Tanzania National Roads Agency (TANROADS)

Consultancy Services for

Provision of Technical
Assistance to TANROADS

Maintenance Planning and Programming, Draft

May 2009 (revised)

Ref 6427389
rp.010.jhh(04)
Version 04
Date 2009-05-08
Prepared by jhh
Checked by -
Approved by -
 Table of Contents

1. Introduction 1

2. System Ownership and Clients 1

3. System Modules and Output 3

4. Maintenance Planning and Programming 4

5. Summary of System Analyses (Programming Only) 8

6. Organisational Context 10

Annex

1 Maintenance Programming Framework

2 Organisational Context of Planning and Programming

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1. Introduction

There is a need to agree on the detailed division of tasks between relevant

directorates in the reorganised TANROADS in term of maintenance planning and
programming. In the reorganised TANROADS the RMMS has been moved from
Directorate of Maintenance to Directorate of Planning. This has increased the needs
for coordination between the new directorates during maintenance programming.

The overall distribution of obligations in terms of maintenance planning and

programming is:

 The Directorate of Planning is responsible for preparing a 5 year strategic

maintenance plan

 The Directorate of Maintenance is responsible for preparing an annual

maintenance programme, including distribution of funds between regions

 The Directorate of Planning is responsible for the RMMS and all related
activities through the RMMS Team, which is embedded with the Planning
Department

 The Directorate of Planning is responsible for technical standards and

specifications applied to maintenance contracts.

 The regions are responsible for developing annual maintenance plans for
their own region, and procurement and supervision of maintenance works

 The Directorate of Procurement and Contract facilitates and monitor the

procurement of maintenance works in the regions

This report will help in detailing the tasks to be undertaken to meet these
responsibilities. This will include:

 Roles of road management systems (RMMS, HDM-4, GIS)

 Distribution of tasks

2. System Ownership and Clients

It is important to realise the difference between the roles of being owner of the
RMMS or the clients to the system. The figurer below illustrates the different roles.

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Figure System Ownership and Clients -1 Ownership and Clients

The Client will be responsible for detailing his requirements to the system, including
the formats in which he would like to receive information. The Client thus needs to
design system output, including which information to be included.

The system Owner is responsible for developing the system to meet the
requirements of the Clients, and also for providing the requested information. If the
Client is operating the system, the Owner is responsible for developing the system
features needed to support the work carried out by the Client.

This relationship between owner and client clearly shows that the RMMS cannot be
managed and developed by the owner alone; the owner will need input
(requirements) from the clients in order for the system to take its envisaged role in
the business processes of TANROADS. For instance it is the Directorate of
Maintenance, in liaison with the regions, who will need to design the output reports
relevant to the CMM (formats and information shown in the reports), while the
Directorate of Planning (the RMMS Team) will be responsible for implementing the
reports in the RMMS (system programming).

The figure below illustrates the ownership and client structure in the context of
TANROADS.

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 Figure System Ownership and Clients -2 Ownership and Clients in TANROADS' Context

The ownership of the road management systems resides with the RMMS Team. The
Directorate of Planning, Directorate of Maintenance, regions, other stakeholders
within TANROADS and development partners are all clients requesting different
information as indicated in the ‘callout’ boxes.

3. System Modules and Output

The road management systems applied currently includes: (i) RMMS; (ii) HDM-4;
and (iii) GIS. In the future also RED might be made part of the management
systems adopted by TANROADS.

In the figure below is illustrated the relations between the management systems and
the possible output.

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GIS Application

Road Network HDM-4 (Strategy) Medium Term

Matrix Maintenance Plan
RMMS Homogeneous
Database Sections
HDM-4 Multi-year Mtc.
(Programme) Programme
Discrete Road
Sections
PM One-year Mtc.
Programme Budget
BSM
Distribution
RRM One-year Routine
Mtc. Programme

Data Data Preparation Data Analysis Budget Analysis

Figure System Modules and Output-3 Road Management System Linkages and Output

The RMMS database is storing all relevant information on the road network,
including: (i) road inventories; (ii) road conditions; and (iii) traffic levels. The
information in the database (and many of the application output) can be viewed in
GIS.

