Promoting the Adoption of Good Policies and Practices on Rural Transport in Africa

Dissemination of Knowledge Products

On

Planning Prioritizationof Rural Transport Interventions

And

Monitoring & Evaluation of Impacts of Rural Transport Improvements

Introduction

  1. The Sub-Saharan Africa has about 70 percent share of its population living in rural areas. Efficient and effective provision of rural transport[1] and access facilitates the achievement of rural development and poverty reduction objectives. Efficient rural transport is also necessary to increase competitiveness and employment, and reduce vulnerability. Fundamental to achieving such efficiency and effectiveness is the adoption of good rural transport policies and practices.
  1. One of the core mandates of the Africa Transport Policy Program (SSATP)has been to promote and facilitate the adoption of good policies and practices for Rural Transport (RT) by countries in Sub-Saharan Africa (SSA). In an endeavor to strengthen the knowledge on rural transportSSATP commissioned an assignment in 2012 that sought to (i) identify gaps and their nature in the current knowledge products and practice, (ii) propose ways for filling the gaps, and(iii) strategy for dissemination.Four key gap areas were identified, with two of them interrelated,which are the (i)Planning and prioritization tools for RT interventions taking into account infrastructure, transport services, the link with other key sectors like agriculture, health, education, and employment creation; and (ii)Monitoring and Evaluation (M&E) tools, including relevant indicators and instruments for measuring performance and impact of RT contribution to rural growth and poverty reduction.

The Planning and Prioritization for Rural Transport Interventions

Knowledge gaps

  1. The first major gap for planning and prioritization is that practitioners have no clear guidelines as to the correct and more reliable procedure to apply in planning for rural transport infrastructure and services.There is a wide range of planning and prioritization procedures available and in usein Africa; however there is little guidance as to the relative strengths and limitations of different procedures.For example, the SSATP published User Guide to Road Management Tools (2008) provides some descriptions of key factors of the different approaches but does not undertake a comparative analysis or take on board the practical problems faced by the practitioners in the field. It also leaves outa range of useful work in the ‘grey literature’ that is not formally published. Thus, a need was identified for a planning continuum that provides the link between the various existing tools and clarifies ways to select methods suitable for analyzing different objectives for developing rural transport infrastructure and services.
  1. Another gap is the lack of comprehensive guidance on the planning of very low volume rural roads andcurrently there is no unique model for an objective evaluation of benefits. Transport user cost savings may give poor economic justification for improvements where there are low traffic volumes (<50vpd), but there is awareness that some benefits may be missing relating to non-motorized traffic, change in transport mode, transport diversions, social benefits and development benefits.
  1. The choice of appropriate design standards present an important aspect for consideration at the planning stage of rural roads and rural transport infrastructure.Low volume sealed roads are increasingly being promoted as possible alternative solution for rural access roads. However, it remains to be proven as to the long-term viability and affordability of widely applying such standards, which represent a planning gap as well as a gap in acceptable technical standards. A growing number of practitioners consider the best solution to be in providingbasic access for as many people as possible rather than high standards for a few.
  1. The planning gap is even wider with respect to rural transport services. A number of initiatives promoting Intermediate Means of Transport (IMTs) were carried out over the last 20 years but there are no methods for RT planning that adequately incorporate the use of IMTs in the overall rural transport services. In 2007, the SSATP developed a methodology for the rapid assessment of rural transport systems (Starkey, 2007)intended for transport planners to obtain, in a relatively short time, an understanding of the existing RT situation and provide information to assist with policy formulation and planning. Also,various concepts and case studies for the planning of RT services are presented in Module 4.0 of the Rural Transport Training Materials (updated in 2013). But, so far there has been no practical initiative on commercial RT services, and there is very little published in this area in the developing world.

Filling the knowledge gaps in the Planning and Prioritization of RT Infrastructure & Services

  1. SSATP commissioned further work in 2013 in an attempt to fill the knowledge gaps explained aboveand to contribute in increasing the ability of African countries and RT stakeholders to adopt appropriate planning methodologies for RT infrastructure and services. The work has involved synthesizing the existing knowledge on methodologies and tools for improving the planning and prioritization of; i) RT infrastructure designs, development and maintenance; ii) RT services (motorized, non-motorized and IMTs) along with required institutional and regulatory frameworks; and iii) to prepare a framework to guide the selection of appropriate methodologies and tools for planning and prioritization of RT infrastructure and RT services based on purpose and context.
  1. The paper on ‘Planning and Prioritization of Rural Transport Infrastructure and Services’ was produced in January 2014 (John Hine) to provide practical advice to enable planners to arrive at a sound basis for thechoice of appropriate methodologies. It covers selected topics that include policies, institutional and regulatory frameworks,governance and financing arrangements,a comparative analysis of the different methods for effective planning and prioritization of RT infrastructure and RT services.With regard to RT infrastructure the focus of the paper is on low volume rural roads (50 vpd) taking a review of a range of the key issues and procedures, including specific challenges on economic analysis with respect to inclusion of benefits other than vehicle operating costs, andaccounting for various means of transport using the road infrastructure.
  1. Finally the paper provides a proposed frameworkfor the selection of suitable methods and toolsfor planning and prioritization of the rural transport infrastructure and services including IMTs.The framework describes key principles and practical issues to be taken into account in the selection of methods and tools suitable for analyzing different objectives for design, developmentand maintenance of RT infrastructure and services. It also provides guidance for choosing among the different design standards for rural transport infrastructure under constrained budgets, based on theoverall value for money. This framework is subject for dissemination to RT stakeholders in Africa with the aim to promote consistent application of appropriate RT planning and prioritization methods.

