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MISSION TO ZAMBIA 13 JUNE – 25 JUNE 1998 BY SAMUEL ORWA

Back to Office Report 1.Objectives of the mission 1.1 ILO/ASIST facilitates an annual regional seminar for labour-based practitioners in Sub-Sahara Africa English speaking countries with the objective of exchanging ideas and updating participants on employment – intensive programmes. During the Sixth Regional Seminar held in Uganda, the majority of participants proposed Zambia to be the venue of the Seventh Regional Seminar. The ILO/ASIST BI-annual meeting held from March 15th – 20th 1998 endorsed the choice of the venue. One of the objectives of this mission was to start preliminary arrangements of the seminar by addressing the following issues: Obtaining a formal approval from Zambia for hosting the seminar. A proposal of representatives to form the steering committee. The identification of a focal point for all contacts Discussions and agreement on the draft Terms of Reference for the 7th Regional

Seminar A draft list of topics and presenters. Proposed dates of the seminar. Appropriate venue for the seminar Procedures for contracting out seminar services Seminar fee Proposed number of participants Responsibility of invitation of participants and papers to be presented during the

seminar 1.2. The Government of the Republic of Zambia is implementing the rehabilitation and

maintenance of Feeder Roads Project in Eastern Province with financial and technical assistance of UNDP and UNCDF. The Feeder Roads Project was launched in May 1996 and covers five districts in the province namely: Chipata, Chadiza, Katete, Patauke and Lundazi. The project is working closely with the District Development Project that is undertaking capacity building for the decentralised development planning, and disbursing a US$ 2 million District Development Fund in those districts. The fund is primarily piloting a decentralised format of effecting government financial transfers from the centre to local governments as the most appropriate institutions for effecting development

Mr. John Clifton a consultant conducted a Training Needs Assessment meant to enhance the training programme for District Council Staff (Eastern Province Zambia). My role in the exercise was to participate in two de-briefing meetings facilitated by the consultant.

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1.3. ILO/ASIST has been instrumental in facilitation of study tours between labour -based practitioners within Sub-Saharan Africa with the aim of providing policy makers and practitioners with an overview of how labour-based roadwork projects are implemented and the advantages of the technology. I was assigned the duty of organising a study tour for government officials and contractors from Malawi to Zambia. This entailed the identification and conducting an orientation briefing to the officer who would manage the tour. 1.4. The fourth task of the mission was to conduct a training impact evaluation of KTC International Courses (if time is available).

2. Preparations for the debriefing meeting - 14/6/98

A preparatory meeting was held on the 14/6/98 to discuss the objectives, methodology and contents of the debriefing meeting scheduled for 16/6/98

Present in the meeting were: • Frans Blockhouis • John Clifton • Alfred Sakwiya • Samuel Orwa

3. 1st Debriefing Meeting with Council Secretaries at Chipata - 15/6/98

3.1.Present in the meeting were:

1 Ricardo C. Lupeng District Planning Implementation Advisor 2 Frans Blockhuis CTA-ILO/Feeder Roads Programme 3 Samuel Tembo Engineer-ILO/Feeder Roads Progrmme 4 Samuel Orwa Training Officer -ILO/ASIST 5 Lise F. Mwale Council Secretary - Mambwe 6 J. Sikaziwe Council Secretary - Lundazi 7 H. Hikaanza Council Secretary- Nyimba 8 Andi G. Masanga Council Secretary-Petauke 9 Alfred Sakwiya Project Manager/Feeder Roads Programme 10 John Clifton Consultant – Facilitator

3.2.The objectives of this meeting were:

Brief the District Council Secretaries on the outcome of the consultancy to prepare

for an enhanced training programme for District Council Staff who form the key staff for the Contract Management Units. Solicit the views and input of the Council Secretaries with the objective of arriving at

a consensus.

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3.3 To ensure that the Council Secretaries were fully aware of the consultants role, they were briefed about the rehabilitation and maintenance of Feeder Road Project in Eastern Province and the development of the capacity of the District Councils through an enhanced training programme. The consultant discussed the following topics: Background of the Feeder Roads Project Objectives of the consultancy Methodology and execution of the consultancy Assessment of district capacity and staffing policies District Council staffing policies CMU Structure Technical Assistance

Details of the above listed topics are available in the consultant’s report.

