1

Republic of Liberia
Ministry of Public Works

An Expansion of the Liberian Swedish Feeder Roads Project

(LSFRP 2)

A Project Expansion Proposal submitted by

the Ministry of Public Works to
the Government of Sweden
through
Swedish International Development Cooperation Agency (Sida)

February 2012

Earlier revisions in 2011:

February
September
December

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Contents
I. Acronyms and abbreviations 3
II. Project profile information 4
III. Summary of project description 4
IV. Summary of project budget 5
V. Description of the organization 6
VI. Description of the project 6
a. Background 6
b. Analysis of interested parties 7
c. Targeted beneficiaries 8
d. Other actors in the road infrastructure sector 8
e. MPW’s road infrastructure coordination mechanism 8
f. Problems and needs analysis 9
VII. Goal analysis 10
a. Project goal 10
b. Project purpose 10
c. Expected project results 10
d. Rationale for intervention 10
e. Project implementation strategy 12
f. Project implementation plan of actions 13
g. Criteria for selection of roads 14
VIII. Implementation partners – roles and responsibilities 15
IX. Follow up and reporting results 17
X. Risk analysis and mitigation 18
XI. Sustainability and long term development effects 19
XII. Lessons learnt 20
XIII. Complementarity 20
XIV. Project budget 21
XV. Annexes 21

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Acronyms and abbreviations

ALCC Association of Liberian Construction Contractors

CDA County Development Agenda
EC European Commission
EPA Environmental Protection Agency
GDP Gross Domestic Product
GoL Government of Liberia
GIZ Deutsche Gesellschaft fur Internationale Zusammenarbeit
ILO International Labor Organization
Km Kilometer
MoGD Ministry of Gender and Development
MoU Memorandum of Understanding
MPW Ministry of Public Works
NACP National Aids Control Program
NGO Non Governmental Organization
PFMU Project Finance Management Unit
PRS Poverty Reduction Strategy
Sida Swedish International Development Cooperation Agency
SEK Swedish Kronor
UNOPS United Nations Office for Project Services
USAID United States Agency for International Development
USD United States Dollars
WASH Water, Sanitation and Hygiene

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 1. Application date: November 2010 (first submission)

2. Title: An Expansion of the Liberian-Swedish Feeder Roads Project (LSFRP 2)

3. Location: Four Districts1 in Nimba County2, of the Republic of Liberia

4. Planned Duration of activity: July 2012 to December 2014

5. Applicant Institution:
 Name: Government of Liberia through the Ministry of Public Works
 Address: P.O. Box 9011, 107 Lynch Street, Monrovia, Liberia
 Mobile: +231 6513111
 Email: cgherbert@gmail.com

6. Size of grant applied for: SEK 103,000,000

7. Summary of project description:

The adverse impact of almost 14 years of civil conflict (December 1989 – August 2003) on
Liberia’s socioeconomic and political development is unprecedented. The Poverty Reduction
Strategy (PRS), which articulates the Government’s overall vision and major strategies for
moving toward rapid, inclusive and sustainable growth and development during the period
2008-2011 vividly describes the condition of Liberia’s road infrastructure the Government
inherited after its inauguration in January 2006 as follows: “Many roads are now impassable,
which seriously constrains economic recovery, as well as the provision of basic services
such as agriculture, health and education. The grossly inadequate road infrastructure also
impedes peace building efforts by limiting economic opportunities, constraining the ability of
police and other security forces to operate effectively, and weakening national cohesiveness
and integration.”3

The outcome of this feeder road construction/rehabilitation expansion request by the

Government of Liberia to the Government of Sweden is envisaged to significantly contribute
to Government’s overall commitment to the roads and bridges rehabilitation deliverables
contained in the infrastructure and basic services sector of the PRS by ensuring that “all
primary roads are pliable year-round, while aggressively opening secondary/feeder roads
around the country”4.
This project proposes to expand the existing Governments of Liberia and Sweden bilateral
agreement under the Liberian - Swedish Feeder Roads Rehabilitation Project (LSFRP 1) by

1One of the key planned activities will be a comprehensive assessment of recommended roads from the Nimba County Development Agendas
before final decisions are made on selected roads and locations per districts.
2
The project will also be executed in Lofa and Bong Counties as part of the original project
3 Liberia Poverty Reduction Strategy pg. 16
4 Ibid pg. 100

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 considering the inclusion of the third bread basket county, Nimba5, of Liberia. An additional
280 km of feeder roads will be constructed and maintained in Nimba, but may also include
additional road works in the counties of Lofa and Bong.6.
The overall goal of the expansion request proposal will continue to contribute to poverty
reduction in Liberia by ensuring sustainable road access in targeted communities in Nimba
Counties that will enhance livelihood potentials primarily in the agriculture sector.
The project also aims to train MPW staff, contractors and communities so that they have the
capacity to, with environmental awareness, rehabilitate and maintain feeder roads in Nimba
County using labour based methods supported by equipment thereby generating
employment.
The following outputs/results are envisaged as a result of the implementation of the project:
1. 2807 km of feeder roads rehabilitated and maintained in targeted communities in
Nimba County;
2. Government’s feeder roads management capacity is increased and road infrastructure
work of contractors are satisfactory;
3. Increased community participation in feeder roads rehabilitation and maintenance
activities in targeted areas in Nimba County; and
4. Increased awareness amongst project stake holders on the effects of HIV/AIDS and
negative environmental impact at all levels.
It is envisaged that the outcome of the project’s interactions will positively improve the socio-
economic well-being of over 234,000 poor women and men, including youth.

The total cost of the expansion request is SEK 103 000 000.

8. Summary of project budget:

Total cost of the project: SEK 103,000,000

1. Road works SEK 72,000,000
2. Non – road works SEK 25,900,000
3. Other project costs SEK 5,100,000

9. Authorized signatory:
Christian G. Herbert
Acting Deputy Minister for Administration
Ministry of Public Works Republic of Liberia

55
Nimba County, which has a population of 468,0885 persons, is the 3rd of Liberia’s three traditional bread basket
counties.
6
The distribution of roads to be constructed in the three counties will be based on the County Development
Agendas,CDA:s, also taking into account other initiatives in the counties, and in particular the involvement of
development partners programmes and projects.
7
The exact number of roads in Nimba will be decided at a later stage after consultations with the county and the
Feeder Roads Unit.

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 10. Description of the organization

The Ministry of Public Works (MPW) is responsible for roads and bridges in the Republic of
Liberia.

The Ministry’s national agenda is to offer improved and quality infrastructure to its people,
particularly in the roads and bridges sector. This commitment is underpinned by the realization
that years of broken infrastructure and lack of maintenance have impeded access and constrained
economic growth and recovery. In cognizance of the above mentioned experiences, the
Government has embarked upon several initiatives aimed at restoring confidence, promoting the
integrity of its infrastructure and accelerating development.

The Government has developed its Poverty Reduction Strategy (PRS) Paper which is vital to
promoting socio-economic growth and recovery. The PRS recognizes that infrastructure and
basic services are the key drivers to creating an environment for Citizens to have better access
to jobs, markets, health and education facilities, and other amenities that will improve their living
standards and roll back the advance of poverty in the country.

