Community-based Models in Rural Road Development in Kien Giang Province - A Pictorial Case Study

1. Introduction

There are many factors that may cause rural road deterioration, including both unpredictable (bad construction quality, earthwork instability, overloaded vehicles, etc.) and predictable (flooding, time of use, classification, etc.). With an extensive and long rural road network falling under local administrations with limited capacity, it has not always been possible to monitor the state of rural road infrastructure and plan and mobilize appropriate resources to handle rural road maintenance (RRM). Given the nature of rural roads, it may be more realistic for RRM planning to prioritize funds for those rural roads that connect communities to markets or that have highest traffic usage to make sure limited funds serve the interests of poor communities to increase their returns from their limited livelihood assets.

The following represents part of an on-going examination by the M4P2 project to examine new and innovative models of rural road maintenance that involve active and genuine community participation. This second case study is focused on Kien Giang Province which the M4P2 team visited in May 2011 to examine different initiatives in supporting community-based PPP in rural road development and maintenance. For this case study two different approaches will be examined one focusing on a relatively poorer community and another approach in the same province aimed a more wealthy community.

2. Dinh Hoa Commune in Go Quao District

Dinh Hoa is relatively poor commune in Kien Giang Province. The following depicts how a combination of community and public participation has helped develop a relatively good rural road within this commune. 

2.1 The Commune at a Glance

• The total area of the commune is 5,119 hectares (ha), of which 3,878 ha is dedicated to agricultural production. 

• The total population of the commune is 17,000 spread over 10 hamlets. Out of this population 63,5% are of Kh’mer ethnic origin, whilst income per head last year was recorded at 17.1 million VND, well below the Provincial average figure of 23 million VND. 

• Within the commune 478 households are registered as being poor, of which 84% are of Kh’mer origin.  

• Local Buddhist monks especially  Kh’mer monks play most important role in community both in terms of information sharing, providing support to community initiatives, as well as spiritual support. There are 4 Kh’mer pagodas and 1 Buddhist pagoda within the commune. 

• In terms of rural roads, there are on average 2 to 3 bridges for each 1 km of road. Road system includes 40km of concreted roads (15km built under the Government’s Program 135 and 25km under the Government’s pilot “New Village Programme”) constructed through a public private partnership scheme with local communities. 

2.2 Public Private Participation in Rural Road Development 

Most of the rural roads that have been built in the past 5 years have had significant community participation and in some instance private sector participation. On average within Dinh Hoa commune, the community roughly contributes around 30% of the costs of the road and the Government both at the local level and through national programmes contributes about 70% of the costs. 

There are different schemes for how the community / the private contribute to rural road development and maintenance within the commune. These include the following: 

• Contribution through land from the community: The householders, who own land where the proposed rural road will cross, are encouraged to provide the requisite area of land for the road without the need for government compensation. Rather the road is expected to increase the value of the land which is adjacent to it. This type of in kind land contribution scheme for rural road development is prevalent within the commune.

• Cash contribution: Wealthy households contribute 100% the cost for construction and maintenance of the road section in front of their premises. Within this scheme, although poor families are not directly able to participate, district or commune level authorities contribute 100% the cost for the road sections that pass directly in front of poor households, as well as sections of roads that pass through publicly held property. This combination, although having the potential for disagreements and definition problems (i.e. how to define a poor household) has led to the relatively quick construction of rural roads with even technical specifications and quality. Such an approach is particularly relevant for small inter-hamlet roads.

• Mobilization from private enterprises: Although relatively few have been developed, they potential to support the development and maintenance large areas of rural roads. For instance within the commune an enterprise is contributing to 100% of the costs for developing 5km with 2.5m width standard concrete-surface road. The commune hopes that further contributions in the future could extend the length of this road. Such a scheme seems to most appropriate larger inter-commune and commune roads.

 Dinh Hoa commune is one of the pilot communes for the Government’s New Village Program (NVP)

 

 

  

 

 A section of standard 2.5m wide newly constructed concrete road surface. The land for this road is contributed by farmers without any Government compensation. 


Note that the width of the road will be expanded to 4 meters (the right hand side of the road) in line with the new regulations under the NVP. 

