option, in terms of cost and
time, particularly for short distance and low density trips relating to farm and off-farm activities. The
development potential of IMTs has been under estimated, partly due to lack of awareness of available technology
and its benefits, lack of policy and strategy, gaps in exploring and adopting appropriate designs for low cost
motorized and non-motorized means; inadequate decentralized production capacity; insufficient attention to cost
effective methods of production of, for example, Animal Drawn Carts (ADCs) and Hand Drawn Carts
(HDCs); weaknesses in providing a regulatory framework and enabling environment for access to sources of
finance.

Extract – Promoting the Use of Intermediate Modes of Transport (IMTs) in

Rural Ethiopia: ERA, 2010

Along with government’s plan to improve rural road access, there is a need to embark upon
interventions beyond roads that will improve rural transport and logistical infrastructure and
services. The Road Sector Development Program (RSDP) Performance and Millennium
Development Goals (MDGs) Transport Indicators Annual Reports show that the largest
proportion of the rural population is adversely affected by poor accessibility and mobility. This is
particularly evident in view of the small size of the motor vehicle fleet and the limited role, to date,
of IMTs.

With the anticipated increase in agricultural productivity and production in rural Ethiopia, the
demand for transport will grow. Agricultural inputs and surplus will need to be moved far more
cost-effectively.

Complementary to rural road provision, it is recognized as important to:

√ develop a series of detailed specifications for the design and manufacture of IMTs;
√ provide guidance notes to familiarize Wereda officials and end-users on different IMT
options;
√ establish the conditions for promoting implementation and use of IMTs within Wereda;
and
√ develop a concise strategy and policy for expanding and promoting their use in Ethiopia.

1.7 Kebele and Wereda Access

In response to a general lack of multi-sectoral needs based plans at the local level Government
commissioned the preparation of Wereda Integrated Development Plans (WIDPs) that included
both transport (Wereda Travel and Transport Plans - WTTPs ) and non-transport plans. To
ensure that these were well coordinated and were harmonized with the Wereda development goals,
the plans were developed using participatory approaches at all levels (consultations with
communities and different stakeholders at the Wereda, Regional and Federal level).

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 Impact of Improved Rural Road Provision: The case of the Daleti – Oda Bildigulu Road

The Daleti – Bildigilu (37 km) road provides the only road link into the Wereda.
•Travel time by bus now only takes about 30 minutes, compared to 12 hours walk or 5-6 hours by truck
previously.
•The road construction provided an incentive to farmers to increase the production of sesame and other products for
the market (sesame production per farmer has increased from 2,000 kg in 2003/4 to 12,000 kg – a six-fold
increase).
•New land has come under cultivation. Over the period 2004/05 to 2007/08, it is estimated that about 10,000
hectares of land had been cleared and is being used for agricultural purposes.
•Further agricultural diversification through the adoption of higher value crops is now a strategic objective of the
wired.
•Prices of manufactured goods at Bildigilu have dropped by around 20% compared to the level in 2003/04. For
example, the price of 1 kg of sugar has reduced from 12 ETB to ETB 10 and 100 units of soap from 240 ETB
to 200 ETB.
•People have better access to the vegetable market at Daleti. This has enabled them to eat a wider variety of food
products, resulting in improved nutritional status.

Source – External Assessment of ERTTP (2008)

Wereda plans provide the appropriate information in an integrated framework that guides the
prioritization of infrastructure interventions, including roads. The plans also capture maintenance
and sustainability arrangements, financing and contribution arrangements, institutional and other
requirements and monitoring, evaluation and reporting arrangements.

Specifically the Wereda Travel and Transport Plans capture:

√ Road network by road class, type and length including village tracks and paths;
√ Location and utilization of other transport infrastructure e.g. waterways
√ Road and waterway maintenance & funding arrangements
√ Characteristics of travel demand and supply in the Wereda
√ Characteristics of availability of intermediate means of transport, including animals
√ Statistical and baseline monitoring data including Transport
√ Available all weather & dry weather only road infrastructure
√ Road Density statistics (Km/1000 km2 ) & Km/1000 Population
√ Average Travel Time to an all weather road
√ Average travel times to essential and other services (health centre, school, water, energy,
market, mills etc)

From the information and data collected during the Wereda Integrated Development Program an
assessment was made of the service levels in each region (see Table 50).

In addition to providing important baseline monitoring data the Wereda Integrated Development
Plans have also provided important planning level information at Wereda, Regional and Federal
level. This information, supplemented with GIS and other planning information from the regions
and Wereda is used to establish regional and Wereda needs in terms of Kebele interconnectivity
and access.

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Table 5: Assessment of the Service Levels - Average of all Regions
Travel to Service Range of Travel Average Average
Time, hrs, to Time, hrs Distance, Km
Services (all
Regions)
All Weather Road 1.5 - 5.3 2.94 8.8
Health Centre 1.4 – 13.0 3.1 9.3
School 1.0 – 3.9 1.35 4.05
Water 0.7 – 4.3 1.41 4.2
Energy (Fuel) 0.9 – 2.9 1.71 5.15
Market Centre 1.4 – 1.9 4.41 13.25
Farm Area 0.9 – 2.0 1.02 3.05
Grazing Area 0.2 – 2.5 1.82 5.5
Grinding Mill 0.9 – 6.6 3.05 9.15

Table 51 provides an assessment of Kebele accessibility. Around 39% of Kebele are connected by
all-weather roads.

Table 6: Kebele Accessibilty (2009)

Number of Kebele connected
No. Region Number of Number of by all weather roads
Wereda Kebele In number In percent
1 Tigray 35 666 363 55
2 Afar 29 371 156 42
3 Amara 124 3234 1074 38
4 Oromya 295 6814 2575 38
5 Somali 50 401 90 23
6 Benshangul Gumuz 23 400 90 23
7 SNNP 134 3806 1473 39
8 Gambella 11 198 64 32
9 Dire Dawa 1 47 18 38
Total 702 15937 5903 37*
* This figure increased to 39% in 2010

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In summary:

The total Kebele and community roads in Ethiopia are estimated at approximately 100,384 km of
which around 39% provide Kebele connection to an all weather road.

Around 20% of all Kebele have community roads (about 26,000 km) providing seasonal (dry
weather) access and 37% have roads giving all weather access (range 35% to 92% seasonal access
and 23% to 55% all weather access respectively depending on region).

Some 43% of all Kebele do not have any motorable access and are impassable or unreachable by
motorized transport in any season (range 6% to 65% depending on region). Connection to these
Kebele requires construction of some 71,523 km of all weather access road.

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II. TOWARDS UNIVERSAL RURAL ROAD ACCESS IN ETHIOPIA

2.1 Background

The Government has a set vision to make public, economic and social services physically more
accessible to the rural population. There remains a critical need to provide rural communities with
transportation infrastructure and services that ensures permanent accessibility to social and
government services, economic and business services, and better opportunities for employment and
income generation.