The Ministry of Public Works leads the coordination mechanisms with others line ministries and
agencies and development partners working on deliverables committed in the 4th pillar
(Infrastructure and basic services) of the Government’s poverty reduction strategy.
11. Description of the project:

11.1. Background

Liberia is gradually recovering from the effects of a prolonged civil conflict that witnessed an
unprecedented destruction of lives and infrastructure across the country. The impact of the conflict
on Liberians is graphically described in the PRS as follows: “The damage and negative
consequences of the conflict were enormous. Commercial and productive activities ceased as
various warlords looted and vandalized the country. Families were shattered; entire communities
were uprooted; and social, political, economic, and traditional governance systems were
destroyed. There was a massive exodus of skilled and talented individuals from the country. The
economy completely collapsed. GDP fell a catastrophic 90% between 1987 and 1995, one of the
largest economic collapses ever recorded in the world. By the time of the elections in 2005,
average income in Liberia was just one-quarter of what it had been in 1987, and just one-sixth
of its level in 1979”8.

The conflict ended in August 2003 with signing of the comprehensive peace accord in Accra,
Ghana amongst warring parties, political interest groups and civil society organizations. Since
then, Liberia has witnessed significant improvements in overall security, resettlement, provision
of basic service, governance, etc. The overall need for improvement in the socio-economic gaps
for Liberians continues to remain a priority for the current government headed by President Ellen
Johnson Sirleaf. Over the last five years, one of the Government’s foremost objectives has been
to quickly embark upon the rehabilitation of infrastructure and the rebuilding of systems to deliver
basic services in order to create the conditions and linkages needed to achieve broad-based
growth and poverty reduction. Ensuring sustainable road access across the country is
cardinal to achieving all of the Government’s other major objectives, including consolidating
peace and security, facilitating inclusion, revitalizing growth throughout the country, building

8
Liberia Poverty Reduction Strategy pg. 15

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strong systems for local governance, promoting physical access to security and legal institutions,
and making public and other services accessible to all Liberians. Without adequate infrastructure,
the ability to create jobs, expand the rule of law and reduce poverty will be severely constrained,
thus increasing the likelihood of a return to conflict.

The Ministry of Public Works is playing a pivotal role in Liberia’s infrastructure rebuilding process
and has over the years continue to collaborate with international development partners to achieve
the Government’s infrastructure rehabilitation agenda. The collaboration with the Government of
Sweden through Sida on the Liberia – Swedish Feeder Roads Project is one of the finest
examples of such bilateral collaboration and cooperation that is envisaged to make significant
contribution to the Government’s infrastructure rehabilitation and delivering basic services
strategic goal.

Since 2009, the MPW/Sida partnership has witnessed substantial investments in feeder roads
construction and/or rehabilitation actions in Lofa and Bong Counties. The partnership is now
committed to rehabilitate or construct 310 km (300 km in the original set-up) of essential Feeder
Roads in the Counties of Lofa and Bong, and maintain these roads during the project period that
will cover five dry seasons beginning October 2009. This expansion proposal envisages
increasing the original commitment from 30 to 590 km and will target relevant communities in
Nimba County. It also provides a requisite opportunity to maintain completed roads that LSFRP
has undertaken in Lofa and Bong Counties.

11.2. Analysis of interested parties

11.2.1 Nimba County

Nimba County is one of Liberia’s most significant historical regions and is the second most
important County in terms of population and politics. The County was deeply negatively affected
by the civil war. Most of its people were forced to flee, thereby disrupting their livelihood. Its
basic infrastructure including roads, schools, and heath facilities remain in poor condition despite
the efforts of local communities, the Government of Liberia and development partners to revive the
economy and restore basic services. Life in Nimba is generally rural-based with most of its population
living as subsistence farmers.

Nimba County is situated in the Northeastern part of Liberia and shares

borders with the I v o r y C o a s t in the East, and the Republic of
Guinea in the Northwest. Nimba is bordered by the counties of Bong,
River Cess, a n d Sinoe Counties. The total geographic area (of land and
water) of Nimba is 2,300 k m 2 ; from North to South, the County stretches
230 k m and East to West, 100 km. It has a distance of 298 km from
Monrovia to Sanniquellie9.

Sanniquellie is the seat of the County administration. The County has

sixteen administrative districts, one county district, five statutory districts and
seven electoral districts, each with newly-elected representatives to the
Nation Legislature. At the level of the Liberia Senate, the County has a senior and junior senator.
The County administration is headed by a Superintendent and has representatives from key line
ministries. Districts are headed by District Commissioners. Traditional authority is vested in the
chiefs and a council of elders, representing various tribal identities in the County.

9
Ministry of Internal Affairs - 2008 – 2011 Nimba County Development Agenda

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11.2.2. Targeted beneficiaries
As indicated inter alia, Nimba County is the second most populated county after Montserrado.
The 2008 National Population and Housing Census put the total population of the County at
468,088 persons, of which 50.3% are females10. The County is also officially recorded as having
the second highest population density after Montserrado with 105 persons per square mile. The
matrix below illustrates Nimba County population by district and sex11.

District Male Female Totals

Boe & Quilla 9,014 8,896 17,910
Buu – Yao 19,220 19,359 38,579
Duo 19,486 19,577 39,063
Garr – Bain 29,044 31,218 60,262
Gbehlay – Geh 15,791 16,670 32,461
Gbi & Doru 3,933 3,811 7,744
Gbor 5,368 5,465 10,833

11.2.3. Other actors in the road infrastructure sector

Besides the proposed interventions by the Ministry of Public Works in Nimba County through
the LSFRP 2, other organizations including UNOPS, ILO and BHP Billiton are supporting in the
feeder road sector in the County. UNOPs and ILO are targeting increase access for farm to market
roads in selective parts of the County with high agriculture viability. BHP Billiton, a mining
concessionaire is currently involved in exploration works is selective parts of the County and have
been doing minimal work to create access for their exploratory works. Although not confirmed,
there are indications that USAID has plans to support the Ministry of Agriculture in increasing road
access in the bread basket counties (including Nimba) and is part of the overall support to the
Ministry of Agriculture’s agriculture viability strategy.

11.3. MPW’s infrastructure sector coordination mechanisms

The MPW has in recent months revitalized its infrastructure coordination mechanism through the
Aid Coordination Forum. The membership of the forum includes key donor institutions and
agencies that are actively supporting the government in delivering on its infrastructure programs,
including roads, bridges, water and sanitation. The Forum meets every month and the discussions
are chaired by the Minister of Public Works or a designated official. Issues discussed are usually
agreeing on support mechanisms to address overarching policy issues strategic gaps in the road
and bridges infrastructure and WASH sector infrastructure improvements and WASH sub-
committee structures that support the Aid Coordination Forum.

The sub-committees (road infrastructure and WASH) are also meeting on a monthly basis to
discuss technical related issues, agree on standards, ways of working and collaboration as well
as feedback and reporting mechanisms. The forums are also proving the space for its members
(comprising international agencies and NGOs) intervening in road infrastructure and WASH
sector to have clear understanding and answers on issues related to who-is-doing-what-where.

The Ministry currently has in its employ a Consultant with vast local and international experience
in areas of program delivery, monitoring and evaluation as well as interagency coordination. The

10Liberia Institute for Geo – information Services (LISGIS) - 2008 National Housing and population report
11
Ibid

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Consultant is currently supporting the MPW with its Aid Coordination action plans.

11.4. Problems and needs analysis

Liberia’s infrastructure was severely damaged by the war. Most Liberians have no access to
electricity, improved water and sanitation facilities, acceptable housing, or decent roads. Weak
infrastructure undermines income earning opportunities, limits access to health and education
facilities, raises the price of goods and services, and weakens food security. Women and children
bear a large burden as a result of poor infrastructure, as they must spend more time carrying
water and other goods; are more vulnerable to crime; and have less access to health facilities,
raising the risk of child and maternal mortality. Persons with disabilities are also
disproportionately disadvantaged.

