INSTITUTIONAL IMPROVEMENT IN ROAD AGENCIES IN THE BALKANS:

1

• INSTITUTIONAL IMPROVEMENT IN ROAD AGENCIES IN
  THE BALKANS
• THE ROLE OF PROJECT MANAGEMENT

2
PRESENTATION C O N T E N T S

• INTRODUCTION
• THE ROAD AGENCY CHALLENGE
• THE MODERNIZATION RESPONSE
• MODERNIZATION STATUS IN THE BALKANS
• RIPS REGIONAL PROJECT MANAGEMENT APPROACH
• INITIAL APPLICATIONS AND RESULTS
• LESSONS ON WHAT WORKS
• OPPORTUNITIES FOR THE COMING YEAR
• REFERENCES

3
Introduction...
ROAD AGENCY EXECUTIVES IN SOUTH EAST EUROPE MUST
DEAL WITH A NUMBER OF CRITICAL INSTITUTIONAL
INSOMNIA ISSUES

• What changes in road agency structure
  operations are required for accession to the EU,
  and modernization?
• How are road agencies modernizing -- in general,
  and in the Balkans?
• Why are road agencies giving priority to
  improving their project management systems
  (including project identification, tendering,
  supervision, control, etc)?
• What is the Balkans Regional Infrastructure
  Program (RIP) approach to project management
  improvement in the road sector?

AND THIS PRESENTATION REVIEWS RIPS LESSONS AND
OPPORTUNITIES FOR TACKLING THESE ISSUES
4
The Road Agency Challenge...
GLOBAL AND REGIONAL PRESSURES ARE PLACING NEW
DEMANDS ON NATIONS AND ROAD AGENCIES AROUND THE
WORLD...

• Global and Regional Pressures
• Global Institution Regulations
• Efficiency Performance Requirements
• Information Technology Applications

New Demands on Road Agencies
National Context
Laws Regulations
Feedback
Political Decisions
Investment Standards Requirements
5
The Road Agency Challenge...
ROAD AGENCY EXECUTIVES AND ENGINEERS WORLDWIDE
MUST DEAL WITH SEVERAL KEY LOCAL EFFECTS OF
COMPLEX GLOBAL CHANGES...

• Redefined role of road agency as road regulator
  (not provider)
• Additional road network transport performance
  requirements
• Budget tightening along with new procedures for
  accountability
• Pressures for further personnel reductions, and
  concerns for survival
• Rising stakeholder expectations and active
  involvement
• Increasing priority on environmental, safety and
  social issues

...AND INSTITUTIONAL IMPROVEMENTS ARE REQUIRED TO
DEAL WITH THESE EFFECTS
6
The Road Agency Challenge...
LOCALLY, IN THE BALKANS, ROAD AGENCIES ARE
CONFRONTING A NUMBER OF INSTITUTIONAL
CHALLENGES...
7
The Modernization Response
IN RESPONSE TO THIS CHALLENGE, RIP BEGINS WITH A
BEST PRACTICE MODEL OF A HIGH PERFORMANCE ROAD
AGENCY
RESOURCE MANAGEMENT TO ACHIEVE PERFORMANCE
REQUIREMENTS
RESOURCE MOBILIZATION AND ALLOCATION
MODERN, HIGH PERFORMANCE ROAD AGENCY
8
The Modernization Response
ROAD AGENCIES GLOBALLY ARE TRANSITIONING THROUGH
SEVERAL COMMON STAGES IN THEIR QUEST FOR
MODERNIZATION AND HIGH PERFORMANCE IN EACH OF
THESE THREE PROCESS CATEGORIES
9
The Modernization Response...
THE CHANGES IN ROAD AGENCIES ARE BEING DRIVEN BY
BOTH EXTERNAL AND INTERNAL NEEDS...
10
The Modernization Response...
SOME COUNTRY ROAD AGENCY CASES CAN BE REVIEWED
FOR THEIR MODERNIZATION PROGRESS...

