2007年-世界发展银行全球_Local_Case_Studies_20页_340kb

Pakistan Infrastructure Implementation Capacity Assessment (PIICA) - Local Case Studies Summary

Core Content

This document is part of the Pakistan Infrastructure Implementation Capacity Assessment (PIICA) and presents a detailed analysis of several local infrastructure projects to understand the challenges in planning, designing, and implementing infrastructure in Pakistan. The case studies cover a range of sectors including roads, airports, ports, and motorways, and highlight the issues that affect project execution and delivery.

Main Objectives

• To document the bottlenecks experienced during the life cycle of infrastructure projects.
• To understand the capacity constraints in planning, design, procurement, contract administration, financing, budgeting, and execution.
• To validate the feedback obtained from Stakeholders' Perception Surveys (Technical Notes 2 and 3) and Focus Group Discussions (Technical Note 11).

Methodology

• Projects were identified and selected based on their potential to provide lessons on infrastructure implementation.
• Documentation was gathered from implementing agencies, including project background, progress reports, reasons for delays, and other relevant issues.
• The case studies were analyzed to identify common challenges and their impact on project outcomes.

Key Case Studies

1. A Mountain Road Project

• Project Overview: A road project in Balochistan was tendered in March 1993, with the intention of later upgrading it to a motorway.
• Tender Process: Only six out of eleven bidders submitted responsive bids. The project was launched using a "Deferred Payment Model" due to lack of budget allocation.
• Execution Challenges:
  • Inaccurate terrain assumptions and steep gradients caused design changes.
  • Revisions to the alignment led to re-organization and re-rating of the tender.
  • Inaccessible terrain delayed material investigation and increased costs.
• Outcome: The project was completed in 2004, with significant delays due to design changes and payment issues.

2. A Bypass Road Project

• Project Overview: A major bypass project in Pakistan involved seven international contractors.
• Tender Process: Four bids were received, with the lowest bid awarded at US$62 million.
• Execution Challenges:
  • Delays in payment of Interim Payment Certificates (IPCs) affected progress.
  • The foreign exchange component of IPCs could not be cleared for extended periods.
  • Land acquisition issues were resolved but had minimal impact on delays.
• Outcome: The project was completed 18 months behind schedule, with claims submitted by the contractor for delayed payments.

3. An Airport Project

• Project Overview: A major airport construction project in 1994, with two bids received.
• Tender Process: The lowest bid was awarded for US$220 million after two years of negotiations.
• Execution Challenges:
  • Political instability delayed the "Order to Proceed."
  • International sanctions and local conditions affected contractor operations.
  • Equipment import issues and outdated specifications led to further delays.
• Outcome: The project was completed in 2003, 18 months behind schedule. Contractor submitted claims of US$70 million, which were partially accepted.

4. A Port Dredging Project

• Project Overview: A dredging project to deepen port channels in Karachi to accommodate larger vessels.
• Tender Process: Bids were received in 2002, but the lowest bid was deemed too high.
• Execution Challenges:
  • Tender documents introduced risk on bidders due to unclear measurement methods.
  • Lack of geotechnical investigation led to concerns over cost escalation.
  • Legal issues with the harbor mouth delayed the project.
• Outcome: Bids were eventually rejected, and the port authorities decided to manage dredging operations internally.

5. A Motorway Project

• Project Overview: A six-lane motorway project approved in March 1992.
• Tender Process: Only two bids were received, and the lowest bid was awarded.
• Execution Challenges:
  • High costs led to reduction in project scope.
  • Donor agency opposition and political issues caused the project to be canceled.
  • Delays in payment and foreign exchange issues affected contractor performance.
• Outcome: The project was terminated in 1994, with a claim of US$10 million. It was later revived in 1997, and completed by a consortium of local contractors by the end of 2007.

Lessons Learnt

• Payment Delays: Delays in payment of Interim Payment Certificates (IPCs) significantly impacted project progress.
• Tender Process Issues: Inaccurate BoQs and unclear contract terms led to non-responsive bids and increased costs.
• Political and Legal Challenges: Political instability and legal orders (e.g., stay orders) created major obstacles in project execution.
• Design and Planning Constraints: Poor initial design assumptions and lack of geotechnical data led to costly revisions and delays.
• Procurement and Contract Management: The use of "Deferred Payment Models" and reliance on foreign exchange had adverse effects on project timelines and contractor performance.
• Capacity Gaps: There were significant gaps in the capacity of local stakeholders to manage and execute infrastructure projects efficiently.

Key Information

• Government Fiscal Year: July 1 – June 30.
• Currency Equivalent: US$1 = PKR60.70 (February 6, 2007).
• Stakeholders Involved: Government agencies, international and local contractors, consultants, and donor organizations.
• Document Purpose: To provide insights into the challenges of infrastructure implementation in Pakistan and inform future projects.

Conclusion

The case studies illustrate the multifaceted challenges in infrastructure development in Pakistan, including financial, administrative, legal, and technical constraints. These challenges often result in significant delays, cost overruns, and disputes. The findings suggest a need for improved planning, design, procurement processes, and better financial management to enhance the implementation capacity of infrastructure projects in the country.