3.4 Attendance and Comments by District Council Secretaries The attendance by the Council Secretaries to the meeting was disappointing. Out of the eight districts in Eastern Province officials from only four districts attended the meeting. These were: Mambwe, Lundazi, Nyimba and Petauke. A notable absentee was the chairman of Chipata District Council where the meeting was held. The poor attendance could be attributed to the apathy resulting from the traditional tendency to exclude district representatives from the decision making process. The participation of the four chairpersons who attended the meeting was quite informative. Below are some of their observations. The funding by the Ministry of Local Government & Housing to the districts is biased

and is sometimes influenced by politicians. Instances have been noted of districts that have misappropriated funds being bailed

out of financial crisis by extra funding. Accountability of the misappropriated funds is not called for. There is acute under-staffing in districts due to low wages, and arbitrary transfers. The Ministry of Local Government & Housing holds the power of transferring staff

with the result that in many occasions, staff are trained and moved to other posts. Some district lack basic amenities that can attract staff e.g. lack of housing,

electricity, clean water. No staff would be prepared to take up such posts. The training that has been given before has not been geared to Council needs. The

same training has not been uniformly co-ordinated.

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3.5 Recommendations 3.5.1 District Staffing Policies Only suitably qualified persons should be appointed to vacant posts. Suitably qualified persons should be recruited as follows: Staff receiving training in whatever discipline should not be transferred from the

posts upon which the training is focused within a certain agreed period after the end of training. Individuals finishing training should be bonded in specific posts for an agreed period after completion of training.

The practice of transferring of personnel simply to put someone, (anyone) in post

should cease. Efforts should be made to examine the revenue base, collection and financial

management procedures of districts and undertake training where necessary. Appropriate financial management systems should be implemented.

The Ministry of Local Government and Housing should examine district duties and

revenues to establish adequate support to complement district revenue collection for an agreed establishment and compensation of workers.

Existing staffing establishments should be reviewed to establish exactly which posts

are necessary on a full time basis and arrangements should be made for retrenchment of other staff. The Ministry of Local Government & Housing should examine procedures for retrenchment and compensation of workers.

3.5.2 Contract Maintenance Unit- Structure (CMU)

Concentration of effort should focus upon the establishment of a ‘basic’ CMU

structure in each district, using the existing staff. Only in case of proof of ability should the ‘the full’ CMU structure with

responsibility for management of rehabilitation and maintenance contracts, be established. Likewise, intra-district responsibility should only be assumed after district capability can be demonstrate

The Director of the CMU should, at this stage, be the Director of Works.

Consideration should given as to whether in principle it is necessary for district

CMUs to have capacity for the relatively higher demands of rehabilitation contract preparation, when local consultants have been developed by the project for exactly this function

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3.5.3 Training Training should be concentrated on district staff in post rather than be dependent on

possible new recruitment. The Director of Works should receive broad road network management training with an emphasis on contract management while previous trained personnel should receive further refresher training.

Existing course materials should be used with modification as necessary for the

Zambian situation. Efforts should be made to increase awareness in senior district staff involved in the

project. Additional short training courses and workshops in practical topics should be

arranged by Feeder Roads Programme to be carried out in Eastern Province. Training of district personnel should ideally be considered as a whole; sector based

training should be integrated into a comprehensive district training plan. 3.5.4 Technical Assistance

A District Capacity Development Specialist should be recruited as an additional

member of the TA team as soon as possible and preferably before the onset of the rains in November 1998. The rainy season is suggested as an optimum time for commencement of additional formal training for some district personnel. An assignment of 18 – 21 months is proposed.

The situation of the National Engineer currently on extended sick leave should be

examined and at least a short-term replacement posted with dispatch. Trained district staff must be exposed at least to maintenance contract preparation by

means of involvement alongside Technical Assistance personnel and/or ‘internship’ with Project Management Unit.

As soon as possible Feeder Roads Programme should withdraw from a line function

in contract preparation and assume the role of advisor/mentor. Every effort should be made to expedite local consultancy development so as assume

early responsibility for rehabilitation contract preparation by these consultants. 3.5.5 Conclusion The meeting resolved that the findings of the consultant and discussions at the workshop should be communicated to the Ministry of Local Government and Housing and other relevant authorities for further action.