• Case Illustrations
• Virginia, USA
• Romania
• Croatia
• Bulgaria
• Macedonia
• Albania

• Stage of Modernization
• Modern
• Mixed
• Mixed
• Traditional to Mixed
• Traditional to Mixed
• Traditional to Mixed

11
The Modernization ResponseUSA...
STARTING IN 1994, THE VIRGINIA DEPARTMENT OF
TRANSPORTATION HAS EMBARKED ON MEANINGFUL
INITIATIVES TO MODERNIZE...

• The 56,101-mile state-maintained road system with
  2.6 billion annual budget of which 48 goes to
  construction and 38 to maintenance.
• Financial Sources gasoline taxes, vehicle title
  fees, license tag fees, and general sales tax.
• In 1995, a business process redesign (BPR) effort
  began that resulted in a clearly articulated
  strategy for the 21st century.
• - Provide Highest Service Level
• - Focus on Customer
• - Define Success by Outcomes
• - Share Statewide Ownership
• - Keep Decision Making Close to Customer
• The Public Private Transportation Act (PPTA) was
  enacted to offer major incentives for private
  sector participation.
• - Creative Approach to Involve the Private
  Sector
• - Design, Build, Maintain and Operate
  Facilities
• - Solicited and Unsolicited Proposals
• - Staged Review and Approval

12
The Modernization Response...
VIRGINIA IS OPERATING AS A HIGH PERFORMANCE ROAD
AGENCY IN MOST AREAS...
TRANSITION CATEGORIES
TRADITIONAL (Public Oriented)
MODERN (High Performing)
MIXED (Transitional)

• Well defined vision and strategy in place with
  focus on customer and providing highest service
  level
• Highly decentralized. Planning, design and
  construction outsourced to contractors. Large
  maintenance workforce with initiatives in
  contracting.
• Streamlined regulations for transport. Changing
  regulatory environment for forward looking
  initiatives

Strategic Management in the Regulatory
Context Resource Mobilization and
Allocation Resource Management to Achieve
Performance Requirements

• Planning done at the network level with a clear
  strategy
• Mainly Federal and state funding. A few
  experiments underway with public/private
  partnerships
• Resource allocations are clear and timely

• Success defined by outcomes
• Automated offices. E-mail. Integrated database
  systems. Increased contracting of systems
  design, development, and OM. Robust IT leading
  to ITS/GIS

13
The Modernization Response Romania...
IN ROMANIA THE NATIONAL ADMINISTRATION OF ROADS
IS TRANSITIONING TOWARD A MORE MODERN AGENCY

• Romanias National Administration of Roads (NAR)
  is a state-owned, but autonomous entity funded
  by the state budget and other revenue sources
• In 1994, NAR went through an institutional
  restructuring and commercialization process
• In 1990 NARs staff reached 9,000, and today it
  has a staff of only 350
• Balance of staff divested and restructured as
  privatized companies that compete openly for
  contracts, creating a growing construction and
  maintenance industry
• Today NAR is the planner, contracting agency and
  use manager for the national roads with a clear
  strategy that stresses asset preservation and
  increased performance to meet the challenges of
  EU accession
• Several issues that need to be resolved to
  successfully implement the EU accession strategy
• Regulatory environment needs to be adapted to
  current road sector needs
• NARS project management and project preparation
  capacity needs to be improved
• Insufficient experience with team structure and
  team work

AND THE NAR IS PURSUING VARIOUS INSTITUTIONAL
IMPROVEMENT ACTIVITIES, INCLUDING COOPERATION
WITH RIP
14
The Modernization Response...
THE ROMANIA ROADS SECTOR REPRESENTS A MIXTURE OF
PROCESSES...
TRANSITION CATEGORIES
TRADITIONAL (Public Oriented)
MODERN (High Performing)
MIXED (Transitional)
Strategic Management in the Regulatory
Context Resource Mobilization and
Allocation Resource Management to Achieve
Performance Requirements

• Well defined strategy with focus on providing
  highest service level, but not clear on the way
  to obtain the necessary funds
• Decentralized small and autonomous structure.
  Planning, design and construction outsourced to
  contractors.
• Regulatory context still needs to be adapted to
  current sector needs

• Institutional Infrastructure to support strategic
  decision making on network management is in
  place but not fully operational
• Multiple sources of funding, such as user
  charges, Road Fund, external loans and the state
  budget