Monitoring and Evaluation of Rural Transport Improvements

Knowledge gaps

  1. A monitoring and evaluation system is an essential element of the planning, design and implementation of rural transport projects and is useful in assessing whether projects achieve their strategic and development objectives. The results of impact studies under the M&E system in place will provide the feedback needed to improve rural transport planning. However, tracking results and being able to use them for future planning, and to understand what works and what does not work is a big challenge for developing and improving RT in Sub-Saharan Africa.
  1. In 2005, the African transport ministers endorsed the Rural Access Index (RAI) as an acceptable indicator for monitoring the progress made under the MDGs for rural roads development. RAI was intended to highlight the critical role of rural access and mobility in reducing poverty in poor countries. However, this indicator is subject to much criticism and the general view is that developing acceptable indicators for RT investments, particularly for the M&E of rural transport impact remains a major challenge. Thus there is a need to provide a sound basis for evaluating and measuring the contribution of RT interventions to development objectives at local and national levels. Also, the M&E gap is wide with respect to RTservices. Notably the African Community Access Program (AFCAP) under the DFID has recently undertaken a study aimed for development of indicators for RT Services. This is an important first step towards developing an M&E system that responds to the special needs for planning RT services.
  1. Paucity of reliable data presents another major gap in M&E in Sub-Saharan Africa, including related technical, institutional and financial capacities. SSATP has made attempts since the transport Indicator Initiative launched in 2004 and the subsequent ongoing capacity building for transport sector data management systems in selected pilot countries. There are also other initiatives, e.g. African Infrastructure Knowledge Program (AIKP/AfDB) - a statistical capacity building initiative for Africa. Essentially the actions to address data issues and related capacity building in Africa can best be addressed through collaborative effortsof governments and development agencies.
  1. As part of the actions for filling the knowledge gaps in M&E, a need was identified to develop a theoretical framework with which to make judgments on indicators for measuring performance and impact of RT improvements. This wouldtake into account capacity building needs for transport planners and practitioners to facilitate establishing and managing the M&E system for measuring the indicators on a regular basis.

Filling the knowledge gaps in the Monitoring and Evaluation(M&E) of RT Improvements

  1. SSATP commissioned the second assignment in 2013 intended to cover selected actions required to fill the gaps in knowledge related toRural Transport Monitoring and Evaluation, with emphasis on impact evaluationand the associated governance and institutional aspects.The aim is to contribute to wider efforts to increase capacity for M&Eofthe RT impacts by enhancing the respective knowledge and in turn the ability of SSATP partners to adopt appropriate M&Eapproaches.The work has covered i) a review of the existing knowledge, tools and methodologies for ME of rural transport improvements,and synthesizing key principles and steps required to ensure effective M&E of the RT improvements; and ii) preparation of a framework for measuring the impacts of RT projects on poverty reduction and growth, complemented by a strategy for dissemination.
  1. The paper on ‘Rural Transport Monitoring and Evaluation’ was produced in February 2014 (Tony Airey) covering among others a summary of the methodologies and tools for M&E of the RT improvements,key principles and practical issues to be taken into account in the design and implementation of sustainable systemfor measuringthe impacts of RT projects on poverty reduction and growth, including appropriate indicators and data,institutional aspects and capacity building requirements.
  1. The paper covers the overall framework for measuring the impacts of rural transport projects on poverty reduction and growth as well as the proposed impact evaluation methodologyfor RT improvements appropriate tothe African context. The framework includesmethodology for selecting and defining appropriate indicators for measuring the impacts of RT projects over time, taking into accounteconomic, social and environmental dimensions. This will also contribute in the discussions for post-MDG indicators that are most needed to measure rural transport’s contribution to the overall development goals in specific countries and internationally.

Objectives of Dissemination Strategy

  1. As part and parcel of the work for filling the knowledge gaps in Rural Transport, SSATP endeavors to implement a strategy for dissemination of outputs to a wider body of RT stakeholders in Africa. The objectives of dissemination are: i) to encourage feedback from the RT stakeholders and validation of the information and knowledge produced in the aforementioned subjects; ii) to advocate for the adoption and/or adaptation of the proposed framework and methodologies in African countries in an endeavor to improve the planningof RT interventions and the subsequent M&E ofimpacts on poverty reduction and growth; and iii) to consider the role of RT in the Sustainable Development Goal (SDG)Framework, the successor to MDGs.
  1. In the initial steps for dissemination and also to enhance the quality of deliverables a wide consultation and peer reviewing of the output was conducted by SSATP with international experts in RT as well as professionals from development institutions. Both papers as mentioned in the previous sections will be availableon the SSATP website and other relevant online platforms soon after the ongoing process of validation is completed. Also, the proposed frameworks and methodologies for the planning and prioritization of RT interventions, and for the M&E of RT impacts including the key background information will be published soon. These will form the basis for onward dissemination and knowledge sharing.
  1. In the second major step for dissemination SSATP in collaboration with the International Forum for Rural Transport and Development (IFRTD) and willing African countries will organize dissemination workshops in Africa. These will comprise four country workshops and one regional dissemination workshop intended to attract RT professionals from most African countries. The countries will be identified based on interest to host a workshop, geographic coverage, as well as readiness in terms of knowledge and initiatives on rural transport. SSATP will provide material support (including resource persons) while IFRTD will facilitate preparation and conduct of the workshops. The workshops are planned to take place inthe months of April - May 2014 and will be advertised in the SSATP, IFRTD and other websites.

1

[1]Rural Transport is perceived as a system comprising of infrastructure (roads, trails/tracks, footpaths, waterways, and drainage structures), transport means and services.