In response to this need, and as part of the RSDP-IV, Government is embarking on a Universal
Rural Road Access Program (URRAP) that sets out to connect all Kebele by roads of a standard
that provides all-weather, year round access, meets the needs of the rural communities, are
affordable and maintainable.

As a catalyst, the URRAP is designed to improve rural livelihoods by reducing isolation for rural
populations and to provide year round access to their markets, social and other services.

The program focuses on poverty reduction and is an important poverty alleviation catalyst. It is seen
as an essential pillar for delivery of GTP and our MDG targets and furthermore underpins
Government’s actions and vision for expansion of all sectors of the economy.

The program recognizes the challenges faced by isolated communities and their constraints in trying
to take part in our economic growth. The program provides a response to the voice of the rural
poor who demand and have a basic right to access to transport, social and other services.

As part of the RSDP, URRAP “joins up” and harmonizes all rural road infrastructure development
under a single umbrella. The program unifies all efforts that provide improved road access.

URRAP is not prescriptive in its approach. It recognizes fully the local context, local needs, local
capabilities and local realities and builds on and rolls out the experiences and lessons learned on the
ground in Ethiopia through a number of key pilot programs and projects implemented over the last
five years or so. The program promotes application of innovation, knowledge and learning.

URRAP is realistic and achievable in that it provides the opportunity to establish sustainable road
access at an appropriate standard and affordable cost. The inclusion of labour-based approaches,
community contributions and an expanded participation by the private sector are key elements. The
program captures the preservation of assets through streamlining of sustainable maintenance and
management systems, such as implementation of length-man approaches.

The program is multi-dimensional in its outlook and inclusive in its approach. It removes barriers
and promotes participation from communities, private sector and all layers of government and as
such is a facilitator for development.

In its approach the program promotes road user safety, equality and protection of our
environmental assets.

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The vision for the Universal Rural Road Access Program is a clear and simple one: To free the
country’s rural peoples from their access constraints, reduce rural poverty, improve welfare
and opportunity, stimulate agro-productivity and share growth - a growth in which poor
people benefit.

In its mission, the Universal Rural Road Access Program will connect all Kebele by all-weather
roads and will provide communities year round access. Road infrastructure will be of
appropriate standards to meet the needs of the rural communities and will be affordable to
build and maintain.

2.2 Results

URRAP is action oriented and results based. URRAP will, in the course of its 5 year delivery expand
and improve the condition of the rural and community road network in all regions by:

i) Rehabilitation/ construction of 71,523 Km of all weather access roads to a maintainable

condition,
ii) Introduction of sustainable road maintenance regimes on improved road networks,
iii) Developing and strengthening small and medium scale private enterprises working in
support of the sector,
iv) Creating massive employment opportunities for community and middle-level professionals,
and
v) Instituting and strengthening an appropriate and affordable institutional set-up at Wereda
level that can administer and manage roads under its jurisdiction.

2.3 Benefits

The benefits and beneficiaries from implementation of URRAP are many. The principle benefits are
seen as:

i) Substantial improvement and reliability of access for the rural population to markets,
social and other services through reduced transport time and cost
ii) Improved access for seriously isolated areas of the country and communities, enabling
further implementation of other poverty reduction programs, such as, sector programs in
agriculture, health and education – all of which require reliable transport services and all-
year access
iii) Improved administrative and economic integration of the country and facilitation of
decentralization through the linking of rural communities, Wereda and Kebele centers,
with the larger national economy and community
iv) Support to the decentralization process and strengthening of public administration and
planning, decision-making, implementation and progress monitoring
v) Support to the private sector and to small-medium enterprises who contribute to
sustainability and self-reliance.

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2.4 Guiding Principles of URRAP

In rolling out the program and in safeguarding delivery and sustainable implementation,
Government is convinced that URRAP is:

• Supported at all levels of Government with strong political sanction at Kebele,

Wereda and Regional levels
• Socially right and environmentally acceptable
• Institutionally possible
• Technologically appropriate and practical
• Economically viable
• Financially feasible

In moving from vision to practice and to meet the challenges ahead the URRAP is underpinned by a
series of guiding principles that together create an approach that is rational in its planning; practical
in application, pragmatic and affordable in its approach, innovative in its techniques and methods,
and is founded on sound local and regional best practice and experience.

The actions and activities of the program are guided by the following principles:

i) Encourage Wider and Harmonized Participation in Planning, Delivery and

Management
a. Is led by Wereda administrations and captures full participation of the beneficiary
communities
b. Reflects and matches the desires and plans at local level
c. Integrates, recognizes and complements the role of other Wereda and Kebele
infrastructure investments

ii) Establish Innovative Funding, Financing and Resource Mobilization

Strategies for Provision and Maintenance of Rural Transport Infrastructure
a. Adopt a network approach
b. Recognition and support to community based efforts
c. Advocate innovative financing methodologies for construction and maintenance
d. Channel and build on all available funding sources
e. Seek and promote value for money investments

iii) Apply Appropriate Design, Construction and Maintenance Standards

a. Promote efficient use of local materials and resources, including labour
b. Implement a range of new, innovative and appropriate road provision and water
crossing technologies
c. Establish affordable construction and maintenance strategies

iv) Enhance Employment Opportunities

a. Encourage application of labour based, labour intensive and intermediate
equipment technologies
b. Give wider opportunity to women and youths

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 v) Promote Private Sector Participation and Enterprise
a. Involve the private sector
b. Improve the environment for the establishment and operation of private
companies supporting or entering the road construction and maintenance sector
c. Promote local equipment and tools manufacturing and those servicing
equipment and supplying materials
d. Enhance competition in the sector and remove uncompetitive practices

vi) Address Policy and Regulatory Gaps

a. Bring clarity to road ownership and responsibility
b. Improve regulation and registration of small and medium sized enterprises
supporting the sector

vii) Adopt Sustainable Rural Road Maintenance Management Strategies

a. Enhance management efficiency and effectiveness of governing institutions
b. Introduce appropriate maintenance approaches, equipment technologies and
skilled human resources

viii) Administer a stringent Monitoring & Evaluation Framework

I. Introduce clear reporting structures
II. Regular public reporting

Integrated within all facets of the program are activities and issues that capture measures to ensure
better environmental protection and management and improve road safety education, management
and enforcement.

