By Mutabazi Sam Stewart
UNRA was established by an Act of Parliament as an autonomous entity three years ago with a mandate of managing the national road network on behalf of the government. UNRA’s mandate is not an easy task. The public expects quite a lot from the institution irrespective of the constraints it may face. UNRA is a young institution that faces an enormous assignment of developing and maintaining our roads in a better condition. It inherited a poor road network from the Ministry of Works and Transport which was at that time overwhelmed by the ever increasing criticism from the public about poor performance. As UNRA started on its long journey, skeptics wondered whether it would be up to the task. To address the most pressing challenge at that moment, the government of Uganda allocated 1.1 trillion shilling to the roads sub sector during the financial year 2008/2009. Although inadequate resources were the most significant hindrance at that time it was not the only problem the sector had to deal with. Policy considerations and questions were bound to arise as to whether the new organization had the capacity to absorb the allocated funds and deliver the best job worth the money. UNRA’s capacity has thus greatly been improved in the last three years of its existence with administrative, financial structural and planning systems of the organization already in place. UNRA has improved planning, programming and execution of maintenance works as exemplified by the number of roads it has so far completed and those under consideration.
Uganda has never witnessed the current levels of road construction since independence. There is serious work going on almost in every part of the country. Up to 1000 Km of roads have been constructed in the three years of UNRA’s existence. Old roads have been rehabilitated and maintenance works are being done on schedule unlike before. The challenge will be on whether government will continue to support the sector for a long to guarantee complete recovery of the sub sector. On the flip side, development partners, the public and other interested parties are looking at UNRA to provide an efficient road transport infrastructure. This will however depend on how much funding will consistently be earmarked and actually disbursed to UNRA in a consistent and sustained manner for long term planning commitments and implementation.
New Minister, New Budget
Expectations are high about the new minister of Works & Transport Eng. Abraham Byandala who replaces the long serving Eng. John Nasasira. Hon Byandala brings a lot of experience in the ministry and a lot is expected of him. He is expected to provide the required guidance and support to not only national roads development but also enhancement of District Urban and Community Access Roads (DUCAR) which are currently in a very poor state.
The 2011/2012 budget has once again placed emphasis on interventions in transport infrastructure to enhance an enabling environment for business and improving the effectiveness of government. Government has pledged to continue to consolidate the work undertaken in previous financial years to improve and further develop Uganda’s road network and to reduce the backlog of outstanding works. In accordance with governments continued interest in addressing the critical development challenges that constrain rapid transformation of the economy shillings 1,219.41 billion was allocated towards upgrading key road projects in various parts of the country. The much awaited construction of the second bridge on River Nile in Jinja that is estimated to cost $102 million is to begin during this financial year. The government also promises to embark on a programme for expansion of key highways leading to and from Kampala in an effort to decongest the city.
Why roads are the preferred means of transport
The Ministry of Works & Transport and by extension government has been variously accused of focusing too much on road transport at the expense of other means of transport. This is true and it has a basis. Over 90% of cargo and passengers in Uganda move by road. Road transport accounts for more than 90% of the country’s transport needs. In nominal terms the road network carries an average 40,000 million passenger –km per year compared with 9 million passenger –m by air, 6 million passenger –km by water and non by rail. Therefore road transport is by far the commonest and most readily available means of travel for most Ugandans. Although railway would be a cheaper option especially linking the country to the ort of Mombasa for important export trade purposes, the cost of investment in the same venture quite prohibitive. But even though government was to consider other means of transport, investment in road would be an option that would not be ignored because of its importance and practical advantage.
Cost of Construction of Roads
The cost of constructing a new road has been increasing both locally and internationally. This is an issue that UNRA and government can not ignore. The public is alarmed at the exorbitant rates quoted to deliver a kilometer of paved (tarmacked) road. Strategies must be sought by UNRA to reduce these costs without compromising the quality of the road product. Specifically, UNRA may need to promote appropriate types of technology and undertake research in new technologies in construction and maintenance of roads. UNRA should also be able to become more adaptable to new changes and thus embrace global best practices. The International Road Federation (IRF) has for instance been advising developing countries that they should consider sourcing a significant proportion of imported materials like Fossil Fuel (Bitumen/Asphalt) and cement based products to reduce on scarce foreign exchange resources. UNRA has already had a pilot project of using locally made pavers (instead of bitumen) in construction of one of the roads in central region. Working with development partners UNRA is also commencing the construction of the Mabara-Kikagati road on a Design-and-Build arrangement as a pilot project to avoid inadequacies cited in modes of tendering of works. All these are commendable efforts that should be greatly encouraged.