 

  

 A section of inter-hamlet road constructed by community. The 1m-wide concrete surfaced is suitable for 2-wheel transportation.

Wealthy families have contributed 100% cost of the part crossing their premises while the commune and district authorities pay 100% of the cost of road where it crosses poor families and public premises.

Note the construction is under way.

  

 An enterprise has provided a 100% contribution to build 5km of concrete surface road.  .  

This is a standard concrete road surface with a width of 2.5m, and built to a thickness of 14cm of concrete, and a further 2m of compacted ground along either side of the road.

 

 

2.3 The Role of Kh’mer Monks in Supporting Public Private Participation in Rural Road Development

A specific feature in the Dinh Hoa commune and surrounding areas is the special role that spiritual leaders – especially Kh’mer monks play in supporting community initiatives. The monks are very highly respected within the community (both within the Vietnamese and the ethnic Kh’mer population) and are used by the government to spread the message of community participation in rural road development.  

In addition, the Kh’mer pagodas also play a role in managing the implementation of programmes as well as supporting economic and social activities within the community. In rural road development, the pagodas provide engineering and financial management support to the community as well as help support the supervision of construction activities.

However, despite the significant active role these places of worship play within the community for managing infrastructure development, they currently have no legal status to receive direct contributions from the State budget. 

Monk Tran Nhiep (left) at one of the Kh’mer pagoda’s is a very respected  pillar of the community and has been recognized through an award  (right) by the People’s Committee for his efforts in community development.  

 

    

 

One of many bridges constructed by the community under the guidance and support of the Kh’mer pagodas.

Note the Kh’mer characters on the central beam of the bridge.

 

 

 

  

Kh’mer pagodas not only support the spiritual life of their community but also provide engineering and financial management for rural road construction.

Note the steel skeleton to support the construction of concrete bridges.

 

 

  

 

  

 

3. A Commune in Tan Hiep District

Tan Hiep A is relatively wealthy commune and the following highlights how public private partnerships (PPP) in rural road development are being applied in such a setting. 

3.1 The Commune at a Glance

• Total area of the commune is 4,016 hectares (Ha), of which 3,400 Ha is devoted to agriculture;

• Around 3,400 households live in the commune with the overall population of the commune being 15,580 resident spread throughout 88 residential clusters, 6 hamlets, and 6 cooperatives.

• There are a very modest proportion of poor households, accounting for around 4.9% of all households in the commune.

• In terms of religion, Catholics dominate with many villagers receiving remittances from family members living abroad;

• Around 54% of the population consists of those who have immigrated from the North. They tend to have a higher level of education and business skills with around 30 civil engineers living within this community

• The commune is planning to develop a fully connected rural road system within their commune.
 

3.2 Public Private Participation in Rural Road Development 

Unlike the previous commune, in this more wealthy commune, the community / private sector plays the leading role in rural road development and often contributes up to 70% of the costs of development maintaining road infrastructure whilst the Government, through local and national programme budgets contribute to less than 30% of overall costs.

  • From 2005, it is estimated that around VND 53 billion has been spent on new concrete road surfaces, which according to government sources led to the community contributing around 70% of these costs whilst the Government contributed 30% of construction costs. 
     
  • The 70% community contribution, for sections of road crossing individual households, were primarily financed by cash, through interest subsidized loans from banks with the support from district authorities.
     
  • The government’s 30% contribution primarily focused on bridges and to sections crossing poor households land as well as public premises;
     
  • Government enlisted the support of priests and the catholic community. Over 41 priests worked with the catholic community to inform, support, and gather cash donations from the community for the construction of roads and bridges.
     
  • Contractors primarily comprising of members from the local community undertook the construction works, which was found to be of a lower cost base than would have been the case, if outside contractors were used. By having members of the community to undertake the work there was better community supervision. However, this model encountered a problem in that the community contractors did not have the necessary legal status to be engaged in contracts funded through the State budget. Given this situation the district Government changed local policy allowing community contractors to be recognized in terms of contracting with the local government.
     