15
III. PROGRAM APPROACH

3.1 Technical Considerations

In determining cost-effective solutions to address access problems on unpaved or unsealed roads it

is important to understand the mechanics of how the road deteriorates in the first place.
Deterioration of these types of roads in Ethiopia is governed by the type of material used on the
surface (gravel to soil); the strength of the underlying soil (soft, erodible and/or expansive), the type
and action of traffic (heavy vehicle to pedestrian) and probably most importantly, the influence of
the “road environment”. The road environment would include the interacting influence of climate
(wind, rainfall and intensity), local hydrology and drainage, terrain and gradient.

Surface materials, where these are present, need to resist wear and abrasion in dry weather and
promote surface drainage and run-off in wet weather. Under traffic they need to resist whip off, dust
generation and be stable enough when compacted to resist deformation. Similarly the compacted
materials need to resist erosion and scour. The nature, strength and moisture condition of the
surface soils on earth roads and the underlying formation soils on gravel roads are critical factors in
determining performance, particularly in periods of wet weather.

During wet periods, perennial streams and major rivers will start to flow. Unless adequate cross-
drainage structures, such as, culverts and water-crossings, such as, drifts, causeways and bridges are
provided, access can be prevented and often for long periods, three months is not uncommon.

Problems are worsened in areas where there is prevalence of expansive, black cotton type soils.
These soils, as their name suggests, are agriculturally potentially very productive but when roads are
built on or across them the soils become very weak and slippery when wet and even the lightest of
vehicles can bog down and become stuck.

In circumstances where motorized vehicles try to negotiate roads with high roughness, vehicle
operating costs (which include the costs of tyres, maintenance and fuels) are correspondingly very
high. As a consequence motorized vehicles and transport operators will tend to avoid roads subject
to these types of defects – and no matter what time of the year. Unfortunately, this is the situation in
many parts of rural Ethiopia – transport services will simply not use rough roads. Rural people thus
need to walk long distances to connect to the nearest point (all weather roads) where transport
services are prepared to operate.

Road maintenance aims to reduce user costs, improve safety, provide adequate drainage, maximize
the service life and to keep the road open. The types of materials prevalent in Ethiopia, the nature of
the climate and the terrain presents significant challenges to the operation of road maintenance
activities. “Engineering challenges” are often magnified by a lack of trained personnel in the private
sector who can carry out the appropriate type of maintenance works.

The challenge faced for provision of all-weather access roads for Kebele is a complex interaction between
availability of the right materials and matching traffic, climate, terrain demands and service standard demands
and providing appropriate and cost effective maintenance.

16
In summary, the major technical challenges are to provide durable and functional water crossings,
surfacing with materials that provide the desired and necessary level of service and to provide
effective maintenance management.

In its approach URRAP will balance the required service standard with the appropriate design,
construction and maintenance standards.

3.2 Implementation Approach for Construction & Maintenance

3.2.1 Focus on Labour Based Actions

URRAP will make use of one of our country’s least expensive and most abundant resources –
labour. URRAP is an Employment Intensive Program and will, where possible, use employment as a
first step out of poverty.

The development of locally-based (Wereda and Regional level) contractors can assist in spreading
employment opportunities into all areas of the country, and can provide the capacity at the local
level for the road improvement works envisaged under the program and its subsequent
maintenance.

Labour-based methods2 are an important entry route that allows new and emerging local contractors
into the road sector market. One of the main reasons for the success of this approach is that by
using labour-based methods, the level of investment required by the contractor is reduced when
compared with the size of investment that would be required for a more substantial equipment
intensive operation.

When labour-based methods are used, over five times more direct employment is created for the
rural unskilled workers compared with using conventional equipment-based methods. This includes
a substantial proportion (typically 30%) of employment for women. For these reasons, labour-based
methods using local, small-scale contractors (or community contracts and agreements) will be
extensively used under URRAP.

Labour-based approaches can be used to build earth, gravel and other types of roads. Tried and
tested in Ethiopia over many years and in many regions, labour intensive and labour-based
construction and maintenance technologies for road works has matured to the extent that work can
be produced of similar quality to equipment based work at much reduced costs.

Many of the activities associated with road construction, e.g. setting out; bush clearing; obstruction
removal; ditching, excavation, loading and short haul of materials; unloading and shaping;
compaction; building masonry and other structures such as culverts, drifts and small bridges - are all
perfectly amenable to labour. URRAP will utilize labour on these operations.

2
There is a distinction between labour intensive and labour based approaches whereby labour intensive operations maximize the labour force’s
use of simple hand tools, whilst labour based approaches supplement the work of the labour force by using simple or intermediate equipment,
such as tractors and trailers (with relatively low capital costs compared to conventional heavy civil engineering plant).
17
Similarly, road maintenance activities, cutting vegetation; repairs to structures; filling potholes and
scours; maintaining road signs and marking; cleaning ditches, culverts and small bridges are achieved
using labour intensive and labour based operations.

By using labour-based methods it becomes possible for contractors to enter the road sector at
different levels of skill and operation. These range from petty contracting for routine maintenance,
to periodic maintenance, construction of rural roads and sub-contracting on larger construction
contracts. With the decentralization thrust it is important to have contractors who can operate at the
local level without incurring large mobilization costs for relatively simple works, Table 52.

Table 7: Typical Comparative Construction Costs for Labor and Equipment Based
Technologies
Unpaved roads Equipment-based Labour-based
Construction option option
(% of total cost)
– cost of equipment 80 - 82 % 10 - 12 %
– cost of labour 30 - 40% 50 - 60%

Some of the important benefits of the program will only be realized if opportunities are taken to
maximize local employment creation and women and youths participation. The use of labour-based
methods generates a range of benefits that are well documented elsewhere.

They include skills development and job creation that are self-targeted at the rural poor who have
few other wage-earning opportunities.

The scattered nature, smaller-scale and often-remote location of much of the road provision work
under the program makes it particularly suitable for labour-based construction methods.

3.2.2 Focus on Appropriate Equipment and Tools

Labour-based methods have also been found to be cost effective compared to the traditional heavy
equipment-based methods. Conventional equipment based approaches become expensive and
cumbersome for minor road works and thus is created an opening for labour-based methods using
locally based contractors. At micro and macro levels, the use of a labour based approach has
significant economic advantages over the use of an equipment based approach in the improvement
and maintenance of roads in Ethiopia.

Motorized equipment available on the international market for grading earth and gravel roads
demands foreign exchange to purchase and is generally expensive to operate and maintain. Most of
this equipment is designed for operation in a high-wage, low-capital-cost environment. The need to
import, the costs of purchase, ownership and operation, and the nature of the grading work make
this type of equipment impractical and/or too expensive for sustainable application on rural,
unpaved roads serving poor communities in Ethiopia. There is a range of intermediate equipment
that is far more appropriate for use on these rural roads. Academic training of road engineers
usually focuses on the use of heavy civil engineering plant, based on developed country practices.
Training by demonstration and doing can be provided to emergent contractors on this simpler

18
equipment. There is also scope of local manufacture of tools and intermediate equipment, thus
removing the import pressure.