Perhaps the most critical infrastructure problem is roads, which Liberians consistently placed at
the top of development priorities during PRS consultation processes. Currently there is only
around 700 km of paved road surface, almost all of which is damaged, and 1,600 km of unpaved
roads, which are mostly in need of repair. Farm-to-market access is of paramount concern, and
parts of the country remain cut off during the rainy season. It takes at least an hour for most
rural dwellers to access a food market or the nearest potential transport option. Primary and
secondary laterite roads connect the 15 political sub-divisions of Liberia including the county
capitals, district and chieftaincy headquarters. However, most of these laterite roads are not
pliable during the six months of intense rainy season and have to be re-graveled annually. Primary
roads also link Liberia with its neighbors. An additional 1,500 miles of feeder roads were originally
privately constructed, mainly by logging and mining companies, and partially by farmers to bring
products to market, most of which are not now pliable.

Although the GoL and its development partners continue to make significant progress in mitigating
road inaccessibility across the country, yet there is still a lot more to be done if sustainable roads
access by Liberians will play critical role to reducing poverty at household levels. As part of its
poverty reduction strategy, the GoL has since 2008, committed itself to rehabilitate/construct 315
kms of primary laterite road, 100 kms of primary paved roads and 417 kms of feeder roads. Key
to this strategic decision is the recognition that as roads opens up income-earning
opportunities for the poor, improve access to health and education facilities, reduce transport
costs and commodity prices, and help strengthen local governance.

12. Goals analysis

12.1. Project goal:

To contribute to poverty reduction in Liberia by ensuring sustainable road access in targeted
communities in Nimba County that will enhance livelihood potentials primarily in the agriculture
sector.

12.1.1. Project purpose

By the end of the project period, the Government and local contractors will have the capacity to,
with environmental awareness, rehabilitate and maintain feeder roads in Nimba County using
local resourced based methods thereby creating employment

12.1.2. Expected project results and rationale for intervention

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 By end of project period, 280 km of feeder roads are rehabilitated and maintained in targeted
communities in Nimba County;
 Rationale for this result
Liberia’s Poverty Reduction Strategy has identified rebuilding of roads and other critical
infrastructure as one of the Government’s three prongs growth strategy and the remaining parts
of the national growth strategy were identified as reviving the traditional engines of growth in
mining, minerals, forestry, and agriculture; and establishing a competitive business environment
to help diversify the economy over the medium term. The PRS consultative process across the
country as well as the County Development Agenda processes that preceded the development
of the PRS revealed that Liberians’ number one priority is to have access to better roads.
Participants saw roads as essential for creating jobs and new economic opportunities, revitalizing
agriculture, reducing prices, strengthening local governance, facilitating access to health and
education services, connecting the population to service centers, increasing the effectiveness of
the police and other security forces, and helping to maintain peace12.

 Government’s feeder roads management capacity increased and contractors road

works are satisfactory;
 Rationale for this result
The MPW recognizes that it has serious capacity gaps that is adversely affecting its ability to
supervise, monitor and evaluate infrastructure works, these ranges from technical capacity of
engineers on the field, limited numbers of engineers assigned in the counties, mobility of
engineers and other requisite staff engaged in monitoring and supervision of construction
activities across the country, hardware and software packages, computers, etc. Support for
institutional capacity building ranging from training, materials and human resource support will
increased the capacity for community road infrastructure supervision, monitoring and evaluation,
as well as address other qualitative and quantitative issues associated with road infrastructure
works.

 Targeted communities in Nimba, are inclusively participating in the planning and

implementation of feeder road rehabilitation and maintenance activities

 Rationale for this result

The Ministry of Public Works recognizes that gender equity is fundamental to its work across
the country. While it acknowledges the challenges associated to mainstreaming gender in a
traditional male dominated sector, it recognizes that ensuring gender equity actions in its
programs and activities are critical to:
 Poverty reduction
 Sustainable community-level development
 Equity between women and men
 Strengthening relationships amongst women, men, boys and girls, balancing control
over community resources and assuring economic growth.

 Increased awareness amongst project stake holders on the effects of HIV/AIDS and
negative environmental impact at all levels.

12 Republic of Liberia - Poverty Reduction Strategy, pg. 23

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 Rationale for this result

 Climate change

Climate change is a real and possible threat to the success of the project. Seasonal
changes are already dramatic and could be aggravated due to changing climate
conditions. Heavy rains could become worse and the dry season altered from one year to
another. Road construction is heavily dependent on the favourable conditions of the dry
season for e.g. mobilization and movement of heavy equipment. Changes in the climate
are unpredictable and it is difficult to adapt immediately.

Moreover, road infrastructure construction/rehabilitation activities have probabilities of

adversely impacting on the environment, i.e. forest trees destroyed during road alignment
actions, impact of borrow pits, or impact on natural movements or rivers and streams as
a result of infrastructure construction works over water crossing. Awareness of the
problem is however crucial for planning and adapting to new circumstances and training
to raise awareness is an important foundation. Project stakeholders’ awareness of this
emerging reality and threat and their collective ability to take concrete actions that will
minimize adverse effects on the environment of the project areas will be crucial. This
project is committed to adapting its strategy and mode of implementation with the view of
assuring very limited impact on the environment. The project will collaborate and
coordinate with the Environmental Protection Agency (EPA) for training and compliance
with relative regulations.

 HIV/AIDS
HIV and AIDS related vulnerability affects a broad spectrum of the Liberian population.
Liberia, like most sub Saharan countries continues to be threatened by the effects of
HIV/AIDs. The 2007 Demographic Health Survey (DHS) sample of 7,000 households
estimated HIV/AIDS prevalence rates at 1.5% or 1.8% for females and 1.2% for males.
Also there was a previous estimate of 5.7%13 prevalence rate that was based on results
of sentinel surveillance amongst pregnant women and girls attending 10 antenatal clinics
in urban areas. While studies are being carried out to reconcile the results of the two
survey results, health authorities have estimated that prevalence rates amongst adults in
Liberia is less than 2%. There are emerging evidence of increased HIV prevalence among
young females 15 – 19 years (4.7%) and those aged 20 – 24 years (6.4%) but has
regional/county differentials that indicate higher prevalence along Liberia’s eastern
corridor that borders the Ivory Coast (Nimba County shares very long border line with the
Ivory Coast) .

The project will ensure that HIV/AIDS awareness and sensitization activities are
mainstreamed in planned activities of the project, such as including statements in the
contract to make it a prerequisite for the contractor to disseminate information to the rural
communities in conjunction with their road works.

12.1.3. Project implementation strategy

13 2006 NACP/MoHSW HIV Sentinel Survey among Antenatal Clients

11
The proposed project expansion will follow the existing LSFRP 1 implementation strategy,
including selection of roads, technical standards, mode of implementation, maintenance, and
capacity building as used for Lofa and Bong plan of action and as set out in the original project
document and further refined in subsequent reports and annual work plans and reviews.

 Maintenance
Expanding the feeder road network maintainable condition places additional stress on
maintenance system in its early stages of development. The Ministry of Public Works appreciates
the work carried out under LSFRP 1 and has noted the considerable improvements in capacity,
and consequently also in the potential to manage the feeder road network better in the future. It
is however expected that a maintenance planning and programming system would be an
appropriate way of bringing this forward.