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4.0 2nd Debriefing Meeting - Lusaka 18/6/98 4.1 Present at the meeting: Name Organisation Title

1 J. C. Charlie UNDP Programme Officer 2 N. Gananadha National Roads Board Executive Secretary 3 C. H. Hedstrom Roads Training School Project Co-ordinator 4 T. Stenstrom ILO/ASIST Technical Advisor 5 Rod Stephens GITEC (Feeder Roads) Team Leader 6 Samuel Orwa ILO/ASIST Training Officer 7 Raymond A. Jhala National Roads Board Chairman 8 C. Mulombo Min. of Local Government & Housing Senior Engineer 9 B. Hunnestad Min. of Works and Supply Institutional Planner 10 F. Blockhuis ILO/UNDCP Chief Technical Adviser11 C. P. Mushota Roads Training School Principal 12 Jens P. Dyrbak ILO Programme Officer 13 Levi Zulu Association of Consulting Engineers of

Zambia Consultant

14 John Clifton Consultant 4.2 Objective The objective of this meeting was to inform the policy makers of the outcome of the training consultancy including the points raised during the meeting with Council Secretaries in Chipata on 15/6/98. 4.3 Result The participants were briefed about the background of the Feeder Roads Project (Eastern Province) and recommendations arising out of the consultancy. At the end of the meeting the core problem was identified as the need for institutional reform of the district CMUs. The meeting further endorsed the proposal that there is need to make a concerted effort by donor representatives to influence the government towards reformation of the district organisation. An action plan to achieve this goal would be worked out. 5.0 Consultative Meetings in Preparation for the 7th Regional Seminar 5.1 Courtesy Call at the ILO Area Office On the 17th June 1998 we paid a courtesy call on the ILO Area Director and briefed him on objectives of our mission. He expressed interest in the proposed study tour from Malawi to Zambia and requested that when arrangements have been made, he should be informed of the tentative programme, as he would be travelling to Malawi on the 29/6/98.

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5.2 Briefings at the MOLGH, MOW& S, RTS, NRB and NCC On 17/6/98 Mr Stenstrom and I attended a briefing meeting at the Roads Training School where we were informed that the authorisation to hold the seminar in Zambia had still not been granted. On 19/6/98 the official letter of authorisation was received from the Permanent Secretary, Ministry of Works & Supply. This enabled us to initiate arrangements for a meeting to discuss the formation of a steering committee and study the draft of the “Terms of Reference” for the seminar. The meeting was scheduled to take place on 23/6/98 at the Roads Department Headquarters. It was agreed that participants to the meeting would be contacted on 22/6/98. Before the meeting took place, discussions were held with officials of the Roads Training School, Ministry of Works & Supply, Ministry of Local Government & Housing, National Roads Board and National Construction Council. The aim of these meetings was to: Inform key officials on the background and objectives of the 7th Regional Seminar Source participants who would form the Steering Committee for the seminar Brief officials on the objectives of the study tour from Malawi to Zambia Source a Tour Guide/Organiser to undertake the management of the tour from

Malawi. Obtain information of the responsibilities of these ministries and boards.

6.0 Information on Ministries and Boards/Councils 6.1 Objective To facilitate preliminary arrangements for the 7th Regional Seminar it was necessary to obtain information regarding the responsibilities of the relevant ministries and bodies, which would form the steering committee. These included the Ministry of Works & Supply, Ministry of Local Government & Housing, National Roads Board and National Construction Council. Below is a brief outline of the functions of these organisations. 6.2 Ministry of Works and Supply This is the ministry responsible for: Trunk roads Maintenance of government buildings Roads Training School (Training for both MOWS & MOLGH)

6.3 Ministry of Local Government and Housing This ministry is responsible for: Feeder Roads Urban Roads Rural Travel and Transport programme Urban Infrastructure Unplanned-settlements etc Water and Sanitation Housing

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6.4 The National Roads Board The board has two functions: Policy formulation Funding agency for all roadworks

6.5 National Construction Council This is a private body that caters for the interests of all organisations in the construction industry. The interests include issues related to contracting, financing, standards, and technology. 6.6 Road Classifications in Zambia T- Trunk roads D- District roads F- Feeder roads U- Unclassified roads C- Community roads.