Labour Based Approaches for Road Works – Experience in Ethiopia - Important

Conclusions:

Costs: Labour-based methods are significantly cheaper than equipment-based methods for similar types of
road works (i.e. the same quality and standard) in both financial and economic terms in Ethiopia. The
Regional Road Authorities using force account units, report that the average cost per kilometre for road
construction using labour-based methods compared to equipment-based methods was 54% cheaper in financial
terms and 60% cheaper in economic terms.

Based on the average financial costs for every 1 Kilometre built using equipment-
based methods 2.5 Kilometres could be built using labour-based methods

Roads standards: The standard and quality of unpaved rural roads built by labour-based methods are the
same as for equipment-based methods.

Employment creation: Employment created using labour-based methods was significantly higher per
unit of investment compared to equipment-based methods.

Some 45% of the cost of labour-based roadworks goes to labour wages compared to
22% using equipment based methods.

The employment of rural unskilled labour using labour-based methods is over four times higher than that
using equipment-based methods – 21% of total cost compared to 5%.

Employment creation due to multiplier effects created indirectly by the road investment exceeded the direct
employment be a factor of about 10 times.

Macro-economic impacts: Labour-based methods generate nearly 70% higher national output per unit
of investment compared to equipment, 80% of which is due to indirect effects.

Break-even wage rates: Because the cost advantage of using labour-based over equipment based methods
is so large, the wage rate at which labour-based methods would become uncompetitive with equipment based
methods (the break-even wage) is also high. Even if unskilled wages increased fairly significantly, the cost
advantage of labour-based methods over equipment-based methods would remain.

Comparative Study of the Impact of Labour-Based and Equipment-Based Methods

in Roadworks in Ethiopia – Study Rural Roads Authorities in Tigray and Amhara
Regions in collaboration with the International Labour Organization (ILO)-June
2008.

Labour, supplemented with appropriate types of low-cost intermediate equipment, such as

pedestrian rollers for compaction and equipment based on tractor technology has the advantage
that:
• Productivities are increased relative to utilization of labour alone and uniform works are
more easily constructed.

19
 • It can compete effectively with more traditional heavy civil engineering plant based
operation and is used effectively for the construction and maintenance of roads
• It complements and extends the range of labour based technologies to include cost-effective
soil stabilization techniques and even surface sealing
• Attachments of implements makes it versatile – there are a large number of implements,
towed by an agricultural tractor, that have been designed for performing a variety of road
works related tasks
• Savings of the order of 15-25 per cent can be effected in items of earthworks, stabilization,
and sealing

Tractors are diverse and open a range of additional opportunities for contractors to engage in other
types of works, apart from roads (see insert).

Additional (non-road) Benefits of Promotion of Intermediate Equipment Based

Technology for Rural Enterprises

Agriculture: Ploughing, Harrowing, Rotovating, Sub-soiling, Haulage, Land Clearance, Root removal, Planting,
Seed Drilling, Fertilizer Application, Pesticide/Herbicide Application, Harvesting, Pond Construction, Dam
Construction, Borehole construction, Contour drains, Fencing (post hole boring)
Forestry: Winching, Loading, Hauling, Poling, Sawing, Access Roads
Agro-Processors: Threshing, Hulling, Milling, Haulage
Municipal: Garbage collection and Disposal, Water Haulage, Night Soil Disposal
Water Sector: Pipeline excavation, Pipe Laying, Cranage, Earth Dam Construction, Irrigation Channel
Construction, Water Pumping, Water Haulage, Borehole drilling
Building Contractors: Crushing and screening; Materials and personnel Haulage
Mining/Quarrying: Crushing and screening, Materials Haulage
Transporters: Short Haulage: Goods, Materials & Personnel
Plant Hire & Mechanical Engineering Companies: Hire to Others; Servicing and repair

Towed grading of roads is but one service that a tractor-based business could provide to the rural
communities in Ethiopia. In the agricultural sector, tractors are usually used principally for
ploughing only. The normal single agricultural season in most of Ethiopia means that productive
work in ploughing may only amount to 300 – 400 hours per tractor per year. This severely limits the
productive return on the capital investment in a tractor. However (see inset) there is an enormous
range of operations that an agricultural tractor can carry out in the rural economy, not just on roads.
Raising utilization by carrying out various activities and services in the annual cycle lowers unit costs
of tractor ownership and consequently the cost of services to the rural community.

20
 Application of Tractor Based Technology for Rural Road (paved and unpaved)
Construction and Maintenance

Haulage: - Gravel Haulage, Water Collection Haulage and Distribution, Bridge & Culvert Materials
Haulage, Fuel Haulage, Plant Haulage (low loader trailer or semi-trailer)
Earthworks: Excavation & Haulage (towed scraper), Excavation (back hoe/ripper/scarifier/compressor &
pneumatic tools), Loading (front shovel attachment)
Spreading and Mixing: Milling, Mixing with disc harrow, Towed grader, Water Distribution – Towed
Bowser
Compaction: Towed Compaction (rubber tyred/steel rollers)
Maintenance: Towed Grading (heavy and light), Grass Cutting
Sealing: Brushing/Sweeping; Towed bitumen/emulsion heater/sprayer, Stone crushing (towed crusher and
screens), Chippings Transport, Slurry Sealing (mixer and spreader), Premix Patching Material Production
Other: Temporary Accommodation (towed caravan/workshop); Personnel Transport

URRAP recognizes that there will be instances where wholly labour intensive or labour based
approaches are not practical or feasible, for example, in sparsely populated lowland and nomadic
areas; in areas of harsh terrain where excavation is difficult, or in situations where productivity is of
prime concern.

In these situations URRAP will adopt other options, such as an extended intermediate technology
approach. In this case, whilst employment opportunities are still maximized intermediate equipment
based operations will be expanded.

3.3 Opportunities for Small & Medium Enterprises

Promoting the development and use of local resources is a central ethos of the URRAP. Local
resources include the human resources in local and regional government, the private sector and
community institutions, in addition to those employed through local entrepreneurs such as
contractors, consultants, industrialists and artisans. Local resources also include the local skills base,
fabricating, servicing or repairing locally made or intermediate equipment, as well as those supplying
local materials such as timber, stone, bricks, and other materials. Locally raised finance or provision
of materials or services in kind is another important element of the local resource base.

Larger construction enterprises, using capital intensive methods for construction and maintenance
works, generally have high overhead costs and their mobilization to the rural areas is expensive.

In its approach URRAP will promote and support initiatives that expand service provision by Small
and Medium Enterprises (SMEs).