It is expected the proposed short term Maintenance Management System Specialist will
contribute to this and will collaborate with National Counterpart and a Feeder Road Maintenance
‘champion’ based in the MPW to work on the development of a feeder road maintenance strategy
for Liberia. It is envisaged that the strategy development process will ensure contributions from
institutions in the feeder road sector, such as GIZ, ILO, USAID and UNOPS. The implementation
of the maintenance strategy is envisaged to remain a responsibility of the MPW, but with
decentralized roles for County authorities and MPW staffs in the field. Better planning combined
with the increased and strengthened involvement of communities in the maintenance of the roads
will mitigate the risks related to increasing the kilometer of roads. The Ministry of Public Works is
committed to the development of a road maintenance system and will undertake its creation to
the extent possible given the budgetary constraints in general within the Government of Liberia.

 Capacity Building
It has been noted from the LSFRP 1 feeder road works carried out in Lofa and Bong that the
capacity at local level is essential for the improving the management of these roads, both in terms
of planning, construction/ rehabilitation and maintenance. With an increasing number of Counties
under the project it is expected that the management of the feeder road network at local level will
be strengthened. With the successful progress achieved by the project in Lofa and Bong, we see
it is a good opportunity to expand this process within the region in which the project is already
operating. Although the MPW has assured the project of providing additional technical staff to be
attached to the LSFRP for capturing the capacity building aspect of the project to bring the MPW’s
roads management capacity at a higher level with an aim to a sustainable development in the
roads sector, yet the project will have to rely on recruiting additional local technical support from
private sector to beef up existing technical capacity gaps.

The project will continue to take an active role in the MPW road infrastructure sub-sector, and will
encourage the sub-sector for harmonize technical standards and training plans with existing
standards and plans from EC, USAID, GIZ and ILO programmes underway in Liberia. Specifically
the GIZ (management training) and ILO (labour-based training) programmes offers cooperation
opportunities for cooperation around road maintenance and other road infrastructure
sustainability issues.

12
Capacity building will be supplementary and geared towards such capacities as deemed
necessary for an efficient implementation of the Project. This may include
 On-the-job-training of counterpart staff and involved MPW-staff in the counties
 Training of contractors
 Training of communities in road maintenance
 Provision of direct support for the acquisition of engineering personnel, mobility, software and
hardware, etc.
 Provision of institutional support to the Monitoring and Evaluation Division as a way of
strengthening the overall M&E capacity of the MPW.

12.1.5. Project implementation plan of actions

 Planned actions for result #1

 Select roads and facilitate road condition surveys
 Facilitate road designs, estimates and prepare tender documents
 Refine tender documents and technical specifications and procurement procedures
 Process contractors’ prequalification
 Process tender and award contracts
 Implement road rehabilitation works
 Develop routine road maintenance formats, report and processes
 Formulate community road maintenance (CRM) plan of actions
 Award contracts for CRM
 Implement routine road maintenance work
 Facilitate routine maintenance work

 Planned actions for result #2

 Develop training programs

 Select training providers
 Facilitate formal training for road construction
 Facilitate formal training for road maintenance
 Facilitate on-the-job trainings
 Facilitate infrastructure sector coordination meetings
 Provide direct institutional support to the MPW
 Training of community volunteers and local MPW technicians on road maintenance issues;
 Support for increased MPW supervision and monitoring of project deliverable actions.

 Planned actions for result #3

 Collaborate with the Office of the County Superintendent, MPW Road Infrastructure forum for
increased coordination and collaboration with local authorities, road infrastructure actors Create
awareness about the project
 Collaborate with County – level Gender and Development office to engage local communities
and leaders, especially women, to inclusively participate the planning, design and
implementation of the project plan of action
 Create awareness on community-level responsibility in routine road maintenance
 Facilitate capacity building training for CBOs and community dwellers
 Develop appropriate action plans for donors visibility actions (Governments of Sweden and
Liberia) with project beneficiaries;

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 Planned actions for result #4

 Collaborate with local health authorities/National Aids Commission to support actions that will
ensure increased community-level awareness and actions for protection against the effects
of HIV/AIDS as well as reduction of stigma and discrimination against people living with
HIV/AIDs
 Collaborate with the Environmental Protection Agency (EPA) to develop requisite mitigation
plan of actions against potential environmental risks;
 Ensure community-level appreciation of the environment as well as action plans for the
protection of the environment in communities where project actions are being delivered

12.1.6. Criteria for selection of roads

Roads for rehabilitation/construction will be prioritized for rehabilitation based on the following
criteria:
 High agricultural production or potential;
 High population density;
 The roads should provide connection with the market for agricultural produce or other road
trafficable all the year round; and
 Must have been prioritized by the County Development Agenda processes

The matrix below represents recommended road stretches from the Office of the Superintendent
of Nimba County from which the project team will prioritize during road condition assessment
action planed in the project. Final listing of the road stretches that will be done by the project will
be drawn from the listing below. All of the roads are confirmed to have been prioritized during the
CDA development process in 2008.

Nimba County Priority Feeder Roads Matrix

No. District Road Stretch Economic Activities Estimated
Population
1 Yarmein Yekepa – Bololewee Rice, vegetables and cash crops 26,133
cultivation
2 Sanniquellie-Mah Sanniquellie to Vanyapa vegetables and cash crops cultivation 24,911
Rice,
3 Yarpea-Mah Tiayee to Duo Boe to Bayleglay Rice, vegetables and cash crops 21,784
cultivation, diamond mining
4 Bain-Garr Zuluyee to Mongbain to Cocopa Rice, vegetables and rubber farming 60,000
5 Meinpea-Mah Sokopa to Zahn – Yekeyea Rice, vegetables and rubber farming 23,957
6 Lee-Wehpea Blohn to Sehwee to Gbeye to Rice, vegetables and rubber farming 25,140
Dohn
7 Wee-Gbehyee Gbanquoi to Goapa Rice, vegetables and rubber farming 31,383
8 Doe Tappita to Zia to Gaanwee Rice, vegetables and rubber farming 39,063
9 Gbi-Doru Tappita – Dorgbor Town Rice, vegetables and cash crops 7,744
cultivation
10 Boe-Quilla Graie to Beatuo Rice, vegetables and cash crops 17,910
cultivation
11 Kparblee Beatuo to Behwallay to Gblor Rice, vegetables and cash crops 11,291
Diala cultivation

14
 12 Buu-Yao Bahn to Buutuo Rice, vegetables and cash crops 38,577
cultivation and diamond mining
13 Zoe-Gbao Gblia to Behyepea Rice, vegetables and cash crops 28,744
cultivation and diamond mining
14 Gbor Yarsonnon to Payee to Bayleglay Rice, vegetables and cash crops 10,833
cultivation and diamond mining
15 Twah River Lowlay to Garplay to Gborplay Rice, vegetables and cash crops 39,211
cultivation
16 Gbehlay-Geh Zorgowee to Duolay Rice, vegetables and cash crops 32,461
cultivation and diamond mining
17 Yarwein- Gbanquoi to Zekepa Rice, vegetables and cash crops 28,748
Mehnsonnoh cultivation

LSFRP 1 has undergone a similar exercise for Bong and Lofa counties and used this to select
candidate roads.

13. Implementation partners – roles and responsibilities

a. Governing bodies
The Project will continue to be governed by the Specific Agreement signed between MPW and
Sida in July 2011.
MPW and Sida will be governing bodies of the Project. They will continue to meet in September
each year (Annual Review Meeting) to review the outputs of the previous year and amongst other
things, consider the proposed Annual Work Plan and Budget for the forthcoming year.
The governing parties will continue to conduct a Semi-Annual Review Meeting in February each
year for reviewing the progress and, if need be, agree on directions for the next Annual Work Plan
and Budget.

b. Ministry of Public Works

MPW will continue to be the Project Owner being responsible for the Project towards the
Governments of Liberia and Sweden. The general roles and responsibilities of MPW will be:
 To guide and oversee all project activities;
 To sign a MoU with the Project Finance Management Unit (PFMU) of the Ministry of Finance.
The MoU will assign PFMU to be in charge the financial management and accounting for the
Project (Annex 4);
 To promote close cooperation between the Project and Counties and issue directives as
necessary;
 To coordinate and streamline the project activities with other development efforts in the road
sector.