• Project management system needs strenghtening
• NARs Center for Road Studies and IT provides
  support for computerization of NARs activities.
  PMS and other stand-alone systems in the process
  of being implemented
• First stage of program to monitor road
  maintenance only covers the national road
  network. Second stage will cover regional roads

15
The Modernization ResponseCroatia...
IN CROATIA, THE ROAD INFRASTRUCTURE
ADMINISTRATION HAS BEEN RESTRUCTURED AND IS IN
TRANSITION

• Transport demand for roads, has grown modestly
  (largely from Tourism) since the end of internal
  hostilities in 1995
• Croatias road conditions are fair to poor due to
  deferred maintenance
• Croatias infrastructure responsibilities were
  recently split into two separate state-owned
  entities
• Croatian Road Authoritiy (HC)
• Croatian Motorway Authority (HAC)
• The road construction industry is capable with
  some contractors able to compete on
  international level

AND THE ROAD AGENCIES ARE ACTIVELY PURSUING
ADDITIONAL OPPORTUNITIES FOR PUBLIC PRIVATE
PARTNERSHIPS
16
The Modernization Response...
THE CROATIA ROAD SECTOR IS REPRESENTED BY MIXED
FEATURES, AND IS BECOMING MORE MODERN...
TRANSITION CATEGORIES
TRADITIONAL (Public Oriented)
MODERN (High Performing)
MIXED (Transitional)
Strategic Management in the Regulatory
Context Resource Mobilization and
Allocation Resource Management to Achieve
Performance Requirements

• A body of law generally suitable to govern the
  transport sector in a market economy has been
  created
• Recent reorganization diluted the responsibility
  for planning and administration of road system
• Institutions policies are being reviewed
  upgraded

• Road investment strategy not firmly grounded on
  economic environmental criteria and does not
  include rehabilitation of assets
• Sources of funding include government, IFIs,
  private investors users
• Resource allocations subject to political
  influence

• Road staff involved in project design lack
  knowledge experience in economic, financial,
  social environmental analysis
• Project implementation procurement capacity for
  the road sector needs improvement
• Pavement, bridge maintenance management
  systems not fully operational

17
The Modernization ResponseBulgaria
IN BULGARIA, RECENT STRUCTURAL REFORMS HAVE PUT
THE ROAD SECTOR ON THE RIGHT TRACK TO BECOME A
MODERN HIGHWAY ORGANIZATION

• In 2000, the Government of Bulgaria embarked upon
  a major restructuring of the road sector,
  effectively separating its policy and regulatory
  functions from implementation
• The Directorate General Road Administration,
  responsible for road policy and regulatory
  matters, was established
• The General Road Directorate (GRD) was
  reorganized into a smaller implementing agency,
  the Roads Executive Agency (REA), downsizing
  from 6,000 to 3,000 staff
• REA is responsible for planning, procurement and
  monitoring of the design, construction and
  maintenance in the national road network.
• Maintenance functions are outsourced to 66
  individual state-owned maintenance enterprises
  with the intent of future privatization
• The new structure of the road sector is also
  posing new challenges
• REA staff are not trained to carry out core
  services in the new setting (procurement,
  implementation and monitoring of IFI and EU
  financed projects contracts)
• New players (maintenance enterprises) have
  limited capacity to carry out new roles and
  responsibilities

HOWEVER, THE TRANSITION WILL REQUIRE FURTHER
STRENGTHENING OF THE PLAYERS IN THE NEW STRUCTURE
18
The Modernization Response...
THE BULGARIA ROADS SECTORS REPRESENTS SOME
TRADITIONAL ALONG WITH A MAJORITY OF MIXED
PROCESSES..
TRANSITION CATEGORIES
TRADITIONAL (Public Oriented)
MODERN (High Performing)
MIXED (Transitional)
Strategic Management in the Regulatory
Context Resource Mobilization and
Allocation Resource Management to Achieve
Performance Requirements

• Clear strategy for the sector, aimed EU accession
  and compliance with EU standards
• Policy and regulatory functions separate from
  implementation, but still in transition
• Downsized structure with focus on contract
  management focus, but previous practices still
  persist
• Design and construction outsourced, but
  contractor market not sufficiently developed