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23 June 1998: Meeting to form a Steering Committee for the 7th Regional Seminar

7. Present at the Meeting:

1. Mr. C. P. Mushota Principal Roads Training School 2. Mr. C.E Hedstrom Project Co-ordinator Roads Training School 3. Mr. E. Chilundika Provincial Roads Engineer Min of Works 4. Mr. John Eie Technical Advisor Roads Training School 5. Mr. D. Mulonga Executive Engineer Roads Training School 6. Mr. S. Orwa Training Officer ILO/ASIST 7. Mr. C. Mulomba Senior Engineer MOLG&H 8. Mr. C. H. Mhango Director Planning MOW& S

7.1 Objectives of the meeting To provide information on the purpose and background of the seminar To form the Steering Committee To study the Terms of Reference and make appropriate recommendations To draw up an Action Plan for activities leading up to the Seminar.

7.2 Agenda for the Meeting Information on the theme of the Seminar Information on official approval to hold the seminar in Zambia Representation in the steering committee Terms of Reference Number of participants for the seminar Proposition of list of topics and presenters Seminar hosts Seminar organisation Funds for preliminary seminar preparatory activities Contracting of seminar Services Propose seminar dates Proposed venue Proposed field sites for visits during the seminar Focal point for the seminar secretariat services Proposed seminar fees Preparation of letter of invitation Action plan

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a Information on the Theme of the Seminar The background and purpose of the seminar was explained as contained in the Draft Terms of Reference minute 2.1. The participants were informed that the theme of the Seminar is “Contractor Development in Employment Intensive Works” and is concerned with addressing contracting issues in construction and maintenance of roads, urban infrastructure and Rural Travel and Transport. Participants noted that the broad theme could necessitate additional days for the seminar. It was agreed that with a careful balance of topics and application of an appropriate methodology of presentation, it is possible to cover all topics adequately.

b Information on Official Approval to Hold the Seminar in Zambia

The meeting was informed that the PS, Ministry of Works & Supply, had granted official permission to hold the Seminar in Zambia.

c Representation in the Steering Committee. After a series of consultations, the Steering Committee was formed comprising staff from the Ministry of Works and from Ministry of Local Government and Housing. The National Roads Board and the National Construction Council are Associate Members of the committee. All members participated in this first meeting with the exception of the Director of Planning who was absent with apology.

d Terms of Reference The Terms of Reference has clearly defines the roles of the three parties involved in the seminar preparations, namely, the Committee, the Consultant and ILO/ASIST. The Committee will have one Co-ordinator who will delegate functions and work collectively with the other members. He is also responsible for convening meetings as required.

e Seminar Hosts The Zambian Ministry of Works and Supply will host the Seminar in collaboration with the Ministry of Local Government and Housing.

f Seminar Organisation The responsibilities for the seminar are divided between three sub-organisations, namely Steering Committee, Consultant and ILO/ASIST. The meeting studied the functions carefully and noticed that the timing of starting the consultancy was not indicated. The meeting recommended that functions such as booking of hotels could be accomplished through a travel agent. Invitation of participants by contracting a competent individual within the government set-up to undertake the role. This would be much cheaper than engaging a consultant early when no funds have been raised to cover such costs.

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g Funds For Preliminary Services The question of how to defray costs of services like telephone, e-mail, fax and invitations arose. It was recommended that if invitation should be sent out to participants requesting them to pay early to reserve seats. This approach could provide the much-needed funds. The Committee will further pursue the matter since it is a pre-requisite for urgent execution of seminar services. Also an early payment by ILO ASIST participants was suggested to enable the committee to raise some starting capital.

h Proposed Seminar Dates After examining all the major training and conference in labour based works, the meeting recommended that the 7th Regional Seminar should take place in early May, 1999. This would give the recommended presenters adequate time of 10 months to get all the arrangements in order.

i Proposed Seminar Venue

There are three possible alternatives for the choice of venue namely; Chipata, Livingstone and Lusaka. Chipata has a major contractor development project on rural roads, but the town lacks the capacity to accommodate participants attending the 7th Regional Seminar. It has no sites to offer for urban infrastructure and Rural Travel and Transport activities. Livingstone is a reasonable choice but the one good hotel with conference facilities has been sold to developers and is currently closed for re-development. The venue also is limited with regards to urban infrastructure programme or Rural Travel and Transport. Lusaka is therefore the only town with adequate accommodation facilities and capacity to offer demonstration sites for both rural roads and urban infrastructure development programmes. The Rural Travel and Transport programme is new and was only launched recently in the country. The meeting therefore recommended Lusaka to be the venue. An early confirmation on the venue is important since many issues regarding the seminar preparation will be determined by this information.