Specifically MPW will:

 Continue to provide office space for the Consultant Team and their counterparts in the MPW
premises in Monrovia and, if possible, in the county capitals;
 Provide counterparts to the Consultant Team as to match the positions of the international
staff and other requirements of the project;
 Approve procurement of Contractors to ensure a correct application of the competitive bidding
process and award the contracts;

15
 Approve Sida’s selection of Consultant after competitive bidding in Stockholm and conclude
the contract with the Consultant;
 Certify contractor claims and other expenses for payment by PFMU upon verification by the
Consultant;
 Certify the Consultant’s invoice for direct payments by Sida;
 Submit payment requests to Sida as agreed with the consultant; and
 Submit reports as specified in the Specific Agreement with the assistance of the Consultant.

c. Sida
Sida, representing the Government of Sweden will,
 Through its Monitoring Consultants assist MPW in procuring a Consultant for assisting MPW
in implementation of the Project. After selection Sida will present the tender evaluation for
MPW’s No Objection and a Draft Contract for negotiation and awarding.
 Initiate direct payment of the Consultant’s invoices upon certification by MPW and report
payments made to PFMU for recording in the project accounts.
 Review progress of the Project and issue letters of No Objection for Annual Work Plans and
Budgets and possible amendments of the Project.
 Disburse Project Funds semi-annually to Ministry of Finance, PFMU upon request by MPW.

d. Ministry of Finance, PFMU

In accordance with the MoU with MPW, PFMU will be the financial manager of the Project. Their
services will include:
 Open a Special Bank Account in the name of Liberia and Sweden Feeder Roads Project 2
and manage this for the sole purpose of the Project;
 Maintain up-to-date accounts of all revenues and expenses connected to the Project;
 Pay contractors’ claims and other expenses as certified by designated persons, one
representing MPW and one representing the Consultant;
 Submit quarterly management accounts to MPW and the Project;
 Prepare audited Annual Financial Statements in USD and SEK audited by an internationally
recognised auditor firm. The Annual Financial Statements should also show revenues and
expenditures accumulated over the project. The costs for auditing to be borne by the Project;
 Assist the Project in the financial reporting to Sida and Liberian authorities and in preparing
requests for disbursements;
 Assist the Project in analyses of consequences of exchange rate fluctuations and other
financial matters;
 In order to being able to provide these services, PFMU will be remunerated for one accountant
to be working with the Project accounts and expenses as specified in the MoU;

e. The Consultant
MPW will through the contract assign the Consultant as the Project Manager for the Project. Under
the guidance by MPW this will include:
 Cooperate closely with MPW and their local branches and County Authorities;
 Overall planning and reporting;
 Detailed annual planning, implementation and budget control;
 Selection of roads for construction or rehabilitation in consultation with local authorities and
communities;

16
 Design, specifications and tender documents;
 Procurement of contractors through national bidding procedures;
 Supervision, quality control and certification of works for payments;
 Training of counterpart staff and contractors for enhancing quality and quantity of outputs;
 Establishing a Community Contract System for maintenance of the Project Roads after
completion and certify payments to communities; and
 Participate and contribute to efforts aiming at streamlining systems and procedures in the road
sector.

14. Follow up and reporting of results

The MPW has now in place a Monitoring and Evaluation Division that is mandated to facilitate
performance monitoring and evaluation of all programs/projects to determine the level of
implementation, achievements and challenges. The M&E Division conducts periodic informed
project monitoring visits in the field and makes recommendations for the purpose of generating
remedial actions to address deficiencies or challenges from the field.
For this project, a comprehensive logical framework analysis has been developed. The indicators
agreed in the framework will be used to further develop a specific monitoring framework for to be
able to track the impact of the project. Monitoring visit schedules and modalities for the collection
of required data and subsequent analysis will substantially be determined by the framework. The
Division will collaborate with the project consultants in monitoring the impacts of the Project on
the lives of the targeted beneficiaries and will feedback its findings and recommendations to the
project management team and where possible to the MPW management team so that informed
management or programmatic decisions are made to address, in a timely fashion, issues that
may required attention. The Monitoring team will also endeavour to document good lessons and
practices from various project locations that could be replicated in other locations where similar
actions are planned and also by other organizations planning similar interventions in other
locations in Liberia.

Reporting of project actions and progress will be a fundamental tool for informing all of the
concerned stakeholders the level of achievement the project is making towards desired outputs.
It is envisaged that these reports will serve as valuable tools for requisite dialogue between the
MPW and Sida on the one hand and the project Consultant on the other. The project envisages
that these reports will also inform requisite decisions and actions for keeping the project plan of
actions on track. It is in view of all of the above that the project is committed to routinely generate
and distribute the following reports in a timely fashion:
 Annual Work Plans and Budgets
 Quarterly Progress Reports
 Semi-annual Reports
 Audited Annual Financial and Technical Statements
 End of Project Report
 Sida may in agreement with MPW also initiate an evaluation of the Project.
15. Risk analysis and mitigation

The Ministry of Public Works recognizes that, although there is some level of experience learnt
from the delivery of LSFRP 1 in Bong and Lofa, it also anticipates that the expansion project in
selected communities in Nimba County will have to guided by risks analysis and mitigation
strategies identified in matrix below.

17
 Risks analysis and mitigation matrix
No Risk Assessment Risk mitigation strategies Risks level WHO

2 Lack of fund for maintenance of GoL should reserve fund for road M MPW
completed roads after closure of maintenance in their yearly budget
the project might cause
destruction of the asset

3 Delay in payment to contractors All concerned MPW and PFMU have to L MPW/MoF
could hamper targeted progress take prompt action in paying the
contractors bills

4 Insufficient staff (Engineers) Necessary staff has to be deployed by M MPW/

deployment at the county level MPW at central and county levels;
could affect timely
implementation of the project Hire additional engineers from the private
and undermine supervision, sector
monitoring and standards
compliance as well as capacity
building process

5 Sub-standard materials and Strengthening of capacity of MPW L MPW/

construction methods during
construction may cause the
created assets not to be
sustained
supervision and monitoring capacity has
to be done;
Consultant staff will train MPW staff and
transfer skills continuously during the
project tenure

6 Unnecessarily wide roads will be Roads have to be classified in different L MPW

expensive to
construct/rehabilitate and
maintenance will also be
expensive
categories and fix geometrical standard to
implement cost effective roads;
MPW has to emphasize this issue and
ensure earlier action.