• Planning increasingly following an integrated
  strategy, but external influences still play a
  major role
• Multiple sources of funding, state budget, Road
  Fund and external loans
• Assignment of maintenance work to OM units is
  still based on quotas

• Program planning in place but individual projects
  still uncoordinated and driven by technical
  considerations
• In practice, transition from force account to OM
  contractors has not been realized as units plan
  activities on an ad-hoc basis and are not
  accountable for performance

19
The Modernization ResponseMacedonia...
IN MACEDONIA, DESPITE CURRENT DIFFICULTIES, THE
ROADS AGENCY IS TRANSITIONING TOWARD HIGHER
PERFORMANCE...

• The country has a network of roads totalling over
  9400 kilometres of which half are maintained
  and paved highways links to neighbouring
  countries need renovation
• Macedonia handles the road sector by a Fund for
  National Regional Roads
• The Fund is in charge of the construction
  maintenance of all roads
• A state-owned company (Makedonia Pat) deals
  with maintenance
• The countrys strategic location as the Balkans
  crossroads has attractedsubstantial
  institutional finance for the motorway network
• Institutional weaknesses in the road sector
  (including over-regulation, limited training
  low salaries) have led to inefficient core
  serviceses and inadequate maintenance

AND SEVERAL IFIS ARE WORKING WITH MACEDONIA TO
MAKE INSTITUTIONAL IMPROVEMENTS
20
The Modernization Response...
MACEDONIA IS TRANSITIONING FROM A TRADITIONAL TO
A MIXED MODEL...

• Vision policies of Road Fund established with
  transition to clarification of performance
  requirements
• Policy regulatory functions separate from
  service delivery, but procedures and support
  systems in transition
• Along with Romania Bulgaria, Macedonia has
  negotiated agreements with EU to liberalize
  transport agreements

• Informal network planning system in use but
  insufficient attention given to economic
  environmental factors
• Road development maintenance is featured mainly
  from a petroleum products tax users fees
• Resource allocations strongly influenced by
  political technical considerations

• Road Fund staff involved in project design lack
  knowledge on international standards market
  oriented practices
• Lack of familiarity with EU IFI procurement,
  supervision reporting procedures
• Priority given to new construction leading to
  maintenance backlogs

21
The Modernization ResponseAlbania
IN ALBANIA, THE GENERAL ROADS DIRECTORATE (GRD)
IS TRADITIONAL AND CENTRALLY CONTROLLED...

• Albania is opening to the Western world rapidly
  -- with substanial IFI and other investment
  resources in transportation
• In 1996 GRD was restructured, but the sector
  remains highly centralized
• Functions were divested and personnel
  significantly downsized
• Project Implementation Units were established to
  manage externally financed projects
• Planning is centrally done and regions only carry
  out maintenance work
• Although design, supervision, construction and
  some maintenance functions are divested and
  privatized, capacities still need to be
  developed in several key areas
• Staff are strong in traditional engineering
  disciplines but needs training in
  non-engineering competencies,
• Routine maintenance is still carried out by force
  account and quality suffers due to lack of
  equipment and proper supervision

BUT THE INCREASING DETERIORATION OF THE ROAD
NETWORK IS CREATING AN ENORMOUS PRESSURE TO
ACCELERATE ITS MODERNIZATION
22
The Modernization Response
IN ALBANIA, THE GRD NEEDS TO FOCUS ON FURTHER
INSTITUTIONAL IMPROVEMENTS IF IT IS TO SEIZE THE
CURRENT OPPORTUNITY PROVIDED BY EXTERNAL
FINANCING
TRANSITION CATEGORIES
TRADITIONAL (Public Oriented)
MODERN (High Performing)
MIXED (Transitional)
Strategic Management in the Regulatory
Context Resource Mobilization and
Allocation Resource Management to Achieve
Performance Requirements

• Unclear strategy with mixture of old and new
  policies and regulations
• Downsized structure with limited degree of
  autonomy for regions (only maintenance
  functions) with minimal staff resources
• Increasing outsourcing of design and
  construction, to divested state-owned companies
  in the process of privatization. Some
  joint-venturing with foreign firms, but market
  needs to be further developed. Maintenance still
  done in-house