j Focal Point for the Seminar Services

The Roads Training Centre was chosen to be the focal point for the seminar. The Executive Engineer and counterpart of the Project Co-ordinator Mr Mulonga was appointed to be the chairman and contact person for the steering committee. The institution would soon undergo reconstruction but it will offer one cabin complete with telephone, e-mail and fax services to be used as an exclusive office for the preparation of the seminar.

k Proposed Number of Participants

The meeting recommended that owing to the wide theme of theme of the seminar there might be an extra demand for participation from other sectors, other than roads. A total number of 120 participants were endorsed as a good limit.

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l Proposed List of Topics/ Presenters The Committee recommended that it would require about one week from the date of this meeting to source for suitable topics from various stakeholders such as the National Roads Board, the National Construction Council, the Urban Infrastructure Department (MLGH) and the Rural Travel and Transport Sector. It would equally come up with a list of proposed presenters, which would be e-mailed to ASIST for approval. It was agreed that this information would be available by 10th July 1998.

m Proposed Seminar Fee

The Terms of Reference has detailed the methodology of arriving at a reasonable fee. Quotations would therefore be sent out to seminar contractors/consultants and the results would be worked out to decide on a proposed fee. Since the figure is required urgently it was recommended that by 10th July 1998 the proposal should be sent to ILO/ASIST.

n Preparation of Letter Invitation

The participants were shown a sample copy of the letter of invitation. To draw up a draft letter of invitation, the following points should be urgently addressed: • Venue of the Seminar • Fees for the Seminar • Accommodation details • Papers to be presented • Time Table • Demonstration/Field Site • Registration Form

a Budget for the 7th Regional Seminar Recommendation was made that since the budget would depend highly on the price- level of the host country, a more realistic idea of the costs could be obtained by inviting quotations from a consultancy firms as specified in the draft Terms of Reference.

b Action Plan

The Committee worked on the plan of action on issues that need urgent attention - by the end of 1998 December. Further details of the Action Plan from January, 1999 will be drawn by the committee before the end of the year. The following is a plan of action up to December 1998.

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p Action Plan for activities leading to the 7th Regional Seminar Activity Who is responsible

for action By when

Appoint organising committee Host Agree on seminar dates and topics Host/ILO ASIST Mid July Prepare TOR and shortlist consultants Host Mid July Arrange and install international telephone line, fax and e-mail facilities

Host

Prepare a draft invitation letter Host/ASIST Mid August Prepare mailing list of potential participants

Host/ASIST Mid July

Engage consultant/firm Host Agree proposed budget and seminar fee with ASIST

Host 10th July

Commission keynote paper and ask for other papers

Host/ASIST End of July

Confirm invitation list with ASIST Host Before mid August Send out invitation letters Consultant Open an account for seminar funds Consultant As soon as possible (not later

than August) Book venue and book conference facilities

Consultant End of July

Book for provisional hotel accommodation

Consultant August/September

Confirm progress Host/Consultant Draw up seminar programme Host Mid August Notify ASIST of installation of fax/Phone

Host

Identify and invite VIPs Host 1999 (dates to be set) Arrange field visit sites Host March 1999 Compile field visit handouts Host/Consultant (to be

advised) March 1999

If necessary, have pin boards made Consultant } Purchase expendable materials Consultant } Notify organising committee of participant status

Consultant }1999 (Exact dates to set by committee }

Send papers to ASIST for moderating Host/ASIST } }

Arrange catering Consultant } Arrange transport Consultant } Arrange social functions Consultant } Notify organisers/ASIST participant Consultant } Approve papers ASIST }

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Select and appoint chairpersons Host } Print and mail papers to participants Consultant }

} Notify ASIST of organisational Consultant } Make up welcome pack Consultant } Arrange publicity Consultant } Recruit/appoint seminar auxiliary staff Consultant } Early