7 Contractor may not complete Road sector coordination of contractors’ M MPW

project within agreed timeframe workload

16. Sustainability and long-term development effects

Sustainability and long-term development effects of the envisaged impact of the project are
hinged on the following:

 The quality of capacity building support that the MPW (and to some extent Liberian
Contractors) will accrue from anticipated actions of the project plan. These include impact

18
 statements on the quality delivery of the different levels of training planed as well as the
application of the skills in the delivery of road infrastructure work;

 The ability of the MPW to effectively and efficiently galvanize support for the deployment of
additional supervision and monitoring capacity in the varying project locations to address
current inadequacies in supervision and monitoring;

 The quality of community participation, especially involvement of local community leaders,

county administrators in varying aspects of the delivery of the project; and the quality of
coordination and complementarity that the project actions will generate in view and in
consideration of other road infrastructure sector actors;

 The ability of the MPW and local authorities to take on, in a systematic and robust fashion,
routine road maintenance responsibilities and commitments will ensure that the original goal
of the project is maintained. This will include long – term strategy that will see the MPW
finalizing its Road Maintenance Strategy, enhancing skills and competence of Road
Engineers county administrators in conceptualizing innovative road maintenance plan of
actions, i.e. as part of the County Development Agenda, Concessionaire Social Commitments
and or obligations and linkages to the works of the futuristic Road Fund14

 The feeder road maintenance management strategy developed by LSFRP 1 will be adapted
to the conditions in Nimba. The strategy will make the donor’s exit smoother and make sure
that there is a plan for the continued maintenance of the roads. Small scale contractors will
have the possibility to take over the maintenance of the roads and continued capacity building
and income generating will exist many years after the project has finished. County authorities
will be responsible for maintenance when the project has finished.

 For a successful closure of the project focus, throughout the entire project, needs be put on
skills transfer from international and local experts to ensure capacity building within the MPW,
local district authorities and communities along the roads. Extensive knowledge transfer is
vital for a sustainable result of this project as well as for future positive project outcomes.

17. Lessons learnt

The design and deliver of the project plan of activities is being significantly influenced by key
lessons the team has learned during the implementation of the LSFRP 1 in Bong and Lofa
Counties. It is envisaged that the lessons that are indicated below will positively contribute to
quality project outputs once the project is authorized and implementation commences in Nimba
County. The bullet points below summarize key lessons and the way these lessons will be of
benefit to the Nimba expansion project.

14 The establishment of a Road Fund by the GoL is part of its future overall road strategy (including construction and maintenance) that is
envisaged to serve an independent entity to generate income (i.e. levying taxes on goods and services) for road infrastructure.

19
 Contractor overburden caused by their engagement with similar project activities with
other clients in other location is a primary cause for poor performance and
unacceptable delays in achieving project outcomes. During the pre contract award
process, first phase of the project did not adequately consult and or network with other
agencies/institutions engaged in the road infrastructure sector to verify level of prior
engagement of potential contractors before a final decision was made to award them
contracts. This has clearly been identified as one of the fundamental risks to most contractors’
ability to deliver their project in a timely fashion. This project will ensure required consultation
and networking with major players in the road infrastructure sector, including the MPW, ILO,
UNOPS, USAID, etc., before final decisions for contract awards are made.

 Inadequate and routine technical supervision of contractors’ work adversely affects

the quality of desired project outputs. Outcomes from field visits in Bong and Lofa Counties
clearly indicate lapses in the quality of works of contractors mainly because 1) most of the
contractors lack technical supervisory capacity and 2) LSFRP/MPW have had limited access
skilled Engineers to supervise the works of contractors. This gap is contributing to delays in
the delivery of project plan of actions, increased the risks of non compliance with terms and
conditions of the contract, include design and specifications of works. The Nimba expansion
project will ensure that resources are committed to identifying and recruiting required technical
skills from the private sector as well as globally to mitigate this risk.

 Limited presence of mid-level technical capacity, i.e. site engineers, road foreman,
steel benders, carpenters, etc. within the ranks of contractors’ staff is adversely
affecting on-site delivery capacities. The project will ensure thorough due diligence and
follow ups to confirm skills and competency levels periodically to ensure that the impact is
minimized.

 The key outcomes of the project are geared towards substantial contribution to the
Government of Liberia’s feeder road rehabilitation/construction objective, the
achievement of which is time bound. The LSFRP 2 strategy will remain focused on the
timely achievement of project outputs through increased monitoring and rewarding of high
performing contractors by prioritizing their engagement in the award new works whenever the
need arises.

18. Complementarity

The project recognizes that the net impact its strategies, plan of actions and desired outputs on
the lives of Liberians will not be in isolation of the contribution other actors in the feeder road
sector in Liberia. The LSFRP 2 will coordinate and network with other institutions on varying
aspects of feeder roads work in Liberia, these will include the followings:

 Complement the work of GIZ in supporting institutional capacity building to the Ministry of
Public Works;

20
 Complement the work of the MPW, ILO, UNOPS and USAID in the construction and/or
rehabilitation of feeder roads in Liberia;
 Complement the work on INWENT and the ALCC in capacity building support to Liberian
contractors;
 Complement the work of MPW, ILO and GIZ in the development of standards guide feeder
road work in Liberia;
 Complement the work of ILO and the MPW in the development of feeder road maintenance
strategy for Liberia;
 Complement the work of the Ministry of Gender and Development in strengthening inclusive
participation, especially for women community level decision making processes;
 Complement the work of the National Aids Control Program (NACP) by contributing
increased community level changes in practice and behavioral towards issues of HIV/AIDS
and people living with HIV/AIDS; and
 Complement the work of the Environmental Protection Agency (EPA) in mitigating adverse
effects on the environment of targeted

19. Project budget summary

The overall cost of the expansion request is SEK 103,000,000.

This cost covers

1. Road works SEK 72,000,000
2. Non – road works SEK 25,900,000
3. Other project cost SEK 5,100,000

The MPW recognizes that the budget breakdown of the project are lump summed and not detailed
sufficiently to highlight lined items required to support activities envisaged to achieve the
objectives highlighted in the proposal. The MPW will however ensure that it works with the project
consultants to develop detailed budget to reflect the exact needs of the delivery of the project,
while being mindful of the sub totals and total costs that have been advanced in this proposal.
This has obtain basically because of the anticipation of a detailed assessment of the conditions
of the roads that will be targeted; which is logically a prerequisite action that precedes the
development of a comprehensive budget. This is also in line with agreed process with the Bong
and Lofa intervention that requires the Project to do periodic submission of detail activity work
plan and a budget for review and acceptance by Sida and the MPW.

20. Annexes
Annex 1 – Activity schedule
Annex 2 – Manning schedule
Annex 3 – Logical Framework Approach (LFA) Matrix
Annex 4 – Memorandum of Understanding (MoU)U

21
 Annex 1 - Updated Project Activity schedule for Nimba, revised February 2012
2011/2012 2012/2013 2013/2014 2014/2015
Activities to achieve outputs Remarks
Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1
Activities to achieve result No. 1

Select roads and facilitate road condition surveys (*) MPW+County+TA

Facilitate road designs, estimates and prepare tender documents (*) MPW+TA

Refine tender documents and technical specifications and procurement

MPW+TA
procedures (*)

Process contractors’ prequalification MPW+TA

Process tender and award contracts MPW+TA

Implement road rehabilitation works Contractor

Develop routine road maintenance formats, report and processes MPW+TA

Formulate community road maintenance (CRM) plan of actions MPW+TA

Award contracts for CRM County+TA

Implement routine road maintenance work County+TA

Facilitate routine maintenance work (Bong & Lofa)

Activities to achieve result No. 2

Develop training programs MPW+TA

Select training providers MPW+TA

Facilitate formal training for road construction MPW+TA

Facilitate formal training for road maintenance MPW+TA

Facilitate on-the-job trainings In office & on-the-job

Facilitate infrastructure sector coordination meetings MPW

Provide direct institutional support to the MPW TA

Training of community volunteers and local MPW technicians on road

County+TA
maintenance issues;
Support for increased MPW supervision and monitoring of project
TA
deliverable actions.