Entebbe Express Highway
The soon-to-be constructed Entebbe Express Highway promises to be one of the hallmarks in a modern Uganda. UNRA has already assured parliament that it is up to the task of delivering the road in the specified time frame. Although it is to be financed and constructed by the Chinese government, supervision and monitoring will be done by UNRA to ensure value for money and prescribed design attainment. The total cost of the road is expected to be $450 million financed by Exim Bank. Once completed, the road will be one of the most treasured infrastructural assets for Uganda for a long time to come.
Lack of Capacity for local Contractors
The issue of local contractors complaining that most construction jobs are awarded to foreign companies has been raised severally by local companies. They have been alleging that instead of government giving them tenders so that they can develop their capacity; it is always foreign ones that get the tenders. Government was torn between giving work to local companies and risk getting shoddy results or giving it to foreign ones thereby killing the local initiatives. Local private construction companies are still weak and not well developed. They lack the capacity to undertake civil and contractual work on a wide scale. Earth moving equipment and other inputs which are vital in road construction are very expensive on the international market. Very few local contractors can indeed afford to purchase a machine such as Single Drum Hydrostatic Vibratory Roller that costs more that $1 Million at factory price. The Tire Roller costs more than $1.5 Million while the Motor Grader costs up to $2 Million. All these equipments are vital in road construction. Any construction company worth its name would at least have these as the basic equipment for it to win any tender to construct a national road. It should be noted that majority of local contractors do not even possess a Motor Grader or a Pipe Layer.
Road construction is an expensive venture both on the part of the contractor and UNRA. It is upon contractors to ensure that they purchase these critical equipments in order to be considered for major construction work. As the saying goes “a farmer without a basic implement such as a hoe cannot be expected to till their garden” and neither does a road construction company without a basic machine as a Motor Grader. This calls for specific intervention to build the capacity of the contractors so that they can compete on favourable terms with international road contractors and consultants. Good enough, the Cross Roads Programme sponsored by DFID has come in to specifically support local contractors by building their capacity and helping them to access credit from financial institutions. It is hoped that in the medium to long term we shall have local contractors that are reliable in completing works and delivering according to contractual obligations.
According to the National Construction Industry (NCI) Policy government has also committed itself to develop and strengthen the capacity of local Contractors, Consultants, Suppliers and Manufacturers for effective participation in the construction industry. It will also facilitate the setting up of a Plant Hire Pool. Government has most importantly through cabinet approved the principles to establish the Uganda Construction Industry Commission (UCICO) whose mandate is to regulate and coordinate the construction industry in the country. The Road Industry Council (RIC) which is a precursor to UCICO is soon to begin operations and will seek to improve institutional framework and come up with strategies to develop and build the capacity of local construction enterprise.
Road Safety
Road safety remains a sticking issue for road transportation in Uganda. Approximately 2,500 people lose their lives every year in road carnage. Road accidents increased from 18,200 in 2008 to 22,699 in 2009. Some people have argued that the new good roads being constructed are likely to increase accidents. It should be noted that accidents are not caused by good roads but rather by poorly designed roads. For instance on the two leading “killer roads”, of Jinja and Masaka certain notorious spots, dangerous corners and bends have been identified as the major contributor to accidents in addition to the narrowness of these and other roads. Studies have for instance shown that once Kampala-Jinja road is made dual carriageway, the number of accidents on the same road are likely to reduce by over 80%. Hardly will there be any head-on collision on the road because vehicles will not get anywhere into close contact with each other for those moving in either directions. The National Road Safety Authority is soon becoming fully operational and shall spearhead campaigns geared at sensitizing the public on safe usage of roads and coming up with other mechanisms to address the problem.