  • It is estimated by the District authorities that around 88km of rural roads will be constructed. The community will pay for the majority of the costs including 70% of sections crossing poor households. Under a new initiative the district is proposing a policy of a 50% of cost sharing even with poorer communities. Furthermore, the Government will contribute 70% of the costs of bridges. The district is aiming to test a more transparent budgeting mechanism by issuing a Decision that allows all payments from the district to be legally acceptable. 
     
  • Technically, the district authorities supervise all designs made by community, and approve them when they reach an acceptable standard. They also assist the community to establish supervision teams.  
     

3.2 Rural Road Development and Maintenance

• Often road sections crossing poor households are quickly deteriorated (intrusion from channel wave) and normally after 5 year of exploitation most sections start to deteriorate. Local government has no budget to repair the roads and therefore it falls primarily on the community to conduct temporary and often modest repairs. However, there are frequent difficulties in getting further community contribution for repairs from these poorer households.  

• Road section crossing households with higher incomes face little or no difficulties in terms of maintaining their road by themselves. 

• Under a new pilot scheme it is proposed to mobilize contributions from a variety of sources including the Catholic Church and local businesses to support road maintenance. Primarily new sources of finance are being sought because the community has often made considerable contributions during the construction phase.

• The district proposes the PPC to issue a policy on the ensuring adequate capital for road maintenance is provided - around 20% of the road construction budget, so that the district can support sections crossing poorer households and public premises. The remaining 80% will be raised by the community;

• Under the new scheme the district and commune level authorities are responsible for the maintenance of public sections of roads (about 30% of total road length), while the communities are responsible for other sections, with technical supervision from district and commune level authorities.

• Furthermore, the government is responsible for maintaining the embankment along channels banks to avoid roads from falling and sliding down – given the potentially significant costs that such incidents cause. 

• Government is also looking at providing interest rate subsidies on the loans the communities borrow from Bank for maintenance works.

 A road section that was built by households

Note the 0.8m-wide lane in the right that is attached to the existing 1m-wide lane on the left to increase the width to 1.8m as required by the NVP.  

  

 

 A section built by households with higher income beside the channel. 

These households also maintain the road.  

 

 

 

 An embankment developed to avoid roads from falling and sliding down. This is often considerably expensive to build.

 

  

  

 Even in relatively high-income areas, bridges  are built and financed  by the Government  

 

   

 

 This is a section of road crossing a poorer area. There is need for a change in policy, requiring a more significant Government contribution for both construction and maintenance.  

 
 

 

3.3 The Potential for Policy Action

Aside from the ability of the community to contribute to rural road development and maintenance relatively wealthy districts, there is a need to also look at changing government policy to support less well off individuals. In order to influence and direct essentially a change in policy, there is need to support “champions of change” - individuals who have credibility in the eyes of all stakeholders as a balanced voice on an issue and one whose opinion is respected and who can mobilize a broad cross section of support to make the change happen.

A number of such champions are visible in Tan Hiep, one of them is Mr. Lê Văn Đúng, the Head of Commerce-Industry Division, and a former vice-chairman of the district. During his time he has held drive through a number of policy initiatives at the district level:

Champion for Change at the District Level

 Mr. Lê Văn Đúng, Head of Commerce-Industry Division, former vice-chairman of the district.

“… we have supported the development of a policy allowing community contractors to be legally recognized, thus allowing them to contract directly with Government. We also proposed a transparent budgeting mechanism by issuing a Decision that allows all payments from District to be legally recognized. ..”

“…District requires any activities involving community contribution and participation to be approved, with a transparent contribution system being in place. …”

“…technically the district the district authorities supervise all designs made by community, and approve them when they reach an acceptable standard. They also assist the community to establish supervision teams. …”

“ … for maintenance works, we proposed to mobilize contributions from the catholic church and businesses since the community has already contributed for construction, it fair and appropriate …”

“… we propose the PPC to issue a policy on the ensuring adequate capital for road maintenance - around 20% of the road construction budget, so that the district can support sections crossing poorer households and public premises. The remaining 80% will be raised by the community…”

“… we proposed a break-through policy with the district and commune level authorities responsible for the maintenance of public sections of roads (about 30% of total road length), while the communities are responsible for other sections… “

By Phan Manh Tuan, PPP Expert in Rural Infrastructure
Email: pmtuan.vietnam@ymail.com