SME’s can cater for a whole range of services that support road construction and maintenance. In
addition to the small and medium sized contractors involved directly on the works there are many
other support services and industries on which the industry depends. Opportunities for small and
medium sized enterprises expand and penetrate the market include consultancy and supervision
services, provision and supply of materials (cement, steel, fuel, quarry products), hire and

21
maintenance of equipment, manufacture of tools, and accounting and administration services to
name a few. In the works themselves, specialist SME’s with carpentry, masonry, concreting and
mechanical skills can perform works through sub-contracting arrangements.

In support of these enterprises establishing, surviving and delivering low cost infrastructure,
Government will be proactively removing barriers and constraints that effect business. In addition
to making the public more aware of the potential benefits of SME in delivering rural road and other
civil works infrastructure, Government will champion making contract documentation, pre-
qualification and bidding procedures less onerous. For example, requirements to access advances
can be made less demanding as can the requirements for performance and other guarantees. Special
dispute resolution clauses can be built into the contracts. Payment periods can be aligned to typical
cash-flow constraints faced by SMEs. Tendering and award of contracts will be rational, straight
forward and completely open and transparent.

Procedures and opportunities to access capital or credit for equipment purchase or to bolster cash-
flow will be available. Opportunities to hire the right equipment will also be enhanced.

Access to local, low cost training and professional development opportunities will increase.
Sustainable funding for maintenance and opportunity to tender on civil works programs other than
roads will ensure a continuous workload.

Registration and other trading requirements will be made rational and equitable.

SME’s under the program will:

• be based locally in the rural areas where mobilization costs will be lessened
• have low capital and overhead costs when compared to the traditional civil works
contractor
• have an inter-sector flexibility and will be able to provide services to a range of
sectors and clients outside of the road sector
• use affordable, simple equipment, (either owned or hired) and will be encouraged to
maximize and utilize locally available labour
• recycle more of the project costs into the local community and country as a whole

3.4 Technical Options & Approaches for All-Weather Access Standard

URRAP does not impose stringent and unaffordable standards. It recognizes that there is a natural
progression in standard as traffic increases and road user costs increase. Traditional engineering
approaches impose strict criteria for geometric design, materials, pavement thickness design,
drainage, and surfacing. In its approach, URRAP will promote flexibility of approach,
appropriateness of intervention (suited to labour), affordability (value for money) and maintainability
(sustainability).

The guiding principles for adoption of appropriate road design standards under the program takes
the following criteria into account:

22
 • Kebele roads will achieve a full access, all weather standard
• Economic and financial considerations
• Road function and control of access
• Road safety considerations
• Land use and physical features e.g. special characteristics of junctions, roads passing
through villages and settlements
• Design vehicle and vehicle considerations
• Using innovative techniques to deal with the engineering challenges of water
crossing, drainage and terrain.

The low traffic volume requirements mean that road improvements can be planned at the lowest
practicable standards, if costs are to be justified by benefits obtained.

3.5 Design Considerations

The purpose of rural roads falling under URRAP is to provide communication and access over
relatively short distances, their geometric design does not need to cater for high speed travel over
long distances. Most of the traffic on the road will be local, and most users are presumed to be
familiar with local conditions. Due attention will be given to matters of safety, particularly that of
pedestrians. Delays caused by short sections of reduced geometric standard, making it difficult to
easily overtake slow-moving vehicles, would be deemed acceptable under URRAP. With these
factors in mind URRAP roads can be built at relatively low cost.

In those few cases where entirely new alignments are to be provided, then consideration of the
existing terrain becomes more important. It may be necessary to provide an alignment that deviates
from the shortest route to avoid poor ground conditions or to make use of a particular source of
construction material. Such decisions would always be taken by considering the trade-off between
construction costs and those of user operation. In flat undeveloped terrain, the cost of a road is
almost entirely independent of its alignment, so a relatively high design standard can often be
adopted with no cost penalty. Only when the road is in hilly or mountainous terrain will there be any
significant costs which are attributable to the alignment chosen. A higher standard of alignment will
mean that more cuts and fills are needed resulting in a higher earthworks cost. However, a shorter
alignment will result in lower pavement and maintenance costs, and cost savings for road users. The
objective is to produce a design such that any marginal increase in earthworks costs is more than
offset by potential savings in user costs over the analysis period for the project.

For most Kebele roads an existing alignment will exist. This alignment may be an existing road, or
may be just a rudimentary track. In these cases, the aim will be to provide an alignment that makes
minimal improvement to that which already exists to meet minimum standards of geometric design
appropriate to the class of road and the anticipated traffic level. It is anticipated, that for the most
part under URRAP, that it will only be necessary to make simple improvements to drainage or
stream crossings to provide the degree of passability that is required.

Roads falling under URRAP will have narrower than normal platforms. Where feasible, the
minimum standard for the roads will be 6m wide. A durable 4.5m wide surfacing will be provided
when required. This is similar to the standard adopted on the successful Ethiopian Rural Travel and
Transport Program and set out in the Ethiopian design manual for low volume roads. Earthworks
23
costs can typically be over 40% of the total costs of the road provision. Design of embankments will
be carefully considered in light of local hydrological demands and a need to minimize amount of
earthworks and material movements. Cutting and disturbance of slopes and the generation of excess
spoil will also be carefully controlled and minimized.

In hilly and mountainous terrain, even simple improvements become more difficult. Isolated and
difficult sites would each be considered on their merits. Clear benefits that outweigh costs need to
be identified before embarking on significant earthworks improvements. Provision of adequate
warning signs may be more cost-effective in such situations.

As a general rule the Universal Rural Road Access Program will provide a guide for the minimum
standards but these will remain flexible and adaptable to the local site conditions.

Drainage is critical to assure good performance and serviceability of the road. There are a whole
range of methods for controlling on and off-road drainage. Camber can be varied and drainage
ditches can vary in size and shape in terms of the specific need. Drains can also be lined with bricks
and masonry, in short sections, depending on the demands of the terrain and rainfall intensity. Turn-
outs are located at regular intervals to disperse water away from the road and houses. In areas where
access to water is difficult, innovative design approaches can be used to harvest dispersal water for
storage and use by the local communities.

The program will promote sufficient investment in the surface drainage. Alignments will be
confirmed that maximize good drainage.

One of the main problems with drainage control, especially on areas with steep gradients is
controlling or breaking the velocity of the dispersed water. The program will give special attention to
this problem to avoid scouring and subsequent maintenance problems. There are a range of simple
and robust techniques available such as provision of masonry, wooden and concrete scour checks.

Good surface drainage is needed to protect the road structure from run-off water entering through
the side of the road, directing water from entering from surrounding areas or from the water table.

