Updated Project Information Document (PID)

Transcription

1 Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Updated Project Information Document (PID) Report No: Project Name MOZAMBIQUE - Beira Railway Project Region Africa Regional Office Sector Railways (100%) Theme Other financial and private sector development (P); Other public sector governance(s) Project P Borrower(s) GOVERNMENT OF MOZAMBIQUE Implementing Agency(ies) CFM Address: Caixa Poatal 2158 Praca dos Trabalhadores, Maputo, Mozambique Contact Person: Mr. Rui Fonseca Tel: 258 (1) Fax: 258 (1) ruifonseca@cfmnet.co.mz Environment Category B (Partial Assessment) Date PID Updated September 18, 2004 Auth Appr/Negs Date June 21, 2004 Bank Approval Date October 14, Country and Sector Background Mozambique has sustained a high economic growth rate since achieving peace in 1992, mainly due to the transformation of a centrally planned state-controlled economy into a market-oriented one. As a result of peace, democracy, liberalization, and prudent monetary and fiscal policies, Mozambique s GDP growth rate has been well above the average for Africa. Growth averaged 9% per annum from 1997 to 2002, and is projected at between 7% and 12% annually until However, continued economic growth will require, among other actions, improvements in basic infrastructure and reduction in impediments to private sector growth. Mozambique is highly dependent upon regional trade and investment flows and regional developments can significantly influence the pace and sustainability of its own development. In 1999, Mozambique ratified the Southern Africa Development Community (SADC) trade protocol, which aims to establish a free trade area in southern Africa, both reflecting GOM s importance to regional integration and giving it greater momentum at the same time. Effective functioning of the transport sector - roads, railways, airports, and seaports in the country and, in particular, within the Maputo, Beira and Nacala corridors (which are part of the development strategy for regional integration of SADC) is critical for maintaining the momentum of regional integration and for managing the increased interdependence between Mozambique and its neighbors.

2 However, in spite of some improvements in the recent past, the transport sector is still characterized by: (i) high freight transport costs; (ii) unpredictability of railway operations due to heavy detention of wagons in neighboring railway systems; (iii) inability of public sector entities in the transport sector to generate enough surplus to keep their assets in a good condition; (iv) inadequate condition of the rail and road infrastructure because of various causes including inadequate and irregular flow of funds for maintenance; (v) slow change due to poor incentives structure and cumbersome rules and procedures; and (vi) high rate of accidents, particularly on roads, mainly due to inadequate safety consciousness, poor safety training, and inadequate enforcement of safety and environmental regulations. To address these issues, GOM is in the process of implementing wide ranging reforms in the transport sector. The reforms in the roads sub-sector include separating funding and planning functions from execution of works, establishing the Road Fund as an autonomous legal entity, and strengthening the capacity of the agencies responsible for undertaking and monitoring road works. In the railways and ports sub-sectors, the reforms have focused on involving the private sector in the management and operation of railways and ports with a view to mobilizing private capital and improving efficiency of operations. However, the reforms have yet to impact the central region of Mozambique, where poor transport connectivity of the areas located along the Zambezi river to the port of Beira has adversely affected the growth of the region and slowed regional trade and investment flows. In the past, the main transport system for the central region in Mozambique was the Sena Railway Line, which carried coal, wood, cotton, fertilizer, cement, sugar, limestone and miscellaneous agricultural products. The Sena Line is about 600km long and passes through the provinces of Sofala and Tete and additionally has a significant economic influence over Zambezia province. Overall, the line impacted a population of over 4.0 million. However, in 1983, the line had to close and discontinue operations due to extensive damage during the war. Since then, in the absence of appropriate transport systems, poor inhabitants are forced to walk miles to reach markets and to satisfy social obligations. As a result of the lack of transport infrastructure, development of any kind of business, even agri-business is proving difficult. If rehabilitated, the Sena Line would have a significant impact on improving accessibility of this area, particularly the eastern part of the district of Gorongosa, northwestern part of the district of Cherigoma, and southeastern part of Moatize. It would also re-establish Malawi s rail access to the Port of Beira and provide an alternative multi-modal (road/rail) route for international traffic from Zambia to the port of Beira. The rehabilitation of the Beira Railway System is, therefore, considered a critical priority for the Government and GOM is keen to do so through the involvement of the private sector in both the rehabilitation, operation and management of the system. Efficient operation of the Beira Railway System is expected to create economic activities through increased production of coal, wood, cotton and other agricultural products in the area and to increase the incomes of inhabitants through higher consumption and investment.