22
Activities to achieve result No. 3

Collaborate with the Office of the County Superintendent, MPW Road

Infrastructure forum for increased coordination and collaboration with local MPW+County+TA
authorities, road infrastructure actors

Collaborate with County – level Gender and Development office to engage

local communities and leaders, especially women, to inclusively participate MPW+County+TA
the planning, design and implementation of the project plan of action

Create awareness on community-level responsibility in routine road

County+MPW
maintenance

Facilitate capacity building training for CBOs and community dwellers County+TA

Develop appropriate action plans for donors visibility actions (Governments

MPW
of Sweden and Liberia) with project beneficiaries;
Activities to achieve result No. 4
Collaborate with local health authorities/National Aids Commission to
support actions that will ensure increased community-level awareness and
MPW+County+TA
actions for protection against the effects of HIV/AIDS as well as reduction of
stigma and discrimination against people living with HIV/AIDs
Collaborate with the Environmental Protection Agency (EPA) to develop
MPW+County+TA
requisite mitigation plan of actions against potential environmental risks;
Ensure community level appreciation of the environment as well as action
plans for the protection of the environment in communities where project County+MPW
actions are being delivered

Note: Legend:
Activities to be undertaken by LSFRP 1 prior to the start of
Q1 = October - December (*)
LSFRP2
Q2 = January - March
Q3 = April - June
Q4 = July - September
MPW = Ministry of Public Works, TA = Technical assistance

23
Annex 2: Manning Schedule

2012 2013 2014

1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 29 30 31 32 33 34 35 36 Tot
LSFRP 2 j f m a m j j a s o n d j f m a m j j a s o n d j f m a m j j a s o n d
Team Leader 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 28
Planning Engineer 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 25
PE Lofa 0 0 0 0 0 0 0 0 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 23
PE Bong 0 0 0 0 0 0 0 0 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 23
PE Nimba 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 25
Baseline/ Impact 1 1 1 1 1 1 6
Short term pool 12

24
 Annex 3: LFA Matrix

Liberian-Swedish Feeder Roads Nimba Expansion Project

Logical Framework

Intervention Logic Objectively Verifiable Sources of Verification Risks and Assumptions

Indicators

To contribute to poverty reduction in Liberia by  Poverty Reduction Strategy deliverable

Overall ensuring sustainable road access in targeted  At least 20% of the Liberian government PRS reports
Objectives communities in Nimba County that will enhance feeder road rehabilitation objective is fulfilled  Progress reports on Nimba County
livelihood potentials primarily in the agriculture sector. by the project. Development Agenda;

By the end of the project period, the Government and  280 km of feeder roads maintained by local  Contractors are willing to
Program local contractors will have the capacity to, with authorities adapt to local resource based
purpose environmental awareness, rehabilitate and maintain  At least 80 % of all contracts issued are approach
feeder roads in Nimba County using local resourced  Sufficient # of artisans
satisfactorily implemented
based methods thereby creating employment.  Project activity progress reports available to participate
 Efficiency of local resourced based approach  Basic construction equipment
 Project annual reports
adopted by all contractors for road are available
 Field visits and monitoring
rehabilitation and maintenance  Final project report

Results #1  280km of feeder roads rehabilitated and  Contractors do not have the
maintained according to specified design and financial and management
standards; capacity necessary
 Contractors are willing to
By end of project period, 280 km of feeder roads are  50% increase in the number of motorised
adapt to approach
rehabilitated and maintained in targeted communities vehicles plying rehabilitated roads by the
end of project period  Sufficient # of artisans
in Nimba County  Project progress reports available to participate
 260,000 of work days created by the end of  Basic construction equipment
 Project annual reports
project are available
 Field monitoring and visits
 20% increase in the volume of agriculture  Final project report
products available for sale in selected
project locations

25
Result #2  20 contractors’ technical and management  Training reports  Targeted participants are
Government’s feeder roads management capacity staff trained in feeder road management  Training needs assessment available and willing to attend
increased and contractors road works are satisfactory techniques and are demonstrating learned  Bid evaluation reports trainings;
skills in the feeder road sector;  Training certificates  Trained staffs are deployed in
 10 of MPW staff trained in feeder the field
management techniques and are  Local authorities commit
demonstrating learned skills in the feeder portion of their county
road sector; development budget to feeder
 2 CBOs trained in feeder road management road maintenance
techniques and are demonstrating learned
skills in the feeder road sector;
 4 districts in Nimba demonstrating the
capacity to maintained their feeder roads
Targeted communities in Nimba are inclusively  No of work days created  Project progress reports  People are available and
Result #3 participating in the planning and implementation of  No women participating in project activities  Project annual reports willing to participate in project
feeder road rehabilitation and maintenance activities  Evidence of inclusive representation of  Field monitoring and visits activities.
communities in planning and decision  Final project report
making process and implementation.
Result #4 Increased awareness amongst project stake holders  No of people trained in HIV/Aids awareness  Project progress reports  People are available and
on the effects of HIV/AIDS and negative and environmental impact  Project annual reports willing to participate in project
environmental impact at all levels.  No of villages provided with HIV/Aids and  Field monitoring and visits activities
environmental impact awareness material  Final project report
Activities for 1. Select roads and facilitate road condition surveys
result #1
2. Facilitate road designs, estimates and prepare tender documents
3. Refine tender documents and technical specifications and procurement procedures
4. Process contractors’ prequalification
5. Process tender and award contracts
6. Implement road rehabilitation works
7. Develop routine road maintenance formats, report and processes
8. Formulate community road maintenance (CRM) plan of actions
9. Award contracts for CRM
10. Implement routine road maintenance work
11. Facilitate routine maintenance work
Activities for 1. Develop training programs
result #2 2. Select training providers
3. Facilitate formal training for road construction
4. Facilitate formal training for road maintenance
5. Facilitate on-the-job trainings
6. Facilitate infrastructure sector coordination meetings
7. Provide direct institutional support to the MPW

26
 8. Training of community volunteers and local MPW technicians on road maintenance issues;
9. Support for increased MPW supervision and monitoring of project deliverable actions.
Activities for 1. Collaborate with the Office of the County Superintendent, MPW Road Infrastructure forum for increased coordination and collaboration with local authorities, road infrastructure actors Create
result #3 awareness about the project
2. Collaborate with County – level Gender and Development office to engage local communities and leaders, especially women, to inclusively participate the planning, design and implementation of
the project plan of action
3. Create awareness on community-level responsibility in routine road maintenance
4. Facilitate capacity building training for CBOs and community dwellers
5. Develop appropriate action plans for donors visibility actions (Governments of Sweden and Liberia) with project beneficiaries;
Activities for 1. Collaborate with local health authorities/National Aids Commission to support actions that will ensure increased community-level awareness and actions for protection against the effects of HIV/AIDS
result #4 as well as reduction of stigma and discrimination against people living with HIV/AIDs
2. Collaborate with the Environmental Protection Agency (EPA) to develop requisite mitigation plan of actions against potential environmental risks;
3. Ensure community-level appreciation of the environment as well as action plans for the protection of the environment in communities where project actions are being delivered

27
Annex 4:
(Draft) Memorandum of Understanding (MOU)
Between
Ministry of Public Works
In its capacity of supervising the implementation of
Liberian Swedish Feeder Roads Project
And
Liberian Swedish Feeder Roads Project
Through its
Project Implementation Unit
And the

Ministry of Finance
In its capacity of supervising the financial management of
Liberian Swedish Feeder Roads Project
And

Liberia infrastructure Rehabilitation Project

Through its

Project Financial Management Unit (PFMU)

28
WHEREAS the Ministry of Finance has established a Project Financial Management Unit (PFMU)
in the Ministry of Finance that is responsible for providing centralized accounting, disbursement,
and reporting services for donor funded projects that are Government executed, it is agreed that
the PFMU will utilized for providing these services for the Swedish funded Liberian Swedish
Feeder Roads Project (LSFRP).