In providing adequate cross-drainage the program will promote adequate provision of culverts.
These will be of sufficient type and diameter to drain surface water to dispersal or harvesting points
and will be large enough to be easily maintained by hand. Culverts can be ringed or boxed,
prefabricated or constructed in situ using masonry. Proper inlets and outlets, headwalls and aprons
will always be provided, with additional gabion protection if needed. Further erosion protection
measures will be provided for dispersed water, when this is not harvested.

When provision of a bridge is not feasible and where water flow is perennial, various water crossing
structures can be considered. These include fords, bed level crossings, single and multiple-vented
causeways and submersible bridges. These structures allow periodic over-topping during peak flows
and are very cost effective for crossing streams and minor, shallow and wide rivers.

In rural situations pedestrians, animal-drawn carts and bicycles can be an important component of
traffic mix. Designs need to cater for all road users.

24
 When locating roads in erosion-prone regions, or areas where instability of slopes is a problem,
careful attention will be given to minimizing the disturbance of the terrain caused by the road.
Techniques known collectively as bio-engineering will be employed. ‘Bio-engineering’ uses
vegetation to reduce erosion and shallow-seated instability on slopes and generally incorporate small
scale engineering techniques in combination with use of the plants. Bio-engineering systems are
carefully designed to make use of the plants’ natural characteristics, in conjunction with the
engineering component, to combat slope failure.

URRAP is based on flexibility of approach and appropriateness of intervention. A whole range of

engineering techniques and solutions are available that can, when suitable, be utilized to solve or
manage specific road problems. The approach is captured in the national document for design of
low volume roads.

3.6 Making Better Use of Local Materials, Resources and Technologies

In promoting better use of our local materials and natural resources and in developing our human
resources and local technologies the program will assist the development and use of appropriate
equipment and technologies for road works. At the same time the program will support the
development of smaller scale contractors and SMEs that support the road construction and
maintenance industry. There will also be ample opportunity for existing contractors and consultants
to contribute fully to the program and where appropriate in-house units will be used to fill gaps and
support more difficult parts of the program.

With the assistance of ERA, URRAP will introduce sustainable approaches for road Maintenance
Management to the Wereda and regions. This will introduce programmed routine and periodic
maintenance systems, appropriate maintenance techniques and will seek to strengthen the
maintenance procurement and contract management (term and performance contracts may be
considered).

In its approach the program will endeavour to enhance private sector participation for road
construction and maintenance at all levels.

It is envisaged that the program will improve capacity and increase the numbers of available local
civil works contractors, supervisors and technical support staff and consultants working and serving
the sector. Local suppliers to the civil works industry (e.g. producers and suppliers of cement,
aggregates, steel, and equipment) and other support services (e.g. equipment servicing, design
specialists, monitoring and evaluation specialists; quality assurance services and private testing
laboratories) will be actively supported and promoted through the program. The financial support
services, banks and like, will also be important partners in the process.

Community involvement will be increased at all levels from administrative input to the participatory
planning approaches through to increasing opportunity for community works contracts and
community maintenance contracts.

In our training and other support programs we will utilize as fully as possible our existing skill base
and institutions to support the program.

25
3.7 Environmental Responsibilities

The program puts a strong emphasis on protection of one of the countries most precious resources
– its environment.

URRAP appreciates the vital role that the environment plays on the livelihoods of those it sets out
to benefit. It is not a free resource in infinite supply. The environment provides a wide range of
services which underpin all productive activities and contributes to human welfare in a number of
very direct ways. Although it may not be possible to put a “price” on the environment, it has a great
value to those who work and live in it.

Responsibilities for applying sound environmental screening are outlined in Table 53. In carrying out
the program, staff will be guided by the over-arching objective of ensuring that road interventions
are designed and implemented according to sound principles which minimize adverse impact and
enhance benefits. A variety of procedures are followed at various stages of the project cycle in order
to achieve this objective. These procedures normally involve an environmental impact assessment
(EIA) or screening that captures identifying and quantifying the full range of potential impacts on
the natural and social environments and formulates remedial procedures for avoiding, mitigating and
compensating for negative impacts. Remedial measures are reflected within the project and contract
documents and the Regional and Wereda Authorities monitor compliance during implementation.

Community involvement in this process is important. Information, views and concerns are fed into
the Wereda plan and these are discussed at grass-roots level by the affected community.

Whilst the nature of the roads falling under the program might not, under normal; circumstances
merit the same “environmental” attention as say a main road, the magnitude of the program
demands a strenuous assessment for both upgrading and new construction works.

Table 8: Environmental Screening and Management

Project Stage Activity Objective Responsible Agency

Project Initial - register “danger signals” Wereda Development Committee &

identification screening - avoid unnecessary investigation where Wereda Road Office
impacts are
likely to be minimal
Environmental - predict main impacts Wereda Development Committee &
appraisal - assess importance of effects Wereda Road Office
- indicate key mitigating actions required
- present implications to decision makers
Preliminary Screening - decisions on mitigation and checklist Regional Coordination Committee &
requirements Regional Environmental Protection
Office
Environmental - predict in detail likely impacts, including cost Wereda Road Office and if required -
Feasibility Checklist Assessment implications Regional Roads Authority
- identify specific measures necessary to avoid,
mitigate or compensate for damage
- present predictions and options to decision
makers
Selection of projects - decisions on acceptance; Recommendation by Regional
Environmental Protection Office to
Regional Coordination Committee

26
 Cont’d
Design Environmental Mitigation - ensure environmental mitigation measures are Wereda Road Office & - Regional Roads
Plan included in the contract documents Authority
Implémentation Environnemental - ensure environmental mitigation measures are Supervisor & Wereda Road Office
monitoring being complied with during construction
Operations and Environmental audit - assess the extent of implementation of a Regional Environmental Protection
maintenance project against the requirements derived from Office and Regional Coordination
the checklist. Committee
- ensure lessons learned are incorporated in future
projects

3.8 Safe Roads

The program confronts the road safety challenge in our rural areas. The program seeks to be
proactive in developing and implementing strategies that can treat the root causes of road accidents
and levels of severity before they occur.

It is often possible to improve road safety characteristics markedly at little or no extra cost, provided the road safety
implications of design features are considered at the design stage. Unfortunately, road design engineers are often part
of the problem and their failure to take adequate account of operational use of roads often result in increased speeds
and increased deaths when such roads pass through communities straddling the road.

Road accidents are multi-causal in nature, involving human factors, the road environment and
vehicle factors. They are more often caused by a combination of these factors, with human factors
contributing to an estimated 65 per cent of all accidents, the road environment 28 per cent and
vehicles ‘only’ 7 per cent.