3 The process to identify an experienced private entity for the Beira Railway System, which commenced three years ago, has already been concluded and a 25 year concession agreement with the consortium comprising RITES and IRCON of India was signed on August 30, The concessionaire will have the responsibility to first rehabilitate the Beira Railway System and then operate the same for the rest of the concession period. The project is being supported through a high share of public funding as the region has a weak economic base, which means that it will take time for the economic development of the region, for the traffic to build up, and for the system to become financially selfsufficient. However, the substantial expected economic benefits justify the rehabilitation of the line. The proposed rehabilitation of the Sena Line would be adequate to enable it to carry all the available and projected freight and passenger traffic including any coal that may be produced and exported using the current technology. Plans are also underway to concession the Moatize coal mines to the private sector, though the process of concessioning and development of the coal mines and the actual availability of coal for export could take between 8-10 years. While the quantity of coal that could actually be mined and exported is still to be ascertained, there are indications that this could amount to between 3 and 5 million tons per year. The Sena Line rehabilitation, as currently planned, with some additional capacity enhancing investments, would enable the additional quantities of coal, i.e., up to 5 million tons, to be transported efficiently and as per the requirements of the coal concessionaires. In case the coal concessionaire decides to increase coal production and export beyond the present indications, the increased quantities could also be carried with further incremental investments but without any fundamental change in the track infrastructure design. The Beira Railway Concession design makes adequate provisions for negotiations among the potential coal mine concessionaire, the rail concessionaire, and the GOM to agree on the standards and the terms and conditions necessary to satisfy the requirements of the additional traffic. However, the restoration of the Sena Line does not preclude the consideration of alternative means of transporting the coal, such as by barge transport along the Zambezi river, depending on the actual quantity of coal to be transported and the comparative cost advantage. Government Strategy for the rail sub-sector The Government has initiated a number of reforms in the past few years to improve the operation and maintenance of the railways sub-sector, with a particular focus on: (a) Facilitating large scale involvement of the private sector in the operation and management of all ports and railways; (b) Supporting rationalization of the CFM staff including retrenchment of surplus staff. In 1996, CFM had close to 19,200 staff. The retrenchment of surplus staff of CFM is proceeding smoothly and a total of 11,300 staff has been retrenched so far; retrenchment of another 2,300 staff has been initiated and would be completed by December After all the concessions have been operational and the necessary staff transferred, CFM will be left with about

4 2. Objectives 500 core staff. The social mitigation measures for the retrenched staff are being implemented satisfactorily; (c) Comprehensive restructuring of CFM involving: (i) separation of strategic, corporate and regulatory functions from day-to-day commercial and operating functions; (ii) making the headquarters and the zonal units lean and thin; (iii) replacing traditional railway skills in the headquarters with specialized legal, financial, institutional and corporate management skills; (iv) increasing accountability through well structured performance contracts between GoM and CFM; and (d) Making compliance with the environmental and safety standards a part of the concession agreement as well as strengthening safety and environment related regulation. The main development objectives of the proposed Project are to: (i) make cost effective and efficient transport available for the freight and passenger traffic in the Zambezi Valley to accelerate economic growth in the sub-region; (ii) increase international traffic through the Beira Railway system; and (iii) improve the operational, managerial and financial sustainability of the Beira railway system. 3. Rationale for Bank s Involvement The Bank Group is ideally suited to help the Project. It can provide not only full-service policy advice, but also complementary instruments to support implementation. Through its long-standing association with Mozambique, IDA has developed a deep knowledge of the country s transport sector and is well positioned to support the implementation of Government s transport reform program in continuation of its extensive involvement in the sector in collaboration with other Development Partners. Within the region, IDA is supporting, or has supported in the past, similar restructuring, revitalization and privatization projects in the railway sector in neighboring countries of Malawi, Zimbabwe and Zambia and is in a position to help Mozambique as well as the neighboring countries reach a common understanding for the efficient management of the rail corridors in the region. World wide, IDA has by now accumulated substantial experience in designing successful concessions for railways ranging from the high-trafficked Latin American railways to the relatively lower-trafficked African railways. IDA is therefore in a position to: (i) provide financial and technical advisory services and add value related to risk allocation between the conceding authority and the concessionaire; (ii) internalize regulatory issues into the concession contracts; (iii) mitigate negative environmental, social, and safety impacts; (iv) minimize emerging post-privatization issues through appropriate contract design; and (v) promote workable dispute settlement mechanisms.