Through a data preparation process the data can be prepared for different analyses,
either in the RMMS or in the HDM-4. The RMMS can be used to generate input files
for HDM-4 (version 2) for planning (strategic analysis) or programming. For the
multi-year programming the file is based on discrete road sections (homogenous
sections), while for the medium term planning analysis the file is based on a network
matrix approach.

The applications embedded within the RMMS can be used to derive one-year
programmes for periodic maintenance and for routine/recurrent maintenance. This
output can be used in the budget split analysis which can support the distribution of
budgets between regions.

If RED is adopted this system can be used to make a one-year maintenance

programme for unpaved roads.

4. Maintenance Planning and Programming

It is important to define how each of the road management systems is used in the
business processes in TANROADS. The figure enclosed in Annex 1 outline the
proposed framework. The main guiding principles in developing the framework are:

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  Integration of the use of different road management systems, benefiting
from the particular strengths of each system

 Integration of maintenance programming across regional boarders, aiming at

preparing attractive packages for paved road maintenance (asphalt contract
only) to drive down the unit costs and improve works quality

 RMMS to be used to split budget between maintenance types and road

classes

 RMMS to be used to split budgets between paved and unpaved roads and
trunk roads and regional roads (as HDM-4 does not well capture benefits on
unpaved roads and should thus not be used to make paved and unpaved
road projects complete for the same budget)

 The budget split module to be used to distribute regional budgets for

unpaved road only

The framework proposed comprises the following steps for maintenance

programming:

1. Based on the updated information on the road network, the RMMS (RRM)
used to analyse the unconstrained needs for routine and recurrent
maintenance for one year. The analysis is carried out for each pavement
type and each road class (but will include all regions).

2. Based on the output of the RMM analysis the total needs is summarised, that
the distribution of this between paved and unpaved, and trunk roads and
regional roads determined. The budget allocated to routine and recurrent
maintenance is set to 80% (adjustable) of the needs in each category.
(trunk/paved, trunk/unpaved, regional/paved and regional/unpaved). The
80% is deemed to correspond to full maintenance on good and fair roads,
and partial maintenance on bad roads (which is TANROADS’ policy).

3. The analysis of the RRM is uploaded to the BSM and each category analysed
separately using the 80% constrained budget. The outcome of this analysis
is the distribution of budgets for routine and recurrent maintenance for each
region within each category.

4. Based on the updated information on the road network, the RMMS (PM) is
used to derive a network level analysis of maintenance needs on all roads
under the responsibility of TANROADS (trunk and regional Roads). This
analysis will output the needs for maintenance for one year responsive to the
current road condition.

5. The likely budget which will be available from the Road Fund is projected.
From this amount, the allocation to routine and recurrent maintenance is

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 deducted. The remaining budget is allocated between periodic maintenance
and spot improvements in the proportion of their respective share in the
unconstrained needs analysis.

6. Similarly the budget between paved and unpaved will be allocated in the
proportion of their respective share in the unconstrained analysis.

7. The outcome of the analysis and decision-making above is budget allocations

to the different categories (paved and unpaved, periodic maintenance and
spot improvements), which can then be analysed separately.

8. For paved roads (trunk and regional) the RMMS is used to prepare an input
file for a programme analysis in HDM-4 (periodic maintenance needs only).
The file will comprise all roads across all regions (in the further steps the
regional relationship of the projects are not considered relevant). Trunk and
regional roads are analysed together.