RECOGNIZING that in terms of the Specific Agreement of XXXX 2009 for the (LSFRP), the
Ministry of Public Works and the project implementation Team (PIT) have implementation
authority on behalf of the Government of Liberia.

Therefore the parties understand that:

1. The MPW delegates its responsibility to maintain a financial management system

acceptable to SIDA, per the Specific Agreement, Schedule XX, Section XXX, to the PFMU;
2. The PFMU shall thus develop, implement, operate and maintain such financial
management system, inclusive of the requirements in the negotiated SIDA Project
Document. This will include systems for budgeting, internal control, cash management,
accounting, financial reporting and auditing that are properly documented and approved
through a Financial Procedures Manual (FPM). The MPW, PIT and PFMU will ensure that
the FPM is disseminated amongst staff and that adequate disciplinary measures exist to
sanction non-compliance to the FPM.
3. The PFMU has responsibility to:
a. Operate the financial management system in accordance with the FPM;
b. Operate an effective commitment control system to ensure that project funds are
committed only after approval by the PFMU;
c. Only process transactions duly processed in terms of the FPM and approved by
MPW and the Team Leader of the PIT, or other staff of the PIT as may from time
to time be duly designated by the Team Leader of the PIT to authorize transactions;
d. Take responsibility for issuance of cheques and authorizing bank payments, as
specified in the FPM;
e. Ensure that all transactions approved are eligible expenditures in terms of the said
Specific Agreement with SIDA;
f. Appoint External Auditors for the audit required in terms of the SIDA Financing
Agreement, XXXXXXXX. Ensure that such External Auditors are acceptable to
SIDA;
g. Attend all project management and staff meetings;
h. Have full-unlimited access to all project information, records and data, also for
internal and external audit purposes.

4. The PFMU will perform the following tasks for MPW, without this limiting other services
that may be needed to effectively discharge its responsibility under the FPM:

29
 a. Open bank accounts as agreed with SIDA and to handle all related matters to
access such funds, in terms of Specific Agreement, XXXXX and the LSFRP Project
Documents;
b. Establish effective expenditure commitment, payment, control and accounting
procedures for transactions approved by MPW and the Head of the PIT, or other
PIT staff as may from time to time be duly designated by the Head of the PIT to
authorize transactions, in accordance with the policies, procedures, controls and
standards as authorized in the FPM;
c. Timely resubmit for processing by the PIT any transaction not processed or
approved in terms of the FPM;
d. PFMU shall issue cheques or payment instructions to the bank as payment to
beneficiary specified in the contract. That the turnaround time for processing a
payment transaction, from time of receipt of recommended invoices/bills for
payment by the PIT and the time of cheques collection shall not be more than six
working days;
e. Provide internal audit services and assist PIT management to manage project risks
by identifying areas for improved control to (i) carry out the project activities in
an orderly and efficient manner; (ii) ensure adherence to policies and procedures;
(iii) to safeguard the funds and assets of the project; and (iv) secure as far as
possible the completeness and accuracy of the financial and other records;
f. Timely prepare from the said financial management system all the necessary
monthly and quarterly Interim Financial Reports and Annual Financial
Statements, for approval and circulation by the PIT in order to comply to the SIDA
Specific Agreement, XXXXXXXX;
g. The PFMU will submit audited Annual Financial Statements to the Minister of
Finance and the Minister of Public Works in terms of applicable accounting and
auditing legislation.

5. It is also agreed that:

a. The Head of the PFMU will at least annually agree with MPW and the Head of the
PIT a budget for the costs associated with the external audit of the project, for
inclusion and payment from the operating budget of the project;
b. The LSFRP shall contribute one national accountant and operation budget of a
maximum of monthly lump sum of USD 1500 (one thousand five hundred US
dollar) on a quarterly basis.

6. The PFMU staff are accountable to the Head of the PFMU for the discharge of such
services, who in turn will report at least bi-annually to MPW and the Head of the PIT on
service delivery by the PFMU. This does not retract form the responsibility that assigned
PFMU staff have to report to MPW and the Head of the PIT any transactions that are not
duly entered into under his/her authority, contraventions of agreed policies and

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 procedures, including the FPM, or any matter that requires attention of MPW and the
Head of the PIT.

7. Any directive by MPW and the Team Leader of the PIT to staff of the PFMU having
financial implications for the project must be in writing. If implementation of the directive
is likely to result in ineligible expenditure, the PFMU will be responsible for any resulting
ineligible expenditure unless the Head of the PFMU has informed MPW and the Team
Leader of the PIT in writing of such likelihood. Any decision of MPW and the Head of the
PIT to proceed with the implementation of the directive, and the reasons for the decision,
must be in writing, and the Head of the PFMU must promptly file a copy of this document
with the Deputy Minister of Expenditure, SIDA, the Auditor-General and the Deputy
Minister of Administration of the Ministry of Public Works.

8. The parties to the MOU agrees that the PIT in the Ministry of Public Works is responsible
for:
a. Day to day implementation of the project;
b. Preparation of the annual work plans;
c. Monitoring and evaluation of project implementation;
d. Procuring goods, works and services under the project in line with the established
Procedures;
e. Receiving invoices and other payment request for initial vetting to ensure
compliance with contract terms. On completion of its review and approval, PIT
shall ensure that copies of all contracts are lodged with the PFMU prior to the
submission of any payment request;
f. Ensuring that the commitment control system is complied with and that all
transactions are eligible in terms of the said Specific Agreement with SIDA;
g. Ensuring that all payment request submitted to the PFMU are supported by
relevant supporting documents. These requests shall be approved by MPW and
the Head of the PIT, or other staff of the PIT as may from time to time be duly
designated by the Head of the PIT to authorize transactions. The requests shall
specify clearly which of the relevant projects the expenditure relates to;
h. Stipulating that FPM processes and PFMU payment authorizations and approvals
are binding upon the PIT;
i. Ensuring that payment requests submitted without relevant supporting
documentation shall be rectified within 48 hours of receipt of the documents from
the PFMU;
j. Confirming that the PIT shall nominate an officer to liaise effectively with the
PFMU.

9. The parties agrees that the following general policies and guidelines will be complied with
for these arrangements:

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 a. The Head of the PFMU and the Project Accountant are part of the Project Team
and shall be invited to all its meetings;
b. That the PFMU staff will be granted full access to all project information, records
and data, also for internal and external audit purposes;
c. All parties will comply with procedures contained in the FPM and any addendum
to same. They shall ensure that the FPM is disseminated amongst staff and that
adequate disciplinary measures exist to sanction non-compliance to the FPM;
d. All parties (MPW, PIT, and PFMU) must be kept informed of all data and other
information regarding the management of the project accounts;
e. A regular (quarterly) review of this MOU and the operation of the Financial
Management Manual shall be carried out during the first year of the project, with
involvement of all parties;
f. Any matter that requires resolution between the Heads of the PIT and PFMU will
be submitted by either party in writing to the Finance Minister, the Minister for
Public Works and SIDA for their joint arbitration.

Now, therefore and in keeping with the managerial roles as spelt out herein, respectively to be
rendered by the PIT (MPW) and PFMU (MOF) of the Government of Liberia; the parties fully
cognizant of said roles do hereby affix their signatures agreeing faithfully to perform their
respective duties and roles to the best of their abilities.

Thus signed on this XXth day of XX, 2012 in Monrovia, Liberia.

__________________________ ____________________________

TEAM LEADER OF PIT HEAD OF PFMU

__________________________ ____________________________

MINISTER OF PUBLIC WORKS MINISTER OF FINANCE

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