5 IDA is already supporting the on-going Railways and Ports Restructuring Project (RPRP) in Mozambique whose main development objective is to improve the operating efficiency of the three major railway and port systems of Mozambique, namely the Nacala, Beira and Maputo port-railway systems, through the involvement of the private sector in their rehabilitation, operation and management, and through staff retrenchment and rationalization in the CFM. The ports of Beira and Maputo are already being operated by concessionaires and concession agreements have been signed for the Nacala port-railway system and the Ressano-Garcia railway line between the port of Maputo and South Africa. The retrenchment of CFM s surplus staff and their social rehabilitation is proceeding well. A total of about 11,300 staff have been retrenched, and another 2,300 are in the process of being retrenched. After completion of the staff rationalization program, including transfer of needed staff to the concessionaires (approximately 5,000-5,500), CFM will be left with a total of about 500 staff, down from the original total of 19,200. Preparatory activities leading up to the concessioning of the Beira Railway System were supported by IDA under the RPRP and the proposed Beira Railway Project will support its implementation and in particular assist GOM in meeting its financial commitments under the concession agreement. Although economically justified, the rehabilitation of the Sena Line would not be financially viable through purely private sector financing and without financial support from GOM. 4. Description Project Description Background. GOM, supported by the on-going Railways and Ports Restructuring Project, has awarded the concession of the Beira Railway System to a consortium of Messrs. RITES and IRCON of India. The consortium was selected following an international competitive bidding process consistent with the Bank guidelines. The period of the concession is 25 years. The selected consortium has already registered and incorporated the concession company called Companhia dos Caminhos de Ferro da Beira, S.A.R.L (CCFB) on July 29, 2004, and the concession agreement (Concession Agreement) between GOM and CCFB has also been signed on August 30, As the Machipanda Line is currently operational, CCFB will be able to continue operations and undertake rehabilitation works on the line in parallel. For the Sena Line, however, operations would be resumed in stages. The rehabilitation works would be taken up first, and as the line becomes fit for operations, operations would be resumed on the rehabilitated sections. The rehabilitation of the whole line will be completed within a period of four years according to clearly defined standards and schedules specified in the Concession Agreement. The concession fees will comprise: (a) an entry fee of US$2.00 million payable on takeover; (b) an annual fixed fee of US$1.0 million from year 11 to 25 (included); and (c) an annual variable fee assessed as 3.0% of CCFB s gross revenue for traffic up to 300 million net-ton-kilometers and 5% between 300 million and 1 billion net ton kilometers, and 7.5% for traffic over 1 billion net ton-kilometers. The Concessionaire shall ensure that the railway infrastructure is developed in such a manner that it has the capacity to handle the potential coal traffic subsequent to operationalization of the proposed coal concession, through appropriate contractual arrangements with the coal

6 concessionaire on the basis of successful negotiations with the coal concessionaire and the Conceding Authority. Project Components. The Project will have the following three main components: Component 1. Rehabilitation of the Sena Line. This component comprises rehabilitation, maintenance and operation of the Sena Line in accordance with the terms of the Concession Agreement. IDA funds will be used exclusively to finance part of the expenditures related to the rehabilitation of the Sena Line and its spur lines, totaling 600 km. The component includes project management and environmental and social enhancement measures. Component 2. Rehabilitation of the Machipanda Line. This component comprises rehabilitation, maintenance and operation of the Machipanda Line (approximately 300 km) in accordance with the terms of the Concession Agreement. This component will be financed fully by the concession company (CCFB), except for project management costs during the project implementation period which will be financed by IDA under Component 1 above. Component 3. Institutional Strengthening. This component comprises provision of technical assistance, training and consultant services to CFM so as to enhance its capacity to oversee implementation of the project, implement its restructured functions, supervise the construction and rehabilitation works, facilitate independent technical and financial audits, conduct transport sector studies, and prepare its long term railway and ports development plans. The total project cost is $158.0 million exclusive of VAT and customs duties, of which IDA will finance $110 million equivalent, or about 70 percent. 5. Financing Source Total ( US$m)) Borrower 0.00 IDA Concessionaire Total Project Cost: Implementation The institutional and implementation arrangements are discussed below: The management of rehabilitation of the Sena Line will be separated from its subsequent operation and maintenance and that of the operation and maintenance of the Machipanda Line. As far as operations and maintenance of the two lines is concerned, it will be the sole responsibility of the Concessionaire. Machipanda Line is currently operational and CCFB will commence operations on the line from day one after takeover, and rehabilitate the line and liquidate the backlog of maintenance while continuing operations.