} 1998 Check availability of facilities at conference centre

Consultant/host } }

Check that all visualisation equipment are in working condition

Consultant } }

Organise registration/payment Consultant } Equip office/meeting room Consultant } Conduct the seminar Host } Compile proceedings Consultant } Publish proceedings Consultant } Pay consultant for proceedings ILO/ASIST } 8. Study Tour from Malawi to Zambia 8.1 Objective The arrangement of the study tour from Malawi to Zambia was one of the mission objectives. The Ministry of Local Government & Housing was approached to conduct the tour. The objectives of the tour are: ♦ To hold discussions on the Contractor Training Programme at the Road Training

School. ♦ Obtain information on the Contract Management Development Process. ♦ Visit the labour-based roads constructed and maintained by contractors. ♦ Obtain information about the functions of the National Roads Boards and the National

Construction Council Mr C. Mulambo was appointed by the ministry to manage the tour. A tentative programme was made for comment. The tour is programmed to take place from the 9/8/98 - 14/8/98. During the mission the Tour Guide was briefed on the preparation and management of study tours. A copy of the briefing note is appended herewith: 8.2 Background information on study tour management A study tour is a learning event designed with the purpose of passing information and experiences to clients. This requires timely arrangement of sufficient information sessions in the programme which includes selection of resource persons, preparation of itinerary, and study materials. Social events like visits to game parks, historical sites and cultural centres are included in the programme to offer an alternative educational awareness and to provide a break from routine.

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To facilitate effective participation during field visits participants should be divided into groups. Each group should be furnished with questionnaires that would guide them to obtain answers by interviewing specific individuals during the field visit. At the end of the visit they report and discuss their findings in a plenary session. Study Tour Guides should be carefully selected from a group of persons with comprehensive knowledge of the subject of the tour and ability to co-exist comfortably with people of different professional and cultural backgrounds. Popular recommendation is that study tours should be arranged for a two-week duration, but this would largely depend on the objective, time and funding available. 8.3 Preparatory Functions Furnish the organisers with tour objectives in advance to enable them design the tour

according to the clients’ study need. Arrange tour budget and inform participants’ co-ordinator. Arrange for finances to be used during the tour after budget approval. Forward names of the tour participants to the organisers at least three weeks earlier to

facilitate clearance where appropriate Arrange safe travel insurance for the participants. Make room reservation at a suitable hotel a month earlier. Make appointments with resource persons one month before the seminar. Provide

them with the specific objectives to enable them to prepare relevant presentations Prepare a tour programme showing activity, venue, and time and if possible send a

copy to the tour participants. Arrange reliable, comfortable and affordable transport. Make appointments with organisations responsible for social events i.e. cultural

centres, historical sites or game parks. Ensure that participants inform the organisers in advance of their exact arrival time

date and point of entry. 8.4 Executive Functions Timely collection of guests from the airport, bus stop or border-point. Briefing and induction of guests on arrival. Administering the tour according to the programme and budget. Taking notes of proceedings during the tour. Taking photographs of relevant events and sites. Confirming air tickets a week earlier before departure from the country. At the end, evaluate the tour to find out what the participants have gained from it and

what improvements can still be made. Arrange a social evening if time/finances allow. A lot of feedback is sometimes

gained spontaneously during informal occasions. Farewell and safe departure for all participants

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8.5 Post Tour Functions Accounting for the finances used during the tour. Analysis of the tour (administrative and financial) Compiling a report of the tour and forwarding the same to relevant authorities.

9.0 Conclusion The objectives of the mission were fulfilled due to the co-operation and support from the officials of the Ministry of Local Government and Housing, the Roads Training School, and Ministry of Works & Supply. Due to limitation of time the training impact evaluation of participants who had attended courses at KTC could not conducted. Recommendation is that the exercise should be programmed separately since it requires prior appointment and travelling. The following mission objectives will continue to be attended to: ♦ The preparation of study tour programme and budget by Tour Guide, Ministry of

Local Government & Housing in consultation with ILO/ASIST. ♦ The completion of the final report by the consultant Mr. John Clifton who conducted

the Training Needs Assessment in Eastern Province Zambia. ♦ The endorsement of the proposed seminar date & venue by ILO/ASIST to enable the

Steering Committee of the Regional Seminar to proceed with further arrangements. There will be regular consultations with Ministry of Local Government and Housing and Ministry of Works and Supply (Zambia) on the arrangements of the Study Tour and the Regional Seminar. :

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