• Initiatives to develop an integratednetwork
  strategy, but still significantly influenced by
  politics and external financing entities
• Funding mainly from state budget and external
  loans
• No clear accountability for performance and
  results

• Individual projects uncoordinated and driven by
  technical considerations
• Quality of work is not uniform and efficiency is
  low due to lack of equipment and proper
  supervision
• Staff competent in traditional engineering
  disciplines, but require training in modern
  systems of management, operations, economics and
  environment

23
Modernization Status in the Balkans...
RIPS ANALYSIS INDICATES THAT BALKANS ROAD
AGENCIES ARE IN THE PROCESS OF TRANSITIONING
TOWARDS MODERNITY...

• Change is imperative as a result of
• increasing level of globalization
• rising public expectations
• dwindling governmental resources
• standards associated with EU accession
• Change occurs through transitional stages -- at
  differing rates
• Institutional improvement of core agency
  processes can speed up the rate of transition
  leading to higher performance
• Transportation organization managers and
  engineers need to
• sense and map out where improvements are needed
• lead and manage the change efforts

AND RIP USES A MODEL OF CORE PROCESSES TO
IDENTIFY AND SEQUENCE ITS IMPROVEMENT ASSISTANCE
24
RIPs Regional Project Management Approach...
AND OUR ANALYSIS SUGGESTS THAT IMPROVEMENTS IN
THESE SYSTEMS ARE BOTH RELATIVELY EASY TO MAKE
WOULD YIELD SUBSTANTIAL BENEFITS TO ROAD AGENCIES
IN THE BALKANS
25
RIPs Regional Project Management Approach...
THE USAID-SPONSORED RIP INITIATIVE UNDER THE
STABILITY PACT IS INITIALLY FOCUSING ON THE AREA
WHERE USA CONTRACTOR EXPERIENCE AND EXPERTISE CAN
BRING THE HIGHEST VALUE...
Road Agency Process Category
Needed Road Agency Institutional Improvements

• Strategic Management in the Regulatory Context
• Resource Mobilization Allocation
• Resource Management to Achieve Performance
  Requirements

• Strengthened Executive Management System
• Strengthened Network Planning Systems
• Strengthened Project Management Systems

?
THAT IS IMPROVEMENTS IN PROJECT MANAGEMENT FOR
THE ROAD SECTOR
26
RIPs Regional Project Management Approach...
ROAD AGENCIES GAIN MANY BENEFITS FROM
IMPROVEMENTS IN THEIR PROJECT MANAGEMENT SYSTEM...
Improvements inProject Management
Benefits to Road Agencies
27
RIPs Regional Project Management Approach...
RIP GROUNDS ITS ROAD SECTOR PROJECT MANAGEMENT
IMPROVEMENT ACTIVITES IN THE INFRASTRUCTURE
PROJECT MANAGEMENT CYCLE
1. Strategic and Program Considerations
28
RIPs Regional Project Management Approach...
RIPS ORIENTATION IS THAT PROJECT MANAGEMENT IS A
PROFESSION APPROPRIATE FOR MANY ROAD SECTOR
PROFESSIONALS...

• Project management is the profession of
  mobilizing and applying resources (financial,
  human, information, etc.) to accomplish valued
  project objectives under conditions of risk and
  partial control.
• Project management is required in both phases of
  the project cycle -- project design and
  project implementation.
• Project management involves both a
  well-articulated body-of-knowledge and a
  practical tool kit for road sector
  professionals

29
RIPs Regional Project Management Approach...
RIP BASES ITS WORK ON THE PROJECT MANAGEMENT
INSTITUTES BODY OF KNOWLEDGE (PMBOK)
30
RIPs Regional Project Management Approach...
RIPS CORE INSTITUTIONAL AND TRAINING CURRICULUM
IS ORGANIZED AROUND THE INFRASTRUCTURE PROJECT
CYCLE...
AND INCORPORATES PRACTICAL HOW TO KNOWLEDGE
HANDS-ON TOOLS
31
THE BOOZALLEN PROCESS APPROACH TO IMPROVEMENT OF
HIGHWAY MANAGEMENT CAPACITY IS GROUNDED IN FIVE
PRINCIPLES...
RIPs Regional Project Management Approach...

