Technical Assistance to ECOWAS for the Implementation of the 10th EDF Transport Facilitation Project II (TFP II)

From April 2018 to March 2021, NTU International A/S implemented the project Technical Assistance to ECOWAS for the Implementation of the 10th EDF Transport Facilitation Project II (TFP II). Overall, the programme's objective is to contribute to the increase of inter-regional trade through the implementation of a transport friendly environment, including facilitation of free movement of persons and goods, abolishment or reduction of trade barriers in West Africa and reduction of the administrative and financial barriers to road transport.

The purpose of Technical Assistance provided by NTU was to support ECOWAS in the administrative and financial management of the programme in accordance with the European Development Fund procedures, the facilitation of transport through the preparation and implementation of training, procurement, workshops, study tours, and awareness of stakeholders and the operationalization of the Joint Border Posts (JBPs) of Noépé-Akanu between Ghana and Togo and Sèmè-Kraké between Benin and Nigeria.

The TFP II project was a complex flagship project consisting of execution of infrastructure works, supply and installation of modern equipment, carrying out of various studies, formulating and implementing common border crossing procedures, as well as establishing institutional structure and the operationalization of JBPs in accordance with the Additional Act. It involved various national, regional, and international actors, in particular, the various administrations of four Member States (Nigeria, Ghana, Benin and Togo), their political authorities, the Commission of the ECOWAS, and partners.

The Project Implementation and management within the ECOWAS Commission was achieved with the support of the EUD. All the results were achieved thanks to the effective collaboration between the Department of Infrastructure, NTU International Technical Assistance Team, and the EUD. The project brought together the administrations of 4 countries to work together and apply the common border crossing procedures in accordance with the manual of procedure and the supplementary act on JBP.

Context

The achievement of regional integration and the creation of an economic and customs union in West Africa requires the development of modern infrastructure, particularly in the transport sector. It is in this context that ECOWAS has put in place a robust transport programme meant to facilitate the movement of persons, goods, and services in the region with the aim to lead to greater integration in line with the development policy of the community.

The transport sector in West Africa is characterized by insufficient and interrupted transport infrastructures, absence or insufficiency of maintenance, and hindrances in traffic flows. Different interpretations of transit documents and cross-border procedures are causing substantial delays and economic costs for operators and travelers alike. The road sub-sector, which is the most utilized within the region, is now witnessing significant development. The principal activity in the road sector is the continued implementation of the regional Road Transport and Transit Facilitation Programme.

Despite a relatively well-developed road transport infrastructure in some of the beneficiary countries, the volume of trade within the region remains low. Goods do not circulate freely within the ECOWAS Member States and vehicles are subject to endless physical controls and inspections along the corridors and at the border checkpoints.

The ECOWAS Commission in consultation with its member states has identified the need for the construction, equipment, and management of JBPs to facilitate the movement of legitimate goods and people while maintaining secure borders and meeting national legal requirements. The ECOWAS and WAEMU (West African Economic and Monetary Union) Commissions is utilizing the Regional Road Transport and Transit Facilitation Programme for West Africa to enhance the free movement of goods and persons along the main road transit corridors in the region. The regional programme is part of a Community Strategy for implementing a global programme for infrastructures and road transport. The aim of this programme is to boost community trade by offering good quality infrastructure and ensuring a smooth flow of trade throughout the corridor of the community.

The strategy and structure of ECOWAS transport

The Project enabled ECOWAS Member States to have modern, well-equipped, and functional JBPs and strengthen the Commission’s capacity for monitoring and managing Regional Transportation Systems as well as ECOWAS beneficiaries - the Member States - for management of the JBPs of Sèmè-Kraké and Noepe.

Four Components were designed to achieve the above-mentioned objectives and bring meaningful results to the executing institutions:

• Component 1: Completion and handing over of JBPs Sèmè-Kraké and Noepe;
• Component 2: Design of the Road Information System for the region;
• Component 3: Achievement of the institutional, technical and financial conditions for the installation of the Regional Transportation System;
• Component 4: Strengthening capacity of the ECOWAS Commission to monitor and manage the Regional Transportation System.

Specific project activities were carried out across four Technical Components as shown in the figure above. The horizontal delivery approach is common across all technical components. The four technical Components were delivered by the means of two Horizontal Intervention Axes:

Horizontal Intervention Axis: TA - Technical Assistance including:

• Assessment of current situation;
• Proposing actions; 
• Supporting their implementation

Horizontal Intervention Axis: CB - Capacity Building:

• Staff training of the beneficiary institutions;
• Organization of study tours, conferences, sensitization of actors, and support to monitoring committees;
• Support the coordination between the institutions.

Governance and funding

ECOWAS TFP II was implemented through partially decentralized management, with the Regional Authorising Officer (RAO), who is the President of the ECOWAS Commission serving as the Contracting Authority. The TA team was supervised by the ECOWAS Department of Infrastructure.

A Project Management Steering Committee (PMSC) was instituted for the full programme covered by the FA (Financing Agreement). The FA was combined for the TFP II activities carried out by ECOWAS and WAEMO. The PSCM met twice a year to oversee, monitor, and validate the operational management of the project.

The TA team was composed of:

• The Team Leader (KE1) in charge of the overall implementation of the TA and coordination of the TA team and pool of NKEs
• The EDF Administration and Finance Expert & Imprest Accounting Officer (KE2) in charge of assisting the Imprest administrator with the implementation of the PE activities and overseeing the use of the PE funds.
• The Trade Specialist (KE3) in charge of trade-related activities under the TA project, and
• The Imprest Administrator (KE4) in charge of the overall implementation of the PE activities.

The TA team worked closely with the Infrastructure Department and the Department in charge of Customs of the ECOWAS Commission.

The Financing Agreement covering the TFP II was signed on 10 June 2014 with the total Execution Period of 84 months (ending 10 June 2021), with the Operational Implementation Phase being 60 months (ending 10 June 2019) and the Closure Phase in 24 months (from 11 June 2019 to 10 June 2021).

Riders No. 1, 2, and 3 to the Financing Agreement were approved addressing the following:

• The extension of the total Period of Execution of 84 months, now ending on 10 June 2023;
• The extension Closure Phase of 24 months, now from 11 June 2021 till 10 June 2023;
• The extension D + 3 deadline for contracting, now set to 10 June 2018; and
• The reallocation of funds within the budget lines of the FA including a reallocation of EUR 350,000.00 from the Contingencies budget line, to allow contracting of LOT 4 of the Supply contract which had been underestimated and whose costs had increased greatly since 2014.

Due to the delay in the final award of the TA services contract, other work commenced on TFP II utilizing independent short-term consultants. Among these was the drafting of the Programme Estimate (PE) under Public Indirect Decentralised Operation and Equipment and furniture supply contracts for the two JBPs which were awarded in October 2017. The contracts are currently being implemented.

Collaboration

The Transport Facilitation Project II was implemented in coordination between ECOWAS and WAEMU and partners such as the EU, World Bank, African Development Bank, USAID, and French Development Agency. Other partners involved in West African transport and trade sectors are the Economic Commission for Africa (through the SSATP), UNCTAD, the African Development Bank (ADB), Danida (through ATWA programme), etc.

Related regional actions and initiatives are as follows:

• In 2003, a Regional Road Transport and Transit Facilitation Programme was elaborated to accelerate effective facilitation of road transport and UEMOA’s Road Governance Observatory on the Abidjan-Ouagadougou-Niamey; Lome-Ouagadougou-Niamey and Tema-Ouagaodougou-Niamey corridors and the ECOWAS Road Governance Observatory on the Abidjan-Lagos corridor were established. Financial support was provided by USAID and World Bank, respectively.
• UEMOA’s Observatory of Abnormal Practices was established in 2005 with the support of USAID (West Africa Trade Hub) in order to monitor illicit perceptions and delays caused by Road checkpoints. A transition scheme to a regional transport facilitation observatory was defined with the funding of EU, USAID, WB, and ADB.
• In 2008 a regional strategy for the facilitation of transit and road transport with a corridor approach was proposed.
• The Agribusiness and Trade Promotion and Enhanced Agribusiness and Trade Promotion (USAID ATP and E-ATP) projects (2008 - 2012).
• Abidjan-Lagos Trade and Transport Facilitation Project (ALTTFP) monitoring body, financed by the International Development Association created in 2011.
• The World Bank-financed Regional Trade Facilitation Program 2011 - 2015 which contributed to poverty alleviation, through private sector-led growth in the participating countries.
• The regional programme of support to West Africa Integration, funded by DfID, was launched in 2013.
• Several road transport observatories were created: Abidjan-Lagos Corridor Observatory, Lomé-Ouagadougou Corridor Observatory, UEMOA Road Information System (2015) etc.
• Trade Facilitation Support Program within UEMOA, funded by the Africa Trade Fund, aiming at reducing the cost of trade and transport.
• Abidjan-Lagos Trade and Transport Facilitation Program and Africa Trade and Transport Facilitation Program, covering the Tema-Ouagadougou-Bamako corridor, funded by World Bank (2010-2018).
• Sub-Saharan Africa Transport Policy Program (SSATP) for West Africa, comprising Methodological support to the establishment of the West Africa Regional Transport Observatory and Support to the soft component of the ECOWAS One-Stop Border Post program.

From April 2018 to March 2021, NTU International A/S implemented the project Technical Assistance to ECOWAS for the Implementation of the 10th EDF Transport Facilitation Project II (TFP II). Overall, the programme's objective is to contribute to the increase of inter-regional trade through the implementation of a transport friendly environment, including facilitation of free movement of persons and goods, abolishment or reduction of trade barriers in West Africa and reduction of the administrative and financial barriers to road transport.

The purpose of Technical Assistance provided by NTU was to support ECOWAS in the administrative and financial management of the programme in accordance with the European Development Fund procedures, the facilitation of transport through the preparation and implementation of training, procurement, workshops, study tours, and awareness of stakeholders and the operationalization of the Joint Border Posts (JBPs) of Noépé-Akanu between Ghana and Togo and Sèmè-Kraké between Benin and Nigeria.

The TFP II project was a complex flagship project consisting of execution of infrastructure works, supply and installation of modern equipment, carrying out of various studies, formulating and implementing common border crossing procedures, as well as establishing institutional structure and the operationalization of JBPs in accordance with the Additional Act. It involved various national, regional, and international actors, in particular, the various administrations of four Member States (Nigeria, Ghana, Benin and Togo), their political authorities, the Commission of the ECOWAS, and partners.

The Project Implementation and management within the ECOWAS Commission was achieved with the support of the EUD. All the results were achieved thanks to the effective collaboration between the Department of Infrastructure, NTU International Technical Assistance Team, and the EUD. The project brought together the administrations of 4 countries to work together and apply the common border crossing procedures in accordance with the manual of procedure and the supplementary act on JBP.

Context

The achievement of regional integration and the creation of an economic and customs union in West Africa requires the development of modern infrastructure, particularly in the transport sector. It is in this context that ECOWAS has put in place a robust transport programme meant to facilitate the movement of persons, goods, and services in the region with the aim to lead to greater integration in line with the development policy of the community.

The transport sector in West Africa is characterized by insufficient and interrupted transport infrastructures, absence or insufficiency of maintenance, and hindrances in traffic flows. Different interpretations of transit documents and cross-border procedures are causing substantial delays and economic costs for operators and travelers alike. The road sub-sector, which is the most utilized within the region, is now witnessing significant development. The principal activity in the road sector is the continued implementation of the regional Road Transport and Transit Facilitation Programme.

Despite a relatively well-developed road transport infrastructure in some of the beneficiary countries, the volume of trade within the region remains low. Goods do not circulate freely within the ECOWAS Member States and vehicles are subject to endless physical controls and inspections along the corridors and at the border checkpoints.

The ECOWAS Commission in consultation with its member states has identified the need for the construction, equipment, and management of JBPs to facilitate the movement of legitimate goods and people while maintaining secure borders and meeting national legal requirements. The ECOWAS and WAEMU (West African Economic and Monetary Union) Commissions is utilizing the Regional Road Transport and Transit Facilitation Programme for West Africa to enhance the free movement of goods and persons along the main road transit corridors in the region. The regional programme is part of a Community Strategy for implementing a global programme for infrastructures and road transport. The aim of this programme is to boost community trade by offering good quality infrastructure and ensuring a smooth flow of trade throughout the corridor of the community.

The strategy and structure of ECOWAS transport

The Project enabled ECOWAS Member States to have modern, well-equipped, and functional JBPs and strengthen the Commission’s capacity for monitoring and managing Regional Transportation Systems as well as ECOWAS beneficiaries - the Member States - for management of the JBPs of Sèmè-Kraké and Noepe.

Four Components were designed to achieve the above-mentioned objectives and bring meaningful results to the executing institutions:

• Component 1: Completion and handing over of JBPs Sèmè-Kraké and Noepe;
• Component 2: Design of the Road Information System for the region;
• Component 3: Achievement of the institutional, technical and financial conditions for the installation of the Regional Transportation System;
• Component 4: Strengthening capacity of the ECOWAS Commission to monitor and manage the Regional Transportation System.

Specific project activities were carried out across four Technical Components as shown in the figure above. The horizontal delivery approach is common across all technical components. The four technical Components were delivered by the means of two Horizontal Intervention Axes:

Horizontal Intervention Axis: TA - Technical Assistance including:

• Assessment of current situation;
• Proposing actions; 
• Supporting their implementation

Horizontal Intervention Axis: CB - Capacity Building:

• Staff training of the beneficiary institutions;
• Organization of study tours, conferences, sensitization of actors, and support to monitoring committees;
• Support the coordination between the institutions.

Governance and funding

ECOWAS TFP II was implemented through partially decentralized management, with the Regional Authorising Officer (RAO), who is the President of the ECOWAS Commission serving as the Contracting Authority. The TA team was supervised by the ECOWAS Department of Infrastructure.

A Project Management Steering Committee (PMSC) was instituted for the full programme covered by the FA (Financing Agreement). The FA was combined for the TFP II activities carried out by ECOWAS and WAEMO. The PSCM met twice a year to oversee, monitor, and validate the operational management of the project.

The TA team was composed of:

• The Team Leader (KE1) in charge of the overall implementation of the TA and coordination of the TA team and pool of NKEs
• The EDF Administration and Finance Expert & Imprest Accounting Officer (KE2) in charge of assisting the Imprest administrator with the implementation of the PE activities and overseeing the use of the PE funds.
• The Trade Specialist (KE3) in charge of trade-related activities under the TA project, and
• The Imprest Administrator (KE4) in charge of the overall implementation of the PE activities.

The TA team worked closely with the Infrastructure Department and the Department in charge of Customs of the ECOWAS Commission.

The Financing Agreement covering the TFP II was signed on 10 June 2014 with the total Execution Period of 84 months (ending 10 June 2021), with the Operational Implementation Phase being 60 months (ending 10 June 2019) and the Closure Phase in 24 months (from 11 June 2019 to 10 June 2021).

Riders No. 1, 2, and 3 to the Financing Agreement were approved addressing the following:

• The extension of the total Period of Execution of 84 months, now ending on 10 June 2023;
• The extension Closure Phase of 24 months, now from 11 June 2021 till 10 June 2023;
• The extension D + 3 deadline for contracting, now set to 10 June 2018; and
• The reallocation of funds within the budget lines of the FA including a reallocation of EUR 350,000.00 from the Contingencies budget line, to allow contracting of LOT 4 of the Supply contract which had been underestimated and whose costs had increased greatly since 2014.

Due to the delay in the final award of the TA services contract, other work commenced on TFP II utilizing independent short-term consultants. Among these was the drafting of the Programme Estimate (PE) under Public Indirect Decentralised Operation and Equipment and furniture supply contracts for the two JBPs which were awarded in October 2017. The contracts are currently being implemented.

Collaboration

The Transport Facilitation Project II was implemented in coordination between ECOWAS and WAEMU and partners such as the EU, World Bank, African Development Bank, USAID, and French Development Agency. Other partners involved in West African transport and trade sectors are the Economic Commission for Africa (through the SSATP), UNCTAD, the African Development Bank (ADB), Danida (through ATWA programme), etc.

Related regional actions and initiatives are as follows:

• In 2003, a Regional Road Transport and Transit Facilitation Programme was elaborated to accelerate effective facilitation of road transport and UEMOA’s Road Governance Observatory on the Abidjan-Ouagadougou-Niamey; Lome-Ouagadougou-Niamey and Tema-Ouagaodougou-Niamey corridors and the ECOWAS Road Governance Observatory on the Abidjan-Lagos corridor were established. Financial support was provided by USAID and World Bank, respectively.
• UEMOA’s Observatory of Abnormal Practices was established in 2005 with the support of USAID (West Africa Trade Hub) in order to monitor illicit perceptions and delays caused by Road checkpoints. A transition scheme to a regional transport facilitation observatory was defined with the funding of EU, USAID, WB, and ADB.
• In 2008 a regional strategy for the facilitation of transit and road transport with a corridor approach was proposed.
• The Agribusiness and Trade Promotion and Enhanced Agribusiness and Trade Promotion (USAID ATP and E-ATP) projects (2008 - 2012).
• Abidjan-Lagos Trade and Transport Facilitation Project (ALTTFP) monitoring body, financed by the International Development Association created in 2011.
• The World Bank-financed Regional Trade Facilitation Program 2011 - 2015 which contributed to poverty alleviation, through private sector-led growth in the participating countries.
• The regional programme of support to West Africa Integration, funded by DfID, was launched in 2013.
• Several road transport observatories were created: Abidjan-Lagos Corridor Observatory, Lomé-Ouagadougou Corridor Observatory, UEMOA Road Information System (2015) etc.
• Trade Facilitation Support Program within UEMOA, funded by the Africa Trade Fund, aiming at reducing the cost of trade and transport.
• Abidjan-Lagos Trade and Transport Facilitation Program and Africa Trade and Transport Facilitation Program, covering the Tema-Ouagadougou-Bamako corridor, funded by World Bank (2010-2018).
• Sub-Saharan Africa Transport Policy Program (SSATP) for West Africa, comprising Methodological support to the establishment of the West Africa Regional Transport Observatory and Support to the soft component of the ECOWAS One-Stop Border Post program.