9. The HDM-4 will be used to derive 4 years maintenance programmes, using

the allocated budget envelope. This output will represent the pool of projects
which could be selected for the annual maintenance programme. The project
pool is used to develop a programme for asphalt contract works. In this
process the GIS is an important tool in packaging projects into projects
suitable for implementation and attractive to qualified contractors. Compared
to the estimated implementation year, any intervention can be moved one
year ahead or be two year deferred.

10. The output of this analysis is a three year programme for maintenance of
paved roads (asphalt concrete only). This is developed at head office level
without being constrained by regional boarders. Projects might cross regional
boarders, might include projects over several years, and should be packaged
in contracts which support reduced unit rates and high quality.

11. The costs of the 1-year asphalt concrete maintenance programme are
deducted from the total budget available to paved periodic maintenance. The
remaining part of the budget will be allocated to surface dressings, which will
be programmed by the regions.

12. For unpaved roads (trunk and regional) and surface dressing on paved roads
the periodic maintenance programmes are developed by the regions; hence
the first step is a budget analysis to distribute budgets between regions. This
is done by combining the budget split analysis in the RMMS (BSM) with two
other approaches: (i) a minimum distribution according to unconstrained
needs; and (ii) in proportion to the road length in each region. It is
recommended that at least 50% of the budget is distributed using the BSM
(the figure can be lower in the beginning, but should be increased over
time). Trunk and regional roads are analysed together.

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 13. For analysis of the budget distribution for spot improvements will follow the
same steps as above for the periodic maintenance for unpaved roads.
However, the steps will be undertaken for all combinations of road class and
type (as HDM-4 cannot analyse spot improvement needs).

14. Based on the regional budget distribution, each region will develop one-year
maintenance programmes for unpaved roads and surface dressing for paved
roads using the RMMS (PM). In this process GIS should be used to package
works together in suitable maintenance works packages. Especially for
surface dressing contracts it should be observed, that the packages are
suitable for attracting qualified contractors.

15. The regional developed maintenance programmes are reviewed and

consolidated at head office level. During this process head office will ensure
that proposals affecting cross boundary roads would be coherent, to ensure
that projects would complement each other where relevant.

16. Head office will consolidate all the prepared maintenance programmes and
submits the programmes to RFB for approval. If the final budget provided by
the RFB is higher or less than the original projection, TANROADS head office
will review the maintenance programmes and either increase or decrease the
number of projects. In the former case (budgets are higher than expected)
the additional projects to be added to the maintenance programme should be
taken from the unconstrained analyses (RMMS, HDM).

17. Upon approval of the maintenance programme, the individual projects will
need to be designed. So far all analyses have been undertaken using the
network level data collected as part of the RMMS procedures. While being
suitable to identify road sections in need of maintenance, this information
quality level is not suitable for designing the detailed maintenance needed
for the individual sections included in the final maintenance programme.

18. Hence a second survey is needed for the programme sections. This survey
will provide the basis for the detailed design of the maintenance to be
applied, including the bill of quantities.

19. Before procuring the work, it might be considered to package the works to
derive work contracts suitable for attracting qualified contractors. This is
especially important for equipment based works contracts.

20. After final packaging the works can be procured.

21. Upon procurement the contracts can be implemented. The monitoring of the
financial and physical progress of the works implementation would be
supported by the RMMS (CMM).

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 For maintenance planning, the steps are rather simple as this task remains entirely
with the Directorate of Planning. The steps proposed include:

1. The RMMS is used to prepare input files to the HDM-4 (programme and
strategic analysis).

2. In HDM-4 the performance of the road network under different budget

scenarios are analysed.

3. Based on the projected budget allocation from the RFB, HDM-4 is used to
estimate the projects to be adopted in the medium term plan. In this
analysis paved and unpaved roads are analysed separately in order not to
make the projects compete between surface types; recognising that HDM-4
does not estimate benefits on unpaved roads with low traffic volumes well.
There would thus be a risk of unpaved roads being under-represented in the
plan.