Bridges
The poor road network in the country in the past years was also manifested in poor maintenance of bridges. Some bridges that were constructed before independence have collapsed while others are in extremely poor conditions. Again because of inadequate resources, it was not possible to remedy the situation. Bridges that were designed for certain axle loads were left to the mercy of motorists who would sometimes load the vehicles with more weight than what the bridge could withstand. When one bridge could collapse an alternative route (which in most cases made the route longer), would be used by motorists. Other times, entire regions could be cut off completely especially when such an area was served by one major road link. Bridges are part of the road network and UNRA has so far rehabilitated several of them including the two famous bridges of Awoja and Aswa that were in poor shape. Routine maintenance of these and other bridges is expected to be done in order not to revert to the old status.
Axle Road Control & Weighbridges
The risk of overloading of heavy vehicles might contribute to pre-mature pavement failure. This was mitigated through construction of weighbridges at strategically important locations to reduce damage to pavements. The transfer of axle load control from MOWT to UNRA put the responsibility under an organ that has direct interest of ensuring that heavy goods vehicles comply with the permissible axle and gross vehicle loads. Axle road control has been an international issue that has been embraced by governments world-wide to prolong the lifespan of roads. Countries without strict axle road control measures suffer road deterioration more than those that strictly enforce the rule. East African Community (EAC) member states including Uganda have embraced the idea and negotiations are in advanced stages to harmonize the axle load such that vehicles that transit across boarders do not have to be subjected to varying axle limits. It is expected that the weighbridges which were at one time suspended by former minister Hon Nasasira because of mismanagement will be reintroduced and a new system of managing them well shall be put in place.
Ferries (Road Bridges)
People who live near lakes and rivers are supposed to connect to other areas neighboring them or to the mainland (for those in Lake Victoria islands) by use of ferries which link to the nearest landing site. Deficiencies and constraints include the fact that shoreline infrastructure has been largely basic and dilapidated. Land and water access to landing sites has often been poor and remote and vessels have been in poor condition and yet overlooked. The short distance road vehicle ferries across rivers and lakes acting as “road bridges” between adjacent parts of the road network and a recently introduced regular shipping service between Nakiwogo (near Entebbe) and Lutoboka on the Ssese Islands. UNRA currently is in charge of eight ferries countrywide. The Obonji Ferry in Adjumani district is one of the latest acquisitions by UNRA which has eased transport means of the residents in this area.
UNRA’s take over of City Roads
The discussion about UNRA taking over and managing Kampala Capital City Authority (KCCA) roads is not yet concluded. Although government had earlier announced that UNRA would be in charge, this is yet to be officially communicated. Kampala roads remain in a very sorry state and so are the roads in other urban centres in the country. Uganda is fast becoming an urban country because of the rate at which town councils are growing. At the centre of urban development is the notion of urban planning. If UNRA is to manage city roads therefore, it must ensure that it does systematic planning to determine and demarcate current and future road routes. It must also involve other relevant stakeholders including the public in the planning process so as to make it inclusive. A well planned road network for Kampala will also address the problem of traffic jams that are threatening to become endemic in the city.
Conclusion
It is not only government that recognizes the importance of transport sector and specifically roads in the development of this country. Eleven development partners including the European Union (EU) and DFID have agreed to provide budget support for transport infrastructure development in Uganda. They have done this however on condition that that the Ministry of Works develops a Joint Assessment Framework (JAF) that provides indicators and actions against which the sector is assessed on an annual basis. UNRA is supposed to provide information to its mother ministry on its performance on a quarterly and annual basis which should show whether our roads are getting better. UNRA should also be aware that, the general public expects quite a lot from the agency. To a lay person, the resources allocated to UNRA may seem too much. This calls for prudent action by management and staff of UNRA to exhibit the highest levels of transparency and accountability of all funds they receive. Unlike other services provided by other sectors, roads are physical infrastructure thus the public can easily monitor the progress of the actual works and determine the extent of UNRA’s performance. It doesn’t need a technocrat to pronounce a road poor. The public is eagerly waiting for the results and it is the responsibility of UNRA to devise means of proving its worth by delivering on what it has promised Ugandans in accordance with its vision that says “To operate a safe, efficient and well developed national road network” The three years of UNRA so far have however been quite resourceful and we think that things will keep on getting better every passing year.
The writer is the Executive Director of Uganda Road Sector Support Initiative (URSSI)