7 The main institutions and entities proposed to have a role in the project include: (i) The Concession Company (CCFB), established by the winning bidder together with CFM (with the shares being held in the ratio of 51:49); (ii) The Joint Venture Company (RICON), formed by CCFB to provide Project Management Services; (iii) Project Implementation Unit (PIU), established by CCFB to supervise construction works; (iv) CFM, whose role would be two-fold, one as a 49% equity shareholder in the concession company, and two, as a representative of the conceding authority to monitor the Concessionaire s compliance with the terms of the Concession Agreement and maintain an account of all fixed infrastructure and mobile assets conceded or leased to the Concessionaire; (v) Independent Supervision Engineer, engaged by CFM to certify, inter alia, quality and quantity of completed works during the rehabilitation period; and (vi) The Regulatory Body, which is proposed to be established sometimes later. Very little economic regulation is required for the rail and port sectors. Even so, GOM is considering setting up a regulatory body for the whole transport sector to ensure that issues of unfair practices and monopoly abuse, if raised by the users or providers of transport services, are appropriately addressed. The body could also have responsibility for technical, safety and environmental regulation. Technical assistance for establishing the regulatory body is being financed through RPRP. 7. Sustainability The long-term sustainability of the Beira Rail System in Mozambique would be considerably enhanced under the Project because of: (a) the involvement of the private sector in the rehabilitation, operation, and management of the system, which, as per the experience so far, should lead to improved management and establishment of a more effective system of incentives and accountability; (b) a long concession period, 25 years, which will allow the Concessionaire to implement long-term strategies for improving and sustaining performance; (c) addressing the implementation issues early in the project cycle and articulating in sufficient detail the obligations of both the Concessionaire and the Conceding Authority as well as the consequences of non-performance on either side in the Concession Agreement so as to preempt any possible disputes and legal action; (d) detailed advance planning: and (e) strengthening the institutional capacity of the Conceding Authority in project management, quality control, environmental management, safety regulation and monitoring and evaluation. The Concessionaire s financial model indicates an expected rate of return on equity of 17% and that should sustain the concessionaire s interest in the concession and, consequently, the continued efficient operation of the Beira Rail System. Furthermore, the Sena Line will have a great impact on the provinces of the central region (Sofala, Tete, and Zambezia), which are directly served by this line or are within its area of economic influence. Excluding the population of Beira, about 1.26 million people living directly along this line will see their socio-economic development prospects greatly improved. In the long-term, the operation of the line would enhance investor confidence and interest to participate in the coal concessioning and other business ventures, thus generating sustainable employment opportunities. The long-term sustainability of the Beira Rail System in Mozambique would be considerably enhanced

