United Nations Capital Development Fund

Project Evaluation Summaries
Prepared by the Policy, Planning and Evaluation Unit (PPEU)

Bhutan

I. Basic Project Data

Project Number:	BHU/88/C01
Project Title:	Suspension Bridges
UN Cooperating Agency:	None
Govt. Executing Agency:	Suspension Bridge Unit of the Public Works Division, Ministry of Communication
Sector:	Transport & Communications (06)
Sub-Sector:	Transport by Land (0630)
UNCDF Budget:	US$ 2,033,270
SDC Budget:	580,000
Gov't. Budget:	1,080,000
Total Budget:	3,693,270
Actual Total Expenditures at Evaluation:	3,220,880
Date Project Approved:	Nov 1989
Date Project Began:	July 1989
Date Project Evaluated:	Nov 1993
Type of Evaluation:	Mid-term

II. Background

The terrain of Bhutan is among the most rugged in the world. A substantial part of the population therefore relies on foot trails, mule tracks and trail bridges. During the monsoon rains, whole valleys are cut off from the road network and thus from health facilities, schools, markets and other essential services. In order to improve access for large portions of its population, the Government of Bhutan has placed high emphasis on the construction and improvement of mule tracks and trail bridges.

In March 1988, UNCDF funding was earmarked for a Phase Ill bridge project at the request of the Royal Government of Bhutan (RGOB) and in light of the priority attached to the continuation of Phases 1 and 11 of the trail suspension bridge program. In October 1988, UNCDF and the Swiss Government jointly fielded a mission to evaluate Phase 11 and to formulate Phase Ill. The mission proposed construction of 50 bridges co-financed by the RGOB, UNCDF (through a trust fund from the Swiss Government) and HELVETAS (under Swiss Development Corporation funding), which would also be responsible for the Technical Assistance Component. The proposed duration of the Phase Ill project was four and a half years.

III. The Project

The development objective of the project is to assist the Bhutanese Government in creating the necessary social, physical and administrative infrastructure that would allow for balanced socio-economic development - in this case, to facilitate access in remote parts of the country.

The immediate objectives of the projects are as follows:

to improve access to markets, administrative and social facilities, and grazing and agricultural land for inhabitants of remote villages through the construction of 50 pedestrian trail bridges;
to strengthen the institutional mechanisms for the survey, design, construction and maintenance of the suspension bridges.

IV. Purpose of the Evaluation

The purpose of the evaluation mission was to assess the status, performance, approaches, achievements and impact of the project. Specifically, the Mission was asked to assess problems encountered during the implementation of the project and suggest improvements; to assess the criteria used by the government and UNCDF for selection of sites, implementation, and institutional arrangements for operation and maintenance of the bridges; and to work out the key factors and preconditions for a successful continuation of the project activities in the years to come, with particular regard for replicability and sustainability.

V. Findings of the Evaluation Mission

Assessment of results achieved:

At the end of the 4 1/2-year project cycle, the Mission found that 65% of the work had been completed. A total of 29 new bridges had been built (2 of 7 that had been transferred from Phase 11, and 27 of the 50 projected for Phase 111). Construction of the remaining 23 bridges was in progress, with an anticipated completion period of 11/2 years.

Overall, the Mission was positive about project organization, the initial needs assessment, support to the Dzongkhag-based technical staff, provision of staff training, standardization of bridge design and drawings and use of standard operation manuals.

However, a number of important issues remained unresolved. In particular, the Mission noted the following constraints and reasons for delays in construction:

delay in fabrication of steel parts
over-burdened voluntary labor on a number of bridges
inadequately skilled labor in Headquarters and Dzongkhag Administration
lack of proper support to site staff in terms of mobility and camp equipment
difficulty in procurement and supply of explosives
lack of time for frequent inspection of sites and maintenance arrangements due to extra burden of project planning, management and training
unavailability of rock-drilling machinery on a timely basis

Assessment of project design

Although the targeted number of bridges to be constructed was not reached within the stipulated time frame and the maintenance system had not yet proven itself to be sustainable, other evidence supports the assessment that the original project design was a sound one, with a well designed technical-assistance component.

VI. Recommendations

The Mission made the following recommendations:

Continue financial and technical assistance support to the project as necessary to complete construction (an estimated 11/2 years).
Additional procurement of US$ 157,500 would be needed for computers, rock drilling machines, camping materials and vehicles. Expatriate input would also be required over the two following years in order to improve planning, monitoring and human resource development, continue training as part of the technical assistance component.
Bridge maintenance should follow a strict 2-year cycle with beneficiaries taking over certain responsibilities.
Create a strategy for the Suspension Bridge Unit (SBU) with the aid of different bridge completion scenarios. This would require the creation of a National Trail Base Map comprising topographical, demographic and infrastructural features.
Replace the Suspension Bridge Survey Proposal Form with the Suspension Bridge Survey proposal. This will improve the socio-economic baseline information for use in future impact evaluations and aid in proper site selection.
Future planning and design should also take into account the capacity of the executing agency to implement the project.

VII. Policy Implications and Lessons Learned

One of the broader lessons learned from the Suspension Bridge project in Bhutan is that close involvement of beneficiaries helps to prevent the selection and construction on unnecessary bridges (this could also be true for other infrastructure] projects) and reduces potential mis-investments.

VIII. Evaluation Team

The mission was composed of Mr. Murari P. Gautam, Socio-economist/Mission leader, Kampsax International, representing UNCDF, Mr. Jurg Christen, Engineering Consultant representing Helvetas and Mr. Harkha Tamang, Economist/Under Secretary of Ministry of Communication, representing the Royal Government of Bhutan.