4. The HDM-4 output, together with the GIS, is used to prepare the final plan
taking into consideration other relevant issues such as corridor development,
road network connectivity and regional development plans.

Besides being used to prepare the HDM-4 input files, the RMMS will not play a
significant role in maintenance planning as its analysis applications would only return
maintenance and rehabilitation needs for one year.

5. Summary of System Analyses (Programming Only)

The programming steps above, comprises a number of RMMS and HDM-4 analyses in
order to derive the background for the maintenance programmes. Below is listed all
the analysis needed.

Programming SN Analysis Output

Phase

RRM Budgeting 1 RRM unconstrained analyses for each of The total needs of each
the following combinations are conducted combination.
(four separate analyses): T/P, T/U, R/P
and R/U.

2 Using the analysis under SN1 a BSM For each region, the budgets
constrained analyses for each of the available for each combination
following combinations are conducted are reported separately.
(four separate analyses): T/P, T/U, R/P
and R/U. The budget used is 80%
(adjustable) of the total needs for each
combination.

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PM and SI Budgeting
PM Regional Budget
Split (Unpaved Roads
Only)
PM Programme
Analysis (Unpaved
Roads and surface
dressing)
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3 The total PM/SI budget is the total
projected budget deducted the RRM
budget
4 PM unconstrained analyses for each of the
following combinations are conducted
(four separate analyses): T/P, T/U, R/P
and R/U.
5 Based on SN4 the percentage distribution
of the total needs between PM and SI is
calculated.
6 Based on SN4 and SN5 the PM distribution
of budgets (percentage) between TR/P
and TR/U is calculated.
7 The budget for PM for the combinations:
TR/P and TR/U is found by multiplying SN3
and SN6.
8 Based on SN4 and SN5 the SI distribution
of budgets (percentage) between T/P,
T/U, R/P and R/U is calculated.
9 The budget for SI for each combination:
T/P, T/U, R/P and R/U is found by
multiplying SN3 with SN8.
10 Make unconstrained PM analysis for TR/U.
11 Make constrained BSM analysis for TR/U
based on SN10 using a total budget of
50% (adjustable) of SN7.
12 Based SN10 estimate the budget
distribution between regions.
13 Based on SN12 calculate the budget for
each region using a total budget of 25%
(adjustable) of SN7.
14 Based on the distribution of TR roads
between regions, calculate the budget for
each region using a total budget of 25%
(adjustable) of SN7.
15 The PM budget for each region is
calculated by adding SN11, SN13 and
SN14.
16 Each region makes a constrained PM
analysis using the budget given by SN15.
Total PM and SI budget
(combined).
Two tables are constructed. One
showing the needs for PM for
each combination, another
showing SI needs for each
combination.
Percentage distribution between
PM and SI.
Percentage distribution between
TR/P and TR/U compared to the
total PM and SI budget
(combined).
Budgets for each combination:
TR/P and TR/U.
Percentage distribution between
the combinations compared to
the total PM and SI budget
(combined).
SI budgets for each
combination: T/P, T/U, R/P and
R/U.
Total needs for TR/U.
Budget distribution between
each region based on BSM.
Percentage of total needs for
each region.
Budget distribution between
each region based on total
needs.
Budget distribution between
each region based on road
length.
PM budgets for each region.
Basis list of projects in each
region.
9/12
 PM Programme 17 Make HS analysis in RMMS for the Export file.
Analysis (Paved combination: TR/P.
Roads Only)
18 Import the file into HDM4 and make Unconstrained maintenance
unconstrained analysis. needs for TR/P.

19 Make constrained HDM4 analysis using the 4-year maintenance

SN17 analysis and the budget derived by programme.
SN7. The analysis is carried out for four
years.

20 Based on SN18, prepare a 3-year 3-year maintenance

maintenance programme for asphalt programme.
concrete works which is reasonable
compared to the total budget envelope.