8 under the Project because of: (a) the involvement of the private sector in the rehabilitation, operation, and management of the system, which, as per the experience so far, should lead to improved management and establishment of a more effective system of incentives and accountability; (b) a long concession period, 25 years, which will allow the Concessionaire to implement long-term strategies for improving and sustaining performance; (c) addressing the implementation issues early in the project cycle and articulating in sufficient detail the obligations of both the Concessionaire and the Conceding Authority as well as the consequences of non-performance on either side in the Concession Agreement so as to preempt any possible disputes and legal action; (d) detailed advance planning: and (e) strengthening the institutional capacity of the Conceding Authority in project management, quality control, environmental management, safety regulation and monitoring and evaluation. The Concessionaire s financial model indicates an expected rate of return on equity of 17% and that should sustain the concessionaire s interest in the concession and, consequently, the continued efficient operation of the Beira Rail System. Furthermore, the Sena Line will have a great impact on the provinces of the central region (Sofala, Tete, and Zambezia), which are directly served by this line or are within its area of economic influence. Excluding the population of Beira, about 1.26 million people living directly along this line will see their socio-economic development prospects greatly improved. In the long-term, the operation of the line would enhance investor confidence and interest to participate in the coal concessioning and other business ventures, thus generating sustainable employment opportunities. 8. Lessons learned from past operations in the country/sector Lesson 1: Massive investments in infrastructure, locomotives, rolling stock, and communication systems have generally been ineffective in improving reliability or efficiency because the investments were not always directed at removing the most critical constraints associated with public sector management and operation of complex railway systems. The proposed project, therefore, links the financial support to the project to the participation of the private sector through concessioning in the Beira Railway System. Lesson 2: Financial closure after award of the concession, in many instances, has taken unduly long, hence, causing costly delays in takeover of the concessioned assets. To avoid this in the proposed project, firm commitments from financing institutions or the concessionaire were specified as necessary conditions for qualified bids for the Beira Railway System concession. 9. Environment Aspects (including any public consultation) The Sena Line rehabilitation work involves only two main environmental issues and both have been resolved. The first pertained to the use of wooden sleepers, which would have affected the hardwood forests in Mozambique. A decision has been taken to use only concrete sleepers except at a very few locations where non-standard sleepers need to be

9 used. The second issue pertains to the de-mining of the right-of-way along the railway line, which is being addressed in collaboration with the National De-Mining Institute. An environmental study was conducted to formulate an Environmental Management Plan (EMP). The Environmental Management Plan (EMP) and a separate Resettlement Action Plan (RAP) have been disclosed in Bank s Infoshop (June 18, 2004) and have been widely distributed in the project area on June 11, As part of the Safety, Health and Environmental (SHE) and social supervision arrangements for the implementation of the EA/EMP and the RAP, it has been agreed with CFM that an operational, viable and lean Inspectorate would be consolidated and strengthened as soon as possible. This Inspectorate will be based within CFM, but may be transferred to the Ministry of Transport at a later stage, since the Government of Mozambique is legally responsible for SHE oversight. The Inspectorate s SHE staff will be supported through an on-the-job training executed by experienced Mozambican consultants over a two year period. Together they will visit the project sites. During the second year, the support of the consultants for SHE monitoring of the Sena Line will be reduced to one week per month. After the construction is finished, a yearly independent SHE audit will be executed, commissioned by CFM. The Concessionaire will establish its own SHE unit, which will supervise the contractor on a daily basis during construction and which would be responsible for SHE issues during operations. The unit will be assisted by a consultant engaged by CFM to support the CFM/SHE activities and for institutional strengthening. The contractor will prepare its own detailed Environmental Management Plan (C-EMP), which is based on the approved and disclosed EMP, and which needs to be approved by CFM. The contractor will be responsible for the implementation of its own C-EMP. The contractor reports to the Concessionaire on SHE issues on a daily basis. The Concessionaire will consolidate the contractor reports and submit them to CFM on a monthly basis. CFM will discuss the details of the EA/EMP and RAP with the Concessionaire and discuss the Concessionaire s responsibilities with regard to the implementation of the EA/EMP and RAP. 10. List of factual technical documents: 1. Bank Staff Assessments Draft Project Concept Document (PCD) and Departmental Review Meeting Minutes, April 2003; Decision Meeting Minutes, June 2004 Identification mission BTO including aide-memoire Preparation missions BTO including aide-memoires Pre-appraisal BTO including aide-memoire Appraisal mission BTO including aide-memoire Project Information Document Environmental Impact Assessment

10 Financial Management Assessment Report July Other Concession Agreement, August, 2004 Technical Proposals of the RITES Consortium and the Tenwin Holdings and China Tiesiju Civil Engineering Consortium for Beira Railway Concession Country Assistance Strategy, October 2003 Environmental Management Study, 2004 Beira Rail Concession Project: Economic Analysis (ECORYS, July 2004) Beira Rail Concession Project: Analysis of Barge Transport, (ECORYS, June, 2004) 11. Contact Point: Task Manager: Anil S. Bhandari The World Bank 1818 H Street, NW Washington D.C Telephone: Fax: For information on other project related documents contact: The InfoShop The World Bank 1818 H Street, NW Washington, D.C Telephone: (202) Fax: (202) Web: