Rda Profile PDF

Road Maintenance Strategy, 2014 - 2024
TABLE OF CONTENTS
FOREWORD..................................................................................................................................................ix
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1 INTRODUCTION ................................................................................................................................. 1
1.1 MANDATE OF THE RDA .................................................................................................................. 1

1.2 HISTORY OF ROAD MAINTENANCE IN ZAMBIA ................................................................................ 1
2 IMPORTANCE OF ROAD MAINTENANCE ........................................................................................ 3
2.1 EXPENDITURE ON MAINTENANCE .................................................................................................... 3

2.2 BENEFITS OF TIMELY MAINTENANCE ................................................................................................ 3
3 SITUATION ANALYSIS ......................................................................................................................... 6
3.1 CURRENT STATUS ........................................................................................................................... 6

3.2 THE FUNDAMENTAL PROBLEM ......................................................................................................... 6
4 GOAL OF THE ROAD MAINTENANCE STRATEGY ......................................................................... 9
4.1 MAIN OBJECTIVES............................................................................................................................ 9
5 OUTLINE OF THE ROAD MAINTENANCE STRATEGY ..................................................................10
6 NETWORK DEFINITION ....................................................................................................................11
6.1 NETWORK INFORMATION ..............................................................................................................11

6.2 ROAD DESIGNATION IN ZAMBIA.....................................................................................................12
6.3 CONDITION STATUS ......................................................................................................................12
6.4 ROAD INFRASTRUCTURE CONDITION ASSESSMENT .........................................................................14
6.5 DATA COLLECTION .......................................................................................................................14
7 PROGRAMMING AND PRIORITIES ....................................................................................................16
7.1 MAINTENANCE PRIORITIZATION .....................................................................................................16

7.2 PRIORITIZATION OF MAINTENANCE ON THE TMD NETWORK .........................................................16
7.3 PRIORITIZATION OF MAINTENANCE ON THE PRIMARY FEEDER ROADS .............................................17
7.4 PRIORITIZATION OF MAINTENANCE ON THE URBAN ROADS NETWORK ..........................................34
7.5 BRIDGE MAINTENANCE PRIORITIZATION.........................................................................................50
7.6 ROAD SAFETY ................................................................................................................................57
8 EMERGENCY MANAGEMENT AND PLANNING .............................................................................62
8.1 DEFINITION OF AN EMERGENCY......................................................................................................62

8.2 EMERGENCY PLANNING AND MANAGEMENT OBJECTIVES ................................................................62
8.3 EMERGENCY PLANNING AND MANAGEMENT OBJECTIVES ................................................................62
8.3.1 EMERGENCY PREPAREDNESS ............................................................................................................63
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Road Maintenance Strategy, 2015-2024
8.3.2 EMERGENCY RESPONSE ...................................................................................................................66
9 ASSET MANAGEMENT ........................................................................................................................70
9.1 DEFINITION OF ASSET MANAGEMENT .............................................................................................70
10 PERFORMANCE MANAGEMENT ..................................................................................................72
10.1 DEFINITION OF PERFORMANCE MANAGEMENT ................................................................................72
11 MAINTENANCE PRACTICES AND PROCEDURES......................................................................74
12 RESOURCE DEVELOPMENT AND MANAGEMENT ....................................................................75
12.1 MAINTENANCE FINANCING ............................................................................................................75

12.2 RESOURCE MOBILIZATION ..............................................................................................................76
12.3 HUMAN RESOURCE DEVELOPMENT .................................................................................................79
12.4 RISK MANAGEMENT........................................................................................................................80
13 RESEARCH AND DEVELOPMENT .................................................................................................85
13.1 DEFINITION ...................................................................................................................................85

13.2 STRATEGIC GOALS ..........................................................................................................................85
13.3 DEVELOPMENT OF THE MATERIALS DATABANK.................................................................................85
14 CERTIFICATION OF ROAD MAINTENANCE CONTRACTORS ...............................................88
15 ROAD NETWORK MAINTENANCE MANAGEMENT MONITORING FRAMEWORK ............90
16 MAJOR ASSUMPTIONS ..................................................................................................................92
17 CONCLUSION ................................................................................................................................93
18 REFERENCES ...................................................................................................................................95
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LIST OF FIGURES
Figure 2-1: Effects of Delayed Maintenance........................................................................ 4
Figure 3-1: Actual Versus Ideal Maintenance Budget Allocation ........................................ 6
Figure 3-2 : Mapping of Maintenance Challenges ............................................................... 8
Figure 6-1: Summary of CRN Condition .......................................................................... 14
Figure 7-1: Paved Urban Condition .................................................................................. 34
Figure 7-2: Urban Road Network Coordination.............................................................. 36
Figure 7-3: Prioritization for Urban Roads ....................................................................... 37
Figure 7-4: Implementation of Maintenance on the Urban Road Network..................... 38
Figure 7-5 : Map of Bridge/Major Culvert Structures on the CRN ................................. 51
Figure 7-6 : Bridge Rating for all roads on the CRN ........................................................ 53
Figure 7-7 : RatingsforTrunk,MainDistrict& FeederRoads ............................................... 54
Figure 8-1: Emergency Response Flow Chart .................................................................. 69
Figure 12-1: Road Funding Trends.................................................................................... 75
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LIST OF TABLES
Table 3-1: Maintenance Challenges and Rating .................................................................. 8
Table 6-1: Shared Network Responsibility ....................................................................... 11
Table 6-2: Condition Rating Criteria for Paved Roads .................................................... 13
Table 6-3: Proposed IRI Condition Criteria ..................................................................... 13
Table 7-1: Network Prioritization .................................................................................... 16
Table 7-2: Short to medium term targets for rehabilitation (ZNS) ................................. 18
Table 7-3: Short to medium term primary feeder roads maintenance strategies ........... 20
Table 7-4: Primary Feeder Roads Network by Region .................................................... 25
Table 7-5: Primary Feeder Roads Network by Region .................................................... 25
Table 7-6: OPRC Roll out strategies ................................................................................ 26
Table 7-7: Short to Medium term Funding Requirements for Maintenance and
Rehabilitation of Primary Feeder Roads (ZNS) ........................................................ 28
Table 7-8: Short to Medium Target Kilometers for Maintenance and Rehabilitation of
Primary Feeder Roads (ZNS) ................................................................................... 29
Table 7-9: Long term Funding Requirements for rehabilitation of Primary Feeder Roads
– OPRC ..................................................................................................................... 30
Table 7-10: Long term Target Kilometers for rehabilitation and maintenance of Primary
Feeder Roads – OPRC ............................................................................................. 32
Table 7-11: Long term Target Kilometers for rehabilitation and maintenance of Primary
Feeder Roads – OPRC Cont’d ................................................................................. 33
Table 7-12: Urban Road Network on the CRN .............................................................. 34
Table 7-13: Implementation Strategy for the Urban Roads Network ............................. 39
Table 7-14: Funding Requirements for the rehab of paved urban roads ......................... 42
Table 7-15: Long term Funding Requirements for Maintenance of Paved Urban Roads. 43
Table 7-16: Long term Funding Requirements for Maintenance of Paved Urban Roads
Cont’d ....................................................................................................................... 44
Cont’d ....................................................................................................................... 45
Table 7-18: Funding Requirements for the upgrades and maintenance unpaved urban
roads ......................................................................................................................... 46
roads Cont’d ............................................................................................................. 47
roads Cont’d ............................................................................................................. 48
roads Cont’d ............................................................................................................. 49
Table 7-22: Summary of Bridge and Major culverts inventory ........................................ 50
Table 7-23: Summary of Bridge and Major culverts inventory on District Roads by
Province .................................................................................................................... 51
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Table 7-24: Summary of Bridge and Major culverts inventory on PFR by Province........ 52
Table 7-25: Summary of Bridge and Major culverts inventory on the Urban Roads by
Province .................................................................................................................... 52
Table 7-26: Ratings Descriptions ...................................................................................... 53
Table 7-27: Ratings Descriptions ...................................................................................... 53
Table 7-28: Summary of structures on the CRN ............................................................. 55
Table 8-1: Emergency Preparedness Strategy .................................................................. 64
Table 8-2: Emergency Response Strategy......................................................................... 67
Table 8-3: Response Category.......................................................................................... 68
Table 10-1: Frequency of Inspections on the CRN .......................................................... 72
Table 12-1: Projected Local Resource Revenues (ZMW’million) .................................... 76
Table 12-2: Projected Road Sector Cash-flows 2015 to 2024 (High Case Scenario)
(ZMW’million) .......................................................................................................... 78
Table 12-3: Resource Mobilization Strategies .................................................................. 79
Table 12-4: Risk Mitigation Strategies .............................................................................. 81
Table 13-1: Research and Development Strategies.......................................................... 87
Table 14-1: Research and Development Strategies.......................................................... 89
Table 15-1: Maintenance Management Monitoring Framework ...................................... 90
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ABBREVIATIONS
AM Asset Management
BMS Bridge Management System
CRN Core Road Network
DMMU Disaster Management Unit
ECZ Environmental Council of Zambia
EIZ Engineering Institution of Zambia
EMP Emergency Management Plan
GDP Gross Domestic Product
GRZ Government of the Republic of Zambia
HDM IV Highway Development and Management Model
ICT Information Communications Technology
KPI Key Performance Indicators
LOS Level of Service
LRA Local Road Authority
M&E Monitoring and Evaluation
MLGH Ministry of Local Government and Housing
MoF Ministry of Finance
MTWSC Ministry of Transport Works Supply and Communication
NDP National Development Plan
NRFA National Road Fund Agency
PFR Primary Feeder Road
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PPP Public Private Partnership
RDA Road Development Agency
RRU Rural Roads Unit
RSAWP Road Sector Annual Work Plan
R-SNDP Revised Sixth National Development Plan
RTSA Road Transport and Safety Agency
SADC Southern African Development Community
SATCC Southern Africa Transport and Communications Commission
SNDP Sixth National Development Plan
TMD Trunk, Main and District
VOC Vehicle Operating Costs
ZA Zambia Army
ZEMA Zambia Environmental Management Authority
ZHMS Zambia Highway Management System
ZNS Zambia National Service
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VISION
The vision of the RDA is to be the leading Road Authority in Africa that is providing a
world class Road Network in Zambia. Provision of this world class road network
involves the improvement of the riding quality and safety of the network as well as
increasing its structural strength.
MISSION
The Strategic Mission of the RDA is to provide a World Class Road Network that
supports socio-economic growth in Zambia.
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FOREWORD
It is well known that a well-maintained and efficient road network is an essential pre-
condition to economic development. There is a strong correlation between kilometers
travelled and the gross national income. Roads play a critical role to industry,
agriculture, and commerce by providing a means of transportation of goods and
services. Ever since independence in 1964, considerable amounts of funds have been
invested in the construction and improvement of the road network. It is safe to
conclude that roads are essentially big business and a catalyst to economic development
which should be managed efficiently and effectively.
For a very long time now, the road sector has been preoccupied with the construction
and upgrading of roads with very little emphasis being given to maintenance. The cost of
not carrying out timely maintenance on the network is ultimately borne by the Road
Users. A study has revealed that for every dollar that a country fails to spend on
maintenance results in three dollars being spent by road users in increased vehicle
operating costs as a result of the poor road conditions (Gwilliam and Shalizi, 1996). The
resulting impact on the economy is increased costs on industry and commerce. In order
therefore to ensure sustainability of road transport network, it is essential that
maintenance becomes the number one priority alongside other developmental
programmes. Road network development can only be effective if it ensures that there is
a continuing capability to support the development, a contribution to the general quality
of life and the equitable sharing of benefits to various sections of communities.
This Road Maintenance Strategy is designed to create a clear pathway for the provision
of road maintenance activities on the Core Road Network (CRN). The RMS is geared
towards ensuring that there is timely implementation and improved quality of
maintenance on the CRN, which will enhance the life span of roads and related
infrastructure. This will have the added benefit of reducing the vehicle operating costs to
the road users and also contribute to general job creation in the road sector. More so,
it will contribute to increasing the capacity of the local contracting industry.
Willie Nsanda
ROAD DEVELOPMENT AGENCY BOARD CHAIRMAN
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ACKNOWLEDGMENT
The development of this Road Maintenance Strategy was achieved with the involvement
and participation of the following key staff listed below.
Emmanuel Kaunda, : Director Maintenance

William K. Mulusa : Director Planning & Design
Elias Mwape : Senior Manager Construction & Rehabilitation
Mubuyeata Kapinda : Senior Manager Bridges
George Manyele, : Senior Manager Pave Zambia
Dickson Ndhlovu : Acting Senior Manager Planning
Jairos Mhango : Senior Manager Maintenance
Joseph Mwinga, : Regional Manager – Central Province
Gershom Mwangomba, : Regional Manager Western Province
Sarah N. Chooka : Acting Principal Engineer HMS
Philimon Goma : Principal Engineer Maintenance
Richard Mwape : Principal Engineer Periodic Maintenance
Steven Sondashi, : Principal Executive Engineer to the CEO
Nchimunya Munamonga : Principal Engineer Quality
George Chitonena : Senior Engineer - Copperbelt Province
Bwalya Tembo : Senior Engineer Procurement
Teza Chila : Technician GIS
Lastly, I wish to thank the Road Development Agency Senior Management Staff for the
invaluable input that they made in the formulation of this Road Maintenance Strategy.
Engineer Bernard M. Chiwala

DIRECTOR AND CHIEF EXECUTIVE OFFICER
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EXECUTIVE SUMMARY
This Road Maintenance Strategy is aimed at setting a pathway for the provision of
maintenance activities on the Core Road Network (CRN). This will in turn create an
atmosphere that will ensure that the roads are properly maintained thus promoting
economic growth and development. Road Maintenance has consistently remained a
challenge despite the formulation of Road Sector Programmes such as the Road Sector
Investment Programmes (Phase I and II) of 1998 and 2003. The Road Sector has for a
long time since independence being pre-occupied with major construction and upgrading
works on the network at the expense of the much needed road maintenance. This road
Maintenance Strategy is based on maintenance activities relevant to the Zambian
environment and is tailored for execution of maintenance works by either in-house
units, by contracts based on unit rates or by Output and Performance-Based Road
Contracts (OPRC).
Condition Assessment
Through a systematic method of road and bridge data inventory and data collection, the
RDA will have up- to- date information for decision making on maintenance priorities
for both roads and bridges including minor and major culverts. Furthermore, the RDA
will ensure that regular inspections for defects are conducted on the CRN whose
intervals will be guided through the road and bridge hierarchy. The RDA recognizes the
importance of data to the decision making process. Network Level inventory and
condition data will be outsourced while scheduled inspections will be conducted in-
house.
Programming and Priorities
The programming of maintenance activities on the Trunk Main and District Roads will
be based on the Zambia Highway Management System (ZHMS). The Bridge Management
System (BMS) will be used to prioritize bridge maintenance activities. The RDA will
employ a multi-criteria system for the prioritization of the lower order roads such as
the Primary Feeder Roads. The maintenance of the Urban Roads will be under the sole
charge of the respective Local Road Authorities (LRAs) under the Ministry of Local
Government and Housing (MLGH).
Emergency Planning
The RMS has also adopted a more proactive approach to dealing with emergencies
through the development of comprehensive Emergency Preparedness and Response
strategies. Emergencies will be addressed based on the determined level of risk. The
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Emergency Response Strategy has assigned a reaction time for each level of risk on the
CRN to the Road Users.
Asset Management
Strict adherence to Asset Management principles will go a long way to ensuring that
resources for maintenance are applied optimally to realize value from the Road Assets.
The approach to Asset Management will improve on stewardship and accountability;
communication and relationships with service users; risk management and financial
efficiency.
Performance Management
Efficient and effective execution of preventive and corrective maintenance will be

achieved through Performance Management. Under Performance Management, the RDA
will use Targets and Indicators as a measure of performance. These Targets and
Indicators will be in line with those defined in the Revised Sixth National Development
Plan (SNDP).
Maintenance and Procedures
The RDA will develop Maintenance Manuals based on best practice to ensure that
maintenance is carried out timely and to the best quality.
Service Development and Improvements
The RMS has defined the required service levels on the different classes of roads based
on the traffic composition. These Service Levels will guide on how long defects on the
CRN can be tolerated and when best to effect remedial measures.
Resources Development and Management
Resources are critical to the carrying out of maintenance activities on the CRN. It is
therefore essential that funds earmarked for maintenance are used solely for that
purpose. The RMS therefore impresses on need to use the Road Fund to finance all
maintenance activities while Capital Investments Funds can be used to carry out Capital
Projects.
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Risk Management
Risk Management will assist the RDA to identify and deal with the risks that threaten
our plans and impact upon the continuation of service delivery. The risk assessment will
cover Risk identification, Risk evaluation and Risk impact.
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1 INTRODUCTION
1.1 Mandate of the RDA

Zambia has a total classified road network of 67,671km of public roads comprising
Trunk, Main, District, Primary, Secondary and Tertiary Feeder, Urban and Park Roads.
The Public Roads Act No. 12 of 2002 defines the functions of the Road Development
Agency (RDA) as follows:
“To provide care and maintenance and construction of public roads in Zambia; to regulate
maximum weights permissible for transmission on roads; and to provide for matters connected
with and incidental to the foregoing”
For the purpose of management of the public roads network, the RDA has delegated
some responsibility to Local Road Authorities in line with Section20 (1) (2) (3) and
Section 73 (1) of the Public Roads Act No. 12 of 2002 which states as follows:
(1) The Minister may, on the recommendation of the Agency, by statutory order, appoint
any person or institution as a road authority in respect of any public road
(2) The road authority appointed under subsection (1) shall be responsible for the
construction, care and maintenance of the roads specified in the statutory order.
(3) All expenses incurred in the construction, care and maintenance of roads, for which the
road authority appointed under subsection (1) is responsible, shall be paid under the
Fund.
1.2 History to Road Maintenance in Zambia

Most of the roads in the country were constructed after independence (between 1964
and late 1970‘s). At the time, Zambia had one of Africa‘s most prosperous economies
and was classified as a Middle Income Country (Raballand and Whitworth, 2012). With
healthy tax revenues from the mining sector and negligible debt, the new Government
could afford to embark on major programmes of public investment in road
infrastructure (Raballand and Whitworth, 2012)Since their construction, these roads
received very little or no maintenance. This is despite the country at that time having
had a steady financial income to support maintenance. Government‘s priority then was
to open up the country with a decent road network. The roads were built to very high
standards. At the time, the heaviest truck rarely exceeded 20 tons (truck and trailer).
Following the nationalization of the copper mines in 1972, there was a sharp economic
decline that led to the inadequate resources being available for road maintenance. Thus
due to inadequate maintenance, most of the roads had deteriorated sharply by the late
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due to inadequate maintenance, most of the roads had deteriorated sharply by the late
1980s. Coupled with ever dwindling revenue for the country caused by low copper and
high fuel prices and depreciation of the Kwacha (Raballand and Whitworth, 2012), it
became increasingly difficult for Government to finance the repair of the road network
from its annual budgets.
A road condition survey conducted in 1995 on 8,800 km of Trunk, Main and District
(TMD) roads revealed that only 20 per cent were in ‘good’ condition (World Bank,
1997), 29 per cent ‘fair’ and 51 per cent ‘poor’. In addition, 90 per cent of feeder roads
were in ‘poor’ condition. A recent road condition survey of 2013 on 40,454 km of the
Core Road Network (CRN) revealed that 72 per cent of Primary Feeder Roads (PFR)
was still in poor condition while the composite condition of the TMD network has seen
some slight improvements with 56 per cent good, 21.5 per cent fair and 22.5 per cent
poor (RDA Condition Report, 2013). This improvement is largely due to major
rehabilitation and reconstruction works in the past decade. There is still a need for
more emphasis on maintenance of the existing road network to cut down on the high
cost of major rehabilitation and maintenance works. This will be best achieved through
the development of a comprehensive Road Maintenance Strategy (RMS) that will ensure
that there is timely execution of maintenance activities on the road network.
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2 IMPORTANCE OF ROAD MAINTENANCE
2.1 Expenditure on Maintenance

Though the need for road maintenance is widely recognized, it is still not a number one
priority for most developing countries. Most countries spend only about 20 to 50
percent of what they should be spending on maintenance of their road networks (TRN-
4, 2005). According to the RDA 2012 Maintenance Needs Report on the CRN, an
annual minimum of US$721 million needed to be allocated for maintenance activities to
bring the road network into a maintainable condition between 2012 and 2016.
However, in 2014,only 21.5 per cent of the required yearly maintenance funding was
allocated. This meager allocation to maintenance activities is largely attributed to the
pre-occupation with new construction and rehabilitation projects and inadequate
available resources for maintenance. This has, subsequently over the years, led to most
of the roads deteriorating into poor condition.
2.2 Benefits of Timely Maintenance

The impacts of poor road maintenance have been mostly borne by the road users in the
form of increased Vehicle Operating Costs (VOCs) due to the poor state of the riding
surface leading to frequent breakdowns and repairs. There are, however, massive
benefits to having roads in a good and fair condition. Outlined below are some of the
key benefits to road users when roads are kept in a maintainable condition:
 Improved access to hospitals, schools, markets and tourist sites;
 Improved comfort, speed, and safety; and
 Lower vehicle operating costs.
In order to sustain the above benefits, road development programmes need to be

followed by a well-planned and an adequately financed Road Maintenance Strategy. In the
absence of such a strategy, roads will deteriorate rapidly, preventing realization of the
longer term impacts of road improvements on social and economic development.
Postponing road maintenance is not a favorable option as it will result in high costs to
the road users. A study has revealed that for every one (01) dollar that a country fails to
spend on road maintenance results in three (03) dollars being spent by road users in
increased VOCs as a result of the poor road conditions (Gwilliam and Shalizi, 1996). The
longer that maintenance is delayed, the more costly it becomes to restore the road to
good condition. The repair costs can rise to six (06) times maintenance costs after three
(03) years of neglect and to eighteen (18) times after five (05) years of neglect. A study
has shown that in Sub-Saharan Africa, for every kilometer of road rehabilitated, an
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estimated three (03) kilometers of roads fall into disrepair, leading to a net deterioration
in the total road network (World Bank, 2003). The situation is similar in many other
developing countries. It is thus imperative that adequate and timely road maintenance is
undertaken. Figure 2-1 shows the effects of delayed maintenance on the road network.
Figure 2-1: Effects of Delayed Maintenance

Source: Hicks, et al., (2000).
In the Zambian situation, there has been an over emphasis on new construction and/or
reconstruction of roads over maintenance. This situation has led to a steady increase in
the backlog of road repairs and a loss of development impact. One major example is the
T002 from Serenje to Nakonde which has not received timely maintenance hence the
deterioration to alarming levels especially for the section between Chinsali and Nakonde
towns. Zambia cannot afford to allow its major regional trunk routes to deteriorate to
such levels. Poor road condition can act as a deterrent to economic development by
increasing the transport costs as well as slowing the progress of regional integration.
Timely application of maintenance is a key component of asset management. Even with

adequate maintenance, pavements will deteriorate over time. The rate of deterioration
will depend on a number of factors including the traffic loading, pavement strength,
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climate and the environment. Eventually the end of a pavement design life will be reached
and there is a need for pavement renewal. This is normally a relatively expensive activity
and should therefore be postponed for as long as possible by carrying out effective and
timely maintenance.
With this in mind, this Road Maintenance Strategy (2015-2024) has been produced to set
a clear pathway for the provision of Road Maintenance services within Zambia. This is in
line with RDA’s statutory mandate (Public Roads Act, 2002), Vision and Mission as
contained in the RDA Strategic Plan (2012-2016).
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3 SITUATION ANALYSIS
3.1 Current Status
According to the 2012 RDA Maintenance Needs Assessment Report, a minimum of

US$721 million needed to be allocated on annual basis between 2012 and 2016 to bring
the CRN to a maintainable condition. Figure 3-1 below shows the actual funding to road
maintenance from 2012 to 2014. The cumulative financing gap for maintenance between
2012 and 2014 amounted to a total of US$1,785.2 million.
800.00 721 721 721

700.00
600.00
US$ million
500.00
400.00
300.00
200.00 156.00 154.40
100.00 67.40
-
.2012 .2013 .2014
Actual (US$ million) Ideal (US$ million)
Figure 3-1: Actual Versus Ideal Maintenance Budget Allocation
From Figure 3-1 above, it can be seen that in 2012, only 22 per cent of the maintenance
budget requirements were met while as little as 9 per cent and 21 percent were met for
the years 2013 and 2014 respectively. As a result of these financing gaps, in 2012 only
8,786.90km of the targeted 18,342.53km of maintenance was achieved (RSAWP, 2013).
3.2 The Fundamental Problem

In order to come up with a RMS, it is important to gain an understanding of the real
problem causing low priority on maintenance. Below are factors that have been
identified to be the main contributors to the maintenance gap on the road network in
Zambia:
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3.2.1 Over emphasis on up-grades and new construction
There has been an over emphasis in carrying out new construction and upgrade works
at the expense of carrying out timely routine and periodic maintenance. This situation
has left the bulk of the CRN unattended to. The worst affected network has been the
PFR network which has not seen any significant improvement in condition and
passability.
3.2.2 Inadequate Maintenance Funding
The budgetary allocations for maintenance are way below the required maintenance
needs. Section 3.1 above clearly describes the financing gap for maintenance for the
period between 2012 and 2014.
3.2.3 Delayed Procurement Process
The protracted procurement process has negatively affected the timely implementation
of maintenance activities on the road network. In addition, the statutory requirement for
the review of contract documentation by the office of the Attorney General has also
contributed to delayed implementation of projects. Delays in the clearing of these
contracts can even take up to 3 or 4 months.
3.2.4 Inadequate RDA Capacity
This refers to inadequate capacity (in terms of low staffing levels in regions, tools such as
maintenance manuals and cycle maintenance equipment) to effectively carry out
maintenance on force account and also monitoring routine and periodic maintenance
activities on the CRN.
3.2.5 Poor Quality of Consultancy Services
The Road sector has of late witnessed dwindling quality of services offered by
Consultants especially in supervision services and defective designs which have resulted
in cost overruns, delayed maintenance due to time extensions and inadequate
monitoring of Contractors.
3.2.6 Inadequate Contractor Capacity
The current pool of local contractors lack technical capacity in carrying out some
maintenance works. This has also resulted in delayed project implementation, cost
overruns and general poor quality of work.
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3.2.7 Poor Maintenance Culture
This is a general culture amongst Zambians to tend to neglect maintenance of any

infrastructure roads inclusive. This Road Maintenance Strategy recommends a paradigm
shift to road maintenance.
3.2.8 Spider web scale
These factors were ranked to determine their weighting on road maintenance in Zambia.
Table 3-1presents the ratings and weighting of the maintenance challenges:
Table 3-1: Maintenance Challenges and Rating

No. Description Rating Spider Web Scale
1 Delayed Procurement Process High 3
2 Inadequate RDA Capacity Medium 2
3 Poor Quality of Consultants’ Medium 2
Service
4 Inadequate Contractor Capacity High 3
5 Inadequate Maintenance Funding High 3
6 Over emphasis on up-grades and High 3
construction
7 Poor Maintenance Culture High 3
These ratings were then mapped on a Spider Web Chart as shown in Figure 3-2below:
Delayed Procurement Process

High
3
2 Inadequate RDA Capacity

Poor Maintenance Culture High
Medium
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Over emphasis on up-grades Poor Quality of Consultants’
and construction High Service Medium
Inadequate Maintenance Funding Inadequate Contractor Capacity

High High
High Medium Low
Figure 3-2 : Mapping of Maintenance Challenges
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4 GOAL OF THE ROAD MAINTENANCE STRATEGY
The primary goal of this RDA Road Maintenance Strategy (RMS) is to ensure that the
Core Road Network is in a maintainable state for sustainable economic growth and
development.
4.1 Main Objectives

The specific objectives for this RMS are:
1. To ensure that 100 per cent of the paved TMD is in good condition by 2024;
2. To ensure greater than 80 per cent of the unpaved TMD is in good condition by
2024;
3. To ensure that greater than 90 per cent of the paved Urban Roads is in good
condition by 2024;
4. To ensure that greater than 80 per cent of the unpaved Urban Roads is in good
condition by 2024;
5. To ensure that greater than 80 per cent of the Primary Feeder Roads is in good
condition by 2024;
6. Ensuring that the Road User Charges are dedicated to road maintenance by
2018;
7. Application of the Output and Performance Based Road Contract system for
road maintenance by 2016; and
8. To create 15,000 new job opportunities annually through the Road Maintenance
Strategy by 2020.
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5 OUTLINE OF THE ROAD MAINTENANCE STRATEGY
Network Definition
Programming and Priorities
Emergency Planning
Road Maintenance Strategy
Asset Management
Performance Management
Maintenance Practices and Procedures
Resource Development and

Management/Funding
Risk Management
Research and Development
Certification of Road Maintenance

Contractors
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6 Network Definition
6.1 Network information

Zambia has a total classified network of 67,671km of public roads comprising Trunk, Main,
District, Primary, Secondary and Tertiary Feeder, Urban and Park Roads. For the purpose of
management of the public roads network, the RDA has delegated some responsibility to Local
Road Authorities in line with Section 20 (1) (2) (3) and Section 73 (1) of the Public Roads Act
No. 12 of 2002. The details of the shared network responsibilities are given in Table 6-1
below:
Table 6-1: Shared Network Responsibility
Road Class1 Responsibility Core Road Network2 Total Surveyed Total Estimated
December 2002 (km) Network (km) Network (km)
Core Roads
Trunk (T) RDA 3,088 3,088 3,088
Main (M) RDA 3,691 3,691 3,691
District (D) RDA 13,707 13,707 13,707
Urban (U) LRAs 5,294 5,625 5,294
Primary Feeder (PF) LRAs 14,333 15,317 15,800
3
Primary Tourist (TR) ZAWA/LRAs - - -
Non-core roads
Secondary Feeder (SF) LRAs - - 10,060
Tertiary Feeder (TF) LRAs - - 4,424
Park Roads ZAWA - - 6,607
Community Roads LRAs - - 5,000
Unclassified roads
Unclassified roads4 LRAs - - 10,000
(UC)
Total 40,113 41,428 77,671
Source: RDA Reclassification Study Report
The RDA is mandated by the Public Roads Act of 2002 to provide care and maintenance for
the entire Public Roads Network as defined under Part II Section 4. However, owing to the
vast size of the network, and limited resources, the RDA has concentrated its efforts on a
1
Road classes according to Road Act 2002
2
Road length assessed in the WB-supported Road sector Investment Programme (RoadSIP) II
3
Road lengths included in the Primary Feeder Roads
4
Estimate of unclassified road network ranges between 7,000 and 10,000. The upper limit has been used in the
above estimate.
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11
rationalized network of 40,454km deemed as the Core Road Network (CRN). The CRN is
defined under the Road SIP II bankable document as the “the barest minimum network which
when improved will spur economic development and contribute to poverty reduction". Consequently,
the RDA has been allocating resources through its Annual Work Plans (AWPs) to the CRN in
order to achieve the main objectives of Road SIP II.
The resources for the AWPs arise from local and external sources. The local resources
comprise the Road Fund (Fuel Levy and Other Road User Charges), Toll Fees and direct
Government funding from the Treasury.
6.2 Road Designation in Zambia

The following designations are adopted for various section of the road network in Zambia:
i) Trunk Roads, denoted by ―T‖ and refers to inter-territorial main roads and
connect Zambia to neighboring countries such as the (T002) -Great North Road
ii) Main Roads denoted by ―M‖ and refers to territorial main roads and connect
provincial centers and major towns within and among provinces such as the
(M009) Lusaka to Mongu;
iii) District Roads denoted by ―D‖ and refers mainly to roads connecting districts and
major settlements within the districts such as the (D769) Mumbwa to Itezhi-Tezhi;
iv) Feeder Roads, which may be Primary or Secondary or Tertiary and are all now
denoted by ―U‖. Before 1998 Feeder Roads Reclassification exercise, these were
referred to as Rural District Roads denoted by ―RD‖ or Rural Roads denoted by
―R‖ or Branch/Estate Roads denoted by ―B‖ and;
v) Urban or Township Roads which did not bear any designation and were identified
only by individual names.
6.3 Condition Status
6.3.1 Condition Criteria
The CRN is in varying levels of condition. The condition is based on a rating criterion that is
used in the Zambia Highway Management System (ZHMS). Condition is reported in terms of
good, fair and poor based on an International Roughness Index (IRI) which is a measure of the
ride quality. The paved road condition is given in Table 6-2.
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Table 6-2: Condition Rating Criteria for Paved Roads

Condition Paved Roads
Roughness (m/km)
Good IRI < 4.5
Fair 4.5 < IRI < 9
Poor IRI >9
Source: 2013 Road Condition Report
The unpaved road condition criteria is given in Table 6-3

Table 6-3: Proposed IRI Condition Criteria
Condition Criteria For unpaved Roads (m/km)
Good IRI < 6
Fair 6 < IRI < 12
Poor IRI > 12
Source: 2013 Road Condition Report
6.3.2 Network Condition
According to a road network condition survey conducted on the CRN in 2013 (RDA
Condition Report, 2013), 85 per cent of the paved TMD network was in good condition while
13 per cent and 2 per cent were in fair and poor condition respectively. Similarly for the
unpaved TMD network, 12 per cent was in good condition while 70 per cent and 18 per cent
was in fair and poor condition respectively.
About 72 per cent of the unpaved Primary Feeder Roads were in poor condition with only 18
and 10 per cent in fair and good condition respectively. The Urban roads on the other hand
recorded 49 per cent in good condition while 32 and 19 per cent was in poor and fair
conditions respectively. Figure 6-1 shows the summary of the CRN condition as of 2013.
Fair Poor Poor Good

13% 2% 18% 12%
Good
85% Fair
70%
Paved TMD Condition Unpaved TMD Condition
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Good Fair Poor Good

10% 18% 32% 49%
Poor Fair
72% 19%
Good Fair Poor Good Fair Poor
Unpaved Primary Feeder Paved Urban Roads

Figure 6-1: Summary of CRN Condition
Source: RDA 2013 Road Condition Report
6.4 Road Infrastructure Condition Assessment

The road infrastructure referred to in this section will include:
i) Roads (paved and unpaved);
ii) Bridges and Drainage structures; and
iii) Road furniture.
6.5 Data Collection

Road condition surveys on the CRN are an important aspect of the maintenance process and
are carried out through the use of a private Consultant. Currently HIMS Limited in
association with SATRA I-MAN is carrying out the road and inventory condition surveys on
the CRN. The ZHMS is a decision support tool designed to aid management in making
maintenance decisions. The RDA has developed the Road Condition Data Collection
Procedures (for road condition and inventory) and the Bridge Inspection Manuals (for bridges)
to govern the collection of condition data on roads and bridges. The Road Condition Data
Collection Manuals describe all the processes involved in the collection of visual condition and
inventory data on the CRN. The Bridge Inspection Manual on the other hand details the type
and frequency of inspections for both minor and major bridges on the CRN.
The data collected on the network during the visual surveys is grouped into the following
categories:
i) Inventory data: Inventory data contains records of assets to be maintained within

the network and their respective locations;
ii) Condition data: Condition data gives an indication of the serviceability of the asset,
or how well it is likely to perform, including defects; and
iii) Traffic data: Data on traffic volume and traffic loading characteristics.
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Condition Surveys
--
Visual Surveys Instrument Surveys
Visual Assessments: Functional Structural

 Surfacing  Riding  Surface
 Structural quality/roughness deflection
 Functional  Skid resistance  Rut depth
Figure 6-2: Road Condition Surveys
Road condition data includes the capture of the visual condition rating data at 500m
intervals for all roads. The condition guidelines are described in Annex 3 of the Data
Collection Procedures Manual for the CRN (DCPM, 2013). Condition data IS collected
using the ROMDAS key code programmable keyboard.
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7 PROGRAMMING AND PRIORITIES
7.1 Maintenance Prioritization

Through this Road Maintenance Strategy, Routine Maintenance activities on the CRN will be
given the first priority in the Road Sector Annual Work Plan (RSAWP), followed by periodic
maintenance and then finally rehabilitation and upgrading works. The reason for this
prioritization is to ensure preservation of the existing road asset which is in a maintainable
condition. All roads in good and fair condition will be placed on routine maintenance. The
timely application of the maintenance activities will be guided by the use of a Road Asset
Management System (RAM). The RAM will draw input from annual road condition surveys.
The prioritization of road maintenance will be based on the following:
 Road classification;
 Traffic volumes; and
 Social economic factors – access to schools, hospitals and public facilities etc
The priority ranking for maintenance on the CRN will be as shown in Table 7-1:
Table 7-1: Network Prioritization

Road Classification Rank Resource allocation Ratio
Trunk, Main and District (TMD) 1 60%
Primary Feeder Roads 2 25%
Urban Roads 3 15%
The annual allocation of the Road Fund for road maintenance will be distributed as outlined in
Table 7.1.
7.2 Prioritization of Maintenance on the TMD network
7.2.1 Routine Maintenance
Routine maintenance activities on the TMD network will be based on three (03) year
Performance Based Contracts (PBC). The criterion for the selection of roads for routine
maintenance will be based on road condition data as analyzed and assessed by the RDA
Planning and Design directorate. All TMDs in good and fair condition will be placed on routine
maintenance (RoadSIP II, 2003). In addition, all newly constructed and rehabilitated roads will
be placed on routine maintenance after completion. The criteria for good and fair for paved
and unpaved TMDs is fully described in Chapter 6, Section 6.3.1, Table 6-2 and Table 6-3
respectively. These contracts will be administered by the Regional Managers.
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7.2.2 Periodic Maintenance
Programming and prioritization of periodic maintenance interventions on the TMD Network

will be achieved through the use of the Zambia Highway Management System, (ZHMS) and the
Highway Development and Management tool (HDM-4). A Maintenance Needs Assessment
Report indicating a priority list of roads and associated investments required to bring the
network into a maintainable condition will be generated annually.
7.3 Prioritization of Maintenance on the Primary Feeder Roads
7.3.1 The Primary Feeder Roads Network
The Primary Feeder Roads Network in Zambia plays a critical role to farming communities in
rural areas by providing access to transportation for the movement of farm produce from
farms sites to marketing centres. They also feed into the Trunk, Main and District Roads
Network. Agriculture is an important part of the livelihoods of many poor people, and it is
frequently argued that agricultural growth is a fundamental pre-requisite for widespread
poverty reduction. Furthermore, the contribution of agriculture to GDP is higher today, than
what it was at independence in 1964. Investment into the improvement of Primary Feeder
Roads can have an impact on poverty through various channels. It can contribute to increased
agricultural productivity, which in turn directly increases farm incomes and helps reduce rural
poverty. Thus improved provision of rural feeder roads can lead to lower transaction and
farm production costs, while facilitating trading of cash crops and fostering long-run economic
growth that contribute to the expansion of the economy.
Over the years, the condition of the Primary Feeder Roads (PFR) has deteriorated
significantly. According to the 2013 Road Network Condition Survey Report about 72 per
cent of the PFR were in poor condition with only 28 per cent in good and fair condition. In
2011, 77 percent of the network was in poor condition. The survey results of 2013 also
showed that only 74.4 per cent of this network is passable by a 2-wheel drive vehicle while
the remaining 25 percent is impassable for the most part of the year. This condition is a
deterrent to the movement of goods and services on these roads thus negatively impacting
agriculture and tourism activities. The PFR network is in dire need of road rehabilitation and
maintenance to guarantee a high degree of passability throughout the year to contribute to
economic development and poverty reduction.
The Government of Zambia is seeking to increase the efficiency and effectiveness with which
the management and maintenance of the PFR network. This is further motivated by the
recognition that the road network constitutes the single largest asset owned by the
Government, and that a less-than-optimal system for the management and maintenance of
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that asset generally results in huge losses for the national economy. This occurs not only in
the form of road deterioration and massive reductions in road asset value, but even more so
in the form of increased vehicle operation costs (VOCs) which have to be borne by road
users and which reduce the competitiveness of any given country in an increasingly global
economy.
This Road Maintenance Strategy Paper has proposed two main measures to deal with the
poor state of the PFR Network. The strategies comprise short to medium and long term
measures.
7.3.2 Short to Medium Term Measures – Appointment of ZNS as Road Authority
Inorder to address the immediate maintenance needs requirements on the PFR network, the
RDA will employ services of the Zambia National Service (ZNS) for the rehabilitation of PFR
in poor condition. The RDA will appoint ZNS as a Local Road Authority (LRA) on the PFR in
accordance with the Public Roads Act No. 12 of 2002 Section 20 (1) (2) (3) and Section 73
(1). In facilitating the services of ZNS, RDA will enter into Memorandum of Understanding
(MoU) with ZNS which will see the purchase and handover of major road equipment through
the 2015 Road Sector Annual Work Plan (RSAWP) by RDA to ZNS. It is estimated that the
short to medium term rehabilitation works by ZNS will cost US$918million while the
maintenance works will cost US$628 million. The programme will cover a total of
9,991km from the total of 15,386km.The remaining network will be covered under the
long term approach which will be discussed in detail in Section 7.33.
The targeted kilometers for rehabilitation and maintenance in the short to medium term is
given in Table 7-2below:
Table 7-2: Short to medium term targets for rehabilitation (ZNS)

Year Target Km Cost Target Km Cost
(Rehab) (US$ million) (Maintenance (US$ million)
Cumulative)
2015 4,000 386 630 19.3
2016 2,800 257 4,630 141
2017 2,000 184 7,430 203
2018 1,191 109 9,430 264
Total 9,991 918 9,430 628
The following are the short to medium strategies:

1. Appoint ZNS as a Road Authority by February 20, 2015 for the period between 2015
to 2018;
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2. Signing of a MOU between RDA and ZNS by March 20, 2015 for the period between
2015 and 2018;
3. ZNS to develop comprehensive short to medium term plan for the rehabilitation and
maintenance of 15,330km of the PFR Network by April 20, 2015; and
4. Allocate resources for purchase of maintenance equipment for use by ZNS on PFR
Network in 2015 RSAWP by October 10, 2014.
The details on how these strategies will be achieved are outlined in Table 7-3.
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Table 7-3: Short to medium term primary feeder roads maintenance strategies
No. Strategies Lead From To Department Supporting How
Agency Responsible Institution
1 Appoint ZNS as a RDA/ZNS 2015 2018 Planning & Design NRFA  Appointment to be done in
Road Authority by accordance with the Public Roads
November 30, Act of 2002
2014 for the
period between
2015 and 2018
2 MOU between RDA 2015 2018 Planning & Ministry of  Planning & Design and Maintenance
RDA and ZNS by Design/Maintenance/ Justice Departments to develop MOU by
February 27, 2015 Legal January 16, 2015
for the period  Legal Department to review MOU
between 2015 and by January 23, 2015
2018  Board Approval of the MOU by
February 6, 2015
 Attorney General‘s office to review
and approve MOU by February 20,
2015
3 ZNS to develop ZNS/RDA 2015 2018 Planning & RRU/MLGH/  RDA/RRU/MLGH/RTSA / to review
comprehensive Design/Maintenance RTSA and approve the plan by ZNS by
short to medium March 31, 2015.
term plan for the

rehabilitation of
15330km of the
PFR Network by
January 31, 2015
for the period
between 2015 and
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20
No. Strategies Lead From To Department Supporting How

2018
4 Allocate resources RDA 2015 2015 Planning & NRFA  NRFA to facilitate release of
for purchase of Design/Commercial & resources
maintenance Technical Services  CTS to purchase equipment by
equipment for use March 30, 2015
by ZNS on PFR  Handover of equipment to ZNS by
Network in 2015 June 5, 2015
RSAWP by
October 10, 2014.
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7.3.3 Long Term Strategy-Output and Performance Based Road Contracts (OPRC)
a) The OPRC Approach
The long- term approach for addressing maintenance needs of the PFR Network is the use of
the Output and Performance Based Road Contracts (OPRC) System. The RDA future
collaboration with the World Bank going forward from the year 2015 is largely focused on a
sustainable maintenance regime for the PFR Network through the use of the OPRC system.
The RDA with funding support from the World Bank intends to roll out the OPRC system on
the PFR Network commencing in the year 2016. This roll out will be preceded by a detailed
design and packaging of the entire PFR Network in 2015.
The OPRC is a concept designed to increase the efficiency and effectiveness of road
maintenance operations. It is designed to ensure that the physical condition of the roads
under contract is adequate for the need of road users, over the entire period of the contract,
which is normally several years. This type of contract significantly expands the role of the
private sector, from the simple execution of works to the management and conservation of
the road assets. This approach will avoid a premature deterioration of road assets in general,
and ensure that road users are accorded a level of service, which is adequate for their needs
and at the same time keeping costs down for providing those service levels.
The following summarizes some of the benefits of the OPRC approach:

 Cost effective reduction in maintenance costs per year;
 More kilometers can be covered;
 consistency in road condition over a period of time;
 Cut down on lengthy procurement process; and
 Increased traffic volumes.
b) Experiences with the OPRC
i. First Generation OPRCs
The RDA has implemented similar contracts in two (02) phases. The first phase or the ‗first
generation‘ took place on a large scale (countrywide) from 2006 to 2010 covering3,372km of
unpaved Main and District Roads. The European Union (EU) had supported the National Road
Fund Agency (NRFA) through a sector budget support facility totalling just over €70 million
released over a 5-year period. The support was targeted at clearing backlog periodic
maintenance on the road network. A total of 11 works contracts were entered into from
2006 to 2010 and work was carried out in all of the then 9 Provinces of Zambia (RDA:1,
2014).
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The works packages were supervised by different Consultants and the Supervision costs were
low at an average of 3.5% of works cost. The average costs were estimated at US$12,400 per
km for rehabilitation and US$2,240 per km per year for maintenance however there were
large variations in the rates between contracts. It was clear that there was a lack of familiarity
with the new concept of OPRC, they were poorly designed, and there was an initial lack of
supervision and little emphasis on maintenance. Despite this, they were a source of steady
employment, the administration costs were low and an impact monitoring exercise carried
out by ASCO in 2009/2010 concluded that despite the obvious weaknesses there was a high
and beneficial impact amongst local communities.
A more detailed analysis of the problems and issues associated with the ‘first generation
OPRCs’ is as follows:
 Poor preparation – The projects were prepared hurriedly with little or no survey
prior to preparation of the bidding documents. As a result, there were inaccuracies in
the bidding documents, which contributed to a lack of understanding and confusion.
Many of the project roads required almost complete reconstruction, which was not
catered for adequately in the documents and led to the failure of at least one contract.
 Packaging – There was a wide variation in the lengths of roads chosen and also a
wide geographical dispersion of the roads. The provision for supervision was the same
for each package irrespective of the length of roads. Clearly there is a lesson to be
learnt regarding the optimal packaging of these contracts in future.
 Prequalification – The Contractors were not prequalified but tendering was
restricted to firms in Category 3 of National Council for Construction (NCC) or
above. In practice there were different approaches to sub-contracting and the use of
Contractor/Consultant joint ventures.
 Pricing – The projects were not balanced in that the majority of the funds were paid
on the improvement works and insufficient funds were left for maintenance. In
addition due consideration was not paid to gravel haulage which is obviously a large
item of cost and some Contractors experienced high costs due to material shortages
in the vicinity.
 Supervision Arrangements – It was certainly not ideal that the Contractors were
appointed before the Consultants and there were different interpretations regarding
the scope of their services and no guidance was given on setting up standard
monitoring procedures between the contracts. The amount of input in terms of man-
days was extremely limited in the Consultancy contracts especially considering the
large distances to be covered.
 Traffic Volume and Composition – There was no consideration given to the
monitoring of the traffic volume and its composition, which could have been quite
easily built-in to the contracts. Instead a separate monitoring contract was carried out.
 Specifications - The adopted performance specifications were limited and
emphasized travel speed as the primary indicator of road quality. Little consideration
was given to road defects such as rutting and corrugations. The target speeds were
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quite low and could be achieved even if the roads were in poor condition. Target road
widths were not achieved in many cases. Lack of definition is clear from the wide
variation in interpretation between contracts.
 Sustainability – It was considered that the average estimated maintenance cost of
US$2,400 per km per year was unsustainable for the National Road Fund Agency
(NRFA) and that further experience of the OPRC approach was required before
valued judgments on value for money can be made. It was considered that annual
maintenance costs would reduce as roads are brought into a stable condition and
Contractors become familiar with OPRC contract.
ii. Second Generation – Agricultural Development Support Programme
In 2006, a grant agreement was signed between the World Bank (WB) and the Government
of the Republic of Zambia (GRZ) for the Agricultural Development Support Programme
(ADSP), which aimed to promote agricultural development through various activities including
the improvement to road infrastructure in targeted districts. The Rural Road Improvement
Facility (RRIF) has been a major component of the ADSP and its objective was to ensure
agricultural development through year-round market access. The maintenance aspect was
built into the project design through the use of long-term OPRC contracts. The project was
managed by the Ministry of Agriculture and Cooperatives and the RDA was the implementing
agency of the RRIF component.
In 2007, Consultants were appointed to carry out a comprehensive design for OPRC
contracts. Lesson learnt from the EU contracts were incorporated into the designs for the
OPRC contracts under ADSP. The Districts chosen for the interventions were
Chipata/Katete (one contract) and Lundazi in Eastern Province, Chongwe in Lusaka Province
and Choma in Southern Province. The Works were packaged into 4 Contracts, each with
150 to 300kms of road and the roads were chosen on the basis of selection by the district
authorities and subsequent survey (including video survey) of the roads.
c) The OPRC Long-term Strategy
The long term strategy is to roll out the OPRC on the PFR Network covering a total of
15,386km countrywide. The objectives of the OPRC Strategy are to ensure:
1. The PFR network is kept in a maintainable condition;
2. To improve accessibility to outlying areas and thereby stimulating agricultural
development; and
3. Jobs are created in rural areas in accordance with Government’s policy on
industrialization and job creation.
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d) The Roll-out Plan
The PFR network will be divided into three (03) main regions as shown in Table 7-4 Table
7-4:for the purpose of the roll out.
Table 7-4: Primary Feeder Roads Network by Region

Region Province Length (km)
OPRC Region I Luapula 1,227.80
Northern 1,865.47
Muchinga 1,419.73
Eastern 2,314.80
OPRC Region II Copperbelt 693.50
N-Western 2,327.50
Lusaka 389.80
OPRC Region III Southern 1,358.10
Western 2,178.20
Central 1,611.30
Total 15,386.20
The prioritization of the Primary Feeder Roads in the allotted regions will be based on a
detailed feasibility study and design which will be carried out independently by Consultants
commencing in Year 1 (2015). The component strategies are detailed in Table 7-6.
Table 7-5: Primary Feeder Roads Network by Region

Year Rehabilitation Cost Maintenance Cost Grand Total
2015 - - -
2016 157,464.34 - 157,464.34
2017 262,440.57 52,488.11 314,928.68
2018 288,003.00 139,968.30 427,971.30
2019 87,781.81 409,648.43 497,430.24
2020 70,225.45 409,648.43 479,873.88
2021 70,225.45 409,648.43 479,873.88
2022 70,225.45 409,648.43 479,873.88
2023 70,225.45 409,648.43 479,873.88
2024 70,225.45 409,648.43 479,873.88
1,146,816.94 2,650,347.00 3,797,163.95
The OPRC Roll out programme is estimated at US$3.8 billion comprising US$1.15 billion
for rehabilitation and US$2.65 billion for maintenance for the period from 2015 to 2024.
The programme will cover the entire network of the PFR network of 15,386km. Detailed
costs are given in Table 7-9.
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Table 7-6: OPRC Roll out strategies

No Strategies Lead From To Department Supporting How
. Agency Responsible Institution
1 Conduct a Feasibility Study, RDA April Nov Planning & World  Procure three Consultants to
Detailed Designs and 2015 2015 Design Bank/NRFA conduct the Study on the
packaging on the Roll out of three zones by March 31,
OPRC contracts on the PFR 2015
Network starting April 2015
to November 2015
2 Establishment of project office RDA 2016 2020 Construction World  Employ personnel following
for the OPRC Roll out and & Bank/NRFA approved project
Management by January 30, Rehabilitation/ management structure. The
2016 Planning & approval will come from RDA
Design Management and the World
Bank
3 Roll out the OPRC contracts RDA 2016 2020 Construction World  Procure Contractors by June
on the PFR Network and Bank/LRAs 30, 2016
Rehabilitation/
Maintenance/P
lanning &
Design
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Road Maintenance Strategy, 2015
2014 - 2014
2024
27
Table 7-7: Short to Medium term Funding Requirements for Maintenance and Rehabilitation of Primary Feeder Roads (ZNS)
2015 2016 2017 2018 Grand Total
Province Rehabilitation Maintenance Rehabilitation Maintenance Rehabilitation Maintenance Rehabilitation Maintenance Rehabilitation Maintenance
Cost US$'000 Cost US$'000 Cost US$'000 Cost US$'000 Cost US$'000 Cost US$'000 Cost US$'000 Cost US$'000 Cost US$'000 Cost US$'000
Central 33,062.74 2,241.08 23,143.92 13,261.99 16,531.37 18,772.45 9,847.69 24,282.90 82,585.71 58,558.42
Copperbelt 14,587.80 524.71 10,211.46 5,387.31 7,293.90 7,818.61 4,344.96 10,249.91 36,438.12 23,980.53
Eastern 47,574.59 3,125.43 33,302.22 18,983.62 23,787.30 26,912.72 14,170.03 34,841.82 118,834.13 83,863.59
Luapula 26,515.51 82.06 18,560.85 8,920.56 13,257.75 13,339.81 7,897.61 17,759.07 66,231.72 40,101.51
Lusaka 7,818.76 763.09 5,473.13 3,369.35 3,909.38 4,672.47 2,328.81 5,975.60 19,530.08 14,780.51
Muchinga 28,672.28 2,539.79 20,070.59 12,097.22 14,336.14 16,875.93 8,540.00 21,654.64 71,619.01 53,167.59
Northern 39,123.04 1,555.57 27,386.12 14,596.58 19,561.52 21,117.09 11,652.74 27,637.60 97,723.42 64,906.84
Northwestern 49,192.24 1,474.26 34,434.57 17,871.67 24,596.12 26,070.38 14,651.84 34,269.09 122,874.77 79,685.40
Southern 26,153.36 3,996.57 18,307.35 12,714.36 13,076.68 17,073.25 7,789.74 21,432.14 65,327.13 55,216.33
Western 46,792.56 450.24 32,754.79 16,047.76 23,396.28 23,846.52 13,937.10 31,645.28 116,880.73 71,989.79
Equipment 15,847.86 - - - - - - - -
Total 335,340.73 16,752.80 223,645.01 123,250.42 159,746.43 176,499.23 95,160.52 229,748.05 798,044.83 546,250.50
Supervision Costs 16,767.04 837.64 11,182.25 6,162.52 7,987.32 8,824.96 4,758.03 11,487.40 39,902.24 27,312.53
Operational Cost 33,534.07 1,675.28 22,364.50 12,325.04 15,974.64 17,649.92 9,516.05 22,974.80 79,804.48 54,625.05
Grand Total 385,641.84 19,265.72 257,191.76 141,737.99 183,708.40 202,974.12 109,434.59 264,210.25 917,751.55 628,188.08
Source: RDA Estimates, 2014

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Table 7-8: Short to Medium Target Kilometers for Maintenance and Rehabilitation of Primary Feeder Roads (ZNS)
2015 2016 2017 2018 Grand Total
Province Rehab Mtce Rehab Mtce Rehab Mtce Rehab Mtce Rehab Mtce
Km Km Km Km Km Km Km Km Km Km
Central 414 84 290 498 207 705 123 912 1034 912
Copperbelt 183 20 128 202 91 294 54 385 456 385
Eastern 596 117 417 713 298 1011 177 1309 1488 1309
Luapula 332 3 232 335 166 501 99 667 829 667
Lusaka 98 29 69 127 49 176 29 224 245 224
Muchinga 359 95 251 454 179 634 107 813 897 813
Northern 490 58 343 548 245 793 146 1038 1223 1038
Northwestern 616 55 431 671 308 979 183 1287 1538 1287
Southern 327 150 229 478 164 641 98 805 818 805
Western 586 17 410 603 293 896 174 1189 1463 1189
Grand Total 4000 629 2800 4629 2000 6629 1191 8629 9991 8629
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Table 7-9: Long term Funding Requirements for rehabilitation of Primary Feeder Roads – OPRC
2016 2017 2018 2019 2020
Rehab Mtce Rehab Mtce Rehab Mtce Rehab Mtce Rehab Mtce
Province
Cost Cost Cost Cost Cost Cost Cost Cost Cost Cost
US$'000 US$'000 US$'000 US$'000 US$'000 US$'000 US$'000 US$'000 US$'000 US$'000
Central 14,169.74 - 23,616.24 4,723.25 28,091.16 12,595.33 9,192.84 42,899.90 7,354.27 42,899.90
Copperbelt 6,251.92 - 10,419.86 2,083.97 10,405.30 5,557.26 3,956.58 18,464.03 3,165.26 18,464.03
Eastern 20,389.11 - 33,981.85 6,796.37 39,995.30 18,123.65 13,206.47 61,630.17 10,565.17 61,630.17
Luapula 11,363.79 - 18,939.65 3,787.93 15,177.44 10,101.15 7,004.88 32,689.45 5,603.90 32,689.45
Lusaka 3,350.90 - 5,584.83 1,116.97 7,642.14 2,978.57 2,223.90 10,378.19 1,779.12 10,378.19
Muchinga 12,288.12 - 20,480.20 4,096.04 26,916.50 10,922.77 8,099.88 37,799.46 6,479.91 37,799.46
Northern 16,767.02 - 27,945.03 5,589.01 28,541.80 14,904.01 10,642.94 49,667.04 8,514.35 49,667.04
Northwestern 21,082.39 - 35,137.31 7,027.46 33,823.36 18,739.90 13,278.92 61,968.30 10,623.14 61,968.30
Southern 11,208.58 - 18,680.97 3,736.19 31,751.43 9,963.18 7,748.27 36,158.61 6,198.62 36,158.61
Western 20,053.95 - 33,423.26 6,684.65 28,092.95 17,825.74 12,427.13 57,993.28 9,941.71 57,993.28
Total 136,925.52 - 228,209.19 45,641.84 250,437.39 121,711.57 87,781.81 409,648.43 70,225.45 409,648.43
Supervision
6,846.28 - 11,410.46 2,282.09 12,521.87 6,085.58 4,389.09 20,482.42 3,511.27 20,482.42
Costs
Operational
13,692.55 - 22,820.92 4,564.18 25,043.74 12,171.16 8,778.18 40,964.84 7,022.54 40,964.84
Cost
Grand Total 157,464.34 - 262,440.57 52,488.11 288,003.00 139,968.30 100,949.08 471,095.70 80,759.26 471,095.70
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Long term Funding Requirements for rehabilitation of Primary Feeder Roads – OPRC cont’d
2021 2022 2023 2024 Grand Total
Rehab Mtce Rehab Mtce Rehab Mtce Rehab Mtce Rehab Mtce
Province
Cost Cost Cost Cost Cost Cost Cost Cost
Cost US$'000 Cost US$'000
US$'000 US$'000 US$'000 US$'000 US$'000 US$'000 US$'000 US$'000
Central 7,354.27 42,899.90 7,354.27 42,899.90 7,354.27 42,899.90 7,354.27 42,899.90 111,841.33 274,718.01
Copperbelt 3,165.26 18,464.03 3,165.26 18,464.03 3,165.26 18,464.03 3,165.26 18,464.03 46,859.96 118,425.38
Eastern 10,565.17 61,630.17 10,565.17 61,630.17 10,565.17 61,630.17 10,565.17 61,630.17 160,398.60 394,701.07
Luapula 5,603.90 32,689.45 5,603.90 32,689.45 5,603.90 32,689.45 5,603.90 32,689.45 80,505.28 210,025.75
Lusaka 1,779.12 10,378.19 1,779.12 10,378.19 1,779.12 10,378.19 1,779.12 10,378.19 27,697.36 66,364.70
Muchinga 6,479.91 37,799.46 6,479.91 37,799.46 6,479.91 37,799.46 6,479.91 37,799.46 100,184.24 241,815.58
Northern 8,514.35 49,667.04 8,514.35 49,667.04 8,514.35 49,667.04 8,514.35 49,667.04 126,468.52 318,495.24
Northwestern 10,623.14 61,968.30 10,623.14 61,968.30 10,623.14 61,968.30 10,623.14 61,968.30 156,437.67 397,577.19
Southern 6,198.62 36,158.61 6,198.62 36,158.61 6,198.62 36,158.61 6,198.62 36,158.61 100,382.34 230,651.01
Western 9,941.71 57,993.28 9,941.71 57,993.28 9,941.71 57,993.28 9,941.71 57,993.28 143,705.82 372,470.07
Total 70,225.45 409,648.43 70,225.45 409,648.43 70,225.45 409,648.43 70,225.45 409,648.43 1,054,481.13 2,625,243.99
Supervision
3,511.27 20,482.42 3,511.27 20,482.42 3,511.27 20,482.42 3,511.27 20,482.42 52,724.06 131,262.20
Costs
Operational
7,022.54 40,964.84 7,022.54 40,964.84 7,022.54 40,964.84 7,022.54 40,964.84 105,448.11 262,524.40
Cost
Grand Total 80,759.26 471,095.70 80,759.26 471,095.70 80,759.26 471,095.70 80,759.26 471,095.70 1,212,653.30 3,019,030.59
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Table 7-10: Long term Target Kilometers for rehabilitation and maintenance of Primary Feeder Roads – OPRC
2016 2017 2018 2019 2020
Central 124.18 - 206.97 124.18 246.19 331.15 80.57 1,611.30 - 1,611.30
Copperbelt 54.79 - 91.32 54.79 91.19 146.11 34.68 693.50 27.74 693.50
Eastern 178.69 - 297.81 178.69 350.51 476.50 115.74 2,314.80 92.59 2,314.80
Luapula 99.59 - 165.98 99.59 133.01 265.58 61.39 1,227.80 49.11 1,227.80
Lusaka 29.37 - 48.94 29.37 66.97 78.31 19.49 389.80 15.59 389.80
Muchinga 107.69 - 179.49 107.69 235.89 287.18 70.99 1,419.73 56.79 1,419.73
Northern 146.94 - 244.91 146.94 250.14 391.85 93.27 1,865.47 74.62 1,865.47
Northwestern 184.76 - 307.94 184.76 296.42 492.70 116.38 2,327.50 93.10 2,327.50
Southern 98.23 - 163.72 98.23 278.27 261.95 67.91 1,358.10 54.32 1,358.10
Western 175.75 - 292.92 175.75 246.20 468.67 108.91 2,178.20 87.13 2,178.20
Grand 1,200.00 - 2,000.00 1,200.00 2,194.81 3,200.00 769.31 15,386.20 551.00 15,386.20
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Table 7-11: Long term Target Kilometers for rehabilitation and maintenance of Primary Feeder Roads – OPRC Cont’d
2021 2022 2023 2024 Grand Total
Central 64.45 1,611.30 64.45 1,611.30 64.45 1,611.30 64.45 1,611.30 851.26 1,611.30
Copperbelt 27.74 693.50 27.74 693.50 27.74 693.50 27.74 693.50 382.94 693.50
Eastern 92.59 2,314.80 92.59 2,314.80 92.59 2,314.80 92.59 2,314.80 1,313.12 2,314.80
Luapula 49.11 1,227.80 49.11 1,227.80 49.11 1,227.80 49.11 1,227.80 656.43 1,227.80
Lusaka 15.59 389.80 15.59 389.80 15.59 389.80 15.59 389.80 227.14 389.80
Muchinga 56.79 1,419.73 56.79 1,419.73 56.79 1,419.73 56.79 1,419.73 821.21 1,419.73
Northern 74.62 1,865.47 74.62 1,865.47 74.62 1,865.47 74.62 1,865.47 1,033.74 1,865.47
Northwestern 93.10 2,327.50 93.10 2,327.50 93.10 2,327.50 93.10 2,327.50 1,277.90 2,327.50
Southern 54.32 1,358.10 54.32 1,358.10 54.32 1,358.10 54.32 1,358.10 825.42 1,358.10
Western 87.13 2,178.20 87.13 2,178.20 87.13 2,178.20 87.13 2,178.20 1,172.29 2,178.20
Grand total 615.45 15,386.20 615.45 15,386.20 615.45 15,386.20 615.45 15,386.20 8,561.46 15,386.20
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7.4 Prioritization of Maintenance on the Urban Roads Network
7.4.1 Network Condition
There has been a remarkable improvement in the condition of the paved urban road network
from 15 per cent good, 16 per cent fair and 69 per cent poor in 2009 to 49 per cent good, 19
per cent fair and 32 per cent poor in 2013 (RDA Condition Report, 2013). Figure 7-1 shows
the trend in condition of the paved urban road network. The improvement in the condition of
the urban road network can be attributed to the accelerated urban road rehabilitation
programmes that have been implemented on the urban road network from 2009 to date by
the RDA. However, there is still an increased need to preserve the investment that has been
made on the urban road network.
80
70
60
Condition (%)
50
40
30
20
10
0
2009 2011 2013
Good Fair Poor
Figure 7-1: Paved Urban Condition
7.4.2 The Urban Road Network on the CRN
The composition of the Urban Roads on the CRN is given in Table 7-12
Table 7-12: Urban Road Network on the CRN
Province Length (Km)
Lusaka 1,663.50
Western 149.30
Northwestern 228.38
Copperbelt 2,118.40
Central 229.79
Southern 325.50
Luapula 201.04
Northern/ Muchinga 185.44
Eastern 192.38
Total 5,293.73
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34
7.4.3 Urban Road Network Management
The planning, maintenance and management of the urban roads was delegated to Local
Authorities (City, Municipal and District Councils) in 2006, which fall under the Ministry of
Local Government and Housing (MLGH). The then Ministry of Works and Supply (MWS) had
signed a Memorandum of Understanding (MoU) with the Ministry of Local Government and
Housing (MLGH) in 2006 for the planning, maintenance and coordination of both Urban and
Feeder Roads in the Country. The MoU had spelt out the working relationships for RDA,
MLGH and the LRAs. This MoU has not been entirely effective ever since it was signed. The
following challenges have been experienced:
 Uncoordinated planning for maintenance and rehabilitation of Urban Roads (including

feeder roads);
 Lack of capacity of the appointed LRAs;
 The MoU does not impose any legal implications on either parties in case of default;
and
 Lack of maintenance standards, manuals and procedures for the urban and feeder
roads.
In addition to the challenges listed above, the financial capacities of these local road
authorities are also very limited and cannot fully support the construction, rehabilitation and
maintenance of roads under their jurisdiction. Councils collect revenue from rates and other
sources, but this income is barely sufficient to pay wages and salaries of their workers. This
situation has caused most of the urban roads to deteriorate to levels where most have not
been maintained for some considerable time.
MLGH, in an effort to compliment limited capacity of the Local Road Authorities, appointed
10 principal engineers to assist in the planning and execution of maintenance activities in the
respective regions. The RDA also has senior engineers in all the 10 provinces that are
responsible for coordinating activities for the Local Road Authorities. The organization
structure for the management of the urban roads is given in Figure 7-2.
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35
RDA
MLGH
REGIONAL PRINCIPAL
MANAGERS ENGINEER-DHID
SENIOR LOCAL ROAD

ENGINEERS AUTHORITIES
Figure 7-2: Urban Road Network Coordination
The lack of adequate funding for maintenance has also been supplemented through provisions
in the RDA Annual Work Plans (AWPs). Though, there have been these measures to address
the limited institutional capacity in funding and skills, there still remain a challenge in the
coordination of planning and maintenance activities for the urban road network. This lack of
institutional capacity by the Local Road Authorities has resulted in the RDA undertaking
maintenance activities on urban roads despite the delegated authority that has been granted.
The lack of adequate maintenance on urban roads has continued to escalate VOCs and the
cost of road transport related services. This has also contributed to the increased cost of
production. In addition to the input and VOCs; there are the added costs of accidents and
travel time. All these factors have a negative impact on the nations GDP.
7.4.4 Prioritisation of Urban Roads
There is currently no formal rational system for the prioritization of urban roads for
maintenance. There are no decision support systems to support how funds are been
distributed for maintenance of the urban roads on the CRN. Under this Road Maintenance
Strategy, a multi criteria approach for prioritization of maintenance activities on the urban
roads network will be used based on the following:
1. Road Condition;
2. Ranking of Town/City:
a) Cities
b) Provincial headquarters
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36
c) Municipalities
d) Districts
3. Traffic volumes;
4. Access to social amenities;
5. Economic activities/potential;
6. Resource envelopes; and
7. Political input.
There currently a total of 103 Councils out of which 72 have been appointed as Local Road
Authorities. There is need to capacitate the LRAs with decision support systems that will
incorporate the multi-criteria approach highlighted above to assist in the prioritization
process. The decision support systems will assist in the development of short, medium and
long term maintenance plans. Figure 7-3 shows how the prioritization process will be
actualized in this Road Maintenance Strategy.
RDA Reviews
Consolidates the
Short, Medium and MLGH
Long Term Plans
Priority List
Decision Support System-

for Priority List
Principal Engineer- LRA RDA Senior Engineers

DHID
Figure 7-3: Prioritization for Urban Roads
All roads that are in good and fair condition will be placed on routine maintenance in order to
preserve the investments into the road asset. The urban roads network will be split into
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37
zones. The Local Road Authorities will spearhead the process of zoning the roads. A system
of area maintenance contracts will be used on the zones. The area maintenance contracts will
employ a performance based approach similar to the OPRC system. The Urban Roads
Maintenance activities will be managed and coordinated by Local Road Authorities in
collaboration with the RDA as shown in Figure 7-4.
LOCAL ROAD
AUTHORITY
ZONE -2 ZONE -N
ZONE -1
Consultant/Contractor Consultant/Contractor Consultant/Contractor
Figure 7-4: Implementation of Maintenance on the Urban Road Network
38
38
Table 7-13: Implementation Strategy for the Urban Roads Network

Lead Department Supporting
Nr Strategies From To How
1 Formulation of RDA/MLGH December March Planning & MTWSC/MoJ  Planning and Design to draft
Statutory 2014 2015 Design/ SI by December 31, 2014
Instrument (SI) to Maintenance/  Legal Department to review
replace the MoU SI by January 15, 2015
Legal
that will detail the  SI presented to the RDA
planning, Board for approval by January
30, 2015
maintenance and
 SI sent to MTWSC for
coordination of the
approval and presentation to
management of the
Cabinet by February 6, 2015
urban and feeder
 Cabinet Approval by March
roads 16, 2015
 Formal publication of SI by
MoJ by March 31, 2015
2 Enhancement of MTWSC/ML 2015 2024 Planning & EU Sector  Training of Local Road
capacity of Local GH/RDA Design Budget Authorities
Road Authorities Support  Production of Manuals and
through short and standards for maintenance
 Improvement of working
long term capacity

building conditions for LRAs
programmes  Staff recruitments to match
responsibility
supported by
Government and
the EU as well as
39
39
recruitment of
personnel
3 Zoning of Urban RDA/MLGH Maintenance/Pla MLGH/NRFA  Procure Consultant for
areas for area /LRAs nning & Design zoning and packaging of
maintenance maintenance contracts by
contracts June 30, 2015
 Procuring of Supervision
Consultants by March 30,
2016
 Procuring of Works
Contractors by March
30,2016
40
40
Road Maintenance Strategy, 2015
2014 - 2014
2024
42
41
Table 7-14: Funding Requirements for the rehab of paved urban roads
Total Rehab Cost (ZMW mn)
Total Rehab
2015 2016 2017 2018 2019 2020
Rehab
Poor
cost per
No. Province Condition
km
(km)
(US$'000)
Cost
Cost
Cost
Cost
Cost
Cost
Cost
(US$'000)
(US$'000)
(US$'000)
(US$'000)
(US$'000)
(US$'000)
(US$'000)
Length (km)
Length (km)
Length (km)
Length (km)
Length (km)
Length (km)
Length (km)
1 Lusaka 112 396 56 22,187 56 22,187 - - - - - - - - 112 44,374

2 Copperbelt 545 396 91 35,988 91 35,988 91 35,988 91 35,988 91 35,988 91 35,988 545 215,927
3 Eastern 14 396 14 5,547 - - - - - - - - - - 14 5,547
4 Southern 51 396 51 20,206 - - - - - - - - - - 51 20,206
5 Western 2 396 2 792 - - - - - - - - - - 2 792
North
6 2 396 2 792 - - - - - - - - - - 2 792
Western
7 Northern 54 396 54 21,395 - - - - - - - - - - 54 21,395
8 Muchinga 3 396 3 1,189 - - - - - - - - - - 3 1,189
9 Central 85 396 43 16,838 43 16,838 - - - - - - - - 85 33,677
10 Luapula 4 396 4 1,585 - - - - - - - - - - 4 1,585
Total Works 872 319 126,519 189 75,013 35,988 35,988 35,988 35,988 872 345,483
Supervision Cost
6,326 3,751 - 1,799 - 1,799 - 1,799 1,799 17,274
(5%)
Grand Total 78,764 37,787 - 37,787 37,787 872 362,758
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42
2015 2016 2017 2018
Periodic Routine Periodic Routine Periodic Routine Periodic Routine
No. Province
Length Cost Cost Length Cost Cost Cost Cost Cost Cost
Length (km) Length (km)
(km) (US$'000) (US$'000) (km) (US$'000) (US$'000) (US$'000) (US$'000) (US$'000) (US$'000)
1 Central 17.40 1,516.45 596.21 83.72 - 2,093.12 139.72 - 3,493.12 139.72 - 3,493.12
Copperbe
2 183.59 16,001.88 7,442.19 572.11 - 14,302.65 662.94 - 16,573.49 753.77 - 18,844.32
lt
3 Eastern 20.06 1,748.81 22.50 34.96 - 874.09 34.96 - 874.09 34.96 - 874.09
4 Luapula 9.15 797.57 92.96 63.87 - 1,596.72 63.87 - 1,596.72 63.87 - 1,596.72
5 Lusaka 102.00 8,890.73 10,896.82 539.87 - 13,496.84 539.87 - 13,496.84 539.87 - 13,496.84
6 Muchinga 6.76 589.57 25.00 9.76 - 244.10 9.76 - 244.10 9.76 - 244.10
7 Northern 13.44 1,171.56 180.83 74.67 - 1,866.85 74.67 - 1,866.85 74.67 - 1,866.85
Northwes
8 9.24 805.14 177.54 19.34 - 483.46 19.34 - 483.46 19.34 - 483.46
tern
9 Southern 82.55 7,195.63 1,927.34 185.40 - 4,634.90 211.14 - 5,278.62 211.14 - 5,278.62
10 Western 10.25 893.68 478.25 33.38 - 834.57 33.38 - 834.57 33.38 - 834.57
Total Works 454.45 39,611.02 21,839.63 1,617.09 - 40,427.30 1,789.67 - 44,741.86 1,880.51 - 47,012.69
Supervision
1,980.55 1,091.98 - 2,021.37 - 2,237.09 - 2,350.63
Cost (5%)
Grand Total 454.45 41,591.57 22,931.61 1,617.09 - 42,448.67 1,789.67 - 46,978.95 1,880.51 - 49,363.32
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Table 7-16: Long term Funding Requirements for Maintenance of Paved Urban Roads Cont’d
2019 2020 2021
Periodic Routine Periodic Routine Periodic Routine
No. Province
Length Cost Cost Cost Cost Cost Cost
Length (km) Length (km)
(km) (US$'000) (US$'000) (US$'000) (US$'000) (US$'000) (US$'000)
1 Central 139.72 6,089.43 1,746.56 89.67 6,089.43 1,746.56 126.20 - 3,155.08

2 Copperbelt 844.61 36,809.30 10,557.58 82.00 36,809.30 12,828.41 1,026.04 - 25,650.92
3 Eastern 34.96 1,523.77 437.05 34.96 1,523.77 437.05 34.73 - 868.16
4 Luapula 63.87 2,783.50 798.36 63.87 2,783.50 798.36 16.57 - 414.32
5 Lusaka 539.87 23,528.56 6,748.42 539.87 23,528.56 6,748.42 649.52 - 16,238.08
6 Muchinga 9.76 425.53 122.05 9.76 425.53 122.05 10.91 - 272.75
7 Northern 74.67 3,254.41 933.42 74.67 3,254.41 933.42 75.08 - 1,876.95
8 Northwestern 19.34 842.81 241.73 19.34 842.81 241.73 18.34 - 458.52
9 Southern 211.14 9,202.03 2,639.31 211.14 9,202.03 2,639.31 211.14 - 5,278.62

10 Western 33.38 1,454.88 417.29 33.38 1,454.88 417.29 31.71 - 792.72
Total Works 1,971.34 85,914.22 24,641.76 1,158.68 85,914.22 26,912.60 2,200.24 - 55,006.11
Supervision Cost
4,295.71 1,232.09 4,295.71 1,345.63 - 2,750.31
(5%)
Grand Total 1,971.34 90,209.94 25,873.85 1,158.68 90,209.94 28,258.22 2,200.24 - 57,756.42
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Table 7-17: Long term Funding Requirements for Maintenance of Paved Urban Roads Cont’d
2022 2023 2024 Total Maintenance
Periodic Routine Periodic Routine Periodic Routine Routine Periodic
No. Province
Overall Overall
Length Cost Cost Length Cost Cost Length Cost Cost Length
(km) (US$'000) (US$'000) (km) (US$'000) (US$'000) (km) (US$'000) (US$'000)
Cost Cost
(km)
(US$) (US$)
1 Central 126 - 3,155 126 - 3,155 126 - 3,155 126 25,789 13,695
2 Copperbelt 1,026 - 25,651 1,026 - 25,651 1,026 - 25,651 1,026 183,152 89,620
3 Eastern 35 - 868 35 - 868 35 - 868 35 6,991 4,796
4 Luapula 17 - 414 17 - 414 17 - 414 17 8,137 6,365
5 Lusaka 650 - 16,238 650 - 16,238 650 - 16,238 650 129,836 55,948
6 Muchinga 11 - 273 11 - 273 11 - 273 11 2,092 1,441
7 Northern 75 - 1,877 75 - 1,877 75 - 1,877 75 15,156 7,680
8 Northwestern 18 - 459 18 - 459 18 - 459 18 3,945 2,491
9 Southern 211 - 5,279 211 - 5,279 211 - 5,279 211 43,513 25,600
10 Western 32 - 793 32 - 793 32 - 793 32 6,987 3,803
Total Works 2,200 - 55,006 2,200 - 55,006 2,200 - 55,006 2,200 425,600 211,439
Supervision Cost
- 2,750 - 2,750 - 2,750 21,280 10,572
(5%)
Grand Total 2,200 - 57,756 2,200 - 57,756 2,200 - 57,756 2,200 446,880 222,011
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Table 7-18: Funding Requirements for the upgrades and maintenance unpaved urban roads
2015 2016 2017
Routine Upgrade Routine Upgrade Routine Upgrade
No. Province Length Length Length Length Length

(km) RM (km) UPG(km) RM (km) UPG(km)
Cost
Cost
Cost
Cost
Cost
Cost
(US$'000)
(US$'000)
(US$'000)
(US$'000)
(US$'000)
(US$'000)
1 Central 46.93 1,220.13 - 46.93 76.95 1,220.13 38,475.62 76.95 100.42 1,923.78 50,207.62
2 Copperbelt 168.33 4,376.50 - 168.33 94.17 4,376.50 47,086.39 94.17 178.34 2,354.32 89,168.14
3 Eastern 38.30 995.92 - 17.48 46.84 454.43 23,418.23 46.84 65.99 1,170.91 32,994.41
4 Luapula 11.43 297.07 - 11.43 35.88 297.07 17,940.98 35.88 41.59 897.05 20,797.41
5 Lusaka 105.81 2,751.02 - 97.39 81.45 2,532.21 40,723.44 81.45 134.35 2,036.17 67,175.54
6 Muchinga 27.04 703.08 - 16.93 36.62 440.30 18,311.17 36.62 50.14 915.56 25,071.59
7 Northern 24.77 644.07 - 16.42 24.87 426.84 12,433.33 24.87 37.25 621.67 18,626.33
8 Northwestern 25.07 651.76 - 22.62 33.06 588.14 16,530.82 33.06 45.60 826.54 22,797.72
9 Southern 256.12 6,659.22 - 256.12 63.55 6,659.22 31,776.63 63.55 191.62 1,588.83 95,807.63
10 Western 33.23 863.98 - 31.13 18.85 809.35 9,425.78 18.85 35.47 471.29 17,733.28
Total Works 737.03 19,162.76 - 684.78 512.24 17,804.20 256,122.40 512.24 880.76 12,806.12 440,379.67
Supervision Cost (5%) 958.14 - 890.21 12,806.12 640.31 22,018.98
Grand Total 737.03 20,120.89 - 684.78 512.24 18,694.41 268,928.51 512.24 880.76 13,446.43 462,398.65
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Table 7-19: Funding Requirements for the upgrades and maintenance unpaved urban roads Cont’d
2018 2019 2020
No. Province Routine Upgrade Routine Upgrade Routine Upgrade
Length Length Length Length

RM (km) UPG(km) RM (km) RM (km)
Cost
Cost
Cost
Cost
Cost
Cost
(US$'000)
(US$'000)
(US$'000)
(US$'000)
(US$'000)
(US$'000)
1 Central
177.37 100.42 1,923.78 50,207.62 277.78 6,944.54 - 277.78 6,944.54 -
2 Copperbelt
272.51 178.34 2,354.32 89,168.14 450.85 11,271.13 47,086.39 545.02 13,625.45 47,086.39
3 Eastern
112.83 65.99 1,170.91 32,994.41 178.81 4,470.35 - 178.81 4,470.35 -
4 Luapula
77.48 41.59 897.05 20,797.41 119.07 2,976.79 - 119.07 2,976.79 -
5 Lusaka
215.80 134.35 2,036.17 67,175.54 350.15 8,753.73 40,723.44 431.60 10,789.90 40,723.44
6 Muchinga
86.77 50.14 915.56 25,071.59 136.91 3,422.72 - 136.91 3,422.72 -
7 Northern
62.12 37.25 621.67 18,626.33 99.37 2,484.30 - 99.37 2,484.30 -
8 Northwestern
78.66 45.60 826.54 22,797.72 124.25 3,106.31 - 124.25 3,106.31 -
9 Southern
255.17 191.62 1,588.83 95,807.63 446.78 11,169.59 31,776.63 510.34 12,758.43 31,776.63
10 Western
54.32 35.47 471.29 17,733.28 89.78 2,244.62 - 89.78 2,244.62 -
Total Works
1,393.00 880.76 12,806.12 440,379.67 2,273.76 56,844.09 119,586.46 2,512.94 62,823.41 119,586.46
Supervision Cost (5%)

640.31 22,018.98 2,842.20 5,979.32 3,141.17 5,979.32
Grand Total
1,393.00 880.76 13,446.43 462,398.65 2,273.76 59,686.29 125,565.78 2,512.94 65,964.58 125,565.78
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No. Province 2021 2022 2023
Routine Upgrade Routine Upgrade Routine Upgrade
Length Length Length Length Length Length

RM (km) UPG(km) RM (km) UPG(km) RM (km) UPG(km)
Cost
Cost
Cost
Cost
Cost
Cost
(US$'000)
(US$'000)
(US$'000)
(US$'000)
(US$'000)
(US$'000)
1 Central 277.78 - 6,944.54 - 277.78 - 6,944.54 - 277.78 - 6,944.54 -

2 Copperbelt 639.19 94.17 15,979.77 47,086.39 733.36 94.17 18,334.09 47,086.39 827.54 94.17 20,688.41 47,086.39
3 Eastern 178.81 - 4,470.35 - 178.81 - 4,470.35 - 178.81 - 4,470.35 -
4 Luapula 119.07 - 2,976.79 - 119.07 - 2,976.79 - 119.07 - 2,976.79 -
5 Lusaka 513.04 81.45 12,826.07 40,723.44 594.49 81.45 14,862.24 40,723.44 675.94 - 16,898.42 -
6 Muchinga 136.91 - 3,422.72 - 136.91 - 3,422.72 - 136.91 - 3,422.72 -
7 Northern 99.37 - 2,484.30 - 99.37 - 2,484.30 - 99.37 - 2,484.30 -
8 Northwestern 124.25 - 3,106.31 - 124.25 - 3,106.31 - 124.25 - 3,106.31 -
9 Southern 573.89 - 14,347.26 - 573.89 - 14,347.26 - 573.89 - 14,347.26 -
10 Western 89.78 - 2,244.62 - 89.78 - 2,244.62 - 89.78 - 2,244.62 -
Total Works 2,752.11 175.62 68,802.73 87,809.83 2,927.73 175.62 73,193.22 87,809.83 3,103.35 94.17 77,583.72 47,086.39
Supervision Cost
3,440.14 4,390.49 3,659.66 4,390.49 3,879.19 2,354.32
(5%)
Grand Total 2,752.11 175.62 72,242.87 92,200.32 2,927.73 175.62 76,852.89 92,200.32 3,103.35 94.17 81,462.90 49,440.71
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2024 Grand Total
Routine Upgrade Routine Upgrading
No. Province Length Length
RM (km) UPG(km) Cost Cost Length Cost Length
Cost US$'000
(US$'000) (US$'000) (km) US$'000 (km)
1 Central 277.78 - 6,944.54 - 277.78 46,031.29 277.78 138,890.85

2 Copperbelt 921.71 94.17 23,042.73 47,086.39 921.71 114,048.92 1,015.88 507,941.00
3 Eastern 178.81 - 4,470.35 - 178.81 29,443.38 178.81 89,407.05
4 Luapula 119.07 - 2,976.79 - 119.07 19,351.93 119.07 59,535.80
5 Lusaka 675.94 - 16,898.42 - 675.94 88,348.17 675.94 337,968.30
6 Muchinga 136.91 - 3,422.72 - 136.91 22,595.25 136.91 68,454.35
7 Northern 99.37 - 2,484.30 - 99.37 16,598.38 99.37 49,686.00
8 Northwestern 124.25 - 3,106.31 - 124.25 20,704.31 124.25 62,126.25
9 Southern 573.89 - 14,347.26 - 573.89 96,224.33 573.89 286,945.15
10 Western 89.78 - 2,244.62 - 89.78 15,612.33 89.78 44,892.35
Total Works 3,197.52 94.17 79,938.04 47,086.39 3,197.52 468,958.28 3,291.69 1,645,847.10
Supervision Cost (5%) 3,996.90 2,354.32 23,447.91 82,292.36
Grand Total 3,197.52 94.17 83,934.94 49,440.71 3,197.52 492,406.19 3,291.69 1,728,139.46
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7.5 Bridge Maintenance Prioritization
Bridges are an integral part of the existing CRN. However, many of Zambia’s bridges are also
in excess of forty years old and it has become common, in recent years, for areas of the
country to become inaccessible due to bridge failures in rural areas. These failures may occur
as a result of structural failure, failure of approach embankments and/or structural damage
arising from high floods. In addition, some bridges in the CRN may be of inadequate width or
load capacity. Many of the country’s large and small culverts have been constructed using
corrugated metal sheeting which have either deteriorated or been vandalized, resulting in
structural failure. The cost of reconstructing these structures as well as providing temporary
bridges has been considerable.
The RDA is primarily responsible for the planning, maintenance and management of all bridges
on the CRN. The RDA in 2011 carried out inventory and condition survey for all bridges
including culverts on the entire public roads network. In addition to carrying the detailed
inventory and condition surveys, the RDA also developed a Bridge Management System (BMS)
to assist in prioritizing maintenance activities on all bridge infrastructures.
7.5.1 Bridge/Structure Inventory Data
According to the Inventory and Condition Survey conducted of all bridges and major culverts
on the CRN of 2011 a total of 3,775 structures were identified (BMS, 2011). The data for
all structures is now installed in a new Bridge Management System which has been
developed exclusively for the RDA . Table shows the summary of all the structures that
were identified on the CRN by road class.
Table 7-22: Summary of Bridge and Major culverts inventory
Road Type Length (km) Length % No of km/Structure
Surveyed (km) Complete Structures
Trunk 3,115.57 3104.05 99.63 551 5.63
Main 3,701.06 3592.34 97.06 421 8.53
District 12,106.81 6961.77 57.50 816 8.53
Feeder 15,318.11 8152.06 53.22 567 14.40
Urban 5,596.89 0 - - -
Total 39,838.44 21,810.21 54.75 2,355 9.27
Source: BMS Final Report, 2011
Figure 7-5 shows the map of all the bridge and major culvert structures that were surveyed in
2011.
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Road Maintenance Strategy,
Road Maintenance Strategy,2014 - 2024
2015-2024
Figure 7-5 : Map of Bridge/Major Culvert Structures on the CRN

Source: BMS 2011 Final Report
Bridge and major culvert structures on the District roads are shown in Table 7-23 below:
Table 7-23: Summary of Bridge and Major culverts inventory on District Roads by Province
Province Total Length Length % No of km/structure
complete Complete Structures
Lusaka 599.24 568.08 94.80 114.00 4.98
Copperbelt 502.10 475.68 94.74 27.00 17.62
Luapula 1,243.60 1,182.30 95.07 144.00 8.21
Central 2,460.18 2,361.69 96.00 132.00 17.89
Southern 2,173.11 2,142.53 98.59 237.00 9.04
Western 921.67 643.04 69.77 47.00 13.68
Northern/Muchinga 1,717.47 1,664.33 96.91 167.00 9.97
Northwestern 1,054.97 910.06 86.26 58.00 15.69
Eastern 1,423.10 1,209.48 84.99 133.00 9.09
Total 12,095.44 11,157.19 0.92 1,059.00 10.54
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Bridge and major culvert structures on the Primary Feeder Roads are shown in Table 7-24
below:
Table 7-24: Summary of Bridge and Major culverts inventory on PFR by Province
Total Length % Structures km/structure
Length Complete Complete
Lusaka 389.86 389.86 100.00 17.00 22.93
Copperbelt 687.99 687.99 100.00 31.00 22.19
Luapula 1,227.82 996.58 81.17 62.00 16.07
Central 1,426.93 1,388.85 97.33 92.00 15.10
Southern 1,434.59 1,106.52 77.13 38.00 29.12
Western 2,178.15 1,498.89 68.82 35.00 42.83
Northern/Muchinga 3,443.09 3,246.29 94.28 250.00 12.99
Northwestern 2,214.88 1,854.39 83.72 80.00 23.18
Eastern 2,314.80 2,184.94 94.39 178.00 12.27

Total 15,318.11 13,354.30 0.87 783.00 17.06
Bridge and major culvert structures on the Urban Roads network are shown in Table 7-25
below:
Table 7-25: Summary of Bridge and Major culverts inventory on the Urban Roads by Province
Province Total Length % Structures km/structure
Length Complete Complete
Lusaka 1,331.31 1,317.04 98.93 492.00 2.68

Copperbelt 2,043.19 2,043.19 100.00 284.00 7.19
Luapula 136.22 136.22 100.00 18.00 7.57
Central 394.93 394.93 100.00 18.00 21.94
Southern 860.77 860.77 100.00 33.00 26.08
Western 121.43 121.43 100.00 8.00 15.18
Northern/Muchinga 354.08 354.08 100.00 1.00 354.08
Northwestern 133.34 133.34 100.00 4.00 33.33
Eastern 221.63 221.63 100.00 19.00 11.66
Total 5,596.89 5,582.62 1.00 877.00 6.37
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7.5.2 Bridge Capacity Rating
The Bridge Management Database uses ratings that range from 0 to 9 and the definitions for
each rating are shown in Table 3.1.
Table 7-26: Ratings Descriptions

Rating Description
0 Beyond Repair
1 Critical
2 Very Poor
3 Poor
4 Marginal
5 Fair
6 Satisfactory
7 Good
8 Very Good
9 Excellent
These ratings are simplified into the following categories as shown in Table 7-27
Table 7-27: Ratings Descriptions
Rating Description
0&1 Critical
2&3 Poor
4&5 Marginal
6 Satisfactory
7 to 9 Good
140
120
100
No. of Bridges
80
60
40
20
0
0&1 2&3 4&5 6 7 to 9
Rating Category
Figure 7-6 : Bridge Rating for all roads on the CRN
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The following graphs show the baseline individual ratings for bridges on all types of road class
covered based on inventory and condition data collected in 2011.
Figure 7-7 : Ratings for Trunk, Main District & Feeder Roads
7.5.3 Program Objectives
The objectives of the Bridge Management and Maintenance are as follows:

 To use the BMS for prioritization of maintenance activities on all bridge
infrastructure;
 To update the BMS database on all bridges in the Country;
 To carry out improvement works on all bridge infrastructure which form part of
the CRN;
 To remove bottle necks on none core road network through accessibility
improvements using low cost measures;
 To provide road infrastructure with minimal river crossing bottlenecks to
enhance mobility of people, vehicles and livestock especially on the PFR;
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7.5.4 Prioritization
Bridge Maintenance interventions shall be programmed and prioritized using the BMS Data.
Inventory and condition data will be collected on an annual basis and used to update the BMS.
7.5.5 Programmed Activities
The RDA will be implementing an extensive bridge repair and rehabilitation programme
covering a total of 144 bridges across the country commencing in 2015. Table 7-28
summarizes the number of structures that will undergo rehabilitation works by Province.
Table 7-28: Summary of structures on the CRN

No. NAME OF PROVINCE (S) NUMBER OF
STRUCTURES
1 Northern & Muchinga 53
2 North Western 33
3 Eastern 20
4 Luapula 23
5 Lusaka 9
6 Central 6
Total 144
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Table 7-29: Implementation Strategy for maintenance of Bridge Infrastructure
Lead Department Supporting

No. Strategies How
1 Optimal use of the BMS to prioritize RDA/MLGH Planning & N/A  Produce priority list for
BMS activities by November 30, Design/ medium to long term plan
2014 Maintenance for bridge maintenance by
July 31, 2015
 Conduct training for use of
BMS by February 27, 2015
 Update the BMS System on
an annual basis
2 Expand the scope of the BMS RDA/MLGH Planning & N/A  Single Source a Consultant
system to include cost component Design/Mainten to expand the scope of the
for prioritization ance BMS system to include cost
component for prioritization
by June 30, 2015.
3 Create accessibility on none core RDA Planning & MLGH  Undertake Community
road network
Design/Mainten Access Programs for rural

ance accessibility on bottlenecks
by June 30, 2015.
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Road Maintenance Strategy,
2015-2024
7.6 Road Safety
7.6.1 Capital Investment Programmes and Road Safety
The Government of the Republic of Zambia has embarked on a very ambitious programme of
transforming the country from a landlocked into a land linked country. This development is
expected to result into the reduction of travelling time from one place to another and is likely
to pose a challenge to the safe mobility of the people. As a way of addressing the potential
problems as the result of massive investment in Road Infrastructure, the 2011-2020 United
Nations Decade of Action for Road Safety has identified safer roads and mobility as one of the
key components in reducing the high levels of road carnage. Safer roads and mobility entails
that appropriate consideration be given to pedestrian facilities and other vulnerable road
users such as cyclists in road infrastructure development and maintenance,
Safety treatments to the road and roadside have a major influence in preventing crashes or
minimizing the consequences of a crash. Road safety improvements derive from two broad
categories of infrastructure investment:
• Investment in new road construction and major upgrades. This activity is primarily
associated with mobility and economic performance benefits, with safety being an
ancillary benefit.
• Expenditure on safety-focused road works. This includes hazardous locations remedial

programs, but also covers route-based (mass-action) treatments to improve the risk
profile of larger sections of the network. Such investment is associated with high
benefit-cost ratios in general and high safety returns in particular.
Compared with many other African countries, Zambia has a relatively considerable road
network and a relatively small population. This places limits on the level of expenditure on
infrastructure and infrastructure safety per kilometer of network, and on the proportion of
highways that are likely to ever be converted to dual carriageway. It is therefore important to
maximize the safety benefit of the overall investment in the nation‘s road infrastructure.
Infrastructure treatments can assist in making it obvious how the function of the road
changes. For example, vulnerable road users such as cyclists can be assisted by
implementing traffic calming measures on roads to slow cars down. On higher speed roads,
separation of cyclists from motorised vehicles is desirable. Cycle lanes are one option but
physical separation is more effective and likely to encourage greater cycling activity. Likewise,
in residential streets where limited vehicle access is needed, pedestrians benefit from lower
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 Implement and evaluate Safe System demonstration projects in specific local

government areas and Local Communities.
7.6.7 Future Steps – What Else Will Be Considered
 Implementing innovative infrastructure safety treatments where feasible and cost –

effective schemes and new types of safety barriers on major highways.
 Working with local government through local councils to develop and deliver
infrastructure improvement strategies that will include cost effective safety treatments
( for example, flexible barriers, roundabouts, shoulder sealing and rumble strips)
 Implementing infrastructure measures to physically separate bicyclists and motor
vehicles on higher speed roads with significant bicycle usage like Chipata town.
 Improving land use planning to reflect safe system principles, including greater control
of roadside development for safety.
7.6.8 How will progress be assessed
 Number of deaths from head – on – crashes

 Number of deaths from single – vehicle crashes
 Number of deaths from intersection crashes
 Number of deaths from crashes occurring on:
 District Roads ( D Roads);
 Trunk Roads (T Roads); and
 Main Roads (M Roads).
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a right turn lane at an intersection, edge lining on the shoulder of the road, and installation of
barrier systems (a good per cent of serious casualties involving errant vehicles).
7.6.3 Run – off – Road crashes
Run-off road crushes will be reduced in severity through:

 Infrastructure treatments including safety barriers, tactile edge lines, shoulder sealing,
and removal/relocation of roadside hazards and objects.
 Setting speed limits according to the road hierarchy and prevailing roadside conditions.
 Effective management and clear accountability for removal and trimming of vegetation
in order to maintain the safety and efficiency of the road.
7.6.4 Head on crashes
Head on crashes are usually as of result of poor overtaking decisions but more often as a
result of drivers straying over the centerline due to inattention, fatigue or losing control of
the vehicle for some other reason. A variety of proven treatments will be undertaken on
standard two – lane or one – lane undivided roads to create more secure separation:
 Addition of barriers in the median and on the side of the road, with some provision of
overtaking opportunities.
 Separation of opposing traffic on rural roads through wider medians.
7.6.5 Intersection crashes
Intersection crashes can be reduced through:
 Roundabouts — this is the most effective safety treatment at intersections because

they require motorists to significantly reduce their speed when approaching and
travelling through an intersection.
 Platforms — raised pavement through an intersection to slow traffic, usually in urban

areas.
 Traffic separation — can improve safety at intersections by creating a better

separation between traffic turning and travelling through the intersection.
Improvements will include better lane marking, traffic islands and separate lanes for left
and right turning vehicles; as well as separation of vulnerable road users where
possible in higher traffic areas.
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 Rumble strips — will be installed at certain locations which will alert motorists that
they are approaching intersections and rail level crossings.
 Reducing the speed limit on the approach to the intersection.
 Appropriate and safe amenity for pedestrians.
7.6.6 First steps — actions for the first two years.
 Ensure that Safe System principles are applied to all new road projects, including road
upgrades.
 Modify infrastructure funding guidelines and agreements to increase the safety benefits
resulting from expenditure on roads by allocating 5% of road maintenance resources
to road safety and allocate sufficient financial and human resources to improve road
safety in line with the resolution of the United Nations Decade of Action for Road
Safety and the Africa Road Safety Action Plan adopted by the Africa Union Heads of
States in February 2012.
 Target infrastructure treatments to:
 Address run-off-road and head-on casualty crashes. Road sections prioritized

according to crash history will be treated with infrastructure treatments such
as protective barriers (for example, Jersey barrier or wire rope), and/or
reduced speed limits.
 Address serious casualty crashes at intersections. Sites prioritized according to

crash history will be treated with infrastructure treatments and/or speed
reduction measures.
 Address safety issues for vulnerable road users, for example: safety
improvements on popular motorcycle routes; infrastructure improvements for
bicyclists, older road users, people accessing public transport and pedestrians.
 Address safety on key arterial routes, prioritised by crash history. Road Safety
Inspections to be undertaken and findings implemented.
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 Implement and evaluate Safe System demonstration projects in specific local

government areas and Local Communities.
7.6.7 Future Steps – What Else Will Be Considered
 Implementing innovative infrastructure safety treatments where feasible and cost –

effective schemes and new types of safety barriers on major highways.
 Working with local government through local councils to develop and deliver
infrastructure improvement strategies that will include cost effective safety treatments
( for example, flexible barriers, roundabouts, shoulder sealing and rumble strips)
 Implementing infrastructure measures to physically separate bicyclists and motor
vehicles on higher speed roads with significant bicycle usage like Chipata town.
 Improving land use planning to reflect safe system principles, including greater control
of roadside development for safety.
7.6.8 How will progress be assessed
 Number of deaths from head – on – crashes

 Number of deaths from single – vehicle crashes
 Number of deaths from intersection crashes
 Number of deaths from crashes occurring on:
 District Roads ( D Roads);
 Trunk Roads (T Roads); and
 Main Roads (M Roads).
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8 Emergency Management and Planning
8.1 Definition of an Emergency

An emergency is defined as an unforeseen circumstance or situation that poses a clear and
present danger requiring urgent intervention to prevent the worsening of the situation (DIER,
2008). Emergency management and planning on the other hand can be defined as the
organization, coordination and implementation of a range of measures to prevent, mitigate,
respond to, overcome and recover from the consequences of emergency events affecting the
community, road infrastructure and the environment.
In Zambia the common emergencies in the road sector are basically washaways of drainage
structures such as culverts, vented drifts and minor bridges. These emergencies normally
occur during the rainy season as a result of flash floods.
8.2 Emergency Planning and Management Objectives

The overall objective of the emergency management and planning is to ensure that the
occurrence of risks and hazards are minimized or mitigated on the road network. This is in
line with the RDA mandate of providing care and maintenance of the public roads network.
The specific objectives of emergency management and planning under this Road Maintenance
Strategy shall include the following:
 Preparation for emergencies;
 Response to an emergency;
 Recovery following an emergency
 Identifying key sector players –Disaster mitigation process.
 Prepare and disseminate information on alternative routes and available pontoon
services in and around distressed areas.
8.3 Emergency Planning and Management Objectives

The RDA will continue to collaborate with the Disaster Management and Mitigation Unit
(DMMU) when dealing with emergencies that affect road infrastructure. Under this
collaboration, the RDA will be providing the technical expertise and execution of the
emergency works while the DMMU will play a coordinating role as well as providing financial
support.
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8.3.1 Emergency Preparedness

Emergency preparedness ensures that arrangements and resources are maintained in a
state of readiness to be mobilized and deployed for response and recovery to an
emergency event. The RDA in close collaboration with DMMU will undertake the
following preparedness activities:
i) Fast-tracked procurement procedures for emergencies while working with

other key players such as RRU, ZNS, ZA, LRAs and contractors where
necessary. This process will facilitate an environment of preparedness to
respond rapidly to emergencies that occur on the network.
ii) Ring fence contingency funds in the RSAWPs to ensure readily available
resources to address the emergencies. These resources should be maintained
in the RDA Project Account for emergencies for ease of access between
December to the months March during which emergencies are likely to
occur;
iii) The RDA will also ensure that its Regional Offices have the necessary
construction materials and equipment to respond to emergencies as and
when they occur;
iv) Conduct a materials data bank study to establish sources or road
construction materials;
v) The RDA Regional offices will be required to prepare Emergency Response
Plans (ERP) to address any unforeseen occurrences;
vi) Review and update the ERP, any sub-plans and Response Procedures by the
RDA;
vii) Procure Frame work and supply contracts in all the 10 Regions in readiness
for any emergencies that may occur;
viii) Establish processes for lessons learned including conducting debriefs and
reviews of other emergency events or exercises that are relevant to the RDA
ix) Establish an emergency hotline.
Table 8-1 summarizes the RDA’s Emergency Preparedness Strategy (EPS) for the period
2015 to 2024. It assigns responsibilities to specific departments, units and/or agencies for
various tasks associated with emergency preparedness. The emergency preparedness
strategy is fully described in the RDA Road Maintenance Manual.
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Table 8-1: Emergency Preparedness Strategy

No. Activities Lead From To Department Supporting How
1 Fast tracked Procurement RDA/DMMU 2015 2024 Procurement/ NRFA/DMMU  RDA to undertake Immediate
System Maintenance procurement when required
2 Increased Contingency RDA/NRFA 2015 2024 Planning/Maint NRFA  RDA to ensure that adequate
Funds with ring fenced enance funds are provided for in the
seed funds for RSAWP for maintenance
emergencies  NRFA to ensure that
adequate funds are available
for maintenance
 Seed Funds will be kept in the
RDA HQ Account
3 Speedy Access to RDA October 2024 Maintenance NRFA  RDA HQ to transfer required
Contingency Funds by Regional 31,2014 Dept./Finance funds to the Regional Office
Implementing Regions Office within 24 hours from
approval.
4 Preparation of Emergency RDA November 2024 Maintenance LRAs/DMMU  Draft a template for
Plans Regional 28, 2014 emergency plans by
Office November 28, 2014
 Distribute templates to
regional
offices by December 1, 2014
5 Reviewing & Updating RDA 2015 2024 Maintenance LRAs/DMMU  Review Emergency Plans
Emergency Plans Regional every year
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Office
6 Framework and Supply RDA – November 2024 Regional NRFA  RDA to procure in advance
Contracts in the 10 Planning & 2014 Offices/ contractors by October of
Regions Design Maintenance every year in all 10 provinces
Dept./Procure that will be instructed to carry
ment out works during emergencies
7 Material Stockpiling and RDA November 2024 Maintenance/R DMMU/NRFA  Stockpile material to be
Equipment in readiness for 2014 egions procured by November of
emergencies – bitumen every year before onset of
(standing contract), rainy season.
prefabricated culverts,
bailey bridges and many
others
8 Establishing processes for RDA June 2015 June Monitoring & DMMU/LRA/NRFA  Conduct debriefs on
lessons learned including 2024 Evaluation/Mai /Provincial and emergency activities on a
conducting debriefs and ntenance/Audi District semi-annual basis
reviews of other t/Public Administration
emergency events or Relations
exercises that are relevant
to the RDA
9 Establishment of a 24 hours RDA January April Public RDA/RTSA  Establish emergency

Customer Service 2015 2015 Relations hotline by November 30,
Emergency hotline in all the 2014.
regions
Source: RDA Draft Road Maintenance Manual 2014
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8.3.2 Emergency Response

The emergency response relate to actions taken to minimize the effects of an emergency
event, and to limit the threat to life, disruptions to transportation of goods and services
and damage to property and the environment. The RDA will take the lead role in
reacting to emergencies while coordinating with other key stakeholders such as the
DMMU, ZA, ZNS, RRU and the LRAs where necessary.
Emergency Response covers the following:
i) Initial assessment and reporting of the event, location and identified
communication methods;
ii) Detailed technical assessment and preparation of cost estimates;
iii) Request for funding for Force Account works;
iv) Use of standby contracts for materials and equipment for emergency
response;
v) Activation of Frame work contracts;
vi) Fast tracked procurement for works;
Table 8-2 is the RDA Emergency Response Strategy (ERS) that shows the reaction time
for various activities undertaken to respond to emergencies whilst Table 8-3 shows the
category of responses. The ERS is fully described in the Draft 2014 RDA Road
Maintenance Manual.
Figure 8-1 shows the emergency response flow chart through either Force Account or
Framework Contract approach. The RDA will maintain to a limited extent Force
Account works for emergencies while at the same time use Framework and Supply
Contracts to deal with all major emergency works in the regions.
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Table 8-2: Emergency Response Strategy

Department Supporting Reaction Time (Response Category)
No. Activities Lead Agency
Responsible Institution P4 P3 P2 P1
Initial assessment and Within Within
reporting of the event, Regional Local Road Within Within
1 RDA 72 24
location and identified Office Authorities 1 week 48 hours
communication methods hours hours
Preparation of Cost Within Within

Estimates; Regional Local Road Within Within
2 RDA 72 24
Office Authorities 1 week 48 hours
hours hours
Request for funding for Force Maintenance Within Within
Account works; Within Within
3 RDA Dept./Regiona NRFA 72 24
1 week 48 hours
l Offices hours hours
Use of standby contracts for
Within Within
materials and equipment for Regional Within Within
4 emergency response; Procurement Maintenance 72 24
Office 1 week 48hours
hours hours
Activation of Frame work Within Within

contracts; Regional Within Within
5 Procurement Maintenance 72 24
Offices 1 week 48hours

hours hours
Within Within
Fast tracked procurement for Within Within
6 Procurement Maintenance DMMU 72 24
works 1 week 48hours
hours hours
Source: 2014 Draft RDA Road Maintenance Manual
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Table 8-3: Response Category

No. Criteria Response
AADT Road Class Category
1 >3,000 All Trunk Roads P1
2 1,000<AADT≤3,000 All Main Roads P2
3 500<AADT≤1,000 All Urban & District Roads P3
4 ≤500 All other roads P4
Notes:
1. All Trunk Roads regardless of traffic band shall fall in category P1

2. All Main roads regardless of traffic band shall fall in category P2
3. All Urban and District roads regardless of traffic band shall fall in category P3
4. Any road regardless of class with traffic in any of the traffic bands shall qualify to fall into
the respective response category defined above
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Incident Reported
[Emergency Call Service
Centre]
Verify nature and Get additional

extent of incident details from caller
Regional Manager’s
Office; Initial
Assessment/Report/ Cost
Estimate
Fast Tracked
Procurement
Activate Framework
Force Account Contracts
Implementation of
Emergency Works
Figure 8-1: Emergency Response Flow Chart
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9 Asset Management
9.1 Definition of Asset Management

ISO 55000 defines Asset Management as the “coordinated activity of an organization to realize
value from assets”. An asset is an item, thing or entity that has potential or actual value to
an organization. Asset management thus involves the balancing of costs, opportunities and
risks against the desired performance of assets, to achieve the organizational objectives. In
this context, Asset management uses a strategic approach to identify the optimal allocation
of resources for the management, operation, preservation and enhancement of the road
infrastructure to meet current and future needs. The RDA will adopt the approach under
ISO 55000 when dealing with Asset Management. The following are the benefits derived
from Asset Management:
 Improved Stewardship and Accountability;
 Improved Communication and relationships with service users;
 Improved risk management; and
 Improved financial efficiency.
Asset management relies on the availability of data that is appropriate and up-to-date.
This data is critical to the decision making process. This information is housed in the
ZHMS and the BMS and relates to overall condition data collected on an annual basis on
the network. As defined previously, the ZHMS and BMS are decision support tools
designed to aid management in making maintenance decisions.
The data that will be needed to support the RDA Asset Management process will include
the following:
 Road network – Logical and physical referencing, item inventory, routes etc;
 Traffic- Volume, loading, congestion levels etc;
 Structures – Pavements, Bridges, drainage structures, condition etc;
 Equipment – road furniture, control equipment etc;
 Accidents – type, victims, contributory factors etc; and
 Finance and resources – costs budgets, personnel, materials, equipment etc.
Under this Road Maintenance Strategy, the road infrastructure asset management will
be enhanced through the following:
 Optimal allocation of resources based on assessed needs;

 Undertaking intermediate plans through road sector annual work plans and
Strategic Road Sector Framework;
 Consideration of road user expectation and documentation on service levels;
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i) Asset lifecycle modeling using outputs from Zambia Highway Management

system (ZHMS) and Bridge Management System;
ii) Stakeholder interactions.
The RDA Draft Road Maintenance Manual describes in detail the Asset Management
approach that has been adopted from best practice (ISO55000).
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10 Performance Management
10.1 Definition of Performance Management

Performance Management in this context will include activities which will ensure effective
and efficient execution of both preventive and corrective maintenance interventions.
Performance Management will look at internal and external monitoring systems. Internal
monitoring systems refer to systems that will ensure that RDA or its delegated Local
Road Authorities (LRA) has capacity to effectively carry out Force Account Activities.
External Monitoring Systems refer to where maintenance works are outsourced and are
monitored by the RDA or the delegated LRA. This will include up-scaling project
oversight by engaging more road and bridge inspectors and enhancing external technical
audits. In addition to internal and external auditing being carried out, Monitoring and
Evaluation activities will be extended to Force Account works.
Performance management of the various maintenance activities are described below.
10.1.1 Routine Maintenance
The Regional Manager shall be responsible for the performance management of routine
maintenance activities which are being executed by contracting out or by Force Account.
The performance management shall be carried out through regular inspections (a
minimum of two inspections per month per contract). The inspections shall be carried out
to ensure that works are carried out in line with specified provisions in the contract.
Table 10-1 below shows the frequency of inspections to be carried out on the CRN
according to Annual Average Daily Traffic (AADT). These inspections will be carried out
to check routine maintenance activities and general monitoring of the CRN for obstacles.
An inspectorate team will carry out the inspections in accordance with the frequency set
in Table 10-1 below:
Table 10-1: Frequency of Inspections on the CRN
No. AADT Frequency of Inspections
1 >3,000 Once every 24 hours
2 1,000<AADT≤3,000 Once every 48 hours
3 500<AADT≤1,000 Once every week
4 ≤500 Every fortnight
In addition there shall be Toll free lines established for the members of the public to
report any incidence on the whole CRN. The RDA toll free lines will be operated on a 24
hour service. Each region will have a Customer Service Center Hot Line for incident
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reporting. The incident reporting and response flow chart is summarized in Figure 8-1
under Section 8.
10.1.2 Periodic Maintenance
The Director Maintenance shall be responsible for performance management of periodic

maintenance activities which are being executed by contracting out or by Force Account.
The performance management shall be carried out through strict contract management
and through performance assessments using performance management tools such as
vendor rating.
10.1.3 Emergency Maintenance
To reduce emergencies on the road network, a road inspection team will be established
at Regional level. This inspection team will be conducting regular inspections of the road
network. The inspections will include road Patrols.
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11 Maintenance Practices and Procedures
The RDA is developing a Road Maintenance Manual that will act as a guide for best
practice for maintenance activities on the CRN. The Road Maintenance Manual will be
completed by the first quarter of 2015. The manual will assign responsibilities to
respective departments within the RDA to ensure effective implementation of
maintenance activities. The RDA Maintenance Manual will make reference to best
practices in the SADC region and other relevant papers.
Maintenance operations will be conducted through contracting and limited Force

Account works which will be less than 10 per cent of the RSAWP. All maintenance
operations will be covered in the Road Sector Annual Work Plans (RSAWP). The
maintenance activities to be undertaken on the Public Roads Networks shall conform to
the regional SATTC Specifications for Roads and Bridges.
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12 Resource Development and Management
12.1 Maintenance Financing

Over the years, there has been a steady increase in funding to the road sector from 2007 to
date. This increase has been necessitated by the need to attain the developmental
Programmes defined in the Revised Sixth National Development Plan (SNDP). Figure 12-1
shows a remarkable rise in the local resource budgetary allocations from 2010 to 2013. The
external financing on the other hand was relatively stable between 2007 and 2010 and it
increased sharply between 2010 and 2012. However, there has been a sharp decline since
2012.
Figure 12-1: Road Funding Trends

Source: RDA Annual Work Plans (2007 to 2013)
The main funding sources for road maintenance are derived from the Road Fund and the
newly introduced road tolling funds. Despite the increase in financing to the road sector over
the years, there has been very little attention given to maintenance activities and
programmes. Maintenance activities cover only about 20 percent of the 2014 RSAWP while
major capital investment projects account for about 50 per cent of the budget. The pre-
occupation over the years has mostly been with new constructions and up-grades at the
expense of road maintenance. This has resulted in some of the roads outliving their design
life. The best case example is the Serenje to Nakonde Road which has deteriorated to
alarming levels. It is therefore imperative to make maintenance a number one priority
alongside other developmental programmes. Timely application of maintenance on the road
network will prevent the necessity to carrying out major rehabilitation works which are
about three to four times more expensive than the maintenance costs.
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12.2 Resource Mobilization
12.2.1 Road Sector Funding Requirements
The RDA recognizes the need and importance of timely execution of maintenance activities
on the public roads network to prevent the roads from deteriorating to rehabilitation levels
earlier than expected. Furthermore, the RDA in this road maintenance strategy aims at
making maintenance the number one priority alongside other developmental programmes.
This will entail increasing the budgetary allocation for road maintenance activities to the
equivalent of about US$721 million per annum in order to bring the CRN into a maintainable
condition for the next five years commencing 2015 (RDA Needs Report, 2012).
In addition, the road fund should be used to solely finance all maintenance activities on the
CRN while construction and upgrade projects can be financed from capital investment funds
which should be directly sourced from the Treasury and other financiers such as the
Cooperating Partners (CPs) and Multilateral Development Banks.
Additional resources for maintenance shall be sourced from the Road Tolling programme.
The RDA commenced the Road Tolling Programme on November 1, 2013. The Programme
is designed to provide additional revenues for road maintenance as is defined by the Road
Tolling Act No.14 of 2011 and SI No. 73 of 2013. The RDA will commence the construction
of Toll Plazas at nine (09) designated locations on the CRN out of the approved twenty-six
(26) to broaden the maintenance revenue base in the fourth quarter of 2014. It is anticipated
that an average of ZMW 1.1billion (US$180 million) will be collected on an annual basis from
the Road Tolling Programme. The overall annual projected road maintenance funding for the
period between 2015 and 2024is given in Table 12-1.
Table 12-1: Projected Local Resource Revenues (ZMW‘million)
Grand
Type 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024
Total
Fuel Levy 379 511 630 750 825 908 998 1,098 1,208 1,329 8,637
ORUC 569 769 947 1,127 1,240 1,364 1,501 1,651 1,816 1,997 12,982
Others 19 26 32 38 42 46 51 56 62 68 440
Tolls 452 611 752 895 985 1,083 1,192 1,311 1,442 1,586 10,310
Road Fund 1,420 1,917 2,362 2,811 3,092 3,402 3,742 4,116 4,528 4,980 32,369
GRZ 1,780 2,404 2,963 3,526 3,879 4,267 4,693 5,163 5,679 6,247 40,601
Grand Total 3,200 4,321 5,326 6,337 6,971 7,668 8,435 9,279 10,206 11,227 72,971
Source: 2014 Core Circular (MTEF) and RDA projected estimates
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It is estimated that a total of ZMW32.3 billion will be available to undertake maintenance

activities on the CRN from the Road Fund resources for the period 2015 to 2024. However,
only ZMW21 billion is projected to be spent on periodic and routine maintenance. These
projections are based on the high case scenario where Government collects and releases all
the road fund amounts to the Road Sector for maintenance activities. These projections are
also based on the principle that the Road Fund shall be used exclusively for maintenance
activities.
12.2.2 Road Sector Funding Cash-flow Expenditure 2015 to 2020
Table 12-2 shows the projected cash-flow expenditure on the entire CRN for the period
between 2015 and 2024. These cash-flow projections of expenditure are based on ongoing
commitments and planned activities by all relevant road sector agencies. A total of ZMW71.2
billion in local resources is projected to be spent on both capital investments and
maintenance projects. The major capital investment programme in line with the Revised Sixth
National Development Plan (SNDP) is the Link Zambia 8000 Programme. It is projected that
a total of ZMW24 billion will be spent on upgrading to bituminous standard of various roads
under the Link Zambia 8000 Programme between 2015 and 2024. Furthermore, a total of
ZMW21 billion of local resources are projected to be spent on maintenance activities during
the period between 2015 and 2024.
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Table 12-2: Projected Road Sector Cash-flows 2015 to 2024 (High Case Scenario) (ZMW’million)
Intervention/Agency 2015 2016 2017 2018 2019 2020 2021 2022 2023 2024 Grand Total
Axle Load Control 16.6 41.9 46.6 47.8 46.1 87.3 89.7 98.9 145.2 150.0 770.0
Bridges 66.5 159.4 218.3 266.5 257.2 121.7 259.7 286.5 434.9 339.5 2,410.2
Carried Forward IPCs 1,149.9 - - - - - - - 232.9 - 1,382.8
Emergency 24.9 59.8 81.9 99.9 96.4 45.6 46.9 51.8 100.5 - 607.8
Link Zambia 8000 Programme 329.3 974.2 1,387.7 1,861.8 2,764.1 3,329.0 4,247.2 4,473.5 4,426.5 879.8 24,673.2
Feasibility Studies and Designs 44.0 111.6 - - - - - - 30.6 - 186.2
Pave Zambia 12.5 67.0 40.9 50.0 48.2 22.8 23.5 75.4 58.0 26.2 424.4
Periodic Maintenance 439.3 753.9 1,117.3 1,146.4 1,198.4 1,134.3 1,166.2 1,286.3 1,178.7 7,732.1 17,152.9
Routine Maintenance 93.3 223.4 306.0 373.6 360.5 341.2 350.8 387.0 618.2 859.1 3,913.1
Project Monitoring/Procurement/Capital Expenditure 178.7 166.8 169.1 148.0 137.0 131.9 139.2 156.4 298.8 158.8 1,684.6
Construction and Rehabilitation 482.0 889.0 788.5 935.8 768.4 1,673.1 1,236.8 1,742.6 8,516.1
Tolling Programme 41.6 58.6 93.1 95.5 23.0 43.6 116.6 49.5 103.4 75.0 700.0
RTSA 80.7 148.3 188.1 215.9 224.0 219.0 225.2 248.4 399.5 328.0 2,277.0
MLGH 221.6 632.2 843.3 1,044.6 994.3 466.3 479.3 362.9 698.3 208.4 5,951.2
NCC 4.2 7.5 9.3 11.5 12.0 11.4 11.8 13.1 21.0 17.0 118.9
NRFA 15.0 27.6 35.4 40.1 41.5 41.0 42.2 46.5 74.7 61.0 425.0
Grand Total 3,200.0 4,321.3 5,325.6 6,337.4 6,971.1 7,668.3 8,435.1 9,278.6 8,821.1 10,834.8 71,193.2
Source: RDA/NRFA Projected Road Sector Cash-flows, 2014 (2014-2024)
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RoadRoad
Maintenance
Maintenance Strategy, 2014 - 2024
Strategy, 2015-2024
12.3 Human Resource Development

The critical departments for the effective and efficient management of Road Maintenance
Programmes are Maintenance, Planning and Design and the Regional Offices. The support
departments include Finance, Procurement, Central Administration, Human Capital &
Administration, Legal and Audit and Risk Assurance.
The Human Capital and Administration department in liaison with other departments shall play a
critical role in identifying the skills gaps. This shall include
 Development of training programmes to cover:
o On the job training – planned project attachment of RDA Engineers;
o Short-term training programmes – customized training programmes designed to
address specific skills gaps; and
o Long term training.
 Recruitment of Staff
Table 12-3: Resource Mobilization Strategies

No. Activities Lead Department How Assumptions
Agency Responsible
1 Mobilization NRFA Planning &  Through Tolling Fund  Road Fund
of Design/  Through the Fuel released in full
maintenance Maintenance Levy collection,  Toll revenues
funds ORUCs to be used
exclusively for
maintenance
2 Human RDA Human Capital  Identifying Skills gap  Operational

resource and through job analysis funding support
development Administration/ by August 31 of from GRZ
Maintenance every year
 Development of
training Programme
by November 30 of
every year
 Recruitment of staff
as and when required
as identified by the
skills gap analysis
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12.4 Risk Management
Risk Management is a systematic approach to identifying and dealing with the risks that
threaten our plans and impact upon the continuation of service delivery. The following
outlines risk management framework whose purpose is to define in a controlled way how
risks will be handled.
The following are the risks that have been identified in the effective implementation of this
Road Maintenance strategy:
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Table 12-4: Risk Mitigation Strategies

No. Risk Degree of Mitigation Strategy Responsible When
Risk
1 Wrong intervention arising High  Ensure Adequate time for designs  Planning and  Immediate
from inadequate designs and planning in place prior to Design
actual implementation of works
2 Lack of adequate resources High  Government to ensure release of  Ministry of  2015
for road maintenance all Road Funds and Toll Revenues Finance (MoF)
for maintenance  NRFA
 Use of decision support tools to
prioritize maintenance in view of
limited resources
3 Protracted review process High  Attorney General’s office to sub  Office of the  2015
for contracts delegate review and clearance of Attorney
contracts General (MoJ)
4 Protracted Procurement High  Ensure speedy procurement of  Procurement  2015

Process contracts
 Capacitate Procurement
Department
5 Requirements of the Medium  Strict adherence to the provisions  Planning &  Immediate
Design
Procurement Act are not of the Procurement Act

followed  Procurement
6 Signed contracts with High  Ensure adequate budgetary  Procurement  Immediate

inadequate budget provision provisions
 No contract to be signed without
adequate budget provisions
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Risk
7 Poor Workmanship and High  Strengthening of monitoring and  Monitoring and  Immediate
quality supervision Evaluation Unit
 Vendor rating of contractors and  Maintenance
consultants  Construction
 Continued support to NCC for and
local contractor capacity Rehabilitation
 Work closely with NRFA
Monitoring and Evaluation Unit
8 Poor project management High  Capacity Building on Project  Human Capital  Immediate
and administration Management for all officers and
managing projects Administration
9 Lack of appropriate decision Medium  Use of appropriate decision  Planning and  2015
support systems for support systems by both the RDA Design
maintenance prioritization and LRAs  LRAs
on the CRN
10 Lack of clear distinction High  Clearly distinguish Road Fund  MoF  2015
between GRZ Treasury from GRZ capital investment for  NRFA
Revenues and Road Fund maintenance planning purposes
 Accountability in Funds releases

to all stakeholders to be
published on a monthly basis
11 Undue Political Influence in Medium  Sensitization on the maintenance  Planning and  2015
the Planning Process prioritization process to all Design
political establishments  Public
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Risk
Relations
13 Inadequate RDA Capacity Medium  Government provide adequate  MoF  Immediate

resources for staff recruitment  Human Capital
 Provision of relevant training to and
enhance skills Administration
14 Poor Quality of Consultants’ Medium  Increased Consultancy  Monitoring and  Immediate

Service supervision Evaluation
 Vendor rating of consultancy  Maintenance
services  Construction
 Enhanced monitoring and and
evaluation of consultancy services Rehabilitation
 Planning and
Design
15 Inadequate Contractor High  Capacity building through 20 per  NCC  Ongoing
Capacity cent subcontracting  Planning and  Quota
 Construction financing initiative Design system to
for local contractors  NRFA commence
 Procurement in 2015

Quota system for works

contracts  Maintenance
16 Over emphasis on up-grades High  Sensitization on the importance of  Planning and  First
and construction maintenance to all relevant Design quarter of
stakeholders  Public 2015
 Deliberate policy to prioritize Relations
maintenance  MTWSC
through
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Risk
Relations
13 Inadequate RDA Capacity Medium  Government provide adequate  MoF  Immediate

resources for staff recruitment  Human Capital
 Provision of relevant training to and
enhance skills Administration
14 Poor Quality of Consultants’ Medium  Increased Consultancy  Monitoring and  Immediate

Service supervision Evaluation
 Vendor rating of consultancy  Maintenance
services  Construction
 Enhanced monitoring and and
evaluation of consultancy services Rehabilitation
 Planning and
Design
15 Inadequate Contractor High  Capacity building through 20 per  NCC  Ongoing
Capacity cent subcontracting  Planning and  Quota
 Construction financing initiative Design system to
for local contractors  NRFA commence
 Procurement in 2015

Quota system for works

contracts  Maintenance
16 Over emphasis on up-grades High  Sensitization on the importance of  Planning and  First
and construction maintenance to all relevant Design quarter of
stakeholders  Public 2015
 Deliberate policy to prioritize Relations
maintenance  MTWSC
through
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Risk
transport
policy
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13 Research and Development
13.1 Definition
Research and Development refers to discovering new knowledge about products, processes,
and services, and then applying that knowledge to create new and improved products,
processes, and services that meet market needs. The current investment in the road
infrastructure development requires efficient tools for planning, design, construction, quality
control and management which can be achieved through the development of innovative
technology. The need for the development of innovative technology prompted the RDA to
create a Research and Development Unit. The Unit is expected to advance scientific and
technical knowledge of the sector through scientific research and apply that knowledge to the
extent necessary to provide a well maintained cost effective road network.
13.2 Strategic goals

The strategic goal of the unit is to advance scientific and technical knowledge of the agency
staff through scientific research and apply that knowledge to the extent necessary to provide a
maintainable cost effective road network. The following are some of the strategic goals for the
Research and Development Unit in line with this Road Maintenance Strategy:
 To establish formal collaborative links with local universities and other international
transport research institutions for knowledge exchange and capacity building by 2015;
 To implement and operationalize the Materials Databank by 2017;
 To have fully equipped and accredited state of the art Laboratory by 2018;
 Formulate a research Policy for the R&D Unit by 2015
 Create synergies with Consultants & Contractors and Private Institutions
 Develop a strategy to enhance quality control on road construction projects in order
to reduce on maintenance costs associated with poor quality works or use of
inappropriate construction methods by 2016
13.3 Development of the materials databank

The RDA through the Research and Development Unit is embarking on a project to develop a
‘Materials Databank’ to keep updated information on the natural sources of road construction
materials throughout the country. Reserves of good quality local materials may be readily
available in some parts of the country while some parts of the country have limited sources.
Generally, identification and testing natural sources of construction materials is a specific task
for each road project. For the purposes of planning, designing, rehabilitation and construction
of roads in Zambia, knowledge of the occurrence, nature and availability of construction
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materials is of great importance. The uncertainty regarding the location, nature, quality and
cost of road construction materials in various parts of the country has led to uncertainty in
design and even higher construction costs usually due to contract variations.
It is for this reason that embarking on this project of this nature is essential in order to have
updated information on the availability and quality of construction materials for the entire road
network. The Materials Databank strategy is to focus on Trunk, Main and District Roads
(TMDs) and shall cover approximately 19,000 Km of this network.
The implementation of the materials databank is in two phases. Phase I comprises the Design
and Implementation of the Materials Database, which is essentially software design and
development. Phase II of the project is the geotechnical and environmental investigation for
the identification of construction material sources.
13.3.1 Main objectives
The main objectives of this project for the two phases are:
 To establish a user-friendly Materials Database at RDA head-quarters and in the ten

(10) Provinces. The assignment will also include all necessary training to ensure the
sustainable institutionalization of the system and the delivery of long-term benefits to
the Agency.
 To undertake materials investigations based on best practice, and to submit
geotechnical and environmental information to enable the RDA input the data into the
Materials Database.
It is envisaged that this project when fully implemented will help to reduce costs related to
planning, procurement, design and construction of roads as general information regarding
available and quality of materials will be readily available and accessible. The cost reduction
could be achieved because there will be certainty of material available, quality and quantity.
This will ensure reduction of uncertainty during tender and also optimized designs for use of
locally available materials. Consequently, this will greatly reduce variations that result from
design change due to unavailability of ‘suitable materials’ which results increased cost of road
construction resulting from hauling of required materials over long distances.
Table 13-1 shows the strategies under the Research and Development Unit intended to aid
the effective and efficient implementation of maintenance activities on the CRN.
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Table 13-1: Research and Development Strategies

No. Activities Lead From To Department Supporting How
1 To establish formal RDA 2015 On- Planning & Design TEVETA/Universities  Through signing of MoUs
collaborative links with going by 2015
research institutions;
 Affiliation to International
Research Institutions by
2015
2 To implement and RDA 2015 2015 Planning & Design NRFA/MOF  Engage a Consultant to
operationalize the Materials
prepare the materials data
Databank
bank system 2015
 Implement and
operationalize the
materials data bank by
2015
3 To have fully equipped and RDA 2017 2018 Planning & NRFA/MOF  Secure land and construct
accredited state of the art Design/Commercial the laboratory
Laboratory & Technical infrastructure by 2017
Services/Procureme  Through procuring of
nt equipment by 2018
4 Formulate a research Policy RDA 1st 4th Planning & Design RDA Board 
Draft a Research Policy for

for the R&D Unit Quarter Quarter the Board approval by
2015 2015 2015
5 Create synergies with RDA 2016 On- Planning & NCC/Training  Affiliations of
Consultants & Contractors going Design/Maintenance/ Institutions/EIZ Consulting/Contracting
and Private Institutions Construction & companies to professional
Rehabilitation institutions starting 2016
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14 Certification of Road Maintenance Contractors
There is a general inadequacy of contractors being able to carry out specific maintenance
interventions such as asphalt overlays, single and double surface dressing among other
maintenance interventions according to the Vendor Rating System Report of 2013. This lack of
capacity by the general pool of contractors has resulted in the following:
 Poor quality of works;
 Time and cost overruns;
 Termination of Contracts; and
 Premature failure of pavements and structures
The RDA has developed the following strategies to address the challenges outlined above:
 Accreditation of all Road Contractors through NCC in accordance with the various
road maintenance intervention techniques by 2015;
 Adoption of this new accreditation in the evaluation criteria for all future award of
contracts by 2015; and
 Provide financial support to NCC for training and subsequent accreditation of small
scale contractors in various road maintenance interventions by 2015.
Table 13-2 shows how the above mentioned strategies will be achieved.
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Table 14-1: Research and Development Strategies

No Activities Lead From To Department Supporting How
. Agency Responsible Institution
1 Accreditation of all Road NCC 2015 Ongoing RDA
 Monitoring and  RDA to recommend
Contractors through NCC
Evaluation Unit accreditation strategy to
in accordance with the
 Maintenance NCC by end of fourth
various road maintenance
quarter of 2014
intervention techniques by
 All Road Contractors to
2015;
undergo accreditation
process
2 Adoption of this new RDA 2015 Ongoing NCC
 Planning and  RDA to introduce the
accreditation in the
Design new accreditation in the
evaluation criteria for all
 Procurement evaluation criteria
future award of contracts
by 2015;
3 Provide financial support to RDA/NRFA 2015 2018 NRFA
 Planning &  Provide budgetary support
NCC for training and
Design for capacity building of
subsequent accreditation of
contractors through NCC
small scale contractors in
various road maintenance

interventions by 2015;
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15 Road Network Maintenance Management Monitoring Framework

In order to adequately manage the maintenance of the national network it is essential to be clear
on where money is being spent and on what maintenance works activities. There is need to
reconcile actual physical and financial inputs and outputs with those planned, and to establish
outcomes. The impacts generally affect only medium to long term investment priorities except
for the change in key accident data. While such changes may be the result of a number of factors
they may be indicative of network deficiencies.
The performance of both Consultants and Contractors engaged in the maintenance

programmes will be monitored and assessed in accordance with the RDA Consultants’ and
Contractors’ Vendor Rating System Policy and Procedures Manual 2013. The system will also
be used in considering past performance during the tender evaluation. The RDA internal
monitoring and implementation systems within responsible departments will be enhanced to
ensure the required quality is achieved throughout the project life cycle.
Principal outcomes of investment which should be used to influence funding decision are:
 change in network condition; and

 change in the network asset value
Investment in the network is not the only factor affecting condition. Changes in the level of
heavy vehicle traffic and in vehicle overload may have a significant effect on condition so it is
necessary to monitor these factors.
Table 13-1 contains road network maintenance management indicators that will provide a
good overview of how well RDA is performing in terms of its network management.
In selecting these indicators consideration has been given to the relative ease of annual data
collection and their direct relationship to the sustainability of road infrastructure.
Table 15-1: Maintenance Management Monitoring Framework
No. Core Measures Disaggregation (See note) Performance Indicators
1 Road inventory  By: Road Category  % change in road length

 By: Paved/Unpaved  maintained
2 Annual road  By: Road category  % of budget

maintenance works  By: Routine maintenance  % of planned
expenditures (Inputs)
Periodic maintenance
3 Annual maintenance  As for expenditure  % change in road network

road works completed that is maintained
(Outputs)
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No. Core Measures Disaggregation (See note) Performance Indicators
4 Road asset value  By: Road category  % change in asset value

(Outcome)  (achieved through Periodic
Maintenance)
5 Bridge inventory  By: Road category  % increase in number of

serviceable bridges
6 Annual bridges  By: Road category  % of budget

maintenance  By: Routine Maintenance  % change in bridge condition
expenditure (Inputs)
o Periodic Maintenance  % unrestrained budget
7 Annual bridge  As for expenditure  % of planned

maintenance works
completed (Outputs)
8 Bridge asset value  By: Road category  % change in asset value

(Outcome) (achieved through Periodic
Maintenance and
Rehabilitation)
9 Road condition  By: Road category  % change in condition

(% good, fair, poor)  By: Paved/Unpaved
(Outcome)
10 Employment generation  By: Gender  % change in labour days
(Outcome)  By: Paved/Unpaved
11 Accident statistics  By: Fatalities  % change
(Impact linkage)  Serious injuries
12 Traffic growth  By: Vehicle class  % change
(Impact linkage)  By: Road corridor

Notes:
1. All data to be disaggregated by Province
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16 Major Assumptions
The key assumptions of this Road Maintenance Strategy are as follows:

 From 2015 to 2024, the cost of regular maintenance of the network, routine
and periodic, would be sustainable using internally generated income;
 Appropriate decision support systems will be used by RDA and Local Road
Authorities to prioritize the maintenance activities;
 The Road Fund will be used exclusively for road maintenance while Capital
projects and programmes will be financed from the Government Treasury and
other donors (CPs and Multi-lateral Development Banks);
 There will be limited and/or no undue external influence on the planning
process;
 The fuel levy will be collected and released in full;
 All roads in poor condition will undergo rehabilitation and or upgrading to
bituminous standard depending on the traffic levels;
 All roads in good and fair condition will immediately be placed on Routine
Maintenance; and
 Government maintains/creates conducive environment to encourage economic
growth and diversity.
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17 CONCLUSION
The development of this Road Maintenance Strategy was necessitated by the need to
embrace a shift in focus from high emphasis on construction and rehabilitation to
maintenance. Road Maintenance in Zambia has consistently remained a challenge despite
the formulation of Road Sector Investment Programmes that were implemented
between 1998 and 2013 (RoadSIP I and II). The Road Sector has for a long time since
independence been pre-occupied with major construction and upgrading works on the
road network at the expense of the much needed road maintenance. This Road
Maintenance Strategy is thus designed to set a clear pathway for the provision of road
maintenance activities on the CRN. The Strategy also demonstrates how the RDA
understands the needs of the Road Users as well as the statutory obligations provided in
the Public Roads Act of 2002. The Strategy further outlines how the RDA intends to
achieve its vision of being the leading Road Authority in Africa through the provision of
a world class road network.
Maintenance prioritization on the TMD network will employ the use of decision support
systems such as the ZHMS and HDM-IV in view of the limited local resource envelope.
The 10 year plan will see the entire TMD network been kept in a maintainable condition
by 2024. A total of ZMW21 billion from local resources has been earmarked to be
spent for maintenance (periodic and routine) on the TMD network over the 10 year
implementation period of this Road Maintenance Strategy.
The RDA plans to roll out the 4th generation OPRCs on the PFR network in 2016. It is
projected that PFR network will be in a maintainable condition by end of 2019. In
addition, the RDA has planned to appoint the ZNS as local road authority to assist in
the short to medium term management of the PFR network. Bringing the PFR network
into a maintainable condition by 2019 will act as a catalyst for social and economic
growth by boosting agriculture and trade through increased mobility and accessibility.
Similarly, the RDA plans to work closely with the Local Road Authorities in
implementing long term area maintenance contracts on urban roads. This approach is
designed to ensure that all urban roads are in a maintainable condition by 2024. Under
this approach, there will be a systematic upgrading of all unpaved urban roads to
bituminous standard up until the end of the 10 year implementation period.
The RDA is committed to ensuring that it provides for adequate and timely periodic and
routine maintenance of the CRN by improving the operational efficiency and
effectiveness of critical departments associated with road maintenance. In addition, the
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RMS has also adopted a more proactive approach to dealing with emergencies through
comprehensive emergency preparedness and response strategies. Adherence to Asset
Management principles will go a long way to ensuring that resources for maintenance
are applied optimally to realize value from assets. The approach to asset management
will improve on stewardship and accountability; communication and relationships with
service users; risk management and financial efficiency. Efficient and effective execution
of preventive and corrective maintenance will be achieved through Performance
Management. The development of Road Maintenance Manuals will further guide best
practice in the application of maintenance activities on the CRN.
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18 REFERENCES
2014 Core Circular (MTEF) and RDA projected estimates
BMS., (2011). Final Report: Inventory and Condition Surveys of Bridges and Major
Culvert Structures on the Core Road Network, Road Development Agency, Zambia.
DCPM., (2013). Data Collection and Procedures Manual, 2013. Road Development
Agency (RDA) Lusaka, Zambia.
DIER. (2008). Department of Infrastructure Energy and Resources, Tasmania: State

Road and Bridge Emergency Management Plan. [Online]. Available from:
http://www.transport.tas.gov.au/__data/assets/pdf_file/0006/44799/Road_and_Bridge_E
mergency_Management_Plan_-_Final_Issue_1_-_December_2008.pdf [Accessed on 12
July 2014].
Gaël Raballand and Alan Whitworth, (2012). The Crisis in the Zambian Road Sector:
ZIPAR Working Paper No. 5. [Online]. Available from:
http://www.zipar.org.zm/documents/The%20Crisis%20in%20the%20Zambian%20Road.pd
f [Accessed on 12 July 2014].
Gwilliam, K. M. and Shalizi, Z. M., (1996). Road Funds, User Charges and Taxes.
Transport Division Discussion Paper No. 18930. The World Bank Washington
Hicks, R.G, S.P Seeds and DG Peshkin., (2000). Selecting a Preventative Maintenance
Treatment for Flexible Pavement Preservation, Washington DC
ISO 55000, 2014. ISO 55000 Standards for Asset Management
Public Roads Act No. 12 of 2002, Republic of Zambia, Section 20 (1) (2) (3) and Section
73 (1). Government Printers, Lusaka.
Public Roads Act No. 12 of 2002. Government Printers, Lusaka.
RDA Consultants’ and Contractors’ Vendor Rating System Policy and Procedures
Manual 2013
RDA., (2009). The Road Development Agency Road Network Reclassification Study
Final Report. RDA Lusaka Zambia
RDA., (2012). The Road Development Agency Maintenance Needs Report on the Core
Road Network.
RDA., (2013). The Road Development Agency Road Network Condition Report of
2013.
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RDA:1., (2014). Final Technical Report: Detailed Engineering Assessment, Conceptual Design
and Environmental and Social Assessment Studies for the Improvement to Climate Resilient
Standards of Selected Strategic Roads in the Kafue Sub-basin. Road Development Agency,
Lusaka, Zambia.
RDA:II., (2014). Draft 2014 RDA Maintenance Procedures Manual. Road Development
Agency Lusaka, Zambia.
Road Tolling Act No.14 of 2011
RoadSIP-II., (2003). The Road Sector Investment Programme Phase II (2003-2013).

Lusaka, Zambia.
RSAWP., (2013). The 2013 Road Sector Annual Work Plan. Road Development Agency
Lusaka Zambia.
Statutory Instrument No. 73 of 2013
TRN-4., (2005). Why road maintenance is important and how to get it done. [Online].
Available from: http://siteresources.worldbank.org/INTTRANSPORT/Resources/336291-
1227561426235/5611053-1231943010251/TRN4_Road_Maintenance.pdf [Accessed on
12 July 2014]
World Bank (1997). Staff Appraisal Report: Republic of Zambia - Project to Support a
Road Sector Investment Program, Report No. 16539-ZA. Washington, DC cited in
“ZIPAR Working Paper No. 5: The Crisis in the Zambian Road Sector”
World Bank Rural Transport Thematic Group. 2003. Rural Transport in Multi Sectoral
and Community Driven Projects. World Bank, Washington, DC. Cited in TRN-4, 2005.
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Road Maintenance Strategy, 2014 - 2024

1.1 MANDATE OF THE RDA .................................................................................................................. 1

2 IMPORTANCE OF ROAD MAINTENANCE ........................................................................................ 3

2.1 EXPENDITURE ON MAINTENANCE .................................................................................................... 3

3 SITUATION ANALYSIS ......................................................................................................................... 6

3.1 CURRENT STATUS ........................................................................................................................... 6

4 GOAL OF THE ROAD MAINTENANCE STRATEGY ......................................................................... 9

4.1 MAIN OBJECTIVES............................................................................................................................ 9

5 OUTLINE OF THE ROAD MAINTENANCE STRATEGY ..................................................................10

6 NETWORK DEFINITION ....................................................................................................................11

6.1 NETWORK INFORMATION ..............................................................................................................11

7 PROGRAMMING AND PRIORITIES ....................................................................................................16

7.1 MAINTENANCE PRIORITIZATION .....................................................................................................16

8 EMERGENCY MANAGEMENT AND PLANNING .............................................................................62

8.1 DEFINITION OF AN EMERGENCY......................................................................................................62

Road Maintenance Strategy, 2015-2024

8.3.2 EMERGENCY RESPONSE ...................................................................................................................66

9 ASSET MANAGEMENT ........................................................................................................................70

9.1 DEFINITION OF ASSET MANAGEMENT .............................................................................................70

10 PERFORMANCE MANAGEMENT ..................................................................................................72

10.1 DEFINITION OF PERFORMANCE MANAGEMENT ................................................................................72

11 MAINTENANCE PRACTICES AND PROCEDURES......................................................................74

12 RESOURCE DEVELOPMENT AND MANAGEMENT ....................................................................75

12.1 MAINTENANCE FINANCING ............................................................................................................75

13 RESEARCH AND DEVELOPMENT .................................................................................................85

13.1 DEFINITION ...................................................................................................................................85

14 CERTIFICATION OF ROAD MAINTENANCE CONTRACTORS ...............................................88

15 ROAD NETWORK MAINTENANCE MANAGEMENT MONITORING FRAMEWORK ............90

16 MAJOR ASSUMPTIONS ..................................................................................................................92

Figure 3-1: Actual Versus Ideal Maintenance Budget Allocation ........................................ 6

Figure 3-2 : Mapping of Maintenance Challenges ............................................................... 8

Figure 6-1: Summary of CRN Condition .......................................................................... 14

Figure 7-1: Paved Urban Condition .................................................................................. 34

Figure 7-2: Urban Road Network Coordination.............................................................. 36

Figure 7-3: Prioritization for Urban Roads ....................................................................... 37

Figure 7-4: Implementation of Maintenance on the Urban Road Network..................... 38

Figure 7-5 : Map of Bridge/Major Culvert Structures on the CRN ................................. 51

Figure 7-7 : RatingsforTrunk,MainDistrict& FeederRoads ............................................... 54

Figure 8-1: Emergency Response Flow Chart .................................................................. 69

Figure 12-1: Road Funding Trends.................................................................................... 75

BMS Bridge Management System

CRN Core Road Network

DMMU Disaster Management Unit

ECZ Environmental Council of Zambia

EIZ Engineering Institution of Zambia

EMP Emergency Management Plan

GDP Gross Domestic Product

GRZ Government of the Republic of Zambia

HDM IV Highway Development and Management Model

ICT Information Communications Technology

KPI Key Performance Indicators

LOS Level of Service

LRA Local Road Authority

M&E Monitoring and Evaluation

MLGH Ministry of Local Government and Housing

MoF Ministry of Finance

MTWSC Ministry of Transport Works Supply and Communication

NDP National Development Plan

NRFA National Road Fund Agency

PFR Primary Feeder Road

Road Maintenance Strategy, 2015-2024

PPP Public Private Partnership

RDA Road Development Agency