21 Deduct the costs of the asphalt concrete Budget available for surface
maintenance programme (first year) from dressing
the total budget envelope for paved
periodic maintenance (SN7)

22 Repeat step SN10-16 above for surface Basis list of projects in each
dressing on paved roads using the budets region.
derived in SN21.

SI Programme 23 Make BSM analysis based on SN4 using SI budget distribution for each
the budgets derived in SN9. combination: T/P, T/U, R/P and
R/U for each region.

Notes: T=Trunk; R=Regional; P=Paved; U=Unpaved; HS=Homogenous Sectioning

6. Organisational Context

There are a number of organisational units involved in the framework outlined

above. The main units are:

 Directorate of Planning

 Directorate of Maintenance

 Directorate of Procurement and Contracts

 Regions

Each of these units has different roles and responsibilities in preparing information or
making decisions.

The processes are outlined in the flowchart enclosed as Annex 2. The following steps
can be observed:

1. The task of data collection is shared between the Directorate of Planning and
the regions. Directorate of Planning undertakes survey of paved roads, while

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 the regions undertake surveys of unpaved roads, traffic volumes and socio-
economic data.

2. The Directorate of Planning is responsible for reviewing and validating the

data. When this process is complete the data can be released and thus be
used for analysis.

3. The Directorate of Planning carry out a budget split analysis under the
direction of the Maintenance Directorate, who will receive the analysis output
and use this as the basis for a decision on distribution of budgets between
regions.

4. As an input to the budget analysis, the Directorate of Maintenance will liaise

with the RFB on the likely budgets available. The information will be passed
on to Directorate of Planning.

5. When the budgets have been decided on, each region, under the instructions
of the Directorate of Maintenance and assisted by the Directorate of
Planning, will carry out an analysis of the maintenance needs and submit the
results to Directorate of Maintenance.

6. The Directorate of Planning will for paved roads carry out a multi-year
programming analysis using HDM-4. The analysis output will be submitted to
the Directorate of Maintenance for further processing (in liaison with the
RMMS Team).

7. The Directorate of Maintenance will review and consolidate the regional

developed maintenance programmes for unpaved roads and the multi-year
maintenance programme for paved roads developed by the Directorate of
Planning. Based on this the Directorate of Maintenance will prepare a one-
year maintenance programme to be submitted for approval by the RFB.

8. In addition to undertaking the analysis of maintenance needs using RMMS

and HDM-4, the Directorate of Planning will support the process with
Maintenance Standards and Maintenance Specifications, both falling under
the responsibilities of the Design and Standard Department within the
directorate.

9. The procurement is undertaken by the regions, but monitored and

supervised by the Directorate of Procurement and Contracts.

10. When the procurement of the individual contracts has been completed, the
works are implemented by the regions, under supervision and monitoring by
the Directorate of Maintenance.

11. During any use of the RMMS in the regions (RRM, PM, CMM) the Directorate
of Planning is responsible for supporting the system operation.

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 12. In a separate and parallel process, the Directorate of Planning will be
responsible for undertaking and reporting the medium term strategic
maintenance plan.

Throughout the process relevant liaison with the Chief Executive is needed, including
his approval of all decisions and recommendations.

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 Annex 1 – Maintenance Programming Framework

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 Annex 2 – Organisational Context of Planning and Programming

Directorate of Planning Analsis of Mtc. Strategic Mtc. Plan

Needs (Strategic) Support and
Update of Data Release System Mgnment
Analysis of Mtc. Multi-year Mtc.
Database
Nds (Programme) Programme (P)

Maintenance
Update of Maintenance Budget Split Analsis of Mtc.
Database Standards Specifications
Analysis Nds (Progamme)

Directorate of Maintenance
Budget Decision

Maintenance Consolidation and Maintenance Works Quarterly Reports

Needs Review Programme Implementation

Directorate of Procurement and Contracts

Procurement Maintenance
Contracts

Note: Grey boxes falls under the responsibilities of the Regions

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