In many cases local populations will not have been exposed to the dangers of road traffic before.
The program will set out guiding principles that must be met:

√ Designs will incorporate and reflect the needs of all road users including non-motorized
vehicles, pedestrians, etc. This has implications for almost all aspects of road design,
including carriageway width, shoulder design, side slopes and side drains
√ Clear and consistent messages will be reflected to the driver and road user. Roads under the
Universal Rural Road Access Program should be easily “read” and understood by drivers.
The approach to design will avoid sudden surprises to the road user
√ Appropriate speeds will be controlled by design features, providing clear visual clues and by
prominent signing
√ Conflicts will be reduced by staggering junctions, separation and protective measures where
needed and channelling pedestrians to safer walking and crossing points particularly in
villages
√ Geometric design that could result in additional negative impacts on road safety for both
pedestrians and other road users will be avoided.
√ Local enforcement will be strengthened

Coupled with the above will be provision of regulatory road signs along with adequate provision of
warning and cautionary signage. Warning signs, reduced speed limits or improved surfacings to
reduce visibility problems with dust are particularly important near localized areas of high activity,

27
such as stretches of road within or close to villages and schools. Speed calming devices may also be
considered if circumstances demand. Passing lanes will also be provided at regular intervals to avoid
unnecessary and dangerous over-taking.

Road safety education will be an important element to be considered. The program intends to raise
awareness of problems and behaviours related to traffic and road safety by teaching children, and
adults, to be safer road users. Through schools and community initiatives, supported by the
program, local road users will develop:

√ knowledge and understanding of road traffic

√ behavioural skills necessary to survive in the presence of road traffic
√ an understanding of their own responsibility for keeping themselves safe
√ knowledge of the causes and consequences of road accidents
√ a responsible attitude to their own safety and to the safety of others

In addition to targeting trained teachers who are provided with suitable resource materials through
the program, community road safety education initiatives will be supported. Road safety publicity
campaigns will also be used to raise the awareness of problems and behaviour in addition to
improving knowledge, shaping attitudes and behaviours, as well as stimulating discussion and
debate. These publicity campaigns can include local drama performances in which local languages
are used in order to reach all persons. Community workshops and radio will also be used.

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IV. MANAGEMENT AND DELIVERY

4.1 General

The program works within the boundaries and context of Government’s decentralization process.
URRAP is overseen by a National Steering Committee and Regional Coordination Committees. It
builds on, utilizes and strengthens existing structures. It does not advocate introduction of new
institutions or structures.

Governance Structure for the Universal Rural Road Access Program

Ministry of
ERA Program Transport URRAP
Coordination Steering
Office Committee

Regional
Government Regional
Coordination
Regional
Committee
Roads
Authorities
Wereda
Administration

Wereda
Road Office

4.2 Program Coordination and Oversight

The program oversight falls under the responsibility of the Ministry of Transport who will host and
chair the National URRAP Steering Committee.

The National Steering Committee will provide coordination and leadership at a national level and
will act as the high level decision taking body. The composition of this committee will comprise
representatives from relevant Ministries and regional offices.

The principle duties and functions of the National Steering Committee would include:

• Coordination of National Program

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 • Review and endorsement of Annual Report
• Review of bi-annual progress and monitoring reports submitted through the Regional
Coordination Committees and
• Setting direction for the next fiscal year performance.

The National Steering Committee will be supported by the Program Coordination Office.

Program Coordination Office - Program oversight will be the responsibility of a Program

Coordination Office sitting within the Ethiopian Roads Authority. This office will be responsible for
overall coordination of the program including strategic planning, compilation and consolidation of
national budgeting information and data, monitoring and follow up, and oversight of the works.

The Program Coordination Office will compile drafts of annual and other high level reports for the
approval of the Steering Committee. The Program Coordination Office will be the central point of
contact for the program and it will provide links to and coordination with all stakeholders, funding
agencies and other interested parties. It will also act as the central source for collating all monitoring
and evaluation data and will also provide a knowledge sharing and information dissemination
platform for the program.

Regional Coordination Committee - Regional Coordination Committees will be established to

provide regional level leadership, coordination, steering and monitoring of the program
implementation. Members of these committees will be drawn from the relevant regional offices and
will be chaired by the respective Regional Presidents. The General Manager of each Regional Road
Authority will serve as secretary of the committee. The Regional Coordination Committee will
consolidate regional data, information and statistics for submission onto the Program Coordination
Office.

Wereda Administration - In general, the Wereda Administration will be at the centre of the
delivery and implementation of the program. Through its Wereda Road Offices the Wereda will act
as employer and will be responsible for the contracting of the planning and design services, in
addition to the management and administration of the construction works and maintenance
contracts.

Over the period of the program it is possible that some Wereda will be responsible for contracts
delivering over 200 km of road. This will be in addition to its road maintenance contract
management responsibilities.

Wereda Road Desk - The Wereda road desk will assume the responsibility for formulating,
executing and managing all aspects of the Wereda and community access roads provision contracts.
Wereda will utilize their own force units and small scale contractors and SMEs in delivery of the
works and may contract additional services to support supervision for some or all of the works.

The Wereda road desk will provide monitoring and other data and statistics, through the Wereda
Administration to the Regional Government and Regional Coordination Committee.

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In some specific situations, depending on constraints, such as, Wereda capacity, emergency
situations, security issues, terrain or other difficulties, the planning, design, construction and
maintenance works may be carried out for the Wereda by the Regional Road Authority.

Technical Support - To ensure efficient program and contract management both the Ethiopian
Roads Authority and the Regional Roads Authorities will be available to provide technical, back-
stopping and training support when required.

ERA will prepare design and construction manuals, draft specifications and details and model
contract documentation for minor works envisaged under the program. ERA will also prepare
guidelines for maintenance management of the roads at Wereda level.

In association with the Regional Road Authorities, ERA will prepare the schedule of training, other
programs and training materials to assist Wereda and the training centers. These will focus on
planning, contract preparation and management, financial management, maintenance planning and
monitoring, evaluation and reporting issues. Training and demonstration on aspects of planning,
design, construction and maintenance works will be carried out for the Wereda by both ERA or
RRA in cooperation with the Ministry of Education.

To prepare and encourage emergent SME into the program and the sector ERA will make available
its training centers at Alemgena, Ginchi and Chancho for contractor training. Technical Vocational
Education and Training (TVET) will be targeted to provide training services for technicians,
surveyors, foremen and other essential human resources.

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V. DELIVERABLES, TARGETS AND TIMETABLES

The program log frame is set out at in Annex to this document.

5.1 Extent and Reach

A total of 71,523 km of all-weather and year round roads will be constructed by the Wereda in the
five year period of the RSDP-IV at an estimated cost of ETB 26,431.8 million, equivalent to around
ETB 370,000 per kilometre. The program will be financed by the Government of Ethiopia.

Some 9,568 km of construction and upgrading of roads will be carried out during the first year of
implementation with further boosts in the productivity and participation of local contractors as the
training and other preparatory programs mature.