1. Improve management capacity based on the previous
   local experiences
2. Plan for the future based on current strengths
   and opportunities
3. Work as an integrated foreign and local team
4. Use and adapt modern concepts and appropriate
   technologies
5. Create and sustain a learning, team-based work
   environment

AND THESE PRINCIPLES HAVE PROVEN TO BE
EFFECTIVE ALL AROUND THE WORLD
32
RIPs Regional Project Management Approach...
RIP FOLLOWS A NUMBER OF BEST PRACTICES IN
STRUCTURING ITS INSTITUTIONAL IMPROVEMENT
ACTIVITIES...

• Important objectives, with realistic time
  parameters, must be developed and believed in by
  top management... and theseobjectives need to be
  communicated and supported
• Key internal and external stakeholders need to
  perceive a sense of urgency around the
  improvement...in terms of crises or major
  opportunities
• A powerful guiding coalition is required
  (champions) to steward the improvements
• both from inside the organisation
• and from outside the organisation
• Short-term wins (results) need to be planned and
  created so, it is necessary to attack the
  problem from many angles, i.e. financing,
  restructuring, information technology,
  contracting etc Options selected should be
  achievable and oriented toward measurable results
• Results need reinforcing and consolidating, by
  producing more improvements over longer periods
  of time

33
Initial Applications Results...
RIPS APPROACH COMBINES REGION-WIDE
TRAINING-THE-TRAINER (TTT) CAPACITY BUILDING
WITH COUNTRY-SPECIFIC RESULTS-ORIENTED
TRAINING...
RIPsTraining Phases
34
Initial Applications Results...
IN 2001 RIP IS IMPLEMENTING SEVERAL INSTITUTIONAL
IMPROVEMENT PROJECTS IN THE ROAD SECTOR -- EACH
WITH TARGETED RESULTS...
35
THE LESSONS RIP HAS LEARNED IN IMPLEMENTING OUR
REGION-WIDE INSTITUTIONAL IMPROVEMENT ACTIVITIES
DURING 2001 INCLUDE...
Lessons on What Works...

• The value of continuously clarifying
  client/beneficiary expectations for our Projects
• The importance of a geographical presence for
  adapting to local conditions
• The value of RIPs ability to offer and deploy
  assistance quickly and with a minimum of
  bureaucratic hurdles
• The importance of careful assessment prior to
  implementation, including involvement from key
  client and beneficiary representatives
• The importance of working through local trainers
  institutions in order to have the right mix
  of technical and institutional experience
• In a program like this with many dispersed
  operations, a special effort is required to
  capture, share and regularly update RIPs
  intellectual capital through our Best Practices
  website

AND THESE LESSONS WILL GUIDE RIPS INSTITUTIONAL
IMPROVEMENT TRAINING WORK IN 2002
36
Opportunities for the Coming Year...
RIP INTENDS TO CONTINUE AND EXPAND ITS ROAD
AGENCY PROJECT MANAGEMENT IMPROVEMENT FOCUS IN
2002 AND BEYOND...

• The Regional Training-The-Trainer Activity will
  focus on developing viable local and regional
  institutions with Project Management Training
  Capacity
• The country-specific institutional improvement
  efforts will target road agency
• Executive Management Systems (like the
  Infrastructure Monitoring Unit Effort in
  Albania) and
• Network Planning Systems (like skills development
  in HDM4)
• More intensive Project Management systems
  improvement (with a focus on Procurement
  Contract Management Systems)
• RIP will support local and regional Project
  Management Associations (like the Regional union
  of Project Management Associations in Central
  Southeast Europe (SENET) Conference in Dubrovnik
  in April 2002 and the new Romanian Project
  Management Institute (PMI) Chapter)

AND WE LOOK FORWARD TO COOPERATING WITH ROAD
AGENCIES IN THE BALKANS IN CARRYING OUT OUR
INSTITUTIONAL IMPROVEMENT TRAINING ACTIVITIES
37
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38
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