Specifically and disaggregated by region the provisional delivery targets for the Kebele and
community roads to be constructed in the five years of the URRAP and under the RSDP-IV are
shown in Table 54.

Table 9: Size of Network to be Upgraded/Constructed

Annual Work Plan
Region
2011 2012 2013 2014 2015 Total
Tigray 335 515 550 550 550 2,500
Afar 241 371 396 396 396 1,800
Amhara 2,408 3,708 3,963 3,964 3,960 18,003
Oromiya 4,014 6,180 6,606 6,607 6,600 30,007
SNNP 1,873 2,884 3,083 3,083 3,080 14,003
Gambella 27 41 44 44 44 200
Benshangul 241 371 396 396 396 1,800
-Gumuz
Somali 401 618 661 661 660 3,001
Dire Dawa 21 33 35 35 35 159
Harar 7 10 11 11 11 50
Total 9,568 14,731 15,745 15,747 15,732 71,523

For prioritization, master plans are developed through a consultative process involving communities
and Kebele development committees and these are brought to the Wereda administration. The
regional road agencies assist the Wereda identify and prioritize low volume and community road
projects from their individual master plans.

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5.2 Streamlining and Links to Other Initiatives and Programs

As mentioned earlier, the intention of URRAP is to “join up” and harmonize all rural road
infrastructure interventions under a single umbrella. The program therefore unifies all efforts that
provide improved road access or support to Wereda road offices. This would include Wereda block
grants, the Productive Safety Nets Program, PBS-LIG financing and other Rural Development
Programs; agricultural programs such as the Agricultural Growth Program, Regional and Local
Government Rural Roads Programs, and Regional and Local Government initiatives on improved
service delivery. Voluntary and community contribution will make up a substantial financial
component of the program.

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VI. REPORTING, MONITORING AND EVALUATION ARRANGEMENTS

6.1 Reporting Structure

The Universal Rural Road Access Program is a rolling program over a five year period. The first
phase will run over two years and the second phase over the remaining three years. As such it is
imperative that annual updating and re-programming based on achievements are made.

Wereda will provide bi-annual progress, technical and financial reports to the Regional Coordination
Committees. The Regional Coordination Committees will consolidate these reports, per region, for
submission to the Program Coordination Office for consolidation and reporting to the National
Steering Committee.

6.2 Monitoring and Evaluation

Project monitoring and evaluation will be the responsibility of the Wereda who will monitor
progress against the agreed performance monitoring indicators. These benchmarks will be set by the
National Steering Committee and Regional Coordination Committees, guided by the program
implementation plan.

The type of indicator data that will be collected at Wereda level will include:

i) Transport tables for goods and passengers,

ii) Price of essential commodities,
iii) Travel and access times from villages to markets and essential services, and
iv) Employment statistics.

Monitoring of prices will be adjusted for fluctuations in fuel and inflation.

In addition to the above, the Wereda will be monitoring progress against program for individual
works contracts or agreements. This will provide information and data on implementation progress
and disbursement of funds.

All Wereda will be providing detailed bi-annual reports to the Program Coordination Office,
through their respective Regional Coordination Committees. The Program Coordination Office will
collate and hold all reports, data and other information emanating from the program, including
updating and tracking against the program logical framework.

Reporting format for Physical / Operational and Financial Monitoring – Universal Rural Road
Access Program (URRAP) and Outcome – Based Monitoring of the Universal Rural Road Access
Program (URRAP) are presented below.

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Reporting Format for Physical / Operational and Financial Monitoring – Universal Rural
Road Access Program (URRAP):

1. An Executive Summary or Abstract

2. A Table of Contents
3. Data Sheet by Project
ƒ Project Title
ƒ Project Standard
ƒ Project Location
ƒ Project Number
ƒ Reporting Period
ƒ Project Duration
ƒ Project Implementation Start Date
ƒ Anticipated Completion Date
ƒ Overall Project Budget
ƒ Expenditure for Reporting Period
ƒ Cumulative Expenditure

4. Progress for the Reporting Period vis-à-vis Project Implementation Plan

4.1 A narrative summary of actual outputs in relation to scheduled activities and inputs. (With tabular
presentations and charts).
4.2 Planned and actual expenditure (for the reporting period and cumulative). Explanations to be given on
deviations from planned spending.
4.3 Planned and actual labor days worked by activity and weighted average.
4.4 Equipment activity during the reporting period.
4.5 Material usage during the reporting period (in comparison with supplies schedule of work plan).
4.6 Supervision of works.
4.7 Problems Encountered/Resolved during the reporting period and Effects on Program/Project Schedule.

5. Analysis of Progress: Success, Constraints and Lessons Learned

6. Conclusions and Recommendations
Annex I – Indicators Matrix for Physical / Operational Performance (As Per Agreed Indicators)

Annex II – Road Standards

Annex III – Financial Report

ƒ Project budget by activity – reporting period

ƒ Project expenditure by activity – reporting period
ƒ Cumulative expenditure vis – a – vis cumulative budget

Annex IV – Physical Status (by major activity categories) in comparison with work plan.

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Reporting Format for Outcome – Based Monitoring of the Universal Rural Road Access
Program (URRAP):

1. An Executive Summary
2. A Table of Contents
3. Data Sheet by Component
4. Background or Context of the Program
5. Methodology of Monitoring Performance
6. Brief Description of the Outcome – Based Indicators
7. Data Collection Against Selected Outcome – Based Performance Indicators
7.1 Baseline
7.2 Follow – up Surveys

8. Analysis of Data and Assessment of Performance

8.1 Comparison of baseline and follow – up survey data
8.2 Comparison of Targets and Actual Accomplishment
8.3 Key Findings

9. Lessons Learned for Program Adjustment

10. Conclusions and Recommendations
Annex I – Terms of Reference
Annex II – Outcome – Based Indicators Matrix
Annex III _ Summary of Outputs and Activities

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VII. PROGRESS AND PREPARATION

7.1 Supporting Documents

The following separate and complementary Universal Rural Road Access Program Documentation
has been prepared.

√ Operational Manual
√ Training Manual
√ Small and Medium Scale Enterprise: Approach to Development
√ Technical Standards and Specifications
√ Model Tender and Contract Documents
√ Environmental Checklist

7.2 Supporting Studies

The following studies complement preparation of the Universal Rural Road Access Program
Documentation.

√ Wereda Development Plans

√ Wereda and Community Road Maintenance Strategy and Policy
√ Wereda and Community Road Maintenance Technical Manual
√ National Design Manual for Low Volume Roads
√ Application and Analysis of Deterioration Relationships for Unpaved Labour-Based Roads
in Ethiopia
√ Mobility and Transport Services: Promoting the use of Intermediate Modes of Transport
√ Assessment of Intermediate Equipment Technology

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